A man holds a symbol of the Patriot Party during a political rally in Solola (Jorge Lopez/Courtesy Reuters).
Front-runner Otto Pérez Molina won 36% of the vote in first round of Guatemala’s presidential elections on Sunday, and will face off against second place finisher Manuel Baldizón in the second round in November. Though winning the runoff election will not be easy for either candidate (both have to build coalitions to clinch a second-round victory); far trickier will be facing Guatemala’s long list of challenges, topped by insecurity.
Guatemala’s murder rate has more than doubled in the last twenty years, reaching a high in 2009 when nearly 6,500 people were killed – 17 a day — more than in the war zones of Iraq and Afghanistan. Over the past four years the government of Álvaro Colom has been unable to quell the violence or bring its perpetrators to justice. During the campaign the leading presidential candidates advocated a mano dura, or iron fist security policy, with Pérez Molina as its most forceful proponent (his Patriot Party has a clenched fist as its emblem). He even proposed bringing back the notorious military task forces used against guerrillas in the 1980s and 1990s, this time to take on drug traffickers.
It is unlikely this strategy will work. Guatemala’s military today doesn’t have the capacity to ramp up its public safety functions. As a part of the 1996 peace agreements (ending 36 years of civil war) the military agreed to downsize. The current force stands at 17,000 troops (roughly 60 percent less than 1990 levels). Earlier this year, when the government called a state of siege in the northern province of Alta Verapaz taken hostage by traffickers, the military could only send 600 soldiers in to patrol the area – less than one tenth the size of the Mexican military force sent to fight the La Familia cartel in Michoacán in 2006. After the operation, President Colom himself admitted that the military could not match the drug traffickers’ vast resources, noting “just the weapons seized in Alta Verapaz are more than those of some army brigades.”
But the issue is not just one of capacity. Even if the government found the resources to beef up the military, it shouldn’t be the force to take over the fight against organized crime. If deploying the armed forces in Mexico’s drug war is considered controversial, in Guatemala it is decidedly more complicated. The Guatemalan army enjoys considerably less citizen trust than their Mexican counterparts due to their long and ignominious involvement in the country’s brutal civil conflict. The U.N. truth commission report (whose findings Pérez Molina questions) deemed the war a genocide, and blamed the army for 93 percent of the massacres of innocent civilians that occurred. Breaking the peace accords’ promise to keep the military out of citizen security would be a step backward to a past many would rather not revisit.
Growing evidence too suggests the military itself may well have ties to organized crime. Reports from the UN peacekeeping mission in Guatemala (MINUGUA), and a number of NGOs show that long standing military ties with the criminal groups that today work with Mexican and Colombian drug traffickers. The Kaibiles, an elite special operations force, trained some of the Mexican soldiers that would later become the Zetas, and many former Kaibiles now work full time for the cartels.
If the army is not the right choice for improving security, the only alternative is the National Civil Police (PNC). Unfortunately, the PNC faces many of these same challenges: a lack of manpower, resources, and public trust. Furthermore, the U.S. and the Guatemalan government have tried a number of times, and on the whole failed to reinvent the PNC in the past.
Still, trying again is the least bad alternative. And there are a few hopeful signs from the past year. With new wiretapping, plea bargaining and seized assets laws in place (in no small part due to the work of CICIG), the police have arrested some high-ranking drug traffickers and suspects in high-profile murders. With human rights leader Helen Mack at the helm of a new police reform initiative, some observers are more optimistic about the chances of finally building a professionalized Guatemalan police force.
As the U.S. and other countries in the region look to begin working with the new administration, security assistance – including Mérida funds — should focus on strengthening the national police (and court systems). Despite the PNC’s past failures, and Guatemala’s weak institutions in general, the issue of security is simply too important to let fall by the wayside, or worse, into the wrong hands.
Published in conjunction with Latin America’s Moment at the Council on Foreign Relations.
U.S. Republican presidential candidate Michele Bachmann gestures beside Mitt Romney during the Republican presidential debate in Ames (Courtesy Reuters).
As primary election season gets underway, the Republican hopefuls have had little to say about Latin America. But there have been a few hints though from the leading candidates as to what they see when they look south – particularly with regard to Mexico.
Michele Bachmann is the most cut and dry so far. She opposes immigration and the legalization of undocumented migrants, and calls for the deployment of troops in south Texas. The Minnesota congresswoman wants to wall the border off completely, saying “As president of the United States, every mile, every yard, every foot, every inch will be covered on that southern border.” When Bachmann felt the need to strengthen her foreign policy chops last spring, she flew to Colombia and Mexico with the House Intelligence Committee – her first trip abroad to a country other than Israel (which she has visited multiple times courtesy of pro-Israel interest groups). Upon returning, she expressed strong support for the drug war.
