R 131947Z JAN 09
FM AMEMBASSY PORT AU PRINCE
TO SECSTATE WASHDC 9393

UNCLAS PORT AU PRINCE 000041 
 
 
DEPARTMENT FOR DS/IP/WHA, DS/OSAC 
 
E.O. 12958: N/A 
TAGS: ASEC AMGT APER
SUBJECT: 2008 ANNUAL OVERSEAS SECURITY ADVISORY COUNCIL 
(OSAC) CRIME AND SAFETY REPORT 
 
REF: 08 STATE 132056 
 
¶1. (U) Below is the 2008 OSAC Annual Report on Crime and 
Safety for Haiti. 
 
The Bureau of Diplomatic Security rates Port-au-Prince as 
CRITICAL for crime and political violence, due to the 
potential for these types of incidents. Haiti is unique in 
the Caribbean for its lack of tourism, development, and 
infrastructure. Thus, traditional tourist-oriented crimes 
such as pick pocketing and purse snatching remain less common 
than in neighboring Dominican Republic, Jamaica and other 
countries in the region. Another anomaly is that despite 
grinding poverty, inadequate policing, and lax gun laws, some 
studies have shown Haiti to have a lower homicide rate than 
many of its neighbors in the Caribbean and Latin America. 
There are an estimated 35,000 American citizens in Haiti, 
mostly of Haitian descent. The most frequently reported 
crimes against Americans in Port-au-Prince are carjackings, 
kidnappings, and robberies. Home invasions also remain a 
problem. While the overall number of reported incidents more 
than doubled in 2008, compared to 2007 statistics, much of 
this is likely the result of increased incident reporting by 
victims.  For example, the roughly 1300% increase in reported 
thefts did not appear to correlate with a drastic increase in 
thefts, but rather with a dramatic increase in reporting. 
Kidnappings, carjackings and home invasions remain the key 
criminal activities and concerns for Haitians and Americans 
alike in the Port-au-Prince area, where most of these 
criminal acts continue to be perpetrated by organized (or 
quasi-organized) armed criminal gangs.  Serious crime in 
Haiti's provincial towns and in rural areas is relatively 
rare. 
 
OVERALL CRIME AND SAFETY SITUATION FOR 2008 
 
SECURITY: THE FIGHT AGAINST GANGS AND CRIME 
 
In 2007 there was a three-month long offensive by the UN 
peacekeeping forces (MINUSTAH) to take back control of Cite 
Soleil, the lawless, gang-controlled slum area that had in 
recent years become the base of operations for many of the 
most notorious and active criminal gangs in Haiti. By March 
2007, MINUSTAH forces had successfully reclaimed most of Cite 
Soleil -- and had arrested or killed several of the key gang 
leaders. Those that were not caught fled to other parts of 
Port-au-Prince or out into rural parts of Haiti, where some 
were able to partially re-group and continue their criminal 
enterprises. The overall result of the Cite Soleil offensive 
was an almost immediate drop in the number of kidnapping 
incidents throughout Port-au-Prince. 
 
However the scattering of the once centralized criminal gangs 
resulted in a much less predictable pattern of activity. The 
number of home invasion related kidnappings in the more 
affluent areas of upper Port-au-Prince increased, as did the 
number of kidnappings and robberies along major streets in 
other, previously safer areas of Port-au-Prince. Also, at 
least in some cases, the victims of these gang activities 
were treated more violently, being beaten, raped and even 
killed at a rate higher than had been experienced before the 
U.N. offensive. This increased violence was a result of 
several factors, including 1) the vacuum left after the key 
gang "overlords," who regulated the kidnapping industry were 
removed by MINUSTAH, and 2) the reduction in safe house areas 
for gangsters to operate unfettered. The result was the 
emergence of a less professional, more decentralized gang 
structure, whose modus operandi was cavalier, reckless and 
less threatened by security personnel, and whose members were 
more likely to become panicked and respond violently than 
they would have as part of a more organized gang structure. 
 
During 2008, it became apparent that some of gang members had 
effectively regrouped.  One of the more notable groups 
appeared to be using safe-houses in middle and upper Delmas. 
However this group, that the media had nicknamed 'The 
Untouchables', suffered the arrest of two members and the 
loss of a safehouse in the Delmas area in late 2008, in what 
is seen as a significant victory by local law enforcement 
authorities.  However, this has not halted the gang's 
activities and they are still deemed a viable threat. 
 
