Merida Initiative
The United States Needs Better Performance Measures for Its Counternarcotics and Anticrime Support Efforts Gao ID: GAO-10-913T July 21, 2010Crime and violence related to drug trafficking in Mexico and Central America have increased in recent years and pose a threat not only to those areas but to the United States as well, particularly along the Southwest border. The Merida Initiative, announced in 2007, provides about $1.6 billion in law enforcement support to Mexico and Central American countries. The Department of State (State) manages the Initiative while other U.S. agencies play key roles in implementation. This testimony addresses (1) the status of Merida program implementation; (2) State's strategy for implementation; and (3) coordination mechanisms in place for Merida. This testimony is based on a new GAO report being released at today's hearing (GAO-10-837).
The United States has delivered various equipment and training to Mexico under the Merida Initiative. While the pace of delivery has been slowed by a number of implementation challenges, it has increased recently. As of March 31, 2010, 46 percent of fiscal year 2008 to fiscal year 2010 M?rida funds had been obligated, and approximately 9 percent had been expended. In Mexico, U.S. agencies have delivered major equipment including five Bell helicopters, several X-ray inspection devices, law enforcement canines and training for their handlers, and training for over 4,000 police officers. In Central America, U.S. agencies have delivered police vehicles and non-intrusive inspection equipment and have provided various courses, including workshops on combating arms trafficking, and training on handling evidence from clandestine criminal laboratories. Deliveries of equipment and training have been delayed by challenges associated with insufficient number of staff to administer the program, negotiations on interagency and bilateral agreements, procurement processes, changes in government, and funding availability. U.S. agencies are working to address these challenges. For example, the Embassy Narcotics Affairs Section in Mexico City has more than doubled its staff resources since M?rida was launched. While State has developed some of the key elements of an implementation strategy for the M?rida Initiative, including a mission, strategic goals, and a resource plan, its strategic documents lack certain key elements that would facilitate accountability and management. For example, its strategic documents do not include outcome performance measures that indicate progress toward achieving strategic goals. In addition, State has not developed a comprehensive set of timelines for all expected deliveries, though it plans to provide additional equipment and training in both Mexico and Central America. State has primary responsibility for coordinating the M?rida Initiative. GAO identified several mechanisms that incorporate decision-makers at various levels of government that facilitate coordination between State headquarters and posts; within post, and bilaterally with foreign governments. For example, several State bureaus regularly coordinate with other U.S. agencies on M?rida policy and programmatic issues. Similarly, State headquarters and U.S. embassies in Mexico and Central America have established mechanisms to coordinate and communicate on implementation. U.S. agencies at posts also have developed and adapted mechanisms to coordinate efforts within the U.S. Embassy community in Mexico and Central American countries. Moreover, State has established formal bilateral mechanisms to coordinate with Mexican authorities. The related GAO report recommends that the Secretary of State incorporate into the strategy for the M?rida Initiative outcome performance measures that indicate progress toward strategic goals and develop more comprehensive timelines for future program deliveries. State agreed with our recommendations.
GAO-10-913T, Merida Initiative: The United States Needs Better Performance Measures for Its Counternarcotics and Anticrime Support Efforts
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Testimony:
Before the Subcommittee on the Western Hemisphere, Committee on
Foreign Affairs, House of Representatives:
United States Government Accountability Office:
GAO:
For Release on Delivery:
Expected at 2:30 p.m. EDT:
Wednesday, July 21, 2010:
Mérida Initiative:
The United States Needs Better Performance Measures for Its
Counternarcotics and Anticrime Support Efforts:
Statement of Jess T. Ford, Director:
International Affairs and Trade Team:
GAO-10-913T:
GAO Highlights:
Highlights of GAO-10-913T, a testimony before the Subcommittee on the
Western Hemisphere, Committee on Foreign Affairs, House of
Representatives.
Why GAO Did This Study:
Crime and violence related to drug trafficking in Mexico and Central
America have increased in recent years and pose a threat not only to
those areas but to the United States as well, particularly along the
Southwest border. The Mérida Initiative, announced in 2007, provides
about $1.6 billion in law enforcement support to Mexico and Central
American countries. The Department of State (State) manages the
Initiative while other U.S. agencies play key roles in implementation.
This testimony addresses (1) the status of Mérida program
implementation; (2) State's strategy for implementation; and (3)
coordination mechanisms in place for Mérida. This testimony is based
on a new GAO report being released at today‘s hearing (GAO-10-837).
