PSCI3250001.

1178 Fall 2017-PSCI 3250-001 Global Security Issues

Policy Memo Written by Shelby Pariset

Managing and
Preventing Cartel
Growth between
the United States
and Mexico
TO: Genaro Garcia Luna, Secretary of Public Security
From: Shelby Pariset, Policy Advisor, United States Department of Homeland Security
Date: December 3, 2017
RE: Policy memorandum regarding the growing threat of drug cartels within the Mexico borders

Executive Summary

Drug trafficking has not always been a problem in Mexico. In recent years, there has

been an increase in criminal activity throughout Mexico that is a direct result of increased drug

cartels in the nation. Mexican cartels achieve power and control through use of technology for

communication allowing them to promote and recruit, smuggling through trade allowing for

revenue, and the use of crime-terror. Since the rise of the Mexican drug cartels, the Mexican

government has become corrupt and weak reducing the protection they can provide for their

people. The cartels have created a community and protection from governmental influence.

Cartels create transnational security conflict by threatening the public health of America through

the supply of drugs to the nation. The high crime rate they cause is spilling over the American

border creating conflict. Ending corruption in the Mexican government will allow the

government to control areas of high crime. Providing and promoting programs in the United

States and Mexico will reduce drug users and an increase in protection for those most likely to be

approached by cartels will provide incentive to reduce smuggling.

Background

1|Pariset
Mexico’s drug war can be traced back to the Colombian drug war. Plan Colombia was a US

response alongside an alliance with the

Andres Pastrana administration in a war

against drug production and trafficking in

Colombia. Plan Colombia provided $8

billion of US aid over 10 years. By 2010

President Uribe and his ‘democratic

security’ program was able to beat FARC

and disband paramilitary bands

throughout the country and decrease drug-

related violence substantially. Mexican

drug cartels took advantage of this by

taking over smuggling operation from

Colombia into the United States.1

The fight against drug cartel dates

back to, the 1930s however, it wasn’t

until the 1970s and 1980s that the United

States started creating programs and

Figures 1 and 2: Depict the growing threat of
government organization to combat the
drug cartels in Mexico from 2010-2017
growing threat. In 1972, the Office of Drug Abuse Law enforcement was founded. Two years

later the Drug Enforcement Administration (DEA) was established. Since then, the Medellin

1
LaRosa, Michael J., et al. “Chapter 20: Drug Trafficking and Organized Crime in the Americas: Major Trends in the 21 st
Century.” Neighborly Adversaries: Readings in US-Latin American Relations, Rowman & Littlefield, 2015, pp. 215–237.

2|Pariset
Cartel has risen and fallen, monetary budgets have increased aid in combating the war on drugs,

and there have been countless arrests of important drug cartel members.2 Despite the many

attempts to manage and control the major

drug cartels, the criminal organizations are

continuing to grow and prosper (Figure 1

and 23). Since 2010, there has been an

increase in land control of multiple cartels

and deaths have increased exponentially.

From 2006 to 2017 there have been a reported Figure 3: Graph showing drug related
murders through a 9-year period.
188,567 murders and 30,000 disappearances

related to the drug war. In 2006, Mexico officially declared war on organized crime.4 (Figure

35)

Analysis

Organizational Structure

Each criminal organization adopts a different network and hierarchy that allows

protection for the top leaders. Understanding the organizational structure of each cartel in

Mexico will help task forces working against these organizations. Drug organizations can work

in two different ways: teams and co-acting. Working in teams allow greater output using more

2
Celis-Carbajal, Paloma. n.d. “Research Guides: Mexico’s Mass Disappearances and the Drug War (Ayotzinapa: The Missing 43
Students): Drug War Timeline 1930-2015.” https://researchguides.library.wisc.edu/c.php?g=560513&p=3904772.

