THE SECRETARY'S REGIONAL STRATEGIC INITIATIVE

C O N F I D E N T I A L DAR ES SALAAM 001503 SIPDIS SIPDIS DEPT FOR INL DAS E VERVILLE, INL/AAE DIRECTOR E RICHARD, INL/C J BRANDOLINO S/CT FOR DAS J FEIERSTEIN, V PALMER JUSTICE OPDAT FOR AF DIRECTOR, J SILVERWOOD AND ICITAP/AF E BEINHART TREASURY - OFFICE TER FINANCING/FIN CRIME FOR P HEFFERNAN, I CRUM DS/TT/ATA FOR DIRECTOR D ROSENSTEIN E.O. 12958: DECL: 09/06/2016 TAGS: PTER PREL PHUM KCRM SNAR TZ SUBJECT: THE SECRETARY'S REGIONAL STRATEGIC INITIATIVE (RSI): FIRST CUT AT AN EAST AFRICA "REGIONAL ACTION PLAN" FOR COUNTERTERRORISM REF: DAR ES SALAAM 1076 Classified By: CDA D. Purnell Delly for reasons 1.4(b,d) SUMMARY -------------- ¶1. (C) At Africa's first Regional Strategic Initiative (RSI) Conference in Nairobi (reftel),Embassy Dar es Salaam asked to take the first cut at a "Regional Counterterrorism Action Plan" for the Horn of Africa. Our action plan presents a set of recommendations for greater regional collaboration on counterterrorism initiatives ranging from enhancing border and coastal security to expanding Islamic outreach. At the same time, we feel strongly that there must be a regional process to advance a regional plan. What we recommend is this: -- Horn of Africa COMs (Kenya, Tanzania, Djibouti, Ethiopia, Sudan, Yemen, and we suggest Eritrea) and the Commander of CTJF-HOA meet twice a year to assess progress on the plan, making course adjustments as necessary. -- DCMs and CJTF-HOA POLAD hold teleconferences (or videoconferences) once a quarter to shepherd elements of the plan forward, effectively linking country teams and CJTF-HOA into a regional network. -- In all cases of proposed bilateral training, COMs and Washington country desks must ask, "Why can't this be regional?" Personal relationships forged across borders are as important as the training itself. Country desks will have to engage actively with INL and DS ATA, as well as Defense, Justice and Treasury. Dar es Salaam welcomes a role as regional CT training platform. -- The national imperative for Article 98 agreements often competes with equally compelling national CT imperatives; we ask that Washington consider partial or full waivers for countries engaged in our regional CT plan. -- Some of the most effective "hearts and minds" programs are the least costly; the Ambassador's Self-Help Fund is a striking example. We strongly urge Washington to move decisively on tripling the modest amount granted each year to RSI countries (a mere $70,000 in Tanzania for FY 06). END �00A;SUMMARY. Coastal Security -------------- ¶2. (C) Enhanced coastal security is imperative along the Swahili Coast and inland lakes (Victoria, Tanganyika, etc.) to account for illegal movements of persons, arms or pirates. Many host countries are already interested in illegal fishing, illegal immigration and response to natural disasters and environmental concerns such as dumping of oil. They are therefore inclined to welcome equipment and training for coastal security which not only address their existing concerns, but simultaneously advance our CT objectives. The Horn needs coordinated regional training in: -- small boat operations -- boarding of small vessels -- use of surveillance equipment (both air and sea) -- boat mechanics -- fire fighting on small boats. Many host governments also need patrol boats, spare parts, surveillance equipment, and small arms. In countries such as Tanzania, provision of such equipment and the requisite training is hampered by lack of an Article 98 agreement. ¶3. (C) In the short term, each Mission must work with its host government to assess the capability of their respective navy and/or coast guard. EUCOM, CENTCOM, the U.S. Coast Guard and INL all offer programs to assess either ports or coastal security utilizing U.S Coast Guard and Naval resources. While some countries along the Swahili Coast are more advanced than others, a regional training package should be developed which not only accelerates capability in less-trained and less-equipped countries, but which specifically creates periodic regional conferences to bring together the region's host government officials involved in coastal security. Of crucial importance is cooperation across combatant commands. EUCOM's cooperation with CENTCOM in Tanzania is becoming a model of such cooperation. Special Operations Training -------------- ¶4. (C) We also recommend training Special Forces, to include standing up host country units. In Tanzania, China is the only country training the Tanzanian People's Defense Force (TPDF) in Special Operations. Embassy Dar es Salaam's Defense Attache's Office was able to send one TPDF officer to the International Special Forces Course in early 2006; subsequently the TPDF has been eager for more of this training. While levels of training vary between countries, we strongly urge that future training brings key military officers to a common venue so as to forge personal relationships across borders, increasing potential for cooperation and information sharing. Embedded Civil Affairs Teams -------------- ¶5. (C) In several countries of the region (Kenya, Uganda, Somalia) the Combined Joint