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USAID/Jamaica Scope of Work Democracy and Governance Program – More Peaceful and Transparent Democracy

I. Introduction

The United States Agency for International Development in Jamaica (USAID/Jamaica) is seeking comments on this scope of work to promote a more peaceful and transparent democracy through safer communities, improved policing, and increased acountability and integrity in government. The program will capitalize on existing USAID investments in the sector and build on new opportunities that promote community-based partnerships to prevent crime and violence, support the rule of law, control corruption, increase citizen participation and youth engagement, and create leadership for reform. The activity is designed as a five-year effort, estimated to begin in January 2011, with estimated funding to range from $13 to $18 million. Additional funding of up to $25 million may become available through the Caribbean Basin Security Initiative (CBSI).

The proposed program will support USAID/Jamaica’s Assistance Objective of a More Peaceful and Transparent Democracy which includes the Peace and Security and Governing Justly and Democratically components.

II. Major Challenges to a More Peaceful and Transparent Democracy in Jamaica

The Government of Jamaica has highlighted the following three areas as major priorities in realizing its short to medium-term goals: reducing crime and violence; creating economic opportunities; and improving basic education focusing on integrating youth into the economy, polity and society. As such, the USAID/Jamaica Country Assistance Strategy (CAS) focuses on four broad priority areas: increasing peace and security by reducing crime and corruption, promoting economic prosperity and sustainable development, investing in people, and HIV/AIDS prevention.

With respect to the first priority, key elements include building the institutional capacity of the JCF, institutionalizing community policing, supporting national security sector reforms, and building civil society in community transformation to create synergies with the police. This priority is reflected in USAID/Jamaica’s Assistance Objective One (AO) 2010-2014 of achieving a more peaceful and transparent democracy in Jamaica by creating safer communities that respect the rule of law and human rights and by increasing accountability and integrity in government. This also fits into two national outcomes captured under Goal 2 of Jamaica’s National Development Plan (Vision 20/30) of Safety and Security and Effective Governance and is mirrored in the guiding principle of social cohesion needed to realize the country’s vision.

The capacity of the main pillars of government to address the needs of its citizens is critical to the proper functioning of democracy in any country. Although there have been some improvements, the police and judicial systems in Jamaica remain weak links in addressing both corruption and crime. Efforts to implement community-based policing (CBP) have been incremental and have generated some success thus far, Community Based Policing Assessment Report p. 12. but much remains to be done. The traditional culture of the JCF and its conventional approach to law enforcement are major deterrents to change in this area. A recent evaluation found that top and middle management of the JCF bore responsibility for delays in efforts to transform the organization into a unit more responsive to its clientele. One of the key findings of the Evaluation of the JCF Reform and Modernization Program was that the JCF had limited achievement in being “more responsive and accountable to citizens and communities, especially poor communities and vulnerable groups”, p. 10. . Continuing current work to train top and middle management and police officers on the Community-Based Policing (CBP) model approach to law enforcement is an important step in transforming the culture within the JCF.

Another positive result from the community-policing approach is familiarizing the police with the work currently being done by Community Based Organizations (CBOs) and Non-Governmental Organizations (NGOs) to promote community-driven activities. Lessons learned from efforts in Grants Pen and Flanker indicate that in addition to securing support from the top and middle ranks of the police, it is also critical to have community governance structures and to secure buy-in from all elements of the community, including the youth. The Medium Term Socio-Economic Policy Framework 2009-12 Final Report outlines that “strengthening the institutional capacity of community groups and councils… strategic targeting of unattached, out of school, unemployed youth and school youth” were important in any strategy geared towards creating a safe and secure society, p. 32. While the police are integral to any attempt to improve crime prevention, the job becomes easier when there are other structures serving as buttresses for the police efforts. CBOs and NGOs may be better equipped to provide or facilitate access to much-needed social services and serve as a conduit through which community members, especially young men, can participate in community governance.

The involvement of youth must be viewed as a priority in light of the fact that youth continue to be both the primary perpetrators and victims of major crimes in the country. The Vision 20/30 Medium Term Socio-Economic Framework outlines the gravity of the situation by arguing that “poor educational performances particularly amongst boys; and unemployment amongst youth (ages 15-24) is as high as 23.6%...” Planning Institute of Jamaica, 2009, p. 17. These statistics led the Ministry of National Security (MNS) to respond with a draft policy framework recognizing crime and violence as a social issue requiring a strategic response that extends beyond traditional law enforcement methods. This approach will focus on youth who are attached to a formal institution, as well as those in the informal setting, and must recognize youth as not only key beneficiaries of assistance but also as change agents who can be empowered to participate and contribute to society in meaningful ways This point also fits into the USAID/Jamaica CAS Priority Goal 3 of Investing in People.. Statistics demonstrate that the rate of unemployment among young men relates to the disparities in the formal educational system.

