1998 International Narcotics Control Strategy Report

Bureau for International Narcotics and Law Enforcement Affairs
United States Department of State
February 26, 1999

FRANCE

I. Summary

France is an important transit country to other European countries, particularly for heroin originating in southwest Asia, cocaine originating in South America, cannabis originating in Morocco, and ecstasy originating in The Netherlands. The majority of these narcotics enter France through the Netherlands. Although heroin usage appears to be declining, it continues to be a concern to French law enforcement officials. Cocaine consumption is increasing as its use spreads into the middle and lower economic classes, and cannabis (primarily hashish) consumption continues to be a problem, particularly among 14-18-year olds. A major concern of French officials is an increase in the use of ecstasy by persons ranging in age from 16 to 30 years old. Like other European countries, France is increasingly facing the problem of "polytoxicomanie," or multiple drug addiction. France is a party to the 1988 UN Drug Convention.

II. Status of Country

French government narcotics data for 1997, released in the spring of 1998, show that arrests for trafficking in heroin and cannabis remain significantly greater than for any other drug (narcotics data for 1998 will be released in 1999), although in 1997 heroin seizures dropped 32.69 percent and there was a 18.70 percent decrease in the number of arrests for heroin use/resale. This would indicate that actual use was also down, reversing for the second year in a row, a 20-year trend of increased use. French authorities have noted, however, that many heroin addicts may only have switched to other drugs or are in treatment for their addiction. Cannabis and ecstasy continue to be the most widely abused drugs in France. French officials estimate there are two to four million users of cannabis in France.

III. Country Actions Against Drugs in 1998

Policy Initiatives. The Government of France (GOF) enacted no new narcotics legislation in 1998. France's drug control agency, "La Mission Interministerielle De Lutte Contre La Drogue et la Toxicomanie" (MILDT), underwent internal changes that have improved its ability to set and coordinate France's national policy among the many different departments involved. In addition, MILDT's mandate was expanded to include alcohol, tobacco, and legal drugs. In October, MILDT proposed a new national drug policy in a three-year plan of action it submitted to Prime Minister Lionel Jospin. Elements of the new policy include: integrating efforts against the abuse of tobacco, alcohol, and legal drugs into France's anti- narcotics programs; focusing more on repressing drug trafficking (and particularly local trafficking) than on repressing drug usage; avoiding incarcerating persons arrested for "simple usage;" and, for all drugs, focusing on preventing occasional users from becoming abusers and on preventing abusers from developing a dependence. The new policy is focused on the gravity of the behavior of the user rather than on the toxicity of the drug used. In October, French Justice Minister Elisabeth Guigou hosted Justice Ministers from the European Union at a conference in Avignon, France, on the fight against organized crime in Europe.

Accomplishments. A revitalized MILDT enabled the GOF to formulate its new national drug policy. On December 10, France signed a Mutual Legal Assistance Treaty (MLAT) with the US. In 1998, France participated in expert group meetings that resulted in a preliminary draft of a United Nations Convention to combat transnational organized crime.

Law Enforcement Efforts. French counternarcotics authorities are efficient and effective. In 1998, French authorities in southeast France arrested 30 members of an organization that smuggled Colombian cocaine into France and other European countries from South America via Venezuela, Guyana and the Dutch Antilles. An investigation by the Police Judiciaire of Marseille also led to the arrest of 19 people involved in cocaine trafficking from Colombia via Spain to France. In the Spring of 1998, over 3,000 police and customs officers from France, Belgium, The Netherlands, Germany, and Luxembourg participated in an enforcement operation which targeted different drug trafficking routes. The operation reportedly resulted in significant heroin, hashish and cocaine seizures.

Corruption. Narcotics-related corruption among French public officials is not a problem. The USG is not aware of any involvement by senior officials in the production or distribution of drugs or in the laundering of drug proceeds.

Agreements and Treaties. France is a party to the 1988 UN Drug Convention, as well as a party to the 1961 UN Single Convention and its 1972 Protocol, and the 1971 UN Convention on Psychotropic Substances. The USG and the GOF have narcotics-related agreements, including a 1971 agreement on coordinating action against illicit trafficking. In 1996, the U.S. and France signed a new Extradition Treaty to replace the old treaty and supplementary treaty currently in effect. The new Treaty was approved by the U.S. Senate in October 1998, and awaits ratification by both governments. Although French law does not permit the extradition of French nationals, France has offered to prosecute some French nationals for crimes committed in the U.S. As a participant in the G-8 Lyon Group, France [has also accepted "best practices" for countries that do not extradite their own nationals.] what does this mean? The U.S. and France signed a Mutual Legal Assistance Treaty (MLAT) on December 10[what year]. In 1998, the GOF also signed a bilateral agreement with The Netherlands designed to improve coordination between law enforcement officials against narcotics traffickers.

The USG has a Customs Mutual Legal Assistance Agreement (CMAA) with the GOF. French officials participate in international multilateral drug control efforts, including UNDCP, the Financial Action Task Force (FATF), and the Dublin Group. France pledged approximately $1.5 million in voluntary contributions above its regular assessment to the UNDCP in 1998 with particular emphasis on judicial assistance, money laundering, and border controls in southwest Asia. The Foreign Office of Security Affairs, which monitors terrorism, organized crime, narcotics and money laundering, participated actively in international drug control efforts during the year.

Cultivation and Production. French authorities believe the cultivation and production of illicit drugs is not a problem in France. France cultivates opium poppies for medical use and produces amphetamines. It reports its production of both products to the International Narcotics Control Board (INCB) and cooperates with the U.S. Drug Enforcement Administration (DEA) to monitor and control those products.

Drug Flow/Transit. France is an important transshipment point for illicit drugs, especially heroin, to other European countries. Heroin is shipped into the French domestic market primarily from The Netherlands, although significant amounts of heroin also enter France from Turkey, Germany, Belgium and Romania. Most of the heroin entering France originates in southwest Asia (primarily Afghanistan and Pakistan). French authorities believe that only a minor amount of heroin from Colombia is currently entering France. Approximately 67 percent of the heroin seized in France in 1997 was destined for domestic users. France is also a significant transit route for Moroccan cannabis destined for European markets and for South American cocaine destined for the U.S. and western Europe. There is no evidence that drugs transiting France reach the U.S. in amounts that significantly affect the US. West African drug traffickers are using France as a transshipment point for cocaine originating in South America. Most of the ecstasy in France originates in The Netherlands, but French officials think increasing amounts are coming from eastern European countries, such as the Czech Republic and Poland.

Domestic Programs. MILDT is responsible for coordinating France's demand reduction programs. Drug education efforts target government officials, counselors, teachers, and medical personnel. The GOF is continuing its experimental methadone treatment program. Although there continues to be public debate concerning decriminalization of cannabis, the GOF is opposed to any change in the 1970 drug law that criminalizes all uses of illicit substances.

IV. U.S. Policy Initiatives and Programs

Bilateral Cooperation. USG and GOF counternarcotics and law enforcement cooperation is excellent.

The Road Ahead. The U.S. will continue its cooperation with France on all counternarcotics fronts, including in multilateral efforts such as the Dublin Group and UNDCP. French police and DEA officials continue to work well together. The USG will continue to seek to conclude a bilateral counternarcotics maritime agreement for the French Caribbean with France. The USG will also continue to urge France to enact laws that would allow France to share seized and forfeited assets with other countries in cases involving international counternarcotics cooperation.