The Appeal (and Perils) of Crime Crackdowns in Latin America, Part 1
Sep 27, 2023 | 16:24 GMT
Soldiers conduct a patrol on July 22, 2023, in the Salvadorean municipality of Colon, where the MS-13 gang reportedly remains active.
Soldiers conduct a patrol on July 22, 2023, in the Salvadorean municipality of Colon.
(MARVIN RECINOS/AFP via Getty Images)
Editor's Note: This is the first of a two-part series that looks at El Salvador's fight against crime and why it's been so successful, as well as the implications and risks of other Latin American countries exploring similar strategies.
With the success of El Salvador's counter-crime state of emergency in decreasing the country's homicide rate to its lowest in history, similar measures have become attractive throughout Latin America, though extensive implementation would likely see only limited success, instead creating operational, safety and reputational risks for the region. In March 2022, Salvadoran President Nayib Bukele imposed a state of emergency to combat violent crime, with a focus on the country's two largest criminal groups, Mara Salvatrucha (MS-13) and Barrio 18. A massive crackdown on organized crime under the state of emergency led to a dramatic drop in the country's homicide rate, making it one of the safest countries in the region. Seeing El Salvador's success, in November 2022, Honduran President Xiomara Castro implemented a similar (albeit significantly less extensive) state of emergency to combat violent crime and extortion. Elsewhere in the region, elected officials and political candidates have called for the implementation of security tactics utilized by the Bukele administration, including mass incarceration, military presence in policing forces and targeted neighborhood-specific operations against cartel activity.
In 2015, El Salvador's homicide rate peaked at 103 homicides per 100,000 people, making it among the most deadly countries in the world. Over the following years, violence gradually decreased to levels on par with regional neighbors, before stabilizing in 2021 at 17.58 homicides per 100,000 people. In 2022, following the implementation of the state of emergency, that rate fell by more than 50% to 7.8 homicides per 100,000 people. Although the reliability of Salvadoran government crime statistics is unclear, interviews of residents of formerly high-crime neighborhoods have confirmed this improvement.
In Colombia, Diego Molano and Jaime Arizabaleta — candidates for the mayors of Bogota and Cali, respectively (though Arizabaleta has since withdrawn) — have proposed building prisons inspired by those that El Salvador has constructed in recent years if they win the regional elections on Oct. 29.
In Ecuador, businessman Jan Topic (who lost in the first round of the country's election on Aug. 20) promised to carry out a ''Bukele-style'' crackdown in addition to the construction of more prisons.
In Guatemala, Sandra Torres — the leader of the country's second-largest party, National Unity of Hope, and runner-up in the August presidential election — has also promised to emulate Bukele's security strategy, calling for the militarization of prisons.
In Peru, following a surge in crime, Lima Mayor Rafael Lopez Aliaga of the right-wing Popular Renewal party called for the implementation of Bukele-style measures as well, and for tanks to patrol the streets of the capital.
Continuing violence in Honduras nearly a year into the country's crime crackdown demonstrates that success is not guaranteed. Honduras' state of emergency shares many qualities with El Salvador's crackdown, including the regular deployment of additional police officers and army forces to high crime areas, the imposition of lockdowns and curfews, and limitations on citizens' constitutional rights. However, ten months into its implementation, Honduras' crackdown has done little to decrease crime risks. Some operations have successfully decreased violence in specific neighborhoods, and anecdotal reports indicate residents of some high-crime areas do feel safer, but nationwide crime levels remain elevated and in some ways have escalated. For example, violence in Honduran prisons has worsened significantly, with repeated massacres and riots. This limited success indicates challenges to replicating El Salvador's successful state of emergency elsewhere in the region.
In April, prisoners at the National Penitentiary in Tamara, Honduras, temporarily seized control of the facility, leading authorities to give control of the prisons to the military.
Honduras has been the most violent country in Central America since El Salvador's homicide rate fell below it in 2019. Homicides in the country dropped to 35.8 per 100,000 people in 2022 from 41.7 per 100,000 people in 2021.
