LETTER TO WILLIAM H. WEBSTER FROM G.B. PRINCE

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP90G01353R000200190004-0
• Release Decision: RIPPUB
• Original Classification: K
• Document Page Count: 208
• Document Creation Date: January 4, 2017
• Document Release Date: November 8, 2012
• Sequence Number: 4
• Publication Date: July 6, 1988
• Content Type: LETTER

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7 Jul '88
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?
.1
NATIONAL DRUG POLICY BOARD 1 88-2459X/1
Washington, D.C. 20530
July 6, 1988
Dear Director Webster:
The Chairman has requested that you and your staff review
the final draft of the National Drug Policy Board's Fiscal Year
1987 Progress Report. Drafted by the Lead Agency Committees and
edited by the NDPB Staff, the report has been reviewed and
circulated on three separate occasions and is scheduled for
printing on July 15, 1988. Please provide any proposed changes
to the document to me or Paul O'Connell, 633-3435, no later than
COB July 11. I will assume an absence of response will serve as
concurrence with the report as written.
Your assistance in this matter is greatly appreciated.
Enclosure
Sincerely
A1141V1--1
G. B. PRINCE
Acting Executive Director
The Honorable William H. Webster
Director
Central Intelligence Agency
Washington, D.C. 20505
cc: The Honorable William R. Kotapish
15 Jul 88: NIO/CN
says looks OK no need
to respond.
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/ DRAFT
PREFACE
On March 26, 1987 the President signed Executive Order 12590
creating the National Drug Policy Board. The Policy Board
centralizes oversight for all Federal drug control programs
targeted at reducing the demand for, and supply of, illicit
drugs. It expands the scope of the National Drug Enforcement
Policy Board and builds upon the successes of that organization.
In May 1987, the National Drug Policy Board issued its "Lead
Agency" Directive identifying lead agencies in nine areas:
Intelligence, International, Interdiction, Investigation,
Prosecution, Prevention Education, High Risk Youth, Mainstream
Adults, and Treatment.
This report describes Lead Agency Committee structure and
goals as well as Federal drug control accomplishments for fiscal
year 1987.
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DRAFT
CHAPTER I: INTRODUCTION
The nation stands at a critical juncture in tbe struggle
against the illegal use of drugs, one defined by the intersection
of two highly visible and seemingly contradictory trends of
decreased use and increased drug-related crimes, deaths by
overdose, AIDS, births of drug addicted and drug-impaired babies,
and even the destabilization of national governments by
traffickers in drug-producing countries.
The shift in attitudes away from illicit drug use and drug
users is an extraordinary success story. Today most Americans
know the dangers and are intolerant of drug use. Young people
have been the primary target of the intensive education and
prevention efforts ordered by President Reagan and energized by
the moral leadership of First Lady Nancy Reagan. The crusade
against drug use is symbolized by three words the First Lady
offered our children -- Just Say No. This crusade will prove to
be one of the most significant investments ever made in the
future of this nation. Because knowledge and attitudes are the
bedrock of behavior, we can be confident that the next generation
will reject illegal drugs in record numbers.
The discouraging trend is the product of the long-term
consequences of the myth that illegal drug use is glamorous,
harmless, or victimless. Much of the contemporary demand for
illegal drugs is driven by people who began using drugs in the
1960s and 1970s. Their continued use today supports a vast
underground market in illegal drugs that is as expensive as it is
deadly. While the pool of people using drugs has diminished, we
find that that pool's drug consumption has risen. The
destructive effects of illegal drug use predictably have
increased and worsened.
Overall, however, 1987 saw changes on the domestic,
international, and bureaucratic levels which bode well for the
future of the national drug effort.
o The quality and quantity of our knowledge about drug abuse
have increased as has intolerance for drug abusing behavior.
o International attention to the drug issue has increased.
o The National Drug Policy Board has reorganized to include
demand reduction efforts and to improve Federal drug control
program coordination, cooperation, and effectiveness.
