Mexico's Disappeared
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HUMAN RIGHTS MEXICO’S DISAPPEARED The Enduring Cost of a Crisis Ignored WATCH Mexico’s Disappeared The Enduring Cost of a Crisis Ignored Copyright © 2013 Human Rights Watch All rights reserved. Printed in the United States of America ISBN: 1-56432-987-9 Cover design by Rafael Jimenez Human Rights Watch is dedicated to protecting the human rights of people around the world. We stand with victims and activists to prevent discrimination, to uphold political freedom, to protect people from inhumane conduct in wartime, and to bring offenders to justice. We investigate and expose human rights violations and hold abusers accountable. We challenge governments and those who hold power to end abusive practices and respect international human rights law. We enlist the public and the international community to support the cause of human rights for all. Human Rights Watch is an international organization with staff in more than 40 countries, and offices in Amsterdam, Beirut, Berlin, Brussels, Chicago, Geneva, Goma, Johannesburg, London, Los Angeles, Moscow, Nairobi, New York, Paris, San Francisco, Tokyo, Toronto, Tunis, Washington DC, and Zurich. For more information, please visit our website: http://www.hrw.org FEBRUARY 2013 ISBN: 1-56432-987-9 Mexico’s Disappeared The Enduring Cost of a Crisis Ignored Executive Summary ............................................................................................................ 1 Recommendations ............................................................................................................. 11 Methodology .....................................................................................................................14 Enforced Disappearances .................................................................................................. 17 Enforced Disappearances by the Navy ..................................................................................... 18 Enforced Disappearances by Local Police ............................................................................... 26 Enforced Disappearances by Federal Police ........................................................................... 28 Complicity between Security Forces and Organized Crime in Disappearances ......................... 29 Investigative Failures ....................................................................................................... 34 Failure by Authorities to Intervene During and Immediately Following Abductions ................... 34 Failure to Immediately Search for Victims or Open Investigations ............................................ 35 Blaming the Victim ................................................................................................................ 40 Unfounded Presumptions about Victim’s Whereabouts ........................................................... 42 Failure to Promptly Track the Victim’s Cell Phone, Bank Accounts, or Other Immediate Traces ......... 43 Negligence, Delays, Errors, and Fabrications .......................................................................... 46 How Failure to Investigate Contributes Directly to More Disappearances .................................. 53 Prosecutorial Abdication of Responsibility, Transfers, and Lack of Coordination ...................... 57 Relying on Victims’ Families to Investigate ............................................................................. 62 Corrupt Investigators and the Loss of Families’ Trust .............................................................. 66 Impact on Families of Disappeared Persons ...................................................................... 69 Relatives of the Disappeared: the Right to Truth and the Open-Ended Anguish of Not Knowing ...... 69 Emotional and Psychological Impact ....................................................................................... 71 Psychological Impact on Children ........................................................................................... 76 Threats, Harassment, and Attacks Targeting Families of the Disappeared ................................ 78 Economic Impact .................................................................................................................... 83 PROVÍCTIMA’s Shortcomings in Assisting Families ................................................................. 89 A Promising New Approach: the Case of Nuevo León ......................................................... 93 “Working Meetings” between Victims’ Families, Human Rights Defenders, and the State Prosecutor’s Office ................................................................................................................. 95 Overcoming Distrust and Strengthening Investigative Practices .............................................. 96 Institutional Reforms ............................................................................................................. 99 Results from Better Investigations ........................................................................................ 101 Remaining Challenges and Shortcomings ............................................................................. 106 An Alternative Approach: the Case of Coahuila ...................................................................... 108 Failure to Prosecute Enforced Disappearances and Other Serious Abuses Previously Documented by Human Rights Watch .............................................................................. 111 Failure of the Federal Government to Develop National Databases of the Disappeared and Unidentified Remains ...................................................................................................... 117 The Importance of Registries of the Disappeared and Unidentified Bodies to Searches and Investigations ........................................................................................................................ 117 Flaws and Delays in Efforts by the Calderón Government to Develop National Registries ........ 119 Enforced Disappearances and Mexico’s Obligations under International Law ................... 125 The Crime of Enforced Disappearance ................................................................................... 125 Definition of “Disappearances” ............................................................................................ 127 Obligations to Investigate ..................................................................................................... 128 Reparations for Victims ......................................................................................................... 129 Inadequate Domestic Legislation to Prevent and Punish Enforced Disappearances .......... 131 Misuse of the Military Justice System to Prosecute Enforced Disappearances .................. 134 Downgrading the Crime of Enforced Disappearance and Lenient Sentences by Military Prosecutors and Judges ........................................................................................................ 138 Acknowledgments ........................................................................................................... 143 Annex 1: Cases of Disappearances Documented by Human Rights Watch ........................ 146 Methodology for List of Disappearances ............................................................................... 146 Annex 2: Letter from Human Rights Watch to Alejandro Poiré Romero, Former Secretary of the Interior, March 1, 2012 ............................................................................................. 166 Map of States Where Human Rights Watch Conducted Research I Executive Summary When Enrique Peña Nieto took office on December 1, 2012, he inherited a country reeling from an epidemic of drug violence that had taken the lives of more than 60,000 Mexicans in six years. The “war on drugs” launched by his predecessor, Felipe Calderón, had produced disastrous results. Not only had it failed to rein in the country’s powerful criminal groups, but it had led to a dramatic increase in grave human rights violations committed by the security forces sent to confront them. Rather than strengthening public security, these abuses had exacerbated a climate of violence, lawlessness, and fear. Throughout most of his presidency, Calderón denied security forces had committed any abuses, despite mounting evidence to the contrary. Only in his final year did he acknowledge that human rights violations had occurred, and take a handful of positive— though very limited—steps to curb some abusive practices. However, he failed to fulfill his fundamental obligation to ensure that the egregious violations committed by members of the military and police were investigated and the perpetrators brought to justice. That responsibility now falls to President Peña Nieto. And nowhere is it more urgent than in cases where people have been taken against their will and their fate is still unknown. What sets these crimes apart is that, for as long as the fate of the victim remains unknown, they are ongoing. Each day that passes is another that authorities have failed to find victims, and another day that families continue to suffer the anguish of not knowing what happened to a loved one. Human Rights Watch has documented nearly 250 such “disappearances” that have occurred since 2007. In more than 140 of these cases, evidence suggests that these were enforced disappearances—meaning that state agents participated directly in the crime,