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UNCLAS BOGOTA 000435 
 
SENSITIVE 
 
SIPDIS 
 
C O R R E C T E D COPY FOR CAPTION 
E.O. 12958: N/A 
TAGS: MARR EAID PREL SNAR PTER ETRD PREF CO
SUBJECT: SCENESETTER FOR FEBRUARY 18-22 CAPSTONE VISIT TO 
COLOMBIA 
 
Summary 
------- 
 
¶1. (SBU) We welcome the visit of the CAPSTONE fellows to 
Colombia, which comes at a key time in the U.S.-Colombia 
bilateral relationship.  In ten years, Colombia has 
progressed from a near failed state and terrorist haven to an 
economic, political, and social leader in Latin America. 
Colombia has made major progress in its fight against illegal 
armed groups and set records in the eradication and 
interdiction of drugs.  Murder and kidnapping rates have 
dropped dramatically, while rule of law is strengthened 
through major judicial reforms.  Improved security has grown 
the economy, reduced poverty, and attracted record levels of 
investment.  The GOC has looked to leverage these successes 
beyond its borders by offering troops to NATO in Afghanistan 
and providing counterterrorism and counternarcotics training 
to Mexican, Panamanian and other law enforcement agencies in 
the region. 
 
¶2. (SBU) Significant challenges remain, many of which will be 
of special interet to the CAPSTONE group.  Drug trafficking 
organizations and illegal armed groups continue to operate in 
large parts of the country, including border areas.  Colombia 
has over three million internally displaced persons, and deep 
social divides still prevent millions of citizens, especially 
in rural areas, from benefiting fully from security and 
economic gains.  Despite progress on human rights, some 
elements of the security forces continue to violate human 
rights, and the military has been accused of numerous 
exrajudicial killings of innocents.  Violence against trade 
unionists continues even as the GOC has stepped up 
prosecutions and boosted its protection programs for 
unionists, human rights activists, and other vulnerable 
individuals.  USG support is critical to help the GOC 
confront these persistent challenges, even as we continue our 
dialogue on how best to transfer key security tasks from the 
USG to the GOC.  End Summary. 
 
CAPSTONE Program 
---------------- 
 
¶3. (SBU) You will meet with Minister of Defense Juan Manuel 
Santos and his team to hear about the GOC's experience in 
confronting illegal armed groups (IAGs) and drug trafficking 
organizations.  Meetings within the embassy will review our 
integrated programs and policies including our unified 
Country Team effort in support of our shared goals.  You will 
also visit the Colombian Military's main area of effort 
against the Revolutionary Armed Forces of Colombia (FARC), 
Joint Task Force Omega (JTF-Omega).  Meetings with the 
Embassy Narcotics Affairs Section (NAS), the Colombian 
National Police (CNP) and the Colombian Army's Counterdrug 
Brigade (BRACNA) will provide you an overview of 
counternarcotics initiatives.  Your visit will provide a 
comprehensive overview of the GOC's efforts-with USG 
assistance--to strengthen democratic institutions, 
consolidate control over its national territory through the 
"democratic security" policy, and improve its human rights 
record. 
 
Democratic Security Advances 
---------------------------- 
 
¶4. (SBU) Colombia has achieved successes in its fight against 
the FARC, National Liberation Army (ELN) and emerging 
criminal groups.  The rescue of 15 high-profile FARC hostages 
in July 2008, including three Americans, and the deaths of 
key FARC leaders highlight Colombia's progress in security. 
Colombian security forces captured or killed a number of 
mid-level FARC leaders, and reduced the space in which 
terrorists can operate freely.  A record number of FARC 
members deserted in 2008--including high-level commanders. 
Total demobilizations of illegal armed groups reached 3461 in 
2008--primarily from the FARC--making it the highest level of 
demobilizations in Colombia's history. 
 
¶5. (SBU) With USG help, in 2008, Colombia again set records 
in eradication and interdiction of drugs, while further 
reducing murder and kidnapping rates.  Colombia extradited a 
record 208 criminals, narcotraffickers and terrorists to the 
 
United States in 2008, including 15 senior ex-paramilitary 
leaders; Colombia has already extradited 20 criminals in 
¶2009.  The number of homicides fell for the sixth consecutive 
year, dropping to 16,140 (or 33 for every 100,000 habitants), 
45 percent lower than 2002 levels. 
 
Regional Context 
---------------- 
 
¶6. (SBU) Colombia sees itself as a key U.S. ally in an Andean 
region increasingly hostile to U.S. values and goals. 
Ecuador broke diplomatic relations with Colombia after a 
military strike in March 2008 against FARC Commander Raul 
Reyes's camp just across the border in Ecuador.  The GOC 
maintains a moderate tone with Ecuadorian President Correa, 
despite his often angry rhetoric.  Ecuador recently imposed 
strict requirements on Colombians wishing to travel to their 
southern neighbor. 
 
