Under Mobutu, governance deteriorated and corruption flourished in Zaire, and he saw Katanga only as a cash cow and punished it for its separatist tendencies by neglecting its development. Zairean border officials and police went for months without being paid and turned to petty corruption to survive. At first small bribes were taken from Zambians whose identity cards were not in order, but this escalated to arbitrary fines, for example, a driver might be fined for wearing a hat while his passenger was fined for not wearing a hat.