A related issue is the number of gangsters who have been let 
out of jail in 2008. While at least some are believed to have 
been released due to arrangements with corrupt judges, many 
were released simply because of inadequate evidence (many 
cases were dependent on testimony of witnesses who are too 
afraid to step forward) and/or due to poorly assembled 
criminal cases. Many of the cases involving arrests of 
gangsters by UN forces ran into legal questions, since the UN 
is not a police entity with jurisdiction in criminal cases. 
As a solution to this issue, MINUSTAH forces in known gang 
areas began patrolling with a small number of HNP officers 
whose job it is to make a formal, legal arrest of gangsters 
and other criminals encountered during UN patrols. 
 
During December 2008 MINUSTAH also stepped up joint 
operations with HNP around other key areas of instability in 
Port-au-Prince, with the intention of restricting gang 
movements and increasing public confidence.  Only seven 
kidnappings were reported in December 2008; however it is too 
early to determine whether or not this operation will have a 
lasting effect. 
 
ACTIVITIES AND IMPACT OF HAITIAN NATIONAL POLICE (HNP) 
 
The HNP graduated academy classes in December 2006 (567 
graduates) and another in the November 2007 (627 graduates), 
however no academy classes graduated during 2008.  While 
still modest compared to the estimates needed to effectively 
cover Haiti, these additions to the HNP over the last couple 
of years have greatly enhanced police coverage within 
Port-au-Prince proper, where almost the entire new police 
staff was deployed. The noticeable increase in HNP presence 
around Port-au-Prince since late 2006 has been noteworthy. 
For instance, in response to the increase in decentralized 
gang activity after MINUSTAH's Cite Soleil offensive in 2007, 
HNP was able to erect vehicle checkpoints throughout the 
city, whereby they were able to conduct vehicle stops and 
inspections of suspicious vehicles or persons. Towards the 
end of 2007 these checkpoints greatly gave way to static 
police posts on the corners of major intersections and along 
major routes throughout Port-au-Prince, and this has 
continued through 2008. (Random HNP checkpoints continue as 
threat levels and crime patterns dictate.) Bolstered traffic 
units, with newly deployed motorcycles, trucks and 
all-terrain-vehicles, have also provided an added response 
capability and has assisted in a wider disbursement of HNP 
mobile officers throughout the capital. 
 
OVERALL CRIME REPORTING STATISTICS 
 
A comparative analysis of figures from various 
police/security entities operating throughout Haiti reflects 
a continuation of the trend in which reported incidents of 
crimes are grossly inaccurate and under-reported. 
 
The under reporting is due to a lack of adequate police 
presence and response capability.  By way of example, as a 
country of approximately 8.5 million people, the HNP 
currently has only about 9,000 officers total, approximately 
two-thirds of whom are deployed in the capital 
(Port-au-Prince has approximately two million residents). Due 
to this deficiency, many communities throughout Haiti simply 
do not have means to report crimes, but most experts agree 
that there isn't much crime to report in provincial towns and 
rural areas.  In addition those crimes that are reported are 
not adequately documented in any sort of standardized 
reporting format. 
 
On a more positive note, nearly five-thousand arrest warrants 
were executed during 2008.  In addition, some studies have 
shown increased confidence and respect for HNP, higher than 
many other Government of Haiti institutions.  As previously 
stated, the overall number of reported incidents more than 
doubled in 2008, compared to 2007 statistics, and this 
increase did not appear to correlate with a drastic increase 
in crime, but rather with increased in reporting by the 
victims.  Some experts feel that this increase in reporting 
is due to greater confidence in the HNP by the local 
population. 
 
KIDNAPPINGS 
 
U.S. citizens traveling to and residing in Haiti are reminded 
that greater Port-au-Prince remains a leading venue for 
criminal kidnappings of Americans, and it is still rated 
among the kidnapping capitals of the world. 
 
Most kidnappings since 2004 continue to be criminal in 
nature, as opposed to political, and the kidnappers make no 
distinctions of nationality, race, gender or age; all persons 
who are perceived to have wealth or some family connections 
with assets, both in Haiti and abroad, are vulnerable. The 
breakdown in reported kidnapping victims from 2008 is spread 
fairly evenly among men, women, and children.  While most 
cases were resolved through the payment of ransom, some 
kidnappings in 2008 were marked by physical or sexual 
assaults, and/or death. 
 
