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### Viewing cable 09BOGOTA3526, Researchers Assess Post-FARC Consolidation, Intelligentsia

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
09BOGOTA3526 | 2009-11-05 17:16 | 2011-06-12 12:30 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Bogota
Appears in these articles: http://www.elespectador.com/wikileaks

`

    VZCZCXYZ0000
    RR RUEHWEB

    DE RUEHBO #3526/01 3091717
    ZNR UUUUU ZZH
    R 051716Z NOV 09
    FM AMEMBASSY BOGOTA
    TO RUEHC/SECSTATE WASHDC 0707
    INFO RHEHAAA/NATIONAL SECURITY COUNCIL WASHINGTON DC
    RHMFIUU/CDR USSOUTHCOM MIAMI FL
    RHMFIUU/DEPT OF JUSTICE WASHINGTON DC
    RUEAIIA/CIA WASHINGTON DC
    RUEHBO/AMEMBASSY BOGOTA
    RUEHBR/AMEMBASSY BRASILIA 0148
    RUEHCV/AMEMBASSY CARACAS 0478
    RUEHPE/AMEMBASSY LIMA
    RUEHQT/AMEMBASSY QUITO
    RUEHZP/AMEMBASSY PANAMA
    RUEKJCS/SECDEF WASHINGTON DC

` `

    UNCLAS BOGOTA 003526

    SENSITIVE
    SIPDIS

    E.O. 12958: N/A
    TAGS: PGOV PREL PREF PTER PHUM EAID SNAR CO
    SUBJECT: Researchers Assess Post-FARC Consolidation, Intelligentsia
    Skeptical

    REF: BOGOTA 3262

    Summary

    -------

    ¶1.  (U) On October 28, think tank New Rainbow Corporation and the
    Dutch Embassy held a public forum on the Integral Plan for the
    Consolidation of La Macarena (PCIM).  La Macarena lacked a state
    presence for years and was the home base region of the
    Revolutionary Armed Forces of Colombia (FARC).  Researcher
    Alejandro Reyes presented his findings that land issues
    --especially titling so that the small-scale farmers' property
    rights are protected-- and a social pact to strengthen institutions
    are vital to consolidation.  The GOC lead coordinator for the PCIM
    defended the consolidation concept from skeptical civil society
    participants who clearly held an image of a militarized National
    Consolidation Plan (PNC).  The GOC has identified the need for
    public outreach but will have a difficult time depoliticizing the
    message during an election season.  The U.S. Embassy's Colombia
    Strategic Development Initiative (CSDI) working group, through
    USAID, is actively working to explore pilot projects to address
    land titling in consolidation zones.  End Summary.

    ¶2. (U) Respected think tank New Rainbow Corporation and the Dutch
    Embassy co-sponsored an open forum to discuss the PCIM on October
    ¶28.  The forum centered on the presentation of a policy paper
    authored by researchers Alejandro Reyes and Gustavo Duncan.  The
    paper evaluates the PCIM's strategic results and offers
    recommendations to improve the PCIM and the national consolidation
    strategy in general.  In attendance were academics, journalists,
    GOC officials, and the international community.

    Property Rights for Local Community Essential During Transition

    --------------------------------------------- ------------------

    ¶3. (U) Reyes told the forum that resolving land issues is key to
    consolidation.  The absence of land titles for small-scale farmers
    creates a dynamic of continuous settler migration to areas outside
    of state control, thus expanding the conflict.  These "colonists"
    move to areas lacking state presence where coca cultivation is
    their most lucrative productive option.  Reyes added that rural
    farmers without formal ownership of land cultivate illicit crops
    for lack of access to legitimate credit and because the threat of
    land confiscation by the state means little.

    ¶4. (U) Lack of titles also exposes communities to exploitation by
    large land owners and outside investors when consolidation begins,
    according to Reyes.  In conflict zones, illegal armed groups
    discourage land acquisition but paradoxically, as citizens benefit
    from improved security and the establishment of the state, they are
    also economically vulnerable.  After coca crops are eradicated, the
    farmers, due to their loss of illicit income, may be compelled to
    sell their land, sometimes at one fifth of its actual value.

    ¶5. (U) Reyes argued that the GOC's agrarian policy favors large
    land owners and agricultural enterprises over smaller producers and
    that the Ministry of Agriculture has approached land titling in
    conflict zones with antipathy.  He noted that the Minister of
    Agriculture has publicly alleged that farmers in the Macarena have
    guerrilla links and that granting titles would benefit the FARC.
    Reyes recommended that property rights for ordinary citizens be a
    top priority for government interventions in consolidation zones.

