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### Viewing cable 08LIMA1130, SFRC STAFFDEL examines transparency

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
08LIMA1130 | 2008-07-02 21:54 | 2011-07-11 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Lima

`

    R 022154Z JUL 08
    FM AMEMBASSY LIMA
    TO RUEHC/SECSTATE WASHDC 8931
    RUEHBR/AMEMBASSY BRASILIA 7899
    RUEHRI/AMCONSUL RIO DE JANEIRO 0343
    RUEHSG/AMEMBASSY SANTIAGO 1947
    RUEHBU/AMEMBASSY BUENOS AIRES 3426
    RUEHCV/AMEMBASSY CARACAS 1194
    RUEHLP/AMEMBASSY LA PAZ JUL QUITO 1974
    RUEHBO/AMEMBASSY BOGOTA 5847

` `

    UNCLAS LIMA 001130

    SENSITIVE
    SIPDIS

    E.O. 12958: N/A
    TAGS: OREP ENRG AMGT EMIN ASEC AFIN BR
    CH, PE, EAID
    SUBJECT: SFRC STAFFDEL examines transparency
    in Peru's extractive industries

    SENSITIVE BUT UNCLASSIFIED HANDLE ACCORDINGLY

    ¶1. (SBU) SUMMARY. Senate Foreign Relations Committee Staff Members
    Carl Meacham and Brooke Daley visited Lima May 25-31 to discuss the
    state of transparency in Peru's extractive industries.  Meetings
    with government officials, non-government organizations (NGO), and
    private sector executives all emphasized that Peru is
    making significant gains in supporting transparency and combating
    corruption.  The inability of local governments to effectively
    invest the mining royalties being generated, however, is fueling
    citizen frustration and
    local conflicts. END SUMMARY.

    EITI IN PERU
    ------------

    ¶2. (SBU) Meacham and Daley spent five days in Peru meeting with
    Government of Peru (GOP) officials, civic watchdog groups, donors,
    and mining company representatives to discuss the state of
    transparency within Peru's extractive industry.  Peru is one of four
    countries piloting the Extractive Industries Transparency Initiative
    (EITI).  EITI was launched in 2002 by Prime Minister Tony Blair to
    encourage resource-rich countries to publish and verify company
    payments and revenues from oil, gas, and mining to improve
    transparency and accountability.

    ¶3. (SBU) Peru's EITI program began in 2006.  At the national level
    the EITI Working Group, comprised of representatives from civil
    society, the mining sector, and the Ministry of Energy and Mines, is
    supported by the World Bank.  The U.S. government-funded EITI
    program, totaling $445,000 and launched in 2008, is a collaborative
    effort that brings together USAID, Canada, Britain, the
    International Finance Corporation, private sector companies, and
    NGOs. Jointly funded efforts are focused in the five regions where
    mining is most active and the majority of royalties are generated.
    The program is designed to ensure that resources generated by the
    extractive industries are invested transparently in programs that
    meet citizens' needs.  Staffers were interested in understanding the
    impact of extractive industries on the Peruvian economy, the degree
    of transparency in revenues being generated, and whether
    U.S-supported efforts, such as EITI, are seen as effective.

    ¶4. (SBU) To date, EITI in Peru has focused almost exclusively on
    mining, given that mining has long dominated the economy and in 2007
    accounted for 62% of Peru's exports.  With large investments in gas
    andQl underway, however, Peru is expected to become a net
    hydrocarbon exporter by as early as 2010.  Many of these investments
    are taking place in isolated jungle communities that have had
    minimal contact with the modern world.  The ability to use the
    resources that will be generated from royalties remains limited in
    these remote areas.  While little attention has been paid to date on
    Peru's oil and gas sector, this area is ripe for additional work
    under EITI to head off potential conflict and plan in advance for
    the effective, transparent, and sustainable use of resources that
    will be generated.

    Show Me the Money
    -----------------

    ¶5. (SBU) Peru is currently undergoing tectonic shifts as it moves to
    decentralize resources and decisin-making to the regions while also
    modernizing the state.  A national integrated financial management
    system, a new electronic public procurement process, and mandatory
    government websites at all levels are effectively shedding light on
    how government does business.

