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U.S. DEPARTMENT OF STATE
INTERNATIONAL NARCOTICS CONTROL STRATEGY REPORT, MARCH 1996: RUSSIA
United States Department of State
Bureau for International Narcotics and Law Enforcement Affairs
I. Summary
Accelerating drug trafficking, production, and abuse in Russia were
accompanied by increased crime in 1995. Russian law enforcement
authorities report that more than 90 tons of illicit drugs were seized
and health authorities estimate that drug use increased fifty percent in
1995. With drug authorities noting a tripling of illicit drug seizures
-- primarily opium poppy straw and cannabis -- in the last three years,
drug-related crime shows no sign of abating. The largest drug threat to
the domestic market continues to be from domestic and Ukrainian opium
poppy straw. Open borders and the absence of effective border and
customs controls offer opportunities to opiate smugglers seeking to move
their cargoes from Southwest Asia to Western markets. Moreover, South
American cocaine and African marijuana traffickers are increasing
efforts to target Russia as a conduit for smuggling drugs to Western
Europe and the United States.
The enormous wealth associated with the drug trade is attracting
domestic organized crime elements. Such groups are now involved in all
aspects of the drug industry, including cultivation, production,
distribution, and money laundering operations. Law enforcement
authorities believe that these groups, which once numbered over 200, are
seeking to consolidate their power. According to law enforcement
officials, these groups are now more easily exploiting the open access
to the West, and the lack of regulations in the banking, financial, and
commercial sectors.
Concern about the escalating drug problems prompted the Government of
Russia (GOR) to develop an antidrug strategy. This new strategy
includes a three-year program with increased financing for a broad base
of law enforcement and health programs. The GOR is also making modest
gains in bolstering law enforcement activities, but resource constraints
and the increased assets and sophistication of the drug industry in
Russia place clear limits on progress. Russia is a party to the 1988 UN
Convention.
II. Status of Country
Russia has emerged as a key drug market, a conduit for smuggling illicit
drugs to Western markets, and a producer of illicit amphetamines and
opium poppy. The break-up of the Soviet Union and the continuing
transition to a market economy are making Russia more vulnerable to
organized and financial crimes, including those involving narcotics.
Russian authorities claim that drug use is now accelerating at a fifty
percent increase per year and there are now over 2 million drug users in
Russia. Although poppy straw extract, cannabis and heroin are the most
widely used drugs, officials are also noting an emergence of cocaine use
among elite youth.
Russia is increasingly a crossroads for illicit drug operations. Law
enforcement officials report over 90 tons of hashish, opium, heroin, and
cocaine seized in Russia in 1995, up from 35 tons in 1993. Drug cargoes
of hashish and opium are primarily smuggled from China and Southwest
Asia through Central Asia to Russia for domestic and Western markets.
While amounts of heroin seized were small, Russian officials believe
that about one half a ton of heroin transited Russia in 1995. Russian
authorities also note that the seizure of one ton of cocaine in St.
Petersburg two years ago, followed by continued small seizures, revealed
that Colombian groups view Russia as a fertile territory.
Law enforcement authorities believe that Russian criminal groups control
most of the trafficking and distribution in Russia. Most appear to
operate locally, but many of the small criminal gangs located in the
Central Asia, Transcaucus states, and Ukraine have formed links with
Russian distributors in key Russian cities.
According to Russian authorities, domestic cultivation of opium poppy
increased and production of psychotropic drugs became more widespread in
Russia in 1995. Although the extent of such production is not known,
authorities underscore that the privatization of chemical laboratories
may have led to use of such facilities for illicit uses.
Russia's well-developed chemical industry is also vulnerable to illicit
drug operations. The industry exports small quantities of precursor and
essential chemicals, primarily acetic anhydride, to industries in
Eastern Europe and Finland. Some authorities believe that the recent
shipment of 23 tons of acetic anhydride, which was seized from a drug
group operating in Turkmenistan, underscores that chemical shipments are
already being diverted to the illicit drug industry.
Money laundering is also an increasingly serious problem in Russia, and
the lack of regulatory controls or legislation inhibits government
efforts to target drug money laundering operations. Russian officials
speculate that criminals have taken control of some banks and are
laundering proceeds from a wide variety of criminal activities,
including drugs. Some experts estimate that 25 percent of Moscow's
commercial banks are controlled by organized crime. There is
speculation that the Colombian Cali cocaine traffickers and Sicilian
mafia may be using Russian banks to launder funds.
Russian health authorities report that the number of new drug addicts
being treated in Russian clinics rose by 50 percent in 1995. These
authorities estimate that the total number of addicts, ninety percent of
whom remain untreated, approaches 500,000. They also claim that the
number of regular users of illegal drugs has increased at a similar
rate, and now exceeds two million for the country.
