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Viewing cable 09BOGOTA3526, Researchers Assess Post-FARC Consolidation, Intelligentsia

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Reference ID Created Released Classification Origin
09BOGOTA3526 2009-11-05 17:16 2011-08-25 00:00 UNCLASSIFIED//FOR OFFICIAL USE ONLY Embassy Bogota
VZCZCXYZ0000
RR RUEHWEB

DE RUEHBO #3526/01 3091717
ZNR UUUUU ZZH
R 051716Z NOV 09
FM AMEMBASSY BOGOTA
TO RUEHC/SECSTATE WASHDC 0707
INFO RHEHAAA/NATIONAL SECURITY COUNCIL WASHINGTON DC
RHMFIUU/CDR USSOUTHCOM MIAMI FL
RHMFIUU/DEPT OF JUSTICE WASHINGTON DC
RUEAIIA/CIA WASHINGTON DC
RUEHBO/AMEMBASSY BOGOTA
RUEHBR/AMEMBASSY BRASILIA 0148
RUEHCV/AMEMBASSY CARACAS 0478
RUEHPE/AMEMBASSY LIMA
RUEHQT/AMEMBASSY QUITO
RUEHZP/AMEMBASSY PANAMA
RUEKJCS/SECDEF WASHINGTON DC
UNCLAS BOGOTA 003526 
 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: PGOV PREL PREF PTER PHUM EAID SNAR CO
SUBJECT: Researchers Assess Post-FARC Consolidation, Intelligentsia 
Skeptical 
 
REF: BOGOTA 3262 
 
Summary 
 
------- 
 
 
 
1.  (U) On October 28, think tank New Rainbow Corporation and the 
Dutch Embassy held a public forum on the Integral Plan for the 
Consolidation of La Macarena (PCIM).  La Macarena lacked a state 
presence for years and was the home base region of the 
Revolutionary Armed Forces of Colombia (FARC).  Researcher 
Alejandro Reyes presented his findings that land issues 
--especially titling so that the small-scale farmers' property 
rights are protected-- and a social pact to strengthen institutions 
are vital to consolidation.  The GOC lead coordinator for the PCIM 
defended the consolidation concept from skeptical civil society 
participants who clearly held an image of a militarized National 
Consolidation Plan (PNC).  The GOC has identified the need for 
public outreach but will have a difficult time depoliticizing the 
message during an election season.  The U.S. Embassy's Colombia 
Strategic Development Initiative (CSDI) working group, through 
USAID, is actively working to explore pilot projects to address 
land titling in consolidation zones.  End Summary. 
 
 
 
2. (U) Respected think tank New Rainbow Corporation and the Dutch 
Embassy co-sponsored an open forum to discuss the PCIM on October 
28.  The forum centered on the presentation of a policy paper 
authored by researchers Alejandro Reyes and Gustavo Duncan.  The 
paper evaluates the PCIM's strategic results and offers 
recommendations to improve the PCIM and the national consolidation 
strategy in general.  In attendance were academics, journalists, 
GOC officials, and the international community. 
 
 
 
Property Rights for Local Community Essential During Transition 
 
--------------------------------------------- ------------------ 
 
 
 
3. (U) Reyes told the forum that resolving land issues is key to 
consolidation.  The absence of land titles for small-scale farmers 
creates a dynamic of continuous settler migration to areas outside 
of state control, thus expanding the conflict.  These "colonists" 
move to areas lacking state presence where coca cultivation is 
their most lucrative productive option.  Reyes added that rural 
farmers without formal ownership of land cultivate illicit crops 
for lack of access to legitimate credit and because the threat of 
land confiscation by the state means little. 
 
 
 
4. (U) Lack of titles also exposes communities to exploitation by 
large land owners and outside investors when consolidation begins, 
according to Reyes.  In conflict zones, illegal armed groups 
discourage land acquisition but paradoxically, as citizens benefit 
from improved security and the establishment of the state, they are 
also economically vulnerable.  After coca crops are eradicated, the 
farmers, due to their loss of illicit income, may be compelled to 
sell their land, sometimes at one fifth of its actual value. 
 
 
 
5. (U) Reyes argued that the GOC's agrarian policy favors large 
land owners and agricultural enterprises over smaller producers and 
that the Ministry of Agriculture has approached land titling in 
conflict zones with antipathy.  He noted that the Minister of 
Agriculture has publicly alleged that farmers in the Macarena have 
guerrilla links and that granting titles would benefit the FARC. 
Reyes recommended that property rights for ordinary citizens be a 
top priority for government interventions in consolidation zones. 
 
