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### Viewing cable 04ABUJA35, MAKING NIGERIA AN EVIAN TRANSPARENCY AND

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
04ABUJA35 | 2004-01-09 15:14 | 2011-08-25 00:00 | UNCLASSIFIED | Embassy Abuja

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

` `

    UNCLAS SECTION 01 OF 03 ABUJA 000035

    SIPDIS

    E FOR ANNE PENCE
    EB/IFD/OIA FOR MARSHA KELLEY AND TIM HAUSER
    INL/C FOR DAVID LUNA AND JOHN BRANDOLINO

    E.O. 12958: N/A
    TAGS: PGOV KCOR ETRD NI
    SUBJECT: MAKING NIGERIA AN EVIAN TRANSPARENCY AND
    ANTI-CORRUPTION PROGRAMS PILOT COUNTRY

    REF: A. 03 STATE 345287

         ¶B. 03 ABUJA 2231
         ¶C. 03 ABUJA 2216

    -------
    SUMMARY
    -------

    ¶1.  Post believes Nigeria is an important focus for U.S. and
    international efforts on corruption and transparency, and
    should be a pilot country under the Evian Declaration (Ref
    A).  Nigeria's Government has started nine different
    transparency or anti-corruption programs, several with U.S.
    and other G-8 members' assistance.  EITI is important among
    them, but the extractive industries by no means are, nor
    should they be, the sole focus of either the GON's or our
    efforts.  The Nigerian Government has recently put on trial
    the Minister of Labor, two former Ministers, a Permanent
    Secretary and others in a procurement scandal, and both the

    SIPDIS
    Government and the National Assembly announced new committees
    last month to tackle budget implementation reform.  Making
    Nigeria a pilot country under the Evian Declaration would be
    an excellent response, and concrete support, for these
    nascent moves forward as long as G-8 members are willing to
    ramp up and sustain their support.  End Summary.

    ----------------------------
    NIGERIAN GOVERNMENT IS READY
    ----------------------------

    ¶2.  Both the Embassy and the Department have had extensive
    discussions with the Nigerian Government on
    transparency/anti-corruption efforts, including under Evian.
    In post's latest discussion on December 23 with the GON's
    anti-corruption czar, Senior Special Advisor to the President
    Dr. Ezekwesili, she noted Nigeria's interest in becoming a
    pilot country under the Evian Declaration on Fighting
    Corruption and Enhancing Transparency, saying the GON is
    committed to fighting corruption, implementing transparency
    in GON operations to include energy revenues and
    budget/procurement implementation, and downsizing government
    through the sale of GON parastatals.

    ¶3.  In response to Ref A's special paragraph for Abuja, the
    GON is beginning to address the key issues in budget and
    procurement.  The main issues in the budget are transparency
    and "budget implementation," the latter a Nigerian term for
    the fact that GON routinely and often refrains from expending
    money for many items approved in its budget.  President
    Obasanjo told the National Assembly in December, for example,
    that the GON's Central Bank had not released money to GON
    ministries for approximately half of the allocated items in
    the GON's capital budget.  The National Assembly believes the
    figure is closer to 80 percent not released, and thus the
    expenditures never made.  Both the Executive and the
    Legislative branches are setting up new institutions to
    address the budget implementation problem (see below).

    ¶4.  The GON has improved the 2004 budget transparency process
    by including and consulting with the National Assembly at an
    earlier stage than before in formulating the budget.  The
    GON's relation with the IMF is improving, and the IMF has
    helped Obasanjo's economic team with its budget framework.
    An article IV consultation is scheduled for mid-February.

    ¶5.  Anti-corruption improvements in procurement were started
    earlier and have borne fruit in victories for American
    contractors when competitors were forced to bid on a level
    field (Ref C details the most recent).  Dr. Ezekwesili's
    Budget Monitoring and Price Intelligence Unit is a major
    component in this effort.  Both the GON's procurement system
    and anti-corruption effort in procurement, however, are still
    not transparent.

    ----------------------------
    NIGERIAN GOVERNMENT PROGRAMS
    ----------------------------

    ¶6.  ICPC:  The Independent Corrupt Practices Commission was
    set up in 2000 by an act of the National Assembly to
    investigate and prosecute corruption complaints from private
    citizens, and operates outside the Executive branch of the
    GON.  The ICPC emerged from constitutional challenges in
    2002, had its mandate partially changed in 2003, and made its
    first major arrests in December (see below).  The Chairman is
    retired Supreme Court Justice Mustapha Akanbi.  The initial
    staff of investigators seconded from the Police and the State
    Security Service (SSS) and prosecutors seconded from the
    Ministry of Justice is changing over to the first batch of
    dedicated ICPC investigators and prosecutors trained with
    support from INL.

    ¶7.  BMPIU:  The Budget Monitoring and Price Intelligence
    Unit, also known as the Due Process Office, was established
    under the Office of the Principal Secretary to the President
    in June 2003. It is run as an operationally independent body
    under the leadership of the Senior Special Assistant to the
    President on the Unit, Obiageli (Oby) Ezekwesili.  The Unit
    is designed to act as the clearing-house for all Government
    contracts and procurement of goods and services, and
    monitors/certifies all GON contracts over 1 million Naira
    after a "Due Process Review" to check that anti-corruption
    and other laws are followed.