Another major impediment in securing a peaceful and transparent democracy is a low level of trust and confidence that citizens have in critical institutions. There is a lack of trust for the state authority, Ibid. p. 22 in particular towards public institutions such as the JCF Ibid, p. 15. Any attempt to require accountability and integrity in the country must be led from high levels of government and be carried out through the main operatives or officials of the state, namely the police and judiciary. Both external and internal manifestations of corruption must be suitably addressed in order to defray the cloud of suspicion that currently affects the work of public officials. This is highlighted by the fact that “almost 70% of youth aged 18 to 25 justify and acquiesce with corrupt practices in Jamaica, and 60% believe that kind of corruption to be quite common” Corruption Assessment for Jamaica 2008, p. 19..

Building partnerships between civil, public and private sector interests must be an integral part of any attempt to stamp out corruption in Jamaica. Reports have argued that corruption “damages international development and poverty alleviation by limiting economic growth, reducing social cohesion, skewing public investments and weakening the rule of law”. USAID Program Brief: Anticorruption and Police Integrity, 2007, p.1. What this suggests is that there needs to be an integrated approach to fighting corruption as it has the potential to wreak havoc on various elements of society. In addition to reflecting negatively on public officials and institutions in terms of decreased public confidence, the perception of corruption affects international investor confidence in the country. The country continues to reel from a successive decline on the Corruption Perception Index produced by Transparency International, to its current position of 99 out of 180 countries surveyed, along with its position of 78 on the Global Competitiveness Index, which measures both future economic growth prospects and the effectiveness with which countries utilize existing physical and human capital resources. This places the government’s stated objective of having Jamaica be “the place of choice to live, work, raise families and do business” in serious doubt absent an expressed collaborative effort between different sectors of the society to accomplish this feat.

Trust is a significant issue to be navigated by the various institutions in order to success in securing a peaceful and transparent democracy. Corruption in public institutions almost always functions within a larger systemic framework characterized by a lack of overall transparency, absence of checks and balances, weak rule of law and fragile institutions” It is argued that police corruption ranges from petty corruption, involving bribery of a traffic officer to political corruption whereby politicians interfere in the work of the police. Dons also interfere and are a major source of police corruption. The case of the sergeant who was arrested for selling guns and ammunition from the police armory to gangs is a good example.. An approach which seeks to identify “reform leaders” Jamaica- Community Based Assessment, p. 32. who will champion the cause of institutional change both within and outside of the JCF will supplement the work currently being done by the Anti-Corruption Branch of the JCF, the National Integrity Action Forum, the Contractor General, the Director of Public Prosecutions, Customs Authorities and the work of civil society groups. It is envisaged that additional support will come from different sectors of society who will see the merits of promoting this message and endorse the initiative.

The perception of high levels of corruption among public officials as well as the ineffectiveness of state organs to successfully prosecute or prevent crime helps to explain a growing trend of youth involvement in criminal activity Medium Term Socio-economic Framework 2009-12 Final Draft paints a picture by arguing that “The murder rate rose to 60 per 100,000 population in 2008 from 33 per 100,000 population in 2000 and 50 per 100,000 in 2006. One of the more troubling features of crime and violence in Jamaica is the involvement of youth (particularly boys and young men) as main perpetrators and victims”, p. 30.. This situation is exacerbated by inefficiencies and inconsistencies in the dispensing of justice Medium-Term Socio-Economic Framework 2009-12, p. 31.. The justice system currently lacks the capacity to investigate and adjudicate crime in a timely fashion and fails to inspire confidence in Jamaicans that it is accessible, fair and capable of delivering justice Jamaica Corruption Assessment reveals that “…still missing is larger sense of the strategic interconnectedness of the entire system from police investigation to prosecution; adjudication, sentencing and detention…”, p. 12.. This is pervasive in the inner-city communities where illegitimate governance systems and leadership are predominant and run parallel to state and formal systems. In these communities, citizens display significant deficits in their understanding of the law, legal institutions and their roles and responsibilities as law-abiding citizens. They seem more likely to bypass what they consider a system which lacks the mechanisms to ensure timely and equitable decisions and instead choose alternate, and often corrupt, methods to bypass the justice system Democracy and Governance in Jamaica: An Assessment, 2001, p. 18.. The recent instance of vigilante justice and the arrest of two jurors charged with seeking a bribe to return a non-guilty verdict in a murder case offer some insights into the extent to which individuals will go to circumvent the judicial system as well as to show the level of acceptance that Jamaicans have for corruption.

