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Cablegate: Plan Colombia Phase Ii

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

id: 14062
date: 2/18/2004 20:38
refid: 04BOGOTA1703
origin: Embassy Bogota
classification: UNCLASSIFIED
destination:
header:
This record is a partial extract of the original cable. The full text of the original cable is not available.


----------------- header ends ----------------

UNCLAS SECTION 01 OF 03 BOGOTA 001703

SIPDIS

SECSTATE PASS TO WHA: DAS PETER DESHAZO, INL: DAS DEBORAH
MCCARTHY, DOJ:DA ATTORNEY GENERAL MARY LEE WARREN, DOD:DASD
WHA ROGER PARDO-MAURER, SOUTHCOM:SOUTHCOM CDR GEN HILL,
ONDCP:DIRECTOR JOHN WALTERS
AID/LAC: PASS TO DEPUTY ASSISTANT ADMINISTRATOR KAREN
HARBERT

AIDAC

E.O. 12958: N/A
TAGS: SNAR CO GOV
SUBJECT: PLAN COLOMBIA PHASE II

SENSITIVE BUT UNCLASSIFIED - PROTECT ACCORDINGLY

1. (SBU) SUMMARY: THIS IS AN ACTION MESSAGE. THE GOC HAS
PRESENTED EMBASSY WITH A FINAL DRAFT OF ITS PLAN COLOMBIA
PHASE II, 2006-10, DOCUMENT, WHICH HAS BEEN REVIEWED BY
PRESIDENT URIBE AND HIS CABINET. GOC AND EMBASSY SOLICIT
WASHINGTON AGENCY POLICY REVIEW AND COMMENT ON THE DOCUMENT.
PLEASE HOLD CLOSE AND LIMIT DISTRIBUTION TO ADDRESSEES.

2. (SBU) OVER THE PAST THREE MONTHS, THE GOC ORGANIZED
SEVERAL INTER-MINISTERIAL WORKING GROUPS TO DEVELOP
ADJUSTMENTS TO PLAN COLOMBIA TO TAKE ACCOUNT OF SOLID
PROGRESS ACHIEVED IN ITS IMPLEMENTATION THUS FAR. PLAN
COLOMBIA PHASE II, AS IT IS CALLED, PROPOSES A DOLS. 7.2
BILLION EFFORT OVER THE 2006-10 PERIOD, CONSISTING OF FOUR
PILLARS: i. FIGHTING TERRORISM, NARCO-TRAFFICKING, AND
INTERNATIONAL ORGANIZED CRIME; ii. ECONOMIC AND SOCIAL
REACTIVATION; iii. INSTITUTIONAL AND JUSTICE SYSTEM
STRENGTHENING; AND iv. PEACE NEGOTIATIONS, DEMOBILIZATION,
AND REINTEGRATION OF ILLEGAL ARMED GROUPS.

3. (SBU) GIVEN THAT FY 05 IS THE FINAL YEAR OF ORIGINAL PLAN
COLOMBIA FUNDING, IT IS CRUCIAL THAT WASHINGTON AGENCY
REVIEW OF THIS PLAN COLOMBIA PHASE II DOCUMENT BE GIVEN
PRIORITY ATTENTION. WHILE IMPRESSIVE PROGRESS IS BEING MADE
ON ALL FRONTS, THE JOB IS NOT COMPLETE. TO BRING PLAN
COLOMBIA TO A SUCCESSFUL CONCLUSION, CONTINUED EFFORT AND
FUNDING IS NECESSARY. AS THE CENTERPIECE OF THE ANDEAN
REGIONAL INITIATIVE, THE SUCCESS OF OUR EFFORTS IN COLOMBIA
WILL HAVE A PROFOUND IMPACT ON PEACE AND SECURITY THROUGHOUT
THE ANDES. REQUEST THAT ADDRESSEES PROVIDE SPECIFIC
COMMENTS ON THE DOCUMENT TO POST WITHIN THREE WEEKS, OR NLT
MARCH 8, 2004. END SUMMARY.

