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U.S. DEPARTMENT OF STATE
INTERNATIONAL NARCOTICS CONTROL STRATEGY REPORT, MARCH 1996: BALTICS
United States Department of State
Bureau for International Narcotics and Law Enforcement Affairs
I. Summary
The drug trade is escalating in all three Baltic states: Estonia,
Latvia, and Lithuania. Open borders and proximity to Scandinavia offer
trafficking networks alternative routes to Western European heroin
markets. Central Asian and Russian crime groups have now begun to
establish smuggling networks through the region and nascent money
laundering operations are suspected in all three countries. Illicit
amphetamines produced in Latvia continue to show up in West European
markets. Health authorities in all three countries believe that while
drug abuse is on the rise, it is still a relatively minor problem.
Economic and political issues continue to dominate as top priorities for
the three governments, limiting high-level attention to the expanding
drug problems. There are some signs that the three Baltic nations,
particularly Latvia, are expanding their antidrug programs. Manpower
and resource shortages continue to hamper progress towards establishing
effective domestic antidrug strategies.
Only Latvia has become a party to all three UN drug conventions.
Lithuania is a party to the 1961 and 1971 UN Conventions, but not the
1988 UN Convention. Estonia is not a party to any of these conventions,
although the GOE has noted the need to change domestic legislation and
formally accede to the international drug conventions, progress towards
these goals has been slow.
II. Status of Country
Drug seizures in neighboring countries, the arrest of Estonians in
Thailand acting as couriers, the destruction of 50 hectares of poppy
fields, and press reports of a rise in drug use, suggest worsening drug
problems in Estonia. While government officials recognize that drug
abuse is increasing, resources to deal with the related legal and health
problems remain limited. Estonia, which regained its independence in
late 1991, has not yet become party to any of the UN Conventions.
The drug trade is continuing to gain ground in Estonia. While domestic
drug abuse and cultivation are still minimal, the criminal problems
associated with trafficking and money laundering in Estonia are growing
steadily.
Although Estonian authorities are working to strengthen border controls,
Estonia's location makes it increasingly vulnerable to the drug
industry. Estonian authorities indicate that drugs from Southwest Asia,
Russia, Transcaucasia, Ukraine, and Lithuania are smuggled to Estonia by
trucks and rail. Opium and hashish cargoes are often transferred to
Estonian ships bound for Europe, particularly Scandinavia. Moreover,
drug smuggling is increasing along the highway which links Estonia to
Russia and Western Europe via Poland and the other Baltics.
Russian and Central Asian crime groups, which often include links to
Estonian groups, control much of the drug smuggling through Estonia.
Estonian authorities report that drug networks from Afghanistan,
Pakistan, and Turkey smuggle drugs through Estonia.
Responding to concern about possible increased domestic cultivation of
opium poppy, police authorities manually eradicated a number of poppy
fields. The owner of these fields claimed the cultivation was for
cooking purposes and that the police did not have a warrant. This case
is now in pre-trial stages.
Local police regard money laundering as the most serious drug-related
problem. Drug money continues to be laundered through the buying and
selling of rare metals and through the purchase of raw materials in
Russia for hard currency. Because there is no effective state control
over exports of essential chemicals, Estonia could be targeted by drug
groups seeking such chemicals for production operations. There is
little information on such operations at this time, however.
Health authorities believe that opiates are the most prevalent drug used
in Estonia. The official number of drug users, including cannabis
products is under 1,200.
III. Country Action Against Drugs in 1995
Policy Initiatives. The Government of Estonia (GOE) has made little
progress towards designing and/or implementing an antidrug strategy.
Estonia's priorities in the four years since regaining independence have
been to establish national institutions while maintaining a strict
budgetary discipline. A new criminal and administrative code have been
in effect in Estonia since December of 1992. The UNDCP has provided
expert advice and model laws, but the code still lacks many basic
antidrug provisions, including chemical controls and requirements that
make money laundering a crime.
Border guards are strengthening efforts to monitor the borders,
including working closely with Russian border guards. After
independence, the GOE created a special unit within the Central Criminal
Bureau of the Estonian State Police Board to combat organized crime and
drug trafficking. The police authorities intend to double the number of
counternarcotics personnel -- currently only four -- in the near
future. Although officers in every police prefecture are charged with
responsibility for drug-related crimes, there is no body to coordinate
or form a coherent strategy for the concerned law enforcement agencies
and customs officials.
During 1995, 51 drug-related cases were registered. In the first half
of the year, 17.5 kilograms of narcotics were seized. In previous years
the number of cases averaged 40-50, with 25-30 kilograms of narcotic
substances seized.
Corruption. The USG is not aware of any reports of official narcoticsrelated
corruption in Estonia in 1995.
