This article was initially published in the Revista Seguridad y Poder Terrestre
Vol. 3 No. 2 (2024): April to June
Summary
This article analyzes the success of government intervention in the fight against drugs in the province of Tocache, located in the department of San Martín, during the period from 2003 to 2011,[1] as well as in the so-called Alto Huallaga zone, which includes the Province of Tocache in San Martín,[2] the Province of Leoncio Prado in Huánuco, the Province of Padre Abad in Ucayali and the districts of Cholón and Monzón in Huánuco. In 2013, the Government of Peru (GDP) established the Multisectoral Commission for the Pacification, Social Economic Development of the Huallaga Zone (CODEHUALLAGA), of which the author was technical secretary during the six years of operation. This analysis is based on this experience. The success of the GDP intervention in Alto Huallaga has been recognized by the National Commission for Development and Life without Drugs (DEVIDA), [3] [4] the National Institute of Statistics and Informatics (INEI)[5] and various media, according to the opinions of prominent personalities. During this period, the Upper Huallaga Valley has been remarkably successful. The state focus on eradication, coca crop substitution and development projects in the region have been fundamental to this transformation, as Vargas explained, with a significant reduction in the number of hectares of coca from 12,421 in 2011 to only 1,555 in 2014.[6]
Keywords: Milagro San Martin, Alto Huallaga, Illicit Drug Trafficking, Terrorism.
Introduction
In the early 2000s, Peru stood out as a major producer of coca leaf, in the department of San Martin, and more specifically in the province of Tocache, whose best known district is Uchiza. The illegal coca leaf was destined for drug trafficking. However, in 2012, this situation was reversed and the province of Tocache became an agricultural valley. In 2012, “comrade “Artemio” was captured, although his remnants continued to control the left bank of the Huallaga River, especially in the district of Cholón. On the other hand, drug trafficking continued to control the district of Monzón, which represented a threat to the country’s security, as it seriously affected its economic and social development.
The new GDP intervention managed to turn this situation around: instead of increasing the number of hectares of coca leaf, there was an increase in the area planted with cocoa, coffee, oil palm and palm heart. In addition, domestic tourism is experiencing a remarkable growth. In this context, CODEHUALLAGA played a leading role in this transformation.
Analysis
Threats to a country should be the subject of immediate and adequate concern and attention, since their neglect, especially in terms of planning and allocation of funds, can have a negative impact on national development. Planning is the basis for any intervention, and policies, plans and strategies, whether multisectoral or sectoral, demonstrate this.
It is important to consider a second aspect: the sector in charge of the policy, plan or strategy will be accountable for its results to the Executive Branch (EP), the Legislative Branch (PL) and the population affected by the hazards in question.
CODEHUALLAGA had three specific functions: pacification, economic and social development. Therefore, three work teams were organized with the sectors involved to address each of these actions. Each sector appointed two representatives and meetings were held quarterly in the city of Lima, as well as in the decentralized headquarters with their respective officials.
| Table of Organization of the Working Groups of the Sectors according to the Tasks Assigned to CODEHUALLAGA | ||
| Governing Body | Tasks | Sectors |
| Multisectoral Commission for the Pacification, Economic and Social Development of the Huallaga Zone.
CODEHUALLAGA |
Pacification | MININTER |
| MINDEF | ||
| JUSTICIA | ||
| MEF | ||
| Economic Development | MINAGRI | |
| PRODUCE | ||
| MINCETUR | ||
| CULTURA | ||
| RREE | ||
| AMBIENTE | ||
| Social Development | MTC | |
| MINEM | ||
| SALUD | ||
| EDUCACIÓN | ||
| VIVIENDA | ||
| TRABAJO | ||
| MIDIS | ||
| MUJER | ||
In order to manage the distribution of resources, each sector had to report its investments in the area at the district level on a monthly basis. In this way, it was determined that many had a presence in the provincial capitals, but not in the districts. Priority was then given to work in the less favored districts, particularly those located on the left bank of the Huallaga River: the district of Cholón, with a terrorist presence, and Monzón, with a drug trafficking presence.
