European Commission Mid-term review of the Cocaine Route Programme financed by the EU Instrument for Stability Final Report Project No. 2012/302922 This project is funded by A project implemented by The European Commission HTSPE Limited HTSPE Limited Thamesfield House Boundary Way Hemel Hempstead Herts HP2 7SR United Kingdom Tel: +44 (0) 1442 202400 Fax: +44 (0) 1442 266438 Email: [email protected] Web: www.htspe.com EuroTrends 43, rue d’Aboukir 75002 Paris France Tel: +33-1-42 22 93 30 Web: www.euro-trends.net Expert 1 – Axel KLEIN Expert 2 – Stella Aku ATTAKPAH Expert 3 – Sergio URIBE This publication has been produced with the assistance of the European Union. The contents of this publication are the sole responsibility of HTSPE Limited and can in no way be taken to reflect the views of the European Union. June 2013 (5012121) Table of Contents TABLE OF CONTENTS................................................................................................................ 3 LIST OF ACRONYMS ................................................................................................................. 5 EXECUTIVE SUMMARY ............................................................................................................. 8 1. INTRODUCTION ............................................................................................................. 13 1.1 Security and Development .......................................................................................... 13 1.2 The Cocaine Route Programme .................................................................................. 13 2.3 The Mid-term Review ................................................................................................. 15 3. FINDINGS ...................................................................................................................... 16 3.1 The Evaluation Questions ........................................................................................... 16 3.2 Relevance .................................................................................................................... 16 3.3 Design ......................................................................................................................... 23 4. EFFECTIVENESS .............................................................................................................. 26 4.1 Delivery of planned benefits and results: fighting against organised crime groups .. 26 4.2 Enhancing the Cooperation Capacity of Law Enforcement and Judicial Authorities at Regional and Trans-Regional Level .......................................................................................... 27 5. EFFICIENCY .................................................................................................................... 28 5.1 Management arrangements and coordination .......................................................... 28 5.2 Management, planning and implementation ............................................................ 29 5.3 Information management and deadlines ................................................................... 30 5.4 Project management .................................................................................................. 30 6. IMPACT ......................................................................................................................... 32 6.1 Achievement of project objectives: human security ................................................... 32 6.2 Impact on development benefits ................................................................................ 33 6.3 Impact on beneficiary agencies .................................................................................. 34 6.4 From network to institution building - AMERIPOL...................................................... 35 6.5 Shifting the focus from organised crime - the challenge of PRELAC........................... 36 7. SUSTAINABILITY ............................................................................................................ 37 7.1 Ownership ................................................................................................................... 37 7.2 Policy Support ............................................................................................................. 37 7.3 Institutional capacity .................................................................................................. 38 7.4 Local perceptions ........................................................................................................ 39 8 COHERENCE ................................................................................................................... 40 8.1 Project Overlaps and Complementarity...................................................................... 40 8.1.1 COPOLAD .................................................................................................................... 40 8.1.2 Projects in West Africa ................................................................................................ 42 3 8.2 Supporting development and EU values ..................................................................... 42 9. EC VALUE ADDED - WHAT IS THE ADDED VALUE OF IFS SUPPORT FOR THE CRP?.............. 43 9.1 The appropriateness of IfS funding for the CRP against guiding principles................ 43 10. VISIBILITY .................................................................................................................. 47 11. OVERALL ASSESSMENT .............................................................................................. 47 11.1 Identifying the Threat of Organised Crime ................................................................. 47 11.2 Lessons learnt ............................................................................................................. 48 12. CONCLUSION ............................................................................................................. 51 12.1 Methodological issues ................................................................................................ 51 12.2 The project design and the IfS .................................................................................... 52 12.3 Programme management and coordination .............................................................. 53 12.4 Capacity enhancement for "international cooperation of law enforcement and judicial services" ...................................................................................................................... 54 12.5 Judicial component ..................................................................................................... 54 12.6 International cooperation - at regional level .............................................................. 55 12.7 Trans-regional cooperation ........................................................................................ 55 12.8 The relationship with partners ................................................................................... 55 12.9 Coherence with EU policies ......................................................................................... 56 12.10 Information / analysis ............................................................................................ 58 13. RECOMMENDATIONS ................................................................................................ 58 ANNEX 1 – TERMS OF REFERENCE .......................................................................................... 64 ANNEX 2 – THE EVALUATION TEAM ....................................................................................... 93 ANNEX 3 – LOGFRAME ........................................................................................................... 96 ANNEX 4 – EVALUATION QUESTIONS AND RESEARCH INSTRUMENTS .....................................101 ANNEX 5 – METHODOLOGY ..................................................................................................116 ANNEX 6 – LIST OF INTERVIEWS AND CONSULTATIONS ..........................................................122 ANNEX 7 – LIST OF DOCUMENTS CONSULTED ........................................................................131 ANNEX 8 – PROJECT SUMMARIES ..........................................................................................135 ANNEX 9 – MISSION REPORT, WEST AFRICA ..........................................................................152 ANNEX 10 – PERFORMANCE OF THE CONTRACTORS ..............................................................159 ANNEX 11 – DRUG SEIZURES FROM AIRCOP AND SEACOP ......................................................163 ANNEX 12 – DRUG OFFENDERS IN THE PRISON POPULATION IN LATIN AMERICA ....................166 ANNEX 13 – MAPPING OF DRUGS, SECURITY AND JUSTICE-RELATED RELEVANT PROJECTS ......168 4 List of Acronyms AAP Annual Action Programme AD Alternative Development AFRICOM Africa Command AIRCOP Airport Cooperation Programme AIAMP Asociación Ibero Americana de Ministerios Públicos AMERIPOL American Police Community AML Anti-money laundering AUC Autodefensas Unidas de Colombia BKA BundesKriminalAmt BNI Bureau of National Investigation CELAC Comunidad de Estados Latinoamericanos y Caribeños CENcomm WCO Customs Enforcement Network communication system CENTIF Cellule National de Traitement des informations Financières CFATF Caribbean Financial Action Task Force CFT Counter financing of terrorism CIFAD Centre