Kidnapping trends in Haiti during 2008 varied greatly during 
the calendar year, and the frequency of kidnapping decreased 
significantly during the last quarter, after Haiti was 
wracked by four sequential hurricanes and tropical storms. 
The recent decentralization of the kidnapping gangs had both 
a positive and some complicating effects.  While total 
instances of kidnappings dropped substantially over the last 
two years, the patterns became less predictable and areas of 
victimization became more widespread, creating a new set of 
challenges for police and security elements. The sharp 
decrease that occurred towards the end of 2008 is 
encouraging; however it is too early to tell if this is a 
long-term trend. 
 
The U.S. Consulate reports that 26 Americans were kidnapped 
in 2008 (as opposed to 29 Americans in 2007 and over 60 in 
2006) with a total number of reported kidnappings in Haiti to 
be 309 (as opposed to 293 in 2007 and approximately 540 in 
2006). As stated above, due to substantial under-reporting, 
the actual number of kidnappings cannot be precisely defined, 
but is likely to be somewhat higher than actually reported. 
322 kidnapping arrests were made in 2008. 
 
SHOOTINGS 
 
The prevalence of guns in Haiti remains a key security 
concern, as disarmament efforts, such as the UN's DDR program 
and the GOH's CNDDR program, have yielded only modest results 
over the past few years. 
 
Random gunfire, while down from 2006 and 2007, is still 
reported around Port-au-Prince, with sporadic reports of 
injury or death resulting from stray bullets. 
 
Robbery related shootings have continued during 2008, 
including a continuation of incidents in the more affluent 
outlying Port-au-Prince neighborhoods such as Petionville. 
This issue, as with other types of crime, is likely due to 
the scattering of gangsters displaced by the UN takeover over 
Cite Soleil. Robberies resulting in shootings have almost all 
occurred when the victim resisted their assailants. 
 
MURDERS AND LYNCHINGS 
 
There were 424 reported murders in 2008, and 70 reported 
lynchings.  It should be noted that the UN defines lynching 
as any form of extra-judicial execution - not soley hangings 
- carried out by vigilantes.  Vigilante justice has long been 
practiced in Haiti, particularly in those areas lacking 
police presence. 
 
PERSONAL ROBBERIES 
 
Armed and/or strong-arm robberies against motorists and 
pedestrians remains a concern, however reports of simple 
robberies against foreigners over the past year remain 
relatively low. 
 
During 2008 there was a continuation of armed robbery of 
pedestrians, "tap-tap" (unofficial public transportation) 
passengers, and motorists in many areas of Port-au-Prince and 
its suburbs, including more affluent Petionville. As a result 
of the increase of incidents in Petionville, HNP further 
increased police presence in the area and reports of armed 
robberies in the area again declined. 
 
RESIDENTIAL THEFT 
 
Residential theft (burglaries/ home invasions) trends over 
the past couple of years have suggested a decline in 
traditional criminal burglary and a rise in 
robbery/kidnapping. In Port-au-Prince particularly, almost 
all home invasions were conducted for the dual purpose of 
kidnapping and robbery, where in the past the focus was 
principally on robbery. 
 
Throughout 2008, as with other crimes, there was a 
continuation of home invasions in the more affluent areas of 
upper Port-au-Prince. There were several reported incidents 
involving armed men forcing entry into homes in the middle of 
the night. In many cases, evidence suggested that the houses 
targeted were selected for lacking security, and that the 
targets were surveilled in advance of the invasion. In some 
instances, it is believed the domestic staff was paid to aid 
in the facilitation of the invasions. 
 
VEHICLE THEFT 
 
Vehicle thefts in Haiti remain a serious problem in many 
areas, however they continue to be more commonly committed in 
conjunction with kidnappings/carjackings.  With a 
substantially greater police presence in 2008 it is possible 
that the overall figures for vehicle thefts were much lower 
than might have otherwise been expected in previous years. 
 
