JAMAICA: CTED FACT-FINDING MISSION PRESENTS

C O N F I D E N T I A L KINGSTON 000152 SIPDIS SIPDIS S/CT - ROOPA RANGASWAMY, DARCY ANDERSON WHA/CAR - JOE TILGHMAN USUN FOR JAMES DONOVAN E.O. 12958: DECL: 02/15/2018 TAGS: PTER PREL ASEC SNAR EWWT EIND MASS DHS JA JM, XL SUBJECT: JAMAICA: CTED FACT-FINDING MISSION PRESENTS OUTBRIEF DURING LOCAL CTAG MEETING REF: KINGSTON 104 (011914Z FEB 08)(NOTAL) Classified By: DCM JAMES T. HEG, REASONS 1.5 (B) AND (D) Summary and Guidance Requested -------------- 1.(C) Implementation of the Container Security Initiative (CSI) and enactment of the Proceeds of Crime Act are among the more encouraging counterterrorism (CT) developments in Jamaica; however, weak border controls, the vulnerability of the cruise ship industry, and pervasive corruption and crime are ongoing problem areas. These were among the preliminary findings outlined by the Counterterrorism Committee Executive Directorate (CTED)'s fact-finding mission to Jamaica during a meeting of the local Counterterrorism Action Group (CTAG) hosted on February 14 by the Embassy. CTAG members shared views and assessments regarding ongoing and planned CT and security-related assistance to Jamaica. 2.(C) Post requests that Department provide guidance as to the appropriate response to the Russian Embassy's proposal for a joint approach to the Government of Jamaica (GoJ) regarding the Global Initiative to Combat Nuclear Terrorism which was agreed jointly by President Putin and President Bush in July, 2006 at the G-8 Summit in St. Petersburg (para. 15). End Summary and Guidance Requested. 3.(C) Per Reftel, Embassy hosted a meeting of the local Counterterrorism Action Group (CTAG) on the afternoon of February 14. Ambassador, DCM, and EmbOffs welcomed the following: -- Mr. Weixiong Chen, Chief of Branch, U.N. Counter-Terrorism Committee Executive Directorate (CTED),and CTED Legal Officer Mr. Kiho Cha; -- Counselor Blair Bobyck of the Canadian High Commission -- Third Secretary Marcel Consten of the German Embassy -- Counselor Yoshiyuki Isoda of the Japanese Embassy -- Ambassador Victor Zotin and Counselor Alexi Salgychev of the Russian Embassy -- First Secretary Martin Fidler of the UK High Commission -- Deputy Chief of Mission Ignacio Sanchez of the Spanish Embassy -- First Secretary Carlo Pettinato of the EC Delegation -- Assistant Resident Representative David Smith of the UNDP 4.(C) Mr. Chen began by noting that the Government of Jamaica (GoJ) was aware of the threat of terrorism because of the vulnerability of the vital cruise ship industry and because Jamaica's high crime rate and arms-for-drugs trade compelled officials to take all aspects of national security quite seriously. He said the recently completed green paper delineating the National Security Strategy was impressive, and included a counterterrorism (CT) component. Jamaica had good comprehensive legislation in place; Barbados and Trinidad were the only countries in the region which were as far along. 5.(C) In the area of law enforcement, Chen called the Container Security Initiative (CSI) project "splendid." Jamaica still had real problems with border control, and some of its pre-independence immigration legislation was outdated. The GoJ had a good record with respect to ratification of CT instruments; only three of the fourteen countries in the region had better records. Recovery of small arms and ammunition was a serious challenge. Drug and arms traffickers in Central America continued to use Jamaica as a transit point, the guns-for-drugs trade with Haiti was a serious problem, and the GoJ needed additional equipment. On the whole, CT was not as high a priority for the GoJ as crime; to date, no terrorism cases had come to light. The Financial Investigations Division (FID) of the National Security Council was a particularly high priority for the GoJ. CTED was interested in seeing what the GoJ could do to assist smaller countries in the region enhance their security. 6.(C) Mr. Chan said that Jamaica had made good progress in CT on the legal front. The Proceeds of Crime Act had made financing terrorism a criminal offense. However, the requirements to report suspicious transactions were limited to formal financial institutions, and did not extend to the informal financial sector. The reporting threshold had been lowered from USD 50,000 to 15,000, which had increased the caseload for the FID. The Terrorism Prevention Act was helpful, but the GoJ maintained that direct freezing of assets would be difficult because of constitutional constraints. In response to CTED's inquiries, the GoJ had maintained that the massive flow of remittances from the Jamaican diaspora in North America and the UK came entirely through conventional wire transfers, and that there was no alternative remittance system in place. Mr. Chan questioned this, and noted that, during its visit in October, 2005, the Caribbean Financial Action Task Force (CFATF) had found that 50 percent of all transactions in Jamaica were in cash; therefore, the country was inherently vulnerable to various illicit activities, including alternative remittance transfers. 7.(C) Mr. Chan noted that the mandate of the CTED fact-finding mission had not included assessment of the implementation of border enforcement. However, it was clear that the GoJ needed further maritime, aviation, and customs training. The GoJ had provided the CTED mission a preliminary list of technical assistance needed, broken down and prioritized in 8 headings: -- Financial Investigation Division -- Jamaica Constabulary Force (JCF) -- Office of the Director of Public Prosecutions (DPP) -- Port Authority of Jamaica -- Maritime Authority of Jamaica -- Customs -- Ministry of National Security -- Passport, Immigration, and Citizenship Agency 8.