GOC PRESENTS DRAFT PLAN COLOMBIA PHASE II DOCUMENT

4. (SBU) ON FEBRUARY 6, DURING HER MEETING WITH VISITING
DEPUTY ASSISTANT SECRETARY PETER DESHAZO, FOREIGN MINISTER
BARCO DELIVERED THE GOC'S FINAL DRAFT PLAN COLOMBIA PHASE II
DOCUMENT, WHICH REFLECTED REVIEW/APPROVAL OF PRESIDENT
URIBE'S FULL CABINET. THIS DOCUMENT WAS THE RESULT OF THREE
MONTHS' EFFORT BY SEVEN INTER-MINISTERIAL WORKING GROUPS,
COORDINATED BY VICE MINISTER OF DEFENSE ANDRES SOTO AND PLAN
COLOMBIA PRESIDENTIAL ADVISOR LUIS ALFONSO HOYOS.

5. (SBU) EMBASSY FEEDBACK AND INPUT ON EARLIER DRAFTS OF
THE PHASE II DOCUMENT ARE REFLECTED IN THIS FINAL DRAFT, BUT
IT IS CLEARLY A GOC DRAFT. ELECTRONIC VERSION OF THE
DOCUMENT HAS BEEN FORWARDED TO WHA/AND.

---------------------------------------
PLAN COLOMBIA: THE CONCEPTUAL FRAMEWORK
---------------------------------------

6. (SBU) THE GOC STRATEGY BEHIND PLAN COLOMBIA IS VERY
SIMPLE: ECONOMIC DEVELOPMENT, SECURITY, AND PEACE ARE
DIRECTLY LINKED. THE PLAN ARGUES THAT STRENGTHENING THE
CAPACITY OF THE STATE, ESPECIALLY THE MILITARY CAPABILITY,
IS KEY TO THE SUCCESS OF ANY NATIONAL PLAN. THE WEAKNESS OF
THE STATE IS AT THE HEART OF COLOMBIA'S ILLS. THE MAIN
REASON FOR POLITICAL KILLINGS (SOME 3,500 PER YEAR FOR THE
LAST 10 YEARS), KIDNAPPINGS, DISPLACEMENT OF OVER 3 MILLION
PEOPLE SINCE 1985, AND ECONOMIC DESTRUCTION IS THE
INTERRELATED NATURE OF THE COMBINED THREATS OF NARCOTICS AND
TERRORISM AND THE INABILITY OF THE STATE TO ACT, BECAUSE OF
A COMBINATION OF LACK OF RESOURCES, LACK OF POLITICAL FORCE
AND THE DEBILITATING IMPACT OF A WEAK JUSTICE SYSTEM.

7. (SBU) PLAN COLOMBIA IS BASED ON THE ASSUMPTION THAT
ELIMINATING THE MONEY GENERATED BY DRUGS REDUCES THE WAR-
MAKING CAPACITY OF ALL THREE ILLEGAL ARMED TERRORIST GROUPS,
THEREBY REDUCING THE LEVEL OF VIOLENCE AND ENHANCING THE
PROSPECTS FOR PEACE. ADDITIONALLY, IT WAS ANTICIPATED THAT
AS THESE ARMED THREATS TO THE STATE AND SOCIETY WERE
ELIMINATED, THE FORCES OF PUBLIC ORDER (POLICE AND MILITARY)
WOULD BE ABLE TO REGAIN EFFECTIVE CONTROL OF THE ENTIRE
NATIONAL TERRITORY, MAKING IT EASIER TO ERADICATE ILLEGAL
NARCOTICS. RESTORING SECURITY THROUGHOUT COLOMBIA WOULD
ALLOW THE RULE OF LAW TO BE STRENGTHENED NATIONALLY AND LAY
THE BASIS FOR INVESTMENT TO INCREASE INCOMES.

