U.S. TREASURY AND GOI DISCUSS PROLIFERATION AND

S E C R E T SECTION 01 OF 05 NEW DELHI 002671 SIPDIS STATE FOR SCA/INS, SCA/RA, EEB/ESC/TFS, NEA/IR, S/CT SBAILEY PASS TO TREASURY PAUL DERGARABEDIAN, JEAN PAUL DUVIVIER, AND ADAM THURSTON E.O. 12958: DECL: 10/01/2018 TAGS: KTFN ECON EFIN PREL PINR PTER IR IN SUBJECT: U.S. TREASURY AND GOI DISCUSS PROLIFERATION AND TERRORIST FINANCE CONCERNS REF: A) STATE 104496 B) NEW DELHI 02444 NEW DELHI 00002671 001.2 OF 005 Classified By: Treasury Attache Russell Green, for Reasons 1.4 (b),(d) ¶1. (C) SUMMARY: On September 9-11, Treasury Assistant Secretary for Terrorism Finance and Financial Crimes Patrick O'Brien met with GOI and banking officials in Delhi and Mumbai to discuss the following: (a) international efforts to counter the illicit financial and commercial activities of Iran; (b) India's efforts to bolster its anti-money laundering/counter financing of terrorism (AML/CFT) system; and (c) India's Financial Action Task Force (FATF) membership bid. END SUMMARY. DECEPTIVE IRANIAN BANKING AND COMMERCIAL PRACTICES -------------- -------------- ¶2. (S) In meetings with representatives from India's National Security Advisor (NSA),Ministry of Home Affairs (MHA), Intelligence Bureau (IB),Ministry of External Affairs (MEA), Ministry of Finance (MOF),and the Reserve Bank of India (RBI),O'Brien explained several of the key provisions from three UN Security Council Resolutions (UNSCRs) dealing with Iran's proliferation ambitions and exploitation of the global financial system. In particular, O'Brien highlighted UNSCR 1747 paragraph 6, which places a general obligation on jurisdictions to prevent financial resources or services from going to Iran's nuclear or ballistic missile programs, and UNSCR 1803 paragraph 10, which calls on all countries to exercise higher vigilance on all Iranian financial institutions wherever located and calls particular attention to Banks Melli and Saderat. UNSCR 1803 also warns about commercial entities such as the Islamic Republic of Iran Shipping Lines (IRISL). O'Brien provided information about IRISL's use of deceptive and evasive tactics in order to circumvent sanctions and its history of making shipments for designated entities in Iran. ¶3. (S) O'Brien also described and shared FATF statements over the past year on the threats to the international financial system posed by Iran's lack of appropriate AML/CFT systems. He emphasized to GOI interlocutors that India should be especially vigilant as the Iranian government and banks make attempts to open new accounts, establish new branches, and form joint ventures in jurisdictions that have not shut them out, including Asian countries. O'Brien highlighted how Iranian banks have used deceptive practices such as removing the name of designated banks when making international transactions. ¶4. (C) During A/S O'Brien's meeting with MEA J/S (for Pakistan, Afghanistan, Iran) Raghavan and J/S (for UN/Political) Arora, Raghavan explained that despite the good bilateral relationship and historical links India shares with Iran, India has a strong view regarding the control of nuclear proliferation. Arora assured A/S O'Brien that GOI regularly and carefully monitors the implementation of the provisions in the UNSCRs and that it would continue to exercise vigilance in this regard. Similarly, MOF Additional Secretary Cyriac noted that India has issued circulars through the RBI on all UNSCRs pertaining to financial dealings with Iran. MOF Director Anand Bajaj further noted that India is "very committed" to these resolutions. If the USG has adverse information about Indian institutions doing business with Iran, Bajaj requested this information be sent to the MOF. ¶5. (C) O'Brien also presented both MEA Joint Secretaries with information on the Treasury Department designation of Islamic Republic of Iran Shipping Lines (IRISL) (reftel A), whose one subsidiary, Iran O Hind, is 49% owned by the Shipping Corporation of India. He stressed that India needs to be especially mindful of Iranian institutions that are increasingly active in forging new relationships with new financial institutions once older ties with companies NEW DELHI 00002671 002.2 OF 005 and banks come under scrutiny. The Joint Secretaries thanked A/S O'Brien for the advance notice on the IRISL designation and noted that they were familiar with the Iran/Intia joint venture and are "taking precautions as necessary." They assured the A/S of India's seriousness in maintaining its international obligations regarding counter-terrorism and counter-proliferation. ¶6. (C) A/S O'Brien asked MOF and RBI officials if the GOI provides compliance bulletins to the financial community regarding UNSCRs and FATF statements. GOI officials from the RBI emphasized that they had provided some information and lists from UNSCRs to banks and others. The RBI stated that it would soon issue guidance on UNSCR 1803, perhaps even that very day. However, the MOF had not yet provided the RBI with guidance on UNSCR 1747, and hence that information has not yet been disseminated. Similarly, the GOI did not appear to have provided bulletins to the financial sector on the FATF statements regarding the risks of financial transactions with Iran and other countries. O'Brien encouraged the GOI to do so, noting how such actions would be consistent with their FATF membership bid. Finally, O'Brien noted that in addition to the U.S. designation of Bank Melli, the European Union had also recently listed Bank Melli and blocked its assets. During his meeting with the RBI, O'Brien provided information