VZCZCXYZ0001
RR RUEHWEB

DE RUEHAM #2704/01 1761037
ZNR UUUUU ZZH
R 251037Z JUN 07
FM AMEMBASSY AMMAN
TO RUEHC/SECSTATE WASHDC 9237
INFO RUEKJCS/SECDEF WASHDC
RUCPDOC/USDOC WASHDC
RHEBAAA/USDOE WASHDC
RUEAHLC/DEPT OF HOMELAND SECURITY WASHINGTON DC
RUEATRS/DEPT OF TREASURY WASHDC
RUEWMCS/US CUSTOMS AND BORDER PROTECTION WASHINGTON DC
RUEPWJF/HQ BICE WASHINGTON DC
RUEAIIA/CIA WASHDC
RULSJGA/COGARD WASHDC

UNCLAS AMMAN 002704 
 
SIPDIS 
 
SENSITIVE 
SIPDIS 
 
STATE FOR ISN/ECC, DS, PM, NEA 
DOC FOR L. HOWE, D. CREED 
US COAST GUARD FOR USCG ACTIVITIES/MIO EUROPE 
US CUSTOMS FOR J. GOUGE, R. Watt, W. LAWRENCE 
USDOE/NNSA FOR T. PERRY, P. ROBINSON, D. TYNAN 
 
E.O. 12958: N/A 
TAGS: ETTC MNUC PARM PREL MASS KNNP PGOV JO
SUBJECT:  THE JORDAN EXBS PROGRAM:  DON'T FIX WHAT ISN'T BROKEN 
 
¶1.  (U) SENSITIVE BUT UNCLASSIFIED, PROTECT ACCORDINGLY.  NOT FOR 
INTERNET DISTRIBUTION. 
 
¶2.  (SBU) Summary: Over the past two years, the EXBS program in 
Jordan has helped to facilitate the safe passage of goods and people 
through commercial portals in Jordan, and to deliver key training 
and equipment to a close U.S. ally in a dangerous region.  These 
successes were due in large part to the diligent work of EXBS 
Advisor coordinating through the U.S. interagency process with 
several agencies represented at Post, and with 13 different 
Jordanian government agencies and organizations in a border security 
environment in which Jordanian Customs plays a supporting, instead 
of a leading, role. 
 
¶3.  (SBU) Despite efforts to enhance the role Customs plays, the 
appointment of a former military officer as the new Director General 
of Jordan Customs indicates that the GoJ's intelligence and security 
services, as well as military forces will continue to dominate 
activities related to border security as they always have.  As 
State/ISN prepares to transition to a new advisor for EXBS Jordan, 
representatives of relevant sections and agencies on Post's Country 
Team (including those on Post's Counterterrorism Working Group and 
Law Enforcement Working Group) firmly believe that EXBS program 
management should stay the course with an EXBS Advisor in Jordan 
whose primary skill sets include expertise in intelligence and 
military operations and concepts.  The Advisor should also have deep 
experience in the interagency environment.  Expertise in traditional 
law enforcement activities would be an additional asset, but the 
former abilities are essential.  Post management shares this 
assessment.  End Summary. 
 
¶4.  (SBU) Background: The Export Control and Border Security Program 
(EXBS) was established in Jordan in 2005, and over the past two 
years has made significant strides in assisting the GOJ in 
facilitating the movement of goods and people through commercial 
portals, a process that involves 13 different agencies and 
organizations.  This success was achieved through an interagency 
effort - State, Commerce, Energy, and DHS - that promoted Jordanian 
adoption of a National Control List, preliminary work on a national 
export control law based on "the Malta model," acceptance of the 
Megaports Initiative, and a wide variety of training at the basic 
and intermediate levels. 
 
The Major Players in Border Security 
------------------------------------ 
 
¶5.  (SBU) While these accomplishments were achieved, Jordan's 
essential operating environment at its ports of entry remains 
constant.  Four stakeholder organizations manage all activities in 
the commercial portals.  These same four also administer security 
along national borders.  They are the General Intelligence 
Department (GID), the Jordan Armed Forces (JAF), the Public Security 
Directorate (PSD), and Jordan Customs, which, despite being a 
natural counterpart for EXBS programs, has the least influence.  In 
terms of operational oversight, GID has preeminence within the 
portals, and is the major player along the borders, although the 
role of immediate execution and border security is the purview of 
the JAF and in limited locations, the PSD.  Jordan intends to 
militarize the border security mission in the near future. 
 
