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### Viewing cable 06BRASILIA579, BRAZIL - TREASURY A/S O'BRIEN MEETINGS ON MONEY

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
06BRASILIA579 | 2006-03-22 19:33 | 2011-07-11 00:00 | CONFIDENTIAL | Embassy Brasilia

`

    VZCZCXRO8469
    PP RUEHRG
    DE RUEHBR #0579/01 0811933
    ZNY CCCCC ZZH
    P 221933Z MAR 06
    FM AMEMBASSY BRASILIA
    TO RUEHC/SECSTATE WASHDC PRIORITY 4889
    RUEATRS/DEPT OF TREASURY WASHINGTON DC PRIORITY
    INFO RUEHRG/AMCONSUL RECIFE 4497
    RUEHSO/AMCONSUL SAO PAULO 6604
    RUEHRI/AMCONSUL RIO DE JANEIRO 1741
    RUEHBU/AMEMBASSY BUENOS AIRES 3872
    RUEHAC/AMEMBASSY ASUNCION 5294
    RUEHMN/AMEMBASSY MONTEVIDEO 6120
    RUEHLP/AMEMBASSY LA PAZ 4436
    RUEHCV/AMEMBASSY CARACAS 3157
    RUEHBO/AMEMBASSY BOGOTA 3643
    RUEHPE/AMEMBASSY LIMA 2886
    RUEHME/AMEMBASSY MEXICO 1939
    RUEAHLC/DHS WASHDC
    RHEHNSC/NSC WASHDC

` `

    C O N F I D E N T I A L SECTION 01 OF 05 BRASILIA 000579

    SIPDIS

    SIPDIS

    STATE FOR S/CT - NOYES
    STATE FOR WHA - D. MCCARTHY/C.CROFT
    STATE FOR INL - RINDLER
    TREASURY FOR TFI - O'BRIEN, MEDINA
    DHS FOR ICE - D.THOMPSON
    TREASURY FOR FINCEN - SHOWELL

    E.O. 12958: DECL:03/09/2016
    TAGS: KTFN EFIN PTER SNAR ETTC PREL BR
    SUBJECT: BRAZIL - TREASURY A/S O'BRIEN MEETINGS ON MONEY
    LAUNDERING, TERROR FINANCE

    REF: BRASILIA 0410

    Classified by Deputy Econ Counselor Andrew Plowman based upon
    Reasons 1.5(B) and (D).

    ¶1. (C) Summary: GoB interlocutors told Treasury A/S O'Brien
    during Brasilia meetings March 6 and 7 that the GoB has no
    evidence of terror cells or terrorist financiers operating in
    the Brazil-Paraguay-Argentina Tri-border Area (TBA).  Ministry
    of Foreign Affairs Transnational Crimes Coordinator Marcos Pinta
    Gama expressed frustration that while USG officials have been
    making public statements about such activities taking place in
    the TBA, the USG is not sharing such information with the GoB.
    O'Brien responded that the USG remains concerned that the region
    is uniquely vulnerable to abuse as a source of financing for
    groups with links to terrorist organizations, citing the example
    of Ahmad Barakat, whom the USG had designated a terror
    financier.  The GoB is drafting counter terrorism legislation
    that would criminalize terror financing and expects to create,
    via decree, a high-level counter-terrorism coordination group,
    most likely in the Institutional Security Cabinet (GSI).  It is
    also moving to refine its anti-money laundering regime through
    legislation, currently in draft, that would implement the
    Financial Action Task Force (FATF) recommendation on
    politically-exposed persons and give the GoB administrative
    authority to freeze transactions.  Several opportunities for
    cooperation were highlighted, including the GoB's plans to
    overhaul its law enforcement and prosecutorial training
    programs.  GoB interlocutors welcomed progress on establishing a
    Trade Transparency Unit and asked for assistance on how to
    manage and dispose of seized assets.  End Summary.

