1998 International Narcotics Control Strategy Report

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

UZBEKISTAN

I. Summary

While not a significant producer of narcotics or precursors, Uzbekistan is a transit country for Southwest Asian narcotics heading for Russia and Europe. Law enforcement agencies seized approximately 1.5 tons of illicit narcotics in 1998, despite severe resource constraints and the lack of centralized coordination of drug control efforts. It is estimated that there are over 20,000 addicts in Uzbekistan and the number appears to be growing. Uzbekistan is a party to the 1988 UN Drug Convention and the government regards the fight against drugs as a high priority. Nonetheless, it passed no new laws and launched no new initiatives in 1998. The government has drafted a counternarcotics master plan, but cannot approve it until financing is available. In April, Uzbekistan signed a counternarcotics cooperation agreement with the United States.

II. Status of Country

Several transshipment routes for opium, heroin and hashish originate in southwest Asia and cross Uzbekistan on their way to Russia and Europe. Precursor chemicals travel the same routes in reverse on their way to laboratories in Afghanistan and Pakistan. The volume of trafficking crossing Uzbekistan is thought to be growing. Effective government eradication programs have eliminated nearly all illicit production of opium poppies in Uzbekistan.

III. Country Actions Against Drugs in 1998

Policy Initiatives. There was no major counternarcotics legislation in 1998. However, new amendments to the criminal code reduce the quantity of confiscated narcotics that triggers criminal prosecution. The amendments also lower the quantity which results in prosecution for possession with intent to distribute, as opposed to mere possession. The State Commission on Drug Control completed a draft counternarcotics master plan through the year 2000, but the scarcity of budget resources for implementation has delayed the plan's approval. A draft "law on narcotics" was submitted to the Cabinet of Ministers for review before submission to parliament. It is expected to become law in early 1999. Current Uzbek legislation meets the basic requirements of the 1988 UN Drug Convention in that illicit cultivation, production, sales distribution and transport are criminalized. However, money laundering legislation and extradition and mutual legal assistance treaties are non-existent and asset seizure regulations are vague.

Accomplishments. Uzbekistan maintained compliance with the 1988 UN Drug Convention's goals on combating illicit cultivation and production within its borders. Over the past five years, the annual "black poppy" eradication campaign has virtually eliminated illicit poppy cultivation. There were no reports of significant narcotics production. Efforts to achieve other Convention goals are hampered by the lack of effective laws, programs, money, appropriate international agreements and coordination among law enforcement agencies. There are currently three UNDCP projects operating in Uzbekistan. The first is an institution-building project that is assisting the development of the National Drug Information and Analysis Center within the State Commission on Drug Control. The Center has no operational responsibilities, and is seeking to develop an information- processing system. The second is a regional project involving Tajikistan and Kyrgyzstan aimed at improving interdiction along a key trafficking route via Uzbekistan's portion of the Ferghana Valley. Although the regional center, located in Osh, Kyrgyzstan, is not yet fully operational, it seems to have had a deterrent effect. Trafficking along this route has declined substantially since the inception of the project. The final project is providing support to the efforts of the Uzbek Institute of Genetics to create an effective pathogen specific to opium poppies.

Law Enforcement Efforts. Preliminary statistics show that in the first ten months of 1998, Uzbek law enforcement seized 1.5 metric tons of illicit drugs about half of which was opium or poppy straw. The amount of confiscated heroin is growing (120 kilograms through October 1998, versus 70 kilograms in all of 1997). This reflects the increase in intermediate processing in Afghanistan and Pakistan. The remainder of the confiscated narcotics were cannabis products.

Three agencies with separate jurisdictions have counternarcotics responsibilities: the Ministry of Internal Affairs (MVD), the National Security Services (NSS), and the State Customs Committee. The MVD concentrates on domestic crime, the NSS handles international organized crime (in addition to its traditional foreign intelligence role), and Customs works at the border. Despite this apparently clear delineation of responsibilities, the lack of operational coordination diminishes the effectiveness of counternarcotics efforts. The National Drug Information and Analysis Center, which was designed to minimize mistrust, rivalry and duplication of efforts among the agencies, has not yet lived up to expectations. While administrative coordination has improved, the Center still has no operational authority.

The fact that none of these agencies specializes in counternarcotics is a further obstacle to effective enforcement. The MVD, although it has 140 officers dedicated to counternarcotics, is also the national police force with the full range of law enforcement responsibilities. The NSS is successor to the KGB and includes foreign intelligence and counterespionage in its portfolio. The Customs Committee's 3,000 personnel at 240 checkpoints concentrate more on stopping illegal trade and on collecting taxes and duties than on drugs. In July, however, Customs became a law enforcement organization with arrest authority.

