Multiple U.S. Agencies Provided Billions of Dollars to Train and Equip Foreign Police Forces
Gao ID: GAO-11-402R April 27, 2011Over the past few years, the United States has increased its emphasis on training and equipping foreign police as a means of supporting a wide range of U.S. foreign-policy goals, including countering terrorists overseas and stopping the flow of narcotics to the United States. Funding for these activities has increased significantly since we last reported on these issues in 1992. In response to congressional request, this report provides estimates of the funding the U.S. government provided for activities to train and equip foreign police, hereafter referred to as "police assistance," during fiscal year 2009. We defined "police" as all law-enforcement units or personnel with arrest, investigative, or interdiction authorities.
During fiscal year 2009, seven federal agencies and 24 components within them funded or implemented police-assistance activities to support their counternarcotics, counterterrorism, and anticrime missions. Five of these agencies provided an estimated $3.5 billion for police assistance to 107 countries in fiscal year 2009. This amount compares to about $180 million in inflationadjusted dollars provided for these efforts in 1990, when we last compiled a similar inventory. DOD and State provided an estimated 97 percent of all U.S. government funds ($3.4 billion) for police assistance; DOD provided about 55 percent of the total and State about 42 percent. DOE, USAID, and DOJ provided the remaining 3 percent of U.S. funds for activities such as procuring nucleardetection devices and training law-enforcement officers on their use, establishing community-based police training programs, and developing terrorist crime-scene investigation capabilities. Afghanistan, Iraq, Pakistan, Mexico, Colombia, and the Palestinian Territories each received an estimated $100 million or more in police assistance. Both DOD and State provided funds for police assistance in 39 of the 107 recipient countries. In a subsequent review, we plan to assess how the two agencies coordinate efforts in these 39 countries to avoid duplication and overlap.
GAO-11-402R, Multiple U.S. Agencies Provided Billions of Dollars to Train and Equip Foreign Police Forces
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GAO-11-402R:
United States Government Accountability Office:
Washington, DC 20548:
April 27, 2011:
The Honorable John F. Tierney:
Ranking Member:
Subcommittee on National Security, Homeland Defense and Foreign
Operations:
Committee on Oversight and Government Reform:
House of Representatives:
Subject: Multiple U.S. Agencies Provided Billions of Dollars to Train
and Equip Foreign Police Forces:
Dear Mr. Tierney:
Over the past few years, the United States has increased its emphasis
on training and equipping foreign police as a means of supporting a
wide range of U.S. foreign-policy goals, including countering
terrorists overseas and stopping the flow of narcotics to the United
States. Funding for these activities has increased significantly since
we last reported on these issues in 1992.[Footnote 1]
In response to your request, this report provides estimates of the
funding the U.S. government provided for activities to train and equip
foreign police,[Footnote 2] hereafter referred to as "police
assistance," during fiscal year 2009. We defined "police" as all law-
enforcement units or personnel with arrest, investigative, or
interdiction authorities. We analyzed documents and interviewed
officials of the Departments of State (State), Defense (DOD), Energy
(DOE), Justice (DOJ), Homeland Security (DHS), the Treasury, and the
U.S. Agency for International Development (USAID). We also reviewed
past GAO reports, relevant legislation, and congressional budget
submissions. We limited our review to fiscal year 2009 because of the
limited availability of comparable funding data from the agencies in
other years. Our estimate of U.S. funds provided for this purpose
incorporates budget estimates, appropriations, obligations,
allotments, and expenditures because the agencies did not provide
uniform funding data. Enclosure I provides more information on our
scope and methodology.
We conducted our work from December 2009 to April 2011 in accordance
with all sections of GAO's Quality Assurance Framework that are
relevant to our objectives. The framework requires that we plan and
perform the engagement to obtain sufficient and appropriate evidence
to meet our stated objectives and to discuss any limitations in our
work. We believe that the information and data obtained, and the
analysis conducted, provide a reasonable basis for any findings and
conclusions.
Results in Brief:
During fiscal year 2009, seven federal agencies and 24 components
within them funded or implemented police-assistance activities to
support their counternarcotics, counterterrorism, and anticrime
missions. Five of these agencies provided an estimated $3.5 billion
for police assistance to 107 countries in fiscal year 2009. This
amount compares to about $180 million in inflation-adjusted dollars
provided for these efforts in 1990, when we last compiled a similar
inventory. DOD and State provided an estimated 97 percent of all U.S.
government funds ($3.4 billion) for police assistance; DOD provided
about 55 percent of the total and State about 42 percent. DOE, USAID,
and DOJ provided the remaining 3 percent of U.S. funds for activities
such as procuring nuclear-detection devices and training law-
enforcement officers on their use, establishing community-based police
training programs, and developing terrorist crime-scene investigation
capabilities.[Footnote 3] Afghanistan, Iraq, Pakistan, Mexico,
Colombia, and the Palestinian Territories each received an estimated
$100 million or more in police assistance. Both DOD and State provided
funds for police assistance in 39 of the 107 recipient countries. In a
subsequent review, we plan to assess how the two agencies coordinate
efforts in these 39 countries to avoid duplication and overlap.
Background:
U.S. legal authorization to train and equip foreign police forces has
evolved over the last 50 years. The United States first funded police-
training programs in other countries in the 1950s, and by 1968 the
United States was training police forces in 34 countries in criminal
investigation, patrolling, interrogation and counterinsurgency
techniques, as well as riot control, weapons use, and bomb disposal.
In the early 1970s, Congress expressed concern over the apparent
absence of clear guidelines for supporting foreign police forces and
the use of funds to support repressive regimes that committed human
rights' abuses. Consequently, in 1974, Congress amended the Foreign
Assistance Act to prohibit the use of foreign assistance for training
or advice, or any financial support for police, prisons, or other law-
enforcement forces for any foreign government. Congress provided
certain exceptions, such as activity of the Drug Enforcement
Administration (DEA) and the Federal Bureau of Investigation (FBI)
related to crimes of the nature of which are unlawful in the United
States.[Footnote 4] In 1985, Congress added additional exceptions to
this prohibition. For example, Congress added the exception for
assistance provided to a country that has a longstanding democratic
tradition, does not have standing armed forces, and does not engage in
a consistent pattern of gross violations of human rights. In the
1990s, Congress also added various exceptions such as assistance
provided to police forces in connection with their participation in
the regional security system of the eastern Caribbean states. Other
exceptions added in the 1990s include exceptions to support customs
authorities and personnel and to reconstitute civilian police
authority and capability in postconflict nations.
In addition to these statutory exceptions, annual appropriations acts
have authorized the use of funds for certain police-assistance
activities in certain circumstances. For example, in fiscal year 2005,
and in subsequent years, Congress authorized funds for community-based
police assistance,[Footnote 5] notwithstanding the prohibition against
police training contained in the Foreign Assistance Act. Enclosure II
provides more information on the legal authorities under which the
United States provides funding to train foreign police forces.
We last reported on the extent and cost of U.S. training and
assistance to foreign police forces in March 1992.[Footnote 6] We
identified 125 countries that received police training and assistance
during fiscal year 1990 at a cost of about $180 million.[Footnote 7]
The State Department provided about $85 million (47 percent) of these
funds; DOD about $65 million (36 percent); and other agencies about
$31 million (17 percent). The 1992 report noted that U.S. departments
and agencies did not maintain data or regularly report on the extent
or cost of assistance they provided to foreign police forces using
their own appropriated funds.
