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### Viewing cable 04BOGOTA1703, PLAN COLOMBIA PHASE II

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
04BOGOTA1703 | 2004-02-18 20:38 | 2011-04-16 00:00 | UNCLASSIFIED | Embassy Bogota

`

    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

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