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    El fracaso reiterado de la lucha colombiana y mundial contra el narcotráfico

    Updated:3.118 comentariosLectura de 11 min

    Por Catalina Gil Pinzón, Analista Oficial de Programa para el Programa Global de Política de Drogas de la Open Society Foundations.

    Varias generaciones colombianas crecieron (crecimos, de hecho) con comerciales pagados por el Gobierno de turno que hablaban sobre una mata que mata, con imágenes de avionetas fumigando desde el cielo esa misma mata, la coca (y todo lo que se atravesara) y con una frase que, al parecer, nunca caduca: «El narcotráfico es nuestra peor amenaza». Muchos años después, Colombia sigue siendo un país obsesionado con este cultivo y una prohibición, tanto por pulsión interna como por presiones externas y el auspicio de países socios.

    Quizás ahora esas mismas generaciones están en disposición de cuestionar si el problema son las drogas en sí o la manera en que las han venido abordando. La realidad en los indicadores que verdaderamente importan es que pasan los años y el bienestar de las personas y comunidades que están directamente afectadas por el proceso de producción y distribución no avanza al ritmo que se invierte en las políticas actuales. Ese bienestar no parece, por tanto, la prioridad real de dicha política. De hecho, el abordaje del Gobierno actual (que terminará mandato el próximo 7 de agosto) sirve como síntesis última de esta aproximación y sus problemas.

    Panorama actual: un mercado más eficiente y unas medidas fallidas

    A finales de 2018, el recién investido presidente Iván Duque presentó una nueva política para abordar el fenómeno de las drogas llamada Ruta Futuro. De acuerdo con lo anunciado, ésta sería una política integral, sostenible, inclusiva y basada en la evidencia. Esto encajaba bien con la imagen que el propio candidato (apoyado en medios afines) se había labrado durante la campaña: antiguo funcionario del Banco Interamericano de Desarrollo, joven senador por el partido de derecha Centro Democrático (liderado por el ex presidente Álvaro Uribe) y alguien de cara amable, amante de la innovación y con voluntad de buena presencia internacional.

    Pero en realidad dicha Ruta es poco novedosa. Al incluir como pilares la reducción del consumo y de los cultivos de coca (para reducir la disponibilidad de droga) se le estaba apostando, nuevamente, por lo que hemos intentado durante muchos años y no ha dado resultado. Y, en los tres que lleva implementándose, esta política tampoco se ha demostrado como sostenible, inclusiva ni basada en la evidencia.

    Colombia continúa siendo el país con mayor presencia de cultivos de coca y el primer productor de cocaína en el mundo. Según el último informe de la Oficina de las Naciones Unidas contra la Droga y el Delito (UNODC) para el año 2020 el área sembrada con coca alcanzó 143.000 hectáreas, un 7% menos que lo reportado en el año 2019.

    Aunque el Gobierno nacional se ufana de esta disminución, este informe brinda otro dato fundamental: el potencial de producción de clorhidrato de cocaína pura aumentó en un 8%. Es decir, se está produciendo más cocaína con menos área cultivada de coca. Los cultivos son más productivos y la erradicación no logra, por tanto, disminuir la cantidad de cocaína que entra en el mercado. Desde este punto de vista, parece algo secundario que el Gobierno se haya quedado en un 79% de la meta de 130.000 hectáreas erradicadas que pretendía para 2021, aunque el propio Duque plantee estos resultados como métrica relevante.

    A este foco poco eficaz en erradicación se le añade un menor esfuerzo en otros frentes. Según el último informe trimestral del Instituto Kroc sobre el estado efectivo de la implementación del acuerdo de paz, el presupuesto ejecutado para abordar el fenómeno de las drogas, disminuyó en un 69% desde el año 2017 al 2020. Además, para 2021 los recursos programados fueron 98% inferiores a los de 2020. Con relación al Programa Nacional Integral de Sustitución de Cultivos de Uso Ilícito (PNIS), son varias las familias inscritas que continúan reclamando lo prometido (por ejemplo, el plan de inversión alimentario o proyectos productivos).

    En cuanto a grupos armados ilegales involucrados en el narcotráfico, el Gobierno nacional ha dado de baja o capturado a algunos cabecillas, anunciando estos hechos como duros golpes a este mercado ilegal. Incluso, con la captura de alias Otoniel, jefe del Clan del Golfo (aparentemente la organización criminal con mayor control territorial en Colombia), el presidente llegó a afirmar exageradamente que su captura es comparable a la caída de Pablo Escobar, y que sería el fin del grupo armado ilegal.

