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### Viewing cable 06MANAGUA281, BOILING THE FROG": HOW THE SANDINISTAS HAVE

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
06MANAGUA281 | 2006-02-06 19:31 | 2011-06-01 08:00 | CONFIDENTIAL | Embassy Managua

Appears in these articles:
http://www.nacion.com/2011-05-30/Mundo/NotasSecundarias/Mundo2758456.aspx
http://www.nacion.com/2011-05-30/Mundo/NotasSecundarias/Mundo2758467.aspx
http://www.nacion.com/2011-05-30/Mundo/NotasSecundarias/Mundo2758468.aspx
http://www.nacion.com/2011-05-30/Mundo/NotasSecundarias/Mundo2758464.aspx
http://www.confidencial.com.ni/articulo/4103/la-embusa-y-el-gabinete-de-ortega
http://www.confidencial.com.ni/articulo/4104/d-rsquo-escoto-en-onu-ldquo-un-desafio-de-ortega-a-ee-uu-rdquo
http://www.confidencial.com.ni/articulo/4102/estrada-y-la-ldquo-doble-cara-rdquo-ante-ee-uu
http://www.confidencial.com.ni/articulo/3966/la-ldquo-injerencia-rdquo-de-ee-uu-en-el-2006
http://www.nacion.com/2011-05-23/Mundo/Relacionados/Mundo2758764.aspx
http://www.nacion.com/2011-05-23/Mundo/NotaPrincipal/Mundo2758753.aspx
http://www.confidencial.com.ni/articulo/4041/millones-de-dolares-sin-control-y-a-discrecion
http://www.confidencial.com.ni/articulo/4040/la-ldquo-injerencia-rdquo-de-venezuela-en-2006
http://www.confidencial.com.ni/articulo/4047/rodrigo-barreto-enviado-de-ldquo-vacaciones-rdquo
http://www.nacion.com/2011-05-16/Mundo/NotasSecundarias/Mundo2757239.aspx
http://www.nacion.com/2011-05-16/Mundo/NotaPrincipal/Mundo2746658.aspx
http://www.nacion.com/2011-05-16/Mundo/Relacionados/Mundo2757244.aspx
http://www.nacion.com/2011-05-16/Mundo/Relacionados/Mundo2746673.aspx
http://www.confidencial.com.ni/articulo/3991/dra-yadira-centeno-desmiente-cable-diplomatico-eeuu
http://www.confidencial.com.ni/articulo/3968/pellas-pronostico-a-eeuu-victoria-de-ortega-en-2006
http://www.confidencial.com.ni/articulo/3967/barreto-era-ldquo-fuente-confiable-rdquo-para-eeuu

`

    VZCZCXYZ0030
    PP RUEHWEB

    DE RUEHMU #0281/01 0371931
    ZNY CCCCC ZZH
    P 061931Z FEB 06
    FM AMEMBASSY MANAGUA
    TO RUEHC/SECSTATE WASHDC PRIORITY 5148
    INFO RUEHZA/WHA CENTRAL AMERICAN COLLECTIVE
    RUEHCV/AMEMBASSY CARACAS 0538
    RUEAIIA/CIA WASHDC
    RHEFDIA/DIA WASHINGTON DC
    RHEHNSC/NSC WASHINGTON DC

` `

    C O N F I D E N T I A L MANAGUA 000281

    SIPDIS

    SIPDIS

    DEPT FOR WHA/CEN

    E.O. 12958: DECL: 02/03/2016
    TAGS: PGOV SOCI KDEM KCOR NU
    SUBJECT: "BOILING THE FROG": HOW THE SANDINISTAS HAVE
    COOKED THE CSE

    Classified By: Ambassador Paul Trivelli for reasons 1.4 (b and d)

    ¶1. (C) Summary: A former top official in Nicaragua's Supreme
    Electoral Council (CSE) recently described to Emboffs the
    seamier side of the CSE -- an organization he claims is
    riddled with corruption and fraudulent partisan influence
    from top to bottom.  In addition to blatant financial fraud
    and mismanagement, ex-Director of Cedulation (issuance of
    national/voter ID's) Dionisio Palacios reported illegal and
    selective issuance of cedulas, problems with multiple voting,
    and the effective subordination of the CSE to the Sandinista
    Front (FSLN).  In a separate meeting, current CSE senior
    civil servant Rodrigo Barreto asserted that Palacios' claims
    are not credible and explained CSE strategies for issuing
    cedulas and registering voters.  While Palacios clearly has a
    bone to pick with the CSE, many of his accusations confirm
    reports from other contacts and depict an institution that
    has abandoned virtually all independence and credibility.
    End Summary.

