US embassy cable - 04BOGOTA3943

UNCLAS SECTION 01 OF 04 BOGOTA 003943 
 
SIPDIS 
 
SENSITIVE 
 
STATE PLEASE PASS TO PRM AND USAID/LAC/SAM 
 
E.O. 12958: N/A 
TAGS: PHUM, PREF, PREL, SOCI, CO 
SUBJECT: PRM'S A/S DEWEY'S VISIT TO COLOMBIA 
 
 
This message is sensitive but unclassified.  Please protect 
accordingly. 
 
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Summary 
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1. (U) PRM Bureau's Assistant Secretary Gene Dewey visited 
Colombia March 7-10.  Most interlocutors agreed that there 
has been a significant reduction in the number of internally 
displaced persons since the Uribe Administration took office 
18 months ago.  Many cautioned, however, that this positive 
trend could be reversed if paramilitary demobilization 
negotiations break down or guerrillas launch major 
offensives.  A/S Dewey encouraged the GOC and other donors to 
consider holding a consultative donors meeting with the World 
Bank or Inter-American Development Bank (IADB) to attract 
more multi-lateral assistance for social investment.  He said 
PRM would try to maintain its current level of assistance to 
Colombia and work with the GOC to develop more emergency 
employment programs.  A/S Dewey's meeting with PRM partner 
organizations is discussed septel.  End Summary. 
 
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Project Site Visits 
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2. (U) A/S Dewey, accompanied by representatives from 
Community-Habitat-Finance (CHF), "Minutos de Dios" (CHF's 
implementing partner), the World Food Program (WFP), and the 
UN High Commissioner for Refugees (UNHCR), visited several 
sites outside the city of Cartagena, Bolivar department.  In 
La Rosera, A/S Dewey visited a school-feeding program 
organized by the WFP in a temporary, CHF-constructed school 
building.  Last year, local parents constructed two 
schoolrooms with CHF resources. 
 
3. (U) A/S Dewey visited "Minutos de Dios," an NGO affiliated 
with the Roman Catholic Church, where he met with recently 
displaced persons.  None expressed any desire to return to 
their homes.  In Maria La Baja, where the CHF is funding a 
self-help construction program for 79 displaced families on 
land donated by the local Catholic priest, A/S Dewey met with 
community leaders and a representative of the mayor's office. 
 The internally displaced persons (IDPs) are building their 
own houses, planting gardens and trees, planning bridge 
construction, and making sanitary improvements.  The CHF 
discourages rural IDPs from fleeing to urban centers, and 
instead to tries to channel them to safe rural communities 
where they can better use their skills.  The Governor's 
office has already offered CHF a number of additional plots 
outside Cartagena to replicate this model IDP community. 
 
4. (U) In Turbaco, A/S Dewey visited a cooperative childcare 
facility funded by UNHCR and supported by the League of 
Displaced Women.  IDP women manage the center, where they 
care for children of IDPs who are working or receiving 
training.  After eight years of operation, the center is 
finally able to pay its caregivers and recently received a 
deed to its property.  A/S Dewey also visited Lomo de Peye, 
in the La Maria hills above Cartagena, where he saw a school 
constructed by CHF and a feeding program supported by WFP. 
 
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Dewey meets UNHCR Reps from Colombia, Venezuela, and Panama 
--------------------------------------------- -------------- 
 
5. (SBU) A/S Dewey met with UNHCR/Colombia representative 
Francisco Galindo, UNHCR/ROVEN (Regional Office/Venezuela) 
representative Virginia Trimarco, and UNHCR/Panama 
representative Gonzalo Vargas Llosa.  All three 
representatives noted the importance of USG financial and 
political support for UNHCR programs in Colombia and 
neighboring countries, but stressed the need for diplomatic 
support from the international community.  They added that 
PRM RefCoord's presence in the region has been key in helping 
their work. 
 
6. (SBU) Galindo noted that UNHCR began its Colombia 
operations in July 1998 with the opening of its Bogota office 
at the GOC's invitation.  He said its relationship with the 
GOC's Social Solidarity Network ("Red de Solidaridad Social," 
or RSS) is very good, both in Bogota and outlying regions. 
Galindo agreed that the director of the RSS has good 
intentions, is open to ideas, and is close to President 
Uribe, but added that he lacks the necessary resources and 
cooperation from other GOC agencies to effectively address 
the needs of IDPs.  The GOC needs to find a comprehensive 
approach that balances security and humanitarian concerns. 
He highlighted that increased security has not created 
additional problems, as in other countries.  The Colombian 
military does not threaten refugees; the problem remains the 
terrorists.  Galindo also noted that although forced 
displacements have fallen, there is no guarantee that this 
trend will continue.  UNHCR made a plea that USG funds for 
UNHCR be earmarked for Colombia to make sure they reach the 
Bogota office.  For 2004, Geneva has allocated USD 5.6 
million for Colombia operations.  (UNHCR Colombia requested 
USD 7.2 million).  In 2003, the Colombia program received USD 
6.0 million. 
 
