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U.S. Department of State
1996 International Narcotics Control Strategy Report, March 1997
United States Department of State
Bureau for International Narcotics and Law Enforcement Affairs
Africa and the Middle East
ISRAEL
I. Summary
Israel is primarily a drug consuming country. Heroin and cannabis are the
drugs of choice, according to the Israel National Police (INP), but use of
cocaine, LSD, amphetamines (and derivatives) and fenetylline is also
widespread. The Government of Israel (GOI) is concerned that its economic
success is leading to a drug environment that mirrors that of Europe and the
US. Israel augmented its counter-drug efforts with the creation of a National
Drug Enforcement Unit (under Customs) numbering 50 (of 200 planned) and taking
over responsibility for border, port and airport drug interdiction. Efforts
to pass legislation on money laundering and mutual legal assistance have been
delayed by the change in government; the INP hopes to see movement in Israel's
Parliament (the Knesset) in early 1997. Increased police efforts to counter
domestic terrorism in the wake of this year's bus bombings and planning for
probable program cuts to balance the national budget stretched police
resources devoted to law enforcement, including narcotics. INP cooperates
closely with foreign counterparts, with overseas offices in the US, Europe and
South America; there are preliminary plans to open a new office in Southeast
Asia and possibly one in Washington DC. Israel cooperates with regional
neighbors including Egypt and Jordan, as well as the Palestinian Authority's
infant antinarcotics group. Israel has signed, but not ratified, the 1988 UN
Convention.
II. Status of Country
The GOI is concerned about drug production in neighboring states, particularly
Lebanon and Egypt, and drugs that enter through Jordan. Israeli police
officials believe that drugs do not transit Israel, but rather are consumed
domestically. In addition, relatively tight customs and border procedures
hinder transshipment. Besides the drugs that have customarily arrived via
Europe, the GOI is beginning to detect the entry of US-origin or transited
drugs. Police officials note that the low relative price of narcotics in the
US and the active exchange of goods and people between the two countries could
fuel such a development. The GOI also is concerned about drug abuse rates,
particularly among youth, and an increase in the use of hard drugs.
The major weakness in Israel's counternarcotics effort remains its failure to
pass a money laundering law. Without such a law, and with strict banking
secrecy and liberal immigration policies (which Russian organized crime has
used to its advantage), Israel is a prime potential center for money
laundering. GOI and police officials confirm that Israel's sophisticated
financial infrastructure is being used by money launderers, although they are
unable to judge the volume. Israel's Ministry of Justice has drafted money
laundering legislation, but the Knesset has yet to take it up. Currently,
criminals may not be prosecuted for acts of money laundering, but may be
prosecuted in conjunction with a criminal conviction and assets may be
forfeited. In practice, however, cases involving asset forfeiture are rare
and declining, as criminals are able to avoid full prosecution through
successful plea bargaining.
III. Country Action Against Drugs in 1996
Policy Initiatives. The Anti-Drug Authority (ADA), which answers directly
to the Prime Minister and coordinates creation of Israel's drug strategy,
focused its efforts on demand management and rehabilitation, spending over
half of its budget treating 1,000 drug addicts yearly. The National Drug
Enforcement Unit (NDEU) of the Department of Customs has taken over
responsibility for searching for narcotics at Israel's borders and at points
of entry. With 50 of its proposed staff of 200, the unit is bringing to bear
sophisticated technical as well as animal detection methods. With an eye
towards adopting similar laws, the research team of the NDEU also is examining
policies adopted in other countries designed to stem the flow of chemicals
used in the production of drugs.
Accomplishments. The GOI improved its capabilities for both interdicting
the flow of illicit drugs and cooperating with foreign drug agencies. In
June, the Israeli National Police, with the support of the ADA, established a
Drug Liaison Officer (DLO) position in Miami with responsibility for covering
all of Central and South America, bringing to six the number of DLO's
overseas. Israel's Customs and VAT service expanded the staffing, technology
and scope of its Drug Enforcement Unit. The GOI, however, has fallen short in
meeting 1988 UN Convention goals related to money laundering, asset seizure
and mutual legal assistance by failing to pass relevant legislation. The GOI
also is making no headway in reducing the domestic demand for illicit
narcotics.
