DRAFT MAPP/OAS TENTH QUARTERLY REPORT ON PEACE

C O N F I D E N T I A L BOGOTA 007695

SIPDIS

SIPDIS

E.O. 12958: DECL: 10/17/2017
TAGS: CO PHUM PGOV KJUS PREL
SUBJECT: DRAFT MAPP/OAS TENTH QUARTERLY REPORT ON PEACE
PROCESS

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

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Summary
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1. (C) The MAPP/OAS draft Tenth Quarterly Report on the
peace process recognizes GOC progress in the reintegration of
demobilized paramilitaries, as well as in combating new
criminal groups, but urges it to do more to prevent
narcotraffickers, the FARC, and other criminal groups from
exploiting the vacuum left by the paramilitary demobilization
in some regions. The MAPP/OAS identifies challenges to
implementing the Justice and Peace Law (JPL),and recommends
strengthening the institutional capacity of the Prosecutor
General's Office (Fiscalia),Human Rights Ombudsman
(Defensoria) and Inspector General's Office (Procuraduria).
It also calls for expanded protection and rights for victims.
The draft report will likely be made public in November. End
Summary.

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What the GOC is doing right
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2. (C) The draft MAPP/OAS (OAS Mission in Support of the
Peace Process) Tenth Quarterly Report outlines positive
developments as well as continuing challenges. The report
praises the High Commissioner for Reintegration (ACR) for
developing a cohesive, national strategy to provide social,
health and psychological assistance to demobilized
paramilitaries. It notes that the ACR's decentralized
approach through its 37 regional service centers and its
focus on community outreach has improved the reintegration
process. The OAS also highlights the transition from simply
paying monthly stipends to demobilized to conditioning
receipt of benefits to their participation in ACR programs.
These include regular meetings with ACR staff as well as
their participation in educational and job search programs.


3. (C) The report praises Medellin's mayor for his active
role in reintegration projects. Strong demobilization and
reintegration programs in the city helped reduce the murder
rate per 100,000 inhabitants from 98 in 2004 to 29.6 in 2006.
Illegal criminal bands exist in the Medellin area, but the
local Fiscalia and police are ramping up efforts to combat
them. The OAS underscores the importance of soliciting
regional and municipal cooperation in any reintegration
effort.


4. (C) The report recognizes that GOC security forces,
including the army, navy and police, are boosting their
presence in areas that were vacated by the paramilitaries but
remain vulnerable to penetration by the FARC and
narcotraffickers. It highlights the GOC's capture of five
leaders of new criminal groups, as well as GOC operations
against the Organizacion Nueva Generacion in Narino and other
bands operating in southern Cesar. The GOC has also
responded to OAS concerns regarding the military's use of
ex-combatants as informants ("red de cooperantes"),a
practice which was explicitly prohibited in a directive
issued in June.


5. (C) The High Commission for Reparation and Reconciliation
(CNRR) is also praised for expanding its regional offices
from five to eight, including new offices in Bolivar, Valle
del Cauca and Cesar. CNRR also organized meetings with
victims and publicized a series of public announcements on
victims' rights.

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Drug traffickers, FARC and Criminal Bands Spread Fear
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6. (C) Despite positive steps, the OAS notes the growing
presence and capacity of narcotraffickers who are taking over
coca cultivation and drug corridors in regions formerly
controlled by paramilitary groups. Affected areas include the
Sierra Nevada, Bajo Cauca, Alto Sinu and San Jorge in
Cordoba, Sur de Bolivar, Uraba golf, Vichada, Meta, Caqueta
and Putumayo. The FARC has also increased its presence in
drug corridors, sometimes allying with narcotraffickers. Turf

battles among criminal groups are causing displacement and
spreading fear among communities, particularly in Santa
Marta, Barranquilla, Cartagena, Turbaco, Turbana and
Sincelejo. Criminal bands are also responsible for at least
180 killings of demobilized in 2007.


7. (C) The report notes these criminal groups lack the
social legitimacy previously enjoyed by paramilitary groups
in many regions. They also do not pretend to have a
political or counterinsurgency mission. Still, the report
voices concern over the role of some ex paramilitary leaders
and mid-level commanders in creating these bands. Some
demobilized paramilitaries also are being "recycled" as
"private contractors" for narcotraffickers, creating a new
generation of mafia. Former members of the Bloque Central
Bolivar in Antioquia, for example, continue committing
crimes. The report praises the GOC's recent transfer of
former para leader Carlos Mario Jimenez (aka Macaco) from
Itagui to Combita maximum security prison--and then to a
frigate off the coast--due to his continued involvement in
criminal activity from prison.

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Justice and Peace Law at Critical Juncture
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8. (C) The OAS report warns that the cost of a breakdown in
the JPL process could be high. It urges the GOC to clarify
the legal status of demobilized paramilitaries and to
increase the resources of key agencies--such as the Fiscalia
and Defensoria--involved in the process. It says the GOC
needs to resolve the legal status of the 18,000 demobilized
paramilitaries affected by the Supreme Court's July 11 ruling
that paramilitaries could not commit "political crimes." The
MAPP/OAS also calls for the GOC to improve the institutional
capacity to: 1) investigate and prosecute crimes, 2) protect
victims and officials, and 3) provide more legal and
psycho-social aid to victims. It says the Fiscalia's Justice
and Peace unit has 23 prosecutors (fiscales) and 150
investigators but needs up to 1235 investigators to do its
job. The Defensoria also lacks the resources to represent
victims; the Procuraduria needs 20 additional posts to help
prosecutors take voluntary confessions (versiones libres) and
do research.


9. (C) The OAS notes that the 63 versiones libres of
paramilitary leaders conducted so far have led to the
exhumation of 836 bodies in 698 graves. The Fiscalia has
fully identified 57 of the victims, with 298 more in the
preliminary identification stage. Still, the OAS says many
paramilitaries are not confessing the complete truth about
their crimes and, in some cases, are threatening victims
participating in the process. It suggests that limited
television transmission of the versiones libres would allow
more access to victims who cannot travel to the three major
cities where the versiones libres are being held.

Brownfield