(Reuters) - In 2008, Hillary Clinton promised Barack Obama, the president-elect, there would be no mystery about who was giving money to her family's globe-circling charities. She made a pledge to publish all the donors on an annual basis to ease concerns that as secretary of state she could be vulnerable to accusations of foreign influence.
At the outset, the Clinton Foundation did indeed publish what they said was a complete list of the names of more than 200,000 donors and has continued to update it. But in a breach of the pledge, the charity's flagship health program, which spends more than all of the other foundation initiatives put together, stopped making the annual disclosure in 2010, Reuters has found.
Hillary Clinton - general
Exclusive: Despite Hillary Clinton promise, charity did not disclose donors
Hillary Clinton delivers the keynote address at the 18th annual David N. Dinkins Leadership and Public Policy Forum at Columbia University, in New York, April 29, 2015. AFP PHOTO/TREVOR COLLENS (Photo credit should read TREVOR COLLENS/AFP/Getty Images)
KEENE, NH - APRIL 20: Democratic presidential hopeful and former U.S. Sectetary of State Hillary Clinton speaks to employees of Whitney Brothers, an educational furniture manufacturer, at a round table discussionon April 20, 2015 in Keene, New Hampshire. This marks Clinton's first major political event in New Hampshire after announcing her campaign for president a little over a week ago. (Photo by Andrew Burton/Getty Images)
NORWALK, IA - APRIL 15: Democratic presidential hopeful and former Secretary of State Hillary Clinton looks on during a roundtable discussion with members of the small business community at Capital City Fruit on April 15, 2015 in Norwalk, Iowa. Hillary Clinton continues to campaign throughout Iowa as she makes her second bid for President of the United States. (Photo by Justin Sullivan/Getty Images)
CONCORD, NEW HAMPSHIRE - APRIL 21: Secretary Hillary Clinton participates in a roundtable with administrators, teachers and students, at a Concord technical training community college in Concord, New Hampshire on Tuesday, April 21, 2015. (Photo by Melina Mara/The Washington Post via Getty Images)
NEW YORK - MARCH 16: Former Secretary of State Hillary Clinton speaks on stage during a ceremony to induct her into the Irish America Hall of Fame on March 16, 2015 in New York City. The Irish America Hall of Fame was founded in 2010 and recognizes exceptional figures in the Irish American community. (Photo by Yana Paskova/Getty Images)
Former US Secretary of State Hillary Clinton takes part in a discussion on 'our nation's urban centers,' and 'challenges from housing and transportation to education and workforce accessibility.' at the Center for American Progress (CAP) in Washington, DC, on March 23, 2015. AFP PHOTO/NICHOLAS KAMM (Photo credit should read NICHOLAS KAMM/AFP/Getty Images)
NEW YORK, NY - APRIL 01: Former Secretary of State Hillary Clinton attends a round table conversation and press conference announcing a childhood development initiative with first lady of New York City Chirlane McCray on April 1, 2015 in New York City. The initiative is between New York City Children's Cabinet and Too Small to Fail. (Photo by Andrew Burton/Getty Images)
NEW YORK - MARCH 16: Former Secretary of State Hillary Clinton raises her glass during a toast at a ceremony to induct her into the Irish America Hall of Fame on March 16, 2015 in New York City. The Irish America Hall of Fame was founded in 2010 and recognizes exceptional figures in the Irish American community. (Photo by Yana Paskova/Getty Images)
NEW YORK - MARCH 10: Former United States Secretary of State Hillary Clinton arrives to a press conference after keynoting a Women's Empowerment Event at the United Nations on March 10, 2015 in New York City. Clinton answered questions about recent allegations of an improperly used email account during her tenure as Secretary of State. (Photo by Yana Paskova/Getty Images)
