Foreign Assistance: Rule of Law Funding Worldwide for Fiscal Years
1993-1998 (Letter Report, 06/30/1999, GAO/NSIAD-99-158).

In the early 1980s, the United States began helping Latin American
countries improve their judicial and law enforcement organizations as a
way to support democratic principles and institutions. Until 1990, the
United States provided this "rule of law" assistance primarily to
countries in Latin America and the Caribbean. With the breakup of the
Soviet Union, Congress has directed that part of the U.S. assistance to
Central and Eastern Europe target the development of democratic
institutions, including an independent judiciary. In response to
congressional concerns about the absence of comprehensive information on
U.S. rule of law assistance programs, this report identifies (1) the
amount of U.S. rule of law funding provided worldwide (by region and
country) in fiscal years 1993-98 and (2) the U.S. departments and
agencies involved in providing rule of law assistance.

--------------------------- Indexing Terms -----------------------------

 REPORTNUM:  NSIAD-99-158
     TITLE:  Foreign Assistance: Rule of Law Funding Worldwide for
	     Fiscal Years 1993-1998
      DATE:  06/30/1999
   SUBJECT:  Federal aid to foreign countries
	     International cooperation
	     International relations
	     Foreign aid programs
	     Foreign governments
	     Law enforcement
	     Developing countries
IDENTIFIER:  DOJ International Criminal Investigative Training
	     Assistance Program
	     Rule of Law Program
	     Haiti
	     El Salvador
	     Colombia
	     Panama
	     Bolivia
	     Latin America
	     Caribbean

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    United States General Accounting Office GAO                 Report
    to Congressional Requesters June 1999           FOREIGN ASSISTANCE
    Rule of Law Funding Worldwide for Fiscal Years 1993-98 GAO/NSIAD-
    99-158 United States General Accounting Office
    National Security and Washington, D.C. 20548
    International Affairs Division B-282584
    Letter June 30, 1999 Congressional Requesters In the early 1980s,
    the United States began helping Latin American countries improve
    their judicial and law enforcement organizations as a way to
    support democratic principles and institutions.  Until 1990, the
    United States provided this "rule of law" assistance1 primarily to
    countries in Latin America and the Caribbean.  With the breakup of
    the Soviet Union, the Congress directed that part of the U.S.
    assistance to Central and Eastern Europe target the development of
    democratic institutions, including an independent judiciary.2
    Since then, the United States has provided rule of law and related
    assistance to these and other regions of the world. You expressed
    concern that comprehensive information was not readily available
    about the various U.S. rule of law assistance programs and
    activities.  At your request, we examined U.S. rule of law
    assistance programs and placed particular emphasis on rule of law
    activities in Latin America and the Caribbean.  Specifically, we
    identified (1) the amount of U.S. rule of law funding provided
    worldwide (by region and country) in fiscal years 1993-98 and (2)
    the U.S. departments and agencies involved in providing rule of
    law assistance.  As agreed with your offices, we are also
    providing more detailed information about the use of rule of law
    assistance in Latin America and the Caribbean.  We are reporting
    separately on coordination efforts among the cognizant agencies in
    Washington, D.C., 1Until the early 1990s, the United States
    referred to its judicial reform programs in other countries as
    "administration of justice."  Throughout this report, we use the
    phrase "rule of law" to refer to U.S. assistance efforts to
    support legal, judicial, and law enforcement reform efforts
    undertaken by foreign governments.  This term encompasses
    assistance to help reform legal systems (criminal, civil,
    administrative, and commercial laws and regulations) as well as
    judicial and law enforcement institutions (ministries of justice,
    courts, and police, including their organizations, procedures, and
    personnel).  It includes assistance ranging from long-term reform
    efforts, with countries receiving funding over a period of years,
    to one-time training courses provided to the police or other law
    enforcement organizations. 2The Freedom Support Act of 1992 (P.L.
    102-511) and the Support for Eastern European Democracy Act of
    1989 (P.L. 101-179) provided for U.S. assistance to the former
    Soviet Union and Eastern Europe. Page 1
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 and on the specific
    U.S. rule of law efforts in five Latin American countries.3 Data
    on U.S. rule of law funding was not readily available, and some
    entities could not provide funding data for all the years of
    interest or had other problems in compiling the information we
    requested.  Also, because the departments and agencies involved
    did not have an agreed-upon definition of what constitutes rule of
    law activities, we relied on each agency to provide us information
    for those activities it considered rule of law.  In addition, we
    requested obligation data but were told by agency officials that
    what we received was a mix of obligated amounts and actual
    expenditures.4  Much of U.S. rule of law assistance supported
    long-term programs-sometimes over several years-that were funded
    by the U.S. Agency for International Development (USAID) (over 64
    percent). Obligation data better reflected the magnitude of the
    funding involved in long-term and other programs because actual
    expenditures (or requests for reimbursements) often are not
    reported until subsequent years.  However, other rule of law
    assistance provided, for example by law enforcement agencies, was
    relatively low-cost, short-term training or exchange programs.  In
    this instance, obligations and actual expenditures were virtually
    synonymous.  (See the scope and methodology section for a more
    complete discussion of these limitations.) Results in Brief
    Based on the funding data that cognizant departments and agencies
    made available, the United States provided at least $970 million
    in rule of law assistance to countries throughout the world during
    fiscal years 1993-98. The Latin America and the Caribbean region
    was the largest recipient of U.S. rule of law assistance over the
    period, accounting for $349 million, or more than one-third of the
    total assistance.  In recent years, Central European countries
    received an increasingly larger share and, in 1998, Central Europe
    was the largest regional recipient, accounting for about one-third
    of all rule of law assistance.  The United States provided at
    least some assistance to 184 countries-ranging from $138 million
    for Haiti to $2,000 for Burkina Faso.  While most countries
    received less than 3We examined the rule of law programs in
    Colombia, El Salvador, Guatemala, Honduras, and Panama.
    4Obligations are commitments to provide federal funding resulting
    in the immediate or future outlay of funds.  Actual expenditures
    are the transfer of federal funds to liquidate an obligation. Page
    2                                                      GAO/NSIAD-
    99-158 Rule of Law Funding B-282584 $1 million, 15 countries,
    including 7 in Latin America and the Caribbean, accounted for just
    over half of the total funding. At least 35 entities from various
    U.S. departments and agencies have a role in U.S. rule of law
    assistance programs.  The Departments of State and Justice and
    USAID are the principal organizations providing rule of law
    training, technical advice, and related assistance.  The
    Department of Defense, the U.S. Information Agency (USIA),
    numerous law enforcement agencies and bureaus, and other U.S.
    departments and agencies also have a direct role. Forty countries
    in the Latin America and the Caribbean region received some rule
    of law assistance.  More than three-fourths of the $349 million in
    assistance was provided to seven countries.  Haiti received nearly
    $138 million, or about 40 percent of the regional total, largely
    in connection with U.S. and international efforts to restore order
    and democracy after a September 1991 military coup.  Six other
    countries in the region-ranging from about $41 million for El
    Salvador to $12 million for Panama- accounted for about $127
    million, or nearly 37 percent of the regional total. Most of the
    rule of law assistance for Latin America and the Caribbean was
    provided to help the countries reform their criminal justice or
    law enforcement organizations, including training and technical
    assistance for prosecutors, public defenders, police officers, and
    investigators.  A substantial amount was also dedicated to
    improving court operations, including modernizing court
    administration and enhancing public access to the judicial system.
    Rule of Law Funding     During fiscal years 1993-98, the United
    States funded rule of law programs Worldwide               and
    related activities in countries throughout the world.5   Over this
    period, rule of law assistance totaled at least $970 million.