In contrast, the right bank of the Huallaga River had everything it needed, while the left bank had nothing. For example, between Tingo Maria and Tocache there were 200 km and only two bridges for connectivity with the left bank. Now there are four additional bridges over the Huallaga River: Aucayacu, Madre Mía – La Morada, Paraíso-Nuevo Progreso and in Santa Lucía.
In general, there was no government presence on the left bank. The sectors had to show in their plans and allocation of funds their investments on the left bank. Three decentralized CODEHUALLAGA offices were installed in the area (Tingo María, Tocache and Aguaytía), which maintained contact with the district municipalities and particularly with the population centers to learn about their needs and channel them to the ministries.
The interventions of the sectors in Alto Huallaga were coordinated and known by CODEHUALLAGA. This made it easier for them to optimize their actions in a more efficient and effective manner, particularly with regard to economic development. DEVIDA’s role is commendable and worthy of note, as it spearheaded the intervention in alternative development in coordination with the municipalities.
The most relevant actions in each of these actions by sector, in their respective working groups, will be detailed below.
Consolidation of Pacification
Alto Huallaga underwent a significant transformation in a period of 20 years, going from being the main illegal coca leaf producing region to become the main agricultural basin producing coffee, cocoa and oil palm. This area was taken over by the terrorist group “Sendero Luminoso”, starting from the town center of Pucayacu (currently Pucayacu district), which led to its declaration as an emergency zone until the Armed Forces (FF. AA.) and the National Police (PNP) regained control, ending this situation on June 24, 2015.
To consolidate pacification, the following actions were implemented:
1. Central Government
a) The Upper Huallaga was declared an area of national interest and priority through SD No 030-2013-PCM.
b) The Territorial Development Plan for the Huallaga area up to 2021 was approved through SD No 060-2015-PCM.
c) Nine bills were approved for the creation of new districts.
d) The emergency zone was suspended on June 24, 2015.
e) The new district of Yanajanca was recognized for its outstanding participation in the fight against terrorism, granting it an economic reward of 80 000.00 soles.
f) A study was conducted to evaluate the results of the Territorial Development Plan for the Huallaga area with INEI.
2. Public Ministry (MP)
Several population centers of the district of Cholón, province of Marañón, department of Huánuco, were incorporated to the territorial jurisdiction of the Corporate Prosecutor’s Offices and the Provincial Civil and Family Prosecutor’s Office of Leoncio Prado-Aucayacu, by means of Resolution No. 14444-2014-MP-FN of the National Prosecutor’s Office.
3. Judicial Branch (PJ)
The towns of La Morada, Paraíso, San Antonio de Padua and Santa Rosa de Alto Yanajanca in the district of Cholón, department of Huánuco, were incorporated into the territorial jurisdiction of the judicial district of Huánuco by Administrative Resolution No. 018-2015-CE-PJ. These were previously under the jurisdiction of Huaraz-Áncash.
3. Congress of the Republic (CR).
The EP’s request for the creation of new leading districts in alternative development was approved: Santa Lucia, Santa Rosa de Alto Yanajanca, La Morada, Pucayacu, Santo Domingo de Anda, Pueblo Nuevo, Castillo Grande, Pillao, Alexander Von Humboldt and Neshuya.
4. Ministry of the Interior (MININTER)
a) Eradicated 13,000 hectares of coca leaf from the Monzon Valley.
b) A new police station was implemented in each district: Santa Lucía, Pólvora, Puerto Pizana, Paraíso, Madre Mía, La Morada, Santa Rosa de Alto Yanajanca, Monzón, Cachicoto, Palo de Acero, Venenillo and Castillo Grande. In addition, the Alto Huallaga police front was deactivated.
c) The Alto Huallaga Police Command was cancelled.
d) The PNP took control of the police in the Alto Huallaga area in the departments of Huánuco, San Martín and Ucayali.