Hillary Clinton, former U.S. secretary of state, speaks during a news conference at the United Nations (UN) in New York, U.S., on Tuesday, March 10, 2015. Clinton defended the legality of her use of a private e-mail account and server while she served as secretary of state, saying that she had done so out of a desire for convenience but should have used a government account for work purposes. Photographer: Victor J. Blue/Bloomberg via Getty Images
NEW YORK, NY - MARCH 09: Former Secretary of State Hillary Rodham Clinton speaks on stage with Gates Foundation Co-Chair Melinda Gates and Clinton Foundation Vice Chair Chelsea Clinton for the official release of the No Ceilings Full Participation Report which coincides with the start of the 59th session of the United Nations' Commission on the Status of Women on March 9, 2015 in New York City. Global and community leaders participated in the program which looked to highlight the findings showing 20 years of global data compiled by No Ceilings reveals that there is more to done to achieve Ãfull and equal participationÃ of women and girls worldwide. (Photo by Spencer Platt/Getty Images)
BOSTON, MA - DECEMBER 04: Former United States Secretary of State, Hillary Rodham Clinton speaks on stage at the 2014 Massachusetts Conference for Women at Boston Convention & Exhibition Center on December 4, 2014 in Boston, Massachusetts. (Photo by Lisa Lake/Getty Images for Massachusetts Conference for Women)
NEW YORK, NY - NOVEMBER 21: Hillary Clinton attends the New-York Historical Society 2014 History Makers Gala at Mandarin Oriental Hotel on November 21, 2014 in New York City. (Photo by Brad Barket/Getty Images)
NEW YORK, NY - NOVEMBER 21: Hillary Rodham Clinton speaks at the Cookstoves Future Summit on November 21, 2014 in New York City. Clinton, who is the Leadership Council Chair for the Global Alliance for Clean Cookstoves, spoke to donors, activists and members of the media on the importance of clean cookstoves for families in parts of the developing world. Globally, 3 billion people rely on solid fuels to cook. This has resulted in polluted household air that kills over 4 million people every year and sickening millions more. The Global Alliance for Clean Cookstoves looks to replace old stoves with more efficient and cleaner one's which would drastically reduce the negative health issues associated with older stoves. (Photo by Spencer Platt/Getty Images)
NEW ORLEANS, LA - NOVEMBER 01: Former U.S. Secretary of State Hillary Clinton campaigns for U.S. Sen. Mary Landrieu (D-LA) during the 'Women with Mary Geaux Vote' event at the Sugar Mill on November 1, 2014 in New Orleans, Louisiana. Landrieu is faced off against two Republicans for the senate seat, Rep. Bill Cassidy and retired Air Force Colonel Rob Maness. (Photo by Stacy Revere/Getty Images)
LOUISVILLE, KY - OCTOBER 15: Former U.S. Secretary of State Hillary Clinton reaches for U.S. Senate Democratic candidate and Kentucky Secretary of State Alison Lundergan Grimes (D-KY) while campaigning for Grimes October 15, 2014 in Louisville, Kentucky. Grimes remains locked in a tight race with Senate Minority Leader Mitch McConnell (R-KY) with midterm elections less than three weeks away. Also pictured is Kentucky Gov. Steve Beshear (L). (Photo by Win McNamee/Getty Images)
NEW YORK, NY - OCTOBER 23: Former U.S. Secretary of State and U.S. Sen. Hillary Rodham Clinton smiles while Incumbent New York Governor Andrew Cuomo speaks during a 'Women for Cuomo' campaign event on October 23, 2014 at the Grand Hyatt Hotel in New York, NY. Cuomo was joined by Clinton who, citing his record on women's rights, endorsed him in the upcoming gubernatorial election on November 4, 2014. U.S. Rep. Kathy Hochul, the Democratic nominee for New York Lt. Gov., also spoke at the event. (Photo by Bryan Thomas/Getty Images)
