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### Viewing cable 06PANAMA1402, GOP PREVIEWS NEW NATIONAL SECURITY PLAN

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
06PANAMA1402 | 2006-07-17 20:09 | 2011-05-28 00:00 | SECRET | Embassy Panama

`

    VZCZCXYZ0000
    RR RUEHWEB

    DE RUEHZP #1402/01 1982009
    ZNY SSSSS ZZH
    R 172009Z JUL 06
    FM AMEMBASSY PANAMA
    TO RUEAIIA/CIA WASHDC
    RHEFHLC/DEPT OF HOMELAND SECURITY WASHINGTON DC
    RHEFDIA/DIA WASHDC
    RHEHNSC/NSC WASHDC
    RUEKJCS/SECDEF WASHDC
    RUEHC/SECSTATE WASHDC 8579
    INFO RUEHZA/WHA CENTRAL AMERICAN COLLECTIVE
    RUEHBO/AMEMBASSY BOGOTA 2358

` `

    S E C R E T PANAMA 001402

    SIPDIS

    SIPDIS

    E.O. 12958: DNG: CO 07/17/2016
    TAGS: PGOV PREL PTER PM
    SUBJECT: GOP PREVIEWS NEW NATIONAL SECURITY PLAN

    REF: (A) PANAMA 0919 (B) PANAMA 1371

    Classified By: Ambassador William A. Eaton for Reasons 1.5(b and d).

    ¶1.  (S) Summary: At the Ambassdor's request, Panama's
    National Security Director Erick Espinosa, Minister of
    Government & Justice (MOGJ) Olga Golcher, and other top GOP
    security officials briefed Ambassador and Emboffs July 14 on
    Panama's new national security strategy.  The strategy is
    premised on the notion that the U.S. withdrawal made Panama
    responsible for its own security, as well as for security of
    trade flows through the Panama Canal consistent with the
    neutrality provisions of the 1977 Torrijos-Carter Treaty.  It
    is also based on the emergence of new "asymmetric" threats
    and lays out three pillars: development of democratic
    institutions, external security, and democratic citizen
    protection.  Espinosa and Golcher reaffirmed the GOP's
    continued commitment to partnering closely with the U.S. in
    ways that do not undermine the Panama Canal's neutrality.
    They hope to do both "traditional" military-type PANAMAX
    exercises, as well as a new type of exercise to boost
    cooperation among law enforcement and inte
    lligence agencies.  The GOP offered reassuring words
    regarding continued close ties to the U.S.  Given the
    apparent disconnect between recent GOP actions and the
    high-minded aims of its new national security plan regarding
    corruption and transparency, we will continue to press the
    GOP to match its words with deeds.  End summary.

    --------------------------------------------- ------------
    National Security: Torrijos' "New Vision for a New World"
    --------------------------------------------- ------------

    ¶2.  (S) Panama's Deputy National Security Director Marcel
    Salamin briefed Ambassador and Emboffs on July 14 with a
    90-minute powerpoint presentation on the GOP's emerging new
    national security strategy.  The plan is based on two
    fundamental assumptions.  First, that the USG's hand-over of
    the Panama Canal and its related assets, together with the
    withdrawal of U.S. forces, also meant that Panama must assume
    responsibility for its own security.  Moreover, the GOP
    believes that it must ensure the Panama Canal's neutrality
    for the benefit of global commerce and regional development
    consistent with the neutrality provisions of the 1977
    Torrijos-Carter Treaty.

    ¶3.  (S) The plan's second underlying assumption is that
    Panama must now cope with the emergence of new types of
    "asymmetric" and "unpredictable" threats that demand
    multilateral responses.  Although the GOP recognizes the
    continued threat of conventional military threats, the GOP
    now emphasizes the civilian, rather than military, nature of
    its response to these new threats, particularly in light of
    Panama's constitutional demilitarization (following the 1989
    ouster of Manuel Noriega).