    Aunque estas capturas pueden ser golpes estratégicos según las características de cada organización y las ganancias políticas, el efecto que tienen sobre el mercado ilegal de drogas es limitado. Las rutas controladas por mandos medios, los compradores internacionales y las conexiones e intermediarios de los enclaves de producción no sufren gran afectación logística. Además, actualmente hay una mayor dispersión geográfica y organizativa, y una expansión hacia las fronteras. Los cabecillas son dados de baja, pero los mercados de drogas sobreviven.

    Con relación a la seguridad nacional, otra métrica que suele emplearse como referencia para hablar sobre la política contra las drogas, el panorama tampoco es alentador: de acuerdo con el último Informe Mundial de Human Rights Watch, en 2021 al menos 290 excombatientes de las Fuerzas Armadas Revolucionarias de Colombia (Farc) fueron asesinados, se documentaron 82 masacres cometidas por grupos armados ilegales, al menos 60,000 personas han sido desplazadas forzosamente y desde 2016, al menos 500 personas defensoras de los derechos humanos han sido asesinadas. Resulta, además, que el Gobierno actual insiste en ‘narcotizar’ la agenda de seguridad, reviviendo la errónea premisa de que todos los hechos violentos del país se explican por la existencia de un mercado ilegal de drogas («el narcotráfico es nuestra peor amenaza»). Sin embargo, no se puede hacer esta atribución a la ligera: es vital entender el narcotráfico en sus justas proporciones.

    Al ignorar esto, el Gobierno termina aplicando medidas costosas, ineficientes y eventualmente dañinas. En lugar de priorizar el cumplimiento del PNIS (Programa Nacional Integral de Sustitución de Cultivos de Uso Ilícito), se pone por delante la inversión de recursos en operativos de erradicación forzosa o en la intención de reanudar a toda costa las fumigaciones con glifosato (suspendidas en 2015), un herbicida que provoca costes ambientales, sociales, económicos y a la salud. Incluso el Parlamento Europeo ha solicitado su eliminación gradual y prohibición total para  2022. Nuevamente, proteger y velar por el bienestar de las comunidades no es la prioridad.

    A nivel legislativo, se han presentado algunos proyectos de ley relacionados con la política de drogas que hace 30 años hubiera sido impensable debatir en el Congreso. Los más relevantes: tratamiento penal diferencial para pequeños cultivadores (archivado), modificar el artículo 49 de la Constitución para permitir la regulación del uso adulto de cannabis (archivado), establecer un marco regulatorio y de control del cannabis de uso adulto (pendiente de segundo debate) y la regulación de la hoja de coca y sus derivados (pendiente, también, de segundo debate).

    ¿Qué hacer?

    En resumen, tenemos una agenda de seguridad narcotizada, un cultivo más productivo, un acuerdo de paz debilitado, un programa de sustitución desfinanciado y una situación de seguridad recrudecida. Al mismo tiempo, el consumo de drogas ha ido en aumento: se estima que en 2020 alrededor de 275 millones de personas consumieron alguna droga (un 22% más que en 2010). Además, la cocaína sigue siendo la segunda sustancia ilegal más consumida en Europa. Es decir, al parecer la demanda por consumir es tan poderosa que ni la prohibición ni una pandemia han podido disminuirla.

    Entonces, ¿por qué seguir aplicando recetas que sabemos no funcionan? Es el momento para empezar a considerar aproximaciones distintas:

    1. Desnarcotizar la agenda de seguridad nacional. Una grave consecuencia de la llamada guerra contra las drogas es la cooptación de las agendas de seguridad. Al promover las drogas como un asunto exclusivo de seguridad se priorizan abordajes de mano dura y criminalización, y esto trae al menos tres consecuencias. Primero, se impide o rezaga que otras entidades públicas (como el Ministerio de Salud) desempeñen un rol protagónico en el abordaje del fenómeno de las drogas. Segundo, hay un gasto fiscal injustificable, un colapso del sistema judicial y una crisis carcelaria. Por ejemplo, mientras en los últimos 15 años la población reclusa en el país creció un 141,8%, la privación de libertad por delitos relacionados con las drogas lo hizo en un 289,2%. Tercero, otras demandas de seguridad como hurtos, violencia basada en el género o reclutamiento de menores reciben menos atención y recursos.

