The Role of UNODC in drug and crime control



International drug trafficking – Threats, challenges and responses

Policing Across Borders Project

John Jay College of Criminal Justice, New York

December 2008

Brian Taylor – former Chief, Anti-Trafficking Section,

United Nations Office on Drugs and Crime (UNODC)

Introduction

Globalisation has brought many benefits. Business and commence has gained. We have cheaper, more accessible goods from all regions of the world. We live in a world of instant communications – of mobile phones, lap tops, blackberries. We have access to relatively low cost and much easier travel.

A dark side of globalisation has been the growth of transnational organized crime and terrorism. As more people take advantage of the freedom of movement and of widely available and less costly travel opportunities, as more goods and tens of thousands of containers cross international borders, it is harder for the authorities to detect the illicit consignment, the criminal and the terrorist.

Criminal organizations are becoming stronger and more diverse, engaging more frequently in systematic forms of cooperation designed to further their criminal activities. They use their enhanced mobility and capacity to exploit legal commerce for concealment of illicit drugs and other forms of contraband. They use the global banking system for accumulating, moving and laundering the proceeds of their crimes. They are ever more resourceful in their smuggling methods and they take full advantage of the range of criminal opportunities presented. These include the trafficking in drugs, particularly cocaine and heroin. Consistently high consumer demand and appetite for these drugs ensures an attractive and extremely lucrative market for the criminal to exploit.

The international financial crisis has had repercussions throughout the world resulting in many senior politicians describing this as ‘a global problem which requires a global solution’. Great efforts are being made to bring the international community together in the pursuit of a more united approach to solving the crisis. Transnational organized crime and particularly that of drug trafficking is also on a global scale. But in addition to thinking globally it is crucial to act nationally and locally. Action and solutions are required at international, national and local levels. Ensuring that effective international measures are in place to counter organized crime and terrorism has never been so essential.

DRUG TRAFFICKING AND OTHER FORMS OF TRANSNATIONAL ORGANIZED CRIME – THE CHALLENGES

The degree to which the problem of transnational organized crime has become a truly global phenomenon during the past two decades is remarkable. International drug trafficking is perhaps the most well known of these crimes. It has negative consequences on many countries. But the drug problem cannot be considered in isolation. Criminals are often involved in a range of activities. Their objective is to make money.

Well developed routes used for the trafficking of drugs are also used to smuggle people, firearms, counterfeit goods and other forms of contraband. Trafficking in human beings, the smuggling of migrants, trafficking in small arms and light weapons, counterfeiting, kidnapping and money laundering are amongst the many serious challenges that confront the international community. Cyber crime and identity theft, crimes that require specialist expertise and innovative responses are relatively new challenges. The problem of corruption is often a factor in many crimes.

Porous borders and weak border controls in many countries contribute to the problem. But it is important to recognise other factors that create an environment where crime can flourish such as poverty, lack of economic opportunities, inadequate legal structures, limited state capacities and lack of cooperation between law enforcement agencies.

To enable effective action to be taken to counter the problem of transnational organized crime, policy makers and practitioners need accurate information about illicit markets to better understand the problem and assist in making strategic choices, particularly in the allocation and deployment of resources. This type of research is one of the major components of the work of the United Nations Office on Drugs and Crime (UNODC). An example is the UNODC World Drug Report 2008 which provides extensive information about the global drug problem and is the source of many of the statistics quoted in this paper.

Organized crime as a threat to security, stability and development

The various forms of organized crime, particularly drug trafficking, pose a threat to the security and stability of states, undermining the rule of law and damaging their societies and communities. Developing and transition countries and those in conflict zones are particularly vulnerable to the impact of organized crime.

Organized crime impacts adversely on economic and political security especially those transition and post conflict countries where the process of economic reform is often fragile and public institutions are in the process of development. It can act as a brake to economic growth, hampering development. For example the lack of security and stability, absence of the rule of law and fear of serious crime are major disincentives to companies considering investment and embarking on commercial activity. Organized crime fuels corruption. The bribery of officials such as police, border guards and customs officers leads to mistrust and lack of public confidence in the police and other authorities.

