C 0 5 2 8 9 5 4 6 1ED ' U S Department of State Case No F-2012-30697 Doc No C05289546 Date 01 09 2014 a UNCLASSIFIED RELEASED IN FULL CDS RAAUZYUW RUEHMEA2012 1341649-UUUU--RHEFLGX ZNR UUUUU ZZH DTG 141644Z MAY 10 FROM FM AMEMBASSY MEXICO CONTROLS UNCLAS MEXICO 002012 DECONTROLLED SENSITIVE STATE FOR INL AND WHA MEX TREASURY FOR ENFORCEMENT SECRETARY DOJ FOR BSWARTZ KBLANCO DEP ASSIST ATTY GEN FBI DIR FOR LA CU OC DB 011U CID DEA FOR OD OF OFC AO DO NPSM CUSTOMS FOR LA OPS AND FOR OIA WHB E O 12958 N A TAGS SNAR KCRM KJUS PGOV PREL THIS IS A COMBINED MESSAGE BODY SUBJECT MEXICO MERIDA INITIATIVE SPOT REPORT #33 CONTROL DE CONFIANZA SETS THE FOUNDATION FOR MERIDA 1 SBU THIS CABLE IS SENSITIVE BUT UNCLASSIFIED 2 SBU SUMMARY NAS Mexico assists the Government of Mexico GoM to design and develop sound practices to reduce corruption in its judicial intelligence and security agencies through the Merida Initiative Control de Confianza program In the context of Merida Control de Confianza refers to vetting and internal controls Two principal concepts defined by NAS shape the overall plan Gatekeeper and Institutional Internal Culture of Lawfulness The plan focuses on using GoM Federal agencies CISEN SSP PGR INAMI and SAT to deploy nine small working modules NAS will provide U S Subject Matter Experts SMEs equipment training and technical assistance to establish practices programs and procedures in each module The total estimated cost of the development stage of the plan is $ 13 3 million Because of the centrality of ending corruption to ultimate success in winning in the war against the DTOs we consider the Control de Confianza program to be one of the most important of the Merida Initiative END SUMMARY REVIEW AUTHORITY Alan Flanigan Senior Reviewer UNCLASSIFIED page 188 UNCLASSIFIED U S Department of State Case No F-2012-30697 Doc No C05289546 Date 01 09 2014 C O 5 2 8 9 5 4 69ED U S Department of State Case No F-2012-30697 Doc No C05289546 • Date 01 09 2014 UNCLASSIFIED GATEKEEPER 3 SBU The first of two principal concepts defined by NAS to shape Control de Confianza is known as Gatekeeper The objective is to implement procedures to prevent corrupt individuals or those with a propensity to engage in corrupt behaviors from entering government law enforcement organizations Of the nine total modules of the Control de Confianza plan three address this concept --Background Investigations Currently the GoM lacks a solid and meticulous background investigation process to uncover an individual's character abilities loyalty reliability integrity and financial irregularities NAS will work with the GoM to train investigators supervisors and managers to conduct top quality background investigations and train supervisors and managers to set standards and parameters for interpreting investigation results --Police Registry Because the police service is decentralized in Mexico hundreds of police agencies employ hundreds of thousands of police officers across federal state and municipal organizations As corrupt officers are uncovered and fired they simply move from one police agency to another The GoM has established the Kardex Policial system to keep records of all police officers and private security guards in Mexico When employees are detected in corrupt activities or serious misconduct an entry will be made in the Kardex which will bar them from any future employment where a Kardex certification is required --Kardex Policial administered by the SSP is fully functional at START OF SECTION 2 SENSITIVE STATE FOR INL AND WHA MEX TREASURY FOR ENFORCEMENT SECRETARY DOJ FOR BSWARTZ KBLANCO DEP ASSIST ATTY GEN FBI DIR FOR LAICU OC DB OIU CID DEA FOR OD OF OFC AO DO NPSM CUSTOMS FOR LA OPS AND FOR OIA WHB E O 12958 N A TAGS SNAR KCRM KJUS PGOV PREL SUBJECT MEXICO MERIDA INITIATIVE SPOT REPORT #33 CONTROL DE CONFIANZA SETS THE FOUNDATION FOR MERIDA this time NAS assistance in this area will focus on providing the GoM with hardware to expand the volume of data entry and make the system accessible in more areas across Mexico Additionally SMEs UNCLASSIFIED page 189 UNCLASSIFIED U S Department of State Case No F-2012-30697 Doc No C05289546 Date 01109 2014 C O 5 2 8 9 5 4 6'IED U S Department of State Case No F-2012-30697 Doc No C05289546 Date 01109 2014 UNCLASSIFIED will provide technical assistance and expertise on how to better audit and monitor the Kardex system and other databases to reduce the possibility of wrongful use --Polygraphs The technical part of administering polygraph examinations is well underway by the GoM CISEN Mexico's Intelligence Agency will lead the effort in polygraph development and will use the U S model where all federal agencies follow one training and examination doctrine Currently CISEN PGR SSP SAT and INAMI have more than 300 trained polygraphers and CISEN is scheduled to train approximately 200 additional polygraph operators in 2010 Experts from the U S and GoM policy makers have all agreed that expanding a polygraph program too fast would be detrimental to the program The total budget for Gatekeeper elements is $9 3 million INTERNAL CULTURE OF LAWFULNESS 4 SBU The second principle concept