Identifier
Created
Classification
Origin
09SARAJEVO409
2009-04-01 14:17:00
UNCLASSIFIED
Embassy Sarajevo
Cable title:
SARAJEVO FRAUD SUMMARY, SEMI-ANNUAL CY2009
how-toVZCZCXRO6752 RR RUEHPOD DE RUEHVJ #0409/01 0911417 ZNR UUUUU ZZH R 011417Z APR 09 FM AMEMBASSY SARAJEVO TO RUEHC/SECSTATE WASHDC 9988 RUEHPS/AMEMBASSY PRISTINA 0176 RUEHPOD/AMEMBASSY PODGORICA 0055 RUEHVB/AMEMBASSY ZAGREB 0597 RUEHTI/AMEMBASSY TIRANA 0162 RUEHTH/AMEMBASSY ATHENS 0074 RUEHSF/AMEMBASSY SOFIA 0057 RUEHLJ/AMEMBASSY LJUBLJANA 0104 RUEHRO/AMEMBASSY ROME 0175 RUEHVI/AMEMBASSY VIENNA 0321 RUEHSQ/AMEMBASSY SKOPJE 0291 RUEHPNH/NVC PORTSMOUTH 0021
UNCLAS SECTION 01 OF 03 SARAJEVO 000409
DEPT FOR CA/EX,CA/FPP, CA/VO, AND EUR/SCE (MIKE FOOKS); DEPT ALSO
PASS TO KCC; POSTS FOR FRAUD PREVENTION MANAGERS; VIENNA FOR DHS
MARLA BELVEDERE; DEPT ALSO PASS TO DHS SIPDIS
E.O. 12958: N/A
TAGS: KFRD CVIS CMGT CPAS ASEC BK
SUBJECT: SARAJEVO FRAUD SUMMARY, SEMI-ANNUAL CY2009
REF: 09 Sarajevo 0145
UNCLAS SECTION 01 OF 03 SARAJEVO 000409
DEPT FOR CA/EX,CA/FPP, CA/VO, AND EUR/SCE (MIKE FOOKS); DEPT ALSO
PASS TO KCC; POSTS FOR FRAUD PREVENTION MANAGERS; VIENNA FOR DHS
MARLA BELVEDERE; DEPT ALSO PASS TO DHS SIPDIS
E.O. 12958: N/A
TAGS: KFRD CVIS CMGT CPAS ASEC BK
SUBJECT: SARAJEVO FRAUD SUMMARY, SEMI-ANNUAL CY2009
REF: 09 Sarajevo 0145
1. This semi-annual fraud summary covers 1 September 2008 to 1 March
2009.
--------------
Country Conditions
--------------
2. Fourteen years after the 1992-95 Balkan conflict Bosnia and
Herzegovina is still recovering from the devastation of the war that
resulted in some two million displaced citizens. Of these,
approximately 131,000 sought refuge in the United States between
1992 and 2007. The war and its results seriously damaged the
economy and left civil records in some areas in disarray.
3. The Dayton Peace Accords from late 1995 organized the country
into two entities: The Federation of Bosnia and Herzegovina
(predominantly Croat and Bosniak),and the predominantly
Serb-populated Republika Srpska.
4. Civil documents in some areas disappeared during the war.
Duplicates were often obtained by affidavit and were therefore
unreliable for consular purposes. Those affidavits are no longer
used, and Bosnians now obtain copies of all civil documents of vital
records from the municipal "maticars" (similar to a county clerk).
5. The Bosnian public had high hopes for the 2001 CIPS (Citizens
Identification Protection System) project, designed to re-organize
the process of Passport and ID issuance and centralization of
citizenship information for the entire country. However, arrests of
members of the RS Ministry of the Interior, civilian registrars and
their assistants (all of them part of the CIPS project) in May 2008
cast a shadow over the credibility of the project. The legal process
against the perpetrators is still pending, but there is strong
reason to believe that a significant number of CIPS documents were
issued to applicants who were not entitled to them. This issue is
especially evident in the areas of Brcko, Bijeljina and Srebrenica.
6. An estimated 40% of the population is officially unemployed, but
it is presumed that due to the strong black market/grey economy the
real unemployment rate is closer to 20%. Many of those with regular
jobs often receive relatively low or irregular wages. Bosnians also
seek temporary work abroad. However, due to the recent global
economic crisis, some of them have returned to Bosnia, especially
those who were working in other ex-Yugoslav republics. Reports of
mounting job losses within the territory of Bosnia, are an ominous
sign for the future economic situation in Bosnia and Herzegovina.