An additional issue is the need for an alternate approach to dealing with youth offenders, particularly in view of a current recidivism rate of 20.8% which suggests the juvenile justice system is a revolving door which traps youth who have transgressed in a life of incarceration. MTF, p. 38. The recent Armadale enquiry also highlights the lack of strategic leadership to deal with youthful offenders in the country, with problems ranging from treatment of juveniles in lock-ups and places of safety, overcrowding, delays in sentencing and ‘under-resourced programs and inadequate staffing”. Corruption Assessment Report on Jamaica, p. 12. The lead drafter of the 'national crime prevention and community safety strategy' for the MNS suggests that the adoption of alternate methods, Medium Term Socio-economic Framework’s National Strategy of Safety and Security has as a priority the strengthening of management, rehabilitation and reintegration of clients of correctional facilities. such as community justice tribunals, could be used to create greater involvement of citizens in crime prevention and also serve as a means of easing pressures on courts and correctional institutions. Final Crime Prevention and Community Safety Report, 2010, p. 29

There is a need to support efforts of “reform leaders” from all sectors of society who can serve as beacons of hope in the fight to promote democracy and governance. A sustained, holistic, multi-pronged and integrated approach is the best means for combating the deleterious effects of crime and corruption in Jamaica.

III. USAID Achievements in Democracy and Governance

In 2006, USAID/Jamaica launched the Community Empowerment and Transformation Project to implement its strategy to address good governance issues in support of efforts to reduce crime and violence and strengthen the economic competitiveness in Jamaica’s inner cities. The COMET project brought together expertise from a wide cross section of sectors including the public sector, local and international sectors (as well as international donors), and non-governmental sectors. COMET was built on previous work done by the USAID/Jamaica to strengthen civil society on a nation-wide basis (CIV-JAM) and two previous inner-city development projects: the Peace and Prosperity Project and the Grants Pen Community Policing Project. Initially, COMET’s focus was on building the capacity within the Jamaica Constabulary Force (JCF), the Social Development Commission (SDC) and their local partners to deliver key services while further strengthening the relationship between the police and the community, with the ultimate goal of reducing crime and improving the quality of life for citizens. An assessment of Jamaica’s experiences in community-based policing in 2007 led to the strengthening and broadening of the COMET’s mandate from one which was geographically specific to one which was systemic and institutional in its approach.

Activities implemented by COMET included:

Providing technical assistance, commodity support and training to the SDC and JCF to enhance the process of mainstreaming community-based policing.

Providing assistance to the Government of Jamaica Anticorruption efforts through its work with the Jamaica Customs Department.

Supporting the work of the National Integrity Action Forum (NIAF) through the UWI Centre for Leadership and Governance which seeks to establish structured interactions between anti-corruption champions in the public, private and civil society sectors.

Holding two sub-regional workshops on gang reduction and trans-national security, bringing Jamaica, Haiti and the Dominican Republic together to exchange information and build the platform for sub-regional cooperation on gang reduction in an effort to stem the gang network that exists...

A major part of USAID-COMET has been assistance to the Jamaican Constabulary Force. The JCF has been, with USAID assistance, moving towards national implementation of community-based policing (CBP) practices and reforms for the past ten years. CBP is an approach to policing based on the concept that crime is most effectively addressed through partnerships between the police and the communities they serve, mobilizing the public to work with police to prevent crime and adopting mutual problem-solving approaches to meet specific community requirements. The most successful CBP efforts have been in those communities where the communities themselves have been the driving force in pushing for greater prevention efforts.

While the achievements of USAID-COMET thus far signal broad consensus and involvement in changing the mentality towards democracy and governance, additional institutional strengthening, organizational development and partnership building is essential. What has been, and continues to be, important with USAID-COMET important, and continues to be important, is the engagement of citizens, especially youth and civic groups, through public education and involvement in advocacy. Of course, critical to any such engagement of youth in the process is the recognition that there exists a direct correlation between youth employment and violent crimes.

IV. Other Donor Activities

In addition to the work currently being done by USAID, other donors have been involved at different intervals and to varying degrees to support and encourage democracy and governance in Jamaica. The UNDP has been working in the area of governance in tandem with their governmental and community-based organization partners in an attempt to reduce violence and to promote peace and sustainable development through the Jamaica Violence Prevention, Peace and Sustainable Development Program.