is Internal Culture of Lawfulness The objective is to augment and support ongoing GoM efforts to reduce corruption within their institutions These modules focus on deterring corruption with strong internal controls identification and monitoring of risk factors and an aggressive educational campaign The following six modules address this objective --Polygraph The polygraph capabilities to address internal affairs matters and employee reinvestigations will be addressed under the Gatekeeper objective It is presented under Internal Culture of Lawfulness so that effectiveness in this area can be tracked and the polygraph deployment phase better coordinated --Operational Internal Investigations The use of undercover techniques in Mexico to expose corrupt officials has not been exploited largely because Mexican culture views such techniques as entrapment A key element in reducing corruption is to create fear among corrupt officials that the other parties to the corrupt act may be an agent of the government acting in an undercover capacity This module is designed to establish an operational unit with the necessary equipment and training to conduct highly sensitive internal investigations targeting employees and units known to be corrupt or involved in illegal activities The GoM will be exposed to proven operational and management techniques used by U S law enforcement agencies when dealing with undercover operations START OF SECTION 3 UNCLASSIFIED page 190 UNCLASSIFIED U S Department of State Case No F-2012-30697 Doc No C05289546 Date 01 09 2014 C O 5 2 8 9 5 4 6 1ED U S Department of State Case No F-2012-30697 Doc No C05289546 Date 01 09 2014 UNCLASSIFIED SENSITIVE STATE FOR INL AND WHA MEX TREASURY FOR ENFORCEMENT SECRETARY DOJ FOR BSWARTZ KBLANCO DEP ASSIST ATTY GEN FBI DIR FOR LA CU OC DB OIU CID DEA FOR OD OF OFC AO DO NPSM CUSTOMS FOR LA OPS AND FOR OIA WHB E O 12958 N A TAGS SNAR KCRM KJUS PGOV PREL SUBJECT MEXICO MERIDA INITIATIVE SPOT REPORT #33 CONTROL DE CONFIANZA SETS THE FOUNDATION FOR MERIDA --Ethics The objective of this module is to establish an Ethics Unit to deal with all ethics issues for target agencies The Unit will develop clear standards of conduct policies addressing honor codes core values ethics standards employment policies ethics training conflict of interest gifts conflicting financial interests impartiality misuse of position outside activities financial disclosure recusals waivers and divestiture --Reinvestigation The reinvestigation module will focus on conducting re-investigations on active duty personnel The purpose is to ensure employees continue to be trustworthy public servants --Adjudication An objective adjudications process is necessary to address any inconclusive polygraph results unresolved allegations or other issues that may put someones integrity in question This module will stand up a well-trained and equipped Adjudication Unit to work within the legal or other administrative section already established in the target agencies The unit will have responsibility for resolving standard disciplinary matters and focus primarily on policy procedures and rationale of dealing with questionable and inconclusive issues --Performance Awards Appraisals and Recognition This module will create a unit whose ongoing responsibility will be to look for ways to provide positive reinforcement for good behavior and confronting corruption Whistleblower protection and methods of encouraging employees to denounce corrupt coworkers will be implemented The total budget for Internal Culture of Lawfulness programs is $4 million JUAREZ PILOT PROJECT 5 SBU To strengthen the key security units in Ciudad Juarez a pilot project is under development between USG and GOM that would UNCLASSIFIED page 191 UNCLASSIFIED U S Department of State Case No F-2012-30697 Doc No 005289546 Date 01 09 2014 C 0 5 2 8 9 5 4 6 IEb U S Department of State Case- No F-2012-30697 Doc No C05289546 Date 01 09 2014 UNCLASSIFIED help to build institutions with the integrity to confront and reverse the violence that has plagued the city while establishing a culture of lawfulness in the community Although not yet officially programmed NAS views the following as potential ways to implement Control de Confianza in Juarez under this pilot project --Provide a site in El Paso where 20 polygraph machines and quality control supervisors will provide on-the-job training to GoM polygraphers START OF SECTION 4 SENSITIVE STATE FOR INL AND WHA MEX TREASURY FOR ENFORCEMENT SECRETARY DOJ FOR BSWARTZ KBLANCO DEP ASSIST ATTY GEN FBI DIR FOR LA CU OC DB OIU CID DEA FOR OD OF OFC AO DO NPSM CUSTOMS FOR LA OPS AND FOR OIA WHB E O 12958 N A TAGS SNAR KCRM KJUS PGOV PREL SUBJECT MEXICO MERIDA INITIATIVE SPOT REPORT #33 CONTROL DE CONFIANZA SETS THE FOUNDATION FOR MERIDA --Provide a location in El Paso where 10-15 investigators one supervisor and a secretary can manage background investigations --Assist with coordination between USG and GoM officials to use USG intelligence to facilitate Control de Confianza decisions in Mexico and provide expert advice on how to conduct assessments to quickly categorize employees as high medium