    Social Pact Necessary to Strengthen Institutions

    --------------------------------------------- ---

    ¶6. (U) In the consolidation process, the community interacts
    directly with assistance programs supported by the Office of the
    President.  Reyes explained that although this has weakened the
    role of traditional community organizations, municipal and
    departmental administrations, and other government institutions, it
    is necessary given the administrative and budgetary weakness of
    these entities and their history of cooption by illegal armed
    groups.  Reyes concludes what is needed is a social pact between
    the national government and the local community to generate
    political will and energy to strengthen institutions as part of the
    consolidation process.  This political energy needs to bring the
    entire government into the process, because Reyes says,
    "consolidation can't just be a small group of 'Quixotes' in a
    regional coordination center."

    GOC Explains Structural Difficulties and the Role of Police

    --------------------------------------------- --------------

    ¶7. (U) Alvaro Balcazar, the GOC lead coordinator of the PCIM, told
    the forum that it is difficult to extend the state presence of a
    democracy because democratic budgeting and decision-making
    structures are cumbersome.  Balcazar added that he and his
    officials have no real authority and must make progress by
    influencing and persuading local actors such as municipal
    administrations.  Conversely, municipal governments are the
    legitimate authorities but do not have adequate budgets and
    administrative capacity.  As far as total social investment in the
    PCIM, Balcazar emphasized the GOC and local governments have
    provided the bulk of financing --approximately $162 million of $180
    million total.  International community support (about $18 million)
    has provided the rapid and flexible spending necessary to bridge
    gaps between security advances and GOC intervention.  Balcazar
    assured the group that this investment has made a significant
    impact in the PCIM communities.

    ¶8.  (U) Balcazar noted complications when transitioning security
    responsibilities from the military to police.  In consolidation
    zones, there is a natural tension between the rule of law and
    citizen safety.  Police, when taking over a zone, must abide by
    judicial standards for evidence and prosecution when addressing
    threats to the citizenry, which at times has produced lack of
    confidence in the police for perceived ineffectiveness when the
    accused are released for failure to completely comply with legal
    requirements.  However, Balcazar said progress is being made.  In
    Vista Hermosa for example, the military gave way to tactical police
    units with assault rifles, who were then replaced by traditional
    police with pistols.

    Civil Society Confronts GOC Official for Perceived PNC
    Militarization

    --------------------------------------------- ----------------------
    --

    ¶9. (U) Academics and journalists vehemently confronted Balcazar
    about consolidation, which in their view was clearly a military
    strategy.  One journalist said she believes that the Ministry of
    Defense is the center and lead of the PNC and doubted that the
    military would ever leave consolidation zones, including areas that
    have already been turned over to the police.  She also questioned

    whether citizens in consolidation zones had any political
    liberties.  One academic railed against consolidation as a military
    imposition of rightist ideology on rural citizens.  He even
    assailed the GOC National Parks representatives for wearing
    "military uniforms and not dressing as decent civilians."  (Note:
    Parks personnel wear matching khaki pants and blue denim shirts
    with a park logo patch. End Note.)  Another participant claimed
    that any civil society groups that have become allies of the state
    in consolidation zones were either bribed or infiltrated by state
    agents, and called the PNC the "National Bribery Plan."

    Comment

    -------

    ¶10.  (SBU) Despite the PNC's whole-of-government approach and
    emphasis on social development which would seemingly sell itself,
    the GOC has not done well explaining the plan to the public.  Nor
    have they been able to articulate a clear definition of what
    "consolidation" means in the context of the PNC.  This has led to
    misconceptions and distrust among Colombia's intelligentsia.  New
    civilian PNC lead Diego Molano has recognized the problem and has
    prioritized the development of a public outreach campaign.  This
    will be difficult during the election season, when any outreach
    from the presidency will be perceived as political campaigning.
    Reyes's identification of land issues as a top priority is
    congruent with thinking in the Embassy's Colombia Strategic
    Development Initiative (CSDI) working group.  The CSDI is actively
    exploring USAID-led pilot projects and initiatives to improve land
    titling and alternative development in consolidation zones.  The
    Ministry of Agriculture, a key agency in land titling, has been a
    reluctant interlocutor and generally absent from the PNC
    interagency coordinating process.  End Comment.
    BROWNFIELD

`