The Canadian International Development Agency’s (CIDA) Democracy and Governance Fund was developed to contribute towards good governance and the soundness of democracy by promoting a more peaceful political process, as well as by helping public institutions become more transparent and accountable. Additionally, the Justice Undertaking for Social Transformation (JUST) program adopts a multi-pronged approach of focusing on legal and judicial development and democratic participation and human rights. In doing so, they work to strengthen justice institutions so that they are better able to contribute to overall order, promote legislative and policy reforms that better position the state to ensure security, and encourage communities to provide input to the justice system reform surrounding personal security.

The United Kingdom Agency for International Development (UKAID), formerly Department for International Development (DFID), has also been involved in efforts to assist with safety, security and access to justice through its work with capacity building and technical assistance to the JCF. Their reform efforts include support to civil society groups such as Jamaicans for Justice, social intervention programs such as the Community Security Initiative and the Jamaica Reducing Re-offending Action Plan in the Ministry of National Security (MNS).

The European Union has a similar focus to that of USAID in terms of its Poverty Reduction Program which seeks to enhance the participation of organizations in at-risk communities by strengthening their administrative capacity and by improving their socio-economic conditions and overall quality of life for the residents. They have also been involved in projects to promote human rights and democracy through education and advocacy facilitated by the Independent Jamaican Council for Human Rights.

V. Strategic Objectives/Assistance Objectives

USAID/Jamaica’s portfolio consists of five assistance objectives:

AO 1: More Peaceful and Transparent Democracy AO 2: Profitability and Competitiveness of Key Agricultural Crops Increased AO 3: Economic Enabling Environment Improved AO 4: Education Transformation Program Strengthened AO 5: HIV prevalence in most-at-risk populations reduced and effects mitigated

The activities foreseen in this Statement of Work fall under Functional Objective AO1, “Peace and Security, and Governing Justly and Democratically (GJD)” under the Foreign Assistance Framework, which falls under USAID/Jamaica’s democracy and governance portfolio. Programs under this portfolio focus on the prevention of crime, violence and corruption, with an integrated focus and cross-cutting issue of youth. Over time, the resulting improvements in citizen security and government integrity at the national and local levels will increase political stability and help to restore and maintain citizen confidence in democracy.

Assistance Objective 1: Promoting a More Peaceful and Transparent Democracy

This AO seeks to “restore a sense of safety, security, and stability to Jamaicans by reducing crime and violence and the threat of civil unrest, and the crippling fear it engenders; it also seeks to introduce greater transparency and accountability into key government institutions, including the police and local government institutions, to increase government effectiveness and political stability.” USAID/Jamaica Assistance Objectives 2010-2014 Over time, improvements in citizen security and government integrity will increase political stability and help to restore and maintain citizen confidence in key democratic institutions. This AO and the subsequent IRs were developed and informed by three major USAID sub-sector assessments, MSI, Corruption Assessment for Jamaica, Sept. 2008; USAID, Jamaica-Community-Based Policing Assessment March 2008; USAID, Crime, Gangs and Violence, Assessment of Community-Oriented Policing in Grants Pen and Central Village, December 2006. 2006 and 2008 AmericasBarometer surveys by the Latin American Public Opinion Project (LAPOP), and consultations with partners and stakeholders. AO 1 is also informed by successes and lessons learned from USAID’s current Strategic Objective (SO) 13, entitled “Improved Governance through Citizen Security and Participation.” Based on this participatory process, and with current resource constraints, a consensus emerged on the need for USAID to focus on crime, violence, and corruption.

The assistance objective consists of two Intermediate Results or IRs: Safer communities, respecting rule of law and human rights, and increased accountability and integrity in government.

IR1, “Safer communities, respecting rule of law and human rights”, was developed against the background of the fact that crime and violence are the most pressing concerns for Jamaicans, and an overwhelming 96% of citizens perceive current rates of crime and violence as a threat to the nation’s wellbeing. AmericasBarometer, Political Culture of Democracy in Jamaica, 2008, at p. 72 While total crime rates have declined over the last decade, violent crime, and particularly murder, has spiraled. Since independence, the murder rate has almost doubled each decade. In the first three months of 2010 alone, 425 murders have been committed, making Jamaica one of the most murderous countries in the world. Violent crime in Jamaica has age, gender, and socio-economic dimensions, with poor young males as the primary perpetrators and victims of crime. Much of the crime is concentrated in inner-city communities, many of which are controlled by well armed and well-organized gangs trafficking in narcotics and guns and engaging in various other illegal activities. Domestic violence against women, and violence against youth in schools and in the home, including crimes leading to murder, are serious concerns. Jamaica also suffers from significant levels of state violence, and the GOJ, international organizations, and international and national human rights groups have documented a pattern of unlawful police killings coupled with impunity. According to a recent government review of policing in Jamaica, Strategic Review, the security situation and the relative threat against the police have led to methods of policing that are “militaristic” and ineffective, and the police have been “slow to adopt a culture of public service, community-based policing and respect for human rights.” Ministry of National Security, A New Era of Policing in Jamaica: Transforming the JCF: the Report of the JCF Strategic Review Panel, 2008, at 24-25.