NEW YORK, NY - SEPTEMBER 24: Former U.S. Secretary of State Hillary Clinton speaks during the Clinton Global Initiative (CGI), on September 24, 2014 in New York City. The annual meeting, established in 2005 by President Clinton, convenes global leaders to discuss solutions to world problems. (Photo by John Moore/Getty Images)
NEW YORK, NY - SEPTEMBER 21: Former Secretary of State Hillary Clinton speaks during the 8th Annual Clinton Global Citizen Awards at Sheraton Times Square on September 21, 2014 in New York City. (Photo by Jemal Countess/Getty Images)
NEW YORK, NY - JANUARY 06: Former president of United States (US) Bill Clinton (R) and his wife, former US Secretary of State Hillary Clinton (L), leave St. Ignatius Loyola Church after the funeral of former three-term governor Mario Cuomo on January 6, 2015 in New York City. (Photo by Selcuk Acar/Anadolu Agency/Getty Images)
NEW YORK, NY - DECEMBER 20: (EXCLUSIVE COVERAGE) (L-R) Hillary Clinton, Michael Esper and Bill Clinton pose backstage at the hit musical 'The Last Ship' on Broadway at The Neil Simon Theater on December 20, 2014 in New York City. (Photo by Bruce Glikas/FilmMagic)
NEW YORK, NY - DECEMBER 16: Event honoree Hillary Rodham Clinton speaks on stage during the 2014 Robert F. Kennedy Ripple Of Hope Awards at the New York Hilton on December 16, 2014 in New York City. (Photo by Mike Pont/FilmMagic)
NEW YORK, NY - DECEMBER 16: (L-R) Tony Bennett, Donato Tramuto, Hillary Rodham Clinton, Kerry Kennedy, Ethel Kennedy, and Robert De Niro attend the RFK Ripple Of Hope Gala at Hilton Hotel Midtown on December 16, 2014 in New York City. (Photo by Kevin Mazur/Getty Images for RFK Ripple Of Hope)
NEW YORK, NY - DECEMBER 16: Honoree Hillary Rodham Clinton (L) accepts an award from Ethel Kennedy at the RFK Ripple Of Hope Gala at Hilton Hotel Midtown on December 16, 2014 in New York City. (Photo by Kevin Mazur/Getty Images for RFK Ripple Of Hope)
EAST HAMPTON, NY - AUGUST 16: Hillary Rodham Clinton signs copies of her book 'Hard Choices' at BookHampton on August 16, 2014 in East Hampton, New York. (Photo by Sonia Moskowitz/Getty Images)
Former US Secretary of State Hillary Clinton arrives to sign her book 'Hards Choices' at the Bunch of Grapes bookstore on Martha's Vineyard on August 13, 2014. Clinton on August 12 denied attacking US President Barack Obama over his foreign policy in Syria and Iraq, insisting she was looking forward to 'hugging it out' with the US leader when they meet at a party later this week. AFP PHOTO/Nicholas KAMM (Photo credit should read NICHOLAS KAMM/AFP/Getty Images)
OAKLAND, CA - JULY 23: Former Secretary of State Hillary Clinton speaks during a during a round table event to launch the 'Talking is Teaching: Talk Read Sing' campaign at the
Children's Hospital Oakland Research Institute on July 23, 2014 in Oakland, California. Former Secretary of State Hillary Clinton launched the 'Talking is Teaching; Talk Read Sing' campaign in partnership withToo Small to Fail and the Bill, Hillary and Chelsea Foundation that encourages parents and caregivers to close the word gap by talking, singing and reading to children every day from the birth. (Photo by Justin Sullivan/Getty Images)
US Secretary of State Hillary Clinton (L) and US President barack Obama (R) are greeted by Myanmar pro-democracy leader Aung San Suu Kyi (C) at her residence in Yangon on November 19, 2012 . Obama arrived in Myanmar for a historic visit aimed at encouraging a string of dramatic political reforms in the former pariah state. AFP PHOTO / Nicolas ASFOURI (Photo credit should read NICOLAS ASFOURI/AFP/Getty Images)