7. The Balkan conflicts also brought large numbers of third country
nationals to BIH including refugees from neighboring countries.
Efforts to develop the State Border Service have significantly
reduced the number of people entering the country illegally, but
there is still more work to be done.
8. The BIH government intended to introduce a new biometric
passport in 2008, but they failed to meet intended deadlines.
We expect the introduction of new BIH passport in December 2009. A
more detailed cable regarding the timeline for the biometric
passport will follow shortly.
9.The EU and BiH have entered a tentative dialogue about the
possibility of lifting visa requirements for BIH citizens traveling
to EU countries, but this is unlikely to happen in the near future.
Bosnians currently require a Schengen visa to enter the EU. The
maximum validity for US B1/B2 and C1/D visas, our most commonly
issued classes, is multiple entry / 12 months.
10. Islamic mujahedin fighters who came mostly from Middle Eastern
and North African countries during the war in some cases obtained
Bosnian passports with relative ease from officials of the
Federation. Those "citizenships" have been the subject of scrutiny
by a Citizenship Review Commission staffed by Bosnian authorities
and international community representatives. Legal proceedings to
revoke these "citizenships" began three years ago and are moving
slowly due to administrative, legal and political obstacles.
Nevertheless, numerous foreign fighters already have been stripped
of fraudulently obtained citizenship, and the first was deported in
SARAJEVO 00000409 002 OF 003
December 2007. This policy has resulted in recent protests in the
central Bosnian town of Zenica, where many former mujahedin
settled.
11. The latest statistics from the Citizenship Review Commission
reveal that more than 1,800 persons born outside of ex-Yugoslavia
were granted BIH citizenship in the nineties. The total number of
citizenship cases granted was 23,000. The official number of the
revoked citizenships by June 30th of last year is 681, most of them
born in North Africa, southwest Asia and the ex-Soviet Union.
--------------
NIV Fraud
--------------
12. Attempts to obtain non-immigrant visas by fraud are rare and
generally unsophisticated. Post has seen no evidence of organized
fraud rings or significant fraud trends among NIV applicants. Post
has noted the recent establishment of several tourist agencies whose
owners have family ties in the US. These agencies are primarily in
impoverished areas of Bosnia, and mainly offer translation,
application preparation, interview scheduling and travel services.
The agencies primarily target the elderly and uneducated applicants
who are daunted by the visa application process. The activities of
such travel agencies will bear watching.
13. Parents of individuals who resettled in the United States make
up the largest percentage of NIV applicants. Post's last validation
survey revealed the increasing trend of their children applying for
change of status for them during their visit to the U.S.
14. Post conducted a validation study for 230 Au-Pairs issued in
2006. Our results showed that nearly half- 48%- of the BIH
participants stayed in America. Although a huge majority of them
found a legal way to stay (through marriage and studying in the
U.S),Post suggests that the high percentage of BIH Au Pairs who
have not returned to their country are not fulfilling the spirit of
the program. The results of the Sarajevo Au Pair validation study
were presented as a power point presentation at the annual Consular
Leadership Day in January 2009 in Belgrade. Post will issue a
separate cable with more specific details and results for this
validation study.
15. With the start-up of IV/DV processing at Embassy Sarajevo in
October 2007, post has revised and expanded the focus of our Fraud
Prevention Specialist. In addition, updated procedures have been
established for initiating and tracking local FPU investigations.
We continue to enter local lookouts on INK.
16. In addition to regularly catching a number of easily detected
small-time fraudulent documents in routine NIV investigations, the
FPU unit conducted several interesting investigation and outreach
activities in the last six months, including trips to Bihac, Velika
Kladusa, Banja Luka and Tuzla. FPU also visited Islamic Community of
BIH in connection with two questionable R1 applicants appointed by
the Islamic Community.
17. Post has since benefited from knowledge regarding relevant facts
in Islamic Community's organization and appointment procedures.
Additionally, the first-hand insight will assist us in better
evaluating R1 religious visa requests from Bosnia and Herzegovina,
especially in light of new Department regulations regarding R1 visa
issuance.