8. (SBU) PLAN COLOMBIA WAS AND IS AS MUCH AN ECONOMIC AND
SOCIAL STRATEGY TO ENHANCE THE COUNTRY'S ECONOMIC GROWTH AND
DEVELOPMENT ALONG WITH A MORE FUNCTIONAL DEMOCRACY. THE
MILITARY COMPONENT WAS ONLY ONE OF THE PLAN'S 10 ELEMENTS
DESIGNED TO REINFORCE DEMOCRACY, FREE FROM VIOLENCE AND
CORRUPTION. PLAN COLOMBIA WAS ALSO INTENDED TO PROMOTE A
MORE EQUITABLE GEOGRAPHICAL AND DEMOGRAPHIC DISTRIBUTION OF
THE BENEFITS OF ECONOMIC DEVELOPMENT FOR THE COLOMBIAN
PEOPLE.

9. (SBU) THE IMPETUS FOR PLAN COLOMBIA EVENTUALLY LED TO
THE URIBE ADMINISTRATION'S ARTICULATION OF A COLOMBIAN
NATIONAL SECURITY STRATEGY, QUOTE DEMOCRATIC SECURITY AND
DEFENSE POLICY UNQUOTE, PUBLISHED IN THE FALL OF 2002. THIS
STRATEGY PROVIDES THE INTELLECTUAL FOUNDATION FOR LINKING
THE NATIONAL MILITARY STRATEGY AND THE SUPPORTING SOCIAL AND
ECONOMIC PROGRAMS NECESSARY TO BRING GOVERNANCE AND SECURITY
TO THE PEOPLE. THE OBJECTIVES OF THIS DEMOCRATIC SECURITY
AND DEFENSE POLICY ARE TO: GUARANTEE THE SECURITY, FREEDOM,
AND HUMAN RIGHTS OF THE POPULATION; CONSOLIDATE STATE
CONTROL OVER NATIONAL TERRITORY; ELIMINATE DRUG TRAFFICKING;
DEFEND DEMOCRATIC ORDER AND THE RULE OF LAW; PROMOTE
ECONOMIC PROSPERITY AND SOCIAL EQUITY; AND RECONSTRUCT THE
SOCIAL FABRIC. THE URIBE ADMINISTRATION HAS MADE PROGRESS
ON EACH OF THESE OBJECTIVES.

--------------------------
PHASE II EXECUTIVE SUMMARY
--------------------------

10. (SBU) AFTER THREE YEARS, PLAN COLOMBIA IS HELPING THE
COUNTRY REVERSE 30 YEARS OF LARGE-SCALE DRUG PRODUCTION AND
INTERNAL STRIFE. THE GOC IS INCREASINGLY COMMITTED TO PLAN
COLOMBIA, RAISING SECURITY SPENDING TO 3.8 PER CENT OF GDP
IN 2003, WITH PLANS TO SPEND 5.8 PER CENT OF A HIGHER GDP BY
2006. THE COLOMBIAN MILITARY HAS HAD GROWING OPERATIONAL
SUCCESS AGAINST NARCO-TERRORIST ORGANIZATIONS ACROSS THE
COUNTRY, SECURING LARGE EXPANSES OF NATIONAL TERRITORY ONCE
UNDER CONTROL OF NARCO-TERRORIST GROUPS. A STRENGTHENED
STATE IS ALLOWING PRESIDENT URIBE TO IMPLEMENT A QUOTE ZERO
TOLERANCE UNQUOTE POLICY TOWARD COCA CULTIVATION THAT HAS
REDUCED THE FLOW OF FUNDS TO ILLEGAL ARMED GROUPS AND SHOWN
THAT PLAN COLOMBIA'S ERADICATION, INTERDICTION, AND
ALTERNATIVE DEVELOPMENT PROGRAMS CAN MEET OR SURPASS THE
ORIGINAL PLAN COLOMBIA'S GOAL TO REDUCE COCA CULTIVATION BY
50 PER CENT BY 2005.