    Figure 1 illustrates the worldwide U.S. rule of law funding for
    fiscal years 1993-98.  Over the period, the total annual rule of
    law funding increased from $128 million to $218 million.  Although
    funding appears to have declined substantially in 1996, this may
    be largely explained by the fact that USAID could not readily
    provide rule of law funding information for fiscal year 1996 due
    to problems with its automated information system. 5Based on
    information provided by State, we grouped countries receiving rule
    of law assistance into eight geographical regions. Page 3
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 Figure 1:  Worldwide
    U.S. Rule of Law Funding, Fiscal Years 1993-98 Dollars in millions
    250 200 150 100 50 0      1993         1994    1995         1996
    1997           1998 Fiscal year Source:  Our analysis of U.S.
    agencies' rule of law funding data. On a regional basis, the Latin
    America and the Caribbean region received the largest share, with
    about 36 percent.  Africa, Central Europe, and the newly
    independent states of the former Soviet Union received about 15
    percent each. (See table 1.) Page 4
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 Table 1:  U.S.
    Worldwide Rule of Law Assistance by Region, Fiscal Years 1993-98
    Dollars in millions Countries receiving rule of
    Rule of law           Percentage of Region
    law assistance          funding  amount               total
    funding Latin American and                              40
    $349.1                       36.0 the Caribbean Africa
    45                     145.8                      15.0 Central
    Europe                                   15
    144.9                      14.9 Newly independent
    12                     142.4                      14.7 states Near
    East                                       17
    65.1                       6.7 East Asia and the
    28                      41.0                       4.2 Pacific
    South Asia                                        6
    16.9                       1.7 Western Europe
    21                      15.4                       1.6
    Multiregional                      Not applicable
    49.8                       5.1 activitiesa Total
    184                   $970.5                     100.0 Note: Total
    does not add due to rounding. aWe use "multiregional" to denote
    rule of law assistance provided to several countries in two or
    more regions or when such assistance was not broken out by
    recipient countries. Source:  Our analysis of U.S. agencies' rule
    of law funding data. From fiscal year 1993 to 1998, rule of law
    funding shifted primarily from the Latin America and the Caribbean
    region to other regions, mainly Central Europe.  Funding for
    Central Europe grew from about $9 million in fiscal year 1993 to
    over $67 million in fiscal year 1998, accounting for 31 percent of
    the worldwide rule of law assistance that year.  Over the same
    period, rule of law assistance in Latin America and the Caribbean
    declined from about $57 million (44 percent of the worldwide
    total) to $42 million (19 percent).  Rule of law assistance to
    Africa also declined from $38 million (30 percent of the worldwide
    total) in 1993 to $29 million (13 percent) in 1998.  Figure 2
    illustrates these trends; appendix I provides more detailed data.
    Page 5
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 Figure 2:  U.S. Rule
    of Law Funding, by Region, for Fiscal Years 1993-98 Dollars in
    millions 250 200 150 100
    Africa Central Europe 50
    Latin America and Caribbean Newly independent states All others 0
    1993                       1994                      1995
    1996                     1997                      1998 Source:
    Our analysis of U.S. agencies' rule of law funding data. During
    fiscal years 1993-98, we identified 184 countries that received at
    least some U.S. rule of law funding.  However, over half of this
    assistance went to just 15 countries.  Haiti received the most,
    primarily in connection with U.S. and international efforts to
    restore peace and stability to the country after a 1991 coup.
    Most countries (102 of the 184) received less than $1 million.
    Table 2 illustrates the top 15 recipients.  (App. II provides
    detailed rule of law funding by region and country for fiscal
    years 1993-98.) Page 6
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 Table 2:  Largest
    U.S. Rule of Law Assistance Recipients, Fiscal Years 1993-98
    Dollars in millions Percentage of Country
    Rule of law assistance                    worldwide total Haiti
    $137.9                              14.2 Russia
    63.7                               6.6 El Salvador
    40.7                               4.2 Somalia
    37.5                               3.9 Egypt
    33.0                               3.4 South Africa
    22.5                               2.3 Bosnia-Herzegovina
    21.6                               2.2 Colombia
    20.5                               2.1 Bolivia
    20.3                               2.1 Nicaragua
    18.8                               1.9 Ukraine
    17.9                               1.8 Guatemala
    15.1                               1.6 Cambodia
    14.1                               1.5 Sri Lanka
    13.8                               1.4 Panama
    12.0                               1.2 Others (169 countries)
    480.9                             49.6 Total
    $970.5                             100.0 Note: Total does not add
    due to rounding. Source:  Our analysis of U.S. agencies' rule of
    law funding data. U.S. Departments and  State's Under Secretary
    for Global Affairs has overall responsibility for Agencies
    Involved in              coordinating rule of law programs and
    activities.6  At least 35 entities from the departments and
    agencies have a role in providing U.S. rule of law Rule of Law
    Assistance assistance programs.  (See app. III.)  Most U.S. rule
    of law funding is provided through the international affairs
    appropriations and is transferred 6In an effort to address long-
    standing congressional concerns that rule of law coordination
    efforts among the numerous departments and agencies in Washington,
    D.C., were ineffective, State appointed a rule of law coordinator
    in February 1999.  The coordinator's principal mandate is to work
    with all the U.S. departments and agencies providing rule of law
    assistance to develop a framework for future U.S. international
    rule of law assistance efforts.  In addition, the coordinator will
    be the principal U.S. liaison to other donors and private sector
    organizations involved in rule of law activities.  The status of
    the coordinator's efforts is the subject of a separate review.
    Page 7
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 or reimbursed to the
    other departments and agencies, primarily by USAID, but to a
    lesser extent by State. Departments and Agencies     USAID and the
    Department of Justice oversaw the implementation of 70 Providing
    Rule of Law        percent, or about $683 million, of all U.S.
    rule of law assistance programs Assistance                   and
    activities worldwide during fiscal years 1993-98.  USAID focused
    on improving the capabilities of judges, prosecutors, and public
    defenders and their respective institutions as well as increasing
    citizen access to justice. Most of Justice's rule of law
    activities were carried out by its International Criminal
    Investigative Training Assistance Program (ICITAP), which
    emphasized enhancing the overall police and investigative
    capabilities of law enforcement organizations. State, the
    Department of Defense, and USIA accounted for about $258 million,
    or about 27 percent, of the U.S. worldwide efforts.  State's
    activities focused on international narcotics and law enforcement
    and antiterrorist assistance.  Defense provided rule of law
    training to foreign military servicemembers, but most of its rule
    of law assistance was provided to support its operations in Haiti.
    USIA focused on increasing the awareness and knowledge of rule of
    law issues through various educational programs, such as exchanges
    between host country judicial and law enforcement personnel and
    their U.S. counterparts.  (See fig. 3.) Page 8
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 Figure 3:  U.S.
    Departments and Agencies Providing U.S. Rule of Law Assistance
    Worldwide, Fiscal Years 1993-98 (Percentage of total funding)
    Justice  22.2% State 11%                USAID  48.2% Others  3%
    USIA  6.5% Defense  9.2% Source:  Our analysis of U.S. agencies'
    rule of law funding data. Source of Rule of Law            Funding
    for rule of law programs and related activities was provided
    Funding                          primarily through the
    international affairs appropriations for USAID, State, and USIA.
    These three entities accounted for more than 91 percent of all
    rule of law funding, or $884 million, in fiscal years 1993-98.  In
    addition, Defense provided about $58 million (6 percent).