    BOILING THE FROG
    - - - - - - - - -

    ¶2. (C) One way to cook a frog is to place it in a pot of
    cool, comfortable water.  To avoid having the frog jump to
    safety, the water must heat slowly, without the frog
    realizing the increasing mortal danger -- until it is cooked
    and ready to eat.  On February 1, former CSE Director of
    Cedulation Dionisio Palacios reported a very similar scenario
    at the CSE, with the FSLN in the role of the chef; the PLC,
    the frog.  Palacios informed us that he had worked for the
    CSE in various positions since 1994 and observed a trend of
    increasing partisanship and politicization.  He claimed that,
    despite the theoretically even division of positions between
    the PLC and FSLN, virtually all technical-level functionaries
    at the CSE are FSLN militants, while Liberal employees have
    been gradually sidelined and very few continue to have any
    real function or control (but continue to receive a salary).
    When asked point blank if there are any honest people left at
    the CSE, Palacios responded, "Honestly, no."

    ¶3. (C) We asked Palacios why CSE president Roberto Rivas,
    supposedly a Liberal magistrate, has allowed this Sandinista
    take-over and continues to side with FSLN magistrates against
    the Liberals on many issues.  Palacios explained that Rivas
    is implicated in several cases of financial malfeasance from
    his time at the CSE (this is his third consecutive term) and
    before, about which the Sandinistas are aware and are ready
    to exploit through the Sandinista-controlled courts should
    Rivas displease them.  According to Palacios, PLC leader
    Arnoldo Aleman recognized Rivas' increasingly compromised
    situation and plotted to have him replaced when Rivas' term
    expired in 2005.  However, Rivas' mentor (and rumored father)
    Cardinal Miguel Obando y Bravo intervened with Aleman to save
    Rivas' position.  The FSLN also lobbied Aleman to retain
    Rivas as part of the PLC-FSLN pact to divide the spoils in
    pact-controlled government institutions.

    CSE BUDGET WOES CAUSED BY RIVAS' MISMANAGEMENT
    - - - - - - - - - - - - - - - - - - - - - - - -

    ¶4. (C) The CSE once operated offices in all 152
    municipalities and issued cedulas in a relatively timely
    manner.  In 2003, the budget of the Cedulation office was
    cut, and the office was no longer able to purchase sufficient
    materials to issue cedulas efficiently -- a problem that has
    only worsened over time.  In 2004, the CSE closed most of the
    municipal offices, again for budget reasons, leaving only the
    central offices and 18 outposts in the departmental/regional
    capitals open to serve the public.  Rivas complains that the
    Bolanos Administration is starving the CSE of funds for
    political reasons, but according to Palacios, Rivas has
    diverted massive amounts of money to increase benefits for
    magistrates, including drivers, bodyguards, and lavish
    expense accounts.  Palacios also claims Rivas has allotted
    chief CSE functionary Rodrigo Barreto an "emergency fund"
    that Barreto supposedly abuses.  When asked about financial
    responsibility, Palacios said that Rivas bribes the external
    auditors to accept internal audit reports without question.
    The executive cannot force the CSE to open its books because
    it is an independent branch of government, allowing Rivas to
    allocate funds as he pleases.

    FSLN USES CONTROL OF CSE TO MANIPULATE CEDULA ISSUANCE
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    ¶5. (C) Palacios confirmed reports that Sandinista employees
    at the CSE are issuing cedulas for under-age (under 16)
    Nicaraguans and foreigners based on falsified birth
    certificates.  He said this type of fraud is also
    facilitating trafficking in persons and drugs.  Palacios
    stated that both the FSLN and PLC use whatever control they
    have in the municipalities and electoral councils to
    facilitate cedulas for their own party militants and delay or
    block cedula issuance for others.  He noted that the mayors
    are in charge of the civil registries in the municipalities,
    and therefore control the issuance of birth certificates,
    required to obtain cedulas.  The CSE in general does nothing
    to encourage or facilitate the registration of 16-year olds
    (112,000 Nicaraguans come of age each year), Palacios
    claimed; rather, the political parties play that role.

    ¶6. (C) Palacios explained that, in addition to the new
    registrants, 250,000 Nicaraguans file claims for damaged or
    lost cedulas each year.  He said that 150,000 cedulas have
    been produced, but not distributed, and the CSE will probably
    not make any effort to do so.  The FSLN magistrates will
    absolutely oppose any "plan mochila" proposed by NGOs to
    distribute cedulas in remote areas because they recognize
    that these efforts enfranchised primarily Liberal and
    independent voters in past elections, Palacios claimed.

    ¶7. (U) During an earlier meeting, Barreto told us that the
    CSE is planning projects to speed up the cedulation process
    and allow voters to register at the polling place of their
    choice.  According to Barreto, the CSE will open new centers
    in Managua and cut down the cedula processing time to 24
    hours, as well as make a greater effort to issue cedulas in
    other municipalities. He complained that the GON procurement
    system is ridiculously bureaucratic and contributed to the
    delay in cedula issuance.  He also claimed that the cedula
    problem "is greatly inflated" by the CSE,s political rivals.