    2. El bienestar de las comunidades debe ser el indicador de éxito, no la erradicación de cultivos. De acuerdo con una caracterización realizada por UNODC sobre las familias beneficiarias del PNIS, el 57% de los hogares está en condiciones de pobreza monetaria; el 47%, de pobreza multidimensional, y el 93% asegura no haber participado en procesos de formalización de la propiedad. En octubre de 2021, Estados Unidos, el principal socio de Colombia y líder de la lucha contra el narcotráfico, incluyó en su nueva estrategia anti-droga la definición de medidas de éxito más amplias, como el acceso a servicios estatales o la presencia institucional. Así que mientras estas condiciones no mejoren, Colombia y el resto de países no pueden seguir aplaudiendo ante una simple reducción de cultivos de coca.

    3. Promover los usos alterativos de la hoja de coca. Esta planta contiene muchos más nutrientes y alcaloides y se le podrían dar diversos usos productivos y benéficos. Sin embargo, decidimos quedarnos con la relación de coca y cocaína y, por consiguiente, imaginar un país donde sólo erradicamos o sustituimos este cultivo. Colombia debiera mirar más hacia la región y aprender de las experiencias de Bolivia y Perú donde hay zonas autorizadas para cultivar coca para el uso tradicional, la industrialización y comercialización. Explorar los usos alternativos de esta planta debería ser una opción más para las personas que la cultivan.

    4. Descriminalizar las drogas. Éstas se instauraron con tanto éxito como el coco de las ciudades; lo que, al parecer, brinda carta blanca a los líderes para tomar decisiones sin evidencia ni evaluaciones que las respalden.

    5. Una política exterior con mayor corresponsabilidad y diálogos nuevos. De acuerdo con una publicación de 2016, se estima que los costes mundiales por operaciones de prohibición y vigilancia de drogas declaradas ilícitas es de 100.000 millones de dólares anuales. Estados Unidos ha manejado un presupuesto federal de alrededor de 25.500 millones, y los países miembros de la Unión Europea generan un gasto estimado de 7.800 millones anuales. ¿Por qué seguir malgastando conjuntamente tantos recursos?

    Un cambio de paradigma

    Es usual escuchar que debemos prohibir las drogas y, por ende, erradicar los cultivos de coca porque «todo consumo es problemático», o porque «millones de personas fallecen por el consumo de drogas». Ambas afirmaciones son mentira de acuerdo a los datos brindados por el último Informe Mundial sobre las Drogas. Se estima que, del total mundial de personas consumidoras, un 13% tiene consumo problemático, y que las muertes directamente relacionadas con las drogas fueron 128.000. Del total de esas muertes, el 69% están relacionadas con el consumo de opioides, una sustancia que se vende LEGAL e ilegalmente. Una cuestión a considerar es que muchos de estos consumos problemáticos y muertes se podrían reducir si se invirtiera principalmente en estrategias de reducción de riesgos y daños. Estas estrategias sí salvan y protegen vidas y son mucho más eficientes; la prohibición, no.

    Un referente de lo anterior es Portugal, donde hace más de 20 años decidieron despenalizar el consumo y porte de sustancias (un máximo de 10 dosis). Los resultados son contundentes con relación a la disminución del consumo, el índice de muertes relacionadas con las drogas y la población carcelaria. Además, se pusieron en práctica medidas como los programas de intercambio de jeringas, las unidades móviles para repartir metadona, el asesoramiento médico, la educación en lugares estratégicos y la adecuación del sistema de salud. También se hizo un importante trabajo con la Policía para que no trataran a los consumidores como criminales.

    Países productores como Colombia han cargado dramáticamente con las consecuencias de esta lucha y es hora de que el buen alumno, que ha cumplido con todo lo pedido, comience gradualmente a pedir cambios en sus relaciones exteriores respecto a las drogas. Los convenios de cooperación debieran incluir nuevos indicadores de éxito, inversión en estrategias de reducción de daños, descriminalización, rechazo contundente a los operativos terrestres y aéreos de erradicación forzosa y priorización del procesos de paz, entre otras.

    Además, mientras en algunos países europeos y norteamericanos regulan los mercados de cannabis para consumo adulto (o tienen esa intención), implementan servicios de reducción de daños y despenalizan de todas las sustancias, ¿por qué nos piden priorizar lo contrario?

    Fuente El País – Agenda Pública

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