on recent transactions and possible business ties between the State Bank of India (SBI) and Iranian entities. TERRORIST THREATS AND INTELLIGENCE SHARING -------------- ¶7. (S) India's MHA profiled terrorist threats as falling into two categories: 1. Pan-Islamic groups ("such as LeT and JeM") which have their own financial resources through charities for example, and 2. Kashmiri groups which are 90% state-funded from outside India. Anwar Ehsan Ahmad, Additional Secretary at MHA, provided information on the highest risk channels for terrorist finance and money laundering by priority order: (a) Hawalas are abused but there is no one hawala network used by terrorists; (b) Cash smuggling is a concern, especially among illegal immigrant communities (like those from Bangladesh); (c) Pre-paid and ATM credit cards, and (d) Counterfeiting of very large amounts of money has become problematic, especially within organized crime groups. ¶8. (S) GOI clearly sees Lashkar e-Tayyba as a threat and top priority, including possible assets and resources coming from or going through Pakistan, Bangladesh and Nepal, according to MHA officials. GOI agencies also noted that U.S. assistance on gathering information on the types of terrorist finance cases and channels, such as hawalas, couriers, debit/credit cards, charities and donors, would be useful. ¶9. (S) Several GOI agencies, including the NSA, MHA, IB, and MEA emphasized the need for increased information sharing between the U.S. and India. NSA noted that "coordination is critical and that both the U.S. and India must do more." The GOI would like to see the creation of a pool of shared intelligence, especially on counter terrorist finance issues. Mr. Ashok Prasad, Joint Director of the IB also stressed the need for enhanced information sharing. However, the GOI is cautious about public images of cooperation with the U.S. in this area. FATF MEMBERSHIP AND INDIA'S AML/CFT SYSTEM -------------- ¶10. (C) GOI agencies agreed that they have a strong AML/CFT structure already with laws such as the Unlawful Activities Prevention Act (UAPA) and Prevention of Money Laundering Act (PMLA). MOF officials stated that PMLA amendments have been approved by the Indian Cabinet and have already been NEW DELHI 00002671 003.2 OF 005 introduced in Parliament. These amendments, noted MOF Additional Secretary Cyriac, will address several of the FATF-related concerns about deficiencies in India's AML/CFT framework after they are approved. Cyriac forecasted that the amendments could be approved during the next session of Parliament, which is expected to commence on October 17. MOF officials expressed concern that the next FATF Plenary Session begins on October 14 in Rio, Brazil ahead of the opening of India's Parliamentary session. This will make it difficult for the FATF Contact Group for India to set a date for a mutual evaluation of India in order to move the country towards FATF membership, stated MOF officials. ¶11. (SBU) O'Brien responded that despite requests by the FATF Contact Group, India has not been able to share draft PMLA amendments with FATF or a projected timetable regarding the passage and implementation of these amendments, so its not possible yet for the U.S. or other FATF countries to assess whether the proposed amendments will fill the gaps identified by the contact group. If FATF does not recommend an AML/CFT assessment of India at the next plenary, the country would likely receive an Asia Pacific Group (APG) evaluation in 2009 (which has already been scheduled since the last evaluation took place in March 2005). O'Brien also emphasized that the focus of the mutual evaluation - whenever it happens - will be effectiveness. Thus, it behooves the GOI to emphasize concrete actions it is taking in supervision and enforcement to demonstrate robust implementation of their AML/CFT regime. ¶12. (U) Further, towards showcasing India's progress in its FATF membership bid, MOF Additional Secretary Cyriac stated that the GOI has already signed UN conventions on counter terrorism and continues to implement UNSCRs 1267 and 1373. Also, India has investigated 100 terrorist finance cases over the last two years in its effort to implement stronger AML/CFT controls. In addition, the country has taken strong measures to bolster its regulations and control over the charitable sector. CHARITIES/NGOS - REGULATION AND OVERSIGHT -------------- ¶13. (SBU) The MHA explained recent legislative proposals to improve India's laws for combating the international exploitation of charities. Currently, the Foreign Contribution Begulation Act (FCRA) of 1976 provides regulatory guidelines on the inflow of funds to charities. The FCRA dictates that foreign charities are required to register with the GOI. They must be specifically registered under the Act or must get GOI permission if they do not meet the registration requirements. Registered or permitted charities or NGOs then receive an "account number" and provide annual financial reports. The GOI could do inspections, but only some enforcement provisions existed. ¶14. (SBU) In late 2006, amendments to the FCRA were sent as a bill to Parliament. They have not yet been enacted into law. The amendments would significantly strengthen the FCRA by adding a "prohibition on funds considered to be detrimental to national security," creating a cap on "administrative expenditures" of NGOs, providing procedures for the cancellation of NGO registrations, improving screening requirements (including background checks) for NGO staff, and enhancing due diligence on the origin and