11. (SBU) PLAN COLOMBIA'S LONG-TERM INSTITUTION BUILDING
ACTIVITIES HAVE HELPED COLOMBIA ESTABLISH SPECIAL HUMAN
RIGHTS UNITS, REFORM THE CRIMINAL CODE, IMPROVE MONEY
LAUNDERING AND ASSET FORFEITURE REGIMES AND PROTECT
WITNESSES IN KEY CASES. ACCESS TO JUSTICE HAS IMPROVED
DRAMATICALLY, MUNICIPAL INFRASTRUCTURE PROJECTS HAVE
BENEFITED COMMUNITIES, AND COLOMBIA'S INTERNALLY DISPLACED
POPULATION HAS RECEIVED ASSISTANCE AND ACTUALLY DECLINED BY
46 PER CENT IN 2003. ECONOMIC POLICIES STABLIZED THE
ECONOMY, WHICH GREW BY 3.5 PER CENT IN 2003 AND INFLATION
WAS REDUCED TO 6.5 PER CENT, LAYING THE GROUNDWORK FOR
INCREASED GROWTH IN 2004 AND DOMESTIC INVESTMENT. THE
IMPROVED SECURITY SITUATION IS LEADING FOREIGN INVESTORS TO
TAKE A NEW LOOK AT COLOMBIA.

12. (SBU) PLAN COLOMBIA'S ACHIEVEMENTS TO DATE ARE
IMPRESSIVE, BUT MUCH REMAINS TO BE DONE. COLOMBIA HAS
NEARLY 35,000 MEMBERS OF ILLEGAL ARMED GROUPS, WITH BETWEEN
6,000 - 11,000 CHILD SOLDIERS. COLOMBIA LEADS THE WORLD IN
KIDNAPPINGS, WITH A POVERTY RATE OF OVER 60 PER CENT, AND A
NOTORIOUSLY WEAK JUSTICE SYSTEM. TO BE SUCCESSFUL, WE MUST
HELP COLOMBIA ELIMINATE LARGE SCALE COCA PRODUCTION AND
COCAINE TRAFFICKING. THE INFLUENCE OF ARMED GROUPS IN RURAL
AREAS MUST BE ENDED DECISIVELY. THEREFORE, SUPPORT FOR PLAN
COLOMBIA MUST CONTINUE.

13. (SBU) THE GOC PROGRAM FOR PHASE II CONSISTS OF FOUR
PILLARS: 1. FIGHTING TERRORISM, NARCO-TRAFFICKING, AND
INTERNATIONAL ORGANIZED CRIME; 2. ECONOMIC AND SOCIAL
REACTIVATION; 3. INSTITUTIONAL AND JUSTICE SYSTEM
STRENGTHENING; AND 4. PEACE NEGOTIATIONS, DEMOBILIZATION,
AND REINCORPORATION.

14. (SBU) THE GOC ESTIMATES THAT PHASE II COSTS WILL TOTAL
DOLS. 7.2 BILLION, OF WHICH DOLS. 4.15 BILLION, 58 PER CENT,
CORRESPONDS TO GOC RESOURCES AND DOLS. 3.04 BILLION, 42 PER
CENT, IS THE REQUEST LEVEL FOR USG SUPPORT. THE GOC PORTION
ONLY INCLUDES OFFICIAL GOVERNMENT COUNTERPART RESOUCES, BUT
DOES NOT INCLUDE LOCAL AND DEPARTMENTAL FUNDS NOR SUPPORT TO
BE PROVIDED BY THE PRIVATE SECTOR AND CIVIL SOCIETY. THIS
PHASE II PLAN IS DIRECTED TO THE USG, HOWEVER, THE GOC IS
ACTIVELY COORDINATING WITH THE INTERNATIONAL COMMUNITY IN
SIX DONOR COMMITTEES AS PART OF ITS LONDON DECLARATION
FOLLOW-UP.