Understanding El Salvador's Success
A key component of El Salvador's war on crime was the severity of the state of emergency, which suspended due process in the legal system. A significant, long-standing hurdle to combating organized crime throughout Latin America is the prevalence of police and government corruption. Corrupt practices among police officers, military members, and local and federal government officials enable criminal groups to entrench themselves in communities, evade capture, and expand criminal enterprises. This is the result of limited policy safeguards preventing corruption, low pay for government positions, and regular bribery and/or threats against officials. These risks have long been present in El Salvador, with the Bukele administration itself allegedly engaged in negotiations with the country's gangs prior to implementing the state of emergency. Continuing allegations of government corruption call into question how El Salvador has managed to overcome this challenge. One compelling explanation is that ''mano dura'' (iron-fisted) measures under the state of emergency have left little room for criminal groups to maneuver. Mass arrests and the abandonment of due process in the legal system may mean that members of Barrio 18 and MS-13 have not had the opportunity to bribe or threaten officials. Military deployment to high-crime areas has also overcome local alliances between police officers and gang members. Honduran police reported arresting 4,033 people between December 2022 and May 2023, with 81% ultimately released due to a lack of evidence; meanwhile, in El Salvador, over 70,000 people have been arrested, with only 6,000 people released. Approximately 2% of the country's adult population is currently in prison, many of whom human rights groups allege are innocent. Corruption in El Salvador persists, but the lack of due process and decreased opportunities for gangs to threaten or bribe police officers have overcome constraints from official corruption on counter-crime operations.
Transparency International's 2022 Corruption Perceptions Index gives El Salvador a low score of 33 out of 100 (in which a score of 100 indicates low levels of corruption). Meanwhile, Honduras has a score of 23, Ecuador has a score of 36, and Colombia has a score of 39.
In a recent example of the scale of El Salvador's localized gang crackdowns, on Aug. 1, authorities sent 7,000 soldiers and 1,000 police officers to the rural Cabanas province in response to a shooting attack that wounded two officers.
This level of implementation of counter-crime measures has only been possible because of Bukele's high popularity and minimal policy limitations. Since Bukele took office in 2019, his approval rating has never dropped below 80%, typically staying between 85% and 92%, which is rare for a Latin American leader. This level of support has given him the leeway to take controversial steps to combat organized crime, as a less popular political figure would have to consider how their political opponents may criticize such actions. But while Salvadoran opposition parties and human rights activists have criticized the state of emergency, mass public approval for the crackdown limits political risks to Bukele. Relatedly, Bukele's New Ideas party retains a significant majority in the Legislative Assembly, and his administration has stacked the judicial system with friendly judges, effectively eliminating the potential for legal challenges to the state of emergency. In comparison, Honduran President Xiomara Castro's Libre party has only 50 out of 128 seats in the country's National Congress, recently preventing her government from gaining congressional approval for a new attorney general. Other governments in the region face similar restrictions on how states of emergency can be implemented, limiting their ability to impose measures similar to those in El Salvador.
Finally, El Salvador's high population density benefits counter-crime operations, potentially making the state of emergency unreplicable in other countries in the region. El Salvador has a population density of 307 people per square kilometer, making it the most densely populated country in Latin America (excluding the Caribbean). The next most densely populated country is Guatemala, with a population density of 129 per square kilometer. El Salvador's population density has historically fueled crime, with the country's crowded, impoverished neighborhoods providing bases for Barrio 18 and MS-13 operations. But this population density has also aided counter-crime efforts over the last year, as deployments to high-crime areas include a significantly larger number of residents (and therefore criminals) than an operation in a similarly sized area in neighboring Honduras. Such operations create significant safety risks for residents and disrupt daily life in affected neighborhoods for days, but still enable authorities to arrest targeted criminal cells. In addition, many countries in Latin America have vast, underpopulated regions where criminal groups can operate with lower risks of disruption by security forces. For example, Colombia's Amazon basin regions have long provided space for guerilla groups to evade authorities. Ecuador, Peru, Chile and Brazil face similar challenges. Therefore, even if such countries were institutionally and politically able to implement a state of emergency to the same degree as El Salvador, they may struggle to achieve the same level of success.
Honduras has a population density of 95 people per square kilometer. Mexico's population density is 66 people per square kilometer, while Colombia's is 47 people per square kilometer.
Up next: The Appeal (and Perils) of Crime Crackdowns in Latin America, Part 2