    ¶4.  (S) In presenting the plan, Salamin stressed President
    Martin Torrijos' personal involvement in its development.  He
    said that the plan brings together more than a year's worth
    of inter-agency discussions and coordination and that it
    represents a "new scenario" for Panama and the international
    community.  Salamin concluded, "This plan is ambitious.  But
    we can dream, can't we?  All we ask is to be respected."

    --------------------------------------------- -----------
    Three Pillars of the "Integrated National Security Plan"
    --------------------------------------------- -----------

    Development of Democratic Institutions
    --------------------------------------

    ¶5.  (S) With "human security" as the foundation of the GOP's
    new national security plan, "democratic institutional
    development" is the first of the plan's three main pillars.
    Salamin said that the Torrijos administration has developed
    the "Panamanian Initiative for Democratizing the Public
    Space" ("IPDED" is its Spanish acronym) as a conceptual
    framework to carry out this pillar.  He said President
    Torrijos will not seek another term, but aims to leave a
    legacy of a stronger democracy by bolstering local
    governments, boosting citizen participation, respecting press
    freedoms, ensuring transparency in government, and
    institutionalizing Panama's multi-ethnic population and
    protecting minority groups.  The GOP will implement IPDED
    through various "governing plans" addressing a range of
    issues, such as energy, housing and urban development,
    training and education, cultural diversity, science and
    technology, public services and infrastructure, health,
    increased market openings (e.g., free trade agreements), and
    mo
    dernization of institutions.

    Panamanian External Security
    ----------------------------

    ¶6.  (S) With this pillar, Salamin said that the GOP hopes to
    make a "unique contribution to international peace and
    security."  He said President Torrijos has stressed Panama's
    need to ensure international commerce in ways consistent with
    the 1977 treaty, i.e., not through military means.  Noting
    that Panama effectively represents an "internal border for
    many countries," the GOP developed its "Panama Secure Trade
    and Transportation Initiative" (PST&TI) as a non-military
    tool for multiple partners to use in securing trade flows
    through Panama.  Under PST&TI, the GOP envisions hosting an
    annual conference of the program's partners, creating an
    independent "board of advisors" for the President (akin to
    that used by the Panama Canal Authority), implementing a
    regime for non-intrusive container inspections, control of
    dual use items, and restricting the trade and transportation
    of weapons of mass destruction.

    ¶7.  (S) The GOP is also developing "Biosecurity Programs"
    under the leadership of its National Secretariat for Science,
    Technology, and Innovation (SENACYT).  These programs, which
    include the ministries of health and agricultural and the
    Gorgas Memorial Laboratory, are focused on combating the
    re-emergence of tropical diseases, forming a "network of
    bio-partners," establishing a regional center for
    bio-medicine, and developing a network for handling
    radioactive disasters.

    ¶8.  (S) In addition, the GOP is focused on training programs
    for its merchant marine personnel and to develop security
    specialists for ports, airports, immigration, and customs
    agencies.

    Democratic Citizen Protection
    -----------------------------

    ¶9.  (S) This pillar is aimed at ensuring public safety and
    restoring the credibility of Panama's Public Forces through
    implementation of programs for social development, public
    security, and democratic institution building.  Torrijos has
    issued several Presidential Directives aimed at, inter alia,
    improved hiring and training of Public Forces personnel,
    creating specialized units to address youth gangs, organized
    crime, and family violence, and creating a "Special Frontier
    Service" that essentially merges traditional police and
    military functions in border areas.  Salamin mentioned the
    need for Panama's security services to have their own
    academies since officers who have studied overseas come back
    with "different ideas."

    ¶10.  (S) In addition, the GOP plans to fuse its Maritime and
    Air services into a single Coast Guard, create a National
    Immigration Service, and establish a National Customs
    Service.  The GOP is also using a $22 million IDB loan to
    strengthen and modernize the National Police and to fully
    complete the transition of Panama's former military forces
    into an effective police force.

    --------------------------------
    Implications for U.S. Engagement
    --------------------------------

    "Neutrality" vs. "Alliance"
    ---------------------------

    ¶11.  (S) Ambassador pressed Panamanian officials for clarity
    on whether Panama planned to pursue a new policy of
    "strategic neutrality" vs. Panama's more traditional
    "strategic alliance" with the U.S.  National Security
    Director Espinosa and MOGJ Golcher reaffirmed the GOP's
    continued commitment to partnering closely with the U.S. in
    ways that do not undermine the Panama Canal's neutrality.