 
Social Pact Necessary to Strengthen Institutions 
 
--------------------------------------------- --- 
 
 
 
6. (U) In the consolidation process, the community interacts 
directly with assistance programs supported by the Office of the 
President.  Reyes explained that although this has weakened the 
role of traditional community organizations, municipal and 
departmental administrations, and other government institutions, it 
is necessary given the administrative and budgetary weakness of 
these entities and their history of cooption by illegal armed 
groups.  Reyes concludes what is needed is a social pact between 
the national government and the local community to generate 
political will and energy to strengthen institutions as part of the 
consolidation process.  This political energy needs to bring the 
entire government into the process, because Reyes says, 
"consolidation can't just be a small group of 'Quixotes' in a 
regional coordination center." 
 
 
 
GOC Explains Structural Difficulties and the Role of Police 
 
--------------------------------------------- -------------- 
 
 
 
7. (U) Alvaro Balcazar, the GOC lead coordinator of the PCIM, told 
the forum that it is difficult to extend the state presence of a 
democracy because democratic budgeting and decision-making 
structures are cumbersome.  Balcazar added that he and his 
officials have no real authority and must make progress by 
influencing and persuading local actors such as municipal 
administrations.  Conversely, municipal governments are the 
legitimate authorities but do not have adequate budgets and 
administrative capacity.  As far as total social investment in the 
PCIM, Balcazar emphasized the GOC and local governments have 
provided the bulk of financing --approximately $162 million of $180 
million total.  International community support (about $18 million) 
has provided the rapid and flexible spending necessary to bridge 
gaps between security advances and GOC intervention.  Balcazar 
assured the group that this investment has made a significant 
impact in the PCIM communities. 
 
 
 
8.  (U) Balcazar noted complications when transitioning security 
responsibilities from the military to police.  In consolidation 
zones, there is a natural tension between the rule of law and 
citizen safety.  Police, when taking over a zone, must abide by 
judicial standards for evidence and prosecution when addressing 
threats to the citizenry, which at times has produced lack of 
confidence in the police for perceived ineffectiveness when the 
accused are released for failure to completely comply with legal 
requirements.  However, Balcazar said progress is being made.  In 
Vista Hermosa for example, the military gave way to tactical police 
units with assault rifles, who were then replaced by traditional 
police with pistols. 
 
 
 
Civil Society Confronts GOC Official for Perceived PNC 
Militarization 
 
--------------------------------------------- ---------------------- 
-- 
 
 
 
9. (U) Academics and journalists vehemently confronted Balcazar 
about consolidation, which in their view was clearly a military 
strategy.  One journalist said she believes that the Ministry of 
Defense is the center and lead of the PNC and doubted that the 
military would ever leave consolidation zones, including areas that 
have already been turned over to the police.  She also questioned 
 
 
whether citizens in consolidation zones had any political 
liberties.  One academic railed against consolidation as a military 
imposition of rightist ideology on rural citizens.  He even 
assailed the GOC National Parks representatives for wearing 
"military uniforms and not dressing as decent civilians."  (Note: 
Parks personnel wear matching khaki pants and blue denim shirts 
with a park logo patch. End Note.)  Another participant claimed 
that any civil society groups that have become allies of the state 
in consolidation zones were either bribed or infiltrated by state 
agents, and called the PNC the "National Bribery Plan." 
 
 
 
Comment 
 
------- 
 
 
 
10.  (SBU) Despite the PNC's whole-of-government approach and 
emphasis on social development which would seemingly sell itself, 
the GOC has not done well explaining the plan to the public.  Nor 
have they been able to articulate a clear definition of what 
"consolidation" means in the context of the PNC.  This has led to 
misconceptions and distrust among Colombia's intelligentsia.  New 
civilian PNC lead Diego Molano has recognized the problem and has 
prioritized the development of a public outreach campaign.  This 
will be difficult during the election season, when any outreach 
from the presidency will be perceived as political campaigning. 
Reyes's identification of land issues as a top priority is 
congruent with thinking in the Embassy's Colombia Strategic 
Development Initiative (CSDI) working group.  The CSDI is actively 
exploring USAID-led pilot projects and initiatives to improve land 
titling and alternative development in consolidation zones.  The 
Ministry of Agriculture, a key agency in land titling, has been a 
reluctant interlocutor and generally absent from the PNC 
interagency coordinating process.  End Comment. 
BROWNFIELD