15. (SBU) PILLAR ONE FOCUSES ON DEFEAT OF ILLEGAL NARCO-
TERRORIST GROUPS BY COLOMBIAN POLICE AND MILITARY FORCES TO
IMPROVE SECURITY THROUGHOUT THE COUNTRY. DURING PHASE II,
PLAN COLOMBIA WILL CONTINUE LOGISTICS SUPPORT, IMPROVED
INTELLIGENCE PROGRAMS, AND TRAINING FOR POLICE AND MILITARY
OPERATIONS AND WILL ALSO PROVIDE FUNDS FOR
PROFESSIONALIZATION OF CIVILIAN AND MILITARY PERSONNEL IN
ACCORDANCE WITH INTERNATIONAL HUMAN RIGHTS CONVENTIONS AND
RULE OF LAW. PHASE TWO WILL ALSO CONTINUE SUPPORT FOR
ERADICATION PROGRAMS CARRIED OUT BY THE NARCOTICS POLICE AND
INCLUDE TRAINING/SUPPORT FOR THE JUDICIAL POLICE.

16. (SBU) PILLAR TWO, SOCIAL/ECONOMIC REACTIVATION, WILL
EMPHASIZE JOB CREATION BY BUILDING TRADE CAPACITY AND
REFORMING POLICIES AFFECTING TRADE AND INVESTMENT. LOCAL
GOVERNANCE NETWORKS WILL ALSO BE DEVELOPED TO STRENGTHEN
COMMUNITY COHESION AND STATE PRESENCE.

17. (SBU) PILLAR THREE WILL STRENGTHEN DEMOCRATIC
GOVERNANCE AND THE RULE OF LAW - THE LINCHIPIN OF SUCCESS IN
ELIMINATING THE UNDERLYING CAUSES OF COLOMBIA'S ILLICIT CROP
PRODUCTION AND POLITICAL VIOLENCE. PHASE II WILL EXTEND THE
RULE OF LAW, INCREASE SOCIETY'S CONFIDENCE IN JUDICIAL
SYSTEMS AND CREATE A STABLE ATMOSPHERE FOR TRADE AND
COMMERCIAL DEVELOPMENT.

18. (SBU) THE FOURTH PILLAR WILL SUPPORT A PEACE PROCESS TO
ENCOMPASS ALL ILLEGAL ARMED GROUPS AND LEAD TO THE
SUCCESSFUL DEMOBILIZATION OF EX-COMBATANTS AND THEIR
REINCORPORATION INTO COLOMBIAN POLITICAL, ECONOMIC AND
CULTURAL LIFE.

19. (SBU) MAJOR CHANGES IN PHASE II WILL BE: A. INCREASED
EMPHASIS ON CREATION OF NEW EMPLOYMENT AND REACTIVATION OF
THE ECONOMY THROUGH TRADE CAPACITY BUILDING TO EXPAND
EXPORTS UNDER THE ANDEAN TRADE PROMOTION AND DRUG
ERADICATION ACT, A NEW BILATERAL FREE TRADE AGREEMENT,
NEGOTIATIONS FOR WHICH TO BEGIN THIS SPRING, AND THE FTAA;
B. INCREASED EMPHASIS ON PEACE NEGOTIATIONS THAT WILL
ENCOMPASS ALL OF THE ILLEGAL ARMED GROUPS AND LEAD TO THE
DEMOBILIZATION AND REINCORPORATION OF THE EX-COMBATANTS; AND
C. A SHIFT TOWARD GREATER COLOMBIANIZATION OF THE DRUG
ERADICATION EFFORT AND ADJUSTMENTS IN THE ERADICATION
STRATEGY TO REFLECT THE SUCCESS OF AERIAL FUMIGATION AND
CHANGING TACTICS OF NARCO-TRAFFICKERS TO CULTIVATE IN
NATIONAL PARKS AND INTERSPERSE WITH OTHER CROPS.

20. (SBU) IN THE EMBASSY'S VIEW, THE MONEY SPENT IN SUPPORT
OF PLAN COLOMBIA HAS BEEN WELL SPENT. THE GOC UNDER BOTH
PRESIDENT PASTRANA AND URIBE HAS BEEN RESPONSIBLE AND
ACCOUNTABLE. AS SENATE MAJORITY LEADER FRIST SAID TO A
GROUP OF COLOMBIAN PRIVATE SECTOR LEADERS, "THE U.S.
GOVERNMENT HAS GOTTEN ONE HUNDRED CENTS FOR ITS DOLLAR."

WOOD

=======================CABLE ENDS============================

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