    Military Training & PANAMAX
    ---------------------------

    ¶12.  (S) Espinosa and Golcher blamed GOP "improvisation" and
    "internal miscommunication" for Panama's late cancellation of
    recent training exercises programmed earlier with DoD.  They
    acknowledged the financial and other problems this caused for
    the USG and stressed their intent to improve GOP coordination
    with the DoD.  They also stressed that the GOP recognizes the
    importance of PANAMAX and remains committed to it, but noted
    that, in keeping with their new strategic vision, the GOP
    would like to also develop a second type of PANAMAX-like
    exercise focused on addressing emerging "new threats" (e.g.,
    terrorism and organized crime).  Their hope would be to do
    both "traditional" military-type PANAMAX exercises, as well
    as this new type of exercise to boost cooperation among law
    enforcement and intelligence agencies.

    Planned SMN-SAN Merger and PTJ Changes
    --------------------------------------

    ¶13.  (S) The GOP has yet to set a date for its announced
    merger of the National Maritime Service (SMN) and the
    National Air Service (SAN) into a Coast Guard-like entity,
    although President Torrijos told Ambassador June 9 that it
    would be sometime after October 22, the date of the Panama
    Canal referendum.  The administration is developing a new
    "maritime security doctrine" that would reflect this new
    entity and appears to have just started drafting the new
    "organic law" required to effect the merger.  Salamin said
    the GOP wants its new Coast Guard to function primarily as a
    police agency, but recognized that its "other functions"
    would likely warrant military training.  The same can be said
    for the creation of a Special Border Service, which will be
    separate from the Panamanian National Police (PNP).  This
    service would answer to the MOGJ and would have combined
    police/military-type functions.

    ¶14.  (S) As for planned changes to the "Judicial Technical
    Police" (PTJ - Panama's FBI equivalent), Golcher stressed
    that the GOP's plans to modernize the PTJ, along with
    Panama's other law enforcement agencies, would not
    "undermine" the USG's significant investment in training for
    PTJ personnel.  Stressing that "public safety is the top
    priority," Espinosa said that fifteen years of PTJ's
    existence has "clearly shown" the need for changes in the
    organization's mission and human resources management, but
    that the decisions do not rest entirely with the executive
    branch.

    --------------------------------------------- ----------
    Comment: If Not in Deed, GOP at Least Reassures in Word
    --------------------------------------------- ----------

    ¶15.  (S) The Ambassador had sought this meeting to seek
    clarification of GOP intentions, given a series of recent
    mishaps involving planned USG-GOP military training
    exercises, as well as hints that the Torrijos government may
    seek to distance itself from the U.S. for "neutrality"
    purposes.  Although we don't discount the likelihood that
    old-guard PRD party types will continue to try and push
    Torrijos toward an "arm's length" relationship with the U.S.,
    we were re-assured by Espinosa's and Golcher's recognition of
    Panama's historically close ties to the U.S. and their
    forward-leaning commitment to improving the GOP's
    coordination with us on military and law enforcement
    training.  Given the ambitious scale and the heavy investment
    the GOP's new national security plan would likely require,
    they will need considerable help to carry it out.  When we
    begin planning for the next budget cycle, the GOP will likely
    scrutinize closely the training we offer to see how it fits
    with their new plan, which clearly de-emphas
    izes military elements in favor of police work.

    ¶16.  (S) Nonetheless, we are struck by the apparent
    disconnect between the growing influence of Noriega-era
    holdovers and recent GOP backsliding on anti-corruption
    (reftels) and the high-minded aims set forth in Torrijos'
    National Security Plan to, inter alia, promote democratic
    institutions, guarantee transparency, and respect freedom of
    the press.  Though mindful of what the GOP says on this
    score, we will continue to watch closely what it does and
    will press the GOP to match its words with deeds.  End
    comment.
    EATON

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