    Although they provided small amounts of funding, almost all rule
    of law assistance provided by Justice, the Treasury, and other
    departments and agencies was funded through interagency transfers
    and reimbursements from USAID and, to a lesser extent, State. Rule
    of Law Assistance  As previously noted, the Latin America and the
    Caribbean region was the to Latin America and             largest
    recipient of U.S. rule of law assistance in fiscal years 1993-98.
    As with the overall worldwide rule of law assistance, we
    identified the funding the Caribbean                    and
    recipients and the departments and agencies involved.  In
    addition, we categorized the rule of law assistance provided to
    the region to help describe what the overall purposes of the
    assistance were. Page 9
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 Recipients of Rule
    of Law     In fiscal years 1993-98, the United States provided
    $349 million in rule of Assistance in the Region      law
    assistance to Latin America and the Caribbean (about 36 percent of
    the worldwide total).  Forty countries in the region received a
    portion of this assistance, although the funding was concentrated
    among a few countries. Seven countries accounted for about 76
    percent of the total regional funding.  Two of the seven-Haiti and
    El Salvador-accounted for just over 50 percent of the regional
    total, with $137.9 million and $40.7 million, respectively.  (See
    fig. 4.) Figure 4:  Ten Largest Recipients of U.S. Rule of Law
    Assistance in Latin America and the Caribbean, Fiscal Years 1993-
    98 Dollars in millions 137.9 140 120 100 80 59.3 60 40.7 40 20.5
    20.3       18.8                    15.1 20
    12.0            8.5               8.1            7.9 0 ti
    a                                               u Hai
    bia                      livia                                 al
    ama           ador            r                  as
    ries alvador                 m                        o
    agua                                                            Pe
    olu                        B
    m car                  e                  n             u Pa
    Ec                                     dur            ount El S
    C                                                   Ni
    Guat
    Hon            C Other Source:  Our analysis of U.S. agencies'
    rule of law funding data. Haiti was a special case.  The United
    States provided large amounts of assistance during this period in
    an attempt to restore order and democracy after a coup in 1991.
    Nearly one-third of the assistance for Haiti was a $42.6 million,
    one-time commitment from Defense in 1994 for equipment, supplies,
    and other support to assist international police monitors and a
    multinational force.  In subsequent years, Haiti continued to be
    the top recipient of rule of law funds in the region, receiving
    $35.5 million in fiscal year 1995, $16 million in 1996, and about
    $15 million in fiscal years 1997 and Page 10
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 1998.  Most of this
    assistance was provided to develop and support a civilian national
    police force. Rule of Law Assistance      To help illustrate what
    rule of law assistance was used for in the Latin Activities in the
    Region    America and the Caribbean region, we grouped rule of law
    assistance into one of six categories based on descriptions
    provided by the cognizant agencies.  Although we placed each
    program or activity into one primary category, many programs,
    USAID's in particular, had multiple purposes that could be
    identified with more than one category.  Figure 5 illustrates the
    distribution of rule of law assistance by these categories.  (App.
    IV defines the categories we used and provides funding levels by
    country and category.) Figure 5:  Categories of U.S. Rule of Law
    Assistance in Latin America and the Caribbean, Fiscal Years 1993-
    98 (Percentage of total regional funding) Judicial and court
    operations  21.3% Criminal justice and law enforcement 57% Civil
    government and military reform  13.6% Democracy and human rights
    6.3% General/other  1.5% Law reform  0.3% Source:  Our analysis of
    U.S. agencies' rule of law funding data. The largest rule of law
    category was assistance for criminal justice and law enforcement.
    About $199 million-57 percent of the regional total for fiscal
    years 1993-98-was dedicated to these activities.  We included
    assistance to police, prosecutors, public defenders, and other
    host country agencies (such as customs) that take on law
    enforcement functions, as well as antinarcotics and antiterrorism
    assistance, in this category.  Almost Page 11
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 every country in the
    region that received rule of law assistance had some criminal
    justice and law enforcement funding.  Haiti received the largest
    amount of such assistance-$72.5 million.  Other major recipients
    were El Salvador ($25.9 million), Colombia ($19.9 million), Panama
    ($11.2 million), and Bolivia ($9.8 million).  Virtually all of the
    assistance provided through Justice and most of the funding
    provided by USAID and State was in this category. Assistance for
    judicial and court operations was the second largest category,
    comprising $74.2 million (21 percent of the regional total). USAID
    provided 88 percent of the funding. Assistance for civil
    government and military reform was the third largest category-
    $47.6 million (13.6 percent).  We included assistance for
    governmental entities other than the courts and criminal justice
    and law enforcement systems in this category.  The largest single
    element was $42.6 million provided by Defense to Haiti in 1994.
    In addition, we included most of the military service training on
    topics such as civil-military relations and professional skills
    for maritime and military personnel. Much less funding was devoted
    to the other categories-$22 million for democracy and human
    rights, $5.3 million for general and other activities, and $1.1
    million for law reform.  In the category of democracy and human
    rights, we included civic education activities, as well as some
    efforts that focused specifically on human rights, citizen
    participation, and related topics.  In the general/other category,
    we included most of the legal education grants provided by USIA,
    as well as assistance on various topics such as intellectual
    property rights and drug education and rehabilitation. Scope and
    To determine how much U.S. rule of law assistance was provided
    Methodology    worldwide in fiscal years 1993-98, and to identify
    the U.S. departments and agencies involved, we reviewed program
    documentation and interviewed officials at the Department of
    State, USAID, the Department of Defense, and USIA-the principal
    sources of funding for U.S. rule of law programs. These officials
    identified other departments and agencies with rule of law
    activities.  We asked officials from each of these entities to
    provide funding and descriptive information for its activities
    over the period. However, most of these departments and agencies
    did not have rule of law funding information readily available and
    had to initiate ad hoc efforts to compile data addressing our
    questions.  Further complicating this effort Page 12
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 was the fact that
    the departments and agencies did not have a commonly accepted
    definition of what constituted rule of law activities.7 Therefore,
    we relied on each department and agency (and the bureaus and
    offices within those entities) to provide us information on the
    programs and activities it considered rule of law.  In some
    instances, programs with an apparent rule of law element were not
    included.  For example, USAID did not include all of its
    assistance for human rights, and State did not include all of its
    antinarcotics assistance. Additionally, the funding data is a mix
    of obligated amounts and actual expenditures.  For agencies
    (primarily USAID) that provided rule of law assistance over
    several years, obligation data better reflected the magnitude of
    the funding involved because actual expenditures (or requests for
    reimbursement) may not be reported until subsequent years.8
    However, other rule of law assistance provided, for example by law
    enforcement agencies, was relatively low-cost, short-term training
    or exchange programs.  In this instance, obligations and actual
    expenditures were virtually synonymous.  Therefore, we used actual
    expenditures. Because of the volume of data-almost 4,600 program
    and activity records-and the lack of documentation in some
    agencies, we did not independently verify the accuracy of the data
    provided.  Some agencies could not provide data for the entire
    period-fiscal years 1993-98-or lacked funding amounts for some
    identified rule of law activities. * USAID's automated information
    system could not provide worldwide data for fiscal year 1996.  The
    system was upgraded that year, and 1996 information was not
    captured in the new system nor was it available in USAID's prior
    system.  At our request, USAID polled each of its missions in
    Latin America and the Caribbean to obtain rule of law funding
    data, including fiscal year 1996; however, because of the
    magnitude of the effort, we did not request that USAID do the same
    for the other regions of the world.  To help mitigate this
    limitation, we used information from other agencies indicating
    USAID rule of law funding for 1996.  However, 7In commenting on
    this report, USAID responded that rule of law "embodies the basic
    principles of equal treatment of all people before the law,
    fairness, and both constitutional and actual guarantees of basic
    human rights; it is founded on a predictable, transparent legal
    system with fair and effective judicial institutions to protect
    citizens against the arbitrary use of state authority and lawless
    acts of both organizations and individuals." 8In those cases when
    obligations covered more than 1 fiscal year, we spread the amounts
    evenly over the years if the time frame was provided; otherwise,
    the full amount was reported in the year obligated. Page 13
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 this information
    likely understates USAID's assistance levels to regions other than
    Latin America and the Caribbean for the year. * State's Bureau of
    International Narcotics and Law Enforcement Affairs provided us
    funding information for fiscal years 1997 and part of 1998.