(C) Mr. Chan said CTED encouraged regional horizontal assistance. For example, the GoJ had indicated it would be willing to assist other states in the region in drafting CT legislation, if donor funding could be provided. With respect to UNSCRs 1573, 1267, and 1540, Mr. Chan noted that Jamaica had been among the countries in the region which had complained about the burden of report submissions; many countries in the region did not have the necessary resources or expertise to prepare reports. Canada had provided a consultant to assist with preparation of reports, and CTED had identified nine countries which would benefit from his/her services. When the mission returned to New York, CTED may convene a larger conference of donors to the region and attempt to identify one or two critical areas on which to focus, e.g., maritime security. 9.(C) CTAG members then raised questions and made observations in response to the CTED mission's preliminary debrief. EmbOff inquired about the GoJ,s contention that constitutional restrictions prevented the direct seizure of assets; Mr. Chan noted that the GoJ had taken this position for several years, but had not provided a detailed explanation. Mr. Fidler observed that, after 17 years, with a new Jamaican Government in place which appeared serious about improving national security, now was the time for CTAG and CTED to press the GoJ on crime, corruption, CT, and law enforcement issues. On this point, there was general agreement among CTED and CTAG members. 10.(C) Mr. Chan said that, in discussions with the GoJ, he had emphasized the collateral benefits of compliance with UNSCR 1573, i.e., combating crime as well as terrorism. Mr. Smith agreed that donors should emphasize crime first, and thus get traction in CT. He noted that the ease with which official documents could be obtained in Jamaica was disturbing. Also, a number of criminal deportees returned to Jamaica from the UK and North America had converted to Islam while in prison; some were now involved in the illegal drugs trade. He noted that the Alien Act and Deportation Act included no special provisions regarding terrorism. 11.(C) DCM observed that, while the leaders of the new Jamaican Government were serious about combating crime and corruption, most of the entrenched bureaucracy within the GoJ remained in place; this made progress difficult in a number of areas, including crime and CT. EmbOff noted that the alternative investment schemes which the GoJ was now attempting to bring under the regulatory control of its financial authorities could easily be involved in illicit activities. 12.(C) DCM then asked CTAG members to briefly describe their respective CT-or security-related programs and activities in Jamaica. EmbOffs outlined recent CT-or security-related training and equipment provided through the Mission's Regional Security Office, Narcotics Affairs Section, and Military Liaison Office, to include: -- CSI, which was moving ahead on a more permanent basis --&Security at Major Events8 training prior to last year's Cricket World Cup -- WMD training -- establishment of Airport Interdiction Task Force -- computerized entry/exit system for immigration -- surveillance equipment -- vessels, equipment, weapons, and ammunition provided through FMF to the Jamaica Defense Force and Air Wing -- various training under IMET 13.(C) Messrs. Fidler and Bobyk outlined the programs of the UK and Canada, respectively, to include: -- assistance with development of Jamaica's National Security Strategy -- CT preparations for Cricket World Cup, to include establishment of the regional intelligence fusion center in Port-of-Spain -- training of 200 border enforcement personnel -- polygraph training -- construction of the Caribbean CT Center in Kingston (scheduled for late ,08) -- UNSCR 1540 workshop -- training for FID -- computer forensics and data mining training -- five UK police officers currently serving in the JCF 14.(C) Ambassador Zotin said that the Russian Embassy's involvement with CT and security in Jamaica had been limited, and noted that the GoJ seemed much more preoccupied with crime than CT. However, Russia would be prepared to assist Jamaica if asked. Mr. Isoda noted that Japan's CT assistance was focused primarily in Asia, but that Japan contributed through various capacity-building programs in the Caribbean. Mr. Sanchez noted that Spain had assisted with the CT preparations for Cricket World Cup. Mr. Pettinato said that the EU traditionally had not been involved in security-related programs, but that it now was prepared to provide policy-based assistance and to fund some smaller projects with the police. Mr. Consten said the GoJ recently had approached the German Embassy with a list of equipment needs; other CTAG members confirmed that they had received similar approaches, and that coordination would be needed to avoid duplication of assistance efforts. 15.(C) Ambassador Zotin concluded by noting that the Russian Embassy had approached the GoJ's Ministry of Foreign Affairs and Foreign Trade (MFAFT) several times regarding the Global Initiative to Combat Nuclear Terrorism which had been agreed jointly by President Putin and President Bush in July, 2006 at the G-8 Summit in St. Petersburg, but that the MFAFT had shown no interest. Zotin asked if the U.S. Embassy would be interested in making a joint approach to the GoJ; DCM replied that we would let Washington know and request guidance. JOHNSON