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### Viewing cable 06BOGOTA11045, GOC-ELN GUARANTORS WILL PUBLISH DRAFT PEACE ACCORD

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
06BOGOTA11045 | 2006-12-06 16:34 | 2011-02-23 06:30 | CONFIDENTIAL | Embassy Bogota

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    VZCZCXYZ0000
    PP RUEHWEB

    DE RUEHBO #1045/01 3401634
    ZNY CCCCC ZZH
    P 061634Z DEC 06
    FM AMEMBASSY BOGOTA
    TO RUEHC/SECSTATE WASHDC PRIORITY 1220
    INFO RUEHSW/AMEMBASSY BERN PRIORITY 1204
    RUEHBR/AMEMBASSY BRASILIA PRIORITY 7302
    RUEHCV/AMEMBASSY CARACAS PRIORITY 8494
    RUEHLP/AMEMBASSY LA PAZ DEC 8409
    RUEHPE/AMEMBASSY LIMA PRIORITY 4543
    RUEHMD/AMEMBASSY MADRID PRIORITY 9531
    RUEHNY/AMEMBASSY OSLO PRIORITY 0360
    RUEHQT/AMEMBASSY QUITO PRIORITY 5199
    RUEHUB/USINT HAVANA PRIORITY 0131

` `

    C O N F I D E N T I A L BOGOTA 011045

    SIPDIS

    SIPDIS

    E.O. 12958: DECL: 12/05/2016
    TAGS: PTER PGOV MARR PHUM CO
    SUBJECT: GOC-ELN GUARANTORS WILL PUBLISH DRAFT PEACE ACCORD
    TO PRESSURE PARTIES

    Classified By: Political Counselor John S. Creamer
    Reason: 1.4 (b,d)

    -------
    Summary
    -------

    ¶1.  (C) The GOC-ELN civil society guarantors will publicize a
    draft peace agreement on December 11 aimed at spurring
    greater progress in the talks.  The draft agreement, which
    guarantor Moritz Akerman said was aimed primarily at the ELN,
    suggests implementing a ceasefire and release of ELN kidnap
    victims starting May 1.  It also suggests an amnesty for most
    ELN members, and their demobilization; Akerman said
    demobilized terrorists would have to hand in their arms, but
    disarmament is not mentioned in the proposal.  Akerman
    reported Peace Commissioner Luis Carlos Restrepo was pleased
    with the proposal and hoped it would flush out the ELN's
    commitment to peace.  End summary.

    -----------------------------------------
    Guarantors' Concern About Stalled Process
    -----------------------------------------

    ¶2.  (C) Akerman said the guarantors are concerned the GOC and
    ELN have failed to establish concrete proposals and
    implementation dates during their four rounds of exploratory
    talks to date.  At the most recent session in Havana, the
    guarantors were dissatisfied with what Akerman characterized
    as "interminable discussion about the nature of conflict"
    instead of elaboration of practical initiatives.  In
    late-November meetings with the ELN and Restrepo, Akerman
    said the guarantors had the impression both sides were
    interested in moving forward, but lacked confidence in each
    other.  The guarantors regarded the ELN as more confident as
    a result of the GOC's "para-politician" scandal, and some ELN
    Central Command members were suggesting postponing the
    December 14 Havana talks to see how much weaker the GOC would
    get.  Akerman reported the guarantors aimed to force the ELN
    to take a position on sensitive issues such as ceasefire and
    release of kidnap victims.

    --------------------------
    Public Proposal on the Way
    --------------------------

    ¶3.  (C) Akerman explained the guarantors planned to hold a
    press conference on Monday, December 11 at the Colombian
    Congress to publicize a guarantor proposal to the GOC and
    ELN, and call for a public response.  The guarantors will
    publish the proposal in the El Tiempo (Bogota) and El
    Colombiano (Medellin) newspapers the following day.  The
    proposal also calls for ELN military commander and negotiator
    Antonio Garcia to come to Bogota and explain the ELN's
    response publicly.

    ¶4.  (C) The proposal provides for three phases of concrete
    implementation.  The first, from January 1-April 31, is
    focused on humanitarian and political processes, including
    the formation of a verification commission that would address
    ceasefire and release of kidnap victims.  It also includes
    initiatives related to displaced people, demining, release of
    ELN child soldiers, and "alternative development" in areas of
    significant narcotics presence.  The guarantors' proposal
    suggests amnesty for ELN "rebels"; Akerman said this
    contemplated amnesty for ELN members associated with
    "rebellion."  (Note: Under Colombian law, "rebellion"
    excludes war crimes and crimes against humanity, such as
    torture, forced disappearances, forced displacement, and
    genocide; Colombia's adherence to the Rome Statute of the
    International Criminal Court expanded Colombian law's
    definition of crimes against humanity to include categories
    such as assassinations, and kidnapping, if systematic and on
    a "massive" scale.  End note.)  Akerman said the first phase
    would have to reach an understanding on how the ELN would
    finance itself during the peace process.

    ¶5.  (C) The second phase, from May 1-October 31, would
    involve a mutual ceasefire, and release of all ELN kidnap
    victims.  The proposal says the GOC would begin to release
    ELN prisoners during this phase; Akerman said there were some
    1,500.  The demobilized ELN members would return to their
    communities, some of which would be named, "Special and

    Experimental Zones."Akerman said the idea of the zones was
    to concentrate GOC and international assistance in limited
    areas to maximize its effectiveness.  He added that ELN
    members who demobilized would be expected to hand in any
    weapons, but the proposal did not address disarmament
    explicitly because the subject was still too sensitive when
    the ELN faced the FARC in the field.  The GOC would convoke a
    "national convention" in June, as distinct from a
    "constituent assembly."  The national convention would
    involve civil society and political party participation and
    make legal and policy recommendations, not enact
    constitutional changes.

    ¶6.  (C) The third phase, from November 1-December 31, would
    evaluate progress to date and extend the ceasefire.  The
    verification commission would report on ceasefire issues and
    matters related to kidnap victims and ELN prisoners.

    ---------------------------------
    Prefatory Language Causing Debate
    ---------------------------------

    ¶7.  (C) Akerman reported the guarantor proposal would preface
    its terms with three suggestions: on a "peace tax" to fund
    investment in rural areas, a call to open the media to more
    diverse points of view, and a recognition that Colombia's
    conflict will not be solved unless narcotics trafficking is
    addressed.  He said the guarantors were not in agreement on
    how to formulate the suggestions.  Some supported a harder
    line than others and wanted to urge rejection of a "war tax,"
    form an "international commission" to promote a more open
    media, and promote drug legalization, while others were
    opposed.

    ---------------------------------------
    Restrepo Reportedly Happy with Proposal
    ---------------------------------------

    ¶8.  (C) Akerman told us Restrepo was pleased with the
    proposal when shown it on December 5.  Restrepo took issue
    with a few points, including the "harder line" prefatory
    suggestions, but Akerman said the peace commissioner hoped
    the proposal would flush out the ELN's commitment to peace.
    Restrepo has previously criticized the guarantors for failing
    to pressure the ELN, concluding they did not have leverage
    over the terrorist group.  In comments published in El Tiempo
    on December 4, Restrepo said the "hour of truth" had arrived
    for the ELN: it must decide if it was committed to the
    political process or would continue its terrorist activities.
     He noted the ELN continued to kidnap at the rate of one
    person a week, and was increasingly involved in narcotics
    trafficking.
    DRUCKER

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