The negative impact of illicit drug trafficking has been profound in many countries. In addition to the problems caused in the main‘consumer’ countries which are targeted by the traffickers, parts of these illicit drug consignments have ‘spilled over’ into the transit countries causing great harm. For example the opiates/heroin trafficked from Afghanistan through the Central Asian States has led to a serious increase in HIV/AIDS in those countries due to the rise in injecting drug use. The consequences of drugs being trafficked through the Islamic Republic of Iran and Pakistan have been severe. Both countries now have tens of thousands of addicts as a result of opiates transiting from Afghanistan.

Organized crime and terrorism

The link between organized crime and terrorism is extremely difficult to quantify.

It is however an undisputed fact that terrorist groups need money to buy weapons, explosives and generally finance their operations. Much of this is sourced from organized crime activities often including actual drug production and trafficking. Some are known to ‘tax’ drug producers and traffickers. Some are involved in other forms of criminality such as kidnapping for ransom.

An example of an organization involved in a range of criminal activities is the Revolutionary Armed Forces of Colombia, known as FARC. The activities of this organization in cocaine production, trafficking and also kidnapping are well documented.

Afghanistan and illicit drugs

One of the biggest challenges facing the international community is the situation in Afghanistan. It is a desperately poor country, one of the poorest in the world. It is by far the leading global producer of illicit opium accounting for over 90% of the global total. It is a troubled state which is beset by conflict, violence, instability, organized crime, drug trafficking, increasing drug addiction, terrorism and corruption. What is taking place in Afghanistan has hugely adverse consequences on its neighbouring states and others far beyond.

Opium poppy cultivation

Opium poppy cultivation and opium production in Afghanistan has increased significantly over the past 20 years reaching record levels in 2007.

Globally in 2007 the total area of illicit opium poppy cultivation was approximately 235,700 hectares. Of that figure, the UNODC 2007 Annual Opium Survey in Afghanistan estimated that 193,000 hectares, (82% of global cultivation) took place in Afghanistan. This represented a 17% increase in cultivation over the 2006 figure (165,000 hectares – which in turn was a 33% increase over 2005). Significantly the 2007 figure revealed that the amount of Afghan land used for growing opium was larger than the combined total under coca cultivation in the three Latin America producing countries - Colombia, Peru and Bolivia (181,600 hectares).

By contrast to the situation in Afghanistan, significant progress has been made during the last decade in the Golden Triangle, the countries of Myanmar, Lao PDR and Thailand, which for so long has been associated with large scale illicit opium production. Thailand has been de facto opium-free for several years. Vietnam is also de facto opium-free. Laos has cut opium production by 94% in less than a decade. Opium cultivation in Lao PDR is down to 1,500 hectares, with production standing at 9.2 metric tons in 2007. However in Myanmar opium cultivation increased from 21,500 hectares in 2006 to 27,700 hectares in 2007 (6% of the global total).

Encouragingly the results of the UNODC Annual Opium Survey which took place in Afghanistan in 2008 showed a reduction in cultivation of 19% to 157,000 hectares. A significant factor in the decline was severe drought which resulted in crop failure in some provinces. Successful counter-narcotics efforts in the northern and eastern provinces where the security situation is more stable was also a factor.

Eradication efforts by the Afghan authorities were severely hampered by attacks from insurgents. In 2008 at least 78 people are known to have been killed, most of whom were police officers. One of those killed was a member of the UNODC team involved in the task of verifying the eradication statistics. Despite these attacks an estimated 5,480 hectares was eradicated.

There is a distinct North-South divide in opium cultivation and production. Progress has been made in the centre and north of Afghanistan, where the government has increased its authority and presence. 18 of the 34 Afghan provinces are now regarded as poppy free compared with only six in 2006. However a serious problem remains in the south and south-west of the country where the bulk of opium poppies were grown in a handful of provinces along the border with Pakistan where instability is greatest.

Cultivation in the volatile province of Helmand, where the Taliban insurgency is concentrated, continued at a very high level (103,500 hectares). Helmand, Kandahar and other opium producing provinces in the south are the richest and most fertile - in the past the breadbasket of the nation and a main source of earnings.