Multiple U.S. Agencies Provided about $3.5 Billion for Police
Assistance in More than 100 Countries during Fiscal Year 2009:
Multiple Agencies and Their Subunits Provided Police Assistance:
In 2009, seven agencies and more than 24 organizational units within
the agencies provided police assistance to sustain the
counternarcotics, counterterrorism, anticrime, and other civilian
policing efforts of police forces around the world (see table 1).
Table 1: U.S. Departments, Agencies, and other Organizational Units
that Provided Police Assistance in Fiscal Year 2009:
Agency: DOD;
Unit: Deputy Assistant Secretary for Counternarcotics and Global
Threats;
Unit: Five Combatant Commands: Africa, Central, European, Pacific,
Unit: Southern; Joint Interagency Task Force-West;
Unit: Defense Threat Reduction Agency.
Agency: DOE;
Unit: National Nuclear Security Administration.
Agency: DHS;
Unit: Customs and Border Protection;
Unit: Federal Law Enforcement Training Center;
Unit: Immigration and Customs Enforcement.
Agency: DOJ;
Unit: Criminal Division;
Unit: Bureau of Alcohol, Tobacco, Firearms, and Explosives;
Unit: DEA;
Unit: FBI;
Unit: U.S. Marshals Service.
Agency: State;
Unit: Bureau of Diplomatic Security;
Unit: Bureau of International Security and Nonproliferation;
Unit: Bureau of International Narcotics and Law Enforcement Affairs;
Unit: Office of the Coordinator for Counterterrorism.
Agency: Treasury;
Unit: Internal Revenue Service; Office of Technical Assistance.
Agency: USAID;
Unit: Bureau of Democracy, Conflict, and Humanitarian Assistance;
Unit: Multiple regional bureaus.
Source: GAO analysis of DOD, DOE, DOJ, State, Treasury, and USAID
information.
[End of table]
These agencies and subunits are organized in a variety of ways to
provide police assistance. At State, for example, bureaus responsible
for developing and coordinating programs to support U.S. foreign-
policy goals and objectives manage the assistance. State's Bureau of
International Narcotics and Law Enforcement Affairs (INL) manages
counternarcotics and other anticrime activities. The Bureau of
Diplomatic Security implements specialized antiterrorist training in
conjunction with the Office of Counterterrorism, which develops goals
and objectives and establishes priorities. The Bureau of International
Security and Nonproliferation leads and funds border security
activities that include police assistance. Several agencies at DOJ,
including the Bureau of Alcohol, Tobacco, Firearms, and Explosives
(ATF), the FBI, and DEA, have individual offices responsible for
international training.
DOD and State Provided Almost All of the Estimated $3.5 Billion in
U.S. Funds for Police Assistance:
Based on data provided primarily by State, DOD, DOE, USAID, and DOJ,
we estimate the U.S. government provided about $3.5 billion for police
assistance in fiscal year 2009. DOD and State provided an estimated 97
percent, or about $3.4 billion, of the estimated total amount (see
figure 1). DOD provided an estimated $1.9 billion, or about 55 percent
of the total funds, while State provided almost $1.5 billion, or about
42 percent of the total. DOD police assistance was supported by a
combination of funds from the Afghanistan Security Forces Fund (ASFF),
the Iraq Security Forces Fund (ISFF), the Pakistan Counterinsurgency
Fund, and operations and maintenance funds. DOD based its funding
estimates on appropriations, allotments, or obligations, depending on
the source of the funds. DOD, in some cases, did not separate out
police assistance that included both military and civilian police
forces. State's police assistance was supported by a combination of
funds from the International Narcotics Control and Law Enforcement
(INCLE); the Nonproliferation, Antiterrorism, Demining, and Related
Programs; and the Assistance for Eastern Europe, Eurasia, and Central
Asia accounts. State based its funding estimates on appropriations
data for these accounts. We excluded any infrastructure costs from the
DOD and State submissions because such costs are not typical of most
police-assistance activities.
Figure 1: Estimated Funding for Police Assistance by Agency, Fiscal
Year 2009:
[Refer to PDF for image: pie-chart]
DOD: 55.3% ($1.914 billion);
State: 41.9% ($1.45 billion);
DOE: 1.4% ($48 million);
USAID: 1.1% ($37 million);
DOJ: 0.3% ($11 million).
Source: GAO analysis of DOD, State, DOE, USAID, and DOJ data.
Note: Funding estimates include State appropriations, USAID
allotments, DOD appropriations and obligations, and DOJ expenditures.
DOD funding includes assistance provided to some military personnel.
DOE reported an additional $1.4 million not included in the DOE total
in response to a comment from State.
[End of figure]
Three other agencies--DOE, USAID, and DOJ--provided smaller amounts of
funds for police assistance in fiscal year 2009.
DOD and State Funds Primarily Supported Three Regions:
About $3 billion or 91 percent of DOD and State's estimated funds
supported police assistance in three regions--South and Central Asia,
the Western Hemisphere, and the Near East. Five countries and one area
in the three regions--Afghanistan, Iraq, Pakistan, Mexico, Colombia,
and the Palestinian Territories--received more than $100 million each
in police assistance in fiscal year 2009 (see figure 2). In South and
Central Asia, Afghanistan received an estimated $1.6 billion in police
assistance from DOD and State (about 87 percent of the regional
total), while Pakistan received an estimated $162 million. In the
Western Hemisphere, an estimated 82 percent of the funds supported
counternarcotics missions in Mexico ($327 million) and Colombia ($205
million). In the Near East, Iraq and the Palestinian Territories
received an estimated 92 percent of the regional total, with Iraq
receiving an estimated $390 million in police assistance and the
Palestinian Territories $128 million.
Figure 2: Estimated DOD and State Funding for Police Assistance, by
Region, Fiscal Year 2009:
[Refer to PDF for image: horizontal bar graph and pie-chart]
Estimated DOD and State Funding for Police Assistance, by Region,
Fiscal Year 2009:
Region: South and Central Asia:
Afghanistan: $1.609 billion;
Pakistan: $162 million;
9 other countries: $83 million.
Region: Western Hemisphere:
Mexico: $327 million;
Columbia: $205 million;
28 other countries: $114 million.
Region: Near East:
Iraq: $390 million;
Palestinian Territories: $128 million;
10 other countries: $45 million.
Region: Europe and Eurasia:
17 countries: $85 million.
Region: Africa:
28 countries: $30 million.
Region: East Asia and Pacific:
9 countries: $27 million.
DOD and State Funds Primarily Supported Three Regions:
South and Central Asia, $1.853 billion: 55%;
Western Hemisphere, $646 million: 19%, $3,062
Near East, $563 million: 17%;
Three region total: $3,062 billion: 91%;
Europe and Eurasia, $85 million: 2.5%;
Africa, $85 million: 0.9%;
East Asia and Pacific, $27 million: 0.8%;
Other[A], $160 million: 4.8%.
Source: GAO analysis of DOD and State data.
[A] "Other" includes funding that supported multiple countries and
regions.
