US embassy cable - 04MAPUTO597

UNCLAS SECTION 01 OF 05 MAPUTO 000597 
 
SIPDIS 
STATE FOR INL/AAE, AF/S, AF/PAPD, AND DS/OP/AF 
E.O. 12958: N/A 
TAGS: KCRM, ABUD, SNAR, KCOR, KPAO, EFIN, EAID, ASEC, MZ 
SUBJECT: MOZAMBIQUE - INL FY 06/07 WORKPLAN 
 
REF: SECSTATE 071478 
 
1. Embassy Maputo requests continued INL funding for FY 
06/07 to build on ongoing projects to further develop the 
Attorney General's Anti-Corruption Unit and the Mozambican 
Police Sciences Academy, and further requests additional 
funds for assistance to Mozambican Immigration and Customs 
to improve border security. Per reftel, project 
descriptions are provided below. 
 
PROGRAM SUMMARY 
--------------- 
2. Public statements of senior GRM officials, including 
Attorney General Madeira and President Chissano, have 
repeatedly addressed the problems of corruption, judicial 
sector inefficiency, a perceived increase in violent crimes 
coupled with public disillusionment with the police force, 
and the inability of the GRM to enforce sufficient border 
controls. The Interior Minister, immigration and customs 
officials have all emphasized to post their need for USG and 
other donor support in the area of border security. To 
date, post's law enforcement working group has successfully 
coordinated funding from USAID, INL, PD, RSO, and DOD to 
build programs supporting GRM efforts in development of the 
Anti-Corruption Unit of the Attorney General's Office and 
the National Police Academy (ACIPOL). Defense Attach Office 
has worked with the Mozambican navy and counterparts from 
other embassies to lay the framework for improved security 
of the country's long sea border. 
 
3. Influence peddling, money laundering, and corruption are 
serious impediments to economic development a core post MPP 
goal. President Chissano and the candidate to succeed him as 
President, Armando Guebuza, have continued to publicly 
pledge their support for the fight against corruption. The 
Attorney General places great emphasis on the continued 
development of the Anti-Corruption Unit for successful 
prosecutions of corruption. 
 
4. The post 2006 Mission Program Plan includes goals and 
strategies to strengthen GRM anti-corruption institutions 
and mechanisms and to improve border security. Post seeks 
to improve good governance by supporting efforts of central 
and local governments and civil society to combat 
corruption. Post will pursue strategies to build GRM 
capacity to combat terrorism through adoption and 
implementation of appropriate legislation and strengthened 
law enforcement and border controls. Mission continues to 
work with the GRM to overcome structural weaknesses in 
financial oversight and control of borders that could allow 
Mozambique to be used as a terrorist transit point in 
attacks against United States interests. 
 
PROJECT DESCRIPTIONS 
-------------------- 
ANTI-CORRUPTION UNIT 
5. Post requests continuation of support for the Attorney 
General's Anti-Corruption Unit (ACU) through FY 2007 with a 
full-time OPDAT Legal Advisor funded by FY06 and FY07 funds. 
Post requests that Department of Justice, through the 
Overseas Prosecutor Development, Assistance and Training 
(OPDAT) program, identify an Assistant United States 
Attorney or other qualified official to serve as a Regional 
Legal Advisor (RLA) to work with the management of the unit. 
If no appropriate individual is available for a full year, 
one or more Intermittent Legal Advisors could spend two 
periods of six months working with the ACU. The RLA or 
ILA(s) would support the ACU in establishing effective 
management procedures, organizational structure and standard 
operating procedures. 
 
6. The Legal Advisors would act as consultants for the 
upper management of the organization with regard to legal 
questions, advice on specific cases, and law enforcement 
techniques, such as how to use an undercover operative. 
 
7. The objectives of this program will be to mentor 
prosecutors in developing cases, develop case law in 
corruption and financial crimes and train judges and 
prosecutors in financial crime prosecution techniques. 
These objectives can be measured through the numbers of 
successfully prosecuted corruption or financial crimes 
cases. 
 
