Identifier
Created
Classification
Origin
07SANTODOMINGO2722
2007-12-11 20:01:00
CONFIDENTIAL
Embassy Santo Domingo
Cable title:  

CESFRONT - TOWARDS MORE EFFECTIVE CONTROL OF THE

Tags:  PHUM PREL PGOV SMIG MCAP HA DR 
pdf how-to read a cable
VZCZCXYZ0000
PP RUEHWEB

DE RUEHDG #2722/01 3452001
ZNY CCCCC ZZH
P 112001Z DEC 07
FM AMEMBASSY SANTO DOMINGO
TO RUEHC/SECSTATE WASHDC PRIORITY 9789
INFO RUEHZA/WHA CENTRAL AMERICAN COLLECTIVE PRIORITY
RUEHPU/AMEMBASSY PORT AU PRINCE PRIORITY 4753
RUEAIIA/CIA WASHINGTON DC PRIORITY
RUCOWCV/CUSTOMS CARIBBEAN ATTACHE MIAMI FL PRIORITY
RUEAWJA/DEPT OF JUSTICE WASHDC PRIORITY
RUEAHLC/HOMELAND SECURITY CENTER WASHINGTON DC PRIORITY
RUEPINS/HQ BICE INTEL WASHINGTON DC PRIORITY
RUEFHLC/HQS DHS WASHDC PRIORITY
RUMISTA/CDR USSOUTHCOM MIAMI FL PRIORITY
C O N F I D E N T I A L SANTO DOMINGO 002722 

SIPDIS

SIPDIS

DEPARTMENT FOR WHA, WHA/CAR, G/TIP,
SOUTHCOM ALSO FOR POLAD

E.O. 12958: DECL: 12/09/2017
TAGS: PHUM PREL PGOV SMIG MCAP HA DR
SUBJECT: CESFRONT - TOWARDS MORE EFFECTIVE CONTROL OF THE
DOMINICAN-HAITIAN BORDER

REF: 2006 SANTO DOMINGO 793

Classified By: ECO-POL COUNSELOR DAN BELLEGARDE
FOR REASONS 1.4(B) AND (D).

C O N F I D E N T I A L SANTO DOMINGO 002722

SIPDIS

SIPDIS

DEPARTMENT FOR WHA, WHA/CAR, G/TIP,
SOUTHCOM ALSO FOR POLAD

E.O. 12958: DECL: 12/09/2017
TAGS: PHUM PREL PGOV SMIG MCAP HA DR
SUBJECT: CESFRONT - TOWARDS MORE EFFECTIVE CONTROL OF THE
DOMINICAN-HAITIAN BORDER

REF: 2006 SANTO DOMINGO 793

Classified By: ECO-POL COUNSELOR DAN BELLEGARDE
FOR REASONS 1.4(B) AND (D).


1. (SBU) Summary: Embassy MilOff and PolOff visited the
border towns of Dajabon and Comendador to investigate the
recent deployment of the special unit for border control -
(Cuerpo Especializado Fronterizo or CESFRONT). CESFRONT was
deployed at the end of September to the four official border
crossing points along the Dominican-Haitian border. Although
there were reports of human rights abuses, paralysis of
cross-border trade, and poor coordination among military,
political and civic leaders immediately following deployment,
stakeholders now seem optimistic about the government's
efforts to effectively control and secure the border. End
Summary.

--------------
Initial Issues - Dajabon
--------------


2. (SBU) Following a USG multi-agency assessment noting that
"every Dominican authority tasked with border management is
currently failing its mandate to exercise sufficient control
of the frontier," (REFTEL) CESFRONT was created as a special
unit, under the Secretary of the Armed Forces, to monitor and
control the border. Presidential decree 325-06 defined the
mandate of CESFRONT as "control of the entry and exit points
of the border from the illegal flow of immigrants, drugs,
contraband, and arms." The unit was deployed in late
September, shortly after President Fernandez met with farmers
to discuss a specific border issue -- the smuggling of rice.


3. (C) The initial deployment of CESFRONT raised several
issues. The governor of Dajabon province stated to Embassy
officials that some CESFRONT officers and rank-and-file
committed "indiscretions" during the initial deployment. The
mayor of Dajabon characterized these as mistreatment,
including beatings of Haitians and Dominicans by CESFRONT
personnel. The mayor also stated to EmbOffs that there was

photographic and video evidence of the unit's personnel
requesting "border crossing tolls." The leader of Border
Solidarity, a civil society organization advocating for
migrant rights, also stated that CESFRONT personnel committed
human rights abuses including beatings and illegal
repatriations of Haitians.


4. (U) The press reported that during the initial
deployment of CESFRONT, the unit effectively shut off all
cross border traffic, including legitimate trade. Trade with
Haiti, according to the governor, was responsible for
Dajabon,s recent economic growth. The deputy governor told
EmbOffs that Dajabon has the second largest volume of export
traffic in the country. The governor characterized the trade
with Haiti as humanitarian - Haitians can obtain basic
commodities such as rice, cured meats, dried goods, and other
agricultural products. The Haitians in turn sell clothing,
agricultural and industrial products as well as arts and
crafts.