The seven principal producing provinces are Helmand, Kandahar, Uruzgan, Farah, Nimroz, Day Kundi and Zabul. These account for an estimated 98% of Afghanistan’s total opium production. Security conditions are extremely problematic in these provinces making many districts inaccessible to the UN and non-governmental organizations.

The Taliban today control large areas of land in Helmand, Kandahar and along the Pakistan border with opium cultivation in Afghanistan now appearing to be closely linked to insurgency. Yet in July 2000, the leader of the Taliban, Mullah Mohammed Omar, argued that opium was against Islam and banned its cultivation. The ban was strictly enforced. This action, combined with a severe drought, resulted in the cultivation and production of opium decreasing in an unprecedented way.

In February, 2001 a United Nations survey revealed that cultivation had decreased dramatically. A further assessment mission involving representatives of the donor community carried out in late April and early May 2001 confirmed these findings. Following this a series of discussions took place between the UN and donor countries to consider the possibilities of providing international assistance including the provision of alternative livelihoods and substitute crops for cultivation by the farmers affected by the ban.

However the terrorist attacks on the USA of 11 September 2001 followed by the conflict which resulted in the overthrow of the Taliban regime led to a window of opportunity for the Afghan poppy farmers to resume their activities in planting and cultivating the opium poppy. Many took advantage of this. Despite an early statement of intent in January 2002 by the incoming Interim Administration in Afghanistan and the issuing of a decree to ban opium poppy cultivation combined with eradication efforts, there was a significant increase in cultivation and production in 2002.

There have been various reports of substantial sums from the illicit drug economy fuelling the Taliban insurgency in Afghanistan. The actual amount is unclear however the Executive Director of UNODC, Antonio Maria Costa, in a commentary to the Afghan Opium Survey 2008, launched in London in November 2008 provided an indication. He suggested that almost half a billion dollars of tax revenue may have been extracted from drug farming, production and trafficking by war-lords, drug-lords and insurgents. Mr. Costa commented ‘not surprisingly the insurgents’ war machine has proven so resilient’.

Illicit opium production

In 2007, global opium production reached 8870 metric tons. It has doubled since 1998. Afghanistan accounted for 8,200 tons of that global figure. A record harvest combined with high yields from the poppy resulted in production increasing by 34% (to 8,200 tons from 6100 tons in 2006). However the 2008 UNODC poppy survey in Afghanistan, estimates that production will fall by around 6% to 7,700 metric tons. A total of about 2.38 million persons, or 9.8% of Afghanistan’s 24.5 million population, are now estimated to be involved in opium poppy cultivation.

Myanmar was the second largest producer of illicit opium in 2007 at an estimated at 460 tons. This was an increase of 46 per cent over 2006 (315 tons) and the highest production since 2003. There is evidence of significantly increased opium cultivation in the South Shan State of Myanmar. As in parts of Afghanistan and Colombia, where there are security problems, various groups appear to be taking advantage and profiting from instability.

Of the estimated 7,700 tons of opium produced in Afghanistan in 2008 it is calculated that around 60% of this is being refined in the country to produce large amounts of morphine and heroin (630 tons) which is then smuggled out. To convert 60% of the opium (around 4,438 tonnes) into morphine and heroin would require at least 1,200 tonnes of acetic anhydride along with approximately 11,000 tons of other non-controlled chemicals (solvents, acids, bases – part of the cleaning/purification process).

Afghanistan is not a producer or legitimate user of acetic anhydride. More coordinated international efforts are required to prevent the smuggling of these chemicals into the country. Where seizures of acetic anhydride and other chemicals are made then professional law enforcement investigation and methodical backtracking is necessary to identify the source of these consignments.

Porous borders

Thousands of miles of land borders present opportunities for traffickers and a serious challenge for the Afghan authorities to develop effective controls. The terrain is extremely difficult to police and the difficulties are compounded by the lack of adequately equipped and trained staff.