    ¶2. (C) Background: a Treasury and DHS delegation, led by
    Assistant Secretary for Terrorism Finance and Financial Crimes
    Patrick O'Brien held meetings with senior GoB counterparts March
    6 to 7 in Brasilia.  The U.S. delegation included Treasury
    policy analyst Cynthia Medina, Public Affairs Officer Molly
    Millerwise, FINCEN regional analyst Jennifer Showell and David
    Thompson, Chief of the Money Laundering Coordination Center at
    the Department of Homeland Security Immigration and Customs
    Enforcement Bureau (DHS-ICE).  The delegation met with: Ministry
    of Foreign Relations Coordinator for the Combat Against Illicit
    Transnational Activities Marcos Pinta Gama; Gustavo Rodrigues,
    President of the Council for the Control of Financial Activities
    (COAF - Brazil's financial intelligence unit); Superior Criminal
    Court Justice Gilson Dipp; Deputy Director of the Institutional
    Security Cabinet, General Wellington Fonseca and Intelligence
    Agency (ABIN) Intelligence Department Director Carlos Calvano;
    Ministry of Justice Department Head for International
    Cooperation and Asset Seizure Antenor Madruga; Receita Federal
    (IRS-equivalent) Assistant Secretary Cardoso and Customs Service
    Director Medina; and, Central Bank Department Head for the
    Combat of Illicit Financial Activities Ricardo Liao.  O'Brien
    also held a press roundtable on March 7.

    Draft Terrorism Legislation
    ---------------------------

    ¶3. (C) COAF President Rodrigues acknowledged to A/S O'Brien
    during their March 6 meeting that, even though Brazil had now
    ratified the UN convention on the suppression of terrorist
    financing, it still had the most to do in the area of terror
    financing in order to bring its legal framework up to
    international standards.  The GoB had developed a policy paper
    on the issue, he said, which the Institutional Security Cabinet
    (GSI -- an office combining functions of the NSC and DNI, which
    reports directly to the President) was using as the basis for
    drafting a law that would define terrorism and its financing as
    criminal acts for domestic legal purposes.  Superior Criminal
    Court Justice Gilson Dipp clarified separately that, were a

    BRASILIA 00000579  002 OF 005

    terrorist act or terrorist financing to take place on Brazilian
    soil before a new terrorism law is passed by Congress, Brazilian
    judges could theoretically apply the UN terrorism conventions,
    since they now carry the force of law in Brazil.  There is,
    however, little direct precedent for this option.

    ¶4. (C) Another alternative, Justice Dipp said, would be to apply
    the 1983 national security law, which defines several types of
    acts as terrorism.  He admitted that applying the 1983 law,
    which dates back to the military dictatorship and pre-dates the
    1988 constitution, might prove legally complex and politically
    unpalatable to some.  GSI Deputy Director General Wellington
    told O'Brien that the Institutional Security Cabinet was
    considering a parallel measure to establish a high-level
    coordination council to deal with counter-terrorism policy and
    coordinate response to terrorist acts.  The unit likely would be
    located in the GSI, although placing it in the intelligence
    agency (ABIN) was another possibility.  The GoB hoped to
    establish the group well in advance of the 2007 Rio de Janeiro
    Pan American Games, so that it could participate in security
    planning for the games, Wellington said.

    Trade Transparency Unit
    -----------------------

    ¶5. (SBU) O'Brien and David Thompson of DHS-ICE described for all
    their Brazilian interlocutors the advanced status of planning
    for the establishment of a U.S.-Brazil Trade Transparency Unit
    (TTU), initial set-up of which may begin within two weeks.
    Thompson noted that the preliminary data exchanges already had
    produced several leads for investigation by both sides and
    expressed confidence in the value of the unit for both parties.
    GoB interlocutors, particularly Receita Federal's Cardoso and
    Customs Director Medina, welcomed the progress on the TTU.