Mitt Romney and Rick Perry have more nuanced takes – in part because they have more extensive experience in and with the region. Romney has a long history working in Latin America, as his firm Bain Capital invested extensively in Central and South America. On the campaign trail, he lauds those governments with business friendly policies, pointedly contrasting them to those with less open markets (e.g. Venezuela and Cuba).
During the 2008 electoral race Romney became increasingly tough on immigration , and even tougher on border enforcement, running ads attacking John McCain for his “soft” stances. His hardened views have caused somewhat of a family drama as many of his relatives (no, not from the Huntsman branch) live in northern Mexico and have openly criticized him, saying that “I don’t think Mitt understands the causes of illegal immigration.”
Rick Perry, the newest addition to the field and the now front-runner has little interest in Latin America, but does have a long history with Mexico. On immigration, the Texas governor is considerably more progressive than many of his peers. Perry’s record suggests that he supports the DREAM act and similar reforms, given that he approved a law allowing undocumented high school graduates in Texas to pay state tuition. He has even thrown his weight behind a guest worker program for Texas.
But Perry is increasingly vocal and tough on border security. Among the most outspoken critics of Obama’s border policy, he has repeatedly raised alarm bells about violence spilling over from Mexico into the lone star state, and asked for the deployment of military troops and predator drone in response. Unlike Bachmann, Perry has remained firmly opposed to the border fence, calling the idea “ridiculous on its face.”
This early in the season, most candidates and campaigns are focused on domestic issues. Those foreign policy issues at the forefront – Afghanistan, Libya, or Syria – aren’t necessarily a club Latin American nations would want to join. But many do bemoan the lack of interest and understanding of the rest of the Western Hemisphere by these presidential hopefuls.
Latin America should in fact matter more. The region is among the U.S. fastest growing trading partners, creating American jobs with each purchase. With over half a trillion dollars worth of goods going back and forth, Latin America is second only to Asia – and growing much faster – in terms of total trade with the United States. Its largest nations play important roles in multilateral organizations from the G20 to the United Nations Framework Convention on Climate Change (UNFCCC), helping the United States and others resolve difficult global challenges. And finally, according to the latest census 50 million Americans – 1/6 of the population – are descendants of these nations, many still with close ties to their original homes. Ignoring Latin America or alienating Latin Americans only adds up to a missed opportunity, both for the Republican Party and for the country.
Published in conjunction with Latin America’s Moment at the Council on Foreign Relations.
Suspects wait at the Supreme Court in Guatemala City (Jorge Lopez/Courtesy Reuters).
The conventional Guatemalan security story is one of a country riddled with violence, where law enforcement institutions are in shambles and corruption reaches the highest levels of government. Its homicide rate triples that of Mexico, and its notoriously weak rule of law system lets more than 99 percent of criminals walk free. The growing presence of Mexican and Colombian cartels, pushed out of their home countries due to intensive antidrug campaigns, has only made matters worse. As the Zetas in particular move into the northern provinces, observers sound alarm bells about Guatemala’s possible descent into a “narco-state”.
Still, it may be too early to give up on Guatemala. Since the capture of top drug-smuggler Juan Alberto Ortiz-López, alias ‘el Chamalé’, in late March of this year, Guatemalan officials have arrested a number of local gang leaders, some with close ties to the Zetas. Within days of folk singer Facundo Cabral’s murder this month, the authorities announced the arrest of three suspects, presenting a slideshow with a play-by-play rundown of the events. The swift response became a point of pride for Guatemalans accustomed to sluggish, if any, justice.
The UN International Commission against Impunity in Guatemala (CICIG) can take much of the credit for these improvements. Set up in 2007, the commission has been an enormous boost to law enforcement’s (still limited) capacity; assisting in high-profile investigations and promoting important reforms, notably witness protection and plea bargaining laws. It works in conjunction with domestic security agencies, employing a “learning by doing” model that teaches investigative methods to Guatemalan prosecutors on the job. Not least of all, CICIG played an instrumental role in the appointment of current Attorney General Claudia Paz y Paz, who has had a markedly positive impact on the public prosecutor’s office.
But Paz y Paz and her fellow reformers face an uphill battle. Guatemalans are among the most mistrustful of judicial institutions across Latin America, and the most skeptical of democracy overall. Winning the public’s trust in the justice system requires sustained improvements, not just sporadic high-profile successes. The lack of funding for security poses another major challenge – last year the government cut the public prosecutor’s budget by a quarter. More generally, Guatemala’s tax revenue is the lowest in the region at around 10 percent of GDP (its Central American neighbors are not much better, with this part of the region ranking below the rest of the continent and even Sub-Saharan Africa in tax collection).