SECURITY IMPACT ON DRIVING AND TRAVEL 
 
Roads around Cite Soleil, primarily Route National #1 and #9 
are safer, but should still be considered dangerous areas and 
travel should be avoided. Care should also be used when 
traveling around Carrefour, particularly along Route National 
#2 through Martissant, as well as travel in the vicinity of 
Cite Militaire, and along La Saline Boulevard (Port Road) due 
to continuing concerns of criminal activity and proximity to 
known gang areas. Towards the last quarter of 2007 incidents 
of armed carjackings and kidnappings along Route de Frere 
increased dramatically, and though they declined in 2008, 
drivers are cautioned to avoid stopping along any portion of 
the road, especially during night time hours. In addition to 
the above recommendations, it is important to note that 
general vigilance should be used at all times on all roads in 
Haiti, as there is no area that should be considered immune 
to crime. 
 
SAFETY THREATS 
 
ROAD CONDITIONS IN HAITI 
 
Driving in Haiti requires extreme caution, particularly in 
the evening hours.  Road conditions inside and outside the 
major cities are extremely poor. Very few roads in Haiti are 
paved and of the ones that are paved, generally are in a 
state of disrepair.  A majority of the roads outside of the 
main cities are either topped with gravel or are poorly 
maintained dirt roads. Currently, there are a few road 
improvement projects underway, and though conditions have 
improved over the last few years, roadways remain hazardous. 
Traffic rules and courtesies are not observed or enforced in 
Haiti, and traffic within Port-au-Prince is often gridlocked. 
 
While piles of trash in the streets and missing manhole 
covers are increasingly less common than in recent years, 
those that persist continue to add with the ever-existent 
gaping ditches and pot holes, pedestrians, and small animals 
to further adversely impact traffic. 
 
Driving in downtown Port-au-Prince requires particular 
caution and fulltime attention.  Vendors have taken over the 
sidewalks and in some cases much of the roadway, so the only 
way for a pedestrian to pass down any given street is by 
walking in the street. During 2007 several solar-powered stop 
lights were installed throughout Port-au-Prince to aid in 
traffic control, with some positive results, and they have 
largely remained operational throughout 2008. Still, the 
ever-increasing volume of vehicles within Port-au-Prince 
makes such additions limited in their positive effect. 
 
In rural or mountainous areas, drivers should expect a lack 
of adequate guard rails, few traffic signs or road markings 
and little to no road lighting. Several bridges and portions 
of roadway were completely washed away during the hurricane 
season in 2008, and many have not yet been repaired.  Drivers 
should use caution when driving around bends, as it is common 
for locals coming the other direction to pass slower vehicles 
or otherwise drive in the middle of the road, even around 
blind turns. People traveling outside of Port-au-Prince 
should do so during daylight hours if possible, and in tandem 
with one or more other vehicles due to both the security 
situation and road conditions. While carjackings, assaults 
and armed robberies are not uncommon in many urban areas, 
they are less common in the countryside. 
 
Drivers should be conscious that accidents in general can 
draw angry and potentially violent crowds in a very short 
period of time and it is recommended that anyone involved in 
an accident proceed directly to a safe place (e.g. police 
station) to resolve the situation.  Remaining at the scene of 
an accident is considered to be a hazard to one's health and 
well-being. 
 
Drivers should also take note of added safety risks during 
the rainy season (April through November), when roadways can 
become impassable quickly, thus creating a hazardous 
condition for the traveler.  The mountainous areas pose even 
greater challenges to road travel due to weather conditions 
frequently involving rain and foggy conditions.  The narrow, 
unpaved roads are also blocked by muddy surface conditions, 
causing unsafe driving conditions. 
 
PUBLIC TRANSPORTATION 
 
The local transport known as "tap taps" are the primary form 
of public transportation for most Haitians. The use of these 
public tap taps by westerners should be considered dangerous, 
however, as robberies and accidents are common. 
 
NATURAL DISASTERS 
 
Haiti, like most Caribbean countries, can be affected by 
hurricanes and other storms.  Hurricane season runs from 
approximately June 1 - November 30 each year. Driving during 
these times should be considered extremely risky.  Due to 
severe deforestation of the mountains even modest rains can 
cause flash flooding and other life-threatening hazards. 
 
During 2008 Haiti was adversely affected by four severe 
tropical storms and hurricanes that resulted in severe 
flooding and washed out roads in many areas. Approximately 
800 deaths were reported in conjunction with these storms, 
primarily in Gonaives in the Artibonite department, and along 
the southern shores.  The storm damage is estimated by the 
World Bank to be one billion USD. 
 