--------------
IV Fraud
--------------
18. IV Fraud: The Embassy began processing Immigrant and Diversity
visas for the first time in November 2007. Post has discovered a
potentially vulnerable procedure conducted by local municipal public
registrars. This vulnerability was outlined in detail in a recent
cable (09 Sarajevo 0145). Namely, where a father's name was
originally missing on a birth certificate, a person need only make a
statement to the local municipal clerk in order to receive an
amended valid birth certificate with that person's name.
19. DV Fraud: The same as for IV.
SARAJEVO 00000409 003 OF 003
--------------
ACS Fraud
--------------
20. ACS and Passport Fraud: Post rarely encounters ACS or passport
fraud, and in the last six months we had only one fraudulent case.
In February, Post identified a certificate of birth containing
misleading information regarding the father of the child. We
determined that the AMCIT father did not meet the requirements for
transmission of U.S. citizenship to the child under 7FAM 1131.5-3.
Specifically, on the basis of the information and evidence the AMCIT
provided, we were able to calculate that the AMCIT did not have
physical access to his wife at the time the child was conceived. The
AMCIT declined to pursue the claim when presented with the
mathematical facts.
21. Adoption Fraud: Post has not encountered any adoption-based
fraud. Post processed in March 2009 the first ever adoption related
IV case in BiH.
22. Asylum and other DHS Benefits Fraud: Post recently received a
V92 case where the underlying asylum claim was fraudulent. During
the course of the interview it became apparent that the asylee's
husband and two children lived in a safe environment and no one in
the family was ever threatened per the original claim. None of the
family members knew how their wife/mother managed to remain in the
United States for two years after entering on a tourist visa. This
case follows the pattern of a similar asylum matter discussed in our
previous Fraud Report in which Post conducted a field investigation
in connection with a V92 case we received in April 2008. We wanted
to double-check the background of the successful asylum seeker.
After going to his home-town in northern Bosnia and visiting several
addresses, FPU established that the beneficiary lied about his
ethnic background and his family continued to live comfortable life
in their apartment in the center of town.
23. Cooperation with Host Government Authorities: Post has regular
and close contact with Ministry of Foreign Affairs, Ministry of
Civil Affairs and Communications, State Border Service, and the
Sarajevo Airport. Within the embassy, the Consular Section has
excellent working relationships with RSO, LEGAT, Political, and
other embassy sections. Additional embassy contacts with Bosnian
law enforcement organizations have proven very useful for recent
investigations.
24. Areas of Particular Concern: None
--------------
Staffing and Training
--------------
25. Consular Section Vice Consul Roger Webb is the Fraud Prevention
Manager. NIV Assistant Sead Dizdarevic serves as the Fraud
Prevention Specialist. Mr. Dizdarevic participated in a regional
Anti-fraud Roundtable in Skopje, Macedonia in October 2007, and will
attend the EUR FPP conference in Kiev next month. Mr. Dizdarevic
also received FSI training (PC542) in November 2007. Both Mr. Webb
and Mr. Dizdarevic serve in these roles as a collateral duty. All
other consular staff received regular briefings and cross-training
on fraud prevention, and actively participate in Post's FP program.
ENGLISH
DEPT FOR CA/EX,CA/FPP, CA/VO, AND EUR/SCE (MIKE FOOKS); DEPT ALSO
PASS TO KCC; POSTS FOR FRAUD PREVENTION MANAGERS; VIENNA FOR DHS
MARLA BELVEDERE; DEPT ALSO PASS TO DHS SIPDIS
E.O. 12958: N/A
TAGS: KFRD CVIS CMGT CPAS ASEC BK
SUBJECT: SARAJEVO FRAUD SUMMARY, SEMI-ANNUAL CY2009
REF: 09 Sarajevo 0145
1. This semi-annual fraud summary covers 1 September 2008 to 1 March
2009.
--------------
Country Conditions
--------------
2. Fourteen years after the 1992-95 Balkan conflict Bosnia and
Herzegovina is still recovering from the devastation of the war that
resulted in some two million displaced citizens. Of these,
approximately 131,000 sought refuge in the United States between
1992 and 2007. The war and its results seriously damaged the
economy and left civil records in some areas in disarray.
3. The Dayton Peace Accords from late 1995 organized the country
into two entities: The Federation of Bosnia and Herzegovina
(predominantly Croat and Bosniak),and the predominantly
Serb-populated Republika Srpska.