4. Ministry of Defense (MINDEF)
a) The participation of the Armed Forces was strengthened in the area by transferring the Huascaran Engineering Battalion No. 14 from Juanjuí to Tingo María, in order to carry out maintenance and conservation work on local roads not served by the Ministry of Transportation and Communications (MTC).
b) Regional civic action flights were conducted by the Peruvian Air Force (FAP) between Tingo Maria, Tocache and Tarapoto.
5. Ministry of Economy and Finance (MEF)
a) The Provincial Office of the National Superintendence of Customs and Tax Administration (Sunat) was created in Tocache. The construction of the same office in Aguaytía is still pending.
b) Branches of the Banco de la Nación (BN) were installed at the district level, through a main office or through Multi-Network Agents.
c) A Chemical Inputs Control Post was installed on the La Oroya-Huánuco-Tingo María-Pucallpa tax route, located in the Las Palmas area in Tingo María.
6. Ministry of Justice and Human Rights (MINJUSDH)
a) Offices of the National Superintendence of Public Registries (Sunarp) have been opened in each provincial capital.
b) As pending actions, the project to build a prison under the responsibility of the National Penitentiary Institute (INPE) in the area of Venado Pampa, located in the district of Castillo Grande, is expected to continue.
7. National Commission for the Development and Life Without Drugs (DEVIDA)
a) Public investment projects were developed in coordination with the district municipalities, focusing on products such as coffee, cocoa, bananas and reforestation.
b) Agreements were negotiated with district municipalities for the construction of bridges and local roads that had not been attended by the Ministry of Transportation and Communications (MTC).
c) The stipulations of the National Anti-Drug Strategy for the 2012-2016 and 2017-2021 periods were complied with and enforced.
d) Both the National Anti-Drug Plan and the specific intervention strategy for the Apurimac, Ene and Mantaro River Valley (VRAEM) were developed.
Similar actions and procedures should be considered to consolidate pacification in the VRAEM.
Economic Development
The Alto Huallaga, once a coca-growing basin, has undergone a remarkable transformation into a leading agricultural basin for coffee and cacao exports, as well as banana and oil palm production for domestic consumption. From being an area controlled by terrorism, it has become a tourist area whose growth is increasing every year. The main interventions of the ministries or sectors in the economic development of this region are discussed below.
1. Ministry of Production (PRODUCE)
a) Courses are offered on good manufacturing and processing practices for industrial products, as well as chocolate handling.
b) Training is provided on the MY.COOP-PERU Program with cooperatives.
c) Training is provided in business performance improvement planning for micro, small and medium-sized enterprises (MSMEs).
d) Provided strategic planning for cooperatives.
e) Construction of the CITE Huallaga in Tingo María, the CITE Agroindustrial in Huánuco and the CITE Pesquero in Pucallpa, through the Instituto Tecnológico de la Producción (ITP).
f) The Directorate of Cooperatives and small and medium-sized enterprises (SMEs) is maintaining a presence and monitoring.
2.Ministry of Foreign Trade and Tourism (MINCETUR)
a) Commercial opportunities abroad are taken advantage of to increase competitiveness in the handicrafts sector.
b) The components of tourist destinations are improved.
3. Ministry of Culture (MINCUL)
a) Cultural heritage is valued and used.
b) The arts and cultural industries are developed and promoted, especially among the native population.
c) The CITE Crafts and Tourism in Pucallpa is installed, operated and maintained.
4. Ministry of the Environment (MINAM)
a) The Tingo María National Park receives more than 100,000 visitors per year and is a source of income for numerous tourism agencies, restaurants, hotels, and transportation companies. Efficient and effective management has a positive impact on the area’s economy.
b) The Cordillera Azul National Park, which is administered through the NGO Centro de Conservación, Investigación y Manejo de Áreas Naturales (CIMA), is being strengthened.
c) The Environmental Evaluation and Oversight Agency (OEFA) evaluates and monitors investment projects to issue an opinion on their viability.
d) The Amazon Research Institute (IIAP) is strengthened.
