rnuc1ncur11i • 0811PIBIBRIM 8450 9 THE WHITE HOUSE WASHINGTON October 11 2ooiIT°'' CTCT 18 PM Q QLI i ' · • 11 tr t 1C r I 1lt i CRET AP ' ' Of DEFENSE NATI NAL SECURITY PRESIDENTIAL DIRECTIVB NSPD-18 MEMORANDUM POR THE THE THE THE VICE PRBSIDBNT SECRETARY OF STATE SECRETARY OF THE TREASURY SECRETARY OP DEFENSE THE A'M'ORNBY GENERAL THE SECRETARY OF COMMERCE CHIEF OF STAFF TO THE PRESIDENT DIRECTOR OF THE OFFICE OF MANAGEMENT AND BUDGET UNITED STATES TRADE REPRESENTATIVE DIRECTOR NATIONAL DRUG CONTROL POLICY ASSISTANT TO THE PRESIDENT FOR NATIONAL SECURITY AFFAIRS COUNSEL TO THE PRESIDENT CHIEF OF STAFF AND ASSISTANT TO THE VICE PRESIDENT FOR NATIONAL SECURITY AFFAIRS ASSISTANT TO THE PRESIDENT FOR ECONOMIC POLICY CHAIRMAN COUNCIL OF ECONOMIC ADVISORS DIRECTOR OF CBNTRAL INTELLIGENCE CHAIRMAN JOINT CHIEFS OF STAFF COMMANDANT U S COAST GUARD DIRECTOR FEDERAL BUREAU OF INVESTIGATION DIRECTOR NATIONAL SECURITY AGENCY DIRECTOR DEFENSE INTELLIGENCE AGENCY COMMISSIONER U S CUSTOMS SERVICE ADMINISTRATOR DRUG BNFORCEMENT ADMINISTRATION PRESIDENT'S FOREIGN INTELLIGENCE ADVISORY BOARD SUBJECT Supporting Democracy in Colombia Background The united State• ha• a atrong national aecurity inter••t in a ••cure democratic and economically viable Colombia free from the grip of terrori•t and narcotic• trafficking groupa Those interests go well beyond the problem of illicit drug exports to the United States Colombia is the third most populous nation in Latin America and its oldest democracy Its location on the C9NPIBB ft'I M» Reason 1 S b d Declassify on 1 6 XS nn11c1ncur1a1 UCOEFCON1ROLIX03476 02 QQNFIBBN'i'IM OONRAFNTIII 2 northwest of the South American continent astride the Pacific Ocean and Caribbean Sea makes it geostrategically significant It is South America's fourth largest economy and our fifth largest regional conunercial partner with two-way trade in excess of $10 billion per year Colombia is a major producer of fossil fuels and an important supplier of oil to the United States A severe setback for Colombian democracy therefore would directly affect important U S national security and economic interests Further such a disruption would radiate violence corruption drugs and ecological damage to the fragile neighboring democracies of the Andean region Central America as well as south to Brazil U At the 2001 Quebec S llmllit the 34 frHly elected hmm spheric leaders forged a CCIIIIIIOn viaion of democ ratic governance and fr•• trade This hmd spheric vision is under assault in COlombia by a lethal coabination of three narcoterrorist group• with a cClllbined force of 30 000 combatants who routinely engage in ma•sacres kidnappings and attacka on Colcmbia's infrastructure These three groups -- the Revolutionary Anted Forces of Colombia PARC the National Liberation Army BLN and the United Self-Defense Forces of Colombia AUC are designated as Foreign Terrorist Organizations by the Department of State The FARC and AUC derive between 30 and 60 percent of their revenue from the drug trade while the ELN is involved to a lesser extent We estimate these groups receive more than $300 million per year from the illicit drug trade The narcoterrorists control transnational criminal networks that supply 90 percent of the cocaine consumed by Americans and an increasing share of the heroin The activities of these designated organizations and of successor and breakaway groups and other illegal armed groups and narcotics trafficking organizations threaten to create a crisis in Colombia which will undermine our goal of promoting a peaceful democratic and economically prosperous hemisphere U Th• UDited Stat•• i• ccmaitted to helping Colombia in its fight again•t narcoterroriam through the robust as•istance outlined in thi• directive Revertheles• it i• Colombia's fight and Colombians th-•lv•• must take th• lead in the struggle The newly-elected Colombian Government has a strong popular mandate to deal decisively with this national crisis The United States expects the Colombian Government to implement its stated policy to defeat the narcoterrorists by devoting increased government resources to the security forces developing a national strategy aimed at establishing the rule of law throughout its national territory assisting its internally displaced and waging an C8NFII ilDJ1'IAL mur 1ns un 1 •COUPfBll fPIAI» JJNROr ldTIAI 3 aggressive and comprehensive campaign against illicit drugs -tet Since 2000 the united State• ha• provided Colombia with over $1 7 billion in a•aiatance to combat narcotrafficld n g •trengthen democratic inatitutiona provide hU11ADitarian •••iatance and fo•ter aocio-eccmomic developaent Although much remains to be done United States ·Plan Colombia• assistance in support of Colombian efforts has resulted in numerous successes to date including enabling • Deployment of the Colombian Army's countern arcotics brigade which under U S training has been free