    ¶8.  EFCC:  The Economic and Financial Crimes Commission
    exists as the GON's internal equivalent of the ICPC,
    monitoring and prosecuting economic and financial crime
    within the Government and looking for waste and leakage in
    public finance, as well as investigating financial fraud (419
    scams) and money laundering.  The Commission was established
    in 1993 as part of the National Drug and Law Enforcement
    Agency (NDLEA), but was given greater independence in 1999
    and today coordinates anti-corruption efforts of the Central
    Bank, NDLEA, the Nigeria Police, the Nigerian Telephone
    Company (NITEL), and other GON institutions.

    ¶9.  EITI:  The GON recently agreed to participate in the
    Extractive Industries Transparency Initiative, but thus far
    has taken no transparency actions under EITI.

    ¶10.  BPE:  The Bureau of Public Enterprises, which oversees
    management of the Nigerian Government's equity in parastatal
    organizations, has an Anti-Corruption and Transparency Unit
    that could become important under EITI.

    ¶11.  Finance Ministry "Cash Commission:"  According to
    Nigeria's Minister of Finance, a cash management commission
    will be set up within the executive branch of government,
    with IMF assistance, by mid-January 2004 to improve budget
    implementation.  The Cash Commission will monitor GON
    revenues and guide the release of funds from the Central Bank
    to GON ministries for expenditures already approved under the
    budget.  The Commission may also receive responsibilities to
    monitor and evaluate ministers' and other senior GON
    officials' job performance, transparency in contracting, and
    productivity.

    ¶12.  National Assembly's Legislative Budget and Research
    Committee:  The House of Representatives has announced that
    it will set up this Committee to address budget
    implementation, as well as to provide budget revenue and
    expenditure data similar to the Congressional Budget Office
    in the U.S.

    ¶13.  CCB/CCT:  The Code of Conduct Bureau and Tribunal were
    created in 1999.  This executive branch bureau is intended to
    monitor the declaration of assets by publicly elected
    officials, but only does so at the time of election and
    departure from office.  The declarations and the audits of
    them are not public.

    ¶14.  Nigeria Police:  All of Nigeria's police are Federal,
    not state or local, and constitutionally headed by the
    Inspector General of Police.  The Inspector General has
    dedicated anti-bribery and anti-fraud units.  Numerous
    arrests of police officers for corruption were made during
    2003, but few trials have started and no punishments have
    been made public.

    ¶15.  Auditor General and Accountant General: These oversight
    positions track funds in the GON's expenditures and revenues
    respectively.

    -------------
    FIRST FRUITS?
    -------------

    ¶16.  After a one-year investigation, the ICPC on December 3,
    2003 announced its arrest and detention of seven persons,
    including the current Minister of Labor, for taking kickbacks
    and bribes in a project to create a national identity card.
    President Obasanjo fired the Labor Minister the following
    day.  Several of those arrested served in the Ministry of
    Internal Affairs from 1999 to 2003, including two former
    Ministers and the current Permanent Secretary.  After nearly
    a month in jail, the suspects were all arraigned on December
    29 and granted bail two days later.  There is no indication
    of a trial start date.

    ¶17.  The defendants in this case represent the
    highest-ranking officials ever formally investigated by the
    government.  Current indications are that the trial will be a
    showy production for the current administration to show a
    tough stance on corruption.  Once the trial begins, which may
    not be for another month or two, it can be expected to last
    for several months.

    --------------------------------------
    PRESENT USG AND OTHER G-8/IFI PROGRAMS
    --------------------------------------

    ¶18.  USAID works with several international and civil society
    organizations to promote transparency, accountability, and
    rule of law among the general public, often in projects
    coordinated with the BMPIU, ICPC, National and State
    legislatures, the Independent National Electoral Commission,
    political parties, and the Economic Planning Commission.
    USAID provided major assistance to the BPE, and helped revamp
    it into an internationally entity.  USAID also works with
    state courts to improve judicial performance and
    implementation of the Judicial Code of Conduct.

    ¶19.  INL has long worked with the ICPC and will send select
    ICPC investigators and prosecutors to Hong Kong in February
    for a comparative study of anti-corruption efforts.  In FY
    2005, INL will add a program to provide advisory technical
    services to the EFCC, and to procure equipment for the
    Financial Intelligence Unit (FIU).  Treasury provides
    training assistance to the EFCC and other Nigerian law
    enforcement bodies.

    ¶20.  The UK's transparency and anti-corruption activities in
    Nigeria have been centered on the ICPC and other GON
    institutions, and are adding a focus on EITI.  The UK's
    Department for International Development also supports one
    NGO, Business Integrity, that is set up to provide a "quality
    mark" for Nigerian businesses it investigates and determines
    are free from corruption.

    ¶21.  The World Bank has extensive anti-corruption programs
    with the Finance Ministry, BPE, Auditor General, and other
    GON institutions.  The IMF is heavily involved in the budget
    process.

    ¶22.  Italy has various programs directly and through the EU
    with GON offices investigating money laundering and other
    corruption linked to trafficking in drugs and persons.

    ¶23.  The other G-8 members do not have major transparency or
    anti-corruption programs of their own in Nigeria, although
    some G-8 members such as Germany and France are major donors
    to EU programs for Nigeria in these fields.  The Netherlands
    and Canada are starting direct programs in Nigeria.  In
    Abuja, the donors' Governance Group should be able to
    identify gaps as it works with the GON to establish an action
    plan under Evian for transparency and anti-corruption
    activities, and steer support from these other G-8 countries
    toward those gaps.
    Roberts

`