International assistance is being provided to the government of Afghanistan to improve border security and develop border controls. Part of these international efforts is a UNODC project for the strengthening of the Afghan / Iranian border. The project involves establishing and equipping 25 border control points along the mutual border in the provinces of Herat, Farah and Nimroz. Support includes the provision of communications equipment, vehicles, search equipment and training of officers.

Afghanistan – an increasing cannabis problem

It is estimated by UNODC that there are around 166 million cannabis users globally. Cannabis is by far the most widely produced, trafficked and consumed plant-based drug worldwide. Both potential production and THC levels of cannabis are rising, as is the demand, worldwide for treatment for cannabis abuse. Of further concern in Afghanistan is the substantial increase in cannabis cultivation and production of cannabis resin. UNODC estimates suggest that the area under cannabis cultivation increased from 30,000 hectares in 2005 to 50,000 in 2006 and 70,000 hectares in 2007.

Opiate trafficking routes

Europe is the destination for the bulk of Afghan opiates. Precursor chemicals used in the production of heroin often travel in the opposite direction. The largest proportions of illicit opiate consignments are trafficked through the Islamic Republic of Iran, through Turkey and countries along the Balkan route in South Eastern Europe. Other routes from Afghanistan are the northern route through the Central Asian States and south through Pakistan. As regards the modus operandi used for trafficking, transport by road continued to be the most common for large quantities. Trafficking takes many forms and a variety of different routes used. Routes are frequently changed and ‘disguised’ by diverting consignments through third countries where controls are weak to avoid suspicion that drugs are being brought from a source country. But traffickers will always seek the weakest link where the risk of detection is lowest.

Methods of trafficking

Concealments of drugs are many and varied. There is no limit to the resourcefulness of the traffickers. Containers transported by land or sea are a favoured way to smuggle large quantities of drugs. Vehicles are adapted in various ways to provide hidden compartments ranging from under the floor, in the engine compartment, the petrol tank, cab of the lorry or boot of a car. Consignments of drugs have been found concealed in tins, in fruit and coconuts. Heroin has been impregnated into carpets.

Drug couriers use various methods including the traditional but ubiquitous method of concealment in luggage. Other couriers use ‘body packing’ with drugs concealed around the human body. The ingesting of illicit drugs and concealments in body orifices are also favoured with these couriers often referred to as ‘stuffers’ and ‘swallowers’. Shoes with hollowed-out soles, wheel chairs and walking sticks have been used to conceal cocaine or heroin. Criminals do not put any age restriction on couriers. They span the generations from young children and teenagers to the elderly.

Condoms filled with cocaine, heroin and even ecstasy are swallowed by the courier. There is always a danger in this method and a number of incidents have been recorded of the untimely death of a courier when one of the condoms has split. The arrest or death of a courier can be swiftly overcome as criminal organisations exploit a ready source of people of different nationalities lured by the prospect of free travel and the promise of substantial sums of money.

Cocaine - Coca cultivation

Global illicit coca cultivation continues to be concentrated in the Andean countries of Colombia, Peru and Bolivia. Based upon UNODC’s survey in the Andean Region it is estimated that overall coca cultivation in 2007 increased by 16% to 181,600 hectares, thus reversing the downward trend of the last few years.

The overall increase was primarily due to more areas under coca cultivation in Colombia, rising by 27% (to 99,000 hectares) on a year earlier. Almost half of the cocaine production in the country is taking place in areas where the FARC is heavily influential. Although the area under coca cultivation increased by 4% in Peru (to 53,700 hectares) this is still well below the cultivation figures of the mid 1990s when Peru had the largest coca bush cultivation. In Bolivia coca cultivation rose by 5% (to 28,900 hectares). Despite the increase in the area under coca cultivation in 2007 the global figure is still some 18% less than the situation in 2000.

Cocaine production

Global cocaine production amounted to some 994 tons in 2007. Although this is an increase from the 984 metric tons in 2006 it is still marginally lower than the peak year of 2004 when it is estimated that 1,008 metric tons was produced.