8. Evaluation of the program's progress is done through 
quarterly reports by the OPDAT attorney, interviews with the 
Attorney General's Office, the tracking of statistics of 
successfully prosecuted corruption and financial crimes 
cases. 
 
9. This program contributes to USG's goals and objectives 
in Mozambique by assisting in creating a viable judicial 
sector, essential for a stable democracy. By supporting the 
ACU, we will help fight domestic and international crime in 
Mozambiquie. 
 
10. In 2004 through 2007 we see this program continuing as 
the ACU grows into its position and matures as an 
organization. Over the past three years, the mission has 
cultivated a highly productive relationship with the 
Attorney General and his staff, using resources from all 
mission elements to assist the AG in his effort to build 
capacity for fighting corruption. 
Resource Tables for OPDAT Advisor: 
Cost Component FY03 FY04 FY05 FY 06 FY07 
Personnel --- 250 250 250 250 
Commodities --- 50 50 50 50 
(training, technical assistance, short-term advisors) 
Law school scholarships 
--- 75 75 75 75 
Total Project Request 
--- 375 375 375 375 
? 
Continuation of funding for Law School Scholarships for 
five prosecutors is also requested. The AG has specifically 
appealed to the donors this past year for funding such 
scholarship for direly needed law degrees for his staff, 
many of whom never had the opportunity to pursue further 
training. Total request for Anti-Corruption Unit related 
activities is $275,000 for each year. 
 
11. Resources requested: OPDAT advisor presence to 
facilitate training workshops, improved management of the 
ACU, implementation of effective case tracking systems, and 
the development of curricula for AGO training. Continuation 
of five- year law school scholarships initiated in FY 03 for 
five prosecutors per year is requested for FY 06 and 07. 
 
12. Resource justification: The Attorney General's Office 
has increased efforts to strengthen the capacity of the ACU. 
Public confidence is high that the ACU will have the 
capacity and the will to act forcefully against corruption. 
The AG is planning the formation of a specialized judicial 
police (PJ) unit that will report directly the AGO, 
independently of the discredited criminal investigation 
police (PIC). The overwhelming public perception that 
corruption is a serious problem has provided a conducive 
environment for the AG to energetically support development 
of an effective ACU, and post has built upon the excellent 
working relations established between the AGO and USAID 
mission, as well as Embassy Front Office and Public 
Affairs.. The principal short-term OPDAT advisor has built 
up a comprehensive knowledge of the issues facing the ACU 
and has gained the trust of the AG and his staff over the 
course of four visits. Continued USG support of the AGO is 
critical in that, while other international donors support 
courts, law schools, infrastructure, and law reform, USG 
support has been focused on the AGO support in this sector. 
The goal of the project is to create a more effective ACU 
able to carry out complex investigations into all forms of 
corruption. This project builds upon the FY 2001-2003 OPDAT 
funding that has already been applied to this effort and 
post request for FY 2004-2005 additional resources. 
 
13. Performance measurements: Number of arraignments 
stemming from cases, number of successful prosecutions, 
number of ACU Staff members trained, effectiveness of 
improved case management systems and applications, number of 
prosecutors completing their law degrees, demonstrated 
institutional capacity improvement. 
 
14. Sustainability: The GRM is responsible for recurring 
costs of salaries and benefits for Anti-Corruption Unit 
personnel. Training activities by OPDAT ILAs are carried 
out by the Judicial Training Center, with the overhead costs 
of operation of the training center borne by the GRM. The 
relationship established between the ACU and the Judicial 
Training Center ensures sustainability due to their train- 
the-trainer based approach, as opposed to stand-alone 
training. Host country commitment has been exemplified by 
the Attorney General in public speeches with pledges of the 
decisive action, followed up in recent months by moves to 
investigate and detain corrupt officials. The AG has 
identified training and information technology activities as 
critical elements of the AGO's strategic plan for building 
the capacity of their institution to successfully combat 
corruption. This request is part of a comprehensive program 
of support initiated by the USG agencies in FY 2000 and is 
critical to augment planned support by USAID through FY 06. 
 