3
Tucker, Duncan. "Mexico's most-wanted: A guide to the drug cartels." BBC News. July 05, 2017. Accessed December 05, 2017.
http://www.bbc.com/news/world-latin-america-40480405.
4
Tucker, Duncan
5
Tucker, Duncan, Image

3|Pariset
than one person whereas co-acting allows for large output independently.6 Six major

characteristic emerge from international drug smuggling groups the hierarchy, rules,

communication, adaptability, coordination, and recruitment/promotion procedures. Hierarchy is

the means of ranking individuals to different levels throughout the organization and assigning

tasks based qualification. Successful Drug Trade Organization (DTOs) also rely on written rules

and procedures to follow. Adaptability is vital when changes in market conditions occur or when

law enforcement tactics and technology improve. Coordinating, recruitment, and promoting

require a high level of organization to ensure the best individuals are assigned the best suited job

for them to increase productivity.7 One of the most important aspects of cartels is the

organization. The degree of organization is closely related to the groups rationality. 8 Drug cartel

organizations in Mexico have large degrees of organization, resulting in major successes for the

cartels, allowing them to gain ground and control. When rationally making decisions, the cartels

are concerned with efficiency, however, efficiency is sometimes traded for more important goals

such as security.9

Communication

Criminal networks throughout Mexico work together. They have worked so well together

in the past, that the cartels have divided Mexico and successfully control certain areas.

Depending on the type of network each organization uses, is how information gets passed down

from the leaders to different actors in the organization. Communication happens throughout the

organization based on the structure of the organization; direct through a chain of command in a

6
Benson, Jana S., and Scott H. Decker. "The organizational structure of international drug smuggling." Journal of Criminal
Justice 38, no. 2 (2010): 130-38. doi:10.1016/j.jcrimjus.2010.01.001.

7
Benson, Jana S., pp. 132-133
8
Benson, Jana S., pp. 132
9
Benson, Jana S., pp. 132

4|Pariset
vertical structure or indirectly through a horizontal structure. It is important for successful

criminal organizations to be precise and provide a quick but effective means of communication.

Social media is used by criminal organization to distribute propaganda, communicate,

and recruit. Mexican DTOs use sites such as Facebook, Instagram, and Twitter to promote narco-

propaganda and gang lifestyle through a journalistic perspective and photos showing the lavish

lifestyle of successful leaders.10 The Sinaloa cartel, Los Zetas, La Familia Michoacana, the

Beltran Leyva Cartel, and the Caballeros Templarios do not use social media sites largely

because they do not want negative public attention.11 Social media spreads the presence of

organizations by showing signs and graffiti belonging to the cartels in the area allowing the

origin to be untraceable. Members of cartels use this tactic in open media accounts under the

name of the organization to reduce the chances of revealing identities.12

Trade

Drug Trade Organizations use smuggling routes to move products across borders. The

largest revenue producing drugs include Marijuana producing $8.5 billion, cocaine with $3.9

billion, and methamphetamine with $1 billion.13 The Medellin and Cali cartels of Colombia,

initially used Caribbean routes for drug smuggling operations throughout the 1970s and 1980s.

10
Dávila, Ana. "Social Media: Insight on the Internal Dynamics of Mexican DTOs." Journal of Strategic Security 9, no. 3 (2016): 49-
73. doi:10.5038/1944-0472.9.3.1539.

11
Davila, Ana. pp. 57
12
Davila, Ana. pp 58
13
Kilmer, Beau, Jonathan P. Caulkins, Brittany M. Bond, and Peter H. Reuter. "Beyond Marijuana Exports: Insights About Additional
Sources of Mexican Drug-Trafficking Organizations’ Drug Revenue." In Reducing Drug Trafficking Revenues and Violence in
Mexico: Would Legalizing Marijuana in California Help?, 27-34. RAND Corporation, 2010.
http://www.jstor.org/stable/10.7249/op325rc.12.

5|Pariset
These routes were shut down by the South Florida Task Force, established in 1982, and were

rerouted through Central America, the Gulf of Mexico, and the Pacific Corridor to go through

Mexico to smuggle into the US.

Later, Mexican cartels took over

routes and operations established by

the Medellin and Cali cartels.

Pressure from US and Mexican law

enforcement has resulted in Mexican

Figure 4: Map of drug smuggling routes throughout drug cartels moving operations into
Latin America.
neighboring nations resulting in the

spread of crime across borders.14 (Figure 415)

Crime-Terror

Cartels have gained power by instilling fear into those they recruit. Fear is also a means

of control for drug cartels throughout Mexico. However, violence is not used as a means of

control, but as a means of management. Terrorist organization and drug cartels are similar in the

aspect that both organizations use similar methods to succeed. Together the two organizations

pose a hybrid threat to other nations.16 The idea of organized crime and terrorism need to be

thought of in the same terms. Thinking of both in similar terms could lead to eradicating each

conflict in similar ways. Criminal organizations and terrorism are similar because criminal

14LaRosa,Michael J., pp.215-237

15
D'Otreppe, Stephanie. Smuggling Routes. Digital image. NPR. May 30, 2011.
https://www.npr.org/2011/05/30/136690257/mexican-cartels-spread-violence-to-central-america.
16
Picarelli, John T. "Osama bin Corleone? Vito the Jackal? Framing Threat Convergence Through an Examination of Transnational
Organized Crime and International Terrorism." Terrorism and Political Violence 24, no. 2 (March 14, 2012): 180-98.
doi:10.1080/09546553.2011.648349.