Despite the significant increase in coca cultivation in 2007 production of cocaine was relatively stable, mainly due to a decline of coca yields per hectare in Colombia. This decline seems to have been the result of more scattered and less well tended fields and a reduction of coca leaf production in high-yielding areas, more than offsetting the increases of cultivation in low-yielding areas. All of this appears to have been a consequence of ongoing government pressure against large-scale coca cultivation and strong eradication efforts in high-yielding areas of the country. In other words, while eradication in 2007 was not sufficient to prevent the area under cultivation from increasing, it seems to have helped to prevent a net increase in cocaine production. Global cocaine production over the last decade has remained roughly stable.

Trafficking in cocaine

Cocaine trafficking is primarily from the Andean region to main consumer markets in North America and Western Europe. Most of the cocaine intercepted globally is seized in the Western Hemisphere. The main cocaine trafficking routes run from the Andean region, notably Colombia, to the United States.

Global cocaine seizures – at street purity level – amounted to 706 tons in 2006, declining slightly (-6%) from the peak figure of 750 tons reached in 2005. Overall, 81% of global cocaine seizures took place in the Americas in 2006. As has been the situation for several years the world’s largest cocaine seizures were made by the Colombian authorities (26% of total) reflecting the strong enforcement efforts in that country. Seizures in the USA amounted to 21% of global total with the next largest cocaine seizures in the Americas being in Venezuela (6% of total) and Panama (5% of total).

The second largest and growing market of West and Central Europe, accounted for 17% of global seizures in 2006. The largest seizures in Western Europe and the third largest worldwide were reported by Spain (7% of total or 50% of European seizures, followed by Portugal (5% of total or 35% of European cocaine seizures) and the Netherlands (11% of European cocaine seizures).

The African nexus

A new and significant trend is the increasing prominence of Africa, notably of West and Central Africa, as transit points for cocaine shipments from South America destined for the European markets. The proportion of individual cocaine seizures made in Europe that were found to have transited Africa rose from 5% in 2004 to 12% in 2006 and 22% in 2007.

Countries along the Gulf of Guinea and off the coast of Cape Verde have been particularly affected, while cocaine use has also increased in West Africa. Cocaine is frequently shipped into the countries along the Gulf of Guinea, from where it is usually trafficked by individual couriers to various destinations in Europe, the main African re-distribution centres being Ghana and Nigeria.

The increase in seizures has been particularly evident in the West and Central Africa sub region. The largest seizures were reported by Nigeria. Guinea-Bissau was frequently mentioned as the main transit location in UNODC’s individual drug seizure database. In April 2007 the police of Guinea-Bissau made a major seizure of 635 kg of cocaine that had been flown into a military airstrip. In June 2007, Senegalese authorities made their highest ever seizure of cocaine.

East Africa, with its own growing drug problem and high levels of corruption, is a convenient transit and storage point for international drug cartels.

THE ROLE OF UNODC IN DRUG AND CRIME CONTROL

The United Nations organization has many parts and deals with a wide range of activities including humanitarian, environmental, health, development and peacekeeping. The UN also makes an important contribution to assisting the 192 Member States of the United Nations in their efforts to combat organized crime, drug trafficking and terrorism.

The UNODC with a Headquarters in Vienna, Austria and a liaison office in New York has a network of regional, country and project offices delivering technical assistance and implementing projects in all regions of the world. The organization is responsible for the implementation of a number of international conventions. These are the:

- Single Convention on Narcotic Drugs 1961

- Convention on Psychotropic Substances 1972

- Convention Against Illicit Traffic in Narcotic Drugs and Psychotropic Substances 1988

- Convention against Transnational Organized Crime, 2000 and protocols (TIP, SOM, Firearms)

- Convention against Corruption 2003

- International Convention for the Suppression of Financing of Terrorism (12 international conventions against terrorism.

UNODC work programme, expertise and services:

The three main pillars of UNODC work relate to:

• Research and analytical work – to increase knowledge and understanding of drugs and crime issues to expand the evidence/knowledge base for policy, strategic and operational decisions.

• Normative work – assisting States in the ratification and implementation of the various international treaties; the development of domestic legislation on drugs, crime and terrorism and the provision of secretariat and substantive services to the treaty based and governing bodies such as the Commission on Narcotic Drugs and the Commission on Crime Prevention and Criminal Justice.