use of funds. Once passed, the new FCRA will be more stringent with greater enforcement authorities. ¶15. (C) When meeting with the MHA, MOF and MEA, O'Brien expressed U.S. interest in developing a more combined regional effort to combat terrorist financing through regional workshops on NGOs and charitable organizations that may be acting as front operations. He added that India's proposed amendments under the FCRA reflect considerable thinking on the issue and would provide an excellent example NEW DELHI 00002671 004.2 OF 005 to other countries in South Asia region and hopes that India would provide input and leadership for any events. ¶16. (U) NOTE: Treasury is currently leading an interagency effort to hold a charities workshop in Delhi or another city in the South Asia region in December 2008. END NOTE. CASH SMUGGLING AND COUNTERFEITING -------------- ¶17. (S/NF) The GOI expressed concerns over cash couriers moving counterfeit money. For example, Pakistani groups may use counterfeit Indian rupees to fund terrorist attacks within India. GOI agencies would benefit from training in countering bulk cash smuggling and the use of forensic analysis to combat counterfeiting. ¶18. (S) While meeting with the MHA, O'Brien noted that U.S. agencies have expertise on cash smuggling and counterfeiting and could work with GOI elements on areas such as targeted enforcement actions at ports or airports. The MHA acknowledged that they have difficulties with border management issues and plan to further address these problems, especially ahead of any future FATF or APG mutual evaluation. ¶19. (S) IB Joint Director Prasad described the GOI's desire to work with the U.S. on anti-counterfeiting measures. He also noted some areas where Indian intelligence and law enforcement officers could benefit from U.S. expertise on counterfeit currency, including creating security features for money (ink, paper, security marks, etc.) as well as identifying machinery and tools used for counterfeiting, and forensic analysis. The IB has an illicit finance unit that can coordinate with the MOF on assistance and cooperation to combat counterfeiting and other related issues. Powers and O'Brien proposed that the IB send a delegation to Washington to receive briefings and explore additional areas of cooperation with U.S. law enforcement and other authorities. Prasad agreed in principle and Powers will be following up on arrangements. FIU SUCCESSES -------------- ¶20. (U) Treasury met with the Financial Intelligence Unit (FIU) Director Arun Goyal who outlined the accomplishments of FIU India. FIU now receives reporting from banks, securities dealers, insurance companies, and money service providers. Goyal stated that FIU India has received about 9 million currency transaction reports to date and 4,000 suspicious transaction reports, of which 2,500 have been disseminated to law enforcement agencies (a rate of 60%). Also, Goyal highlighted FIU's accomplishment in qualifying for membership in the Egmont Group within one year of its launch. ¶21. (U) Goyal noted that the FIU has a staff of 35, which will soon rise to 43. He also said that the FIU now has more operational independence from the MOF and can therefore "breathe more freely." The FIU staff also provide regular training and outreach to the private sector and regulatory agencies. ¶22. (U) Goyal explained that the FIU is close to finalizing an MOU with FinCEN in the United States to better coordinate information sharing. He pointed out that the FIU already has three bilateral MOUs with Mauritius, Brazil, and the Philippines. Finally, Goyal was also pleased to announce the FINNET Project (for which the IT system was designed by Ernst and Young) to create more efficiency in gathering suspicious financial information. The project incorporates the best practices of other FIUs and Indian banks in the areas of data collection, analysis, and distribution. NEW DELHI 00002671 005.2 OF 005 INDIAN FINANCIAL SECTOR -------------- ¶23. (S) In Mumbai, A/S O'Brien met with several private sector entities including ICICI Bank, State Bank of India (SBI),and several other members of the Indian Banks' Association (IBA). Separately, he also discussed the history of India's regulatory regime and oversight and communication with regulated entities in meetings with the RBI and the Securities and Exchange Board of India (SEBI). The State Bank of India was not able to provide examples of specific measures they had put in place to reflect enhanced vigilance over Iranian banking activity. Treasury plans to follow-up with the RBI and MOF on Iran-related issues and specifically request for SBI to provide a summary on what precautionary steps are being taken to curtail financial and business dealings with listed and high risk entities in Iran. ¶24. (C) O'Brien also outlined the provisions of Iran-related UNSCRs and FATF statements to the private sector. He provided examples of Iran's deceptive financial practices and urged heightened vigilance, especially as Iran seeks new relations with banks in the region. The banks were generally aware and informed of international action to counter the risks posed by Iran's banks. O'Brien further highlighted Treasury designation actions and Office of Foreign Assets Control (OFAC) listings. Several banks noted that they coordinate and work with the RBI and MOF on AML/CFT issues and FATF announcements. O'Brien encouraged the banks to push the GOI to amend all key AML/CFT deficiencies and pass the PMLA amendments at the earliest. ¶25. (U) This message has been cleared by A/S O'Brien. WHITE