The second IR of improved accountability and integrity in government was created in response to the fact that for the first time in 2008, Jamaicans listed corruption as their second most serious concern, after crime and violence. Indeed, among 22 countries in the region participating in the AmericasBarometer surveys, Jamaicans expressed the lowest level of confidence in government officials. AmericasBarometer, at p. xxvi Since first participating in the Transparency International surveys in 2002, Jamaica has received a “highly corrupt” designation each year. According to the 2008 USAID Corruption Assessment and AmericasBarometer, corruption originates in the public sector, where bureaucratic and inefficient systems provide an ideal environment for corruption. Additionally, citizens broadly accept that bribes are necessary for the timely delivery of services. AmericasBarometer, at p. 43 Corruption is found across government agencies, and in particular (as in other countries) in the health sector, police, revenue authorities and the Customs Department. In terms of the police, the Strategic Review concluded that tackling corruption and incorporating stronger accountability measures were central to transformation of the JCF. As noted, a police organization that does not take a strong stand against corruption is neither legitimate nor effective. Strategic Review, at 18-19.

The figure below provides an illustrative overview of the AO and the expected intermediate results.

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The Caribbean Basin Security Initiative (CBSI)

The Caribbean Basin Security Initiative (CBSI) was first announced by President Obama at Summit of the Americas early in 2009. The initiative will focus on the countries of the Caribbean Basin defined as Antigua and Barbuda, The Bahamas, Barbados, Belize, Dominica, Dominican Republic, Grenada, Guyana, Haiti, Jamaica, St. Kitts and Nevis, Saint Lucia, St. Vincent and the Grenadines, Suriname, and Trinidad and Tobago. Support for law enforcement includes programs to enhance rule of law, provide equipment and training to counternarcotics forces to combat drug trafficking and related violence and organized crime, assist efforts to strengthen anti-crime legislation, support information sharing among the customs, law enforcement and border control agencies in the Caribbean and maritime security. There is considerable interest and recognition of the need to balance support for law enforcement with support for social justice and education programs to address the issue of poorly educated, unemployed, and crime-prone youth. Funds will also be available for remedial education, workforce development, selected youth entrepreneurship programs, and juvenile justice, including diversion and rehabilitation programs for young offenders and at-risk youth in the Caribbean. Support will also be provided for judicial reform, institution building, education, anti-corruption, and rule of law activities. USAID/Jamaica is poised to be involved in regionalizing several components, including anti-corruption, juvenile justice, and community based policing. The CBSI involves a whole of USG approach and active dialogue among the inter-agency is occurring in Jamaica.

The GOJ has identified priorities under the CBSI as follows:

Many of the activities particularly in the area of prevention are already within the scope of USAID/Jamaica’s AO1 and the likely expansion in the scope of USAID’s activities as a result of CBSI activities must be taken into consideration in the Democracy and Governance Program and future implementation.

VI. Activities and Expected Results

To increase peace and security in Jamaica, both law enforcement itself and the community’s ability to work with police in addressing crime and violence must be enhanced. Crime and violence destroy communities from the inside by eroding interpersonal trust as well as trust between citizens and the institutions that are supposed to protect them. From the Ministry of National Security’s Concept Paper on Developing a National Crime Prevention and Community Safety Strategy, it is clear that crime and violence must be recognized as a broader social issue that goes beyond traditional law enforcement, and requires different prevention efforts and social interventions to effectively reduce crime and violence. Strong communities are critical to stemming the rising tide of crime and violence; community members must present a united front against delinquent behavior and provide help and opportunities to those at risk of engaging in delinquency, while working alongside the JCF. To generate the trust needed for viable partnerships between communities and the Government of Jamaica, greater transparency and accountability from institutions, including the JCF, are critical elements.

Youth ages 15-24 are both the largest group of perpetrators and primary victims of violent crimes. Thus, any efforts to stem the violence must focus on youth, not only because of their high level of involvement, but also because the future of any nation lies in the development of its youth into strong and productive citizens.