5. Ministry of Agrarian Development and Irrigation (MINAGRI)
a) Investments are increased at the district level by entities such as AGROIDEAS, AGROBANCO, AGRORURAL, SELVA Y SIERRA EXPORTADORA, the National Agricultural Health Service (SENASA), the Amazon Research Institute (INIA) and the National Water Authority (ANA).
b) Agricultural infrastructure works are being carried out through the Alto Huallaga Special Project.
6. Ministry of Foreign Affairs (RREE)
NGO investments are recorded from the Peruvian Agency for International Cooperation (APCI). They do not provide detailed information on their investments, but only report the corresponding amounts.
In the case of an action in the VRAEM, it should be considered that the province of Satipo is a leader in the production of pineapple, coffee and cocoa (alternatives to coca leaf cultivation, supported and financed by the GDP). In addition, there is a cultural richness that is still little known in the native communities, which represent almost half of the population. On the other hand, the Otishi National Park has not yet been adequately developed.
Social Development
The social development investments of the ministries become understandable by requesting district-level information from each sector. A clear analysis will reveal the existence of numerous districts whose basic needs are not being met. Investments are concentrated in districts with better conditions, which shows the importance of detailed planning in policies, plans and strategies.
1. Ministry of Transportation and Communications (MTC)
a) The national road network is kept operational, including the Longitudinal de la Selva Highway PE 5-N and PE 18-C, from Aguaytía to Tingo María and Tocache.
b) The national road network that connects the jungle with the highlands and the coast, such as PE12-A (Tingo María-Monzón-Huari-Casma) and PE14-A (Santa Lucía-Uchiza-Cholón-Chimbote), is preserved and maintained.
c) The reclassification of the local roads on the left bank of the Huallaga River to regional roads is approved. The affected section includes the towns of Monzón, Castillo Grande, Tingo María, Aucayacu, La Morada, Yanajanca and Paraíso.
d) Air connectivity in the area between Tocache and Tingo Maria is resolved. It will be determined if the Corporación Peruana de Aeropuertos y Aviación Comercial S.A. (CORPAC) will continue with the administration or will opt for the policy of concessioning the airfields of Huánuco, Tingo María, Tocache and Santa Lucía.
2. Ministry of Energy and Mines (MINEM)
a) Urban electrification is maintained at 100% and rural electrification is completed, providing it to areas that still do not have it.
b) Formalization of small-scale and artisanal mining.
c) Illegal mining is reduced.
3. Ministry of Education (MINEDU)
Maintain Scholarship 18 in the Huallaga Scholarship modality, aimed at students in the last year of secondary school or graduates with high academic performance, low economic resources or in a vulnerable situation. Students with a high school average above 16 have the opportunity to obtain a place in a private university.
4. Ministry of Health (MINSA)
a) The construction, maintenance and equipment of the Strategic Health Centers identified by MINSA is proposed. In the case of Alto Huallaga, twelve centers are contemplated located in Monzon, Pumahuasi, Aucayacu, Las Palmas, Castillo Grande, San Pedro de Cholon, Bambamarca, Tocache, Uchiza, San Alejandro, Neshuya and Aguaytia.
b) We seek to expand the coverage of the Integral Health Insurance (SIS), whose purpose is to safeguard the health of Peruvians who lack health insurance, prioritizing vulnerable populations living in poverty and extreme poverty.
5. Ministry of Housing, Construction and Sanitation (MVCS)
a) It is proposed to increase the population’s access to formalized land ownership.
b) It is proposed to increase investments from the National Urban Sanitation Program (PNSU) and the National Rural Sanitation Program (PNSR), as well as from the Our Cities Program (PNC) and the National Rural Habitat Support Program (PNVR).
c) It seeks to strengthen the Program for Family Access to Housing and Adequate Urban Environment – MiVivienda.