Task Force-Horn of Africa (CJTF-HOA) has put in place small civil affairs teams to live in a rural area, learn the language and carry out short-term, low-budget projects. These teams build both capacity and rapport with the local population and are an important element in any regional "hearts and minds" strategy. While we understand the demands placed on U.S. forces elsewhere in the world, we urge Washington to accelerate the number and deployment of these teams in RSI countries. We also suggest assisting the military of each country in the region to build indigenous civil affairs capability. There is strong interest in developing such capability in Tanzania. Africa Center for Strategic Studies -------------- ¶6. (SBU) In broadest terms, we recommend that the Africa Center for Strategic Studies (ACSS) of the National Defense University design and create a dedicated curriculum to support the Secretary's Regional Security Initiative (RSI) and conduct special training for the three RSI regions: Horn of Africa, Middle East and Indonesia/SE Asia. Again, the objective is as much to build personal relationships among the region's CT officials, as it is to impart training or education. CT Fusion Centers and Cross-Border Information Sharing among CT Units -------------- -------------- ¶7. (C) Activities to share CT information are already underway, yet can be enhanced in two key areas: 1) Expand regional information sharing on CT similar to what is already in operation between Tanzania and select neighbors. More border surveys and cross-border conferences must be funded to augment the exchange among countries throughout the region. 2) U.S. Missions across the region must press their host government to establish its own domestic CT fusion center to ensure information exchange among the police, immigration officials, defense, coastal forces, passport-issuing agencies, etc.. Such domestic cooperation on CT prevention would greatly strengthen the region's overall security posture. To support host-country CT fusion centers, we recommend that Washington consider a specific program with dedicated funding (from INL, S/CT, Justice, Department of Homeland Security, etc.) to train staff and researchers for the fusion centers on a regional basis. We believe such an initiative is imperative and must be pressed in coordinated fashion across the region by COMs and their missions. Islamic Outreach: Marketing USG Programs -------------- ¶8. (SBU) We must do a better job of marketing what we are already doing in RSI countries. An article by Andrew Natsios in the June 2006 Foreign Service Journal points out that USAID public service campaigns on local radio and television raised awareness of USG programs in Gaza and in Aceh, Indonesia to over 50 percent. There must be a region-wide focus to ensuring awareness of the largesse of the American people in RSI countries. U.S. largesse, in short, must be branded and "marketed" in each RSI country if we are to win hearts and minds more effectively. In Dar es Salaam, we will partner with the Voice of America's (VOA) Swahili service next year to create an interactive weekly radio program produced primarily by young Tanzanians. Essentially a PEPFAR-funded activity, the show will predominantly publicize USG efforts to combat HIV/AIDS; however, in recognition of broader "hearts and minds" goals, we have decided to include content highlighting many of post's broader humanitarian assistance efforts including cultural preservation and self-help projects. These local reports on USG-sponsored activities in Tanzania will reach about seven million households through VOA's Swahili service on both short-wave and popular local FM-affiliates. We urge similar efforts across the region. Ambassador's Cultural Preservation Program -------------- ¶9. (SBU) The Ambassador's Cultural Preservation program is already an effective and extremely cost-effective instrument in the struggle for "hearts and minds." We recommend Washington sharply increase the modest funds available for the fund to restore mosques, museums and other historical Islamic sites throughout East Africa RSI countries. For example, through the Ambassador's Cultural Preservation Fund in 2005, Embassy Dar es Salaam worked with the curator of the Chake Chake Museum on Pemba Island in Zanzibar, a traditional Islamic society, to restore valuable Islamic historical exhibits. In FY 2006 we sharpened our focus on higher impact "hearts and minds" projects; the Embassy applied for and received USD 25,589 to restore two aging mosques, both on Pemba. Both mosques have a unique blend of Swahili and Persian architecture, but have fallen into serious disrepair. As a result of the fund, the mosques will be restored to their former elegance with, we believe, a correspondingly strong impact on their respective Islamic communities. Ambassador's Special Self-Help Fund -------------- ¶10. (SBU) The Ambassador's Special Self-Help (SSH) Fund is also an extremely powerful, cost-effective tool to win hearts and minds in towns and rural areas. Support for rain-harvesting projects, laboratory equipment and desks for schools or mechanical grain mills for