OTICIA N THE S LATIN AMERICAN PROGRAM WOODROW WILSON CENTER Winter 2000 U.S. Policy and the Peace Process in Colombia s the United States accelerated plans to boost military and economic aid to Colombia, the Latin American AProgram’s Project on Comparative Peace Processes held a major day-long conference on September 28, 1999, to assess U.S. policy and the status of the peace dialogue between Colombian insurgents and the government of President Andrés Pastrana. Rep. Benjamin A. Gilman, chair of the House International Rela- tions Committee, stated that what happens in Colombia is im- portant to virtually every community in the United States, given Colombia’s central role in cocaine and heroin production and trafficking. He criticized the Clinton administration for its failure to provide enough helicopters to Colombia’s anti-drug police to fight “narco-guerrillas,” and expressed skepticism that rebels of the Fuerzas Armadas Revolucionarias de Colombia (FARC) had a sincere interest in negotiating peace. He called for increased training of the Colombian military, to improve profes- sionalism and respect for human rights. From left to right: Rep. Benjamin A. Gilman, Phillip Chicola, and Rep. William Delahunt. Rep. William Delahunt (D-MA), also of the International Relations Com- mittee, cautioned that peace in Colombia will take substantial time and NSIDE a sustained commitment by the United States, and emphasized the need I ... for patience as well as that the conflict had longstanding social roots. He International Security and the advocated a multi-faceted approach to peace, including aid to restore the Amazon River Basin economy, support for civil society, crop substitution for peasant farmers Venezuela’s National Security and infrastructure development. He said that increased military aid for Agenda and Regional Relations the army should be predicated on continued improvements in human Mexico at the Millennium rights, and called for the military to aggressively engage paramilitary Latin American Military groups that commit the bulk of abuses. Views of Democracy Phillip Chicola, director of Andean affairs at the State Department, em- Insurgency in Colombia phasized U.S. interest in a strong, united, and democratic Colombia, The Pinochet Case and capable of reducing the scope of the drug trade and seeking an end to the International Law armed conflict. He expressed strong support for the Pastrana govern- Paths to Power: The Strategies ment and Plan Colombia, a multi-faceted strategy to address counter- of Intermediate States in the narcotics, economic recovery, peace, and social development issues. International System Chicola saw the peace process as an important opportunity; he acknowl- Recent Publications edged the impact of Colombia’s conflict on neighboring countries, but Upcoming Events argued that it was smaller than some have alleged. Caryn Hollis, principal director for inter-American affairs at the Defense Department, argued that U.S. interests in Colombia went beyond drug trafficking, and ...and more emphasized that, contrary to heated rhetoric from the region, the United 1300 Pennsylvania Avenue, NW Washington, DC 20004-3027 TICI NO AS States had no intentions of intervening in the Colombian throughout the country. He challenged the notion that the conflict. She argued that the armed forces required U.S. way to end the war was by attacking narcotrafficking, support, and that the United States would “help them help thereby depriving armed actors of economic resources. themselves” to combat drug trafficking and insurgent Rather, he argued, negotiating peace was a prerequisite for violence. She said that structural changes in the military a stable anti-drug policy, but only if accompanied by a justice system constituted a major achievement, and em- concerted plan of alternative development. phasized human rights training as a key component of professionalization. Jan Egeland, former deputy foreign minister of Norway and an advisor to the Pastrana government on the peace Colombian scholars and representatives of civil society process, underscored factors in the peace process that were took issue with many of the perspectives offered by U.S. unique to Colombia: 1) the level of financial resources policymakers. Alfredo Rangel, former security adviser in available to “conflict entrepreneurs”; 2) the high level of the government of President César Gaviria, said that the criminal violence relative to political violence; 3) the lim- armed forces faced a dual task: to convince the guerrillas ited involvement of the international community; and 4) that military victory was impossible, and to take punitive the exceptional political courage of President Pastrana. action against paramilitary groups that also undermined Egeland emphasized that, while the will to make peace the state’s legitimacy and its monopoly on force. Despite must come from within Colombia, a peace process was too tensions between the military and the civilian political difficult without the active, long-term support of the inter- leadership, Rangel said, the armed forces had respected national community. Hans Blumenthal of the Friedrich civilian authority in the peace process. Alejo Vargas, vice- Ebert Foundation’s Bogotá office said that Colombian rector of the National University, argued that the peace diplomacy had focused almost exclusively on the longstanding, structural roots of the insurgency were to be United States. It was necessary to engage the European found in development models that had excluded impor- Union politically and not just in search of economic re- tant groups from the benefits of growth. The extent of drug sources, he said. cultivation in the country, he said, reflected the lack of support for peasant farmers and the failure to undertake a In closing, Colombian ambassador to the United States serious agrarian reform in the last half-century. Mauricio Luis Alberto Moreno described civil society as central to the Romero of the Instituto de Estudios Políticos y Relaciones prospects for peace. He said that while many had criti- Internacionales of the National University described the cized unilateral gestures by the Pastrana government in role of powerful regional elites and groups linked to the peace talks, support for the peace process remained narcotrafficking in the origins and development of high. He said Plan Colombia made the central point that paramilitarism. A “functional alliance” emerged, he said, Colombia’s problems went beyond drugs, and that weak- between these groups and the armed forces, which had as ening narcotrafficking was not just a military issue, but a common enemy the guerrillas as well as political activists part of a comprehensive strategy to create alternative of the left. development opportunities, revive the economy, and strengthen the capacity of the state. Meanwhile, Ana Teresa Bernal, a member of the govern- ment-sponsored National Peace Council, described the growing influence of civil society in the peace process. What began in 1993 as a protest of the Gaviria government’s “integral war” had blossomed into a peace movement capable of mobilizing millions of Colombians. The signing of a peace accord was only part of a wider effort to overcome the causes of violent polarization and construct alternative forms of conflict resolution, she said. Former From left to right: foreign minister and National Conciliation Council mem- Michael Van Dusen, ber Augusto Ramírez Ocampo argued for changing the “cor- Deputy Director, relation of forces” in the broadest sense, not only militarily Woodrow Wilson Center, but in terms of extending state services and support and Caryn Hollis. 2 TICI NO AS Latin American Military International Security and the Views of Democracy Amazon River Basin In a December 6, 1999, seminar on “Bridging the Con- The Peace and Security in the Americas (P&SA) project held ceptual Gap: Latin American Military Views of Democ- a workshop at the University of Campinas, Brazil, on racy, Planning, and Policy” Public Policy Scholar J. September 13-14, on international security and the Ama- Samuel Fitch explored characteristic views of democracy zon River basin. The workshop gathered military and and the policy process that contribute to military disillu- government officials from Brazil, Venezuela, Colombia, sionment with current Latin American democracies. and Peru, along with representatives from non-govern- mental organizations (NGOs), the World Bank, and The first “conceptual gap” between civilians and mem- scholars of Amazonian affairs to discuss the changing bers of the armed forces involves the definition of de- international security agenda in the region and to ex- mocracy itself. For reformist or populist militaries, gov- plore possibilities for cooperative multilateral responses. ernments in a democracy should serve the people, and in particular, the interests of the poor majority. This sub- Brazilian participants emphasized the vastness and com- stantive or outcome-based definition contrasts with the plexity of the Amazon Basin, which encompasses forty procedural definition embraced by political scientists, em- percent of South American land and includes twenty per- phasizing free elections, open debate, and the rule of law. cent of the world’s fresh water and plant diversity re- sources. Because of the uniqueness of these resources, A second conceptual gap concerns the nature of politics. their management is often described as an issue of glo- For the military, policymaking and planning