6|Pariset
organizations can use terrorism and terrorist organizations can use organized crime, thus working

together.17 While some criminal organization use fear as a means of production less than other

criminal organizations, Mexico cartels have used a larger amount of terrorist type of activity to

advance. There are different collaborations between drug trade organizations and terrorist

organization. Three different models serve as examples to how these organization work together.

1. There is a complete hybrid organization consisting of terrorism and criminal

organizations wherein they work together completely.

2. A lengthier relationship between the two groups. Meaning they work together, but at

a distance.

3. A very distance relationship between the two groups in which, activities between one

another affect decisions and actions from the each other.18

These groups working together causes a bigger threat more so than working separately.

Together they can aid each other in achieving goals. By helping one another and working closely

together, it can also result in transformation such as a terrorist group becoming a drug trade

organization or a criminal organization becoming a terrorist organization.19

Options
Decriminalizing/Legalizing Drugs

Mexico supplies America with a variety of drugs including marijuana, cocaine, and

methamphetamines. These three major drugs have different side effects making them all

dangerous in different ways. By legalizing drugs individuals can possess drugs without

repercussions. The safest way to legalize drugs is implementing regulations on the amount a

17
Picarelli, John T., pp. 182
18
Picarellii, John T., pp. 185
19
Picarelli, John T. pp. 185

7|Pariset
 person can possess and location of possession. Legalizing drugs would also allow the

government to tax the goods increasing government revenue. Legalizing drugs could result in

unintended danger for those who are not drug consumers. This motion would require serious and

effective enforcement on all levels.

Decriminalizing drugs is also an option.

Decriminalizing drugs would not legalize

drugs, but allows individuals to carry small

amounts with lower repercussion. This

would reduce the number of criminal

records in the nation.

Between 1973-1977 11 states

Figure 5: States that have legalized
marijuana. decriminalized possession of marijuana.

Currently, 29 states have legalized marijuana in some way. In 7 states, marijuana can be used as

recreational use, however, there are restrictions such as age and amounts one individual can hold.

Twenty-two states, have legalized marijuana solely for medical purposes which require certain

licenses to prescribe and distribute.20 (Figure 521) By legalizing substances, cartel profits

decrease.

Closing Off Trading with Mexico

The United States and America currently participate in many trade agreements with each

other. The trade relationship with Mexico also provides job security to US citizens. The largest

trade agreement the two nations have is the North American Free Trade Agreement (NAFTA). In

20
"State Marijuana Laws in 2017 Map." Governing magazine: State and local government news for America's leaders. September 14,
2017. Accessed December 07, 2017. http://www.governing.com/gov-data/state-marijuana-laws-map-medical-recreational.html.
21
State Marijuana Laws in 2017 Map

8|Pariset
 2016, goods and services traded equaled roughly $580 billion. Mexico is the third largest goods

trading partner with the US and the second largest supplier of goods imports to the US. In 2015,

exports to Mexico from the US supported almost 1.2 million jobs. Trade between the two nations

includes vehicles ($75 billion), machines ($51 billion), medical instruments ($13 billion), and

furniture ($11 billion), along with food such as vegetables ($5.6 billion) and fruits ($4.9

billion).22 Cutting off trade would allow smuggling drugs across the border to become difficult.

Since the US receives large amounts of goods from Mexico cutting off trade could be

detrimental. The US would have to increase trade with other countries which could be costly.

NAFTA allows free trade between the nations, so by increasing trade elsewhere, the nation

would have more expensive tariffs. The US could create free trade agreements with other

nations, benefiting the US and other nations. Trade with Mexico also provides jobs to the

American people, so cutting off trade would have a negative effect on the American economy

increasing unemployment. While smuggling would become difficult for cartels by closing off

trade they would find other ways of smuggling illegally across borders.