The upcoming elections may also stall progress. The presidential frontrunner, Otto Pérez-Molina, is a retired army general with a questionable human rights record and a preference for iron fist, hard-line security policies. While he has promised to respect political appointees’ mandates, many fear that if elected he would replace Paz y Paz and even block the continuation of CICIG’s work beyond its current 2013 deadline. While outsourcing justice is not a long-term solution, banishing the UN commission before it has completed its investigations and trials will handicap efforts to strengthen the rule of law.
For a place that many have already labeled a failed state, the recent advances in security are a ray of hope. A committed Attorney General and external commission have shown that it is possible to make inroads combating organized crime and Guatemala’s pervasive culture of impunity. But to sustain and further these small islands of progress, other branches of government and citizens more generally will have to do their part. The very wealthy will have to pay higher taxes to underpin public security (a point stressed by Hillary Clinton during last month’s Central American security conference). The next president may have to forgo partisan calculations and bolster the justice system, starting with keeping the effective Paz y Paz as chief prosecutor. These are by no means easy steps to take. They require personal sacrifices and the setting aside of self interest for the public good of a stronger state. But if Guatemalans truly want a more stable and secure future, they will have to start making these tough choices. Instead of writing Guatemala off as a lost cause, we should applaud the work of a few courageous reformers and encourage the rest of the country to follow their lead.
Published in conjunction with Latin America’s Moment at the Council on Foreign Relations.
U.S. President Barack Obama and Brazil's President Dilma Rousseff toast during lunch in Brasilia (Ho New/Courtesy Reuters).
Today the Council on Foreign Relations is releasing its independent Task Force report, “Global Brazil and U.S.-Brazil Relations”. I sat in as an observer for the Task Force, ably led by co-chairs Samuel W. Bodman — former Secretary of Energy under George W. Bush — and James D. Wolfensohn — chairman of Citigroup’s international advisory board and former president of the World Bank Group — and directed by my CFR colleague, Julia Sweig. The project’s 30 participants hail from diverse backgrounds, some old Brazil hands and others with functional and/or wide-ranging expertise. Needless to say, the four meetings that took place over the course of a year yielded a stimulating and fruitful dialogue. Although there were some differences of opinion among Task Force members (some of which are noted in the additional comments and dissents section of the report), everyone agreed to Brazil’s rising importance.
We addressed a wide range of issues, including Brazil’s economic health, its energy agenda, its role as a dominant regional power and its relationship with the U.S. government. The report’s core recommendations focus on deepening cooperation between Brazil and the United States so that both can more effectively advance their common interests (and better manage areas where we might come into conflict). In particular, the Task Force points to Chinese monetary policy, climate change mitigation, the expansion of the biofuels industry and regional counternarcotics policy as issue areas that provide opportunities for bilateral cooperation. It calls for Washington to better appreciate Brasilia’s increasing potential as a global strategic ally. As a sign of goodwill, the Task Force recommends a particular concrete step: fully endorsing Brazil as a permanent member of the United Nations Security Council.
The report’s most basic takeaway is that Brazil is the newest pillar in a multipolar world and must be treated as such. Slotted to become the world’s fifth largest economy within the next decade, it grew at a stunning pace of 7.5% in 2010 (whether this is sustainable remains a big question mark), and is expected to expand 4.5% this year. Unemployment and inequality — perennial concerns for the nation—have fallen. Still, Brazil’s economic outlook is not entirely rosy. In the short to medium term, rising exchange rates and inflation threaten Brazil’s growth. Decrepit infrastructure and an overwhelmed public education system threaten its longer term competitiveness. Whether Brazil can take on these myriad obstacles effectively remains to be seen.
Whatever its economic future may hold, the Task Force report is worth a full read, as it provides important insights and ideas on how both Brazil and the U.S. can manage the challenges that lie ahead, and the U.S.-Brazil relationship, for the better of both nations.
Published in conjunction with Latin America’s Moment at the Council on Foreign Relations.
It’s hard to believe that Calderon is coming up for 2 years in office, one-third of his term. Much has been said of Calderon’s domestic agenda, but in the op-ed below, published in Mexico’s major English-language newspaper, The News, I analyze his foreign policy achievements. I argue that President Calderon has done much to restore Mexico’s bilateral relationships, but that so far his administration has failed to take on a global leadership role. With four more years in office, Calderon should shift Mexico’s foreign policy course to actively shape the international agenda.