of human rights abuse allegations • Record coca crop eradication spraying in 2001 and USAID and Colombian alternative development assistance • unprecedented cooperation in extraditing Colombians to the U ited States on serious criminal charges • Protection of threatened human rights workers labor activists a d journalists and assistance to Colombians displaced by violence and creation of human rights abuse prosecution units • An Early Warning System to help Colombia avert massacres and other human rights abuses • Funding teacher training through the United Nations and working to demobilize child soldiers • Colombian justice reform programs and • Improved financial management and corruption reduction for municipalities Ratur• of the Bvolvi S Threat and R• RO •• The FARC ELN and AUC and other illegal armed groups are well entrenched and continue to pose a grave and fundamental threat to the stability of Colombia the region and U S national security interests · The activities of these designated terrorist organizations and other illegal armed groups include all aspects of narcotics production trafficking and money laundering murder bombing assassination extortion kidnapping and weapons trafficking As part of their strategy to weaken the Colombian Government these groups also attack elements of the country's critical economic infraatructure commit gross violations of human rights and international humanitarian law and attack and displace unarmed civilians Colombian terrorist organizations' access to the inmenae profits generated by the drug trade and their willingness to engage in widespread violence and extortion enable them to challenge the eeHPIBBNIPI Ms mur 1n1m141 'Cetff' BBN' 'IA I -Mll nM141 government's programs to establish the rule of law discourage foreign investment and weaken the confidence of the general public tetNarcotica trafficking and terrori811l and other criminal activities including money laundering and extortion by designated terrorist organizations other illegal armed groups and narcotics traffickers can no longer be meaningfully separated Some statutes providing counterdrug funds for assistance to Colombia were unclear about the extent to which providing assistance against some activities of designated terrorist groups would be permissible This uncertainty inhibited unified assistance against narcoterrorists -fet In recognition of the increasingly seamless interaction between the narcotics trafficking and terrorism activities of Colombian terrorist groups and as part of the Administ ration' s conmitment to work closely with Congress on Colombia policy the Administration obtained new statutory authorities from Congress for FY 2002 and is working with Congress to extend these authorities beyond FY 2002 These new authorities are intended to allow training use of equipment and intelligence support for the GOC's effort to combat u s -designated terrorist organizations without the necessity for case-by-case analysis of the groups' specific activities as either terrorist or narcotics trafficking in nature Other legal authorities still in effect for assistance to Colombia are not limited to designated terrorist organizations All U S aaaiatance programs to Colombia including tho•• not diacuaaed specifically in thia NSPD will be undertaken within existing •tatutory reqv irt1111e11ta 1tatutory ceiling• OD military and civilian per•onn•l and in accordance with the hU11181l right• related atatutory proviaiona for aaaiatanc• to foreign security fore••· te Policy united Stat•• policy la to help the Colombian GovaJ WDt atrengthen it• deaoaracy respect huaan right• and the rule of law and reduoe the threat of narcotic• trafficking and terrori The United States will assist the Colombian Government in regaining control and asserting legitimate authority over its national territory establishing the rule of law throughout the country and improving its ability to defeat the designated terrorist organizations other illegal armed groups and narcotics trafficking organizations 'tei- COHPIBB P PIAL MllClng fflAI eeHP BB ff Afi CONADENM 5 This is Colombia's fight and the Colombian Government and people must assume the ultimate responsibility for defending their freedom In this context the achievement of u s policy goals requires a concerted Colombian strategy and effort -backed by sustained substantial U S assistance -- to confront terrorism and the drug trade and to regain and maintain control over Colombian national territory -tet intention ia to enhance aupport for a broad range of Colombian effort• to d••troy or weaken aignificantly the ability of the deaignated terrori•t organisation• and other illegal aZ'llled group• and narcotic• trafficking organisation• to undermine Colcmbia•• democrac y and national aec urity however COlombia i• ultimately reaponaible for re•olving ita decad••lozav civil conflict -fet OUr The new Colombian Government