[End of figure]
DOD and State provided relatively few funds for police assistance in
the remaining three regions during fiscal year 2009. For example, the
agencies provided less than $1 million per country for police
assistance in 23 of the 28 recipient countries in the Africa region;
18 received under $100,000 in assistance, primarily from DOD. Sudan
received the largest amount of police assistance in Africa--an
estimated $11.1 million from State--followed by Kenya with about $5.7
million and the Democratic Republic of the Congo with about $4.4
million. In the Europe and Eurasia region, Kosovo, and Georgia
received the largest amounts--an estimated $34 million and about $25.6
million, respectively. The Philippines and Indonesia received the most
police assistance in the East Asia and Pacific region--an estimated
$11 million and $10.5 million, respectively. Enclosure III provides
more information on State and DOD funds by region and country.
Both DOD and State Provided Assistance to 39 Countries:
Our analysis of DOD and State funding data shows that DOD and State
together provided an estimated $2.6 billion for police assistance in
39 of the 107 countries that received police assistance. In
comparison, 40 countries received an estimated $6.9 million in police
assistance from DOD only, and 28 countries received an estimated
$560.4 million in assistance from State only (see figure 3).[Footnote
8] In a subsequent review, we plan to assess how the two agencies
coordinate their efforts to avoid duplication and overlap.
Figure 3: Countries Receiving DOD and State Police Assistance, Fiscal
Year 2009:
[Refer to PDF for image: horizontal bar graph and pie-chart]
DOD and State: Number of Countries Where Police Assistance Was
Provided, by Region (total = 107):
DOD and State:
Western Hemisphere: 11;
Africa: 8;
Europe: 3;
Near East: 5;
South and Central Asia: 8;
East Asia and the Pacific: 4;
Total: 39;
DOD only:
Western Hemisphere: 14;
Africa: 18;
Europe: 4;
Near East: 0;
South and Central Asia: 0;
East Asia and the Pacific: 4;
Total: 40.
State only:
Western Hemisphere: 5;
Africa: 2;
Europe: 10;
Near East: 7;
South and Central Asia: 3;
East Asia and the Pacific: 1;
Total: 28.
Funding Distribution by Agency and Country:
Funding subtotals:
$2.6 billion for DOD and State funds in 39 countries;
$560 million for only State funds in 28 countries;
$6.9 million for only DOD funds in 40 countries;
$160 million, other[A].
Source: GAO analysis of DOD and State data.
[A] "Other" includes funding that supported multiple countries and
regions.
[End of figure]
About 90 percent of DOD funds provided assistance to police forces in
two countries, Afghanistan and Iraq. For Afghanistan, DOD estimated it
provided about $1.3 billion through the Afghanistan Security Forces
Fund (ASFF) to train and equip the Afghan National Police to conduct
and sustain independent law enforcement, counterterrorism,
counterinsurgency, and counternarcotics operations. However, the
majority of the funding for training, equipping, and infrastructure
support for counternarcotics efforts came from the DOD counterdrug
account, according to DOD officials. Activities included training
police on investigating crimes, using special weapons, and operating
and maintaining communications equipment. For Iraq, DOD estimated
providing about $377 million in ISFF funds to State to help Iraqi
police attempt to reach minimum essential capabilities and assume
responsibility for the country's internal security.[Footnote 9]
In comparison, about 90 percent of State's funds supported 67
countries. Mexico and Afghanistan received the greatest amount of
State assistance: an estimated $327 million and $259 million
respectively. State INCLE funds for Mexico supported the Mérida
Initiative, which delivered training and equipment to help address the
problem of increasing crime and violence in Mexico and Central
America. Activities included providing aircraft and boats to support
interdiction efforts, and technical advice and training to strengthen
the institutions of justice and law enforcement.[Footnote 10] Funds
for Afghanistan were used primarily to provide training to specialized
units of the Counternarcotics Police of Afghanistan to disrupt and
reduce the supply of narcotics, investigate crimes, and work with
prosecutors. See figure 4 for the top 10 DOD and State recipient
countries.
Figure 4: Top 10 Countries That Received Police Assistance From State
and/or DOD, Fiscal Year 2009:
[Refer to PDF for image: 3 horizontal bar graphs]
Received DOD Assistance:
Afghanistan: $1.35 billion;
Iraq: $377 million;
Pakistan: $80 million;
Colombia: $16 million;
Kazakhstan: $11 million;
Kyrgyzstan: $10 million;
Lebanon: $10 million;
Bangladesh: $8 million;
Philippines: $7 million;
Paraguay: $4 million.
Received State Assistance:
Mexico: $327 million;
Afghanistan: $259 million;
Colombia: $189 million;
Palestinian Territories: $128 million;
Pakistan: $81 million;
Peru: $43 million;
Kosovo: $34 million;
Kyrgyzstan: $31 million;
Georgia: $25 million;
Bolivia: $22 million.
Received Both DOD and State Assistance:
Afghanistan: $1.609 billion;
Pakistan: $161 million;
Colombia: $205 million;
Kyrgyzstan: $41 million.
Source: GAO analysis of DOD and State data.
End of figure]
In addition to Afghanistan, 3 of the top 10 recipients of police
assistance in fiscal year 2009--Pakistan, Colombia, and Krygyzstan--
received assistance from both DOD and State (see figure 4). State
provided an estimated $189 million and DOD provided an estimated $16
million for police assistance in Colombia. Both agencies funded
counternarcotics-related activities. DOD funded a variety of training
courses, such as UH-60 flight simulation and counterdrug operations,
while State provided funds for activities such as aviation training to
facilitate coca-eradication programs. DOD and State provided about $81
million and $80 million, respectively, for Pakistan in fiscal year
2009. DOD provided counternarcotics and other training and equipment
to Pakistan's Frontier Corps. State provided training to law-
enforcement units including the Frontier Corps, the Frontier
Constabulary, and the Antinarcotics Force for activities such as
helping Pakistan secure its border with Afghanistan against
terrorists, narcotics traffickers, and other criminal elements. For
Kyrgyzstan, State provided an estimated $31 million for security-
sector reform and antiterrorism training, while DOD provided about $10
million for counternarcotics-related communications, training, and
equipment.
Three Additional Agencies Provided About 3 Percent of the Funds:
Three other agencies provided about 3 percent of the estimated funds
for police assistance in fiscal year 2009.
* DOE reported obligations of about $48 million for the Second Line of
Defense program, primarily through its National Nuclear Security
Administration, Defense Nuclear Nonproliferation Appropriation. The
Second Line of Defense Program provides nuclear detection devices and
trains foreign border security and other law-enforcement officials on
how to use the equipment. The Second Line of Defense program provided
equipment and training to 24 participating foreign governments, as
well as the Vienna International Center in Austria. Countries that
signed memoranda of understanding or agreements in 2009 with the
Second Line of Defense program included Bangladesh, Djibouti, Israel,
Jordan, Kenya, and Poland. DOE additionally reported obligations of
$1.4 million for the International Nonproliferation Export Control
Program, primarily through its Defense Nuclear Nonproliferation
Appropriation. This program works in coordination with and is
partially funded by State. DOE partners with foreign governments to
train customs inspectors and other enforcement officials to recognize
dual-use commodities used to manufacture weapons of mass destruction
and their delivery systems in order to prevent illicit smuggling.
During 2009, DOE collaborated with 35 countries including China, South
Africa, and Ukraine through this program.