The Contractor will achieve the expected results listed under each of the five components outlined below. Although listed as separate components, they are all closely interconnected and complementary. For example, community-driven crime prevention activities can incorporate elements of promoting a culture of lawfulness. Community policing necessarily draws upon community-driven initiatives. Anti-corruption efforts must encompass not only key governmental institutions, but civil society encouragement and oversight. Youth is a priority cutting across all five components – inclusion in CBP activities such as youth sports leagues, critical players in community-based prevention efforts, and primary targets in fostering a culture of lawfulness including an anti-corruption curriculum.

Activities will be closely coordinated with local partners in the Ministry of National Security, the JCF, Social Development Commission (SDC), Parish Development Councils (PDCs) and Community Development Commissions (CDCs), and the Ministry of Education, as well as non-governmental organizations, civil society and civic leaders, the International Donor Partners and other U.S. Government sectors such as the Narcotic Affairs Section (NAS) and Immigration and Customs Enforcement (ICE), as well as other key stakeholders. The Contractor must be sufficiently flexible to respond to new requests and windows of opportunity, although any new activities must be approved by the USAID/Jamaica Contracting Officer Technical Representative (COTR).

Activities will include direct technical assistance and training to design/implement specific institutional changes in the JCF in support of enhancing and fully institutionalizing CBP; technical assistance and financial support for community-driven programs to promote closer cooperation with police, including encouraging youth to develop their full potential by providing educational and training opportunities, as well as other activities targeting some of the core underlying causes of crime (poverty, lack of opportunity, lack of self-esteem, poor parenting, etc.); support for key anti-corruption institutions; technical assistance, training and support to foster a culture of lawfulness in several key sectors; and technical assistance, training, and support to encourage alternative sentencing (to jail) programs for juveniles. The Contractor should seek to build the basis for longer-term and sustainable reforms by incorporating the following approaches into its programming:

Increase institutional capacity through training a cadre of key mid-level managers at the JCF and provide mentoring for implementation of key reforms;

Empower local community leaders and organizations to take leadership in promoting and sustaining reforms, by enhancing their qualifications and creating opportunities for networking;

Enhance relationships and build confidence among key stakeholders, including police, community groups, civil society organizations, and key governmental institutions; and Build consensus among key stakeholders and the general public on the need for a transparent and accountable government, and on the specific reforms needed to achieve it.

To achieve the stated objectives, USAID/Jamaica envisions the following five components:

Component 1: Enhance the Capacity of the Jamaican Constabulary Force to implement a reform process towards a more community-oriented institution [Estimated 15% of program cost]

The Jamaican Constabulary Force has made progress in recent years in moving forward to implement CBP on a national level, but work remains to be done. As recommended in USAID’s 2008 Community-Based Policing Assessment, efforts must be made to address critical institutional problems that have hindered implementation of CBP, including the need to identify and train a critical mass of leaders to lead the reform efforts. Priority will be on activities that 1) consolidate prior USAID investments in the Peace and Prosperity Project (PPP), Grants Pen and COMET programs and 2) complement the Ministry of National Security’s modernization efforts in accordance with the JCF Strategic Review Panel recommendations. A focus for all activities under this component include a regional lessons learned approach, which includes sharing materials and holding workshops for countries interested in implementing a similar component or program.

This component falls under both Intermediate Results as dictated in the Assistance Objective 2010-2014 strategy of “safer communities, respecting rule of law and human rights,” as well as “improved accountability and integrity in government.” Of course, it is more closely aligned with the former rather than the latter.

This component will include the following activities:

Activity 1: Establish a “Change Leader” Program to prepare Mid-Level Police officers to be change agents, to lead the reform process from within the Jamaican Constabulary Force.

USAID will support a focused “Change Leader” program to develop a cadre of primarily mid-level police officers to serve as long-term, sustainable agents of reform. USAID will collaborate jointly with the Commissioner of Police and/or his designees to select a police professional with significant experience in management, community-based policing and “change leader” programs to support the Police authorities in carrying out a comprehensive Change Leader Program.

The Change Leader Expert will be an advisor to the Commissioner of Police during the reform process and will be responsible, in cooperation with the JCF, for leadership training, personal work plan development, follow through and change leader program implementation. Through this program, senior and mid-level police officials will be identified and trained to be reform leaders for a more accountable and service-oriented institution. Although some training of senior officials can be accommodated, the primary target is mid-level officers who will step up to leadership positions. However, in later phases of the program, it may be beneficial to include a junior officer development program for superintendants with 5-7 years of service who will be mid-level officers when the current mid-level officers are senior officers. Under the terms of an MOU to be executed between USAID and the JCF, the trainees selected must be fully vetted and commit to at least an additional three years of service with the JCF. Officials will be taught, among other things, leadership methods, change management strategies, effective communication skills, problem solving methods, teamwork, and mediation techniques. The Change Leader Expert is expected to identify the best institution or training arrangement to carry out this program.