Knowledge, Attitude and Behavior
Solving the Nation's drug abuse problem requires
acknowledging its existence and ramifications; changing our
attitudes; and then changing our behavior. This essential
three-step process moved forward in 1987. An improved drug
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education message was spread by schools, community organizations,
the media, Federal, ?State and local governments, and prominent
individuals. These efforts have begun to bear fruit.
According to the 1987 annual survey of high schdbl seniors,
only 54 percent of seniors in 1986 believed "occasional" use of
cocaine put one at "great risk." In 1987 this figure was 67
percent. During the same period, "past month" use of cocaine by
high school seniors dropped from 6.2 percent to 4.3 percent.1/
Thus, while in many areas and for many segments of the population
the drug problem grows worse, the attitudinal and behavioral
shift among our young bodes well for the future of a drug-free
America.
As noted, contributions to the effort to increase knowledge,
improve attitudes, and change behavior came from many sources in
1987. For example:
o Many in the entertainment and advertising industries
revisited their policies on the portrayal of drugs and drug
abuse, and the results were heartening: movie-star Clint
Eastwood joined Nancy Reagan in a powerful film preview on
the dangers of "crack" cocaine; popular prime-time
television shows such as "Growing Pains" devoted entire
episodes to the responsible examination of drug abuse; and
the National Media Advertising Partnership for a Drug-Free
America donated over $1.5 billion in television ,and
newspaper advertising to spreading the anti-drug abuse
message.
o Colorado Governor Roy Romer initiated "Communities for a
Drug-Free Colorado," a three-year public-private
partnership designed to equip local leaders and anti-drug
coalitions with the expertise and resources necessary to
address the drug problems of individual communities.
o The Boy Scouts of America, in response to a challenge by
President Reagan, created "Drug-Free and Proud to Be," a
national program that (1) seeks pledges to remain drug-free
from one million high risk boys and girls and (2) provides
alternatives to drug abuse through positive peer pressure
and techniques to build self-esteem.
Two complementary themes run through these efforts and now
form the foundation of our national drug abuse prevention
strategy: "intervention" and "user accountability." The first
1/ National High School Senior Survey: Monitoring the Future,
conducted for the National Institute on Drug Abuse by the
Institute for Social Research, University of Michigan, January
1988, Tables 15 and 9, respectively. "Past month" use of cocaine
is defined as use within last 30 days.
?2?
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is based on the notion that if one falls down, you either help
one up or you don't. Likewise, one either "intervenes" on a drug
abuser's behalf or "enables" drug use to continue.
The second theme, "user accountability," stressA that drug
abuse is neither a victimless crime nor a private matter; users
must be held accountable for their behavior. A cocaine purchase
in the United States lends direct support to forces of political,
economic, and social instability at home and abroad. Any attempt
by individuals to deny this fact or shift the blame elsewhere is
both intellectually dishonest and dangerous.
Efforts to increase knowledge, change attitudes, and alter
behavior among drug abusers in every age group benefit from this
joint intervention-user responsibility strategy. User
accountability is a warning to those who are not yet addicted to
refrain from the use of illegal drugs: the myriad costs such
behavior exacts will no longer be tolerated. Treatment serves as
the component of compassion necessary to help those who cannot
help themselves.
Internationalization of the Drug Issue
A second change for the better in 1987 involved the
continuing internationalization of the drug issue. Symbolizing
this trend was the convention of the United Nations International
Conference on Drug Abuse and Illicit Trafficking (ICDAIT) in
Vienna, Austria, June 17-26, 1987. This meeting of high ranking
government enforcement and health officials from 138 countries
served to highlight both the scope of the drug problem and the
realization that its solution will be found only through a
concerted, long-term effort on the part of a committed
international community.
ICDAIT deliberations produced by unanimous consent two
noteworthy documents: a Conference Declaration and a
Comprehensive Multidisciplinary Outline (CMO) of Future
Activities in Drug Control. The Declaration is a political
statement of commitment to "vigorous international actions
against drug abuse and illicit trafficking." The CMO sets forth
more specific practical measures that nations may use in
addressing the drug problem.