* USAID reported using an estimated $37 million in Economic Support
Funds and Development Assistance funds for civilian police training.
Police-assistance activities in 2009 included training the Colombian
National Police to prevent and respond to human-rights violations;
training the police and local communities in Guatemala to work
together to prevent crime; and working with Mexican law-enforcement
agencies to establish restitution services for victims; and, in
conjunction with the U.S. Marshals Service, train law-enforcement
agencies to protect witnesses.
* DOJ reported using funds for police-assistance activities. For
example, the FBI estimated expenditures of about $11 million in fiscal
year 2009 for a variety of training activities, including classes
offered in Islamabad, Pakistan; Abuja, Nigeria; Santiago, Chile; and
Quantico, Virginia; to teach foreign police how to investigate
terrorist crime scenes. DOJ also received about $39 million from
State's INL Bureau for the International Criminal Investigative
Training Assistance Program (ICITAP). ICITAP works in partnership with
State and other agencies to develop professional and accountable law-
enforcement institutions that protect human rights, combat corruption,
and reduce the threat of transnational crime and terrorism. ICITAP
focuses on police, forensics, corrections, and border security
development.
* Two other agencies--DHS and Treasury--received funds primarily from
State to provide police assistance. For example, State's INL Bureau
provided about $6 million to DHS and about $600,000 to Treasury in
fiscal year 2009 for activities such as providing training at the
International Law Enforcement Academies (ILEA) in Budapest, Hungary;
Bangkok, Thailand; Gaborone, Botswana; San Salvador, El Salvador; and
Roswell, New Mexico. The ILEAs received about $16 million from State
to provide training to mid-level and senior law-enforcement officers
selected by the U.S. embassies. Classes were provided in three
categories: general training classes of 6 to 8 weeks, shorter classes
to enhance skills on specialized topics, and seminars and conferences.
Instructors from participating U.S. agencies traveled to the ILEAs to
provide the training. Treasury's Office of Technical Assistance also
used its own appropriated funds to support technical assistance
provided to law-enforcement units and personnel, but could not easily
determine exactly how much was provided for such assistance because
its accounting systems do not track funds at that level of detail.
Agency Comments:
We provided a draft of this correspondence to State, DOD, USAID, DOE,
DOJ, DHS, and Treasury. The agencies provided technical comments,
which we have incorporated into the report as appropriate.
We are sending copies of this correspondence to the Secretaries of
State, Defense, Energy, Homeland Security, and the Treasury; the
Attorney General; and the Administrator of USAID. In addition, the
report will be available at no charge on GAO's Web site at [hyperlink,
http://www.gao.gov].
If you or your staff have any questions about this report, please
contact me at (202) 512-8979 or christoffj@gao.gov. Contact points for
our offices of Congressional Relations and Public Affairs may be found
on the last page of the report. GAO staff who made major contributions
to this report are listed in enclosure IV.
Sincerely yours,
Signed by:
Joseph A. Christoff:
Director, International Affairs and Trade:
[End of section]
Enclosure I: Scope and Methodology:
To identify U.S. agencies that trained and equipped foreign police
forces in fiscal year 2009, we reviewed past GAO reports, relevant
legislation, and agency Web sites. To identify U.S.-government funding
for foreign police training and equipment activities, we examined
relevant legislation and congressional budget submissions, including
the Department of State's (State) Bureau of International Narcotics
and Law Enforcement Affairs' (INL) program and budget guides for
fiscal years 2008 through 2010, the Afghanistan Security Forces Fund
(ASFF) fiscal year 2011 congressional budget justification, and the
Iraq Security Forces Fund (ISFF) fiscal year 2011 congressional budget
justification, and other budget documents. To identify countries and
examples of police assistance, we reviewed congressional budget
justifications, other budget documents, agency annual reports,
interagency agreements, and other program documents. We also
interviewed officials of the Departments of Defense (DOD), State,
Energy (DOE), Justice (DOJ), Homeland Security (DHS), and the U.S.
Agency for International Development (USAID). We focused on fiscal
year 2009 because of the challenges in obtaining comparable funding
data from the agencies for other years.
Because agencies did not have a common definition of police training,
we worked with State officials to develop a common definition. We
defined police training and equipment activities (which we referred to
as "police assistance") as all training--regardless of its content and
equipment--provided to law-enforcement units or personnel with arrest,
investigative, or interdiction authority. Using this definition, INL
analyzed appropriations data reported in its annual program and budget
guides to identify funding for police-assistance activities that fit
our definition. The funding data covered all country programs funded
through the International Narcotics Control and Law Enforcement
(INCLE) account directed to law enforcement, stabilization operations,
counternarcotics, border control, and transnational crime. State also
used the definition to identify police assistance funded through other
foreign-assistance accounts. State analyzed appropriations-funding
data from the Foreign Assistance Coordination and Tracking System
(FACTS) database, which tracks data on U.S. foreign-assistance
programs. Funding information was provided for the Assistance to
Europe, Eurasia, and Central Europe account and the Nonproliferation,
Antiterrorism, Demining, and Related Activities account. We reviewed
the State data for reasonableness; questioned State officials about
their methodology; reviewed the program and budget guides as well as
other GAO reports that used the same data sources; and discussed data
reliability with agency officials. We determined that the data were
sufficiently reliable for our purposes. We combined the data from the
various funding accounts to derive the State total. The State data
included funding provided to DOJ, DHS, and Treasury. It excluded
funding provided to State from other agencies. We excluded any
infrastructure costs because such costs are not typical of most police-
assistance activities.
Officials from the Office of the Deputy Assistant Secretary of Defense
for Counternarcotics and Global Threats (DASD-CN>) provided
information on DOD police assistance using the definition we developed
with State. DASD-CN> has oversight of program funding and
obligations through a Web-based database. However, specific funds for
police assistance are managed at the Combatant Command level. The data
DOD provided included obligations data by combatant commands for
training, equipment, and equipment maintenance. Using our definition,
DOD's Defense Threat Reduction Agency (DTRA) provided funding data
based on obligations from DOD's operations and maintenance account. In
addition, we analyzed allotment data supplied by the Assistant
Secretary of Defense for Special Operations, Low Intensity Conflict,
and Interdependent Capabilities for a previous GAO review of the
1206/1207 program to identify funding from the 1207 program for police
assistance.[Footnote 11] The 1207 funds were based on allotments from
the operations and maintenance account. We also obtained funding data
based on appropriations for Afghanistan and Iraq from ASFF and ISFF
congressional budget justifications. Further, we obtained funding data
based on allotments for police assistance for Pakistan from various
budget documents and funding information provided for another GAO
review. We combined data from all funding sources to derive the DOD
total. We included funding for equipment and transportation, training
and operations, and sustainment. We excluded any infrastructure costs
because such costs are not typical of most police-assistance
activities. We reviewed the DOD data for reasonableness and questioned
DOD officials about their methodology and the reliability of the data.
Some of the data included both military and civilian police personnel,
which might result in overestimating DOD funding. However, any effect
would be relatively minor because the majority of DOD funds (over 80
percent) were provided through ASFF and ISFF, which separates funds
provided to military and civilian personnel. We determined that the
data were sufficiently reliable for our purposes.