¶7. (SBU) Relations with Venezuela are now stable, and have 
improved since Venezuela recalled its ambassador following 
the Reyes attack.  Presidents Uribe and Chavez met in late 
January in Cartagena, signing several economic cooperation 
agreements.  However, Colombia remains wary of Venezuelan 
ties to the FARC, as evidenced in the computers found in the 
Raul Reyes camp.  Beyond the Andes, Colombia is helping 
Mexico to combat terrorism, narcotrafficking and other 
criminal activity.  Colombia is also working with Mexico, 
Chile, Peru and Brazil to promote economic integration and 
strengthen democratic institutions in Latin America. 
Colombia has also to send engineering and special forces to 
Afghanistan under NATO auspices, and contributes troops to 
the Multi-National Observer Forces in the Sinai. 
 
Economic Growth and Free Trade 
------------------------------ 
 
¶8. (U) After several years of strong economic growth, 
Colombia has begun to feel the pinch of the global economic 
crisis.  Growth slowed to 3.5% in 2008 after record growth of 
7.5% in 2007.  Colombia remains dependent on commodity 
exports (petroleum, coal, flowers, coffee), making it 
vulnerable to price drops.  Colombia cut unemployment and 
poverty during the past six years, but those gains have 
stalled.  The financial sector is relatively solid and has 
been cushioned to date against the global credit crunch by 
conservative lending practices.  The slowing economy led to 
growing popular concern over pocketbook issues, and a pyramid 
scandal in 2008 cost Colombians an estimated $1 billion in 
savings.  The GOC inked trade deals with Canada, Chile, 
Central America and smaller European countries.  The GOC is 
now negotiating an agreement with the EU.  The U.S.-Colombia 
Trade Promotion Agreement (CPTA) remains a bilateral priority 
for the Colombian government and private sector, and the GOC 
will likely consult with you as to how it can work together 
with the Congress to promote its passage. 
 
Serious Challenges Ahead 
------------------------ 
 
¶9. (SBU) Despite advances in security and development, 
challenges related to violence, narcotrafficking, 
displacement, human rights, labor rights, and minority groups 
remain.  We estimate the FARC has 8,000 operational 
guerrillas in the field, and organized narcotrafficking 
groups continue to cause violence.  Internal displacement due 
to the armed conflict remains serious, with three million 
displaced by violence since 1995.  Deep historical social 
divides make it difficult for millions from the 
Afro-Colombian and indigenous populations to benefit fully 
from security and economic gains.  These minority groups 
suffer from limited education, health care, and employment 
opportunities, and disproportionate forced displacement in 
the mostly isolated rural areas where they reside. 
 
¶10. (U) Colombia has publicly committed to improving its 
human rights performance.  Eighty Colombian military officers 
were recently dismissed due to alleged involvement in 
extrajudicial killings.  We are working with the Ministry of 
Defense to improve rules of engagement, and make sure that 
soldiers accused of human rights abuses are investigated by 
 
civilian prosecutors.  Labor unionists and homicides declined 
76 percent between 2001-2008, yet in 2008 the number of labor 
homicides (for all causes) increased from 39 to 46--largely 
due to a spike in the first quarter--although still well 
below the national homicide rate. 
 
¶11. (U) Through the Center for Coordinated and Integrated 
Action (CCAI), the GOC is recovering territory previously 
held by illegal armed groups and establishing government, 
state services and securing vulnerable communities.  In 2008, 
the GOC reestablished a government presence in all 1098 
municipalities and all the country's mayors once again 
resided within their municipalities.  A coordination plan for 
Macarena--the historic heartland of the FARC--aims to 
establish a permanent military, police and civilian presence 
in post-conflict areas--some of which have never seen a 
viable GOC presence.  Challenges remain, as resource, 
security and staffing shortfalls continue to limit the 
initiative.  The United States, through USAID, MILGRP and 
NAS, provides assistance to CCAI. 
 
USAID: Aiding Communities At Risk 
--------------------------------- 
 
¶12. (U) Under Plan Colombia, the USG has provided more than 
$950 million in economic and social assistance via USAID. 
USAID's initiatives have delivered legal jobs, social 
services, and development in narcotrafficking and conflict 
zones.  We are reintegrating thousands of Colombians who have 
demobilized, abating child recruitment into armed groups, and 
increasing social services for victims of conflict.  We are 
restoring citizen confidence in governance, improving the 
criminal justice system and institutions, increasing the 
poor's access to justice, and promoting human rights through 
investigation and prosecution of human rights and 
labor-related cases.  These programs focus on communities at 
high-risk of violence, provide legal and psycho-social 
assistance, and strengthen key Government oversight and 
judicial institutions. 
 
13.(U) USAID's alternative development program is a key 
component of our counter-narcotics efforts.  It promotes 
sustainable economic opportunities in regions vulnerable to 
drug production and conflict.  These programs create jobs and 
economic opportunities in areas recently retaken from illegal 
armed groups and build the social infrastructure to mitigate 
future conflict.  USAID is expanding social and economic 
opportunities and improving livelihoods for Afro-Colombians 
and indigenous communities disproportionately affected by 
conflict.  These programs provide jobs, education, 
healthcare, housing, and social services for these vulnerable 
populations. 
 