Conferences, documents, and promises alone will not move us
closer to resolution of the drug problem; the unilateral and
multilateral prevention education and enforcement actions they
engender, however, will. It is for this reason that ICDAIT and
forums like it were positive developments in 1987.
Federal Reorganization
A third positive change in 1987 involved reorganization of
the Federal drug control program. The National Narcotics Act of
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1984 established the cabinet-level National Drug Enforcement
Policy Board (NDEPB) and charged it with coordinating Federal
drug law enforcement activities. Given both the success of the
NDEPB in increasing interagency cooperation and the inextricable
link between supply and demand reduction efforts, th President
issued Executive Order 12590 in March 1987 and expanded the
Board's responsibilities to include oversight of Federal demand
reduction activities.
Chaired by the Attorney General and Vice-chaired by the
Secretary of Health and Human Services, the new National Drug
Policy Board (NDPB): (1) develops Federal drug control program
policy, strategy, and resources; (2) facilitates interagency
coordination; (3) coordinates the collection and evaluation of
drug-related information; and (4) facilitates the resolution of
interagency differences. The Executive Order also created
agency-level "Drug Law Enforcement" and "Drug Abuse Prevention
and Health" Coordinating Groups responsible for developing and
overseeing the implementation of NDPB strategies.
In May 1987 the organization of the Federal drug control
program was further refined with the issuance of the NDPB "Lead
Agency" Directive. Lead agencies were identified in nine areas:
Intelligence, International, Interdiction, Investigation,
Prosecution, Prevention Education, High Risk Youth, Mainstream
Adults, and Treatment. At mid-year, Lead Agency Committees (LAC)
were established and in August they began developing strategy and
implementation plans for their respective areas of
responsibility. In January 1988, following a comprehensive
review by the NDPB, the LAC strategies were approved in principle
for implementation.
Despite these organizational changes for the better in 1987,
the supply of and demand for drugs remain disturbingly high. The
Federal government responded by increasing its drug budget more
than three-fold between 1981 ($1.1 billion) and 1987 ($3.9
billion). In addition to resource enhancements, virtually every
department and dozens of agencies have lent their expertise and
energy to the Federal drug control program. This massive
increase in funding and manpower has necessitated an attendant
increase in interagency coordination and cooperation. It is in
these areas where the National Drug Policy Board plays a vital
role.
This NDPB Federal Drug Law Enforcement and Abuse Prevention
and Treatment Progress Report outlines Fiscal Year 1987
accomplishments in the following areas: international narcotics
control, interdiction, investigation, prosecution, intelligence,
prevention education, high risk youth, mainstream adults, and
treatment. In addition, a brief overview of the drug problem in
1987 is provided in Chapter II.
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NOTE
Chapters V and VI of the report describe the Organized Crime
Drug Enforcement Task Force (OCDETF) Program. Annual !--reports for
the OCDETF Program were prepared for calendar years 1983 and
1984. The NDPB consolidated reporting on subsequent OCDETF
accomplishments within Policy Board progress reports. A brief
description of the OCDETF program and its FY87 accomplishments
follows.
Established by the President in October 1982, the OCDETF
Program has completed its fifth year of operation. Consisting of
13 regional Task Forces, the Program is designed to coordinate
Federal, State, and local law enforcement efforts to combat the
national and international organizations that grow, process, and
distribute illicit drugs. The organizational philosophy of the
Program is predicated on a consensus approach to investigation
and prosecution which enables the strengths of participating
agencies to be pooled while avoiding creation of new bureaucracy.
FY87 Program highlights include: 368 investigations
initiated, 906 indictments returned, 2,716 defendants indicted,
2,136 defendants found or plead guilty, and $141 million in
assets seized.
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DRAF
CHAPTER II: THE DRUG PROBLEM IN 1987
Because they are clandestine activities, illicit drug
cultivation, production, distribution, and consumption are
difficult to measure. However, information derived from periodic
surveys and studies combined with available intelligence, law
enforcement, and health community data provide a reasonably
accurate assessment of general trends. This chapter presents a
broad overview of cocaine, heroin, marijuana, and dangerous drug
production and consumption trends in 1987.