DOE's National Nuclear Security Administration (NNSA) provided
obligations-funding data for police assistance for fiscal year 2009 in
response to our request for funding data based on our definition. An
NNSA official stated that recipients of some of the training NNSA
provides would have some, but not all, of the authorities specified in
our definition.
USAID reviewed the FACTS database by program element to identify
programs that might have a civilian policing component. USAID then
consulted with its geographic bureaus and its overseas missions to
obtain detailed data not available at headquarters. USAID provided us
with funding data based on allotments for activities that included
civilian police training. We reviewed the data for reasonableness and
discussed its reliability with agency officials. We determined that
the data were sufficiently reliable for our purposes. We excluded
programs that did not meet our definition, such as judicial exchanges.
For DOJ, we used funding data provided by the Federal Bureau of
Investigation (FBI). The FBI provided funding data using the following
definition to identify police assistance: any activity, including the
provision of equipment in association therewith, that is intended to
develop or enhance foreign law-enforcement capabilities to prevent,
deter, detect, investigate, or respond to criminal or terrorist acts
or support public safety and security. Such training occurs both in
the United States and abroad. FBI officials explained that our
definition would exclude some types of law-enforcement personnel, such
as crime-lab technicians, who do not have arrest authority and that
they could not isolate such individuals from their submission. The FBI
provided data on expended funds based on its definition. We reviewed
the data for reasonableness. We determined that the data were
sufficiently reliable for our purposes.
We combined the funding data provided by DOE, DOD, DOJ, State, and
USAID to obtain total U.S.-government funding. The amounts are
estimates because, according to agency officials, police training and
equipping is not generally a category the agencies use to track
funding. In addition, to estimate funding for all elements of police
training, the agencies had to rely on appropriations, allotments, and
obligations data. However, based on our review of the data and
discussions with agency officials, we determined that the data were
sufficiently reliable for a broad estimate of U.S. government funding.
We conducted our work in Washington, D.C., from December 2009 to April
2011 in accordance with all sections of GAO's Quality Assurance
Framework that are relevant to our objectives. The framework requires
that we plan and perform the engagement to obtain sufficient and
appropriate evidence to meet our stated objectives and to discuss any
limitations in our work. We believe that the information and data
obtained, and the analysis conducted, provide a reasonable basis for
any findings and conclusions.
[End of section]
Enclosure II: Authorities Used by Agencies for Police Assistance,
Fiscal Year 2009:
Agencies reported using a variety of legal authorities to provide
police assistance in fiscal year 2009. Some of these authorities are
contained in permanent legislation and continue in their current form
year to year unless they are amended or repealed. For example, in
1974, Congress added section 660 to the Foreign Assistance Act (FAA),
which generally prohibits U.S. agencies from using funds made
available to carry out that Act to provide training or advice, or
provide any financial support for a foreign government's police,
prisons, or other law-enforcement forces, though it includes certain
exceptions such as activity of the Drug Enforcement Administration
(DEA) and the Federal Bureau of Investigation (FBI) related to crimes
of the nature of which are unlawful in the United States.[Footnote 12]
Agencies use other authorities which appear in annual appropriations
that generally expire at the end of the fiscal year and must be
renewed in subsequent appropriations if they are to continue. For
example, the Department of Defense's (DOD) largest efforts to assist
police in Afghanistan and Iraq were carried out under the authorities
granted in appropriations provisions that funded the Iraq Security
Forces Fund (ISFF) and the Afghanistan Security Forces Fund (ASFF).
Below are some examples of the different legal authorities under which
agencies provided police assistance in fiscal year 2009.
Department of State:
Different bureaus in the Department of State (State) carry out police
assistance under different authorities. For example, according to INL
officials, in conducting its programs in 2009, State's Bureau for
International Narcotics and Law Enforcement Affairs (INL) carried out
its mission under authorities in Chapter 8 of the Foreign Assistance
Act,[Footnote 13] as amended, which among other things, authorizes the
provision of law-enforcement training. In addition to other laws that
also authorize INL's programs to assist foreign police, such as the
Narcotics Control Trade Act and the Arms Export Control Act, INL also
relies on certain legislative authority referred to as
"notwithstanding" authority, to overcome the general prohibition to
police training found in section 660 of the FAA.[Footnote 14]
Department of Defense:
According to DOD officials, the department provides police training
around the world through a variety of authorities. For example, it
carried out its program in 2009 to assist police forces in Afghanistan
under authority contained in the Supplemental Appropriations Act of
2009.[Footnote 15] This Act provided appropriations for ASFF, in part,
to provide assistance to the security forces of Afghanistan, including
the provision of equipment and training. The 2009 Supplemental
Appropriations Act also gave DOD authority in the Pakistan
Counterinsurgency Fund appropriation to provide assistance to the
Pakistan security forces, which included the provisions of equipment
and training.
DOD also provided police assistance in Pakistan in 2009 under
authority given to DOD in the National Defense Authorization Act
(NDAA) for Fiscal Year 2008,[Footnote 16] as amended. This authority
allows DOD to use up to $25 million of funds available to DOD for
operation and maintenance in fiscal year 2009 to provide assistance to
enhance the ability of the Pakistan Frontier Corps to conduct
counterterrorism operations along the Pakistan-Afghanistan border.
According to DOD documents, DOD used this authority to provide police
assistance to the Pakistan Frontier Corps Authority for
counterterrorism operations. In addition, DOD officials stated they
carried out police assistance under other authorities contained in
various NDAAs. For example, section 1004 of the NDAA for Fiscal Year
1991, as amended, authorizes DOD to provide support for the
counterdrug activities of foreign law-enforcement agencies for
purposes including counterdrug training of foreign law-enforcement
personnel, if requested by an appropriate official of a federal agency
with counterdrug responsibilities.[Footnote 17] In addition, section
1033 of the NDAA for Fiscal Year 1998, as amended, authorizes DOD to
provide additional support for counterdrug activities to specified
countries.[Footnote 18] Similarly, according to DOD officials, they
have provided police assistance under the authority provided in
section 1022 of the NDAA for Fiscal Year 2004, as amended, which
allows DOD joint task forces that provide support to law-enforcement
agencies conducting counterdrug activities to provide support to law-
enforcement agencies conducting counterterrorism activities.[Footnote
19]
U.S. Agency for International Development:
According to U.S. Agency for International Development (USAID)
officials, for 2009 programs, USAID used three different authorities
to carry out police assistance. USAID used the authority in section
7047 of the Omnibus Appropriations Act, 2009,[Footnote 20] for
community-based police assistance. This provision authorized the use
of certain funds made available under the Act, notwithstanding section
660 of the FAA, to enhance the effectiveness and accountability of
civilian police authority through training and technical assistance in
areas such as human rights and the rule of law. In addition, USAID
carried out programs under authority given in the Democracy Fund
appropriation in the same 2009 Omnibus Appropriations Act, which
allowed that funds appropriated by that Act that were made available
for the promotion of democracy may be made available, notwithstanding
any other provision of law. USAID also carried out a program in
Colombia, in part, under authority granted in the FAA which authorizes
the President to furnish assistance to any country, notwithstanding
any other provision of law, for the control of narcotic and
psychotropic drugs and other controlled substances or for other
anticrime purposes.[Footnote 21]
Federal Bureau of Investigation:
According to FBI officials, when the FBI conducts foreign law-
enforcement training using its own appropriations in furtherance of
its mission to detect, investigate, and prosecute crimes against the
United States, that training is provided under 28 U.S.C. § 533.