5. (C) The leader of Border Solidarity stated that
CESFRONT,s deployment lacked a legal framework and was based
on personalism and personal interests. (NOTE: In the
Dominican Republic, this is a way of referring to
corruption.) The mayor also alluded to enormous personal
interests influencing the control of the border. A credible
MilOff contact told EmbOffs that the lack of initial
community support plus allegations of abuses and corruption
with CESFRONT, may result in higher level government
officials not fully supporting the special unit. The source
alluded to the government not providing CESFRONT with an
adequate budget which may result in CESFRONT "dying on the
vine."


6. (C) By all appearances, the deployment of CESFRONT was
abrupt. Though CESFRONT has supposedly been training for
over a year, the mayor of Dajabon stated that she was not
informed in advance of the deployment and there was no
campaign to educate local officials, civil society leaders,

and citizens of the effect of the deployment. The mayor also
accused the governor of corruption and told EmbOffs of the
lack of cooperation and communication between her and the
governor. (NOTE: The mayor is the ex-governor of Dajabon and
is from the same party as the governor, the Dominican
Liberation Party (PLD).)

-------------- --
...however, in Comendador, Elias Pia
-------------- --


7. (SBU) The deployment of CESFRONT in Comendador in the
province of Elias Pia did not result in similar issues.
There were no widespread reports of human rights abuses. A
Directorate of Immigration supervisor stated to EmbOffs that
CESFRONT has done a fine job in controlling the border
traffic, especially on market days. She stated that CESFRONT
has created an orderly line of persons crossing from the
border gates, then to Customs, then to the market. Unlike
in Dajabon, Immigration and Customs had a visible presence at
the border crossing, with an Immigration and Customs office.
(NOTE: While at the border crossing gate, EmbOffs observed
migration officials repatriating about 70 Haitians. Prior to
being released across the border, Immigration collected a
document with the biographic information and photo of each
person. Immigration stated there was no Haitian consular
presence to receive and process the repatriated Haitians.)


8. (C) The governor of Elias Pia stated there has been
marked improvement since the deployment of CESFRONT. He
stated persons who are crossing are treated more humanely and
with dignity. He stated that trafficking and smuggling of
persons have decreased. CESFRONT,s presence has resulted in
the ordered movement of cross border traffic and has
increased customs receipts from 4 million pesos/monthly
(approximately $120,000 USD) to almost 9 million
pesos/monthly (approximately $270,000 USD).

--------------
Guarded Optimism
--------------


9. (SBU) Looking to the future, the governor and CESFRONT
commanders in Dajabon told EmbOffs that the 8 rank-and-file
and 2 CESFRONT officers accused of human rights abuses and
corruption have been sanctioned and removed from their posts.
The CESFRONT commander also told EmbOffs that officers and
rank-and-file are to be rotated and attend training on a
regular basis.


10. (SBU) The governor, mayor, CESFRONT commander, and Border
Solidarity leader in Dajabon also reached an agreement on
other issues regarding trade. In order to facilitate
cross-border commerce and trade, CESFRONT will allow Haitians
to cross with minimal inspection on Mondays and Fridays
during market days. During these days, border gates open at
8:00 AM, allowing as many as 15,000 Haitians to cross into
the Dominican Republic. For non-market days, Migration will
provide a special ID (carnet) for domestic employees,
laborers, and merchants to cross. There is no fee to obtain
a carnet, though there were initial discussions suggesting a
charge of 500 pesos (approximately $15 USD). A CESFRONT
officer told PolOff that presently Immigration is only
processing carnets for women (presumably only for domestic
employees).


11. (SBU) The leader of Border Solidarity told EmbOffs that
despite his opposition to CESFRONT for lack of a legal
mandate, he is on board with the agreements. Dajabon,s
mayor agreed with the mandate of CESFRONT; however, she
believes various government agencies need to communicate and
share more information regarding CESFRONT operations.


12. (C) COMMENT: Several sources in Dajabon commented that
if CESFRONT is to be a viable, border security force,
collective interests have to precede personal ones. In that
respect, the agreement between local officials, CESFRONT
commanders and civil society in Dajabon is an encouraging
step. The CESFRONT commander in Comendador, seasoned by
years of experience in border operations, stated he was

optimistic about the future of CESFRONT as a specialized unit
for border control. The government has created specialized
units in the areas of transportation (AMET) under the control
of the National Police, and the seaports (CESEP) and airports
(CESA) under the control of the Armed Forces. These units
have a better reputation for professionalism, training, and
honesty than regular security forces. CESFRONT, with the
appropriate training and budgetary support should not be an
exception.
BULLEN