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U.S. DEPARTMENT OF STATE
INTERNATIONAL NARCOTICS CONTROL STRATEGY REPORT, MARCH 1996: UKRAINE
United States Department of State
Bureau for International Narcotics and Law Enforcement Affairs
I. Summary
In 1995, drug trafficking, abuse, and cultivation continued to escalate
in Ukraine. Ukraine's considerable role as a conduit for drug smuggling
from Central Asia and Turkey to Europe is reflected in over 23 tons of
narcotics seized in the first half of 1995. Moreover, authorities have
also begun to seize chemical shipments destined for Southwest Asia used
in the production of illicit narcotics such as heroin. According to
Ukraine officials, organized crime groups are increasingly involved in
the domestic cultivation of opium poppy and cannabis, both of which are
illegal. Meanwhile, drug abuse appears to be on the rise, although
official estimates do not reflect the increase. The Government of
Ukraine (GOU) has begun to take steps to counter the drug problem.
Ukraine, a party to the 1988 UN Convention, adopted several laws in
1994-1995 to implement the Convention, including asset seizure and
forfeiture legislation. Moreover, the GOU has accelerated antidrug law
enforcement cooperation with Europe and the United States. Despite
these positive steps, the GOU counterdrug efforts continue to be plagued
by inadequate coordination, lack of financial resources, corruption, and
the relatively low priority assigned by the GOU to the issue.
II. Status of Country
Ukraine's location and traditional role as an opium poppy producer
continues to attract criminal organizations. Authorities believe that
small organized gangs control most of the domestic drug activities in
Ukraine. One Ukraine official estimated that there are about 480 such
drug operations producing and distributing opium poppy straw and other
drugs in the eastern cities of Kharkiv, Dnipropetrovsk, and Donetsk.
Most of these gangs are from Ukraine or from Central Asia and the
Transcaucasian states.
Ukraine was once a source of licit poppy straw for the Soviet Union and,
while most poppy cultivation was outlawed in 1987, authorities continue
to discover cultivation. Ukraine authorities also indicate increased
discoveries of amphetamine processing laboratories.
The Ministry of Interior reports that nearly 20,000 persons were
arrested for drug-related crimes in the first half of 1995, up from
11,500 in 1994.
Drug smugglers use Ukraine as a conduit for smuggling drugs from Central
Asia and Afghanistan to Western Europe. In the first half of 1995,
Ukraine authorities seized over 23 tons of illicit drugs, including
hashish, opium poppy straw, and amphetamines, compared to the seizure of
6 tons in the first half of 1993.
Increased drug trafficking has led to expanded domestic drug use.
Although the number of registered addicts is approximately 50,000,
Ukraine government officials believe that the actual number of addicts
is closer to 500,000.
Ukraine officials are concerned that drug traffickers are exploiting the
Central bank system to launder drug profits. Although there are
indications that Russian organized crime groups are involved in money
laundering in Crimea, the extent of money laundering is unknown.
III. Country Actions Against Drugs in 1995
Policy Initiatives. In 1995, the GOU antidrug campaign focused on
developing new antidrug legislation and a policy framework to implement
the 1988 UN Convention, to which Ukraine is a party. The antidrug
legislation which was adopted includes provisions against illicit drug
use and trafficking. Although the legislation outlaws the use of licit
precursor and essential chemicals in manufacturing illicit drugs such as
heroin, it does not include provisions for controlling the export and
import of these chemicals. The GOU also adopted anti-money laundering
laws, with provisions for asset seizure and forfeiture. To implement
the legislation and coordinate government efforts, the Cabinet of
Ministers approved a three-year national antidrug strategy and
established a national coordinating council.
Law Enforcement. Although the GOU law enforcement programs are
understaffed and their personnel inexperienced, recent efforts through
both the Security Service of Ukraine (SBU) and the Ministry of Interior
(MVD), include the establishment of specialized counterdrug units.
Coordination with the West and other parts of the Newly Independent
States has yielded some successes, including a joint Ukraine-Russian
interdiction effort which dismantled a poppy smuggling operation located
in Odessa.
Corruption. President Kuchma and SBU chairman Volodymyr Radchenko have
consistently denounced corruption as the GOU's biggest problem. Ukraine
authorities have not reported any cases of narcotics-related corruption,
although arrests of government officials involved in corruption is
reportedly on the rise.
Agreements and Treaties. Ukraine is a party to the 1988 UN Convention,
the 1961 UN Single Convention on Narcotic Drugs, and the 1971 UN
Convention on Psychotropic Substances. The GOU is modifying its
antidrug law to implement the 1988 UN Convention. However, effective
implementation will require stricter controls on narcotics trafficking
and production, more effective law enforcement, and the application of
new laws on asset seizure and forfeiture.
Cultivation and Production. The GOU continues to outlaw poppy
cultivation, except for officially registered hemp and opium poppy
crops, which are limited to 9,000 hectares in 176 farms and strictly
monitored with police units stationed in fields while they are being
harvested. However, Ukraine officials believe that illicit cultivation,
primarily in Western and Northern Ukraine is on the rise. "Koknar," a
homemade mixture of boiled poppy straw that some experts believe causes
the same effects as heroin when injected, is produced throughout
Ukraine. Cannabis cultivation in southern Ukraine is also on the rise.
Domestic Programs. Although government officials have begun to
acknowledge increased drug abuse problems, drug addiction treatment
programs are limited. Existing detoxification centers are run by the
police because drug abuse has traditionally been considered a criminal
problem rather than a social problem.
IV. U.S. Policy and Objectives.
Policy Initiatives and Bilateral Cooperation. In 1995, the USG
continued to urge increased attention to the drug issue. Efforts
focused on identifying existing problems, possible areas for assistance,
and the need to implement the UN drug conventions. Moreover, the USG
continued to encourage antidrug assistance from those nations, primarily
in Western Europe, that are most directly affected by heroin smuggling
through Ukraine.
Against this backdrop, the USG has provided assistance for two U.S. Drug
Enforcement Administration regional courses in Odessa and a second
seminar in advanced drug enforcement school in Moscow and in Budapest.
The USG is also funding Ukraine participation in a U.S. demand reduction
training program and providing earmarked contributions to the United
Nations Drug Control Program for Ukraine.
The Road Ahead. The USG will continue to encourage the GOU to expand
its drug control activities and to establish the necessary legislative
and institutional capabilities to implement the 1988 UN Convention. Law
enforcement and demand reduction training will be provided in 1996.
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