From Peril to Partnership

US Security Assistance and the Bid to Stabilize Colombia and Mexico

Provides the first headlining case studies of the Mérida Initiative and Plan Colombia, and the important metrics of success related to the professionalization of a country's security forces

Includes recent analyses of the drug war in Colombia and Mexico, focusing on the countries' insurgent and criminal groups

Discusses how the failure of security assistance to stabilize Afghanistan--and the promise it shows in Ukraine today--have refocused debate in Washington on what makes US security interventions abroad successful

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Plan Colombia and the Mérida Initiative are the two most significant US security assistance efforts in Latin America in the twenty-first century. At a time when US objectives in the Middle East and Central Asia were flagging, Colombia was a rare US foreign policy victory—a showcase for stabilization and security sector reform. Conversely, Mexico struggled to turn the tide on the country’s scourge of crime and violence, even with an influx of resources aimed at professionalizing the country’s security, defense, and judicial institutions.

As Washington reconsiders its approach to stabilizing crisis countries after a challenging withdrawal from Afghanistan, From Peril toPartnership’s comparative analysis of Colombia and Mexico offers lessons for scholars and policymakers alike, providing insights into the efficacy of US security assistance and the necessary conditions and stakeholders in partner nations that facilitate success. Crucially, private sector support, interparty consensus on security policies, and the centralization of the security bureaucracy underpinned Colombia’s success. The absence of these features in Mexico contributed to the country’s descent into chaos, culminating in the country’s highest-ever homicide rate by the end of the 2010s.Drawing on extensive fieldwork, FromPeril to Partnership evaluates to what extent security assistance programs helped improve the operational effectiveness and democratic accountability of Washington’s partners—Colombian and Mexican security forces. It answers why Plan Colombia achieved its objectives and why the Mérida Initiative underdelivered in Mexico.

From Peril to Partnership goes beyond drug war theatrics and the “one-size-fits-all” approach to US-led stabilization—at once, restoring agency to institutions on the receiving end of US security assistance and helping chart a course toward more nuanced and effective US policy.

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From Peril to Partnership is a bracing, unrivaled account of Washington’s diplomatic relations with its most important Latin American partners. Paul J. Angelo masterfully tackles one of the most pressing foreign policy questions of our time: what should the United States do to strengthen returns on overseas security and defense investments? Following the collapse of Afghanistan's security forces, Angelo's constructive, pragmatic recommendations for tailoring US assistance, captured in lessons from Colombia and Mexico, will inspire much-needed reflection. Ukraine hangs in the balance. The stakes couldn't be higher. As Angelo correctly notes, the answers couldn't be clearer.

Admiral James Stavridis

USN (Ret), former Commander at U.S. Southern Command
and Supreme Allied Commander at NATO;
author of To Risk It All: Nine Conflicts and the Crucible of Decision

Paul J. Angelo’s book is a groundbreaking study of one of the thorniest subjects in Latin America-US relations: security sector reform and cooperation. It stands out in his broader understanding of the complexity of US efforts to pursue the goals of enhancing the capabilities of the security forces, forging a broader strategic partnership, and building democratic accountability. Perhaps the key conclusion of Angelo’s work, as drug-trafficking again becomes a challenge to the power of the state in both countries, is that success largely depends on buy-in from the host country and a deep understanding of local context by the donor government.This is a lesson that the United States has yet to fully absorb in its law enforcement cooperation policies around the globe.

P. Michael McKinley

former U.S.ambassador to Colombia, Brazil, Peru, and Afghanistan

Paul J. Angelo's groundbreaking comparative analysis of US security assistance in Colombia and Mexico helps uncover the conditions for successful stabilization policy, and it should inform US policy toward Latin America and across the globe. Angelo's extensive fieldwork also makes a masterful connection between effective security assistance and democratization. From Peril to Partnership should be required reading for scholars of democracy as well as for policymakers engaged in stabilization efforts.

Rebecca Bill Chavez

President and CEO, Inter-American Dialogue

Paul J. Angelo's detailed, skillfully written analysis of US security and law enforcement assistance to Colombia and Mexico provides important lessons that policymakers need to read. Success or failure of such efforts, he argues, lie in the institutional and political disposition of the recipient country. More controversially, he argues, centralized security sectors and delivering assistance in ways that do not challenge existing balances of power in the recipient country are more likely to result in better reform outcomes. Yet democratization often embraces decentralization and demands power changes. Angelo's findings are thus deeply uncomfortable, yet all the more important. In shaking up the established beliefs of many long-time practitioners and academics, From Peril to Partnership deftly delivers a great contribution.

Vanda Felbab-Brown

Director, Initiative on Nonstate Armed Actors, The Brookings Institution

By comparing Plan Colombia and the Mérida Initiative, and through extensive field research in two key complex Latin American countries, Paul J. Angelo provides an overall assessment of US security assistance efforts in the region and draws lessons for the future. This was an extraordinary endeavor and is a must-read for all security experts in our hemisphere.

Guadalupe Correa-Cabrera

Schar School of Policy and Government, George Mason University

Having worked on security assistance for forty years, I can attest that too little time is spent understanding the panoply of internal factors that influence how such assistance lands in a recipient country. By examining two similar cases from the same region, Paul J. Angelo has provided a seminal work that should be studied by policymakers, lawmakers, and practitioners alike as they grapple with how to 'do' security assistance better. These are not theoretical lessons from the past but as the collapse of Afghanistan's security forces is contrasted with the firm hold of Ukraine's, go to the core of current policy challenges.

Keith Mines

Author of Why Nation-Building Matters: Political Consolidation,
Building Security Forces, and Economic Development in Failed andFragile States

From Peril to Partnership provides a sharp analysis of why US security assistance succeeded better in Colombia than in Mexico. A scholar with first-hand experience in the policy making process, Paul J. Angelo shows how complex security challenges can still have effective and accountable solutions when the US leverages domestic conditions and brings local stakeholders to the table. Required reading for anyone interested in how security assistance can be done better and what to avoid.

Kristina Mani

Oberlin College and Conservatory

This compelling, comparative monograph by Paul J. Angelo will emerge as the definitive study of US security assistance in Latin America. Through exhaustive primary source research, multiple personal interviews in Colombia, Mexico, and the United States, Angelo's work offers innovative socio-historic insights for scholars, policy makers, and students of the region.

Michael J. LaRosa

Co-author Colombia: A Concise Contemporary History

Table of Contents

Forged under Fire: US Partnership with Colombia and Mexico

Chapter 1. The Security Sector in Latin America: Comparing US Security Assistance to Colombia and Mexico

Chapter 2. The Origins of Plan Colombia and the Mérida Initiative

Chapter 3.
Structuring Security Assistance in Colombia and Mexico

Chapter 4.
Evaluating Security Sector Reform in Colombia and Mexico

Chapter 5.
Bringing in Big Business: The Role of the Private Sector

Chapter 6.
Finding Common Ground: Interparty Relations and Continuity in Security Sector Reform

Chapter 7.
Building a Monopoly on Force: The Effect of Security Sector Centralization on Security Sector Reform

Chapter 8.
Sustaining Progress: A Retrospective of Plan Colombia and the Mérida Initiative

Conclusion: Security Assistance and Local Preferences and Power Relations

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