SCENESETTER FOR FEBRUARY 18-22 CAPSTONE VISIT TO

UNCLAS BOGOTA 000435

SENSITIVE

SIPDIS

C O R R E C T E D COPY FOR CAPTION
E.O. 12958: N/A
TAGS: MARR EAID PREL SNAR PTER ETRD PREF CO
SUBJECT: SCENESETTER FOR FEBRUARY 18-22 CAPSTONE VISIT TO
COLOMBIA

Summary
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1. (SBU) We welcome the visit of the CAPSTONE fellows to
Colombia, which comes at a key time in the U.S.-Colombia
bilateral relationship. In ten years, Colombia has
progressed from a near failed state and terrorist haven to an
economic, political, and social leader in Latin America.
Colombia has made major progress in its fight against illegal
armed groups and set records in the eradication and
interdiction of drugs. Murder and kidnapping rates have
dropped dramatically, while rule of law is strengthened
through major judicial reforms. Improved security has grown
the economy, reduced poverty, and attracted record levels of
investment. The GOC has looked to leverage these successes
beyond its borders by offering troops to NATO in Afghanistan
and providing counterterrorism and counternarcotics training
to Mexican, Panamanian and other law enforcement agencies in
the region.


2. (SBU) Significant challenges remain, many of which will be
of special interet to the CAPSTONE group. Drug trafficking
organizations and illegal armed groups continue to operate in
large parts of the country, including border areas. Colombia
has over three million internally displaced persons, and deep
social divides still prevent millions of citizens, especially
in rural areas, from benefiting fully from security and
economic gains. Despite progress on human rights, some
elements of the security forces continue to violate human
rights, and the military has been accused of numerous
exrajudicial killings of innocents. Violence against trade
unionists continues even as the GOC has stepped up
prosecutions and boosted its protection programs for
unionists, human rights activists, and other vulnerable
individuals. USG support is critical to help the GOC
confront these persistent challenges, even as we continue our
dialogue on how best to transfer key security tasks from the
USG to the GOC. End Summary.

CAPSTONE Program
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3. (SBU) You will meet with Minister of Defense Juan Manuel
Santos and his team to hear about the GOC's experience in
confronting illegal armed groups (IAGs) and drug trafficking
organizations. Meetings within the embassy will review our
integrated programs and policies including our unified
Country Team effort in support of our shared goals. You will
also visit the Colombian Military's main area of effort
against the Revolutionary Armed Forces of Colombia (FARC),
Joint Task Force Omega (JTF-Omega). Meetings with the
Embassy Narcotics Affairs Section (NAS),the Colombian
National Police (CNP) and the Colombian Army's Counterdrug
Brigade (BRACNA) will provide you an overview of
counternarcotics initiatives. Your visit will provide a
comprehensive overview of the GOC's efforts-with USG
assistance--to strengthen democratic institutions,
consolidate control over its national territory through the
"democratic security" policy, and improve its human rights
record.

Democratic Security Advances
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4. (SBU) Colombia has achieved successes in its fight against
the FARC, National Liberation Army (ELN) and emerging
criminal groups. The rescue of 15 high-profile FARC hostages
in July 2008, including three Americans, and the deaths of
key FARC leaders highlight Colombia's progress in security.
Colombian security forces captured or killed a number of
mid-level FARC leaders, and reduced the space in which
terrorists can operate freely. A record number of FARC
members deserted in 2008--including high-level commanders.
Total demobilizations of illegal armed groups reached 3461 in
2008--primarily from the FARC--making it the highest level of
demobilizations in Colombia's history.


5. (SBU) With USG help, in 2008, Colombia again set records
in eradication and interdiction of drugs, while further
reducing murder and kidnapping rates. Colombia extradited a
record 208 criminals, narcotraffickers and terrorists to the

United States in 2008, including 15 senior ex-paramilitary
leaders; Colombia has already extradited 20 criminals in

2009. The number of homicides fell for the sixth consecutive
year, dropping to 16,140 (or 33 for every 100,000 habitants),
45 percent lower than 2002 levels.

Regional Context
--------------


6. (SBU) Colombia sees itself as a key U.S. ally in an Andean
region increasingly hostile to U.S. values and goals.
Ecuador broke diplomatic relations with Colombia after a
military strike in March 2008 against FARC Commander Raul
Reyes's camp just across the border in Ecuador. The GOC
maintains a moderate tone with Ecuadorian President Correa,
despite his often angry rhetoric. Ecuador recently imposed
strict requirements on Colombians wishing to travel to their
southern neighbor.