7. Ministry of Development and Social Inclusion (MIDIS)
a) It is proposed to continue, maintain and expand the coverage of the Qali Warma National Program, the Pensión 65 National Program, the Cuna Más National Program and the Juntos National Program.
b) It is proposed to increase the investments of the Cooperation Fund for Social Development (FONCODES) program with the executing units.
8. Ministry of Labor and Employment Promotion (MTPE)
The government is considering expanding the coverage of the Trabaja Peru Program because it generates very short-term temporary work.
9. Ministry of Women and Vulnerable Populations (MIMP)
The government seeks to strengthen the attention of the Women’s Emergency Centers (CEM) to mitigate the high prevalence of family violence in women and adolescent girls. These facilities have two budgetary programs: Fight against Family and Sexual Violence, and Timely Attention to Children and Adolescents in a State of Presumed Abandonment. In general, they are located in the provincial capitals, but not in the districts. Prior to any action, it is imperative to conduct a study of the area. INEI data is a reliable official source for this purpose. This institution has carried out a study for the Alto Huallaga and for the VRAEM. The data is available from the INEI.[7]
Conclusion
The positive experience of the GDP action in Alto Huallaga in the last two decades deserves to be analyzed and discussed again by the academy, since it went from being the coca-growing basin with the highest coca leaf production to a leading agricultural basin in the production of coffee, cocoa and oil palm, products considered alternatives to coca leaf. In addition, domestic tourism has developed in the area.
However, the GDP’s investment in the fight against IDT and terrorism at the national level is the subject of debate. Its detractors observe and question this investment, arguing that terrorism and TID remain a threat to national development and continue to increase, especially in the VRAEM.
On the other hand, since November 2003, the GDP, under the administration of former President Alejandro Toledo Manrique, has had a defined intervention policy for the VRAEM, approved by Supreme Decree in the Council of Ministers and published in the official newspaper El Peruano. However, to date, DEVIDA has not elaborated the intervention strategy for the VRAEM, as contemplated in the National Anti-Drug Policy (PNCD) to 2030.
Endnotes:
- Macroconsult. 2011. “Narcotráfico: amenaza al crecimiento sostenible del Perú”. En Macroconsult: Estudios Económicos, octubre, pp. 399-424. Lima: Macroconsult.. ↑
- Oficina de las Naciones Unidas contra la Droga y el Delito (ONUDC). 2023. El Modelo de Desarrollo Alternativo de la Región San Martín: Un estudio de caso de Desarrollo Económico Local. Viena: ONUDC. ↑
- Comisión Nacional para el Desarrollo y Vida sin Drogas (DEVIDA). 2018, 12 de octubre. Estrategia de Intervención para el Desarrollo del Valle de los Ríos Apurímac, Ene y Mantaro – Estrategia VRAEM 2021 (D.S. No 102-2018-PCM). Lima: DEVIDA. ↑
- Comisión Nacional para el Desarrollo y Vida sin Drogas (DEVIDA). 2017, 31 de mayo. “Estrategia nacional de lucha contra las drogas 2017-2021” (D.S. No 061-2017-PCM). Lima: DEVIDA. ↑
- Instituto Nacional de Información y Estadística (INEI). 2016, noviembre. Estudio en el ámbito de intervención directa del Plan de Desarrollo Territorial para la zona del Huallaga 2016. Lima: INEI. ↑
- Yagoud, Mimi. 2016, 24 de junio. “El Vraem es una bomba de tiempo”. In Sight Crime. https://insightcrime.org/es/noticias/noticias-del-dia/vraem-bomba-tiempo-especialista-politica-drogas-de-peru/ (consultado el 28 de marzo de 2024). ↑
- Instituto Nacional de Información y Estadística (INEI). 2019, abril. Valle de los ríos Apurímac, Ene y Mantaro: VRAEM. Lima: INEI. ↑
