LEBANON: NORTHERN BORDER PILOT PROJECT

C O N F I D E N T I A L SECTION 01 OF 03 BEIRUT 000528 SIPDIS SIPDIS NSC FOR ABRAMS/DORAN/MARCHESE/HARDING E.O. 12958: DECL: 04/14/2017 TAGS: PGOV PREL PTER LE IS SY SUBJECT: LEBANON: NORTHERN BORDER PILOT PROJECT Classified By: Jeffrey Feltman, Ambassador. Reason: Section 1.4 (b). SUMMARY -------------- ¶1. (C) On April 11, German Federal Police (GFP) representatives in Beirut released the draft concept paper for Lebanon's Northern Border Pilot Project, which is being developed and implemented by the GFP in coordination with senior leadership of the LAF, ISF, and Lebanon's Customs Police. The plan, which was initially proposed in November 2006, was the result of a bilateral security agreement between German Chancellor Angela Merkel and Lebanese Prime Minster Fouad Siniora. Although the nine-month pilot project only addresses Lebanon's northern border, GFP Brig. General Detlef Karioth informed a meeting of the International Donors Border Security Sub-group on April 11 that there is interest in extending the integrated border control approach to the country's more problematic eastern border. The GOL must approve any such extension, and funding challenges will arise. Although the final equipment/training requirements list are still being compiled, the pilot project is expected to cost 9 million Euros. This estimate includes a secure inter-agency communications network that would become part of an overall communications upgrade for Lebanon's security services. The Government of Germany is actively looking for international partners to share in the project's cost. End summary. ¶2. (C) Based upon a preliminary approval from PM Siniora issued on November 13, 2006, GFP representatives drew up a concept and project specifications for an integrated approach to secure Lebanon's northern border with Syria. A detailed briefing was presented to PM Siniora, his senior advisors, and the heads of Lebanon's security services by German Secretary for the Interior Dr. August Hanning on March 5, SIPDIS ¶2007. Final GOL approval for the pilot project was issued during the visit of German Chancellor Angela Merkel to Beirut on April 2, 2007. ¶3. (SBU) The principal participants in the project are the German Project Bureau, established in Beirut under the direction of Brig. General Detlef Karioth, the Lebanese Armed Forces (LAF),Internal Security Forces (ISF),and Customs Service. The Lebanese participants will coordinate their activities and manage resources committed to the project through the renewed Border Committee, which was established previously by PM Siniora. The German Project Bureau and the Border Committee have signed an MOU under which they are jointly responsible for overall project management. The German project director hopes the project will be supported by additional international donors. OPERATIONAL AREA AND DEFICIENCIES -------------- ¶4. (SBU) The project, during its nine-month pilot phase, will cover the Lebanese-Syrian border from the port city of El Aarida to the border area located just east of the village of Hmaire. This operational area, which falls under the control of the LAF's Fifth Brigade, contains two major crossing points: El Aarida and Aboudiyeh. ¶5. (C) An initial GFP assessment conducted in October 2006 found that LAF forces responsible for the area lacked necessary equipment, facilities, and training. Their deployment of forces and operational procedures did not reflect modern practices and were consequently inefficient, and generally ineffective. Moreover, the LAF had no experience in integrated border management. But most importantly, the assessment found the border control mission was ill-defined and there was little to no exchange of information among Lebanon's various security services, or even among units of the same service. ¶6. (C) The LAF is the primary security force for the area. It executes its mission using military-style tactics, rather than integrated border control techniques. Static control posts, foot patrols, extremely basic border inspections, lack of mobility, and uncoordinated enforcement was the rule. Equipment and training did not support effective control of the borders, while inter-operable secure communications and task-specific advanced training were non-existant. BEIRUT 00000528 002 OF 003 PROJECT OBJECTIVES -------------- ¶7. (C) The pilot project is intended to be a test bed for integrated border control procedures, and a nucleus for a nation-wide border control network. The primary goal is cost-effective development of a state-of-the-art border strategy that will be applied along the entire 470-kilometer Lebanese frontier. At present, there are no plans to modify the statutory tasks of Lebanon's security services in order to avoid the need for politically-sensitive new legislation. The project does not intend to create a de-militarized border zone nor establish a new border control authority. Future structural or organizational changes could be put nto placeif national authorities choose to do so. ¶8. (C) The pilot project contains six components, the first five of which will be implemented simultaneously during the five-month preparatory phase: 1) purchase of required equipment and improvement of associated facilities, 2) an inter-agency secure communications system, 3) establishment of a joint operations center at Fifth Brigade headquarters, located just outside of Tripoli, 4) establishment of mobile control and monitoring units in the operational area, 5) advanced training for all participating security forces, and 6) a large-scale operational exercise conducted soon after the start of the three-month implementation