7. (SBU) Relations with Venezuela are now stable, and have
improved since Venezuela recalled its ambassador following
the Reyes attack. Presidents Uribe and Chavez met in late
January in Cartagena, signing several economic cooperation
agreements. However, Colombia remains wary of Venezuelan
ties to the FARC, as evidenced in the computers found in the
Raul Reyes camp. Beyond the Andes, Colombia is helping
Mexico to combat terrorism, narcotrafficking and other
criminal activity. Colombia is also working with Mexico,
Chile, Peru and Brazil to promote economic integration and
strengthen democratic institutions in Latin America.
Colombia has also to send engineering and special forces to
Afghanistan under NATO auspices, and contributes troops to
the Multi-National Observer Forces in the Sinai.

Economic Growth and Free Trade
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8. (U) After several years of strong economic growth,
Colombia has begun to feel the pinch of the global economic
crisis. Growth slowed to 3.5% in 2008 after record growth of
7.5% in 2007. Colombia remains dependent on commodity
exports (petroleum, coal, flowers, coffee),making it
vulnerable to price drops. Colombia cut unemployment and
poverty during the past six years, but those gains have
stalled. The financial sector is relatively solid and has
been cushioned to date against the global credit crunch by
conservative lending practices. The slowing economy led to
growing popular concern over pocketbook issues, and a pyramid
scandal in 2008 cost Colombians an estimated $1 billion in
savings. The GOC inked trade deals with Canada, Chile,
Central America and smaller European countries. The GOC is
now negotiating an agreement with the EU. The U.S.-Colombia
Trade Promotion Agreement (CPTA) remains a bilateral priority
for the Colombian government and private sector, and the GOC
will likely consult with you as to how it can work together
with the Congress to promote its passage.

Serious Challenges Ahead
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9. (SBU) Despite advances in security and development,
challenges related to violence, narcotrafficking,
displacement, human rights, labor rights, and minority groups
remain. We estimate the FARC has 8,000 operational
guerrillas in the field, and organized narcotrafficking
groups continue to cause violence. Internal displacement due
to the armed conflict remains serious, with three million
displaced by violence since 1995. Deep historical social
divides make it difficult for millions from the
Afro-Colombian and indigenous populations to benefit fully
from security and economic gains. These minority groups
suffer from limited education, health care, and employment
opportunities, and disproportionate forced displacement in
the mostly isolated rural areas where they reside.


10. (U) Colombia has publicly committed to improving its
human rights performance. Eighty Colombian military officers
were recently dismissed due to alleged involvement in
extrajudicial killings. We are working with the Ministry of
Defense to improve rules of engagement, and make sure that
soldiers accused of human rights abuses are investigated by

civilian prosecutors. Labor unionists and homicides declined
76 percent between 2001-2008, yet in 2008 the number of labor
homicides (for all causes) increased from 39 to 46--largely
due to a spike in the first quarter--although still well
below the national homicide rate.


11. (U) Through the Center for Coordinated and Integrated
Action (CCAI),the GOC is recovering territory previously
held by illegal armed groups and establishing government,
state services and securing vulnerable communities. In 2008,
the GOC reestablished a government presence in all 1098
municipalities and all the country's mayors once again
resided within their municipalities. A coordination plan for
Macarena--the historic heartland of the FARC--aims to
establish a permanent military, police and civilian presence
in post-conflict areas--some of which have never seen a
viable GOC presence. Challenges remain, as resource,
security and staffing shortfalls continue to limit the
initiative. The United States, through USAID, MILGRP and
NAS, provides assistance to CCAI.

USAID: Aiding Communities At Risk
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12. (U) Under Plan Colombia, the USG has provided more than
$950 million in economic and social assistance via USAID.
USAID's initiatives have delivered legal jobs, social
services, and development in narcotrafficking and conflict
zones. We are reintegrating thousands of Colombians who have
demobilized, abating child recruitment into armed groups, and
increasing social services for victims of conflict. We are
restoring citizen confidence in governance, improving the
criminal justice system and institutions, increasing the
poor's access to justice, and promoting human rights through
investigation and prosecution of human rights and
labor-related cases. These programs focus on communities at
high-risk of violence, provide legal and psycho-social
assistance, and strengthen key Government oversight and
judicial institutions.

13.(U) USAID's alternative development program is a key
component of our counter-narcotics efforts. It promotes
sustainable economic opportunities in regions vulnerable to
drug production and conflict. These programs create jobs and
economic opportunities in areas recently retaken from illegal
armed groups and build the social infrastructure to mitigate
future conflict. USAID is expanding social and economic
opportunities and improving livelihoods for Afro-Colombians
and indigenous communities disproportionately affected by
conflict. These programs provide jobs, education,
healthcare, housing, and social services for these vulnerable
populations.