• Delivery of field based technical cooperation projects – to improve the capacity and effectiveness of Member States to counter illicit drugs, organized crime, corruption, general crime and terrorism

UNODC offers a range of services to Member States including:

• Legal advisory services such as assistance in developing legislation and training of criminal justice practitioners

• Action against money laundering

• Anti-Trafficking – actions to counter drug trafficking, organized crime, trafficking in persons, counter kidnapping, improving border control, witness protection, training of law enforcement officers

• Anti-corruption assistance

• Promoting international cooperation between law enforcement bodies. This includes the facilitation of annual regional meetings of the Heads of National Drug Law Enforcement Agencies (HONLEA).

• Drug Prevention and treatment

• Alternative development assistance

• Illicit crop monitoring programme (cocaine, opium, cannabis surveys)

• Research publications

• Project design and delivery of technical assistance

Law enforcement problem areas

UNODC technical assessments conducted in various parts of the world highlight the need for assistance in many areas, particularly in law enforcement. Many countries are ill equipped to respond to the challenges of organized crime and drug trafficking. Some of the main problem areas relate to:

- Ineffective border controls

- Absence of any real strategic response or operational focus

- Poor inter-agency working

- Inadequate systems for intelligence gathering, analysis and use. A reluctance to share information between agencies.

- Lack of effective cooperation at national/cross border/regional/international levels

- Lack of equipment

- Lack of trained staff and expertise in specialist areas

- Limited exposure to modern law enforcement methods such as controlled delivery and other special investigation techniques

Examples of UNODC law enforcement technical assistance projects

In response to the problem areas identified, UNODC is implementing a range of technical assistance activities. A few examples:

Strengthening border control

Crime is increasingly transnational and knows no frontiers. The sheer volume of people, vehicles, aircraft, rail and vessels crossing international borders contributes to the difficulties for the authorities to detect the smuggling of drugs and other illicit consignments. A focus of the work of UNODC is to assist Member States in strengthening border control. Projects include:

- Reinforcing drug control capacities at international airports in each of the five Central Asian states.

- Strengthening drug and related crime control measures in selected checkpoints in Kazakhstan and multi agency border teams in Kyrgyzstan.

- Establishment of border liaison offices in six South-East Asian countries

- Countermeasures against illicit drug trafficking and cross-border crime along Southern and East African land borders.

Specialist training for law enforcement officers

UNODC provides specialist training for law enforcement officers including:

• Planning and implementation of specialist operations

• Investigation of major crime, gathering/preservation and use of evidence

• Mobile and static surveillance

• Covert intelligence gathering

• Undercover operations – use, management and control of informants

• Technical/electronic evidence gathering

• Interview skills.

• Computer based training

Training is often followed with the provision of essential equipment such as radio communications; mobile phones; computers; vehicles; motor cycles; binoculars; night vision equipment; narcotic and precursor test kits.

The UNODC / World Customs Organization (WCO) Container Control programme

On a daily basis tens of thousands of containers are used throughout the world to transport legitimate cargo. But they can also be a means and excellent resource for the criminal to conceal and smuggle illicit goods. There are many examples of commercial containers being used to facilitate the bulk smuggling of large quantities of drugs and other contraband such as weapons, explosives, counterfeit goods, stolen vehicles and other illicit commodities. It takes a Customs rummage crew considerable time to effectively carry out the search of just one container so it is vital that careful container risk profiling is carried out to ensure that resources are used to best effect.

To assist countries to establish effective controls and security standards at their ports, handling terminals and borders the UNODC has developed a Container Control programme with the World Customs Organization (WCO) with the aim of strengthening procedures to prevent containers being used to smuggle drugs and other forms of contraband. Joint Port Control Units (JPCU) from customs, police and port authorities are being established at a number of key ports. Staff are supplied with basic operational equipment and trained to identify and inspect high-risk freight containers with a minimum of disruption to legitimate trade and business. Training is delivered by international experts with experienced mentors providing support.

The programme currently includes four countries – Ecuador, Senegal, Ghana and Pakistan - but is being expanded in 2009. New partnerships are being forged, links with the trade and business community developed, closer cooperation and information exchange mechanisms introduced.