During their training and development program, these future reform leaders will identify organizational obstacles in the structure of the JCF that are impeding in-depth reforms towards a more successful community-oriented institution that can more effectively respond to citizens’ needs and control crime. The 2008 Report of the JCF Strategic Review Panel will provide important inputs for this process. The reform leaders will then develop integrated work plans to address these obstacles and will implement them when they are transferred to their pre-determined assignments (where, under the terms of the MOU, they will serve for at least three years). A mentorship program will be put in place to provide adequate support during the implementation of the work plans. Various groups of reform leaders will be trained and mentored, in order to form a strong cadre of reformers who will lead overall organizational change toward a more community-oriented, responsive, accountable and professional police force. (See Change-Leader Cycle flow chart attached). This initiative must be closely coordinated with UKAID and the EU’s work with the JCF on CBP, anti-corruption, and investigative development.

As set forth in detail in the 2008 Jamaica Community-Based Policing Assessment, the Change Leader project will include:

Written commitment of understanding and cooperation between the JCF and USAID in the form of an MOU

Developed criteria for selecting the first and subsequent class of “Reform Leaders” An initial leadership seminar for those selected devoted to principles of change management A facilitated planning process to form the process framework (using existing and forthcoming strategic management studies) Facilitated translation of strategic goals and objectives into individual work plans for each member of the first class of reform leaders Mentoring and assistance to each reform leader in implementing the work plan Facilitated meetings, at least monthly, with key stakeholders to discuss problems, reinforce progress, generate solutions and provide moral support After 6-12 months, Reform Leader Class No. 2 is identified and merged into the annual planning/transfer/implementation process As progress is made, planning and transfer processes can be modified as needed

One of the most critical elements of the change leader program will be the utilization of a local university partner and the follow up with program graduates as they implement their work plans. As the number of graduates rises, the need for mentoring and advising will increase and must be accommodated. An appropriate certification mechanism should be established by the local university partner in connection with the reform leaders training to lend more authority via accreditation for the training.

Expected Results

Approximately 300 Senior and Mid-level officials at the JCF successfully complete the Change Leader program and are certified in leadership skills including communication, team work, and problem solving after three years.

Development and implementation of work plans through mentoring and encouragement of reform leaders.

Improved policing practices, measured by changes in behavior, improved understanding of roles and responsibilities, and effectiveness of partnerships and problem-solving.

Expanding the change leadership program regionally, depending on demand.

Activity 2: Continue support for institutional reforms at the JCF

Before community-based policing can find solid and sustainable footing, a functional and professional police force should be in place. Through various reviews and assessments, particular structures and institutional conditions have been identified as needing reform. Among the more critical are human resource management (improper use of sworn officers for tasks that should be done by civilians, improved ongoing training, lack of efficiencies), financial management, accountability (including improved internal investigations) and continued professionalization of the service. The JCF’s Strategic Review Implementation Team (S.R.I.T.) has overall responsibility for this task, assisted by the previous USAID COMET program and DFID JCF Reform and Modernization Program (JCFRMP). The JCFRMP (1998-2008) supported programs to transform the JCF into a high quality, professional and service-oriented organization valued and trusted by all citizens. The six core components of the final phase of the program include divisional primacy, crime and intelligence management, community-based policing, professional standards, witness management and human resources.

The Contractor will continue these efforts by providing technical assistance, training support, and institutional capacity building, including encouraging JCF culture change through workshops, training materials, and forums. The Contractor, in connection with providing technical support and assistance, will negotiate an agreement with the S.R.I.T. setting forth mutual commitments and time frames for completing police professionalization steps listed in the Strategic Review plan. Activities to be continued under the contract include training of and support for school resource officers, participation in NIAF anti-corruption efforts [see Component 3 below], and technical support for the development and implementation of a national gang-reduction strategy, which the JCF will carry out and implement. Moreover, best practices in this area will be shared and expanded to other countries in the region.

Expected results:

More efficient and appropriate deployment of uniformed officers.

Other countries in the region embrace and/or implement institutional reforms as pertinent.

