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U.S. DEPARTMENT OF STATE
INTERNATIONAL NARCOTICS CONTROL STRATEGY REPORT, MARCH 1996: SWITZERLAND
United States Department of State
Bureau for International Narcotics and Law Enforcement Affairs
I. Summary
Although not a major drug producer, Switzerland remains a transit site
for narcotics bound for Europe and continues to have serious drug
consumption problems. The largest open-air drug market, the notorious
"needle park" in Zurich, was closed on February 14, 1995 under strong
pressure from community groups upset with crime and other problems
associated with the drug scene. Switzerland continues to experiment
with progressive treatment programs, including prescribing heroin to
hard-core addicts under strict medical control.
One of the world's leading financial centers, Switzerland has been an
attractive money laundering target for cocaine, heroin, and cannabis
traffickers who seek to exploit the secrecy of Swiss financial
institutions. Changes in Swiss laws in 1992 and 1994, however, combined
with the actions of Swiss officials, have served to make money
laundering somewhat more difficult and have led to significant seizures
of drug-related assets.
II. Status of Country
The Swiss government condemns the use of narcotics. Despite some public
doubt of its effectiveness, Swiss narcotics policy continues to rest on
four pillars: prevention, therapy and rehabilitation, harm reduction,
and law enforcement. The federal and cantonal governments expend
significant resources to prevent drug abuse through informational
campaigns and the training of social workers. Current anti-drug
campaigns target primarily young people. Overall use of heroin and
cocaine appears to be declining in Switzerland, but authorities are
concerned about the rising abuse of hallucinogens - especially
"ecstasy". Cantonal and local police have a substantial degree of
autonomy in law enforcement and drug policy. This federal system has
resulted in varying degrees of tolerance for drug use throughout
Switzerland.
In 1994 Switzerland began a controversial new drug rehabilitation
program, which includes the medically controlled delivery of narcotics
to hard core users. The program has three main goals: stabilization of
the health of addicts; improvement in their social conditions; and a
reduction in criminal behavior.
III. Country Actions Against Drugs in 1995
Policy Initiatives. Two new drug policy initiatives are currently being
debated in Switzerland. One initiative, "Youth Without Drugs", aims to
restrict drug use and forbid harm reduction programs currently under
experiment in Switzerland. Although none of the four governing parties
supports this proposal, it does enjoy strong popular support within some
communities. The Swiss people will vote on this initiative no earlier
than in Autumn of 1996. The other, more liberal initiative, "Towards a
Reasonable Drug Policy," consists of six elements: prevention; allowing
the development of new methods of therapy; delivering narcotics to hard
core users under strict medical control and providing subsistence needs;
legalizing possession of small amounts of narcotics for personal use;
real efforts to fight drug crimes; and a unified and coordinated drug
policy. This latter proposal will not come to a vote before Fall of
1997.
Agreements and Treaties. Switzerland has signed but not yet ratified
the 1988 UN Convention Against Illicit Traffic in Narcotic Drugs and
Psychotropic Substances. The Swiss Federal Council has declared its
intention to seek parliamentary ratification in 1997, but is currently
awaiting results of national debate concerning the "Youth Without Drugs"
and "Towards a Reasonable Drug Policy" initiatives. The Federal Council
has also indicated it may attach two reservations to ratifying the UN
Convention, which would permit a more liberal Swiss policy on the
individual consumption of drugs and give Swiss courts more discretion in
sentencing.
Accomplishments. Switzerland has taken firm measures to combat money
laundering and cooperates at the international level toward this end.
Switzerland has had a precursor chemical control regime in place since
June 1991. In 1992, the Swiss Federal Council decided to accept most of
the Chemical Action Task Force recommendations on control of precursor
chemicals and to take them into account when ratifying the 1988 UN
Convention. Officials hope new implementing legislation will be in
place by July 1996. According to the UN Drug Control Program, (UNDCP),
Switzerland pledged over $777,000 in FY 1995 contributions.
Law Enforcement Efforts. Seizures of "hard" drugs such as heroin and
cocaine reportedly declined during the first half of 1995 compared to
the same period the year before, but seizures of amphetamines, LSD and
other hallucinogens rose significantly. The number of drug-related
deaths rose slightly in the first half of 1995 compared to the same
period in 1994, but did not reach the level of 1992.
Demand Reduction. Switzerland pioneered methadone treatment in the late
1970's and adopted one of the first needle-exchange programs in the
1980's to control the spread of the HIV virus. In 1994, Switzerland
began its controversial drug rehabilitation program, which includes
delivery of narcotics to hard core users under strict medical control.
Under this program, addicts can obtain heroin, methadone, and morphine.
Participants must be at least 20 years old, addicted to hard drugs for a
minimum of two years and veterans of unsuccessful attempts to break
addiction through traditional rehabilitation programs. The average
participant has been 30 years-old and addicted to heroin for 10 years.
The program's ultimate goal is to create drug-free people, but we are
skeptical that the program can meet its objective. At the end of 1996
Swiss officials will determine whether to continue, expand or eliminate
the treatment program.
IV. US Policy Initiatives and Programs
Bilateral Cooperation. United States officials continue to enjoy
excellent cooperation from their Swiss counterparts in efforts to
counter narcotics trafficking and money laundering. In particular,
there have been several successful cooperative operations against money
laundering in which the Swiss have seized bank accounts and shared the
assets with the United States Government (USG). The USG has been less
successful, however, in dissuading Switzerland from promoting its harm
reduction programs at international meetings, including those of the
United Nations.
The Road Ahead. The United States looks forward to exploring ways of
engaging Switzerland more directly in multilateral counter-narcotics
fora and in efforts to control chemical precursors multilaterally.
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