remote villages are modest but not-soon-forgotten testaments to the good will of the people of the United States. We recommend tripling the annual allocation for the Ambassador's Special Self-Help programs across RSI countries. In FY 2006, missions in the Horn received an average of approximately USD 73,000 for SSH projects, financing 10 to 15 local projects. If tripled, a greater share of the 30-45 projects could be extended to Islamic communities. International Visitors Program -------------- ¶11. (SBU) While IV programs are more costly than the Ambassador's Self-Help and Cultural Preservation Funds, we nonetheless recommend doubling the number of such IV programs for RSI countries, aiming the increase at influential Islamic voices within Swahili Coast Muslim communities. Passport Security -------------- ¶12. (SBU) Countries in East Africa have made significant investment in adopting state-of-the-art, tamper-proof machine readable documents. However, there is little effective control against male fide travelers obtaining these high-tech, authentic travel documents in different identities and different nationalities for a nominal price. These travel documents can then be used to support illicit activities ranging from smuggling and trafficking in persons to the movement of terrorists. In short, regional CT cooperation sponsored by the USG is directly undercut for the simple reason that a real host government passport can be obtained by a potential terrorist for little trouble and less cost. Border security will increase exponentially if countries on both sides of the region's borders work proactively to take control of their respective travel documents. We recommend a coordinated, region-wide approach to the issue of passport and visa integrity with senior host government officials. We suggest this should not be left to mid-ranking officers at our missions, but should be raised at the most senior levels. ¶13. (SBU) To support travel document integrity, we suggest creation of a regional International Visitors (IV) program supporting visits by the region's passport examiners and immigration inspectors to U.S. passport agencies and ports of entry. The visit would have a three-fold purpose: --- to expose the visitors to standard anti-fraud measures used in the United States to protect document integrity; --- to raise the level of professionalism of regional passport and immigration officials to understand high importance of vigilance in the issuance process; --- to foster contacts and cooperation between the respective passport and immigration services. PISCES -------------- ¶14. (C) Within individual countries in the region, missions are working to accelerate the connection of PISCES terminals to one another and to central immigration and police headquarters. However, we see no sign that host country governments are sharing PISCES name lists with their regional neighbors which would be a low-cost, yet important step forward in combating terrorism within the region. We therefore recommend a coordinated effort in each RSI country to press host governments to share the names of terrorist suspects regionally and on a systematized basis through the PISCES system. Crisis Response Teams -------------- ¶15. (SBU) Diplomatic Security's Office of Anti-Terrorism Assistance (ATA) trains Crisis Response Teams. For 2006, several teams in Africa, including teams in Tanzania and Kenya, are being trained in the first phase of Crisis Response which entails assisting countries in development of the framework and functional elements to support such teams. We recommend that the follow-on training to this program take place in regional centers (again, we offer Dar es Salaam), with host country teams training together and thus building all-important personal relationships. Terrorist Financing -------------- ¶16. (SBU) In FY 2005/2006, Tanzanian officials received training on anti-money laundering (AML) and counter-terrorist financing (CTF) from USG agencies including the Department of Homeland Security, the FBI and the Treasury Department. Under the recently signed MCA Threshold Program, the GOT will gain additional technical assistance from Treasury in order to establish a Financial Intelligence Unit. We recommend a coordinated policy initiative to ensure East Africa's countries enact or effectively implement AML and CTF laws, and regionalized training to ensure law enforcement and government officials exchange best practices and ultimately share information regionally between financial intelligence units. Comment -------------- ¶17. (SBU) The above ideas are a notional first cut at elements of a regional CT plan. Ideas will be reworked and in some cases dropped in the regional review process. New and better ideas will emerge. We welcome that, however, because we believe the chief virtue of a regional CT plan is creation of the regional review process itself. Regular contact among COMs and their DCMs links their respective country teams into an East Africa-wide regional network engaged in active implementation of a common CT agenda. To paraphrase Marshall McLuhan, the review process itself is "the message." DELLY