is committed to a series of decisive policy actions Its approach is premised on recognition that ultimate success or failure hinges on Colombians and their elected repreaentativea The Colombian policy actions include • Increasing resources for the security forces • Waging a comprehensive counterterroriam campaign • Waging a balanced and comprehensive counter-narcotics campaign • Improving the performance of its security forces in protecting hu- nan rights and in taking effective measures to sever ties with paramilitary organizations • Maintaining adequate funding for rule of law humanitarian assistance and socio-economic development programs and • Promoting economic progress through support for open markets a favorable investment climate and structural reform ffi Ob lective• The primary objectives of U S assistance to Colombia are to· • Increase institutional development professionalization and growth of force structure of Colombian security force• to permit the exercise of governmental authority throughout the national territory • Continue appropriate assistance programs to Colombia to co'llbat illicit drugs and terrorism defend human rights promote economic social and alternative development COltl' 9'mff Afl MMCIAs IFHAI WNHUt NIIAL 6 I llff ldl • • • • initiatives reform the administration of justice and assist the internally displaced Improve and support Colombian intelligence capabilities advise and assist Colombian intelligence organizations and collect and share intelligence with the Colombians to facilitate their successful planning and operation• against narcotics trafficking designated terrorist organizations and other illegal armed groups Substantially reduce the production and trafficking of cocaine and heroin from Colombia by strengthening counter-narcotics programs advising and assisting counterdrug organizations and units dismantling drug trafficking organizations interdicting drugs disrupting the transportation of precursor chemicals addressing major cultivation regions and responding rapidly to shifts in cultivation regions including establishing the second counter-narcotics brigade Enhance counterterroriam capability by providing advice assistance training and equipment to the Colombian A%1ned Forces and the Colombian National Police through implementation of ongoing programs as well as initiatives funded under the new congressional authorities and the infrastructure protection program and Promote economic growth and development through support for market-based policies and implementation of the Free Trade Area of the Americas and the Andean Trade Preferences Act Implementation and OV•r•ipht The western Hemisphere PCC will develop a political-military implementation plan for consideration by Deputies and Principals This plan will be based on Colombia's national security strategy and will employ all elements of U S national power diplomatic intelligence military justice and economic identify and sequence reconnended tasking for each United State• Government agency over time integrate United States Government activities with those of the Colombian Government and other key governments in pursuit of U S national interests including clear measures of effectiveness and describe a desired end-state Ongoing coordination and implementation of policy will be ensured by the Western Hemisphere PCC and through the political-military implementation plan tet The Deputies committee will review u s -colombian policy implementation on a regular and continuing basis with referral to the Principals committee as appropriate Through this G8NPIBB ffilm rJWAFAIIl41 'eetfPIBBtffilcb CONADENTIAI 7 process Departments and Agencies will develop and coordinate planning budgets and resources to ensure that they are complementary and mutually supportive The Western Hemisphere PCC will conduct policy oversight at a general level Without exercising operational control the PCC will provide overall guidance to ensure that all available assistance which is determined by appropriate legal officers to be permissible is provided as appropriate including guidance to ensure that • Assistance from funding sources limited by Congress to Colombia's efforts against u s -designated Foreign Terrorist Organizations PTOs is provided only for efforts against such groups To the extent legally permissible such assistance will be used against successor and breakaway components of these designated groups • Assistance to Colombia's efforts against illegal armed groups not designated as terrorist organizatio s is provided against groups which are engaged in criminal activities under either Colombia or U S law armed and have demonstrated a willingness to use violence to advance their ends and engaged in activities with the potential to create a significant threat to Colombia's efforts to strengthen its democracy respec t for human rights and the rule of law and reduce