What GAO Found:
The United States has delivered various equipment and training to
Mexico under the Mérida Initiative. While the pace of delivery has
been slowed by a number of implementation challenges, it has increased
recently. As of March 31, 2010, 46 percent of fiscal year 2008 to
fiscal year 2010 Mérida funds had been obligated, and approximately 9
percent had been expended. In Mexico, U.S. agencies have delivered
major equipment including five Bell helicopters, several X-ray
inspection devices, law enforcement canines and training for their
handlers, and training for over 4,000 police officers. In Central
America, U.S. agencies have delivered police vehicles and non-
intrusive inspection equipment and have provided various courses,
including workshops on combating arms trafficking, and training on
handling evidence from clandestine criminal laboratories. Deliveries
of equipment and training have been delayed by challenges associated
with insufficient number of staff to administer the program,
negotiations on interagency and bilateral agreements, procurement
processes, changes in government, and funding availability. U.S.
agencies are working to address these challenges. For example, the
Embassy Narcotics Affairs Section in Mexico City has more than doubled
its staff resources since Mérida was launched.
While State has developed some of the key elements of an
implementation strategy for the Mérida Initiative, including a
mission, strategic goals, and a resource plan, its strategic documents
lack certain key elements that would facilitate accountability and
management. For example, its strategic documents do not include
outcome performance measures that indicate progress toward achieving
strategic goals. In addition, State has not developed a comprehensive
set of timelines for all expected deliveries, though it plans to
provide additional equipment and training in both Mexico and Central
America.
State has primary responsibility for coordinating the Mérida
Initiative. GAO identified several mechanisms that incorporate
decision-makers at various levels of government that facilitate
coordination between State headquarters and posts; within post, and
bilaterally with foreign governments. For example, several State
bureaus regularly coordinate with other U.S. agencies on Mérida policy
and programmatic issues. Similarly, State headquarters and U.S.
embassies in Mexico and Central America have established mechanisms to
coordinate and communicate on implementation. U.S. agencies at posts
also have developed and adapted mechanisms to coordinate efforts
within the U.S. Embassy community in Mexico and Central American
countries. Moreover, State has established formal bilateral mechanisms
to coordinate with Mexican authorities.
What GAO Recommends:
The related GAO report recommends that the Secretary of State
incorporate into the strategy for the Mérida Initiative outcome
performance measures that indicate progress toward strategic goals and
develop more comprehensive timelines for future program deliveries.
State agreed with our recommendations.
View [hyperlink, http://www.gao.gov/products/GAO-10-913T] or key
components. For more information, contact Jess T. Ford at (202) 512-
4268 or FordJ@gao.gov.
[End of section]
Mr. Chairman and Members of the Subcommittee:
I am pleased to be here today to discuss U.S. support to Mexico and
Central America under the Mérida Initiative. Crime and violence in
Mexico and Central America have continued to increase in recent years
and pose a threat not only to those areas but to the United States as
well, particularly along the U.S.-Mexico border. To address growing
narcotics and crime issues in the region, in October 2007, the United
States and Mexico launched the Mérida Initiative, a $1.6 billion
effort aimed at supporting law enforcement. The Department of State
(State) manages the Mérida Initiative and, in cooperation with several
other U.S. agencies, is responsible for its implementation. State
outlined its strategy in the fiscal year 2008 Spending Plan and in
other documents that define a mission, strategic goals, and a resource
plan. As violence in Mexico and Central America continues, some
members of the U.S. Congress have criticized the slow pace of delivery
of training and equipment. Mexican officials have also cautioned that
delays could undermine support for the Initiative and the Calderón
Administration's decision to seek support from the United States.
My remarks today are based on our report, released at this hearing,
entitled Mérida Initiative: The United States Has Provided
Counternarcotics and Anticrime Support but Needs Better Performance
Measures. I will focus on three topics: (1) the status of Mérida
program implementation; (2) State's strategy for implementation; and
(3) coordination mechanisms in place for Mérida.