    Essentially, this office transferred rule of law funds to U.S. law
    enforcement and related agencies to assist their foreign
    counterparts. Therefore, for the other years, we relied on the
    U.S. recipients of this funding to report the amount of rule of
    law funding provided by the Bureau. In addition, for many
    agencies, the fiscal year 1998 data provided to us was compiled
    before the fiscal year data had been finalized and may be
    incomplete.  However, with the exception of not having complete
    USAID funding information for fiscal year 1996, we believe the
    funding levels for the other departments and agencies generally
    reflect their rule of law activities. We performed our work from
    June 1998 to May 1999 in accordance with generally accepted
    government auditing standards. Agency Comments    The Departments
    of Commerce, Defense, Justice, State, and the Treasury; USAID; and
    USIA commented on a draft of this report.  Defense and USAID
    provided written comments (see apps. V and VI); the others
    provided oral comments.  USAID also provided its definition of
    rule of law. All of the agencies concurred with the report; some
    provided technical comments that have been incorporated, as
    appropriate. Unless you publicly announce its contents earlier, we
    plan no further distribution of this report until 15 days after
    its issue date.  At that time, we will send copies of this report
    to the Honorable Madeleine K. Albright, the Secretary of State;
    the Honorable William S. Cohen, the Secretary of Defense; the
    Honorable Robert E. Rubin, the Secretary of the Treasury; the
    Honorable William M. Daley, the Secretary of Commerce; the
    Honorable J. Brian Atwood, the Administrator of USAID; the
    Honorable Penn Kemble, the Acting Director of USIA; and interested
    congressional committees.  We will make copies available to others
    upon request. Page 14
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 Please contact me at
    (202) 512-4128 if you or your staff have any questions about this
    report.  Key contributors to this report are listed in appendix
    VII. Benjamin F. Nelson Director, International Relations and
    Trade Issues Page 15
    GAO/NSIAD-99-158 Rule of Law Funding B-282584 List of
    Congressional Requesters The Honorable Joseph R. Biden The
    Honorable John Breaux The Honorable Paul Coverdell The Honorable
    Mike DeWine The Honorable Bob Graham The Honorable Charles E.
    Grassley The Honorable Orrin G. Hatch The Honorable Jesse A. Helms
    The Honorable Patrick J. Leahy United States Senate The Honorable
    Benjamin A. Gilman The Honorable Porter J. Goss The Honorable Bill
    McCollum The Honorable E. Clay Shaw House of Representatives Page
    16                              GAO/NSIAD-99-158 Rule of Law
    Funding Page 17    GAO/NSIAD-99-158 Rule of Law Funding Contents
    Letter
    1 Appendix I
    22 Worldwide U.S. Rule of Law Funding Summary by Region, Fiscal
    Years 1993-98 Appendix II
    23 Worldwide U.S. Rule of Law Funding by Region and Country,
    Fiscal Years 1993-98 Appendix III
    36 U.S. Departments and Agencies Involved in Rule of Law
    Activities Appendix IV
    38 U.S. Funding for Rule of Law Assistance Categories for Latin
    America and the Caribbean, Fiscal Years 1993-98 Appendix V
    42 Comments From the Department of Defense Page 18    GAO/NSIAD-
    99-158 Rule of Law Funding Contents Appendix VI
    43 Comments From the U.S. Agency for International Development
    Appendix VII
    45 GAO Contacts and Staff Acknowledgements Tables
    Table 1: U.S. Worldwide Rule of Law Assistance by Region, Fiscal
    Years 1993-98
    5 Table 2: Largest U.S. Rule of Law Assistance Recipients, Fiscal
    Years 1993-98
    7 Table I.1: Worldwide U.S. Rule of Law Assistance by Region
    22 Table II.1: U.S. Rule of Law Funding by Region and Country,
    Fisca Years 1993-98
    24 Table IV.1: U.S. Funding for Six Rule of Law Assistance
    Categories in Latin American and Caribbean Countries, Fiscal Years
    1993-98             40 Figures               Figure 1: Worldwide
    U.S. Rule of Law Funding, Fiscal Years 1993-98          4 Figure
    2: U.S. Rule of Law Funding by Region, Fiscal Years 1993-98
    6 Figure 3: U.S. Departments and Agencies Providing U.S. Rule of
    Law Assistance Worldwide, Fiscal Years 1993-98 (Percentage of
    total funding.)
    9 Figure 4: Ten Largest Recipients of U.S. Rule of Law Assistance
    in Latin America and the Caribbean, Fiscal Years 1993-98
    10 Figure 5: Categories of U.S. Rule of Law Assistance in Latin
    America and the Caribbean, Fiscal Years 1993-98 (Percentage of
    total regional funding.)
    11 Page 19                                   GAO/NSIAD-99-158 Rule
    of Law Funding Contents Abbreviations ICITAP      International
    Criminal Investigative Training Assistance Program, U.S.