It has resulted in improved cooperation between law enforcement agencies and port authorities, led to more effective risk profiling and success in making significant seizures of cocaine and other forms of contraband, especially in Ecuador.

Improving regional law enforcement cooperation

A crucial issue is the need to improve cooperation and intelligence exchange between law enforcement agencies. UNODC facilitates annual regional meetings of Heads of National Drug Law Enforcement Agencies (HONLEA). These are held in Africa, East Asia and the Pacific, Europe, Latin America and the Caribbean, together with the Sub-commission on Illicit Drug Traffic and related matters in the Near and Middle East. The value of these five regional meetings is to bring together senior, experienced professionals from many countries and agencies and provide a forum for the exchange of information, ideas, strategies, lessons learned and sharing of good practice. They assist in widening the professional network of law enforcement counterparts, are valuable in promoting operational cooperation and lead to practical recommendations for action.

UNODC is also currently implementing two major projects specifically designed to improve regional law enforcement cooperation and coordination. These initiatives are to establish a Central Asian Regional Information and Coordination Centre (CARICC) and a Gulf Centre for Criminal Intelligence (GCCI).

The CARICC project has been developed with the objective of improving regional cooperation between the law-enforcement bodies of the five Central Asian states ((Kyrgyzstan, Kazakhstan, Tajikistan, Turkmenistan, Uzbekistan), together with Azerbaijan and Russia in the fight against transnational organized crime related to illicit drug trafficking from Afghanistan.

Based upon the Europol model (the intelligence agency of the European Union Member States), CARICC is located in Almaty, Kazakhstan. The pilot phase started in November 2007 and the Centre should be fully operational by late 2009. Liaison officers from the participating states, representing a variety of agencies, are based at the Centre which now provides a focal point for information exchange and operational cooperation. Other foreign international law enforcement liaison officers working in Central Asia have observer status. CARICC has being equipped with the Interpol I/24/7 communications system which also provides access to Interpol data bases. In addition to Interpol the Centre will also be linked to Europol, World Customs Organization and other law enforcement institutions.

The agency should significantly help in overcoming barriers to information sharing and help build trust between the various law enforcement agencies. It will assist in promoting greater cooperation between these agencies in the facilitation and coordination of joint operations and other operational activities in the region.

A similar model for the Gulf States - the Gulf Centre for Criminal Intelligence (GCCI) – for Bahrain, Kuwait, Oman, Qatar, Saudi Arabia, and the United Arab Emirates is being established in Doha, Qatar.

Witness Protection

In the investigation and prosecution of crime, particularly the more serious and complex forms of organized crime, it is essential that witnesses have trust and confidence in criminal justice systems. In February 2008 UNODC published a Witness Protection Good Practices manual. It is based on input from a series of regional meetings with the active participation of expert representatives from law enforcement, prosecutorial and judicial authorities of Member States.

The publication reflects experience from different geographical regions and legal systems, together with existing literature, previous and ongoing work by UNODC as well as other international and regional organizations. In the development of the document, UNODC consulted with more than 50 countries and 15 international organizations. The Manual has been made available to relevant law enforcement and judicial authorities worldwide.

KEY COMPONENTS OF AN EFFECTIVE STRATEGIC RESPONSE

The UNODC technical assistance projects highlighted above give a few examples of those specifically designed to assist law enforcement in countering drug trafficking. However UNODC technical assistance and project activities go much wider. They also include prevention, treatment, education, alternative development, legislative assistance, research, anti-money laundering, precursor control, scientific support and illicit crop monitoring. They reflect the wide range of approaches necessary in dealing with the complexities of the drug problem.

The development and implementation of a comprehensive and balanced strategy with clear objectives and targets provides the necessary foundation for tackling the drug problem. The following components should be considered:

1. Understanding the problem / information – What is the actual extent of the problem faced? What is the threat? What progress is being made? Information is available and can be obtained from a wide range of organizations and other sources but it needs to be gathered, assessed and analysed. Systems for this should be in place and up to date information on the situation maintained.