III. Country Actions Against Drugs in 1995
Policy Initiatives. Concern over narcotics problems has prompted Moscow
to increase its antidrug efforts and pursue increased counternarcotics
cooperation. The interministerial committee, first established in 1994
and chaired by a deputy prime minister, met six times in 1995 to
coordinate counternarcotics policy. In June 1995, the GOR approved a
new three-year antidrug program which focuses on interdiction and
provides financing for law enforcement and health institutions. If
enacted, new counterdrug legislation introduced by the government in
1995, not yet adopted by the State Duma or Federation Council, will
criminalize drug use and establish a monitoring regime for
pharmaceuticals as required by the UN conventions. The GOR has also
drafted anti-money laundering legislation, but it has not yet been
adopted.
As a result of the new counterdrug program, the Ministry of Internal
Affairs (MVD) increased the number of full-time drug control officials
from 3,500 to 4,000, the State Customs Committee created an additional
50 field offices and increased the number of drug control officials by
350, and the Federal Border Service created a special antidrug force.
Cultivation and Production. Despite the GOR's continuation of the
USSR's ban on opium poppy and cannabis cultivation, Russian authorities
assert that opium cultivation is on the rise and that over one million
hectares of cannabis continues to grow wild in Siberia. No official
statistics on opium cultivation exist.
Corruption. President Yeltsin issued a decree in November 1992 aimed at
battling corruption and since then has taken a number of steps against
government corruption. However, a draft law on corruption passed by the
Duma in late 1995, was rejected by the Federation Council. While the
USG has no reports of high-level government officials involved in the
drug trade in 1995, it is believed by many that most political parties,
either knowingly or unknowingly, receive financial support from
organized criminal groups, some of which are believed to be engaged in
narcotics trafficking. Both the Federal Security Service (FSB) and the
MVD began major investigations to uncover corruption within the Russian
government. In late 1995, Interior Minister Kulikov's "clean hands"
campaign resulted in the firing or demotion of over forty senior
officers in the MVD.
Domestic programs. The Moscow City Council continues to support several
school-based drug prevention programs, and a number of non-governmental
organizations are now sponsoring demand reduction programs throughout
Russia. Most demand reduction, prevention, treatment, and public
awareness programs in Russia are extremely limited.
Agreements and Treaties. Russia is a party to the 1988 UN Convention,
the 1961 UN Single Convention on Narcotic Drugs unamended, and the 1971
UN Convention on Psychotropic Substances. Russia also took steps in
1995 to become party to the 1972 amendment to the 1961 convention.
A Memorandum of Understanding on counternarcotics cooperation, signed
between the United States and the Soviet Union in 1989, remains in force
following Russia's accession to the agreement in 1992. The United
States and Russia negotiated and signed a Mutual legal assistance
agreement in 1995. The agreement entered into force in February 1996
and is the first step toward a Mutual Legal Assistance Treaty.
The Federal Border Service concluded a Memorandum of Understanding with
the U.S. Coast Guard in 1995 which included agreement to interdict drugs
on the high seas. The Border Service also concluded a trilateral
agreement, in 1995, with Kyrgyzstan and Tajikistan.
A Customs Union between Russia, Kazakstan, and Belarus was established
in 1995.
IV. US Policy Initiatives and Programs
Policy Initiatives and Bilateral Cooperation. In 1995, the USG focused
on identifying existing problems, possible areas for assistance, and
encouraging the GOR to implement fully the UN drug conventions. During
the year, the USG also encouraged those nations in Western Europe most
directly affected by drug smuggling through Russia to take a more active
role in assisting the GOR's counternarcotics efforts.
In support of these objectives, the USG launched a major assistance
program to train Russian law enforcement and procuracy personnel, with
an emphasis on international organized crime, narcotics trafficking, and
financial crimes, including money laundering. With FREEDOM Support Act
funds, over 40 law enforcement courses were offered to approximately
1,000 law enforcement personnel. The law enforcement courses included
regional drug training, train-the-trainer, and airport interdiction
courses for the Russian MVD and State Customs Committee. Additionally,
over 900 prosecutors, judges, and law students were trained in the
related areas of organized crime, corruption, money laundering, and
economic and financial crime. The Russian government and legislature
were also given expert advice on the anti-crime and counternarcotics
legislation that was under review in 1995.
The Road Ahead. The USG will continue to encourage Russia to expand its
drug control activities and to establish legislative and institutional
antidrug capabilities, particularly those required under the 1988 UN
Convention.
The USG plans to provide training and other assistance in support of
these goals in 1996. Specific initiatives include a program to assist
the Central Bank to target money laundering operations and fraud;
currency and export control; customs courses; and courses in regional
drug training, airport interdiction, and forensic chemistry; and demand
reduction assistance.
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