COCAINE TRENDS
Cocaine available in this country originates in South
America. Although not all cocaine produced in South America is
destined for the United States, one can assume that a rise in
overall South American production will result in increased
cocaine availability in the United States. In 1985, the
estimated total maximum cocaine hydrochloride production
capacity of the four principal source countries (Peru, Bolivia,
Colombia, and Ecuador) was 251-273 metric tons. In 1986, this
increased to 306-377 metric tons; in 1987, the figure was 322-418
metric tons.1/
In light of these increases, it is not surprising that in
1987 cocaine availability in the United States remained high and
prices reached record lows, despite Federal law enforcement
removals of approximately 63,655 kilograms.2/ In 1985, the
wholesale price for a kilogram of cocaine ranged from
S30,000-50,000. In 1986 and 1987, the ranges were $22,000-45,000
and $12,000-40,000, respectively. Retail prices for one gram of
cocaine remained stable between 1985 ($100), 1986 ($80-120) and
1987 ($80-120). Retail cocaine purity was also relatively
constant in 1985 (50-60 percent pure), 1986 (55-65 percent) and
1987 (50+ percent).3/
1/ National Narcotics Intelligence Consumers Committee, The
NNICC Report 1985-86 ("The Supply of Illicit Drugs to the United
States from Foreign and Domestic Sources in 1985 and 1986"), June
1987, p. 35; The NNICC Report 1987, April 1988, p. 33.
2/ Preliminary figures provided by the DEA Statistical Services
Section based on El Paso Intelligence Center (EPIC) FY87 Federal
Drug Identifier Number (FDIN) log entries.
3/ The NNICC Report 1985-86, p. 28; The NNICC Report 1987, p.
26.
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Despite these increases in availability, several bright
spots were noted in the National Institute on Drug Abuse's (NIDA)
annual survey of high school seniors. One was a reported
decrease in the number of that group who had used cocaine in the
past year (10.3 percent in 1987 as opposed to 12.7 percent in
1986). Concurrent with this decrease was an increase in the
number of high school seniors who perceived trying cocaine even
once or twice as potentially harmful (47.9 percent in 1987 as
opposed to 33.5 percent in 1986).4/
Increases in cocaine use among some other sectors of the
populace, however, had serious health consequences in 1987. The
Drug Abuse Warning Network (DAWN) reported record level
cocaine-related hospital emergency room admissions in 1987, up
approximately 64 percent from 1986.5/ This increase is due, in
part, to the continued prevalence of the potent base form of
cocaine known as "crack." DAWN figures for 1985-87 cocaine
emergency room incidents are 8,864 (1985), 15,952 (1986), and
26,186 (1987 - projected from the first nine months).6/
MARIJUANA TRENDS
Marijuana continues to be the most widely used illicit drug
in the United States. Besides being domestically produced,
marijuana available in the United States comes from a variety of
4/ National High School Senior Survey: Monitoring the Future,
conducted for the National Institute on Drug Abuse by the
Institute for Social Research, University of Michigan, January
1988.
5/ DAWN is an ongoing drug abuse data collection system of
hospital emergency rooms and medical examiners' offices located
primarily in 26 selected metropolitan areas. DAWN data represent
the DAWN Consistent Panel and include only those data reported by
this panel on a consistent basis, that is, at 90 percent or more
during each year. Some facilities fail to report consistently.
DAWN data are an accurate indicator of national trends but do not
portray national totals. (Since the Consistent Panel may change
from report to report based on a number of criteria, statistics
from different Consistent Panels covering similar time periods
are comparable only as indicators of general trends. A Consistent
Panel is a subset of emergency room and medical examiner
facilities used as a reporting base to minimize trend artifacts
resulting from changes in the composition of DAWN reports over
time. Although numbers from the Consistent Panel are lower than
DAWN System totals because fewer facilities report consistently,
they are more accurate indicators of trends.)
6/ The NNICC Report 1987, p. 27.
