Cablegate: Kenya: Global Maritime Partnership (Gmp) Initiative


DE RUEHNR #1520/01 1751219
P 231219Z JUN 08





E.O. 12958: N/A

REF: State 215121

1. (SBU) The U.S. Mission in Nairobi is already implementing several
maritime security initiatives with GOK agencies that would appear to
fit under the GMP initiative, and uses the coastal security
subcommittee of the CT Working Group to coordinate across the
various Mission agencies. However, the GOK does not have an agency
strong enough to coordinate GOK policy and actions under the Global
Maritime Partnership (GMP) initiative. The GOK Coastal Security
Steering Committee was an initiative of the Ministry of Provincial
Administration and Internal Security, but the Ministry was not able
to sustain the effort, and the Committee has not formally met since
August 2007. The Kenya Maritime Agency (KMA) has the legal
authority to address maritime security issues, but not the
resources. The Kenya Port Authority (KPA) is fairly effective at
securing the Port of Mombasa, but is focused on Port security. The
Kenya Navy is under-resourced and not effective. The Kenya Police
Maritime Unit may be a precursor to a Kenyan Coast Guard, but lacks
resources. Post therefore recommends not proposing the GMP to the
GOK, but continuing to work with the relevant GOK agencies until a
GOK interlocutor that can effectively coordinate and develop
interagency policy positions or programs develops.

Existing Bilateral Maritime Security Programs

Dept of State, Bureau of Diplomatic Security, Office of
Antiterrorism Assistance
--------------------------------------------- --
Program: Maritime Security Initiative:
2. (SBU) The U.S. and Kenya signed a Memorandum of Intent on May 19,
2006) under which both governments agree to cooperate in building
Kenya's capacity to prevent, interdict and investigate acts of
terrorism in the ports and along the coast of Kenya. This program
provided three patrol boats to the Port of Mombasa in 2007, and
trained officers from all the maritime security stakeholder
organizations: Kenya Police Service - Maritime Police Unit,
Administration Police, Kenya Wildlife Service, Kenya Navy, Kenya
Ports Authority, Kenya Revenue Authority, Kenya Maritime Authority,
Fisheries, Immigration and others as appropriate to coordinate and
use the boats effectively. It also provided other law enforcement
equipment to the Maritime Police Unit, enabling that service to
institute 24 hours a day patrols in the Port of Mombasa starting in
April 2007.

3. (SBU) Under the program, U.S. Coast Guard, Navy and others have
provided operational, technical, management, planning, maintenance,
and other courses on subjects including:

Port and Harbor Security Management
Comprehensive Maritime Security
Maritime Operations
Small Boat Operations
Leadership and Management
Outboard Motor Maintenance
Advanced Boarding Officer Course
Coastal Search and Rescue
Maritime Law Enforcement Officer Training
Counter Terrorism in a Maritime Environment
Maritime Security conferences in Mombasa and Madagascar
Maritime Security consultation in the US.

This initiative has used the U.S. Coast Guard International Training
Programs International Training Division (ITD) Yorktown Training
Center to train Kenyans from various agencies in both Yorktown and
in Kenya. Since 2005, ATA has sent and escorted Kenyan participants
to conferences and consultations in the Washington DC, Baltimore,
Detroit, South Carolina, Virginia, Florida, Louisiana and New
Mexico, Madagascar and Mombasa.

Program: Manda Bay Initiative:
4. (SBU) A $3M Training facility was completed February 28, 2008 at
Manda Bay Naval Base. Ongoing training courses include officers
from the Maritime Police Unit, Administration Police, Kenya Wildlife
Service, Kenya Navy, Kenya Ports Authority, Kenya Revenue Authority,
Kenya Maritime Authority, Fisheries, Immigration and others and
cover subjects including maritime operations, counter-terrorism in a
maritime environment, small boat operations, advanced boarding
officer training, maritime law enforcement officer instructor
training, advanced outboard motor maintenance, and other courses.
Graduating units will receive boats, trailers, prime movers which
will enable the graduates to deploy immediately and become
operational. Funding for the training facility, equipment and
courses will exceed $7M in three years.

National Steering Committee for Maritime Security
--------------------------------------------- -----
5. (SBU) The Ministry of Provincial Administration and Internal
Security established the inter-agency National Steering Committee
for Maritime Security in 2007 in an effort to coordinate the actions
of the many agencies involved in maritime security issues. ATA
supported the committee in the drafting of a white paper on National
Maritime Security Policy and Strategy, and ATA reps attended
meetings as non-voting members. The Committee became dormant in the
run up to the December 2007 election and post election period. ATA
is trying to encourage revival of the Committee.