¶6.  (SBU) Significant military assistance funds have been programmed 
toward border security improvements for the JAF, which will make 
Jordan a regional leader in border security initiatives and concept 
implementation.  Nevertheless, specialized support and law 
enforcement roles will still be executed by the GID and PSD. 
Customs will have almost no role along the borders except in a 
limited fashion and related to traditional counter-smuggling 
operations.  The small operational footprint of Customs along the 
borders will be significantly subordinated to the authority, 
missions, and operational execution of the JAF, GID, and PSD.  For 
example, state-of-the-art technology that can leverage border 
security will be almost exclusively the responsibility of the JAF 
and GID.  Some operational tasks will likely be given to PSD, but 
these will relate to law enforcement, defense in depth, and 
protection of interior lines of movement and resupply. 
 
Customs at the Bottom of the Bunch 
---------------------------------- 
 
¶7.  (SBU) As part of this border security evolution, PSD is expected 
to revert to concentration on security in/at the portals.  The first 
face any person or shipment will meet crossing into Jordan will be 
that of the PSD.  Civilian functions in the portals will come under 
Customs; military or law enforcement functions will be the 
responsibility of PSD.  In this pairing, PSD is the clear lead 
agency.  GID will be strongly but discreetly present, and the JAF 
will effectively be in charge six inches on either side of a portal. 
 While many GOJ officials have expressed the desire to create "one 
face at the border," it is probable that this face will be on a body 
wearing a PSD uniform but representing the GID and/or working in 
very close coordination with it.  The JAF will continue, in close 
support of PSD and GID, its traditional role as the primary steward 
of Jordan's cohesive defense.  Additionally, historical concerns 
about corruption in the ranks of the Customs service will continue 
to flavor the private opinions and perceptions of the three lead 
organizations, relegating Customs to the sidelines. 
 
¶8.  (SBU) The progressive, reform-minded former Director General 
(DG) of Customs experienced some success in leading Jordan Customs 
toward becoming an excellent professional service in which personal 
advancement was based on merit.  During his tenure, Jordan Customs 
appeared poised to become an exemplary WCO-compliant service and a 
regional leader among neighboring Customs services.  It remains to 
be seen if this momentum will continue under the new DG who is a 
retired general officer with understandable links and loyalty to 
JAF. 
 
The Future of EXBS in Jordan 
---------------------------- 
 
¶9.  (SBU) Post appreciates the strong support provided to the EXBS 
program from Washington-based agencies and offices.  Jordan's 
political stability and steady economic growth make its position in 
a turbulent region unique.  As a result, Post believes that Jordan's 
particular needs and organizational characteristics should be taken 
into consideration to the degree possible by USG program managers in 
the fields of security assistance, law enforcement cooperation, and 
counter-terrorism and counter-proliferation efforts.  In the 
specific field of EXBS, what has worked well in other countries may 
not be the best fit for Jordan where agencies other than Customs 
take the lead in defense in depth of national borders, 
counter-proliferation, control of strategic commodities, and border 
security.  In this context, relevant interagency representatives on 
Post's Country Team agree the time is not right to reshape the focus 
of the EXBS program. 
 
¶10.  (SBU)  To maintain programmatic impact, EXBS should ensure that 
its advisor has the ability to engage effectively the Jordanian 
stakeholders who do take the lead in strategic policy execution in 
counter-proliferation and border security -- namely, the GID, JAF, 
and PSD.  Likewise, the advisor must be able to work with more 
traditional Embassy contacts such as Ministry of Industry and Trade 
officials, who administer licensing of controlled commodities.  To 
do both requires not only technical expertise on the part of the 
EXBS advisor, but also diplomatic and liaison skills. 
 
¶11.  (SBU) The EXBS assistance program to Jordan has been a huge 
success, and been well planned and coordinated with the appropriate 
members of the Country Team.  It has been executed in a manner that 
facilitates sustained improvement in Jordan while ensuring that USG 
resources are wisely spent on those organizations wielding the 
greatest influence in the war on terror and illicit proliferation of 
WMD and related technology.  To continue this success, EXBS's 
advisor in Jordan must be conversant with and have expertise in 
intelligence and military organizations, operations, and concepts in 
order to best advise the GoJ.  With this essential expertise, the 
advisor can establish credibility and interact effectively with both 
U.S. and Jordanian practitioners, and in turn effectively position 
the program to make its best possible contribution to the overall 
effort.  Expertise in traditional law enforcement would be an 
additional asset, but the former skill set is essential. 
 
Visit Amman's Classified Web Site at 
http://www.state.sgov.gov/p/nea/amman/ 
 
 
HALE