    Tri-Border Area -- Please Share Your Information
    --------------------------------------------- ---

    ¶6. (C) GSI Deputy Director General Wellington, ABIN Intelligence
    Director Calvano, MRE Transnational Crimes Coordinator Pinta
    Gama and COAF President separately delivered to O'Brien the same
    talking point on the TBA:  although the GoB has significant
    police, customs and intelligence assets in the TBA, it has found
    no evidence of operational terrorist cells or even of terror
    financing in the region.  Wellington acknowledged that while
    there is undoubtedly a flow of remittances from Brazil to
    Lebanon, the GoB has not been able to find evidence that these
    go to support terrorism.  O'Brien responded that the USG remains
    concerned that the region is uniquely vulnerable to abuse as a
    source of financing for groups with links to terrorist
    organizations, citing the example of Ahmad Barakat, whom the USG
    had designated a terror financier.  And while the GoB might not
    see an operational terrorist threat in that region, terror is
    now a global issue and all countries must act accordingly,
    O'Brien argued.  In that context, he commended the GoB
    ratification of the UN terrorism financing convention and urged
    the government to continue its review of Brazil's
    counter-terrorism legal framework.

    ¶7. (C) Pinta Gama acknowledged that the TBA is vulnerable to
    transnational crime of various sorts.  There is political will
    to address these issues, he affirmed, pointing to enhanced
    enforcement of border controls by Brazilian Customs and police
    officials and Brazil's increased enforcement of anti-IPR piracy
    laws.  The GoB also actively had participated in the
    multilateral 3 plus 1 framework, Pinta Gama noted, and felt that
    this year would be crucial for the GoB's assessment of the
    future of that mechanism. Pinta Gama expressed frustration that
    senior USG officials continue to make public statements about
    the presence of terrorists and terrorist financing in the TBA,

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    but that despite the existence of this coordinating mechanism
    and useful bilateral channels the USG does not share detailed
    information on these persons.  The GoB, Pinta Gama said, did not
    want this to "jeopardize" what was otherwise a very useful
    dialogue and coordination mechanism.  (Comment: Although we're
    used to hearing this GoB complaint, Pinta Gama's language was
    qualitatively stronger than during previous iterations, albeit
    delivered with diplomatic polish.  End Comment.)

    ¶8. (C) ABIN's Calvano stated that the TBA regional intelligence
    center is close to being up and running, but some details remain
    to be ironed out with Paraguay and Argentina (comment: in other
    words, whether Paraguayan and Argentine officials will staff the
    center at all).  Wellington noted the idea for the TBA center is
    based on a successful (NAS-funded) regional intelligence center
    in the Amazon city of Tabatinga, where Colombia, Brazil and
    Peruvian borders meet.  The GoB, he said, also is considering
    establishing a similar center on the Bolivian border since it
    expects reduced coca eradication under the Evo Morales
    Presidency.

    Opportunities for Cooperation
    -----------------------------

    ¶9. (SBU) MOJ International Cooperation Director Madruga
    explained to O'Brien that the GoB plans to overhaul the various
    training programs belonging to different law enforcement
    agencies and the courts.  It planned to introduce standardized
    content for similar courses, certify the course instructors and
    issue course certificates to students as well.  This approach,
    he said, would help ensure the quality of courses across
    agencies.  The course certificates would allow students to count
    the coursework towards job or promotion requirements.  The GoB
    plans an inter-agency coordination meeting at the end of March.
    Emboff noted that the Embassy is looking at how better to target
    USG-offered law enforcement training and suggested that both
    sides coordinate their efforts.

    ¶10. (SBU) Receita Federal A/S Cardoso and Customs Director
    Medina asked O'Brien for USG expertise in managing asset
    forfeiture funds.  The GoB's enhanced customs enforcement
    operations, particularly in the TBA meant Brazilian Customs was
    seizing assets at a rate far quicker than it could dispose of
    them, resulting in overflowing warehouses and impound lots.
    O'Brien and Thompson outlined how the Treasury and Department of
    Justice asset forfeiture funds work and undertook to try to
    facilitate an exchange of technical expertise.  Thompson also
    noted the possibility of training for combating the growing use
    of cash-couriers, which Medina and Cardoso welcomed.

