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Viewing cable 09BAGHDAD565, IRAQ'S NEGLECTED MONEY LAUNDERING REPORTING OFFICE

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Reference ID Created Released Classification Origin
09BAGHDAD565 2009-03-05 08:02 2011-08-30 01:44 CONFIDENTIAL Embassy Baghdad
VZCZCXRO0251
RR RUEHDE RUEHDH RUEHDIR
DE RUEHGB #0565/01 0640802
ZNY CCCCC ZZH
R 050802Z MAR 09
FM AMEMBASSY BAGHDAD
TO RUEHC/SECSTATE WASHDC 1990
RUEATRS/DEPT OF TREASURY WASHDC
RUEAWJA/DEPT OF JUSTICE WASHDC
RUEHZM/GULF COOPERATION COUNCIL COLLECTIVE
C O N F I D E N T I A L SECTION 01 OF 02 BAGHDAD 000565 
 
SIPDIS 
 
E.O. 12958: DECL: 03/02/2019 
TAGS: EFIN PTER KCRM PGOV SNAR PGOB IZ
SUBJECT: IRAQ'S NEGLECTED MONEY LAUNDERING REPORTING OFFICE 
EAGER TO IMPROVE 
 
REF: A. INGALLS-ROLAND-NOVIS EMAILS JANUARY 2009 
     B. 08 BAGHDAD 2431 
 
Classified By: Acting EMIN Michael Dodman, reasons 1.4 (b,d). 
 
1. (C) SUMMARY: Iraq's two year-old Money Laundering 
Reporting Office (MLRO) is under-budgeted and under-staffed; 
lacks capacity; works out of woeful office conditions; and 
its work is hindered further by loophole-ridden anti-money 
laundering legislation that is self-contradictory and 
unenforceable.  The MLRO leadership willingly admits that the 
unit cannot effectively oversee financial transactions in 
Iraq and lags well behind most of its regional counterparts. 
It has drafted new financial crimes legislation, but has been 
forced to cobble together its own standard operating 
procedures while it waits for the bill to move through the 
cumbersome GOI legislative process.  Still, MRLO officials 
appear eager to improve their capacity.  They claim that they 
benefited greatly from IMF-sponsored anti-money laundering 
training in Beirut, and anticipate Iraq will participate in 
the May MENA FATF meetings in Bahrain.  MLRO officials 
welcomed the U.S. offer to have a Financial Sector Assessment 
Team (FSAT) conduct a baseline assessment this year, and 
agreed that a full MENA-FATF peer review would be valuable at 
a later date; however, CBI Governor Shabibi must still 
approve these actions.  END SUMMARY. 
 
Lack of Infrastructure 
---------------------- 
2. (C) Treasury Attache and emboffs visited Iraq's MLRO and 
met with Director Sahib Badr Abood, Deputy Director Fawziya 
Kadhib Ali and Central Bank of Iraq (CBI) Legal Advisor Inam 
Yaseen Mohammed on May 2.  The MRLO, an independent agency 
under the auspices of the CBI, employs about 30 staff and is 
housed in a dilapidated annex above a branch office of the 
state-owned Rafideen Bank.  The Office suffers a lack of 
computers and office equipment, as well as limited and poorly 
operating telecommunications.  A large generator in the 
cramped central courtyard provides most electricity, when 
fueled.  MRLO personnel readily acknowledge that their office 
surroundings are not conducive to carrying out their 
regulatory and financial law enforcement responsibilities; 
they are especially frustrated by the inability to 
communicate with Iraqi banks electronically -- much less 
monitor them.  The CBI (which Legal Advisor Mohammed 
described as "increasingly" supportive) has offered the MRLO 
new office space sometime in the future, but plans are still 
unclear.  (NOTE: Since suffering a fire early last year, the 
CBI and all its affiliates have faced difficulties in 
securing adequate working space -- a problem that is expected 
to be alleviated this year when it opens new facilities.  See 
Reftel B.) 
 
Bad Legislation 
--------------- 
3. (C) Abood and Mohammed also readily acknowledged that they 
are seeking to enforce anti-money laundering legislation that 
is woefully inadequate.  CPA Order No. 93, the Anti-Money 
Laundering Act of 2004, which U.S. Coalition Provisional 
Authority (CPA) officials drafted and enacted, is the basis 
of anti-money laundering law in Iraq.  The Order generally 
complies with international standards, as it was based on 
model UN legislation; however, Mohammed explained, the Arabic 
text (as well as the English language copy we have) does not 
conform to Iraqi jurisprudence and contains 
self-contradictory -- and therefore unenforceable -- clauses. 
 For example, one article states that banks must report 
suspicious transactions and immediately freeze the assets of 
Qsuspicious transactions and immediately freeze the assets of 
any individual or institution seeking to make them, while 
another section of Iraqi law forbids private banks from 
freezing assets without a court order.  (In practice, banks 
do not freeze assets without a court order, Abood said.) 
 
4. (C) To remedy the current legislation's shortcomings, a 
GOI interagency committee (that includes the MRLO) drafted a 
bill that, when enacted, will establish clearer procedures 
for bank reporting and oversight; will clearly define 
predicate money laundering offenses; will outline the MRLO's 
ability to impose penalties; and will widen the MRLO's 
authority over non-bank financial institutions such as, for 
example, "hawala" sector money traders.  Unfortunately, the 
legislative process in Iraq is cumbersome and extremely slow, 
and neither Abood nor Mohammed would speculate on when the 
bill might ultimately be enacted.  In the meantime, the MRLO 
currently tries to conduct oversight through a hodge-podge of 
SOPs derived from -- among other things -- CPA Order 93, 
other countries' regulations, and what MRLO senior officials 
can learn from regional training sessions and MENA-FATF 
publications.  "Despite the legislation's delays," Mohammed 
said, "we are working to comply with MENA-FATF's '40 
 
BAGHDAD 00000565  002 OF 002 
 
 
Recommendations Plus 9,'" for example. 
 
Eager to Improve Capacity 
------------------------- 
5. (C) Despite the lack of resources and decent legislation, 
Abood, Ali and Mohammed all expressed a keen desire to 
upgrade their unit's capacity through greater contact with 
MENA-FATF and others with financial crime expertise. 
Twenty-eight Iraqi officials from the MLRO, Customs, and the 
Interior and Justice Ministries attended IMF-sponsored 
anti-money laundering training in Beirut in January and found 
it to be of great benefit.  "We are a self-motivated office," 
and eager to learn from experiences of countries like Lebanon 
and Egypt, Mohammed said.  The MRLO is also urging the GOI to 
ratify the UN conventions that address money laundering and 
financial crime and to fulfill its commitments to the UN 
Convention against Corruption.  The CBI nominated Abood to 
attend the MENA-FATF meetings in Bahrain in May -- marking 
the first time Iraq will participate since 2007.  Mohammed 
and Abood understand that the MRLO is nowhere near ready for 
a MENA-FATF peer review at this time.  However, they welcomed 
our offer to have a U.S. Financial Sector Assessment Team 
(FSAT) visit to conduct a baseline assessment sometime this 
year, pending the CBI Governor's approval. 
 
Comment and Next Steps 
---------------------- 
6. (C) Iraq's MRLO has a long way to go before its 
legislative and technical capacity are up to a standard that 
will allow it to effectively oversee financial transactions 
in Iraq.  However, its leaders are eager to improve and to 
conform with international standards, and have welcomed U.S. 
assistance -- a positive development in itself.  The Embassy 
will continue its engagement, and MRLO officials have 
committed to securing the CBI Governor's approval for an FSAT 
visit and informing us of a suitable timeframe soon. 
BUTENIS