US Secretary of State Hillary Clinton (L) looks on as US President Barack Obama (2nd L) speaks during a bilateral meeting with Japanese Prime Minister Yoshihiko Noda (2nd R) on the sidelines of the East Asian Summit at the Peace Palace in Phnom Penh on November 20, 2012. During the two-day East Asia Summit in Phnom Penh, Obama was scheduled to hold talks with the leaders of the 10-member Association of Southeast Asian Nations (ASEAN) along with Chinese Premier Wen Jiabao and Japan's Yoshihiko Noda. AFP PHOTO / Jewel Samad (Photo credit should read JEWEL SAMAD/AFP/Getty Images)
US President Barack Obama and Secretary of State Hillary Clinton board Air Force One at the airport in Yangon on November 19, 2012. Huge crowds greeted Barack Obama in Myanmar on the first visit by a serving US president to the former pariah state to encourage a string of startling political reforms. AFP PHOTO/Jewel Samad (Photo credit should read JEWEL SAMAD/AFP/Getty Images)
BERLIN, GERMANY - JULY 06: Hillary Rodham Clinton, former United States Secretary of State, U.S. Senator, and First Lady of the United States, speaks during the presentation of the German translation of her book 'Hard Choices' ('Entscheidungen' in German) at the Staatsoper in the Schiller Theater on July 6, 2014 in Berlin, Germany. (Photo by Adam Berry/Getty Images)
US President Barack Obama(2nd-L), First Lady Michelle Obama(L) along with former president Bill Clinton(3rd-L) and former secretary of state Hillary Clinton(4th-L) take part in a wreath-laying ceremony in honour of the late 35th president of the US John F. Kennedy at Kennedy's gravesite in Arlington National Cemetery on November 20, 2013 in Arlington, Virginia. AFP PHOTO/Mandel NGAN (Photo credit should read MANDEL NGAN/AFP/Getty Images)
AUSTIN, TX - JUNE 20: Hillary Rodham Clinton appears on stage during 'A Conversation With Former Secretary of State Hillary Rodham Clinton' at the Long Center on June 20, 2014 in Austin, Texas. (Photo by Gary Miller/Getty Images)
BERLIN, GERMANY - JULY 06: Hillary Rodham Clinton, former United States Secretary of State, U.S. Senator, and First Lady of the United States (R), speaks next to Christoph Amend, editor in chief of Zeit Magazin, during the presentation of the German translation of her book 'Hard Choices' ('Entscheidungen' in German) at the Staatsoper in the Schiller Theater on July 6, 2014 in Berlin, Germany. (Photo by Adam Berry/Getty Images)
Former Secretary of State Hillary Clinton waits to speak at the World Bank May 14, 2014 in Washington, DC. Former Secretary of State Hilary Clinton and World Bank President Jim Yong Kim joined others to speak about women's rights. AFP PHOTO/Brendan SMIALOWSKI (Photo credit should read BRENDAN SMIALOWSKI/AFP/Getty Images)
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In response to questions from Reuters, officials at the Clinton Health Access Initiative (CHAI) and the foundation confirmed no complete list of donors to the Clintons' charities has been published since 2010. CHAI was spun off as a separate legal entity that year, but the officials acknowledged it still remains subject to the same disclosure agreement as the foundation.
The finding could renew scrutiny of Clinton's promises of transparency as she prepares to launch her widely expected bid for the White House in the coming weeks. Political opponents and transparency groups have criticized her in recent weeks for her decision first to use a private email address while she was secretary of state and then to delete thousands of emails she labeled private.
CHAI, which is best known for helping to reduce the cost of drugs for people with HIV in the developing world, published a partial donor list for the first time only this year.
CHAI should have published the names during 2010-2013, when Clinton was in office, CHAI spokeswoman Maura Daley acknowledged this week. "Not doing so was an oversight which we made up for this year," she told Reuters in an email when asked why it had not published any donor lists until a few weeks ago.
