REQUEST FOR DHS PRESENCE FOR START OF NORTH

UNCLAS LAGOS 000790

SIPDIS

SENSITIVE
SIPDIS



DEPT FOR CA/FPP, CA/VO/F/P, CA/EX - JOHN O'MALLEY
DEPT ALSO PASS FAA FOR ACONLEY
DHS FOR OIA - CAROL THOMPSON
TRANSPORTATION FOR FAA
DAKAR PLEASE PASS TO FAA REP ED JONES
ROME PLEASE PASS TO TSA REP JOHN HALINSKI

E.O. 12958: N/A
TAGS: KFRD CVIS ASEC EAIR NI
SUBJECT: REQUEST FOR DHS PRESENCE FOR START OF NORTH
AMERICAN AIRLINES SERVICE TO NEW YORK



1. (U) This is an action message. See paragraph 12.


2. (U) The Charge d' Affaires has approved this message.


3. (SBU) SUMMARY. North American Airlines received final
approvals to begin scheduled service on the Lagos-New York
route beginning July 17. Post believes that document and
identity fraud will be a major issue for these flights and
requests DHS pre-flight inspection for at least the first 90
days of service. END SUMMARY.


4. (SBU) On May 11, North American Airways (NAA) received
final approvals from the Government of Nigeria to operate
non-stop service from Lagos to New York JFK beginning on
July 17. NAA plans to provide service three times a week
using Boeing 767 equipment.


5. (SBU) Post has serious concerns about vulnerabilities in
U.S. border security that could result from direct air
service to the United States from Nigeria. Currently,
travelers wishing to visit the US from Nigeria must first
transit an intermediate point, usually Europe. Each of these
European flag carriers utilizes the services of document
checkers and Airline Liaison Officers (ALOs) employed by
their respective governments in order to reduce fraud. The
UK and German governments have the biggest airline liaison
programs and believe that pre-departure inspection is
critical to their national security. The UK ALO told us that
they deny boarding to hundreds of people each year who turn
out to be imposters, holders of counterfeit documents, or
are otherwise high risk travelers. They also work closely
with other carriers who have questions regarding the travel
documents issued by their governments.


6. (SBU) On May 15, the Lagos-based Country Fraud Prevention
Manager met with UK ALOs and their regional Risk Assessment
Manager to discuss the UK's liaison program at Murtala
Mohammed International Airport (MMIA). According to the UK
ALO, airlines flying to the UK deny boarding to hundreds of
passengers each month, based upon their advice. They will
deny boarding when they believe a document is fraudulent,
the passenger is an imposter, or if they believe that the
visa was improperly issued. They also use profiling
techniques to select high risk passengers for additional
scrutiny. In particular, they target potential asylum
seekers and possible terror threats. These checks all take
place at the airport, prior to departure of the flight.


7. (SBU) The UK ALO office has a long memory, and recalls
previous direct service to the US ex-Lagos by Nigeria
Airways, Ghana Airways, and World Airways. Their view is
that even with all the negative experiences faced in New
York and Atlanta with previous carriers, NAA service has the
potential to be more troublesome for the United States. They
point to Nigeria's well documented desire for Lagos to be a
regional hub, which we can already see occurring. Virgin
Nigeria (VK) has quickly acted to launch numerous regional
routes, and one airline industry contact has indicated that
as much as 40-50% of the passenger load on some routes is
connecting traffic to current VK intercontinental service to
London, Johannesburg, and Dubai. This suggests that VK
intercontinental service already has a broad regional appeal
to Nigerian and non-Nigerian passengers alike.


8. (SBU) Non-stop service to the United States is expected
to grow, and it is likely that there will be twenty to
twenty-five flights per week to the US in the near future.
Continental Airlines has been re-invited into Nigeria, and
VK has expressed interest in providing service to the US.
NAA plans to increase frequencies on the Lagos route to
daily service once demand picks up.


9. (SBU) If VK or Continental Airlines also begin scheduled
service to the United States, post believes pre-flight
inspection will be even more critical. Regional routes that
provide passenger feed to VK's intercontinental service
originate in some of West Africa's most fertile ground for
asylum claims. These cities include Dakar, Monrovia,

Freetown, Accra, Lome, Abidjan, Niamey, and Douala.


10. (SBU) Post believes that active USG participation in
flight screening for the first several months of air service
from Lagos will discourage large scale fraud, and will
establish NAA as a "hard target". Although document and
identity fraud are the main concerns, the potential for
something graver certainly exists. Widespread reports
indicate that Islamic militants are active in northern
Nigeria, and in the southeast militant groups that may wish
harm to the United States operate with a free hand.
Narcotics smuggling is likely to be a major issue for this
route. Without being too dramatic, we believe that in
today's environment direct air service to the US, not
properly monitored, represents a direct threat to the
national security of the United States.


11. (SBU) Post has received a request from NAA contractor
Swissport (operating locally as Checkport) to provide
document security training to their staff. We plan to
provide this training, however local document checking
companies at Murtala Mohammed International Airport do not
enjoy a good reputation, and KLM recently brought their
document checking operation back in-house after repeated
problems with the contracted staff. Consequently, we believe
USG pre-flight inspection would be a necessary precursor to
scheduled air links between the United States and Nigeria.


12. (SBU) ACTION REQUEST. In the short term, post requests
TDY support from the Department of Homeland Security for the
first 90 days of service ex-Lagos to the United States. We
believe this support should take the form of pre-flight
inspectors from Customs and Border Protection and/or
Immigration and Customs Enforcement. These personnel would
provide training to ground personnel and also provide
consulting services regarding US bound passengers and their
travel documents in a similar fashion to what the UK and
German ALO programs accomplish for their respective
countries. NAA has indicated that they would be supportive
of this request. In the long term, post believes it is
imperative for DHS to establish a permanent presence in
Nigeria and requests that the Department explore the
feasibility of a new office. END ACTION REQUEST.


13. (U) Post point of contact for fraud and security issues
related to air service from Nigeria is Lagos-based Country
Fraud Prevention Mnager Ryan Bowles. He can be reached at
BowlesRE@state.gov and by telephone at +234-1-261-0050 x490
or GSM at +234-803-525-0992. On July 1, he will be replaced
by Loren Giallanella who can be reached at
GiallanellaLB@state.gov, or by telephone at the same office
number.

Browne