Activity 3: Continue support for the national roll-out of community-based policing

The JCF has made important strides incorporating the Community-Based Policing (CBP) Model for the past decade. At this point manuals have been developed, officials trained and pilot projects implemented that have facilitated the identification of good practices. The present leadership supports CBP and it has been mainstreamed into the JCF vis-à-vis theories, principles and practices. Another key aspect of the CBP approach is the involvement of communities in the process. The continued dissemination of information and heightened public awareness through the media and other civic campaigns have secured buy-in and promoted important partnerships between the JCF and communities in tackling issues of crime and violence and enhancing safety and security. This provides USAID/Jamaica with a unique opportunity and an important foundation from which to introduce CBP to the neighboring Caribbean territories with similar democratic and governance pursuits.

The Contractor will support ongoing CBP training and development initiatives in cooperation with and supplemental to the Change Leader program to facilitate the reform process and strengthen the elements needed for a successful nationwide implementation of CBP. As required by any change management effort, incentives for operating in a community-based fashion must be developed. Effective implementation of CBP principles should be rewarded by promotions and other incentives, and embracing CBP should be seen as the means of moving up in a police career. Those who obstruct change should be marginalized and penalized. The changes must be inserted into daily work routines. Leaders can identify small instances of good performance and recognize those who are part of the shift in philosophy.

The contractor should propose activities to be carried out in police stations that will improve community/police relations. Such activities could include orientation booths at the entrances to police stations to provide information on the procedures and services, with particular attention to services for victims of domestic and sexual violence and referrals to other institutions when necessary. Other activities could include regular meetings with community organizations to share concerns, gather information on dangerous spots, disseminate information and paraphernalia on CBP and anti-corruption, disseminate information on the impact of firearms and alcohol in crime in certain settings, as well as providing feedback to the JCF concerning its overall progress in implementing CBP.

Activities focusing on youth, such as sponsorship of sports leagues or outreach activities to schools, are strongly encouraged. Police can improve their relations with youth and youth by carrying out activities such as mock investigations of common crimes in a classroom setting that will help explain the different roles of each actor in the criminal justice system, including the role of citizens as affected parties and witnesses, and how a case is solved in practice. Such activities can greatly help citizens understand the role of the police and how they can support the police in crime prevention, as well as educate them about the broader criminal justice system.

Expected Results:

Improved services at Police stations, with improved citizen perceptions.

Improved engagement of community members in crime prevention.

More accountability of the police in their respective communities.

A decrease in the complaints of human rights abuses committed by police as a direct result of the implementation of the CBP model.

Community-based policing model is embraced by selected countries in the Caribbean.

Activity 4: Support for JCF Anti-Corruption Strategy

In response to the GOJ`s spotlighting corruption as a major priority, the USG has bolstered its ability to root out corruption by strengthening new and existing host country institutions, strengthening the media and advocacy organizations, and increasing public access to information. USAID will continue to advocate, privately and publicly, for the respect for human rights by supporting increased professionalism, transparency, and accountability within the Jamaican police force. DHS`s Immigration and Customs Enforcement will provide mentoring and investigative assistance through its Public Corruption Units. USAID currently collaborates with NAS in providing complementary support for an anonymous corruption hotline. USG agencies will work collaboratively to identify activities that can be jointly supported and, through the development of the new strategy and program activities, will agree on common goals and roles for the respective agencies. These agencies will also continue to share information, participate in meetings with GOJ and other partners, and identify opportunities to deepen the impact of USG assistance in Jamaica.

In connection with Component 3 (Anti-corruption efforts, which is much larger in scope than this activity), the Contractor should support the JCF in the implementation of the JCF Anti-Corruption Strategy 2010 to 2012, “Zero Tolerance – Prevention, Education and Detection” which calls for development of an effective and timely system for the removal of staff who act unlawfully, unethically and who lack integrity by maximizing the use of all available tools, in particular a careful review of police officers whose re-enlistment comes up every five years. Improved vetting at the outset of personnel and ongoing assessments should help to reduce the need for more punitive actions against offenders. The Contractor should also assist with advocacy on the part of the JCF for internal regulatory and legislative changes required to improve police capacity to investigate and remove corrupt officials (i.e. enabling administrative or disciplinary action to be available on a lower standard of proof than that required for criminal convictions), and with additional training courses related to ethics and professional responsibilities. Of course, policies must be in effect for internal discipline, ethics and the scope of professional responsibilities before training can be effective.

Expected Results:

Improved recruitment and retention processes for police officers.

Activity 5: Regional Community Based Policing Program

The absence of professional police forces that are responsive to local communities frequently threatens citizen security and local crime prevention capacities in other…