15. Evaluation: Post and AID mission will continue to meet 
with the Attorney General regularly and with ACU on a 
monthly basis to assess results of assistance. Reports will 
be prepared every six months considering information from 
the media, NGOs and the AGO. OPDAT advisors will complete 
evaluation reports of the program. 
 
POLICE SCIENCES ACADEMY 
----------- 
16. Post considers the Police Sciences Academy as critical 
to improving the performance and professionalism of the 
police force and seeks to continue assistance to this 
institution. Funding of $250,000 was approved for FY 03 for 
development of forensics laboratory capability to take place 
parallel to continued ICITAP advisor technical assistance 
visits. A forensics training lab assessment visit was 
conducted in March 2004. A further $175,000 was requested 
for both FY 04 and FY 05. The ICITAP Investigative 
Development Training Program will compliment forensics 
training capacity at ACIPOL by providing the necessary 
skills to protect crime scenes and conduct investigations. 
Post is also interested in working with the Mozambican 
Police on a Community Policing project to provide material 
support and training to an already existing program 
 
17. Resources requested: $175,000 for the forensic 
laboratory development project and $200,000 for a Field 
Training Officer Program to complement the Basic Skills 
Training we will hopefully be providing for FY 06; for FY 
07, $175,000 for the forensic laboratory development project 
and $200,000 for a community policing program that will 
build upon what the Mozambicans are already doing. 
 
18. As part of this project, ICITAP will donate other 
equipment including mobile crime scene kits, loop magnifiers 
for analyzing fingerprint cards, televisions, VCRs, and 
video cameras for the police academy, and ink pads for 
taking fingerprints. 
 
19. Resource Table: 
Cost Component FY03 FY04 FY05 FY06 FY07 
Forensics Lab Project 250 175 175 175 175 
Basic Skills Training 150 150 150 -- -- 
Field Training Officer Prog. -- -- -- 200 -- 
Community Policing -- -- -- -- 200 
Total Project Request 400 325 325 375 375 
 
20. Resource justification: The PIC is harshly criticized 
for impeding or conducting poor criminal investigations. The 
National forensics lab, which is managed by the PIC does not 
have sufficient resources to conduct quality investigations. 
The PIC has a weak training infrastructure, and detectives 
do not receive skills-based instruction with practical 
exercises to improve their competence in handling complex 
criminal cases. The Policia Judicial (PJ) is still in the 
formative stages and will need to quickly train an elite 
group of investigators. 
 
21. Resource justification: Improve efficiency, 
professionalism, and respect for human rights, by improving 
basic police skills and building on these skills with the 
ICITAP Field Training Officer Program. Improve facilities 
of ACIPOL to enable it to establish itself as a center for 
excellence for the future leaders of the PRM. Provide a 
quality training forensics lab and an alternate venue for 
the PJ to conduct future forensics analyses. The Community 
Policing program will complement already existing Minister 
of Interior initiatives. 
 
22. Performance measurements: Benchmarks that identify 
measurable outcomes will include number of ACIPOL 
instructors and students, PRM officers and trainers, and AGO 
prosecutors provided training by ICITAP-trained trainers, 
comparisons of the number of criminal cases solved before 
and after the implementation of the project, and citizen 
surveys regarding police conduct and effectiveness. 
 
23. Sustainability: Project will provide training to 
police instructors who will then replicate the training 
throughout the police force. This training will serve to 
incrementally build a quality, self- sustaining training 
infrastructure. 
 
24. Evaluation: ICITAP will assist the GRM and the U.S. 
Embassy in conducting periodic progress reviews to determine 
which milestones have been completed and to identify 
appropriate remedial actions when delays occur. 
 