However, when the FBI conducts foreign law-enforcement training on a
reimbursable basis, where State or DOD is providing the funding, it
provides such training under the authorities of those agencies. The
FBI's authority to enter into reimbursable transactions with State is
found in the FAA.[Footnote 22] According to the FBI, when it provides
training for DOD, its authority to obtain reimbursement for such
services is in the Economy Act, 31 U.S.C. § 1535.
[End of section]
Enclosure III: DOD and State Funding for Police Assistance, by Region
and Country, Fiscal Year 2009:
This enclosure provides information on DOD and State funding for
police-assistance activities during fiscal year 2009, by region and
country. DOD and State funds comprised about 97 percent of all U.S.
funds for these purposes.[Footnote 23] We did not include funds for
other agencies because agencies did not always provide information by
country.
Our analysis of DOD and State data shows that both DOD and State
funded police-assistance activities in 8 of 11 recipient countries in
the South and Central Asia region, while State alone provided
assistance in 3 other countries (see figure 5). Two countries in this
region--Afghanistan and Pakistan--received more than $100 million in
police assistance, 8 received from about $1 million to $100 million
each in assistance, and 1 country received less than $1 million.
Figure 5: Estimated DOD and State Funding for Police Assistance in
South and Central Asia, by Country, Fiscal Year 2009:
[Refer to PDF for image: horizontal bar graph]
South and Central Asia:
Country: Afghanistan;
DOD funding: $1.350 billion;
State funding: $259 million;
Total funding: $1,609 billion.
Country: Pakistan;
DOD funding: $80.139 million;
State funding: $81.470 million;
Total funding: $161.609 million.
Country: Kyrgyzstan;
DOD funding: $10.060 million;
State funding: $31,275 million;
Total funding: $41.335 million.
Country: Kazakhstan;
DOD funding: $10.561 million;
State funding: $1.620 million;
Total funding: $121.181 million.
Country: Bangladesh;
DOD funding: $8.000 million;
State funding: $2.700 million;
Total funding: $10.700 million.
Country: Tajikistan;
DOD funding: $2.000 million;
State funding: $7.358 million;
Total funding: $9.358 million.
Country: Sri Lanka;
DOD funding: $4.000 million;
State funding: $0.200 million;
Total funding: $4.200 million.
Country: Turkmenistan;
DOD funding: $2.350 million;
State funding: $0.475 million;
Total funding: $2.825 million.
Country: Nepal;
DOD funding: $0;
State funding: $1.030 million;
Total funding: $1.030 million.
Country: India;
DOD funding: $0;
State funding: $1.000 million;
Total funding: $1.000 million.
Country: Uzbekistan;
DOD funding: $0;
State funding: $0.410 million;
Total funding: $0.410 million.
DOD and State total: $1.853 billion.
Source: GAO analysis of DOD and State data.
Note: Totals may not sum due to rounding.
[End of figure]
Figure 6 shows that both DOD and State funded police-assistance
activities in 11 of the 30 recipient countries in the Western
Hemisphere. DOD alone provided funding for assistance in 14 countries,
while State alone provided assistance in 5 countries. Two countries in
this region--Mexico and Colombia--received more than $100 million in
police assistance. Eight countries received from about $1 million to
$100 million each in police assistance, and 20 countries received less
than $1 million each in assistance.
Figure 6: Estimated DOD and State Funding for Police Assistance in the
Western Hemisphere, by Country, Fiscal Year 2009:
[Refer to PDF for image: horizontal bar graph]
Country: Mexico;
DOD funding: $0;
State funding: $327.000 million;
Total funding: $327.000 million.
Country: Columbia;
DOD funding: $16.044 million;
State funding: $189.989 million;
Total funding: $205.033 million.
Country: Peru;
DOD funding: $2.854 million;
State funding: $42.771 million;
Total funding: $45.625 million.
Country: Bolivia;
DOD funding: $0.267 million;
State funding: $21.884 million;
Total funding: $22.151 million.
Country: Haiti;
DOD funding: $0;
State funding: $15.830 million;
Total funding: $15.830 million.
Country: Ecuador;
DOD funding: $1.360 million;
State funding: $6.309 million;
Total funding: $7.669 million.
Country: Panama;
DOD funding: $4.117 million;
State funding: $1.800 million;
Total funding: $5.917 million.
Country: Guatemala;
DOD funding: $0.167 million;
State funding: $3.930 million;
Total funding: $4.097 million.
Country: Dominican Republic;
DOD funding: $0.808 million;
State funding: $3.250 million;
Total funding: $3.330 million.
Country: Belize;
DOD funding: $0.954 million;
State funding: $0;
Total funding: $0.954 million.
Country: Brazil;
DOD funding: $0.603 million;
State funding: $0.300 million;
Total funding: $0.903 million.
Country: Jamaica;
DOD funding: $0.202 million;
State funding: $0.480 million;
Total funding: $0.682 million.
Country: Venezuela;
DOD funding: $0;
State funding: $0.500 million;
Total funding: $0.500 million.
Country: Argentina;
DOD funding: $0.195 million;
State funding: $0.290 million;
Total funding: $0.485 million.
Country: Nicaragua;
DOD funding: $0.412 million;
State funding: $0;
Total funding: $0.412 million.
Country: Trinidad & Tobago;
DOD funding: $0;
State funding: $0.230 million;
Total funding: $0.230 million.
Country: Honduras;
DOD funding: $0.218 million;
State funding: $0;
Total funding: $0.218 million.
Country: Costa Rica;
DOD funding: $0.208 million;
State funding: $0;
Total funding: $0.208 million.
Country: The Bahamas;
DOD funding: $0;
State funding: $0.150 million;
Total funding: $0.150 million.
Country: El Salvador;
DOD funding: $0.110 million;
State funding: $0;
Total funding: $0.110 million.
Country: Antigua and Barbuda;
DOD funding: $0.096 million;
State funding: $0;
Total funding: $0.096 million.
Country: Uruguay;
DOD funding: $0.091 million;
State funding: $0;
Total funding: $0.091 million.
Country: Grenada;
DOD funding: $0.031 million;
State funding: $0;
Total funding: $0.031 million.
Country: Barbados;
DOD funding: $0.009 million;
State funding: $0;
Total funding: $0.009 million.
Country: Saint Kitts & Nevis;
DOD funding: $0.009 million;
State funding: $0;
Total funding: $0.009 million.
Country: Saint Lucia;
DOD funding: $0.009 million;
State funding: $0;
Total funding: $0.009 million.
Country: Dominica;
DOD funding: $0.008 million;
State funding: $0;
Total funding: $0.008 million.
Country: Saint Vincent and the Grenadines;
DOD funding: $0.008 million;
State funding: $0;
Total funding: $0.008 million.
Country: Chile;
DOD funding: $0.001 million;
State funding: $0;
Total funding: $0.001 million.
DOD total funding: $32.487 million;
State total funding: $613.928 million;
DOD and State total funding: $646.415 million.
Source: GAO analysis of DOD and State data.
Note: Totals may not sum due to rounding.