DOJ: Providing Justice Reform 
----------------------------- 
 
¶14. (U) The Department of Justice (DOJ) coordinates a 
multifaceted program focused on strengthening the Colombian 
criminal justice system, its institutions, processes and 
personnel.  This program involves six major areas: 
implementation of an accusatory system; human rights 
investigations and prosecutions; Justice and Peace 
investigations and prosecutions; complex areas of criminal 
law; improved forensics capability; and witness protection. 
The bulk of the assistance is provided through training and 
technical assistance to the Prosecutor General's Office. 
 
NAS: Eradicating, Training, Nationalizing 
----------------------------------------- 
 
¶15. (U) We made real strides in battling narcoterrorism in 
Colombia in 2008.  The most recent U.S. figures for cocaine 
production in Colombia show a 24% reduction in production 
since the peak year 2001.  In 2008, Colombian security forces 
seized 245 metric tons of cocaine and coca paste, eradicated 
230,000 hectares of coca and destroyed 3667 drug labs.  We 
kept hundreds of metric tons out of the United States.  We 
have reduced the funds available to the FARC and other 
criminal groups for the purchase of weapons and explosives, 
corruption of public officials, and coercion of local 
populations. 
 
 
¶16. (U) We have made progress in eradication.  Increased 
coordination between manual and aerial eradication improves 
our ability to deal with replanting.  Much of the success in 
battling narcotrafficking and terrorism is due to air 
mobility capabilities provided by the United States.  Without 
helicopters, the GOC could not project force or provide 
government presence in a country the size of Texas and 
California combined.  Colombia is nationalizing our aviation 
assets, but still needs some U.S. support.  In the last two 
years, more than 50 aircraft have been turned over to the GOC 
to fund, maintain, and control.  Colombia's ability to 
confront narcotics and terrorism depends in large part on 
it's air mobility. 
 
DHS Operations 
-------------- 
 
¶17. (U) Immigration and Customs Enforcement (ICE), U.S. 
Secret Service and the U.S. Coast Guard represent Department 
of Homeland Security interests in Colombia.  ICE supports 
transitional investigations, the Trade Transparency Money 
laundering Unit (TTU), and the operations of three ICE-vetted 
investigations units comprised of members of Colombian Law 
Enforcement Authorities.  ICE administers the Customs and 
Border Patrol Container Security Initiative (CBP/SCI) 
Cartagena Office and coordinates removals and deportations 
from U.S to Colombia. 
 
¶18. (U) DHS maintains strong relations with the Colombian 
National Police (CNP), Colombian Customs (DIAN), and 
Colombian Immigration (DAS) and other law enforcement 
agencies. The ICE Attach conducts investigations in the 
areas of financial/money crimes, arms trafficking, contraband 
smuggling, human trafficking and smuggling, fugitive 
apprehension, and document and benefit fraud.  ICE is opening 
an Office in Cartagena to better address investigations and 
host government relations along the coast. 
 
MILGRP: Aiming for Irreversibility 
---------------------------------- 
 
¶19. (U) The Military Group (MILGRP) has focused its support 
to the Colombian military based upon a three phased approach. 
 The first focused on building Colombian military forces, 
projecting those forces into ungoverned spaces and securing 
those spaces.  It also supported offensive operations against 
illegal armed groups on a scale never seen before.  The 
second phase, currently being executed, focuses on securing, 
consolidating and sustaining those gains, increasing 
offensive operations against illegal armed groups, and 
ensuring the irreversibility of those gains.  The third 
phase, to be initiated in 2011, is to promote a strategic 
partnership to sustain key Colombian military capabilities. 
 
¶20. (U) The MILGRP currently supports eight program areas: 
joint rotary wing, ground operations, riverine operations, 
governability, airpower, maritime interdiction, joint 
intelligence and communications, and joint force initiatives. 
 Support to these programs is vital in both the short- and 
long-terms.  In the short-term, we will assist Colombia in 
controlling illegal armed groups and bringing peace and rule 
of law to the Colombian population.  In the long-term, we 
will focus on building a strategic partnership with 
Colombian, and develop key Colombian military capabilities 
that can support U.S. national security objectives worldwide. 
 
 
New Initiatives 
---------------- 
 
¶21. (SBU) We are working with the GOC, other governments, and 
international organizations to develop an initiative to 
consolidate the gains made to date in key conflict areas. 
The initiative builds on current and past USG and GOC 
programs, and involves close coordination of security, 
eradication, alternative development, and institutional 
development programs.  The initiative's primary goal is to 
provide incentives for Colombian citizens to join the licit 
economy in the conflict zones plagued by coca cultivation, 
narcotrafficking and illegal armed groups.  These targeted 
 
regions produce roughly 80 percent of the coca in Colombia 
and serve as major trafficking hubs, with a high incidence of 
violence and displacement. 
BROWNFIELD