or low risk in terms of their potential to engage in corrupt activities PROGRAM PROGRESS 6 SBU To date Merida funds have provided 318 polygraph units worth a total of $2 4 million which will go to CISEN Mexican Intelligence Agency SSP Federal Police PGR Attorney General INAMI Migration SAT Customs and select state and municipal agencies It is worth noting however that experts from the U S and GoM policy makers agree that expanding the polygraph program too fast would be detrimental to maintaining its integrity and upholding high standards for technique 7 SBU A $4 8 million contract for hardware to support Kardex Policial see para 3 is under negotiation and expected to be signed shortly 8 SBU Representatives from the Consortium for Police Leadership UNCLASSIFIED page 192 UNCLASSIFIED U S Department of State Case No F-2012-30697 Doc No C05289546 Date 01109 2014 C 0 5 2 8 9 5 4 69ED U S Department of State Case No F-2012-30697 Doc No C05289546 Date 01 09 2014 UNCLASSIFIED in Equity CPLE were in Mexico City the week of April 26th to initiate an assessment gauging the levels and depth of corruption in the Mexican government The assessment will provide a baseline to measure improvements as the Control de Confianza program advances CPLE will also try to determine the impact Merida training has on corruption levels once trained officers are reintroduced to the work environment 9 SBU During the first week of May 29 Mexican polygraphists from five government institutions attended the American Association of Police Polygraphists seminar in St Louis Missouri Participants interacted with the top polygraphists in the United States at the conference Polygraphists from several Central American countries also attended This program is particularly important in order to encourage inter-agency cooperation and communication which is not the status quo among Mexican law enforcement agencies 10 SBU Customs and Border Patrol CBP and the Defense Agency for Credibility Assessment DACA pledged support to provide advanced capability training for polygraph operators Jose Gonzalez a CBP employee detailed to DACA will commit 25% of his time or one week per month to working with the GoM to improve START OF SECTION 5 SENSITIVE STATE FOR INL AND WHA MEX TREASURY FOR ENFORCEMENT SECRETARY DOJ FOR BSWARTZ KBLANCO DEP ASSIST ATTY GEN FBI DIR FOR LA CU OC DB OIU CID DEA FOR OD OF OFC AO DO NPSM CUSTOMS FOR LA OPS AND FOR OIA WHB E O 12958 N A TAGS SNAR KCRM KTUS PGOV PREL SUBJECT MEXICO MERIDA INITIATIVE SPOT REPORT #33 CONTROL DE CONFIANZA SETS THE FOUNDATION FOR MERIDA their polygraph program under an IAA 11 SBU During 2010 NAS will work on professionalizing current GOM polygraphists by providing senior examiner courses to 300 polygraphist and sponsoring 75 memberships and attendance to professional polygraph associations and seminar in the U S $2 5 million in equipment will be purchased to support the increase function of Control de Confianza Centers Equipment training and technical assistance to conduct sophisticated investigations such as undercover operations and electronic surveillance will be UNCLASSIFIED page 193 UNCLASSIFIED U S Department of State Case No F-2012-30697 Doc No C05289546 Date 01 09 2014 C052 8 95 4 6- 1ED U S Department of State Case No F-2012-30697 Doc No C05289546 Date 01 09 2014 UNCLASSIFIED implemented in internal affairs units Grants will be awarded to organizations who will work with GoM officials to identify and implement ways to provide positive stimulus and protection to officers who stand-up against corruption implement strong ethical values and implement sound practices on how to handle inconclusive vetting results These objectives will be focused on the federal level and upon implementation they will be evaluated and based on cost and performance they will be deployed to select state and municipal agencies CENTRALITY OF CONTROL DE CONFIANZA TO OVERALL SUCCESS --------- ------- -----------------------------------12 SBU Control de Confianza is a system designed to detect and deter potential corruption among the Mexican security forces A well-functioning and trustworthy police force is critical in order to make any progress in the battle against drug trafficking organizations DTOs Most citizens in Mexico have little trust in the police and as a result often do not report crimes or case leads Control de Confianza addresses the very fundamental need in Mexico to build a police force that earns the publics trust and serves citizens in an efficient and effective manner starting with recruiting the right people and establishing internal controls to maintain the integrity of the organization 13 SBU Control de Confianza is critical to the success of the entire Merida Initiative If equipment and training are provided to corrupt individuals the USG will have accomplished nothing more than provide expertise and technology to individuals who may use it to undermine all USG efforts in Mexico The bottom line is that if Control de Confianza fails Merida fails PASCUAL ADMIN BT #2012 213135 NNNN UNCLASSIFIED page 194 UNCLASSIFIED U S Department of State Case No F-2012-30697 Doc No C05289546 Date 01 09 2014