[End of figure]
As shown in Figure 7, both DOD and State funded police-assistance
activities in 5 of the 12 recipient countries in the Near East, while
7 countries received assistance from State alone. One country and one
area in this region--Iraq and the Palestinian Territories--received
more than $100 million each in police assistance, 4 countries received
from about $1 million to $100 million each in assistance, and 6
countries received less than $1 million each in assistance.
Figure 7: Estimated DOD and State Funding for Police Assistance in the
Near East, by Country, Fiscal Year 2009:
[Refer to PDF for image: horizontal bar graph]
Country: Iraq;
DOD funding: $376.600 million;
State funding: $13.500 million;
Total funding: $390.100 million.
Country: Palestinian Territories;
DOD funding: $0;
State funding: $127.600 million;
Total funding: $127.600 million.
Country: Lebanon;
DOD funding: $10.000 million;
State funding: $9.200 million;
Total funding: $19.200 million.
Country: Jordan;
DOD funding: $0;
State funding: $18.875 million;
Total funding: $18.875 million.
Country: Egypt;
DOD funding: $0.012 million;
State funding: $2.940 million;
Total funding: $2.952 million.
Country: Morocco;
DOD funding: $0.053 million;
State funding: $1.215 million;
Total funding: $1.258 million.
Country: Yemen;
DOD funding: $0;
State funding: $0.790 million;
Total funding: $0.790 million.
Country: Bahrain;
DOD funding: $0;
State funding: $0.500 million;
Total funding: $0.500 million.
Country: Oman;
DOD funding: $0;
State funding: $0.500 million;
Total funding: $0.500 million.
Country: Tunisia;
DOD funding: $0;
State funding: $0.325 million;
Total funding: $0.325 million.
Country: Libya;
DOD funding: $0.021 million;
State funding: $0.200 million;
Total funding: $0.221 million.
Country: Algeria;
DOD funding: $0;
State funding: $0.200 million;
Total funding: $0.200 million.
DOD total: $386.686 million;
State total: $175.845 million;
DOD and State total: $562.531 million.
Source: GAO analysis of DOD and State data.
Note: Totals may not sum due to rounding.
[End of figure]
Figure 8 shows that both DOD and State provided police assistance in 3
of the 17 recipient countries in Europe and Eurasia. DOD alone
provided police assistance to 4 countries, while State alone provided
assistance to 10 countries. Ten countries in this region received from
about $1 million to $35 million each in police assistance, and 7
countries received less than $1 million each.
Figure 8: Estimated DOD and State Funding for Police Assistance in
Europe and Eurasia, by Country, Fiscal Year 2009:
[Refer to PDF for image: horizontal bar graph]
Country: Kosovo;
DOD funding: $0;
State funding: $33.975 million;
Total funding: $33.975 million.
Country: Georgia;
DOD funding: $0.872 million;
State funding: $24.707 million;
Total funding: $25.579 million.
Country: Bosnia and Herzegovina;
DOD funding: $0;
State funding: $7.326 million;
Total funding: $7.326 million.
Country: Ukraine;
DOD funding: $0;
State funding: $4.793 million;
Total funding: $4.793 million.
Country: Albania;
DOD funding: $0.210 million;
State funding: $4.194 million;
Total funding: $4.404 million.
Country: Russia;
DOD funding: $0;
State funding: $1.729 million;
Total funding: $1.729 million.
Country: Armenia;
DOD funding: $0;
State funding: $1.718 million;
Total funding: $1.718 million.
Country: Macedonia;
DOD funding: $0;
State funding: $1.250 million;
Total funding: $1.250 million.
Country: Serbia;
DOD funding: $0;
State funding: $1.184 million;
Total funding: $1.184 million.
Country: Turkey;
DOD funding: $0;
State funding: $1.095 million;
Total funding: $1.095 million.
Country: Moldova;
DOD funding: $0;
State funding: $0.669 million;
Total funding: $0.669 million.
Country: Azerbaijan;
DOD funding: $0.226 million;
State funding: $0.410 million;
Total funding: $0.636 million.
Country: Romania;
DOD funding: $0.337 million;
State funding: $0;
Total funding: $0.337 million.
Country: Belarus;
DOD funding: $0;
State funding: $0.190 million;
Total funding: $0.190 million.
Country: Bulgaria;
DOD funding: $0.052 million;
State funding: $0;
Total funding: $0.052 million.
Country: Greece;
DOD funding: $0.032 million;
State funding: $0;
Total funding: $0.032 million.
Country: Poland;
DOD funding: $0.012 million;
State funding: $0;
Total funding: $0.012 million.
DOD total: $1.740 million;
State total: $83.240 million;
DOD and State total: $84.980 million.
Source: GAO analysis of DOD and State data.
Note: Totals may not sum due to rounding.
[End of figure]
As shown in figure 9, both DOD and State provided police assistance in
8 of the 28 recipient countries in Africa. DOD alone provided
assistance in 18 countries, while State alone provided assistance in 2
countries. Five countries in this region received from about $1
million to slightly more than $11 million each in police assistance; 5
countries received from about $100,000 to $1 million each in
assistance; and 18 countries received less than $100,000 each.
Figure 9: Estimated DOD and State Funding for Police Assistance in
Africa, by Country, Fiscal Year 2009:
[Refer to PDF for image: horizontal bar graph]
Country: Sudan;
DOD funding: $0;
State funding: $11.100 million;
Total funding: $11.100 million.
Country: Kenya;
DOD funding: $0.669
State funding: $5.000 million;
Total funding: $5.669 million.
Country: Congo, Democratic Republic of;
DOD funding: $2.970
State funding: $1.450 million;
Total funding: $4.420 million.
Country: Liberia;
DOD funding: $0.032
State funding: $3.730 million;
Total funding: $3.762 million.
Country: Uganda;
DOD funding: $2.900
State funding: $0;
Total funding: $2.900 million.
Country: Ghana;
DOD funding: $0.089
State funding: $0.500 million;
Total funding: $0.589 million.
Country: Cape Verde;
DOD funding: $0.104 million;
State funding: $0.475 million;
Total funding: $0.579 million.
Country: Sierre Leone;
DOD funding: $0.063 million;
State funding: $0.200 million;
Total funding: $0.263 million.
Country: Rwanda;
DOD funding: $0.168 million;
State funding: $0;
Total funding: $0.168 million.
Country: Burkina Faso;
DOD funding: $0;
State funding: $0.095 million;
Total funding: $0.095 million.
Country: Botswana;
DOD funding: $0.084 million;
State funding: $0;
Total funding: $0.084 million.
Country: Guinea-Bissau;
DOD funding: $0.004 million;
State funding: $0.050 million;
Total funding: $0.054 million.
Country: Senegal;
DOD funding: $0.053 million;
State funding: $0;
Total funding: $0.053 million.
Country: Mali;
DOD funding: $0.042 million;
State funding: $0;
Total funding: $0.042 million.
Country: Niger;
DOD funding: $0.042 million;
State funding: $0;
Total funding: $0.042 million.
Country: South Africa;
DOD funding: $0.042 million;
State funding: $0;
Total funding: $0.042 million.
Country: Tanzania;
DOD funding: $0.032 million;
State funding: $0;
Total funding: $0.032 million.
Country: Burundi;
DOD funding: $0.021 million;
State funding: $0;
Total funding: $0.021 million.
Country: Mauritius;
DOD funding: $0.021 million;
State funding: $0;
Total funding: $0.021 million.
