The EXBS Program: Export Control and Related Border Security Assistance

Bureau of International Security and Nonproliferation
Office of Export Control Cooperation
August 12, 2008

The Proliferation Threat

One of the highest foreign policy and national security priorities of the United States is preventing the spread of Weapons of Mass Destruction (WMD) and their means of delivery. The audacity of terrorists’ attacks in recent years and evidence that they are pursuing chemical, biological, radiological, and nuclear weapons have raised the stakes. These developments demonstrate why it is critical for all responsible members of the global community to put in place effective measures to prevent the spread of these weapons and technologies.

Today, the proliferation threat is more diverse and increasingly difficult to counter. Goods and technologies with sensitive military applications frequently have legitimate commercial applications as well (i.e. dual-use).

As a result of increased economic interaction and advances in information and communications technology, it is now easier than ever to transfer sensitive technology and know-how to the far reaches of the globe -- and more difficult than ever to monitor or control such transfers. Therefore, effective non-proliferation will require an increasingly coordinated and sophisticated approach to export controls and border security by all countries.

The Response: The EXBS Program

Export Controls are on the front line of U.S. efforts to combat the proliferation threat. On September 23, 2003, President Bush called on all members of the U.N. General Assembly to criminalize WMD proliferation, and to:

“Enact strict export controls consistent with international standards, and to secure any and all sensitive materials within their own borders. The United States stands ready to help any nation draft these new laws, and to assist in their enforcement.”

Reflecting ongoing international commitment, in April 2004, the U.N. Security Council passed Resolution 1540, which requires all Member States to develop controls on trade related to materials, technology, brokering, and financing of WMD-related dual-use trade. In April 2006 the UNSCR 1540 Committee released its first report on national implementation related to the standards established in 1540, finding that there are considerable weaknesses in national implementation in the area of strategic trade and related border controls over WMD materials and technologies. UNSCR 1540 was recently reaffirmed by the Security Council in UNSC 1810 on April 25, 2008, which renewed the mandate of the 1540 Committee for three more years.

The Export Control and Related Border Security Assistance (or “EXBS”) program is the United States Government’s premier initiative to help other countries improve their export control systems and plays a key role in helping other countries to fulfill their 1540 commitments. The EXBS program 

• is led and funded by the Department of State’s Bureau of International Security and Nonproliferation, Office of Export Control Cooperation;
• draws on expertise from the Departments of State, Homeland Security, Commerce, Energy, Defense, Justice and the private sector to provide a range of legal, licensing, and enforcement training and equipment;
• operates with a budget of about $40 million in fiscal year 2008 (up from just $3 million in fiscal year 1998) with funds for programs in over 50 countries; and
• has placed over 20 dedicated Program Advisors at U.S. Embassies to help coordinate and implement the program.

The Office of Export Control Cooperation also chairs the interagency group to coordinate all U.S. Government export control assistance programs not funded by EXBS, such as the Department of Energy’s Second Line of Defense program.

The EXBS Program in Action

The EXBS program’s original focus was on the WMD “source countries” in the Former Soviet Union (Russia, Ukraine, Kazakhstan). To address the changes in the proliferation threat, the program has broadened to include states on potential smuggling routes in Eastern and Central Europe, the Balkans, Central Asia, and the Caucasus, as well as to potential “source countries” in South Asia and countries with major transshipment hubs in the Mediterranean, Middle East/North Africa, East Asia, and Southeast Asia. EXBS has also been active in Africa and is expanding its programs in Latin America.

The EXBS program has helped countries around the world improve their ability to prevent and interdict shipments of dangerous items and technologies by providing a wide variety of practical assistance tailored to each individual country’s needs. Examples of recent activities and successes exhibit the program’s efforts in five core areas.

Laws and Regulations:

• Helped dozens of countries in Eastern Europe and the Balkans, South and East Asia, Latin America and elsewhere draft and implement new comprehensive export control laws and government regulations.

Licensing:

• Assisted many countries in establishing and strengthening independent export control licensing mechanisms through organizational development workshops, technical training, and exchanges.

Enforcement:

• Provided detection training and equipment that have helped Central and Eastern European governments apprehend stolen radioactive material and sensitive goods, as well as large seizures of narcotics and other contraband.
• Provided some key transshipment countries in the Mediterranean and Middle East with sophisticated x-ray equipment to screen cargo at their major transshipment ports.
• Provided border monitoring sensors, modular buildings, cargo scanning equipment, vehicles and communication equipment to countries around the world to help develop better mobile and fixed border outpost capabilities.

Government-Industry Cooperation:

• Participated in numerous government exchanges and provided training and assistance to help a number of countries in Europe, Asia and elsewhere implement effective outreach to industry, fostering greater industry compliance with export control laws and regulations. Activities include launching of an ambitious program to provide software and training to industry to help it comply with its government’s export control process.

Interagency Cooperation Coordination:

• Conducted joint vehicle inspection training for Customs and border guard personnel and worked with governments to identify appropriate operational models for interagency communication and cooperation.

The EXBS program also takes a regional and multilateral approach to help harmonize national export control systems with international standards and facilitate information-sharing agreements among nations. The program organizes a number of regional forums to bring national policymakers and technical experts together. Recent events include the following:

• Global Transshipment & Enforcement Seminar, July 2006, Bangkok, Thailand
• Eighth International Conference on Export Controls, March 2007, Bucharest, Romania
• U.S. – Morocco International Transshipment Conference, May 2008, Tangier, Morocco

EXBS also provides strategic trade licensing infrastructure through the provision of the Tracker software system.

Contact the EXBS Program

• The State Department, Bureau of International Security and Nonproliferation, Office of Export Control Cooperation (ISN/ECC): Director Yvette Wong: (202) 647-1966, wongym@state.gov. Deputy Director Andrew Church: ChurchAP@state.gov
• The State Department, Bureau of International Security and Nonproliferation website is www.state.gov/t/np
• For additional information concerning the EXBS program go to www.exportcontrol.org.