    Department of Justice USAID       U.S. Agency for International
    Development USIA        U.S. Information Agency Page 20
    GAO/NSIAD-99-158 Rule of Law Funding Page 21    GAO/NSIAD-99-158
    Rule of Law Funding Appendix I Worldwide U.S. Rule of Law Funding
    Summary by Region, Fiscal Years 1993-98
    Appendix I Worldwide U.S. rule of law assistance grew from about
    $128 million in fiscal year 1993 to about $218 million in fiscal
    year 1998.  The growth was not uniform across the geographic
    regions, with Central Europe increasing from about $8 million to
    over $67 million during the period-supplanting the Latin America
    and the Caribbean region as the leading recipient of rule of law
    assistance.  Table I.1 shows rule of law assistance by region for
    fiscal years 1993-98. Table I.1:  Worldwide U.S. Rule of Law
    Assistance by Region Dollars in thousands Fiscal year Region
    1993           1994            1995            1996
    1997             1998              Totalb Africa
    $38,420        $29,700        $17,016           $6,169
    $25,175         $29,327           $145,806 Central Europe
    8,741          7,432          12,866          12,015
    36,454          67,349            144,857 East Asia and the
    Pacific                2,805          3,490           8,375
    8,690            8,657           9,002             41,019 Latin
    America and the Caribbean         56,715         77,043
    68,275          51,296          53,642          42,178
    349,149 Near East                                  395
    4,348          30,382           9,027            7,414
    13,549              65,115 Newly independent states
    16,193         30,341          39,622          17,230
    13,388          25,636            142,411 South Asia
    63          2,811           3,210           3,379            3,586
    3,894             16,943 Western Europe
    1,794          1,890              840          3,861
    3,674           3,309             15,368 Multiregionala
    2,676          2,432           3,219              976
    17,216          23,293              49,812 Totalb
    $127,802       $159,485       $183,806        $112,643
    $169,207        $217,538            $970,481 aWe used
    "multiregional" for rule of law assistance provided to several
    countries in two or more regions or when such assistance was not
    broken out by recipient countries. bTotals may not add due to
    rounding. Source:  Our analysis of U.S. agencies' rule of law
    funding data. Page 22
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Appendix I I In fiscal years 1993-98, the United States provided
    at least some rule of law assistance to 184 countries.  The
    assistance ranged from multiyear institutional development
    programs to one-time, short-term training for police or other law
    enforcement personnel.  Table II.1 shows the dollar value of the
    rule of law assistance provided to all the countries we identified
    as receiving some assistance.  In some cases, the assistance was
    not identified with a specific country or was provided to
    countries in multiple regions-such assistance is identified as
    "regional" or "multiregional," respectively. Page 23
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Table II.1:  U.S. Rule of Law Funding by Region and Country,
    Fiscal Years 1993-98 Region
    Country Africa                                      Angola Benin
    Botswana Burkina Faso Burundi Cameroon Cape Verde Central African
    Republic Chad Comoros Congo (Brazzaville) Congo (Kinshasa)
    Djibouti Eritrea Ethiopia Gambia Ghana Guinea Guinea-Bissau Ivory
    Coast Kenya Liberia Madagascar Malawi Mali Mauritania Mauritius
    Mozambique Namibia Niger Nigeria Rwanda Sao Tome and Principe
    Senegal Seychelles Page 24
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Fiscal year 1993         1994          1995               1996
    1997                  1998              Total 0            0
    0         $15,480              $170,892                      0
    $186,372 0            0       $28,000               2,165
    15,416              $67,208           112,789 0            0
    0             280                     0                28,858
    29,138 0            0                0             299
    1,686                     0            1,985 $410,000     $500,000
    1,499,000             41,704                     0
    0        2,450,704 22,224            0                0
    286                 86,476              117,390           226,376
    0            0         1,479             15,500
    20,992                     0           37,971 0            0
    0          34,338                     0                      0
    96,923 0            0        12,856                406
    80,303               83,512           177,077 0            0
    966               1,049                    0
    2,030            4,045 0000 3 , 0 5 9 0 3,059 0            0
    0             532                 27,284                     0
    27,816 0            0                0                0
    62,224                     0           62,224 0            0
    550,000            218,585                 84,971
    8,869          862,425 171,083      606,083       446,083
    398,227                528,845             2,079,016
    4,229,339 217,000      735,000                0                0
    0                      0          952,000 280,480        8,000
    783,734            239,935                313,864
    71,854         1,697,867 34,317        9,856                0
    0                    0                      0           44,173
    700,000      600,000       623,000               9,844
    0                52,814         1,985,658 30,000            0
    33,800               1,108                22,451
    54,552           141,911 0       40,000        28,000
    84,604                162,831              225,646
    541,081 0            0                0             782
    1,405,872                  557         1,407,211 $75,842
    0                0         $78,163         $1,047,292
    $1,221,265        $2,422,562 885,000     1,560,000    1,379,000
    750,000                842,194              750,000
    6,166,194 0            0       158,240             99,558
    854                36,721           295,373 0            0
    0            1,718                 1,890                     0
    3,608 6,055        6,806                0                0
    5,368               53,518            71,747 1,200,000
    1,775,000               0          54,575                102,033
    36,416         3,168,024 11,315            0       425,000
    29,686                152,748               12,444
    631,193 0       30,667        24,111                266
    854                21,103            77,001 19,000
    29,000             94,508                 49,138
    10,816           202,462 36,712       33,880       654,786
    1,313,606             2,278,162              104,342
    4,421,488 00 5 , 5 4 700 0 5,547 50,460       28,000        87,348
    148,204                532,101               97,502
    943,615 39,317            0                0            9,618
    19,660                 1,176           69,771 Page 25
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Region                                      Country Sierra Leone
    Somalia South Africa Sudan Swaziland Tan z an ia Tog o Uganda
    Zambia Zimbabwe Regional Africa total East Asia and the Pacific
    Australia Brunei Burma Cambodia China Fiji Guam Hong Kong
    Indonesia Japan Korea Laos Malaysia Nothern Mariana Islands
    Mongolia Nepal New Zealand Papua New Guinea Philippines Samoa
    Singapore Solomon Islands Tai wa n Thailand Tonga Page 26
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Fiscal year 1993           1994           1995                1996
    1997                  1998              Total 34,825
    16,648                 0           63,581                19,902
    46,000           180,956 25,000,000     12,500,000
    0                0                    0                      0
    37,500,000 5,910,000      7,210,000      5,365,672
    773,225               856,839             2,362,299
    22,478,035 0              0                 0            1,718
    1,890                     0            3,608 0              0
    0            3,150                11,300                 2,077
    16,527 568,000       1,116,000      1,067,000            743,350
    108,444              187,178         3,789,972 4,000             0
    0              636                18,275               26,344
    49,255 248,000        441,000         75,000              54,002
    411,880               54,898         1,284,780 250,000
    300,000        698,000              31,010                89,739
    123,593         1,492,342 0         44,676         25,910
    37,175               262,876               76,000
    446,637 2,216,000      2,138,000      2,952,000            816,300
    15,374,109                21,311,049       44,807,458 $38,419,630
    $29,699,616    $17,016,117          $6,169,173      $25,174,713
    $29,327,047      $145,806,298 0              0                 0
    $52,803               $88,780             $969,498
    $1,111,081 0              0                 0                0
    0               112,893           112,893 0              0
    35,000               2,000                 2,000
    7,911           46,911 0        802,404       4,158,710
    4,874,671            4,207,742               71,974
    14,115,502 38,000         90,000                 0
    1,263,035              859,621              900,881
    3,151,537 0              0                 0                0
    0                14,048            14,048 0              0
    0                0                    0                33,485
    33,485 0              0                 0            5,520
    10,757               32,106            48,383 838,000
    75,991       2,422,000             50,654               134,601
    279,893         3,801,139 4,000             0                 0