Country: Seychelles;
DOD funding: $0.021 million;
State funding: $0;
Total funding: $0.021 million.
Country: Togo;
DOD funding: $0.012 million;
State funding: $0;
Total funding: $0.012 million.
Country: Ethiopia;
DOD funding: $0.011 million;
State funding: $0;
Total funding: $0.011 million.
Country: Gambia, The;
DOD funding: $0.011 million;
State funding: $0;
Total funding: $0.011 million.
Country: Lesotho;
DOD funding: $0.011 million;
State funding: $0;
Total funding: $0.011 million.
Country: Namibia;
DOD funding: $0.011 million;
State funding: $0;
Total funding: $0.011 million.
Country: Swaziland;
DOD funding: $0.011 million;
State funding: $0;
Total funding: $0.011 million.
Country: Madegascar;
DOD funding: $0.005 million;
State funding: $0;
Total funding: $0.005 million.
DOD total: $7.458 million;
State total: $22.270 million;
DOD and State total: $30.178 million.
Source: GAO analysis of DOD and State data.
Note: Totals may not sum due to rounding.
[End if figure]
Figure 10 shows that both DOD and State provided police assistance in
4 of the 9 recipient countries in East Asia and the Pacific. DOD alone
provided assistance in 4 countries, while State alone provided
assistance in 1 country. Four countries in this region received from
about $1 million to slightly more than $11 million each in assistance;
3 countries received from about $100,000 to $1 million each; and 2
countries received less than $100,000 each.
Figure 10: Estimated DOD and State Funding for Police Assistance in
East Asia and the Pacific, by Country, Fiscal Year 2009:
[Refer to PDF for image: horizontal bar graph]
Country: Philippines;
DOD funding: $6.742 million;
State funding: $4.300 million;
Total funding: $11.042 million.
Country: Indonesia;
DOD funding: $0.029 million;
State funding: $10.430 million;
Total funding: $10.459 million.
Country: Thailand;
DOD funding: $1.367 million;
State funding: $1.706 million;
Total funding: $3.073 million.
Country: Malaysia;
DOD funding: $0.723 million;
State funding: $0.800 million;
Total funding: $1.523 million.
Country: Cambodia;
DOD funding: $0.380 million;
State funding: $0;
Total funding: $0.380 million.
Country: Vietnam;
DOD funding: $0.380 million;
State funding: $0;
Total funding: $0.380 million.
Country: Laos;
DOD funding: $0;
State funding: $0.300 million;
Total funding: $0.300 million.
Country: Samoa;
DOD funding: $0.024 million;
State funding: $0;
Total funding: $0.024 million.
Country: Micronesia;
DOD funding: $0.012 million;
State funding: $0;
Total funding: $0.012 million.
DOD total: $9.657 million;
State total: $17.536 million;
DOD and State total: $27.193 million.
Source: GAO analysis of DOD and State data.
Note: Totals may not sum due to rounding.
[End of figure]
[End of section]
Enclosure IV: GAO Contact and Staff Acknowledgments:
GAO Contact:
Joseph Christoff (202) 512-8979, christoffj@gao.gov:
Staff Acknowledgments:
In addition to the individual named above, Judith McCloskey, Assistant
Director; Michael Rohrback, Assistant Director; Lynn Cothern; David
Dayton; Mary Moutsos; Cristina Ruggiero; and La Verne Tharpes made key
contributions to this report. Robert Alarapon, Martin de Alteriis,
Lisa Canini, Susan Czachor, Gena, Evans, Etana Finkler, Nicholas
Jepson, Maria Mercado, Jaclyn Nelson, Erin Saunders-Rath, and George
Taylor provided technical assistance.
[End of section]
Footnotes:
[1] GAO, Foreign Aid: Police Training and Assistance, [hyperlink,
http://www.gao.gov/products/GAO/NSIAD-92-118] (Washington, D.C.: Mar.
5, 1992).
[2] We included all training--regardless of content--and equipment
provided to law-enforcement units or personnel with arrest,
investigative, and/or interdiction authorities. We excluded funds for
infrastructure because such costs are not typical of most police-
assistance activities.
[3] State provided DHS and Treasury with an estimated $6 million and
$600,000, respectively, to implement activities such as developing and
delivering training at the International Law Enforcement Academies.
[4] See Section 660 of the Foreign Assistance Act of 1961 as amended,
22 U.S.C. § 2420. The legislation applies only to funds appropriated
to carry out the purposes of the Foreign Assistance Act and local
currencies generated under the Act.
[5] Community-based police programs are programs that foster
partnerships between the police and local communities.
[6] [hyperlink, http://www.gao.gov/products/GAO/NSIAD-92-118]. We
later reported on the cost and extent of U.S. Rule of Law assistance
worldwide, which included police training and assistance. For fiscal
year 1998, we reported that the United States provided about $280
million in inflation-adjusted dollars for Rule of Law activities
worldwide; the report did not specifically identify the amount of
funds for police training. GAO, Foreign Assistance: Rule of Law
Funding Worldwide for Fiscal Years 1993-1998, [hyperlink,
http://www.gao.gov/products/GAO/NSIAD-99-158] (Washington, D.C.: June
30, 1999).
[7] [hyperlink, http://www.gao.gov/products/GAO/NSIAD-92-118]. This
figure represents inflation-adjusted dollars. GAO previously reported
that police training and assistance cost $117 million in fiscal year
1990.
[8] These amounts do not include funds for State regional and global
activities. Thus, they do not add up to the $3.4 billion estimated for
State and DOD.
[9] In 2011, State plans to fund and implement a police-development
program in Iraq as U.S. forces draw down and, ultimately, withdraw
from the country. At that time, DOD plans to discontinue funding and
implementing police-assistance activities in Iraq. Under current
plans, the Iraq program will be State's largest police-assistance
program worldwide.
[10] GAO, Mérida Initiative: The United States Has Provided
Counternarcotics and Anticrime Support but Needs Better Performance
Measures, [hyperlink, http://www.gao.gov/products/GAO-10-837]
(Washington, D.C.: July 21, 2010).
[11] Sections 1206 and 1207 of the fiscal year 2006 National Defense
Authorization Act created funding authorities for DOD to formulate and
implement security assistance programs jointly with State. GAO,
International Security: DOD and State Need to Improve Sustainment
Planning and Monitoring and Evaluation for Section 1206 and 1207
Assistance Programs, [hyperlink,
http://www.gao.gov/products/GAO-10-431] (Washington, D.C.: Apr. 12,
2010).
[12] 22 U.S.C. § 2420.
[13] Pub. Law No. 87-195, as amended.
[14] See 22 U.S.C. § 2291(a)(4).
[15] Pub. Law No. 111-32.
[16] See Section 1206 of Pub. Law No. 110-181, as amended by Section
1201 of the Duncan Hunter National Defense Authorization Act for
Fiscal Year 2009, Pub. Law No. 110-417.
[17] Pub. Law No. 101-510, as amended.
[18] Pub. Law No. 105-85, as amended.
[19] Pub. Law No. 108-136, as amended.
[20] Pub. Law No. 111-8.
[21] 22 U.S.C. § 2291(a)(4).
[22] See 22 U.S.C. § 2392.
[23] Fiscal year 2009 funds included appropriations, allotments,
obligations, and expenditures.
[End of section]
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