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countries including Mexico, Colombia, Jamaica, Thailand, Laos,
and Belize. Between 1985 and 1987, estimated net availability of
marijuana in the United States increased from 6,400-8,300 to
6,545-12,585 metric tons.
In 1987, domestically produced marijuana was thought to
comprise approximately 25 percent of the total U.S. supply. An
aggressive eradication program is conducted in the U.S. with 46
States participating in 1987. In the past year, approximately
7.4 million cultivated plants were eradicated compared to 4.7
million in 1986.7/ Domestically, the trend toward the
cultivation of sinsemilla, the potent unpollinated female plant,
continues along with the use of hydroponic techniques and indoor
cultivation.!!
As a result of this international and domestic production,
U.S. availability remained high with wholesale prices showing a
decline from the previous year. Exhibit II-1 displays
price/potency estimates for marijuana.9/
Another bright spot in NIDA's survey of high school seniors
was a reported a 6.4 percent decrease in the number of teenagers
who used marijuana in 1987 (36.3 percent) versus 1986 (38.8
percent). Among this same population, there was an increase in
the number who perceived trying marijuana even once or twice to
be potentially harmful.10/ This number increased from 15.1
percent in 1986 to 18.4 percent in 1987.
However, using figures projected from nine month DAWN data,
the 1987 NNICC Report shows a 40 percent increase in
marijuana-related hospital emergencies from 1986 (3,674) to 1987
(5,180). The vast majority of these emergencies involved
marijuana used in conjunction with other drugs (including
alcohol). Over 70 percent of the marijuana-related emergencies
involved persons under 30 years of age.11/
7/ The NNICC Report 1987, p. 10.
8/ "Hydroponics" is the cultivation of plants in water
containing dissolved inorganic nutrients rather than soil. This
can result in increased yield and higher THC (Delta-9
tetrahydrocannabinol) content. THC is the principal psychoactive
ingredient in cannabis.
9/ The NNICC Report 1987, p. 7.
10/ National High School Senior Survey: Monitoring the Future,
1988.
11/ The NNICC Report 1987, p. 8.
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EXHIBIT II - 1
MARIJUANA PRICE/POTENCY INDICATORS
(by calendar year)
Type
Commercial Grade
Wholesale (lb.)
Retail (oz.)
Potency (% THC content)
Sinsemilla
1985
$300-600
$50-100
3.12
Wholesale (lb.) $1,200-2000
Retail (oz.) $120-200
Potency (% THC content) 7.28
1986 1987
$350-700
$45-120
3.33
$800-2,000
$100-200
8.43
$350-1,450
$60-130
3.39
$1,400-2,100
$165-210
6.99
HEROIN TRENDS
Heroin available in the United States comes from three
sources: Mexico, Southeast Asia (Burma, Thailand, and Laos), and
Southwest Asia (Afghanistan, Pakistan, and Iran). Exhibit 11-2
displays estimates of opium production.
The 1987 NNICC Report indicates a general increase in the
domestic availability of heroin with heroin of Mexican origin,
including the potent "black tar," the most prevalent. In 1987, a
significant increase was recorded in the amount of high-quality
Southeast Asian heroin available in east coast cities.
The average age of heroin users continues to rise. In 1978,
34 percent of the heroin-related emergency room admissions
monitored by DAWN were persons 30 years of age or older. In
1980, 1986, and 1987, this rose to 42, 64, and 67 percent
respectively.12/ This reflects a relatively stable user
population.
Although the number of high school seniors who reported
using heroin last year remained stable, there was a 17 percent
increase in the number of students who perceived trying heroin
12/ The NNICC Report 1987, p. 58.
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even once or twice as being harmful (45.8 percent in 1986 versus
53.6 percent in 1987).13/
The following statistics reported by DAWN show the number of
heroin and morphine-related DAWN emergency room cases for a three
year period: 1985 - 10,013; 1986 - 10,670; and 1987 - 11,390
(projected from the first nine months). The trend over a three
year period shows a slight increase when a Consistent Panel is
used. 14/
The trend toward heroin use in combination with other drugs
appears to have continued in 1987 and the spread of AIDS through
intravenous drug use remained a significant health issue.