    ¶6. (SBU) With these new modern systems coming on line, both in Lima
    and the regions, a greater emphasis is being placed on efficiency
    and transparency.  Staffers repeatedly heard that "big picture"
    transparency is not a problem in Peru.  GOP websites provide
    information on how much the extractive industries provide in tax
    revenues and how these funds are allocated between the different
    levels of government.  While there is variation among the level of
    financial detail private companies report, with publicly traded
    companies and larger firms being generally more open, an abundance
    of information exists.

    Is Transparency the Easiest Part?
    ---------------------------------

    ¶7. (SBU) Of greater concern in Peru are the "downstream" problems
    resulting from growing levels of transparency.  Record mineral

    prices in today's global market are generating unprecedented wealth
    for Peru.  Through the state's ongoing decentralization effort, 50%
    of the royalties generated through extractive industries are made
    available to the regions.  According to the GOP, 2007 mining
    royalties resulted in more than $1.8 billion being transferred to
    regional and local governments, representing a budget increase of
    more than 1,700% for some districts.

    ¶8. (SBU) While the transfer of much-needed resources to the regions
    is seQ as a positive step, problems are emerging around the
    perceived inequality of royalty distribution.  Current legislation
    mandates that royalties must be returned only to those regions where
    the extractive companies operate.  The regional government of
    Ancash, for example, received $140 million in 2007 royalties.  The
    contiguous region of Lambayeque received 250 dollars in the same
    year.

    ¶9. (SBU) As the royalty pie grows larger each year, calls from
    regional presidents in non-mining areas are becoming increasingly
    strident for legislative revisions that more equitably divide the
    funds among all of Peru's 25 regions.  The natural wealth being
    extracted, it is argued, belongs to the entire country of Peru, not
    only to a handful of regions.  In June, for example, a protest
    between two regions over the distribution of mining royalties closed
    the Pan-American Highway.  Escalating violence eventually led to
    dozens of police being taken as hostages. While the protest and
    royalty issues have been resolved for the moment, tensions continue
    to simmer beneath the surface.

    Conflict at the Local Level
    ---------------------------

    ¶10. (SBU) While debate about how to divide resources continues at
    the national and regional levels, the day-to-day impact of
    increasing royalties and greater transparency is being played out in
    the local municipalities.  GOP officials and NGOs continually
    expressed to the Staffdel their concern about the capacity of local
    governments to effectively use the royalties to deliver benefits to
    some of Peru's poorest citizens.  Specifically, many questioned the
    capacity of local officials to plan, develop, and implement public
    investment projects.

    ¶11. (SBU) Although Peru is shifting towards a more decentralized
    state model, the slow move away from a notoriously laborious and
    burdensome public bureaucracy continues to impede local investment
    projects.  In addition, the capacity of municipal leaders,
    especially in the most remote and least developed regions (i.e., the
    Sierra Highlands), remains low.  Local officials in these areas have
    limited access to the technical expertise needed to plan and develop
    sustainable projects.  As royalties continue to expand each year,
    governments in the richest regions are saddled with large surpluses
    they cannot spend.

    ¶12. (SBU) Interlocutors positively emphasized that the system is
    transparent enough for people to see the surpluses, which in turn
    pts pressure on politicians to improve performance.  It is also,
    however, feeding resentment among some citizens who claim to see no
    substantive change in their lives, despite the windfall of
    resources. The Peruvian Office of the Ombudsman tracks ongoing
    social conflicts in the country, and in June 2008 it reported that
    more than 100 conflicts currently exist. Half of these are related
    to the extractive industries.

    COMMENT
    -------

    ¶13. (SBU) The difficulties Peru is facing in the extractive
    industries Qhow to show tangible benefits on the ground from
    booming mineral prices - is a microcosm of the broader challenges
    that Peru faces.  The relatively high degree of transparency and
    modernizing e-governance systems bode well for Peru's management of
    these issues.  While the mining sector is moving along in its
    efforts to address transparency and the efficient use of extractive
    resources, the oil and gas industry remains at a more incipient
    stage.  EITI is one tool that can help address some of the
    challenges identified.  Perhaps its greatest value, now being
    piloted, will lie in its ability to bring government, civil society,
    and the private sector to the table to temper expectations and
    better manage the potential for conflict. END COMMENT.

    McKinley

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