To address these objectives in our report, we reviewed State's
spending plans for Mérida; State and U.S. Agency for International
Development (USAID) budget documents and bilateral agreements between
the United States and Mexico and between the United States and the
Central American countries; and interagency agreements between State
and other U.S. agencies implementing Mérida programs. We also
interviewed officials at the Departments of State, Defense (DOD),
Treasury (Treasury), Justice (DOJ), and Homeland Security (DHS); and
USAID, the Office of National Drug Control Policy (ONDCP), and the
Office of Management and Budget (OMB). In addition, we interviewed
foreign government officials and reviewed documentation collected
during site visits in Mexico, El Salvador, Panama, and Guatemala.
Field work included visits to locations where programs and equipment
have been delivered, as well as police and military and other law
enforcement organizations.
We conducted this performance audit from September 2009 to July 2010
in accordance with generally accepted auditing standards. Those
standards require that we plan and perform the audit to obtain
sufficient, appropriate evidence to provide a reasonable basis for our
findings and conclusions based on our audit objectives. We believe
that the evidence obtained provides a reasonable basis for our
findings and conclusions based on our audit objectives.
In brief, Mr. Chairman, we found that while the United States has
provided counternarcotics and anticrime support, better performance
measures are needed to improve management and accountability of the
Mérida Initiative.
The United States Has Delivered Equipment and Training under Mérida
and Is Working to Overcome Implementation Challenges:
The United States has delivered various equipment and training under
the Mérida Initiative. As of March 31, 2010, 46 percent of fiscal year
2008 to fiscal year 2010 Mérida funds had been obligated, and
approximately 9 percent had been expended. In Mexico, the United
States has delivered items including five Bell helicopters, biometric
equipment, immigration computer equipment and software, forensics lab
equipment, and canines. In addition, the United States has assisted in
training over 4,000 police graduates from Mexico's federal police
training facility, the academy at San Luis Potosí. In Central America,
the United States has provided over 60 contraband detection kits,
police vehicles, and training.
While the pace of delivery has been slowed by a number of
implementation challenges, it has increased recently as U.S. agencies
work to overcome these challenges. Deliveries of equipment and
training have been delayed by challenges associated with insufficient
number of staff to administer the program, negotiations on interagency
and bilateral agreements, procurement processes, changes in
government, and funding availability. U.S. agencies are working to
address these challenges. For example, the Embassy Narcotics Affairs
Section in Mexico City has more than doubled its staff resources since
Mérida was launched. Moreover, some U.S. agencies have sought
alternative methods to initiate and speed the implementation of
certain programs. In Mexico, for example, Treasury's Office of
Technical Assistance used its own funds to start developing programs
while an Amended Letter of Agreement was negotiated and signed with
Mexico. In addition, USAID identified approximately $2 million in
existing program funds to initiate community involvement and training
projects while waiting for Mérida funds to become available, according
to USAID officials.
State's Strategy for Mérida Is Missing Elements That Would Improve
Accountability and Management:
While State has developed some of the elements of a strategy for
implementing the Mérida Initiative, including a mission, strategic
goals, and a resource plan, its strategic documents lack certain other
key elements that would facilitate accountability and management. For
example, State's strategic documents do not include performance
measures that indicate progress toward achieving strategic goals or
timelines for all future deliveries and completion of Mérida programs.
Our prior work has shown that including these elements is important
because they enable decision-makers to determine whether the program
is successful and if any adjustments need to be made and in what ways.
In general, State's performance measures do not align with existing
strategic goals, do not provide measurable targets, and do not measure
outcomes. We have reported before that performance measures that
include such attributes are key characteristics of successful program
management. Such measures provide valuable information for decision-
makers to identify strengths and weaknesses in programs, identify the
factors that may be contributing to any problems, and adjust processes
to address the problems. Almost all of State's performance measures do
not provide specific measurable targets with milestones to indicate
success in the short term and the long term. Without targets to strive
toward, State cannot determine if it is meeting expectations under the
Mérida Initiative.
In addition, State has not developed comprehensive timelines for
delivery of all equipment and training planned under Mérida. While
U.S. agencies have already provided major equipment and some training
using Mérida funds, as of March 31, 2010, a significant amount of
equipment and training intended to be provided under the Initiative
was still pending delivery. For Mexico, this includes between 9 and 11
Black Hawk helicopters, 4 CASA aircraft, an additional 3 Bell
helicopters, over 200 polygraph units, mobile gamma radiation
inspection trucks, as well as railroad units to detect weapons and
other contraband, and multiple professionalization programs and
projects in various training and technical assistance. While State has
estimated timelines for some of these items, it does not provide
comprehensive timelines for all of the planned projects for fiscal
years 2008 and 2009. For instance, State does not have an estimated
target date for providing the rest of the training planned for Mexico.