    357,721               206,494              268,936
    837,151 126,754         49,918         36,427             161,012
    153,537              228,910           756,558 0        $36,000
    $20,000             $47,072               $16,581
    $52,927          $172,580 $382,988        260,817         33,622
    73,567             1,004,105             3,171,827
    4,926,926 0              0                 0                0
    0                  7,680            7,680 0              0
    0           20,095               116,921              144,988
    282,004 1,049,000      2,109,000       524,000             528,799
    488,000               47,703         4,746,502 0              0
    0           42,000                48,960               53,450
    144,410 41,157              0           8,200             76,772
    60,968               30,357           217,454 302,503
    18,336        572,154              64,079                87,634
    179,193         1,223,899 0              0           8,200
    8,637                27,140               24,000            67,977
    0           7,612                0                0
    70,738               22,016           100,366 0              0
    17,093                   0                 9,971
    40,180            67,244 0         11,624         12,193
    17,100                26,830               78,495
    146,242 0         28,000        407,001             420,448
    327,394              738,802         1,921,645 22,250
    0           8,200                  0                    0
    34,409            64,859 Page 27
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Region                                      Country Tuval u
    Vanuatu Vietnam Regional East Asia and the Pacific total Near East
    Algeria Bahrain Egypt Israel Jordan Kuwait Lebanon Malta Morocco
    Oman Qatar Saudi Arabia Syria Tun i si a United Arab Emirates Ye m
    e n West Bank/Gaza Regional Near East total South Asia
    Afghanistan Bangladesh India Maldives Pakistan Sri Lanka South
    Asia total Western Europe                              Austria
    Belgium Canada Cyprus Denmark Finland Page 28
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Fiscal year 1993          1994           1995                1996
    1997                  1998              Total 0             0
    0                0                    0                  8,333
    8,333 0             0           8,200              9,799
    0                16,332            34,331 0             0
    35,000             112,359               325,131
    633,447         1,105,937 0             0         69,000
    502,316               383,082              797,500
    1,751,898 $2,804,652    $3,489,702     $8,375,000
    $8,690,459       $8,656,987               $9,002,173
    $41,018,974 0             0                 0                0
    $28,485                     0          $28,485 $42,281
    0                 0          $38,643                 1,890
    $15,658            98,472 20,007     $1,493,352    $23,024,092
    5,161,949            1,557,701             1,731,337
    32,988,438 6,846             0       1,141,189            923,697
    1,494,229              409,106         3,975,067 0      1,996,228
    143,304            1,384,857            1,959,131
    1,147,318        6,630,838 32,570             0                 0
    13,839                 1,890              986,236
    1,034,535 0         2,676           2,978             62,329
    339,596             1,036,091        1,443,670 0             0
    12,500                  50                30,450
    0           43,000 18,514        58,554         24,296
    53,665               903,324              528,967
    1,587,320 0         2,431                 0           19,379
    2,866              808,951           833,627 0             0
    0            1,718                 1,890              732,144
    735,752 0             0                 0          141,000
    213,115             1,299,877        1,653,992 0             0
    0            1,718                 1,890                     0
    3,608 0        69,200        971,561             948,640
    371,205             1,062,205        3,422,811 0       $20,538
    0          $18,753                $1,890             $120,000
    $161,181 0             0         30,000               6,718
    6,890             3,216,585        3,260,193 0       705,000
    5,000,000                  0                    0
    142,455         5,847,455 $275,000             0         32,000
    250,176               497,362              312,328
    1,366,866 $395,218     $4,347,979    $30,381,920
    $9,027,131       $7,413,804              $13,549,258
    $65,115,310 0             0                 0                0
    0               $15,152           $15,152 0      $139,566
    $11,800            $189,317             $147,525
    47,847           536,055 $1,037         1,122        189,335
    800,373               887,259              286,302
    2,165,428 9,562        30,000                 0           18,563
    9,861               22,336            90,322 0        39,062
    0           84,684                47,760              160,895
    332,401 52,847      2,600,758      3,008,714           2,285,714
    2,493,842             3,361,931       13,803,807 $63,446
    $2,810,508     $3,209,849          $3,378,651       $3,586,247
    $3,894,463      $16,943,165 0             0                 0
    $67,537               $37,995              $12,000
    $117,532 0             0                 0           28,000
    0               102,409           130,409 0             0
    0           62,600                31,200               83,539
    177,339 $438,669       $89,696       $228,518             785,809
    948,533             1,013,712        3,504,937 11,551
    23,245           1,356             59,935                34,562
    67,827           198,476 0             0                 0
    34,040                58,744               60,000
    152,784 Page 29
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Region                                      Country France Germany
    Greece Iceland Ireland Italy Luxembourg Netherlands Norway
    Portugal Spain Sweden Switzerland Tur key United Kingdom Regional
    Western Europe total Central Europe
    Albania Bosnia-Herzegovina Bulgaria Croatia Czech Republic Estonia
    Hungary Latvia Lithuania Macedonia Poland Romania Serbia/
    Montenegro Slovakia Slovenia Regional Central Europe total Latin
    America and the Caribbean             Anguilla Antigua and Barbuda
    Argentina Page 30
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Fiscal year 1993          1994           1995                 1996
    1997                  1998              Total 0             0
    24,377               43,422              154,991
    120,448           343,238 42,193        33,375         32,302
    328,581              368,007              314,393
    1,118,851 892,027      1,066,598        16,373
    314,625               70,479               39,745
    2,399,847 0             0                 0                 0
    5,000               20,000            25,000 0             0
    0            40,000              304,968                 6,100
    351,068 0             0                 0           253,468
    640,387              241,956         1,135,811 0             0
    0              7,948                  0                      0
    7,948 0             0                 0            37,400
    38,000               50,070           125,470 1,818             0
    0               200               53,416               91,128
    146,562 0             0                 0                 0
    22,615                 9,000           31,615 16,506             0
    7,525              66,766               62,920
    23,616           177,333 0             0                 0
    0                   0                17,935            17,935
    36,754             0         36,877               39,150
    15,000                     0          127,781 304,279
    676,891        483,564             1,589,050             618,245
    838,398         4,510,427 0             0           9,498
    37,620               71,134               89,356           207,608
    50,000                                            64,761
    138,279              107,011           360,051 $1,793,797
    $1,889,805      $840,390            $3,860,912      $3,674,475
    $3,308,643       $15,368,022 $278,816      $288,167       $937,726
    $655,889            $946,484            $1,502,670
    $4,609,752 0             0         57,000             3,269,290
    6,949,727           11,334,127        21,610,144 721,464
    441,646       1,315,108             285,610              432,718
    1,263,064        4,459,610 183,012       183,012        219,012
    2,794,858             259,080              192,569
    3,831,543 0        73,500        139,160              413,321
    136,464              154,253           916,698 556,543
    1,297,288       322,154              222,023              209,696
    456,540         3,064,247 1,100,211      374,651        204,793
    312,310              144,844              826,511
    2,963,320 772,449       765,327        202,723
    412,863              326,361              781,171
    3,260,896 704,618       692,359       1,662,516
    404,245              361,826             3,432,783
    7,258,348 94,595       229,595        992,763              695,506
    316,359              442,766         2,771,583 1,597,468
    705,461       4,068,026             859,234              313,302
    712,465         8,255,958 241,376       266,376        342,010
    1,066,627             714,287             1,066,960
    3,697,633 0             0                 0            49,927
    55,411               63,652           168,990 0        51,094
    338,300              153,623              171,232
    359,169         1,073,418 0             0                 0
    81,883              110,576              301,610           494,069