2. Legislation – Professional criminals will seek to exploit weaknesses and loopholes in legislation. It is essential that appropriate legislation is in place. This should include the means to deal with money laundering. To provide powers to seize and confiscate the assets of the criminal and to strip away the profits of criminal enterprises.

3. Vigorous and effective law enforcement – Law enforcement is an important component but it cannot be considered in isolation. Whilst well organised, intelligence led law enforcement action can achieve success in terms of substantial seizures of illicit drugs and criminals arrested the effects of these actions are often short term. The massive profit element involved in drug trafficking ensures that there will be other criminals and new supplies of illicit drugs to replace those taken out.

4. Demand reduction / reducing the health risks - The consumer appetite for illicit drugs continues at a high level so reducing the demand for drugs is a vital part of the strategy. Prevention and education efforts to raise awareness and discourage drug misuse need to be accompanied by measures to reduce health risks including the provision of advice, counselling, treatment and rehabilitation services for those abusing drugs.

5. Alternative Development - The average annual income for those living in some of the Andean coca producing areas or those in opiate producing Afghanistan is a fraction of what they can earn by planting coca or opium poppy. Illicit cultivation is potentially a very attractive option to the peasant farmer subsisting on a few dollars a day. So poverty and simple economics ensures that drug traffickers will continue to have a number of farmers prepared to cultivate illicit crops. Further substantial investment by the international community is needed to build upon existing efforts to refocus the farmers into cultivating legitimate crops by providing alternative livelihood schemes. The promotion of security in the drug producing regions is paramount to provide the stability and opportunity to establish effective alternative livelihood schemes and markets must be made available for the new, legitimate products. This type of assistance is crucial in supporting the efforts of the law enforcement authorities to eradicate illicit cultivation.

6. Promoting effective partnerships - Barriers to cooperation have to be broken down. A proactive approach should be pursued in the promotion of more integrated, multi-agency working. A united approach in focusing the resources of the various agencies in a coordinated effort to tackling the problem is likely to far more effective than persisting with a ‘silo mentality’.

7. Monitoring and funding - . It is of paramount importance that adequate funding and resources be made available to support the strategy otherwise the prospects of success will be severely hampered. Careful monitoring of progress should take place and adjustments made where necessary to respond flexibly to new trends and developments.

Concluding remarks

A century has passed since the first international conference to discuss the drug problem. The International Opium Commission took place in Shanghai, China in 1909 and this started the process which led to agreement on the first international convention on drug control, the International Opium Convention in 1912 following a conference in The Hague, Netherlands.

The current international drug control system now enjoys almost universal adherence and whilst progress has been achieved in some areas of drug control in recent years there have been setbacks in others. Containing the drug problem and achieving progress towards reducing it remains one of the major challenges facing the international community in the early part of the 21st century.

Whilst the global international financial crisis is resulting in recession, unemployment and hardship, the international drug problem continues to inflict damage to individuals, families and communities. The significance of what takes place in the opium poppy fields of Afghanistan or the coca fields of the Andes cannot be overstated. The consequences of drug cultivation, production and trafficking are felt in a great many countries. Whilst demand persists at current high levels then the trade in illicit drugs will continue to flourish providing the incentive to criminal organisations to continue to refine smuggling methods, seek new routes, widen their customer base and identify profitable new markets.

In our increasingly inter-connected world far greater international focus and cooperation is needed to combat trafficking. Increased emphasis should be placed on reducing demand along with provision of services to provide support and minimise health risks for those abusing drugs. Better coordinated and focused investment in the provision of effective alternative livelihood schemes for those engaged in illicit cultivation is required. It is in the interests of all to ensure that effective measures are in place to reduce the damage caused to individuals and communities. This truly is a global problem which requires States to work together effectively using a range of approaches in concerted, sustained action at international, national and local levels.

References:

The majority of the statistics quoted in this paper are from the UNODC publication World Drug Report 2008. The report contains extensive information and can be found at:



Other UNODC publications used:

World Drug Report 2007

Afghan Annual Opium survey 2007

Afghan Annual Opium survey 2008

Andean Survey 2007

These reports can be found on the UNODC website

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