A spokesman for Hillary Clinton declined to comment. Former President Bill Clinton, who also signed on to the agreement with the Obama administration, was traveling and could not be reached for comment, his spokesman said.
STATE DEPARTMENT REVIEW
The Reuters inquiries also raised questions about a second assurance Hillary Clinton made to the Obama administration: that the State Department would be able to review any new or increased contributions to CHAI by foreign governments while she served as the nation's top diplomat. The Clintons said the pledge was intended to defuse accusations that foreign governments might use such donations to earn favors.
By the time Clinton left office in February 2013, the charity had received millions of dollars (Graphic: reut.rs/1Lvua8z) in new or increased payments from at least seven foreign governments. Five of the governments came on board during her tenure as secretary of state while two doubled or tripled their support in that time, according to data provided by CHAI spokeswoman Daley.
The State Department said it was unable to cite any instances of its officials reviewing or approving new money from any foreign governments. Daley confirmed that none of the seven government donations had been submitted to the State Department for review.
One instance was an admitted oversight, Daley said: CHAI should have told the State Department before accepting donations totaling $340,000 from Switzerland's Agency for Development and Cooperation in 2011 and 2012. However, it did not believe U.S. authorities needed to review the other six governments, including Britain and Australia, she said, citing various reasons.
Hillary Clinton told the Senate during her confirmation hearing in January, 2009, that the disclosures she and her husband agreed to were "very unprecedented."
At that time, she did not dispute the Senate Foreign Relations Committee's concerns that utter transparency was necessary to protect the integrity of the United States' diplomacy and foreign policy.
BRITAIN, AUSTRALIA BOOSTED DONATIONS Since it was published in 2008, the foundation's online donor list has been updated annually, naming everyone from individuals giving a few dollars to governments awarding eight-figure grants, the foundation said. It has been pored over by interest groups, the Clintons' political opponents, and the media.
The foundation list has not included those who donated just to CHAI since the initiative was spun off in 2010, foundation spokesman Craig Minassian said. Minassian said the foundation believed CHAI continued to be bound by the agreement with the Obama administration.
He did not elaborate on why CHAI did not honor it and referred inquiries to Daley.
In the donor list that CHAI published this year, for the first time since its spin-off from the Clinton Foundation, not all donors were identified. Many were grouped together as "Individual Donations", which cumulatively came to less than $1 million. Those donations were small and so "did not warrant posting," said Daley.
In 2008, the Clintons agreed that existing government contributors that wanted to "materially increase" their commitments during Hillary Clinton's tenure would be reviewed by State. Australia almost doubled its support between 2009-2012, to $12.2 million, while the United Kingdom nearly tripled its support, to $11.2 million.
CHAI did not report these increases to the State Department because the new money was for "expansions of existing programs," Daley said.
Daley also provided a number of explanations for why other governments that appeared on a donor list provided to Reuters did not need to be reviewed by the State Department. Swaziland and Papua New Guinea, which gave small grants for AIDS programs, were not submitted for review because the money they gave originated from other sources, including existing donor Australia and the Global Fund to Fight AIDS, Tuberculosis and Malaria, she said.
In the case of Sweden, its International Development Cooperation Agency has given CHAI $7.2 million since 2012 to train health workers in Zambia, but nothing in at least the previous three years. This did not need State review because Sweden had given to the foundation prior to 2009, Daley said.
Rwanda, which CHAI listed as a donor, gave the charity $200,000 in 2012. CHAI considered this a fee for medical work it did in the country, not a grant or donation, and so did not tell the State Department about it, Daley said.
Money from all of these governments amounted to about 1 percent of CHAI's total budget, she said.
The White House declined to answer questions about whether the Obama administration was aware of CHAI not disclosing its donors or submitting new donations from foreign governments. White House spokeswoman Jennifer Friedman noted, however, that the agreement the Clintons entered into "went above and beyond standard ethics requirements."