Of the major equipment provided under the fiscal year 2008 and fiscal
year 2009 plans for Mexico, State estimates that it will deliver about
half of the funding associated with this equipment by the end of
fiscal year 2010 (see figure 1). For Central America, some of the
items that have not been delivered include up to 8 interceptor boats
and maritime support equipment and various training and technical
support, including for anti-gang activities.
Figure 1: State Estimates in Dollar Value of Major Equipment
Deliveries to Mexico under Mérida as of March 2010:
[Refer to PDF for image: vertical bar graph]
Delivery year: 2009;
Delivered: $81.6 million.
Delivery year: 2010;
Delivered: $32.6 million;
Pending: $189.0 million.
Delivery year: 2011 and beyond:
Pending: $369.5 million.
Source: GAO, based on Department of State data.
[End of figure]
State Has Primary Responsibility for Coordinating the Mérida
Initiative:
State has primary responsibility for coordinating the Mérida
Initiative, which has diverse program components that are being
implemented by a wide range of U.S. agencies under the leadership and
management of the State Department. Although State has not
comprehensively documented a coordinating structure for Mérida, we
identified several mechanisms in place involving decision-makers at
various levels of government.
According to State officials, the National Security Council (NSC) has
a key policy role in coordinating the Initiative. State officials told
us that the NSC leads the inter-agency policy effort on the U.S.
government counternarcotics and law enforcement approach to the
region, which includes the Mérida Initiative and domestic efforts,
such as the Southwest Border strategy. State has designated the Deputy
Assistant Secretary for North America of Western Hemisphere Affairs
(WHA) as the "principal" Mérida coordinator. However, other State
offices, such as International Narcotics and Law Enforcement (INL),
and other agencies have also designated their own "coordinators" for
Mérida. The WHA coordinator and her counterparts in other bureaus and
USAID communicate programmatic activity via a weekly Mérida Initiative
Core Group meeting. In addition, several State bureaus regularly
coordinate with other U.S. agencies on Mérida policy and programmatic
issues. Similarly, headquarters and U.S. embassies in Mexico and
Central America have established mechanisms to coordinate and
communicate on implementation. Under the leadership of the U.S.
ambassadors, agencies at posts also have developed and adapted
mechanisms to coordinate efforts within the U.S. Embassy community in
Mexico and Central American countries. Moreover, State has established
formal bilateral mechanisms to coordinate with Mexican authorities.
This includes a High-Level Consultative Group consisting of cabinet-
level officials whose purpose is "to set strategic direction" for the
Mérida Initiative, a Policy Coordination Group consisting of
ambassador and assistant secretary-level officials whose purpose is to
set policy and monitor the progress on the strategic direction, and a
Bilateral Implementation Group consisting of working-level officials
whose purpose is to review status of projects and comment on any
successes or difficulties encountered. For Central American countries,
unlike Mexico, no formal coordination mechanism is in place between
U.S. agencies and their host government counterparts working on Mérida
implementation. However, State officials describe a high level of
security dialogue and bilateral coordination between the United States
and Central American Mérida recipient countries.
GAO Recommends That State Incorporate Performance Measures That
Indicate Progress Toward Strategic Goals in the Strategy for the
Mérida Initiative and Develop More Comprehensive Timelines for Future
Deliveries:
In the report issued today, we recommended that the Secretary of State
incorporate into the strategy for the Mérida Initiative outcome
performance measures that indicate progress toward strategic goals and
develop more comprehensive timelines for future deliveries.
State commented on a draft of our report and agreed with our findings
and recommendations.
Mr. Chairman, this concludes my statement. I would be pleased to
respond to any questions that you or other Members of the Subcommittee
may have.
GAO Contact and Staff Acknowledgments:
For questions regarding this testimony, please contact Jess T. Ford at
(202) 512-4268 or fordj@gao.gov. Contact points for our Offices of
Congressional Relations and Public Affairs may be found on the last
page of this statement. Individuals who made key contributions to this
statement include Juan Gobel, Assistant Director; Marc Castellano;
Marisela Perez; Erin Saunders Rath; Debbie Chung; Grace Lui; and
Martin De Alteriis. Technical assistance was provided by Jena
Sinkfield and Doug Cole.
[End of section]
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