    2,490,179     2,063,179      2,065,179             337,679
    25,005,522                44,458,660       76,420,401 $8,740,732
    $7,431,656    $12,866,471          $12,014,889     $36,453,890
    $67,348,971      $144,856,609 0             0                 0
    0               $4,716                     0           $4,716 0
    0                 0                 0               43,833
    $29,706            73,539 $416,200     $1,261,726      $724,324
    $2,026,922             927,537              175,444
    5,532,153 Page 31
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Region                                      Country Aruba Bahamas
    Barbados Belize Bermuda Bolivia Brazil British Virgin Islands
    Cayman Islands Chile Colombia Costa Rica Cuba Dominica Dominican
    Republic Ecuador El Salvador Grenada Guatemala Guyana Haiti
    Honduras Jamaica Mexico Netherlands Antilles Nicaragua Panama
    Paraguay Peru St. Kitts and Nevis St. Lucia St. Vincent and
    Grenadines Suriname Trinidad and Tobago Turks and Caicos Uruguay
    Venezuela Page 32
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Fiscal year 1993          1994          1995                1996
    1997                  1998              Total 0000 4 , 7 1 6 0
    4,716 2,439        25,000                0              720
    44,768                     0           72,927 129,728
    0          4,822             45,016                29,041
    11,390           219,997 32,092        17,000          6,060
    33,429                56,401               29,023
    174,005 0000 4 , 7 1 6 0 4,716 3,546,549     4,730,874
    2,762,100           3,028,581            3,743,175
    2,478,792       20,290,070 452,028       154,286       154,735
    727,743             1,971,389              791,950
    4,252,131 0000 4 , 7 1 6 0 4,716 0000 6 , 1 7 2 0 6,172 644,008
    816,287       916,065             321,896               458,120
    102,039         3,258,415 11,127,685     4,560,907       99,503
    2,284,697              384,453             2,082,495
    20,539,740 106,298       107,590       174,386             154,587
    180,875              163,281           887,017 0           100
    180                 132                  486
    1,263            2,161 0        15,000          6,842
    0                12,582                     0           34,424
    129,238        76,835       124,249              81,898
    1,685,156             2,650,243        4,747,619 2,288,406
    607,567      1,684,557           1,489,370              820,456
    1,566,195        8,456,551 9,176,904     3,029,757    12,506,304
    9,207,185            4,198,363             2,589,397
    40,707,910 8,000         8,000          8,023              7,008
    13,791                 9,428           54,250 3,578,054
    1,291,404      357,368            1,759,622            5,721,037
    2,358,987       15,066,472 2,000       882,622          7,201
    502,709               876,512              428,863
    2,699,907 7,000,000    49,600,000    35,471,500
    16,036,389       14,859,757                14,940,858
    137,908,504 450,147      1,165,792      774,229
    1,762,694            2,877,553              833,001
    7,863,416 1,088,578      650,853       264,000             278,240
    11,972               58,950         2,352,593 236,775
    1,201,272      810,148             585,674             2,849,475
    1,690,991        7,374,337 0             0                0
    0                10,816                     0           10,816
    8,078,000     3,676,494      606,044            1,688,366
    1,707,446             3,083,854       18,840,204 2,233,820
    156,807      4,429,514           3,075,216            1,204,601
    930,439        12,030,397 751,323       667,033       944,891
    224,856               584,537              179,343
    3,351,983 52,520      1,774,024      945,458            1,871,366
    1,341,950             2,156,384        8,141,702 6,283
    0        99,070              53,635                14,621
    0          173,609 0        15,000                0
    7,075                19,506                     0           41,581
    0             0                0           17,541
    4,716                     0           22,257 0        28,000
    35,609              17,000                40,284
    18,837           139,730 140,051        23,478        40,575
    115,375               135,549               75,778
    530,806 0000 4 , 7 1 6 0 4,716 289,790        32,441       759,064
    233,339                57,675               38,467
    1,410,776 808,162       341,575       807,738             337,079
    1,099,236              362,498         3,756,288 Page 33
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Region                                             Country
    Regional Latin America and the Caribbean total Newly independent
    states                           Armenia Azerbaijan Belarus
    Georgia Kazakhstan Kyrgyz Republic Moldova Russia Tajikistan Tur
    km en is t an Ukraine Uzbekistan Regional Newly independent states
    total Multiregional total Grand total Source:  Our analysis of
    U.S. agencies' rule of law funding data. Page 34
    GAO/NSIAD-99-158 Rule of Law Funding Appendix II Worldwide U.S.
    Rule of Law Funding by Region and Country, Fiscal Years 1993-98
    Fiscal year 1993            1994            1995
    1996                1997                  1998              Total
    3,940,025        124,958        2,750,078            3,320,692
    5,625,054             2,340,089       18,100,895 $56,715,103
    $77,042,682     $68,274,637          $51,296,052     $53,642,476
    $42,177,984      $349,148,934 0        $494,000        $300,000
    $997,356            $113,888              $622,453
    $2,527,697 0         162,000                  0           121,133
    83,362              277,793           644,288 $40,000
    225,000         730,406              129,330              262,065
    135,280         1,522,081 527,296         793,636
    309,539              292,192              641,688
    2,564,350 1,998,000       1,104,000             399,321
    338,065              342,536         4,181,922 190,958
    2,379,958       1,130,958             402,093              196,292
    745,685         5,045,943 269,309         606,309         673,309
    571,773              353,907             1,150,866
    3,625,471 5,254,311      15,828,311      23,858,827
    9,091,998           2,685,884             7,023,812
    63,743,144 0         570,000         942,000              122,919
    49,687              141,899         1,826,505 0         148,000
    114,000               93,416              135,390
    408,928           899,734 869,628        4,129,510       3,898,189
    2,214,431           2,837,954             3,995,858
    17,945,570 0        1,020,000        449,000              281,675
    84,408              693,384         2,528,467 9,569,000
    2,253,000       5,628,000            2,495,000           5,954,799
    9,456,057       35,355,856 $16,193,206     $30,341,384
    $39,622,324          $17,229,983     $13,387,893
    $25,636,239      $142,411,028 $2,676,000      $2,432,000
    $3,219,000            $975,991      $17,216,163
    $23,293,045       $49,812,199 $127,801,784    $159,485,332
    $183,805,710      $112,643,242       $169,206,648
    $217,537,824      $970,480,540 Page 35
    GAO/NSIAD-99-158 Rule of Law Funding Appendix III U.S. Departments
    and Agencies Involved in Rule of Law Activities
    Append IIix I In compiling the rule of law assistance data for
    this report, we identified 7 cabinet-level departments and 28
    related agencies, bureaus, and offices involved in providing rule
    of law assistance.  Many are law enforcement agencies providing
    training and technical assistance to their counterparts overseas.
    These are listed below. Department of Commerce * International
    Trade Administration * National Telecommunications and Information
    Administration * Office of General Counsel, Commercial Law
    Development Program * U.S. Patent and Trademark Office Department
    of Defense * U.S. Air Force * U.S. Army * U.S. Marine Corps * U.S.
    Navy Department of Energy Department of Justice * Drug Enforcement
    Administration * Federal Bureau of Investigation * Immigration and
    Naturalization Service * Criminal Division * International
    Criminal Investigative Training Assistance Program * Office of
    Overseas Prosecutorial Development, Assistance and Training
    Department of State * Bureau of Diplomatic Security, Office of
    Antiterrorism Assistance * Bureau of International Narcotics and
    Law Enforcement Affairs * Bureau of Western Hemisphere Affairs
    (formerly Bureau of Inter-American Affairs) Department of the
    Treasury * Bureau of Alcohol, Tobacco and Firearms Page 36
    GAO/NSIAD-99-158 Rule of Law Funding Appendix III U.S. Departments
    and Agencies Involved in Rule of Law Activities * U.S. Customs
    Service * Office of International Affairs * Office of
    Investigations * Federal Law Enforcement Training Center *
    Financial Crimes Enforcement Network * Internal Revenue Service *
    U.S. Secret Service Department of Transportation * U.S. Coast
    Guard U.S. Agency for International Development (USAID) U.S.
    Information Agency (USIA) Page 37
    GAO/NSIAD-99-158 Rule of Law Funding Appendix IV U.S. Funding for
    Rule of Law Assistance Categories for Latin America and the
    Caribbean, Fiscal Years 1993-98
    Appendix I V To develop an overview of the types of activities
    being funded for the Latin America and the Caribbean region, we
    grouped the U.S. rule of law assistance program data for the
    region into six categories based on activity descriptions provided
    by the cognizant departments and agencies. Although we placed each
    program or activity into one primary category, many programs,
    USAID's in particular, had multiple purposes that could be
    identified with more than one category.  The following definition
    for each category we used and the types of activities we included.