Maritime Transportation Security Act (MTSA) and U.S. Coast Guard
ISPS Liaison Program
6. (U) Working with the Embassy Economic Section, officials from the
USCG's International Port Security Program visited Nairobi and
Mombasa in May 2007 to conduct a review of Mombasa in accordance
with the Maritime Transportation Security Act and the International
Ship and Port Facility Security (ISPS) code to determine whether
effective anti-terrorism measures were in place. The Kenya Port
Authority and the Ministry of Transportation are working with USCG
to arrange a reciprocal visit to the U.S. to continue the exchange
of best practices in port security.

Kenya-U.S. Liaison Office (KUSLO) Patrol Boats and Training
--------------------------------------------- --
7. (SBU) The U.S. Navy has been training students from the Kenya
Navy in Manda Bay since 2004. To date, nearly 200 sailors have gone
through the intensive 8-week course in small boat operations. In
2008, DOD partnered with DOS to combine training in Manda Bay under
the Comprehensive Maritime Security course. The curriculum still
contains the original 8-week training course in maritime small boat
operations, but now adds a 4-week period focused on anti-terrorism
and law enforcement issues.

8. (SBU) Additionally, KUSLO works with KMOD and KNAV to identify
other training courses both in Kenya and in the United States that
will enhance the professionalism and maritime security skills within
the force. This year KNAV will participate in DOS sponsored courses
taught by the U.S. Coast Guard in Search and Rescue, Small Boat
Operations, and Boarding Officer operations. In FY09, through
KUSLO's security assistance program, the Naval Small Craft
Instruction and Training School in Florida will host selected KNAV
sailors taking courses in small boat operations and outboard motor

9. (SBU) In 2007, the Kenyan Navy received delivery of 1 Archangel
and 5 Defender motor boats and associated equipment through KUSLO's
FMS program. The plan for FY09 is to further enhance the coastal
security capability of KNAV through additional small boat purchases
and new coastal radar systems.

Customs and Border Protection (CBP) Programs
10. (U) CBP has an ongoing program with Kenya Revenue Authority
(KRA) and other Kenya government agencies to help them implement the
World Customs Organization (WCO) Framework of Standards to Secure
and Facilitate Global Trade through training, donation of equipment,
and assistance on port/border security issues via visits by CBP
subject matter experts, etc. related to the maritime/seaport
environment. Programs focus on port and border security issues
related to counter-terrorism, export border control, weapons of mass
destruction, trade fraud, alien smuggling, fraudulent travel
documents, mala-fide travelers, impostor identification on
legitimate documents and various other issues. CBP has provided
equipment and training, or is scheduled to provide training listed
below to Government of Kenya officials pertinent to the "Global
Maritime Partnership Initiative."

11. (U) CBP has donated equipment (contraband detection kits,
inspection tool bags, radiation detectors, gamma radiation pagers,
binoculars, radios, alarm meters, and leatherman/gerber multi-tool
kits) valued at $120,00 that are being used in the seaport/maritime
environment. Individuals with the Kenya Revenue Authority (KRA)
Customs Services Department, Kenya Port Authority (KPA), Kenya
Police and Kenya Maritime Authority (KMA) have received training on
the proper utilization of the aforementioned equipment.

Train-The-Trainer Workshop (T3W)

12. (U) This program provides participants with a relevant
adult-learning education model and opportunities to practice lesson
development and presentation skills in a supportive small-group

Integrity/Anti-Corruption Training
13. (U) These training assists foreign law enforcement agencies
maintain a high level of integrity in their daily operations. CBP
offers assistance programs ranging from integrity awareness training
to formal advice on development and operation of an internal
investigations organization within a specific government agency.

Fraudulent Documents
14. (U) This program builds capacity in host country agencies to
identify documents used in a fraudulent manner to obtain admission
or other benefits.

Supply Chain Security, Government-Business Partnership/C-TPAT
--------------------------------------------- ---------
15. (U) This program assists local government in developing a strong
and credible supply chain security program.

Industry Partnership Seminars
16. (U) This program builds on the best practices of varied customs
administrations and industry partnerships to strengthen supply chain
security, encourage cooperative relationships, and better
concentrate Customs resources on areas of greatest risk. Together,
enhanced security practices and increased supply chain performance
reduce the risk of loss, damage and theft, and lessen the threat
that terrorists will attack the global supply chain.

Risk Management and Targeting Seminar
17. (U) This program teaches an effective means of identifying
high-risk shipments and provides the knowledge and skills necessary
to significantly improve targeting capabilities.

Legal Authorities for WCO Framework
18. (U) This one-week seminar is designed to outline legal and
regulatory structures that are fundamental to implementing the World
Customs Organization (WCO) Framework of Standards for
representatives of the Customs legal department, as a basis for
considering possible amendments to existing statues and regulations.

Management Seminar
19. (U) This one-week seminar is designed for senior managers who
are responsible for organizational change and strategic planning.

