LEBANON: NORTHERN BORDER PILOT PROJECT

C O N F I D E N T I A L SECTION 01 OF 03 BEIRUT 000528

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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
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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,

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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
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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.

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PROJECT OBJECTIVES
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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
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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.

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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
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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