    Criminal Justice and Law Enforcement:  Assistance to help criminal
    justice or law enforcement organizations make reforms or improve
    their capabilities to carry out their responsibilities in a
    professional and competent manner.  We included technical
    assistance and training for police, prosecutors, public defenders,
    and other personnel in law enforcement-related agencies (such as
    Customs) in this category. Assistance for police often focused on
    investigative capabilities and management improvements.  Technical
    assistance and training topics included detection and
    identification of firearms, development of criminal investigation
    units, maritime law enforcement, and detection of counterfeit
    currency.  We also included antinarcotics and antiterrorism
    assistance. Judicial and Court Operations:  Assistance to help
    reform or improve operations of judicial and court systems.  We
    included activities that focused on modernizing court
    administration, training in oral advocacy skills, training
    judicial personnel, and establishing procedures for judge
    selection and a career ladder for judges.  In addition, we
    included programs intended to improve access to the justice system
    and establish legal aid services and justice centers; to institute
    alternative dispute resolution, mediation, or arbitration
    procedures in various sectors; and to provide exchange
    opportunities, training, or research related to the judicial or
    legal system in general. Civil Government and Military Reform:
    Assistance to help promote reform in other than judicial and law
    enforcement government agencies, improve cooperation and
    understanding between civil and military agencies, or develop
    responsive or responsible government institutions and officials.
    The majority of the activities were training courses provided by
    the military services on topics such as civil-military relations,
    professional skills for maritime and military personnel, and
    military law, although the largest single item was the funding to
    support multinational forces and police monitors in Haiti.  We
    also included training and related programs on government ethics
    and corruption in this category. Page 38
    GAO/NSIAD-99-158 Rule of Law Funding Appendix IV U.S. Funding for
    Rule of Law Assistance Categories for Latin America and the
    Caribbean, Fiscal Years 1993-98 Democracy and Human Rights:
    Assistance to promote democracy, electoral reforms, or respect for
    human rights.  We included USAID human rights activities and many
    USIA-funded activities that focused on civic education, citizen
    participation, free press, and related topics in this category.
    General/Other Activities:  Assistance that did not fit into other
    categories or was not clearly described.  We included legal
    education grants provided by USIA and training or exchange
    programs on an assortment of topics such as intellectual property
    rights, drug education and rehabilitation, and domestic and gender
    violence.  In addition, we included assistance that had no
    description. Law Reform:  Assistance to help develop, document, or
    revise constitutions, laws, codes, regulations, or other guidance
    that institute and strengthen the rule of law.  We included
    activities primarily focused on law reform, including judicial or
    criminal procedures code reforms.  However, some law reform
    activities may be included in other categories as a component of a
    larger program-especially USAID programs that had multiple goals.
    Table IV.1 illustrates the distribution of the rule of law
    assistance by the categories we developed among the countries in
    Latin America and the Caribbean.  Well over half of all U.S. rule
    of law assistance to the region was technical assistance and
    training for criminal justice and law enforcement personnel-
    police, prosecutors, public defenders, and others. Page 39
    GAO/NSIAD-99-158 Rule of Law Funding Appendix IV U.S. Funding for
    Rule of Law Assistance Categories for Latin America and the
    Caribbean, Fiscal Years 1993-98 Table IV.1:  U.S. Funding for Six
    Rule of Law Assistance Categories in Latin American and Caribbean
    Countries, Fiscal Years 1993-98 Dollars in thousands Civil
    Criminal  justice    Judicial and       government       Democracy
    and  law           court        and military     and human
    General/ Country                      enforcement
    operations             reform            rights         other Law
    reform          Totala Anguilla                                $5
    0               0                 0             0            0
    $5 Antigua and Barbuda                     57                  0
    $17                 0             0            0           74
    Argentina                            4,857            $191
    110               $168        $207             0        5,532
    Aruba                                    5                  0
    0                 0             0            0            5
    Bahamas                                 63                  0
    10                 0             0            0           73
    Barbados                               194                  0
    26                 0             0            0          220
    Belize                                 137                  0
    37                 0             0            0          174
    Bermuda                                  5                  0
    0                 0             0            0            5
    Bolivia                              9,785           9,822
    579                 0          105             0       20,290
    Brazil                               2,569                 647
    70                403         563             0        4,252
    British Virgin Islands                   5                  0
    0                 0             0            0            5 Cayman
    Islands                           6                  0
    0                 0             0            0            6 Chile
    2,840                 86              92                38
    202             0        3,258 Colombia
    19,945                  0             318                39
    238             0       20,540 Costa Rica
    236                 102            218                 7
    322             2          887 Cuba
    0                  0               0                 0
    2            0            2 D o m i n i c a
    2 001 5000 34 Dominican Republic                   1,339
    2,809                424                66          109
    0        4,748 Ecuador                              5,456
    2,645                189               105           60
    1        8,457 El Salvador                         25,945
    13,783                615                125         236
    4       40,708 Grenada                                 31
    0              23                 0             0            0
    54 Guatemala                            8,356           6,403
    177                43           88             0       15,066
    Guyana                                  57           2,571
    73                 0             0            0        2,700 Haiti
    72,541          22,430             42,621                217
    100             0      137,909 Honduras
    4,964           2,615                208                62
    14             0        7,863 Jamaica
    191           2,089                 14                 0
    57             1        2,353 Mexico
    2,398           3,422                401               332
    821             0        7,374 Netherlands Antilles
    11                  0               0                 0
    0            0           11 Nicaragua
    1,249           2,963                 15            13,509
    104         1,000       18,840 Panama
    11,220                 292             11               138
    369             0       12,030 Paraguay
    1,853                 854            161               240
    234             9        3,352 Peru
    2,406                 290            267             4,967
    183            28        8,142 Page 40
    GAO/NSIAD-99-158 Rule of Law Funding Appendix IV U.S. Funding for
    Rule of Law Assistance Categories for Latin America and the
    Caribbean, Fiscal Years 1993-98 Dollars in thousands Civil
    Criminal  justice    Judicial and       government
    Democracy and  law            court       and military
    and human          General/ Country                    enforcement
    operations               reform             rights
    other Law reform         Totala St. Kitts and Nevis
    136                  0                 38                  0
    0         0         174 St. Lucia                             20
    0                 22                  0                   0
    0          42 St. Vincent and                        501 8000 22
    Grenadines Suriname                              57
    0                 73                  0                   0
    11         140 Trinidad and Tobago                  398
    18                 29                51                    35
    0         531 Turks and Caicos                       5
    0                  0                  0                   0
    0           5 Uruguay                            1,133
    53               119                 30                    75
    0        1,411 Venezuela                          2,937
    146              382                   5                  282
    5        3,756 Regional                          15,488
    0               224              1,443                   946
    0       18,101 Totala                         $198,922
    $74,230             $47,596            $21,991             $5,349
    $1,060    $349,149 aTotals may not add due to rounding. Source:
    Our analysis of U.S. agencies' rule of law funding data. Page 41
    GAO/NSIAD-99-158 Rule of Law Funding Appendix V Comments From the
    Department of Defense Appendix V Page 42           GAO/NSIAD-99-
    158 Rule of Law Funding Appendix VI Comments From the U.S. Agency
    for International Development
    Appendix VI Page 43        GAO/NSIAD-99-158 Rule of Law Funding
    Appendix VI Comments From the U.S. Agency for International
    Development Page 44                               GAO/NSIAD-99-158
    Rule of Law Funding Appendix VII GAO Contacts and Staff
    Acknowledgements Appendix VII GAO Contacts              Jess Ford,
    (202) 512-4268 A.H. Huntington, III, (202) 512-4140
    Acknowledgements          In addition to those named above, Ann L.
    Baker, Mark B. Dowling, Marcelo Fava, Wyley Neal, and Richard
    Seldin made key contributions to this report. (711360)
    Letter    Page 45                                  GAO/NSIAD-99-
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