Earthquakes, while much less common in occurrence than 
hurricanes, have affected Haiti intermittently over the 
years. Because Haiti is located directly over two separate 
fault lines, a significant seismic event, such as the one 
that occurred last in 1842 (approximately 5,000 killed) would 
likely cause moderate to catastrophic damage in some areas of 
Haiti, predominantly the built up urban areas. Due to the 
length of time that has passed since the last major 
earthquake, some experts feel that Haiti might be due for a 
major one soon. 
 
POST-SPECIFIC CONCERNS 
 
While most people in Haiti are friendly and peaceful, 
travelers to Haiti are reminded of the potential for 
spontaneous protests and public demonstrations, especially in 
Port-au-Prince, which can occur at any time, day or night, 
and may result in violence. American citizens are advised to 
take common sense precautions and avoid any event where 
crowds may congregate.  Visitors and residents must remain 
vigilant due to the absence of an effective police force in 
much of Haiti; the potential for looting; the presence of 
intermittent roadblocks set by armed gangs or by the police; 
and the possibility of random violent crime, including 
carjacking and assault.  Kidnapping for ransom also remains a 
serious threat. 
 
Americans traveling in Haiti should also take special care 
and attention to ensure they do not become stranded in remote 
regions or accidentally enter certain area deemed unsafe, 
especially within Port-au-Prince. 
 
MEDICAL EMERGENCIES 
 
Medical services in Haiti are below US standards. Emergency 
medical care, while available in Port-au-Prince, is virtually 
non-existent outside the city. The Embassy uses the CDTI 
Hospital (tel 2244-7200) and the Hospital du Canape Vert (tel 
2244-1052 or 2244-1053) for emergency care. However, due to 
limited availability of many types of specialists, it is 
recommended that those visiting Port-au-Prince carry medical 
evacuation insurance. 
 
AIR AMBULANCE SERVICES 
 
There are several air ambulance companies based in the United 
States that service Haiti - National Air Ambulance (Ft. 
Lauderdale, FL) 1-800-327-3710, Air Ambulance Networks 
1-800-327-1966, Air Ambulance Professionals 1-800-752-4195. 
 
The Department of State strongly urges Americans to consult 
with their medical insurance company prior to traveling 
abroad to confirm whether their policy applies overseas and 
whether it will cover emergency expenses such as medical 
evacuation. U.S. medical insurance plans seldom cover health 
costs incurred outside the United States unless supplemental 
coverage is purchased. Further, U.S. Medicare and Medicaid 
programs do not provide payment for medical services outside 
the United States. However, many travel agents and private 
companies offer insurance plans that will cover health care 
expenses incurred overseas, including emergency services such 
as medical evacuations. 
 
Useful information on medical emergencies abroad, including 
overseas insurance programs, is provided in the Department of 
State's Bureau of Consular Affairs brochure, "Medical 
Information for Americans Traveling Abroad," available via 
the Bureau of Consular Affairs home page. 
 
Additional Health Information: 
 
CDC International Traveler's hotline - (404) 332-4559, 
http://www.cdc.gov. 
 
For international treatment and medical insurance: AEA 
International, (206) 340-6000. 
 
Air ambulance service (recommended for severe injuries or 
illnesses best treated in the U.S): AEA International, (800) 
752-4195. 
 
 
REFERENCE INFORMATION 
 
FOR BACKGROUND INFORMATION ON HAITI OR FOR INFORMATION ON HOW 
TO AVOID BECOMING A VICTIM PLEASE REFER TO THE STATE 
DEPARTMENT'S "COUNTRY BACKGROUND NOTES," "CONSULAR 
INFORMATION SHEET," AND "TRAVEL WARNING INFORMATION" LOCATED 
ON THE STATE DEPARTMENT WEBSITE (WWW.STATE.GOV). 
 
OSAC HAITI COUNTRY COUNCIL 
 
There is an active OSAC Country Council in Haiti.  All U.S. 
private sector organizations active in Haiti are encouraged 
to attend meetings.  For more information, please contact the 
Regional Security Office at U.S. Embassy Port-au-Prince, or 
visit http://portauprince.osac.org. 
 
CONTACT INFORMATION FOR US EMBASSY 
 
Regional Security Office: 2229-8061 
Consular Section: 2229-8000 
Marine Security Guard: 2229-8122 
 
American citizens are strongly encouraged to register at the 
American Citizens Services section at the Consulate, located 
at Tabarre #41, Tabarre, Haiti. 
 
 
SANDERSON