BORDER SECURITY 
25. Mozambique has limited capabilities to prevent its use 
as a transit point for terrorist activities. Mozambique has 
no capacity to patrol its long shoreline and limited 
coverage of its porous land borders. Oversight of the 
international movement of money, goods, and people is 
extremely limited and subject to corruption. Mozambique is 
a significant transit point for the illegal trafficking of 
narcotics, weapons, immigrants, and economic contraband. 
Post has asked for funds for FY 04 and FY 05 for expansion 
of INL programs to deal with this serious problem. We are 
still awaiting determination by INL if funding will be 
approved. If the program is already in its third year by FY 
06, than we will request container scanner equipment and 
training for Mozambique's three major sea ports and up to 
five key land border crossings. 
 
26. With this project, post would enhance the capability of 
POE-based immigration, customs, and law enforcement units to 
interdict criminal elements and to quickly and accurately 
share information with relevant agencies. Post will identify 
key POEs for training and communication/information 
technology upgrades to facilitate the sharing of information 
in a timely manner. The border security improvements will 
begin to make Mozambique a more difficult operating 
environment for cross-border crime. 
 
27. INL funds over the course of the three-year project 
would support the following activities, dependant on 
availability of the training teams: 
1) Security Assessments of major points of entry, including, 
but not limited to: Mavalane International Airport Maputo, 
the land borders at Ressano Garcia, Namaacha, and 
Machipanda, Beira International Airport, and the ports of 
Maputo, Matola, Beira, and Nacala. These assessments should 
focus on ways in which information technology could be used 
to improve security. 
2) Purchasing communication and IT equipment based on 
security assessments and input from post's Law Enforcement 
Working Group (LEWG). This would include computers, 
scanners, digital cameras, and surveillance equipment. 
3) Computer training courses should be provided for IT 
professionals working at POEs, in order to build expertise 
of units' IT staff. 
4) Training course for senior-level managers of POE 
installations and law enforcement units deployed at these 
POEs. Participants should include managers from Mozambican 
police, customs, and immigration. 
5) Series of training courses for officials working at POEs 
on interdiction. This would follow up previous training on 
the same topic, but would be able to build on prior training 
or expose newer officers to training in interdiction. A 
focus on joint training would expose officers working at 
airports and ports to ways they could enhance coordination. 
6) Course on document fraud that will focus on immigration 
officials, but should include other law enforcement 
officials as well. 
7) FBI fingerprint classification course will enable 
officials to better organize and share data. 
8) Surveillance and Criminal Intelligence course. This 
course would better equip police to more effectively use 
alternative methods to interdict criminal elements. 
 
28. Resources requested: Post requests $250,000 to initiate 
a three-year program to improve security at Mozambican 
points of entry (POE). 
 
29. Performance Measurements: Increased interdiction of 
illegal criminal elements transiting Mozambique. Enhanced 
inter-agency cooperation at airports, border posts, and 
seaports. Relevant use of upgraded technology in order to 
quickly share information on criminal activity 
 
30. Sustainability: Given the projects focus on joint- 
training and information technology, the benefits of the 
program would continue, even should USG funding end. In 
selection of course participants, consideration will be 
given to assessing whether or not they are likely to remain 
in relevant positions, but the program will focus largely on 
training that will benefit individual officers, even if they 
move to other units. 
 
31. Evaluation: Post's Law Enforcement Working Group 
(LEWG) members will meet with counterparts at POEs on a 
regular basis to discuss use of training and commodities. 
Additionally, post's INL point of contact will request 
written reports on condition of donated equipment from host 
government officials in addition to asking for updates on 
arrests and seizures at POEs. 
 
SUMMARY RESOURCE TABLE 
---------------------- 
(in USD thousands) FY03 FY04 FY05 FY06 FY07 
Anti-Corruption Unit 275 275 275 250 250 
(incl. Judicial Training) 
Police Academy 250 250 250 375 375 
Border Security - 250 250 275 300 
--------------------------------------------- ---------------- 
Totals 525 775 775 900 925 
 
32. Post appreciates consideration of these requests. 
LA LIME