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Viewing cable 09BOGOTA1113, COLOMBIA NEGOTIATES NEW AGREEMENT WITH UN TO MONITOR COCA

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Reference ID Created Released Classification Origin
09BOGOTA1113 2009-04-03 12:16 2011-08-25 00:00 UNCLASSIFIED//FOR OFFICIAL USE ONLY Embassy Bogota
VZCZCXYZ0000
RR RUEHWEB

DE RUEHBO #1113/01 0931216
ZNR UUUUU ZZH
R 031216Z APR 09
FM AMEMBASSY BOGOTA
TO RUEHC/SECSTATE WASHDC 8121
INFO RUEHUNV/USMISSION UNVIE VIENNA 0028
RUEHPE/AMEMBASSY LIMA 7278
RUEHLP/AMEMBASSY LA PAZ APR QUITO 8014
RUEHCV/AMEMBASSY CARACAS 1973
RHEHOND/DIR ONDCP WASHDC
RUEAIIA/CIA WASHDC
RUEABND/DEA HQS WASHDC
RHMFISS/CDR USSOUTHCOM MIAMI FL
RHMFIUU/DEPT OF STATE AIR WING PATRICK AFB FL
UNCLAS BOGOTA 001113 
 
SIPDIS 
 
SENSITIVE 
 
DEPT FOR INL/LP AND INL/RM 
DEPT FOR WHA/AND 
DEPT FOR IO 
 
E.O. 12958: N/A 
TAGS: SNAR PGOV KCRM PTER CO
SUBJECT: COLOMBIA NEGOTIATES NEW AGREEMENT WITH UN TO MONITOR COCA 
CULTIVATION 
 
REF: 08 BOGOTA 2315 
 
1. SUMMARY:  The Colombian government (GOC) and the United Nations 
Office of Drug Control (UNODC) in Colombia have signed a new 
agreement on how the UNODC conducts its annual coca cultivation 
census.  The GOC requested to renegotiate the agreement after the 
UNODC reported a 27 percent increase in coca cultivation in 2007 
compared to 2006.  The GOC was displeased with the results, since 
they had a record year for eradication and said that changes in the 
way the UN's satellite-based Illicit Crop Monitoring System (SIMCI) 
conducts the census resulted in the increase in cultivation and the 
GOC threatened to end cooperation with SIMCI.  The GOC subsequently 
determined that it was not feasible to contract out or take over the 
coca monitoring activities.  The new agreement includes provisions 
to increase the frequency of coca monitoring and improve the 
verification of SIMCI's annual cultivation number.  END SUMMARY. 
 
2. Recently, the Colombian government (GOC) and the United Nations 
Office of Drug Control (UNODC) in Colombia signed a new agreement 
governing how the UNODC conducts its annual coca cultivation census 
and other work in Colombia and are about to make a public 
announcement.  The UNODC, through the satellite-based Illicit Crop 
Monitoring System (SIMCI), carries out an annual census to determine 
illicit crop cultivation in Colombia in addition to six other drug 
source countries.  The GOC, which provides financing to SIMCI to 
fund the cultivation study and adopts the annual SIMCI cultivation 
figures as the official GOC number, requested to renegotiate the 
agreement following UNODC's announcement in mid-2008 that coca 
cultivation increased by 27 percent in 2007 compared to 2006.  The 
GOC, citing record eradication figures for 2007 and difficulty in 
finding coca compared to past years expressed surprise at the report 
and alleged that changes in methodology resulted in the increase. 
The GOC also threatened to break with SIMCI on the monitoring of 
coca cultivation (See Reftel) if SIMCI did not change. 
 
3. In a November 2008 meeting of Colombia's National Drug Council, 
an inter-institutional technical committee created to study 
alternatives to SIMCI's cultivation census recommended that the GOC 
renegotiate its coca monitoring agreement with SIMCI instead of 
taking over the costly and complicated annual coca monitoring 
exercise.  During the negotiations the GOC insisted on adding 
provisions to increase the frequency of coca monitoring activities 
and improve the verification of SIMCI's annual cultivation number. 
 
4. According to the terms of the agreement, SIMCI will conduct the 
annual cultivation census using the same methodology as in previous 
years - using a mix of high and low resolution satellite imagery, 
overflights to sample cultivation in key coca growing regions and 
making adjustments to account for eradication.  The GOC asked SIMCI 
to respond to whether methodological changes in the 2007 census 
resulted in the reported 27 percent increase in coca cultivation. 
Colombia-based SIMCI officials acknowledged that the use of manual 
eradication data resulted in a several thousand hectare increase in 
the 2007 cultivation number but denied that using more high 
resolution satellite imagery compared to previous years represented 
a methodological change.  Embassy Comment: While the he use of 
higher resolution imagery may not be a change in methodology in a 
technical sense, it would almost for sure lead to an increase in the 
amount of coca observed. 
 
5. The most important change to the agreement is that SIMCI agrees 
to conduct two coca monitoring exercises.  The first will be on 
April 30 and the second on August 30 to supplement the final 
December 31 cultivation census.  The inter-censual surveys will 
utilize a combination of high-resolution satellite and aerial 
imagery to sample cultivation in select coca growing regions and 
provide snapshots of cultivation trends throughout the year.  The 
GOC hopes that more frequent cultivation information will permit 
policy makers to adjust eradication activities during the year and 
keep the GOC informed of any increases in cultivation at the end of 
the year. 
 
6. Other changes include using aerial imagery for the first time and 
increasing the use of overflights to groundtruth cultivation 
estimates made from satellite imagery.  SIMCI also agreed to take 
measures to integrate its geo-referenced cultivation data with 
 
software programs used by the GOC's Geographic Institute (IGAC in 
Spanish) and update coca leaf yield studies for all coca growing 
regions in Colombia every three years. 
 
7. The GOC and SIMCI agreed to increase funding to cover the costs 
of additional overflights, satellite and aerial imagery and other 
activities.  The new SIMCI budget is USD 1.38 million and represents 
an approximate two-fold increase compared to previous years.  The 
budget includes USD 883,700 for the annual census, USD 442,300 for 
the two inter-censual cultivation surveys and USD 54,000 to update 
yield studies.  The GOC and SIMCI will continue to share the costs 
for the annual census and inter-censual surveys while the GOC will 
fund the overflights.  For the first time, the budget includes line 
items to cover flight costs which previously had been absorbed by 
the antinarcotics police largely funded by the Narcotics Affairs 
Section (NAS). 
 
8. (SBU) COMMENT:  Since the GOC publicly stated that it would 
consider breaking with SIMCI, the new agreement to monitor coca 
cultivation reflects the GOC's inability to devise and fund an 
alternative to SIMCI's cultivation work.  It is unclear if the new 
agreement will result in better cultivation numbers from SIMCI or 
reflect the progress the GOC believes it has made in eradication.  A 
renegotiated agreement satisfies the GOC's core demands that 
controls be added to verify the cultivation numbers and provide more 
frequent cultivation readouts so the GOC will not be caught off 
guard at the end of the year.  The Embassy will seek out ways in 
which we can cooperate with the GOC and SIMCI on this issue.  END 
COMMENT. 
 
BROWNFIELD