Increasing Policy

Drug organizations threaten governmental institutions through known illegal activity, and

undermines the control and power of law enforcement. The US government has provided over $2

billion in resources over the last ten years to help Mexico combat its growing drug organization

threat. Increasing funds to Mexico could prove to be costly for the US. The United States could

provide more agencies with personnel to Mexico to provide greater security. While increasing

security in Mexico, providing more funds to produce greater border security reducing crime

22
Mexico | United States Trade Representative. Accessed December 07, 2017. https://ustr.gov/countries-regions/americas/mexico.

9|Pariset
influx into the US. Providing more funds and hiring more personnel within the United States

trade administrations could ensure less smuggling across borders. Creating new programs is

costly, and ineffective results could jeopardize the further creation of more security programs

provided to Mexico.

Increasing border security and thoroughly inspecting imports are not the only policies

that would need to be changed. Within the US borders there would need to be a redefining of

narco-culture. This would cause individuals to be less interested in drugs and their effects.

Making public health a more important issue within the nation could slightly reduce the use of

recreational drugs.

Recommendation

Increasing policy is the best option at the current time considering all facts involved.

Cutting off trade would be to detrimental to the US economy. Legalizing and decriminalizing

drugs in the US is becoming popular among states but there is not enough evidence to provide a

strong enough argument that it is the best option. Increasing and promoting programs that

educate the population on dangers of drugs and criminal organizations is the best way to combat

drug use. By including education in secondary education institutions about specific drugs, the

nation could reduce the amount of young drug users. Increasing border security and inspecting

imports thoroughly, could decrease drugs smuggled into the United States and crime in the

nation. Also, increasing the pay rate for these positions specifically and providing protection for

these individuals would provide incentive for them to not allow the cartels to move products into

the US. Cartels are driven with use of power so increasing protection for those most directly

involved with possible contact of cartels could reduce the chances of these individuals giving

into bribes.

10 | P a r i s e t
 Bibliography

Benson, Jana S., and Scott H. Decker. "The organizational structure of international drug
smuggling." Journal of Criminal Justice 38, no. 2 (2010): 130-38.
doi:10.1016/j.jcrimjus.2010.01.001.
Celis-Carbajal, Paloma. n.d. “Research Guides: Mexico’s Mass Disappearances and the Drug War
(Ayotzinapa: The Missing 43 Students): Drug War Timeline 1930-2015.”
https://researchguides.library.wisc.edu/c.php?g=560513&p=3904772.
D'Otreppe, Stephanie. Smuggling Routes. Digital image. NPR. May 30, 2011.
https://www.npr.org/2011/05/30/136690257/mexican-cartels-spread-violence-to-central-america.
Dávila, Ana. "Social Media: Insight on the Internal Dynamics of Mexican DTOs." Journal of
Strategic Security 9, no. 3 (2016): 49-73. doi:10.5038/1944-0472.9.3.1539.
Kilmer, Beau, Jonathan P. Caulkins, Brittany M. Bond, and Peter H. Reuter. "Beyond Marijuana Exports:
Insights About Additional Sources of Mexican Drug-Trafficking Organizations’ Drug Revenue."
In Reducing Drug Trafficking Revenues and Violence in Mexico: Would Legalizing Marijuana in
California Help?, 27-34. RAND Corporation, 2010. http://www.jstor.org/stable/10.7249/op325rc.12.
LaRosa, Michael J., et al. “Chapter 20: Drug Trafficking and Organized Crime in the Americas: Major
Trends in the 21st Century.” Neighborly Adversaries: Readings in US-Latin American Relations,
Rowman & Littlefield, 2015, pp. 215–237.

Mexico | United States Trade Representative. Accessed December 07, 2017.

https://ustr.gov/countries-regions/americas/mexico.

Picarelli, John T. "Osama bin Corleone? Vito the Jackal? Framing Threat Convergence Through an
Examination of Transnational Organized Crime and International Terrorism." Terrorism and
Political Violence 24, no. 2 (March 14, 2012): 180-98. doi:10.1080/09546553.2011.648349.

"State Marijuana Laws in 2017 Map." Governing magazine: State and local government news for
America's leaders. September 14, 2017. Accessed December 07, 2017.
http://www.governing.com/gov-data/state-marijuana-laws-map-medical-recreational.html.

Tucker, Duncan. "Mexico's most-wanted: A guide to the drug cartels." BBC News. July 05, 2017.
Accessed December 05, 2017. http://www.bbc.com/news/world-latin-america-40480405.

Grade: A-

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