7. (SBU) Trimarco noted that Colombia's problems spill over 
its borders.  Displaced Colombians often cross into 
neighboring countries, settling in poor border communities or 
nearby urban centers, where they face discrimination and 
suffer from limited access to basic services.  UNHCR 
Venezuela has seen its workload increase 600 percent since 
2001.  UNHCR's assistance has included legal aid 
(registration and documentation), humanitarian assistance, 
information campaigns, and protection networks. 
 
8. (SBU) Vargas said there are less than 800 recognized 
refugees and 600 Colombians under temporary protection in 
Panama.  UNHCR helps this community with legal advice for 
asylum seekers, aid for refugees, temporary protection in the 
border region, and quick impact infrastructure projects. 
Panama broke off from the UNHCR/ROVEN office in April 2003 
and opened a separate office in October for six months (an 
extension agreement may be signed early next month).  Over 
the last five months, there has been a small improvement in 
the GOP's attitude towards UNHCR and a greater willingness to 
abide by international standards regarding Colombian 
refugees.  The GOP's decision to strengthen its National 
Refugee Office (ONPAR) has also been positive.  However, the 
overall situation regarding asylum in Panama remains poor, 
and Panama continues to be preoccupied by security concerns 
about Colombians crossing the border.  The GOP's national 
refugee legislation is also below international standards. 
Moreover, its Refugee Eligibility Commission met recently for 
the first time since 2002 and rejected seven of nine asylum 
applications.  Other challenges include improving the legal 
refugee framework and shifting emphasis from return to 
reception and stabilization at the border. 
 
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Meeting with ICRC 
----------------- 
 
9. (SBU) A/S Dewey lunched with the ICRC's Chief Delegate in 
Colombia, Juan Pedro Schaerer, and his chief of protection, 
Max Frurrer.  ICRC has a significant presence in Colombia, 
with approximately 60 expatriate employees, and constitutes 
the ICRC's largest program of direct assistance to IDPs. 
Schaerer briefed Dewey on coordination within the Red Cross 
movement (ICRC, the Federation of Red Cross and Red Crescent 
Societies) and the five foreign national societies operating 
in Colombia, including the American Red Cross.  ICRC's 
cooperation with the UN, other humanitarian actors, and the 
GOC is excellent. 
 
10. (SBU) The ICRC provided an excellent analysis of 
Colombia's internal conflict.  It confirmed that mass 
displacements caused by illegal armed groups fell in 2003. 
In 2002, ICRC assisted approximately 179,000 IDPs while in 
2003 the number dropped below 120,000.  Schaerer attributes 
this drop to demobilization negotiations between the GOC and 
paramilitary groups.  He said levels of individual 
displacement appear unchanged.  Individual displacement, 
which is hard to track, is normally the result of direct 
threats to individual families, who are more reluctant to 
return home. 
 
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Meeting with IOM 
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11. (SBU) A/S Dewey met with staff from the International 
Organization for Migration (IOM), which provides logistical 
support for the P-1 Refugee Referral program as well as 
implements IDP assistance programs with USAID funding.  In 
FY03 197 individuals were accepted into the US Resettlement 
Program (USRP).  In the first six months of FY04, over 200 
individuals have been accepted.  FY04's goal is 500 
individuals.  A/S Dewey noted that PRM is under significant 
pressure from Congress to increase the number of refugee 
applicants, and he would like to see more coming out of the 
Americas.  The potential for expanding the USRP into 
Venezuela was discussed.  The GOV established a Refugee 
Eligibility Commission late last summer and the Commission 
recently approved its first 47 cases.  It was agreed that 
before expanding the USRP into Venezuela, the GOV's 
Commission must adjudicate more cases on a regular basis.  If 
this happens, the USRP program could expand into Venezuela as 
early as mid-year, pending US Embassy Caracas concurrence. 
 
12. (SBU) IOM is USAID's largest IDP partner implementing mid 
and long-term assistance programs.  One area in which IOM has 
had particular success is helping IDPs to their original 
communities in coordination with the GOC's RSS.  IOM is 
extremely cautious in determining which communities are 
viable for returnees.  All of IOM's five pilot projects, 
which returned hundreds of families to their communities, 
have been successful.  IOM and CHF have worked together to 
assist over 120 individuals who were repatriated from Panama 
to northwestern Colombia in the past four months, providing 
housing, sanitation, and productive projects for families 
that returned to the town of Jurado, Choco department. 
 