The greatest difficulty faced by all three agencies is the lack of money to upgrade equipment and improve training. Lower than expected government revenues will likely cause further budget cuts in 1999. Uzbek law enforcement agencies therefore rely on international assistance from the UNDCP, US, U.K. and other countries to improve its capacities. The budget situation of the Customs Committee is also helped by its authority to retain 20 percent of seized assets.

Corruption. There were no major narcotics-related corruption cases in 1998. Nonetheless, corruption and bribery among law enforcement officials is common and sometimes related to narcotics.

Agreements and Treaties. Uzbekistan is a party to the 1988 UN Drug Convention. Uzbekistan has signed the Central Asian counternarcotics Memorandum of Understanding with the UNDCP, which since January 1998 also includes Russia. In 1994, Kazakhstan, Kyrgyzstan and Uzbekistan formed the Central Asian Economic Commission which includes pledges to cooperate in the battle against illegal drugs. In April 1998, Tajikistan joined the group. Uzbekistan is also a member of the Economic Cooperation Organization, which includes the five Central Asian countries, Azerbaijan, Georgia, Iran, Pakistan and Turkey, and which features a drug control coordination mechanism supported by the UNDCP. The government is studying the possibility of a Mutual Legal Assistance and Extradition Treaty with the United States. Uzbekistan and the United States signed a Letter of Agreement for provision of USG counternarcotics assistance in April 1998. The government has not signed any other bilateral counternarcotics agreements, but in 1998 it strengthened anti-drug cooperation with Pakistan. The UK, Israel, and Germany provided bilateral counternarcotics assistance in 1998.

Cultivation/Production. The 1998 version of the annual "operation black poppy" destroyed only 2.9 hectares of poppies, since the government eradication effort has all but eliminated illicit opium poppy cultivation in Uzbekistan.

Drug Flow/Transit. The quantity of drugs transiting Uzbekistan continues to grow, thanks to the country's location and relatively good roads and air service. Officials estimate that the volume of this flow increased by 25-30 percent in 1998. Opium and cannabis products originating in southwest Asia and bound for Russia and Europe take several routes across Uzbek territory. Since the only Afghan-Uzbek border crossing is closed, most transit Tajikistan. One major route--via the Gorno-Badakshan region of Tajikistan, through Osh in Kyrgyzstan, and into Uzbekistan's Ferghana Valley--has seen diminished traffic in 1998. Instead, smugglers are crossing the Tajik-Uzbek border near Khojand into the Syrdarya Oblast, and further south into the Surkhandarya Oblast. In addition, Uzbek transport police and customs officials regularly apprehend drug smugglers on the Dushanbe-Moscow train. Chemical precursors originating in Russia and the Ukraine also transit Uzbekistan. In the last two years Uzbek authorities have seized 70 tons of precursors bound for laboratories in southwest Asia.

Domestic Programs. Most observers agree that there are around 20,000 addicts in Uzbekistan. In 1998 the government, with UNDCP assistance, commissioned a study to get a more precise picture of demand in the country. Despite awareness of the problem, however, the government has instituted no demand reduction programs. The 15,000 registered addicts are, however, subject to compulsory treatment.

IV. U.S. Policy Initiatives and Programs

U.S. Policy Initiatives. The 1998 counternarcotics agreement between the United States and the Republic of Uzbekistan has as its goals to:

-- Prevent illicit drug activities in and through the territory of Uzbekistan, and

-- Increase the effectiveness of the fight against the trade in illicit narcotic substances.

However, the United States, selected European countries, and international organizations, such as the International Law Enforcement Academy (ILEA), are in the process of planning and engaging in counter-narcotics training for the Republic of Montenegro, which is a sub-federal constituent of the SFRY. Montenegro has been exempted from U.S., EU, and international sanctions imposed on the SFRY, because Montenegro has constructively engaged in pro-democratic political and economic reform, and has complied with international agreements on a broad range of issues, including on Kosovo.

Bilateral Cooperation. In 1998, the USG continued its assistance to Uzbekistan's anti-drug effort in several ways:

Continued its support of the Uzbek Institute of Genetics Research into an opium-destroying pathogen;

Provided training in information collection and processing techniques to officials of the National Center for Drug Information and Analysis;

Conducted a two-week DEA training seminar in Budapest for seven mid-level Uzbek drug enforcement officials as well as officials from other Central Asian states;

Provided DEA training in Ashgabat, Turkmenistan to ten Uzbek officers in basic counternarcotics techniques;

Provided training in drug forensics at DEA Headquarters to two laboratory technicians.

The Road Ahead. The USG is planning several training initiatives in Uzbekistan in 1999. The USG will assist with the development of Customs as a law enforcement agency by providing investigative equipment and training. We will explore possibilities for updating the bilateral agreement and providing vehicles for border control, and will urge the government to improve legal cooperation and assistance with the U.S. and other countries.