Short-Term Advisory (STA) Assistance
20. (U) Short-term advisors are assigned for specific purposes based
on their particular expertise. These assignments may last from just
a week or two to a few months. Some of these STA programs provide
foreign law enforcement organizations (Customs, Police) with the
initial recommendations for these organizations to develop long-term
modernization and reform programs. CBP may contribute to these
projects by providing additional training and technical assistance
over a period of months or several years, should funding be made

Department of Energy
21. (U) The U.S. Department of Energy (DOE) National Nuclear
Security Administration (NNSA) is currently discussing with
Government of Kenya officials the possibility of establishing the
Megaports initiative at the Port of Mombasa.

Regional Cooperation; CJTF-HOA EASWIO Initiative
--------------------------------------------- ---
22. (U) Working with CENTCOM, and State's DS/ATA and AF/RSA, the
Combined Joint Task Force-Horn of Africa (CJTF-HOA) has organized
regional conferences to discuss maritime security strategies in a
regional forum. Strengthening maritime security represents the
convergence of multiple national interests such as maritime
security, safety, peace and prosperity. The team concept allows
inter-agency and inter-governmental agencies to come together and
share their policies, programs and ideas.

23. (U) The first East Africa and Southwest Indian Ocean (EASWIO)
Maritime Security Conferences was held in Antananarivo, Madagascar
in 2006 with mostly military representation. The focus was on the
need to develop national maritime strategies. EASWIO II was held in
Mombasa, Kenya in 2007, and had a mix of military personnel and
civilian maritime and port security authorities. That conference
focused on several key issues raised during EASWIO I, including the
need to develop bilateral and multilateral collaboration on maritime
security issues in the region. EASWIO II also explored interest in
development of a Maritime Center of Excellence for training. Topics
discussed included maritime security and coalition efforts, regional
maritime safety and security situation, maritime economics and
environment, and port security.

24. (U) The EASWIO III conference is scheduled in the autumn of
2008. To capitalize on the momentum realized in EASWIO II, and make
EASWIO III a working conference that generates tangible products and
action among EASWIO nations, CJTF-HOA will host up to two sequential
working groups (WG-1 and WG-2). The first working group will be in
mid-June 2008 in Djibouti. The goal is to make progress on the
regional Maritime Security and Safety initiative and ensure the
EASWIO nations, as key stakeholders, are positioned to take a lead
in developing the initiative. The output of the conference will be
a generic maritime strategy document providing a template for both
national and regional development for subsequent endorsement at the
autumn Sub Ministerial meeting. The Maritime Security and Safety
Strategy must include all the elements of maritime domain awareness,
security, safety and that of supporting infrastructure such as ports
and maritime training centers. It must be underpinned by the
requisite legal instruments and policies.

25. (U) The second working group is a contingent activity. Initial
bilateral strategy development assistance visits should be evaluated
to determne if common issues, skills, or other drivers could be
usefully assisted by another seminar or working group sessions.
Because of summer vacation practices in EASWIO, the decision to
convene WG-2 should be made by early June and conducted no later
than the beginning of September 2008, before the start of Ramadan.

26. (U) The products from these working groups will carry forward to
the EASWIO III conference. The target audience of EASWIO III
includes the participants of WG-1 and WG-2, but would also include
principal policy heads below the ministerial level to build
additional institutional support. The conference would be led by
the Naval War College, African Center for Strategic Studies or other
suitable entity. The expected outcomes include:

- USG assessment of each EASWIO nation's progress and prognosis for
near-term adoption of a national maritime strategy;
- Provision of assistance in resolving impediments to adoption of
strategies and identification of institutional capacity necessary to
implement such strategies,
- Reinforcement of the need for regional cooperation and regional
integration of maritime security strategies across the sub regions;
- Preliminary advocacy for development of sub regional cooperative
bodies, including exploration of possible use of existing
international organizations.

Other Maritime Security Programs to Raise with GOK
--------------------------------------------- -----
27. (U) Post will seek opportunities to raise the following
initiatives with the appropriate GOK agencies to determine their
level of interest.

- Ship Security Alert System (SSAS), which allows a vessel operator
to send a covert alert to shore for incidents involving acts of
violence, such as piracy or terrorism.

- Automatic Identification System (AIS), which is navigation
equipment installed on ships that automatically sends the ship's
identity, position, course, speed, navigational status, and other
safety-related information to other ships and shore-based agencies

- Operation Port Shield, in which the U.S. Coast Guard uses a Risk
Based Decision Targeting Matrix to decide which incoming vessels to
inspect. GOK agencies may be interested in learning how to develop
and use a Risk Based Decision Targeting Matrix for the Port of
Mombasa. Coast Guard may be able to demonstrate the matrix during
the upcoming reciprocal ISPS visit.

- Smart Box Initiative technology involves an imbedded, electronic
container security device that helps determine whether a container
has been opened or tampered with at any point along its journey.

Kenya Revenue Authority (KRA/Customs) would likely be interested in
such technology to prevent both tampering and to keep transit cargo
from "falling off the truck" while en route to Uganda and points
beyond on the Northern Corridor.


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