DOJ: Providing Justice Reform
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14. (U) The Department of Justice (DOJ) coordinates a
multifaceted program focused on strengthening the Colombian
criminal justice system, its institutions, processes and
personnel. This program involves six major areas:
implementation of an accusatory system; human rights
investigations and prosecutions; Justice and Peace
investigations and prosecutions; complex areas of criminal
law; improved forensics capability; and witness protection.
The bulk of the assistance is provided through training and
technical assistance to the Prosecutor General's Office.

NAS: Eradicating, Training, Nationalizing
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15. (U) We made real strides in battling narcoterrorism in
Colombia in 2008. The most recent U.S. figures for cocaine
production in Colombia show a 24% reduction in production
since the peak year 2001. In 2008, Colombian security forces
seized 245 metric tons of cocaine and coca paste, eradicated
230,000 hectares of coca and destroyed 3667 drug labs. We
kept hundreds of metric tons out of the United States. We
have reduced the funds available to the FARC and other
criminal groups for the purchase of weapons and explosives,
corruption of public officials, and coercion of local
populations.



16. (U) We have made progress in eradication. Increased
coordination between manual and aerial eradication improves
our ability to deal with replanting. Much of the success in
battling narcotrafficking and terrorism is due to air
mobility capabilities provided by the United States. Without
helicopters, the GOC could not project force or provide
government presence in a country the size of Texas and
California combined. Colombia is nationalizing our aviation
assets, but still needs some U.S. support. In the last two
years, more than 50 aircraft have been turned over to the GOC
to fund, maintain, and control. Colombia's ability to
confront narcotics and terrorism depends in large part on
it's air mobility.

DHS Operations
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17. (U) Immigration and Customs Enforcement (ICE),U.S.
Secret Service and the U.S. Coast Guard represent Department
of Homeland Security interests in Colombia. ICE supports
transitional investigations, the Trade Transparency Money
laundering Unit (TTU),and the operations of three ICE-vetted
investigations units comprised of members of Colombian Law
Enforcement Authorities. ICE administers the Customs and
Border Patrol Container Security Initiative (CBP/SCI)
Cartagena Office and coordinates removals and deportations
from U.S to Colombia.


18. (U) DHS maintains strong relations with the Colombian
National Police (CNP),Colombian Customs (DIAN),and
Colombian Immigration (DAS) and other law enforcement
agencies. The ICE Attach conducts investigations in the
areas of financial/money crimes, arms trafficking, contraband
smuggling, human trafficking and smuggling, fugitive
apprehension, and document and benefit fraud. ICE is opening
an Office in Cartagena to better address investigations and
host government relations along the coast.

MILGRP: Aiming for Irreversibility
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19. (U) The Military Group (MILGRP) has focused its support
to the Colombian military based upon a three phased approach.
The first focused on building Colombian military forces,
projecting those forces into ungoverned spaces and securing
those spaces. It also supported offensive operations against
illegal armed groups on a scale never seen before. The
second phase, currently being executed, focuses on securing,
consolidating and sustaining those gains, increasing
offensive operations against illegal armed groups, and
ensuring the irreversibility of those gains. The third
phase, to be initiated in 2011, is to promote a strategic
partnership to sustain key Colombian military capabilities.


20. (U) The MILGRP currently supports eight program areas:
joint rotary wing, ground operations, riverine operations,
governability, airpower, maritime interdiction, joint
intelligence and communications, and joint force initiatives.
Support to these programs is vital in both the short- and
long-terms. In the short-term, we will assist Colombia in
controlling illegal armed groups and bringing peace and rule
of law to the Colombian population. In the long-term, we
will focus on building a strategic partnership with
Colombian, and develop key Colombian military capabilities
that can support U.S. national security objectives worldwide.


New Initiatives
--------------


21. (SBU) We are working with the GOC, other governments, and
international organizations to develop an initiative to
consolidate the gains made to date in key conflict areas.
The initiative builds on current and past USG and GOC
programs, and involves close coordination of security,
eradication, alternative development, and institutional
development programs. The initiative's primary goal is to
provide incentives for Colombian citizens to join the licit
economy in the conflict zones plagued by coca cultivation,
narcotrafficking and illegal armed groups. These targeted

regions produce roughly 80 percent of the coca in Colombia
and serve as major trafficking hubs, with a high incidence of
violence and displacement.
BROWNFIELD