    Refining the AML Regime
    -----------------------

    ¶11. (SBU) The MOJ's Madruga stated that the GoB had begun to
    effect a culture-change in law enforcement on the importance of
    Anti-Money Laundering, which Justice Minister Bastos had made a
    priority from the beginning of the Lula administration in 2003.
    This was reflected in the fact that the GoB had, in December
    2005, held its third annual national anti-money laundering
    strategy session and was well on its way to institutionalizing
    the process, although more work remained to be done.  Rodrigues
    said that COAF plans to double in size, in large part to deal
    with the huge increases in suspicious transaction reporting from
    banks, factoring businesses, real estate brokers and other
    entities.  He cited reporting from "factoring" businesses which
    increased from 27 reports in 2004 to 12,000 in 2005, due in
    large part to a new requirement to report any transaction above
    Reais 50,000 (about USD 23,000).

    ¶12. (SBU) Rodrigues noted the GoB is working on draft

    BRASILIA 00000579  004 OF 005

    legislation to refine the AML regime.  One key aspect of the
    draft would be the definition of politically-exposed persons
    (PEPs), whose financial transactions would come under enhanced
    scrutiny by financial institution compliance officers.  The
    Central Bank's Leao said the current draft also would give the
    GoB administrative authority to freeze transactions temporarily
    while it seeks a court order (from one of the specialized
    anti-money laundering courts) confirming the freeze.  Leao
    stated there was still discussion about where this authority
    would reside within the government.  Separately, Rodrigues
    affirmed that he did not want the administrative authority to
    freeze a transaction to reside with COAF.  O'Brien argued that
    such administrative authority was essential to act quickly
    enough to block suspect transactions.

    ¶13. (SBU) Rodrigues stated that the GoB included in the 2006
    anti-money laundering national strategy document a goal of
    improving feedback to COAF on its reports to law enforcement of
    suspicious financial activities.  To date, he said, feedback had
    been lacking.  Recently law enforcement agencies had begun to
    inform COAF when they have opened a formal investigation based
    on one of its reports, but they still receive little comment on
    the quality of the reports.  Currently, the principal way COAF
    learns of the value of a particular report is when it sees press
    reports of the arrests of persons on whom it reported.  One such
    recent case, Rodrigues stated, was the federal police arrest of
    persons who were falsifying Kimberley Certificates for diamonds
    (reftel).  COAF, he said, is increasing its own feedback and
    outreach to the reporting institutions in a bid to improve the
    quality of suspicious transaction reports.

    ¶14. (SBU) Justice Dipp noted that Brazil's federal-level
    specialized courts for dealing with financial crimes were
    proving themselves a resounding success, with prosecutions and
    convictions both up substantially since their creation in 2003.
    The existence of the specialized courts also was encouraging
    some specialization from the prosecutors and law enforcement
    agencies that worked with them.  Dipp stated that these
    particular judges (25 total, in the principal Brazilian regional
    capitals) also were proving themselves to be innovative in their
    application of existing legal authorities (e.g. plea bargaining)
    but which Brazilian judges rarely applied.  Furthermore, Dipp
    affirmed, the Federal Judicial Council was ensuring feedback and
    promoting the adoption of best practices by hosting twice-yearly
    meetings of these judges to discuss the program's practical
    implementation.  Despite the success of these federal-level
    specialized courts, Dipp noted there was no analogue at the
    state level, where the majority of money laundering cases are
    tried.  O'Brien suggested the GoB share the results of this
    successful experiment with regional counterparts.

    Brazil's FATF-South Agenda
    --------------------------

    ¶15. (SBU) COAF President Rodrigues outlined to O'Brien his
    priorities for Brazil's presidency of the FATF South.  First, he
    said, the GoB wants to focus on getting terrorist finance laws
    passed in those jurisdictions where this has not yet been done.
    His second priority is to focus a bit more on
    regionally-relevant issues, particularly corruption and tax
    evasion.  To this end, he wanted to promote implementation of
    the FATF recommendation on politically exposed persons, as
    Brazil was working to do.  He also hoped FATF-South could
    develop additional recommendations that would bolster
    anti-corruption efforts.  Finally, Rodrigues contemplated
    improving the mutual evaluation process, which he argued needed
    to be strengthened.

    ¶16. (U) A/S O'Brien was unable to clear this message before
    leaving post.

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    LINEHAN

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