Agreements and Treaties. The GOE has not yet become a party to the 1988
UN Convention Against Illicit Traffic in Narcotic Drugs and Psychotropic
Substances, the 1961 Single Convention on Narcotic Drugs and its 1972
Protocol, or the 1971 UN Convention on Psychotropic Substances. The
GOE's domestic antidrug laws must be modified before the GOE can ratify
the 1988 UN Convention. An extradition treaty with the United States
exists from 1924, but no other extradition treaties have been signed
since Estonia regained its independence in 1991. Estonia has signed
bilateral agreements with Latvia, Lithuania, Finland, and several of the
Newly Independent States. An extradition treaty with the United States
exists from 1924, and Estonia signed the European Community treaty on
extradition after regaining independence in 1991.
Cultivation and Production. Although cultivation of poppy is illegal in
Estonia, poppy continues to be cultivated for cooking uses and possibly
for illicit opiates, according to GOE officials.
Domestic Programs. The GOE has established an inter-ministerial
committee on drug control, which focuses on treating the 1,200
registered drug addicts. The largest specialized hospital for alcohol
and drug treatment is in Tallinn and has 90 beds.
II. Status of Country
Latvia is ideally positioned to serve as a conduit for illicit narcotics
traffic. Although the number of drug-related crimes in 1995 decreased
in Latvia compared to 1994, authorities believe that drug smuggling
operations throughout the region are expanding. Latvia boasts good
ports, and is a natural path from Russia and the other Newly Independent
States and northern Europe. Moreover the extensive land and rail
connections established during the Soviet era offer increased smuggling
opportunities now that borders are open. Police authorities indicate
that poppy straw is often smuggled in from Lithuania, Ukraine, and
Central Asia via land transportation. The growing role of Latvia as a
conduit for international drug trafficking was highlighted in 1995 by
two major criminal cases. In one case, heroin seized in Denmark had
been smuggled from Thailand through Latvia, and in another hashish had
been shipped through Latvia to the Netherlands.
Interior ministry and police officials confirm that the drug trade and
transshipment of illegal narcotics are controlled by Latvian and Russian
organized crime groups.
While most of the heroin and cocaine transiting Latvia is destined for
markets in Western Europe, particularly Sweden, health authorities
believe that domestic drug use is increasing. Official statistics,
however, report less than 1,000 users. Latvia is primarily a transit
country, but limited domestic cultivation of opium poppy also continues.
Most cultivation is for cooking purposes, but criminal police indicate
that some cultivation continues for local illicit consumption.
Since German and Latvian authorities discovered the illicit production
of amphetamines at a state-owned pharmaceutical plant near Riga in
December 1992, local police continue have not uncovered any clandestine
amphetamine laboratories. While Latvia has outlawed such production,
monitoring efforts have been minimal, and there have been no new cases.
Latvia is emerging as a regional banking center and officials fear it
could become a drug money laundering center. Currently there are no
currency reporting requirements to inhibit money laundering. Moreover,
the lack of anti-money laundering legislation, the absence of strict
banking accountability, and the number of banks formed under very loose
regulations, make the banking industry increasingly vulnerable. In a
recent case, the assets of Banka Baltija were raided by the bank's
owners and top management just after the decision by the Latvian
National Bank to close the bank for financial improprieties.
III. Country Action Against Drugs of 1995
Policy Initiatives. Government efforts to develop a national drug
strategy or enact counternarcotics legislation have been delayed by
elections and establishment of a new government. Although Latvia has
become a party to the 1961, 1971 and 1988 UN Conventions, the GOL has
yet to pass all the necessary legislation to implement them.
Law Enforcement. Hampered by bureaucratic problems, low salaries, and
limited training and equipment, law enforcement officials were unable to
make any major drug seizures in 1995. Despite these problems,
international cooperative efforts by the Drug Enforcement Bureau (DEB)
with a staff of 38 officers resulted in seizures elsewhere in Europe. A
joint effort with the Danish police led to a seizure of heroin in
Denmark and a similar effort with the Dutch police led to the
dismantling of a hashish smuggling ring in the Netherlands.
Corruption. The USG is unaware of any reports of official narcoticsrelated
corruption in Latvia, and there were no drug-related corruption
cases of senior officials in 1995.
Agreements and Treaties. In February 1994, the GOL acceded to the 1988
UN Convention Against Illicit Traffic in Narcotic Drugs and Psychotropic
Substances. In July 1993, the GOL acceded to the 1961 UN Single
Convention on Narcotic Drugs and its 1972 Protocol, and the 1971 UN
Convention on Psychotropic Substances. However, the GOL's domestic
antidrug law must be modified to implement the 1988 UN Convention. The
GOL has prepared draft legislation to implement the U.N. Conventions
which is now pending in Parliament.
U.S.- Latvian extradition relations are governed by a treaty signed in
1923. Mutual legal assistance treaty negotiations will begin early in
1996.
Cultivation and Production. Cultivation of poppy is illegal in Latvia.
Nevertheless, law enforcement officials believe that there is poppy
cultivation for cooking purposes and the production of illicit opium
poppy straw extract. Although cannabis also grows wild in Latvia, there
have been few cases of illicit cultivation.