It’s time for Mexico to lead
BY Shannon O’Neil
Special to The News
November 28, 2008
As he celebrates his two-year anniversary in office, President Felipe Calderón gets mixed reviews on his domestic and foreign policy. Many point to the numerous successful reforms – pension, tax, justice, and energy – that have passed as evidence he can deftly guide serious issues through a divided Congress. These achievements do stand in stark contrast to the gridlocked Vicente Fox administration. Yet others dismiss these reforms as too little, too late, and lament the wasted potential for real change.
This ambivalence is not limited to national politics. While much lower in profile, Calderón´s foreign policy elicits both praise and dismissals. It shines in comparison to Fox´s, which left Mexico’s relations with Venezuela and Cuba in tatters and U.S. relations weakened by recriminations on both sides. But as in the domestic arena, many worry Calderón is wasting the opportunity to fundamentally transform Mexico’s role on the world stage.
Upon entering Los Pinos, Calderón quickly moved to repair broken bilateral fences. In his first year, he returned Mexican ambassadors to both Venezuela and Cuba, taking the first necessary steps to re-engage with all of Latin America. He followed up with visits to Argentina and Chile, and received Presidents Tabaré Vázquez of Uruguay and Luiz Inacio Lula da Silva of Brazil at home. Through these renewed ties, his government pushed to increase trade and to further energy partnerships – all important for Mexico´s future. This new hemispheric camaraderie permitted Mexico´s successful U.N. Security Council seat bid, providing Calderón a new international platform in 2009.
While at times seeming almost desperate to ignore his northern neighbor – during his first trip there as head of state in April he even bypassed Washington – Calderón’s administration has actually made more concrete headway with the United States than many of his predecessors. The harsh realities of his “get tough” domestic agenda, and the increasing worries of U.S. policy-makers about drug-related violence in Mexico, have facilitated this newfound cooperation.
Negotiations with President George W. Bush culminated in the three-year package known as the Mérida Initiative, which provides $400 million in the first year for the fight against the drug cartels. Just as important, these discussions changed the terms of the drug war debate, getting the United States to at least grudgingly accept some responsibility in the violence and to promise to stem the flow of illegal guns and money into Mexico.
QUIET CONFIDENCE
On other bilateral issues, Calderón has been notably silent. Coming on Fox’s burned heels, he has virtually ignored U.S.-bound migration in his discussions with the U.S. president. Calls for better treatment of Mexico’s citizens abroad, and for economic development and job creation at home to stem the steady human flow outward, have been geared almost exclusively to his domestic audience. On NAFTA, too, the administration has been uncommonly reticent, particularly amid calls by U.S. democrats for its renegotiation.
Two years in, Calderón’s foreign policy has promoted better Latin American relations, and assuaged past rifts with the United States. Not bad – but not visionary. As the 13th-largest economy in the world, and according to The Economist, soon to break into the ranks of the top 10, Mexico has been decidedly quiet on the international front. It is time for Mexico to lead.
The current financial crisis provides an unprecedented opportunity. Given its own tortuous history with financial upheaval (and more than one near-death experience of its banking sector), Mexico has quite a lot of wisdom to share. And since the exclusive G-7 has given way to the G-20 in worldwide negotiations, Mexico now has a seat at the table.
Other countries understand this. Brazil is the most obvious example, and one to be emulated rather than envied. Its steady and confident leadership on the world stage (backed by good macroeconomic policies and solid domestic economic growth), seduces not just international businesses and investors, but also worldwide diplomats. Having the world’s ear, Brazil´s eminence has become a self-fulfilling prophecy. In contrast, Mexico´s more timid foreign policy stance leaves it out of the game.
In the coming months, we will likely see a narrowing of the Mexican government’s domestic policy agenda. The unfortunate combination of escalating criminal violence, the almost certain National Action Party losses in next year´s midterm elections, and the deepening of the global financial crisis will prove too much for an ambitious reform program in the second half of the president´s term. But this unlucky trifecta for the home front opens the opportunity for a more aggressive foreign policy approach. Mexico should turn outward in earnest, building on the solid blocks of support developed so far by Mexico´s diplomats. With now two years of distance from Fox´s unfortunate travails, the arrival of a new administration in Washington provides an opening for the Calderón government to shift Mexico´s foreign policy course. Through the U.N. Security Council seat, its OECD and G-20 membership, and its intricate economic, security, social, and cultural ties with what is still the most powerful world economy and government, Mexico has a chance to shape the international agenda. It is an opportunity Calderón should not waste.
About the writer: Shannon O’Neil is Douglas Dillon Fellow for Latin America Studies at the Council on Foreign Relations in New York.
