Two Steps Forward, One and a Half Steps Back: Police Reform in Peru, 2001–2004
The transformation of the Peruvian police was one of the central reform projects in the administration of President Alejandro Toledo, who came to power amid high hopes in 2001, following decades of military and authoritarian rule. It was an ambitious goal and this article – told from the perspective of a minister at the center of the reform effort – shows the host of difficulties confronted in achieving it. The Peru case indicates how the sheer number of changes that need to be instituted simultaneously or in parallel, and on multiple levels can quickly overwhelm even the best-intentioned reform efforts. It raises the issue of how a process of such density and complexity can be managed, especially if – as is usual in such circumstances – it takes place in an environment of uncertainty and instability and where reform to other public sector institutions is equally pressing. It emphasizes the challenges of overcoming the tenacious resistance of security institutions to changing established systems and practices. Although some important changes have been made, many of the changes impinging on the habits and practices of the police were resisted. The case also shows that reform is not a linear process nor, once initiated, can it expect to be consistently supported. Indeed, Peru’s police reform process flip-flopped in political interest and support, with the consequence that although achievements were significant, they were much less than initially hoped.