Law Enforcement Efforts. The Israel National Police is responsible for
enforcing Israel's drug laws and is the sole investigative body attempting to
stem the flow of drugs into the country. As noted above, police efforts are
being augmented by the growth of a Customs Service Drug Unit responsible for
detecting drugs at all land and sea borders and at Ben Gurion International
Airport. Currently consisting of about 50 officers, the unit will eventually
grow to 200, or about 10 percent of the Customs Service. The unit uses both
dogs and technical means to search passengers, luggage, shipments and air mail
packages in border areas, post offices and warehouses.
Corruption. Although drug-related corruption has not previously been an
issue in Israel, INP Deputy Commander Hezi Leder recently told the Knesset
that between 40 and 50 individuals associated with organized crime are
attempting to buy influence in Israeli political circles. The INP considers
such attempts a "strategic threat."
Agreements and Treaties. The US and Israel signed a memorandum of
understanding (MOU) in 1991, calling for bilateral cooperation to combat
illicit narcotic trafficking and abuse by sharing information, experience, and
training methods. The MOU calls for annual meetings to coordinate counterdrug
efforts, drug abuse and awareness research programs, and cooperation in
developing drug treatment and rehabilitation models. Both governments
initialed a customs cooperation agreement, have not yet signed it. The 1995
dual taxation treaty grants US tax authorities limited access to bank account
information.
Israel has acceded to the European Convention on Mutual Legal Assistance in
Criminal Matters, and is a party to the 1961 Single Convention on Narcotic
Drugs and its 1972 Protocol, and the 1971 Convention on Psychotropic
Substances. In addition, Israeli law permits legal assistance in the absence
of a treaty. Israel signed cooperative agreements with France, Hungary,
Italy, Chile and Turkey. Israel has signed, but not ratified, the 1988 UN
Convention. It is expected to ratify once Israel adopts a money laundering
law.
Israel has extradition treaties with roughly 30 countries, including the US,
the UK, France and Italy. Since 1977, however, Israel has rarely extradited
its own citizens. Israel also is cautious about extraditing foreign Jews.
Instead, Israel has applied the principle of Universal Jurisdiction, holding
trials in Israel for crimes committed elsewhere.
Cultivation/Production. The Israel National Police believe that Israel
neither cultivates nor produces significant quantities of illicit drugs. The
IDP, however, reports an increase in the cultivation of marijuana and in the
discovery of small-scale drug labs.
Drug Flow/Transit. According to the Drug Intelligence Unit, Israel is not
a transit country for narcotics, based on the relatively high market price
that illegal drugs command in Israel and its seizure experience. INP drug
seizure statistics indicate that much of the cocaine, heroin, LSD, and
marijuana entering Israel comes via Europe. The INP National Drug Unit
reports that it has yet to seize any drugs exiting Israel and is not aware of
any drugs seized abroad that transited Israel.
Domestic Programs/Demand Reduction. ADA now has a 12- to 16-hour drug
awareness program in over one-third of all primary and secondary schools in
Israel. Special programs to combat increasing drug abuse among the Israeli
Arab minority are carried out jointly by government ministries, Arab local
authorities, the Red Crescent and the ADA. The Palestinian Authority is
conducting its own drug education efforts among children and students.
IV. US Policy Initiatives and Programs
Policy Initiatives. US-Israel cooperation is focused on helping Israel
maintain a self-sustaining, professional drug interdiction force, enact
effective antidrug legislation, and foster regional cooperation with Israel's
neighboring countries on drug control issues.
Bilateral Cooperation. The DEA office in Cyprus works closely with its
INP counterparts on a case-by-case basis, while the National Drug Enforcement
Unit has developed a close working relationship with the US Customs Service.
In 1996, 12 Israeli dog trainers spent two months at the US Customs K-9
training center in Front Royal, Virginia in preparation for setting up
Israel's own dog training unit. In 1997, DEA plans to conduct money
laundering training for the GOI. In 1995, the US Treasury Department and the
GOI co-hosted a money laundering and asset forfeiture conference to highlight
these issues for key Israeli policymakers and to assist Israel in developing
effective money laundering laws.
The Road Ahead. US-Israel cooperation on drug matters is close and will
be even closer if drugs from the US begin appearing on the Israeli market in
greater quantities and Israel decides to open an office in Washington to work
with US drug authorities. The USG will support Israel's efforts to pass money
laundering legislation and to reach agreements on mutual legal assistance and
Customs-to-Customs cooperation. Once legislation is passed, the USG will work
closely with GOI counterparts to train and share information regarding money
laundering. US counternarcotics officials also will work to expand contacts
with the Palestinian Authority and assist it in developing an antidrug unit in
its civil police force.
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