Domestic Programs. The GOL continues to run five substance abuse
centers and to finance the work of several non-governmental
organizations (NGO)s in demand reduction treatment centers. Moreover a
number of rehabilitation centers have been established with assistance
from Western and Nordic European countries. The GOL has approved a new
national demand reduction plan and allocated funds for prevention,
education and information activities, with an emphasis on treatment and
rehabilitation. Optional drug prevention programs have been introduced
in 40 elementary schools.
II. Status of Country.
Uncertain economic circumstances, increasing criminal activity, and
Lithuania's location are increasing that country's vulnerability to the
drug industry. Police note that Lithuania's local organized crime
groups, which currently they estimate at 200, are stepping up efforts to
establish themselves in the drug trade. Reportedly, every tenth
criminal gang already engaged in the trade. Lithuanian officials
indicate that cocaine trafficking through the region is increasing.
Modest quantities of cocaine are being smuggled through Lithuania via
Germany to Russia and vice versa. Meanwhile, the regulation of
Lithuania's private banking sector is still in its formative stage,
leaving the banking system wide open to potential money laundering
operations.
Doctors at the narcotics abuse center note that the number of officially
registered drug addicts increased from 629 in 1994, to 800 in 1995.
Police and medical authorities believe that the actual number may be ten
to twenty times higher. Cocaine use is also becoming more popular among
the wealthy community. However, the most widely used and traded illicit
drugs are opiates, their derivatives, cannabis, and stimulants. In
1995, medical authorities registered 26 opium overdoses. Police
authorities believe that a decrease in cannabis seizures may reflect a
decrease in overall marijuana use.
III. Country Action Against Drugs in 1995
Progress on developing a national counterdrug program has been slow.
The GOL established an inter-agency task force to review and draft
appropriate legislation for accession to and implementation of the UN
drug conventions. The parliament continues to debate the issue of
police powers and banking regulation and has not yet adopted the draft
legislation. However, the GOL law on commercial banking and legislation
of income and asset declaration for tax purposes that was passed in 1994
helped to strengthen the legal framework for combatting the narcotics
problem.
Despite severe financial constraints, Lithuania increased interdiction
efforts in 1995. The criminal police has primary responsibility for
implementing the country's drug enforcement programs and has assigned
over 40 officers to drug-related crimes. In the first ten months of
1995, the Ministry of Interior reports that 83 drug-related cases were
solved by these police and other enforcement officials. Enforcement
officials also eradicated 81,152 square meters (50,312 meters in 1994)
of opium poppy and 1,061 square meters of cannabis cultivation.
Corruption. The USG is unaware of any reports of official narcoticsrelated
corruption in Lithuania.
Agreements and Treaties. The GOL has not become a party to the 1988 UN
Convention Against Illicit Traffic in Narcotic Drugs because there is
uncertainty as to whether the parliament would be able to pass
legislation which would allow law enforcement officials to conduct
controlled deliveries and effective investigations of suspected moneylaundering
operations, in accordance with the requirements of the
Convention. In 1994, Lithuania became a party to the 1961 Single
Convention on Narcotic Drugs and its 1972 Protocol, and the 1971 UN
Convention on Psychotropic Substances.
Cultivation and Production. Cultivation of opium poppy is illegal in
Lithuania. Law enforcement officials find it difficult to enforce this
ban, because of the widespread use of poppy for cooking purposes. Law
enforcement officials also note that poppy is cultivated to produce
illicit poppy straw extract.
Domestic Programs. The GOL has begun to establish a new health program
which includes a demand reduction program. The program will include
rehabilitation as well as public awareness components.
IV. U.S. Policy Initiatives and Programs
Policy Initiatives and Bilateral Cooperation. The USG continues to
promote increased attention to the drug problem by the Baltic States.
In 1995, the USG urged the three governments to identify drug problems,
possible areas for assistance, and the need to become parties to and
implement the UN drug conventions. Estonian, Latvian, and Lithuanian
police and customs officials have received training and drug test kits
from the USG.
The USG worked with other donor nations, through the Mini-Dublin group
in Tallinn and bilaterally in Riga and Vilnius, to promote increased
assistance from West Europeans and the United Nations Drug Control
Program (UNDCP) to the Baltic nations.
The Road Ahead. Over the next year, the USG will continue to encourage
the governments of Estonia and Lithuania to become parties to the 1988
UN Convention. The USG will urge all three governments to expand their
drug control activities and establish legislative and institutional
antidrug capabilities. The USG will encourage increased coordination of
national government efforts through the development of interagency
committees.
The USG plans to provide continued law enforcement training for customs
and law enforcement officials including border guards, as well as
training to target financial crimes. The USG will also encourage
support from UNDCP to assist Estonian, Latvian, and Lithuanian customs
and police officials by providing detection equipment and training.
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