phase to determine capacities and shortfalls, so that mid-course corrections can be made. (Note: Although the draft concept paper states the joint operations center will be located in Aandqet, the location has been changed to Tripoli for reasons of access, logistics, and communications. End note.) METRICS: INDICATORS, TIMELINES, COSTS -------------- ¶9. (C) During the three-month implementation phase, statistics and performance measures will be collected by both the GFP monitors and Lebanon's security services. The metrics will focus on capabilities and performance trends of the forces manning the joint operation center, conducting mobile control and monitoring units, personnel manning border check points, and overall effectiveness of force integration. A project review will be completed during the final month of the pilot program. According to Gen. Karioth, upon successful completion of the project, the GOL will authorize the extension of the integrated approach to the entire border. ¶10. (C) Karioth stated that the five-month preparatory phase officially began on March 5, 2007, even though equipment, training, and secure communications requirements are still being finalized. He confirmed to the Border Security Sub-group the clock that was ticking and both his team and participating Lebanese security services were proceeding with all due speed. Karioth said he was particularly encouraged by the forward-leaning attitude of LAF and ISF senior leadership, who have already begun to augment their force structures in the operating area. (Note: ISF Commander Ashraf Rifi has recently assigned an additional 150 officers and an undetermined number of enlisted personnel to the northern area, while the LAF is preparing facilities to house the joint operations center. End note.) ¶11. (SBU) Considering the project's start date of March 5, the five-month preparation phase should be complete by early August, the three-month implementation phase by November, and the follow-up phase by early December. Gen. Karioth stated that, pending GOL approval, he intends to have the integrated system ready to be established along the entire border immediately following the final phase. ¶12. (SBU) Karioth said it was important to note that irrespective of its name, the preparatory phase was comprehensive and included the following "work packages": procurement and establishment of required equipment and facilities, completion of advanced training modules, establishment of improved border control crossing points, installation and operation of a secure, inter-agency communications system, establishment of the joint operations center, and implementation of mobile control and monitoring units. BEIRUT 00000528 003 OF 003 ¶13. (SBU) At this time, the project is estimated to cost 9.0 million Euros, as follows: 4.0 million Euros for equipment and facilities; 500,000 Euros for equipping the joint operations center; 500,000 Euros for upgrading the border control crossing points; and approximately 3.0 million Euros to install the secure communication network. Karioth cautioned these figures could change depending on final equipment lists and how much advanced training would be necessary. EXPECTATIONS -------------- ¶14. (C) Karioth and his team are confident that this approach, which is modeled after their national border control system, is transferable to the Lebanese context, after the necessary adjustments are made. The GOG is currently satisfied with the support of the GOL, and the GFP team is pleased with the initial commitment demonstrated by the security services. Karioth admitted that the nine-month timeline was tight, because their expectations were high and Lebanon's security services are basically starting from near zero. Despite these challenges, the GFP representatives expressed confidence that project objectives would be achieved. ¶15. (C) Karioth did express concern that given the diffuse nature of Lebanon's security services and the lure of significant contracts to private defense contractors, there may be efforts to replicate or construct competing projects on other areas of the border. Gen. Karioth asked the participants to convey to their governments that even though the timeline may appear conservative, a successful program would provide a solid foundation to implement a state-of-the-art border control regime for the entire country. He cautioned that if resources and funding are diverted to other projects, the potential of the pilot project may never be realized. ¶16. (C) Concerning participation by other donor countries, Karioth said that GOG cannot provide the entire funding and indicated a specific request for funding and border security expertise would be forthcoming as soon as the final equipment and training requirements were approved by the Border Committee. The UK representative stated that while he could not make a firm commitment, his country would probably offer to cover the cost of the joint operations center, as well as associated advanced training. The Danish representative indicated his government was considering up to 1.0 million Euros in training commitments. Karioth said the GOG was also considering a significant investment, but could not give a figure at this time. Karioth also said he welcomed comments from any of the security assistance donor nations, but cautioned that the proposed concept has already been approved by PM Siniora. ¶17. (SBU) An electronic version of the draft concept paper was passed to DOD and the Department on 12 April. Once the official text is made available, it will be similarly transmitted, along with finalized equipment requirements lists and budget figures. FELTMAN