    MULTIPLE VOTING NOT DIFFICULT
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    ¶8. (C) Personally, Palacios believes that the CSE does not
    have the right to suspend or reform Article 41 of the
    electoral law, which allows citizens to vote at any location
    if they have a valid cedula that shows they live in the area.
     (Note: Article 41 is currently the subject of an intense
    debate, with the Liberal parties protesting
    CSE/FSLN-sponsored poll regulations that state that a voter
    must appear on the list allocated to a specific voting
    station.  End Note.)  However, he acknowledged that this law
    more easily allows people to vote multiple times.  Palacios
    explained that a person could simply obtain a second birth
    certificate by using his father's last name in addition to or
    instead of his mother's, and then use the birth certificate
    to apply for a second cedula.  Regarding the ink used to
    stain the fingers of voters to prevent this type of fraud,
    Palacios asserted that a person can put grease or a similar
    substance on his finger to block the absorption of the ink.
    Poll workers are supposed to clean the finger before applying
    the ink, but most are poorly trained and wipe the finger
    after the ink is applied, he explained.

    ¶9. (U) To alleviate the potential displacement caused by the
    suspension of Article 41, Barreto reported that the CSE will
    open voting tables on five Sundays in three different phases
    before November to allow citizens to register at the voting
    location of their choice.  He explained that voters will be
    able to get a "verification document" from the CSE that will
    allow them to vote at their preferred location even if, for
    some reason, they do not appear in the pardon on voting day
    -- thus avoiding the "raton loco" of the 2004 municipal
    elections.  The CSE will initiate a media campaign, in
    conjunction with the NGO community, to inform voters of the
    registration process.  When queried about the large number of
    deceased or absent voters on the padron and the possibility
    for fraud, Barreto demurred, claiming that the strong ink
    placed on voters, thumbs on election day would prevent the
    same person from voting twice (unless, of course, they grease
    their thumbs first).

    EXPAT VOTING NOT IN THE CARDS THIS YEAR
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    ¶10. (SBU) Barreto reported that casting votes from abroad
    would not be possible this year, though he personally
    supports the project.  He claimed that the CSE's budget
    cannot support such an effort, nor is the civil registry

    sufficiently organized to permit consular officers to verify
    applications.  Barreto commented that the CSE has held
    several meetings with the MFA to discuss this issue, but that
    the MFA has yet to produce a true consular registry.  In any
    case, Barreto argued that most eligible voters abroad already
    have a cedula and may return to Nicaragua to exercise their
    suffrage.

    BARRETO AND PALACIOS MUTUALLY SUSPICIOUS
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    ¶11. (C) When asked about the CSE's firing of Palacios last
    October, Barreto replied that Palacios and his office were
    under investigation for illegally "expediting" cedulas for a
    fee.  At first, Barreto said that he wasn't sure if Palacios
    was personally involved in the scandal, but later added that
    Palacios was frustrated because he did not feel the PLC
    magistrates were supporting him and he stood to lose his
    "business."  Regarding the veracity of Palacios, allegations
    against the CSE, Barreto admitted that he has ignored
    Palacios, charges, but would not afford them much
    credibility in any case.  Barreto did admit, however, that
    Palacios "knew what was going on in Cedulation."  Barreto
    told us that the new Director of Cedulation, Sergio Rayo, was
    sponsored by PLC magistrate Rene Herrera.  He termed Rayo a
    "conscientious worker."

    ¶12. (C) To Palacios, Barreto is "a servant of Roberto Rivas"
    who has his sticky fingers in Rivas' CSE budget-engorged
    pockets.  He advised us not to trust Barreto.  Palacios
    informed us that Sergio Rayo is related to Rene Herrera, but
    was also part of the Sandinista intelligence apparatus during
    the 1980s.  He said he could not confirm the current
    inclination of Rayo's loyalties.

    COMMENT
    - - - -

    ¶13. (C) The CSE magistrates' stubborn resistance to allowing
    IFES technical advisors to enter their shadowy domain lends
    credence to Palacios accusations of budgetary opacity and
    mismanagement.  The Ambassador called Rivas on February 3 to
    discuss the CSE's intransigence, and Rivas assured him that
    IFES will receive a letter next week outlining what type of
    assistance the CSE requires from IFES, noting that voter
    education and communications are among the priorities.  Rivas
    claimed he is also amenable to technical support.  The
    Ambassador reiterated our commitment to helping him, the CSE
    and the electoral process, observing that it would be a
    tragedy if Rivas were the first CSE head to preside over a
    seriously flawed election.
    TRIVELLI

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