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Meeting with European & Japanese Ambassadors 
-------------------------------------------- 
 
13. (U) A/S Dewey met with European and Japanese ambassadors 
and charges d'affaires at the Ambassador's residence.  Dutch 
Ambassador Teunis Kamper noted that the Uribe government has 
been the first to acknowledge the humanitarian crisis in 
Colombia.  He raised the issue of the GOC's wariness of a UN 
Consolidated Appeal.  The GOC was concerned that this would 
place Colombia in the same category as the Sudan and Angola. 
Kamper said the number of IDPs run from 2-3 million, but 
reliable statistics are hard to come by.  There are, however, 
no organized refugee camps.  He agreed that mass 
displacements are diminishing, but claimed that many 
communities are prevented from fleeing by illegal armed 
groups.  The paramilitaries are responsible for the largest 
number of human rights and international humanitarian law 
violations.  Kamper stressed that President Uribe deserved 
international support, and that the London declaration was an 
excellent vehicle to increase international cooperation. 
 
14. (U) The European Community (EC) Ambassador noted European 
support in the social sector as well as in justice and 
institutional strengthening.  They work very well with USAID 
and probably are doing as much as they can for Colombia. 
Swiss Ambassador said Switzerland has made important 
humanitarian aid contributions, including a tripling of its 
support for the WFP during 2002-2004.  Clashes among illegal 
armed groups and government security forces cause most 
displacements.  The Japanese ambassador said Japan sees more 
positive trends, thanks to Uribe.  Japan is extending 
assistance through both bilateral and multilateral channels, 
including funds for libraries and USD 8 million to 
multilateral organizations.  Sweden believes humanitarian 
problems are often best dealt with by a regional approach, 
and have recently funded a study of border problems through 
UNHCR.  Unfortunately, UNHCR/Geneva is not supportive of the 
report's results and is withholding its publication. 
 
15. (U) A/S Dewey noted the importance of a comprehensive 
approach and the need to deal with security dimensions and 
humanitarian issues together.  He was aware of the GOC's 
resistance to a Consolidated Appeal, and suggested that the 
World Bank or Inter-American Development Bank (IADB) could be 
alternate mechanisms. 
 
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Meeting with the GOC's Social Solidarity Network, RSS 
--------------------------------------------- -------- 
 
16. (U) Luis Alfonso Hoyos, Executive Director of the RSS, 
said the Uribe Administration has three priorities: (1) 
reestablishing a state presence throughout Colombia; (2) 
reforming the government; and (3) reactivating the economy. 
The GOC has accomplished much in its first 18 months, but 
still has much unfinished business.  He cited specific 
accomplishments.  For example, two years ago there were two 
million Colombian children who could not attend school 
because there was no space for them; the GOC has created 1.5 
million new places for school children.  In 1990, only 25 
percent of the population had access to the public health 
system.  Today, there has been a 60 percent increase in 
access, although 20 million people remain outside the state's 
health system.  The GOC plans to add an addition 8 million 
individuals to the health system's roles over the next 30 
months. 
 
17. (U) After a steady increase of displaced persons 
averaging over 300,00 per year, the trend dropped by 53 
percent in 2003.  Hoyos attributed the decline to increased 
public security, both military and police.  At the beginning 
of the Uribe Administration, 158 municipalities (equivalent 
to U.S. counties) lacked a police presence.  Today, every 
municipality in the country has a police force.  The recent 
demobilization negotiations with the paramilitaries have 
reduced the number of confrontations between paramilitary and 
guerrilla forces, which was a primary cause of displacement. 
 
18. (U) Hoyos would like to see more land recovered for 
housing, improve schools and health centers, maintain a 
viable emergency response to displacement, and concentrate on 
the prevention.  The GOC is also focusing on increasing 
government presence in communities previously controlled by 
paramilitaries and guerrillas.  Education, health services, 
and employment will continue to grow as long as the economy 
remains strong.  Hoyos welcomed A/S Dewey's suggestion to 
establish short-term emergency employment for IDPs. 
 
19. (U) A/S Dewey congratulated Hoyos and the GOC on their 
accomplishments over the past 18 months.  He cautioned that 
one of the worse errors that donors commit when they see 
improvements in countries in crisis is that they begin to 
reduce their levels of assistance.  He hoped that PRM will 
maintain current levels of assistance to Colombia, and he 
said he will encourage other donors to do the same. 
 
20. (U) A/S Dewey's joint meeting with PRM partner 
organizations is discussed septel. 
 
WOOD