the threat of narcotics trafficking and terrorism to public safety and national security in Colombia Por purposes of U S assistance not limited by Congress to F'l'Os •illegal armed groups• also includes successor and breakaway groups to the extent such groups are not themselves PTOs and • Assistance to Colombia's efforts against narcotics trafficking organizations is providecl for efforts against activities of groups with the potential to create a significant threat to Colombia's efforts to strengthen its democracy respect for human rights and the rule of law create a significant threat to public safety and national security in Colombia or contribute to the significant amounts of narcotics being exported to the United States tetLead Agency Role• and R•IIJ O •ibilitiea In view of the significant implication• for united Stat•• national security interest• of the threat againat Colombia'• effort• to build and auatain a stable democracy it ia a aatter of national priority that u s Departm ent• and Agenci•• ahall provide auch increaaed support and aaaistance conaiatent with the policy objective• rolea and reaponaibiliti•• atated eetff'IBBtft' Mi Nlllr lnc m41 ml1C1ncim11 CONPiBBIRIMa· herein aa ia othe nriae permiaaible by law to Colombia'• unified campaign against narcotics trafficking and terrori -tetStat in consultation with the National Security Council NSC the Departments of Defense DOD Justice DOJ Treasury Conmerce DOC United States Agency for International Development USAID Office of Management and Budget 0MB and other agencies as appropriate as well as the Office of National Drug Control Policy ONDCP United States Trade Representative USTR United States Interdiction Command USIC and National Economic Council NBC will have responsibility through the PCC process for overall policy and program coordination The Stateled Western Hemisphere PCC will prepare on an expedited basis for review and approval by the Deputies Committee a comprehensive fully integrated political-military implementation plan to reflect appropriate U S support for Colombia's National Security Strategy and to include the overall mission goals objectives performance standards timelines measures of effectiveness and desired end-state and outcomes The Chief of Mission will be responsible for day-today in-country implementation and regular program assessments te State in coordination with other agencies as appropriate will develop and implement aggressive public diplomacy and public affairs plans and a management structure to • increase understanding and support for Colombia internationally from the European Union Japan Latin America and others in the international community • broaden understanding by the American public of U s policy by articulating the significant political economic social and humanitarian interests and goals we have in Colombia and • support the Colombian Government's programa to develop and implement effective domestic and international information programs tetState will report periodically to the Western Hemisphere PCC on the implementation of these plans -te Defense in consultation with NSC State Justice Treasury ONDCP USIC 0MB and other agencies as appropriate will develop those elements of the political-military implementation plan related to the-military aspects of support to Colombia's unified campaign against narcotics trafficking and terrorist activities including military aspects of assistance against E 8lfPEBBlft'I1ds muRn eeHPIBBlffI Afi CONRDEMW 9 • activities of the groups identified under the guidance of the Western Hemisphere PCC Defense will have the lead working through the Chief of Mission and the Bogota country team in coordinating military support tor Colombia The Intelligence Community consistent with the authorities of Director of Central Intelligence DCI and other applicable authorities will develop a comprehensive program to collect and share information with the Colombian Government and to enhance the capacity and capabilities of Colombia's intelligence conrtunity to gather evaluate refine synthesize and distribute intelligence on n rcotics trafficking and designated terrorist organizations and other illegal armed groups for use by Colombian law enforcement and military authorities The DCI in coordination with the Secretary of Defense will periodically review the U S intelligence effort in Colombia including resources available as well as Colombian intelligence capabilities with the aim of ensuring that both can adequately support U S objectives l'hi• Raticmal Security Preaidential Directive auperaed•• Pre•idential Deci•ion Directive HSC-73 U S Colombia Initiative of Auguat 3 2000 tet 1 e_ eOHPISB ft'IMa cnunn AI This document is from the holdings of The National Security Archive Suite 701 Gelman Library The George Washington University 2130 H Street NW Washington D C 20037 Phone 202 994-7000 Fax 202 994-7005 nsarchiv@gwu edu