4. Civil documents in some areas disappeared during the war.
Duplicates were often obtained by affidavit and were therefore
unreliable for consular purposes. Those affidavits are no longer
used, and Bosnians now obtain copies of all civil documents of vital
records from the municipal "maticars" (similar to a county clerk).
5. The Bosnian public had high hopes for the 2001 CIPS (Citizens
Identification Protection System) project, designed to re-organize
the process of Passport and ID issuance and centralization of
citizenship information for the entire country. However, arrests of
members of the RS Ministry of the Interior, civilian registrars and
their assistants (all of them part of the CIPS project) in May 2008
cast a shadow over the credibility of the project. The legal process
against the perpetrators is still pending, but there is strong
reason to believe that a significant number of CIPS documents were
issued to applicants who were not entitled to them. This issue is
especially evident in the areas of Brcko, Bijeljina and Srebrenica.
6. An estimated 40% of the population is officially unemployed, but
it is presumed that due to the strong black market/grey economy the
real unemployment rate is closer to 20%. Many of those with regular
jobs often receive relatively low or irregular wages. Bosnians also
seek temporary work abroad. However, due to the recent global
economic crisis, some of them have returned to Bosnia, especially
those who were working in other ex-Yugoslav republics. Reports of
mounting job losses within the territory of Bosnia, are an ominous
sign for the future economic situation in Bosnia and Herzegovina.
7. The Balkan conflicts also brought large numbers of third country
nationals to BIH including refugees from neighboring countries.
Efforts to develop the State Border Service have significantly
reduced the number of people entering the country illegally, but
there is still more work to be done.
8. The BIH government intended to introduce a new biometric
passport in 2008, but they failed to meet intended deadlines.
We expect the introduction of new BIH passport in December 2009. A
more detailed cable regarding the timeline for the biometric
passport will follow shortly.
9.The EU and BiH have entered a tentative dialogue about the
possibility of lifting visa requirements for BIH citizens traveling
to EU countries, but this is unlikely to happen in the near future.
Bosnians currently require a Schengen visa to enter the EU. The
maximum validity for US B1/B2 and C1/D visas, our most commonly
issued classes, is multiple entry / 12 months.
10. Islamic mujahedin fighters who came mostly from Middle Eastern
and North African countries during the war in some cases obtained
Bosnian passports with relative ease from officials of the
Federation. Those "citizenships" have been the subject of scrutiny
by a Citizenship Review Commission staffed by Bosnian authorities
and international community representatives. Legal proceedings to
revoke these "citizenships" began three years ago and are moving
slowly due to administrative, legal and political obstacles.
Nevertheless, numerous foreign fighters already have been stripped
of fraudulently obtained citizenship, and the first was deported in
SARAJEVO 00000409 002 OF 003
December 2007. This policy has resulted in recent protests in the
central Bosnian town of Zenica, where many former mujahedin
settled.
11. The latest statistics from the Citizenship Review Commission
reveal that more than 1,800 persons born outside of ex-Yugoslavia
were granted BIH citizenship in the nineties. The total number of
citizenship cases granted was 23,000. The official number of the
revoked citizenships by June 30th of last year is 681, most of them
born in North Africa, southwest Asia and the ex-Soviet Union.
--------------
NIV Fraud
--------------
12. Attempts to obtain non-immigrant visas by fraud are rare and
generally unsophisticated. Post has seen no evidence of organized
fraud rings or significant fraud trends among NIV applicants. Post
has noted the recent establishment of several tourist agencies whose
owners have family ties in the US. These agencies are primarily in
impoverished areas of Bosnia, and mainly offer translation,
application preparation, interview scheduling and travel services.
The agencies primarily target the elderly and uneducated applicants
who are daunted by the visa application process. The activities of
such travel agencies will bear watching.
13. Parents of individuals who resettled in the United States make
up the largest percentage of NIV applicants. Post's last validation
survey revealed the increasing trend of their children applying for
change of status for them during their visit to the U.S.
14. Post conducted a validation study for 230 Au-Pairs issued in
2006. Our results showed that nearly half- 48%- of the BIH
participants stayed in America. Although a huge majority of them
found a legal way to stay (through marriage and studying in the
U.S),Post suggests that the high percentage of BIH Au Pairs who
have not returned to their country are not fulfilling the spirit of
the program. The results of the Sarajevo Au Pair validation study
were presented as a power point presentation at the annual Consular
Leadership Day in January 2009 in Belgrade. Post will issue a
separate cable with more specific details and results for this
validation study.
15. With the start-up of IV/DV processing at Embassy Sarajevo in
October 2007, post has revised and expanded the focus of our Fraud
Prevention Specialist. In addition, updated procedures have been
established for initiating and tracking local FPU investigations.
We continue to enter local lookouts on INK.
16. In addition to regularly catching a number of easily detected
small-time fraudulent documents in routine NIV investigations, the
FPU unit conducted several interesting investigation and outreach
activities in the last six months, including trips to Bihac, Velika
Kladusa, Banja Luka and Tuzla. FPU also visited Islamic Community of
BIH in connection with two questionable R1 applicants appointed by
the Islamic Community.
17. Post has since benefited from knowledge regarding relevant facts
in Islamic Community's organization and appointment procedures.
Additionally, the first-hand insight will assist us in better
evaluating R1 religious visa requests from Bosnia and Herzegovina,
especially in light of new Department regulations regarding R1 visa
issuance.
--------------
IV Fraud
--------------
18. IV Fraud: The Embassy began processing Immigrant and Diversity
visas for the first time in November 2007. Post has discovered a
potentially vulnerable procedure conducted by local municipal public
registrars. This vulnerability was outlined in detail in a recent
cable (09 Sarajevo 0145). Namely, where a father's name was
originally missing on a birth certificate, a person need only make a
statement to the local municipal clerk in order to receive an
amended valid birth certificate with that person's name.
19. DV Fraud: The same as for IV.
SARAJEVO 00000409 003 OF 003
--------------
ACS Fraud
--------------
20. ACS and Passport Fraud: Post rarely encounters ACS or passport
fraud, and in the last six months we had only one fraudulent case.
In February, Post identified a certificate of birth containing
misleading information regarding the father of the child. We
determined that the AMCIT father did not meet the requirements for
transmission of U.S. citizenship to the child under 7FAM 1131.5-3.
Specifically, on the basis of the information and evidence the AMCIT
provided, we were able to calculate that the AMCIT did not have
physical access to his wife at the time the child was conceived. The
AMCIT declined to pursue the claim when presented with the
mathematical facts.
21. Adoption Fraud: Post has not encountered any adoption-based
fraud. Post processed in March 2009 the first ever adoption related
IV case in BiH.
22. Asylum and other DHS Benefits Fraud: Post recently received a
V92 case where the underlying asylum claim was fraudulent. During
the course of the interview it became apparent that the asylee's
husband and two children lived in a safe environment and no one in
the family was ever threatened per the original claim. None of the
family members knew how their wife/mother managed to remain in the
United States for two years after entering on a tourist visa. This
case follows the pattern of a similar asylum matter discussed in our
previous Fraud Report in which Post conducted a field investigation
in connection with a V92 case we received in April 2008. We wanted
to double-check the background of the successful asylum seeker.
After going to his home-town in northern Bosnia and visiting several
addresses, FPU established that the beneficiary lied about his
ethnic background and his family continued to live comfortable life
in their apartment in the center of town.
23. Cooperation with Host Government Authorities: Post has regular
and close contact with Ministry of Foreign Affairs, Ministry of
Civil Affairs and Communications, State Border Service, and the
Sarajevo Airport. Within the embassy, the Consular Section has
excellent working relationships with RSO, LEGAT, Political, and
other embassy sections. Additional embassy contacts with Bosnian
law enforcement organizations have proven very useful for recent
investigations.
24. Areas of Particular Concern: None
--------------
Staffing and Training
--------------
25. Consular Section Vice Consul Roger Webb is the Fraud Prevention
Manager. NIV Assistant Sead Dizdarevic serves as the Fraud
Prevention Specialist. Mr. Dizdarevic participated in a regional
Anti-fraud Roundtable in Skopje, Macedonia in October 2007, and will
attend the EUR FPP conference in Kiev next month. Mr. Dizdarevic
also received FSI training (PC542) in November 2007. Both Mr. Webb
and Mr. Dizdarevic serve in these roles as a collateral duty. All
other consular staff received regular briefings and cross-training
on fraud prevention, and actively participate in Post's FP program.
ENGLISH