EXHIBIT II - 2
1987 NNICC Report
ESTIMATES OF OPIUM PRODUCTION
(metric tons by calendar year)
Country/Area
1985
1986
1987
Mexico
28
20-40
45-55
Southeast Asia
625
820-1,415
1,095-1,575
Southwest Asia
640-970
840-1,360
735-1,360
DANGEROUS DRUG TRENDS
The overwhelming majority of illicit dangerous drugs (drugs
other than the opiates, cocaine, and marijuana) consumed in the
United States is produced in the United States. PCP
(phencylidine), methamphetamine, and amphetamine are the most
prevalent dangerous drugs. Prices per dosage unit have remained
stable over the same time period. The number of domestic
clandestine laboratories seized has increased dramatically over
13/ National High School Senior Survey: Monitoring the Future,
1988.
14/ The NNICC Report 1987, p. 55
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the past three years (419 in 1985; 509 in 1986; and 682 in
1987).15/
The survey of high school seniors showed a decrease in the
percentage of students who had used stimulants (-1.2 percent),
sedatives (-1.1 percent), and hallucinogens (-0.9 percent) in the
past year. The same survey showed increases in the perception
that trying LSD, barbiturates, and amphetamines even once or
twice can be harmful.16/
With the exception of methaqualone, which was put into
Schedule I in 1984, there were some increases in emergency room
cases of all drugs listed in Exhibit 11-3.
EXHIBIT II - 3
1987 NNICC REPORT
HOSPITAL EMERGENCIES*
(by calendar year)
Drug 1985 1986 1987**
Amphetamine 787 787 866
Methamphetamine 972 874 1,017
Methaqualone 397 228 215
PCP 4,089 4,367 5,641
LSD 750 722 1,053
* Based on information from DAWN Consistent Panel.
** 1987 figures are projected from nine-month totals.
According to the 1987 NNICC Report, Washington D.C. led the
nation in the number of PCP-related hospital emergencies and
accounted for approximately one-third of the national total. The
jump from 992 admissions in Washington, D.C. in 1986 to a
projected 1,959 in 1987 was an increase of more than 97 percent.
15/ The NNICC Report 1987, pp. 39 and 41.
16/ National High School Senior Survey: Monitoring the Future,
1988.
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DRAFT
CHAPTER III: INTERNATIONAL NARCOTICS CONTROL
INTRODUCTION
The Federal International Narcotics Control program has two
primary objectives: to reduce (1) the availability of cocaine,
heroin, and foreign marijuana in the United States and (2) the
worldwide supplies of these same drugs. The international
program seeks to reduce the supply of drugs by assisting foreign
governments to:
o Eradicate crops;
o Interdict drugs as close to the source as possible;
o Arrest and prosecute major traffickers;
o Provide alternative sources of income to farmers who abandon
the cultivation of traditional drug crops;
o Reduce the demand for drugs through prevention education
and public awareness; and
o Internationalize the response to the global drug problem by
involving the community of nations in efforts to control the
supply of and demand for drugs.
The International Committee of the National Drug Policy
Board (NDPB) is chaired by the Department of State's Assistant
Secretary for International Narcotics Matters (INM). U.S.
Government departments and agencies responsible for all aspects
of international drugs control are represented on the
Committee .1/
PROGRESS IN FY87
In 1987, significant progress was made in international
narcotics control: more nations recognized the urgency and
global nature of the drugs issue and took action to control
production, trafficking, and abuse. Some 138 nations participated
1/ Members of the International Committee include
representatives of the Central Intelligence Agency, the Office of
the Vice President (National Narcotics Border Interdiction
System), the National Security Council, and the Departments of
State, Justice (Drug Enforcement Administration and Federal
Bureau of Investigation), Treasury (Customs Service), Defense,
and Transportation (Federal Aviation Administration and U.S.
Coast Guard).
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in the United Nations-sponsored International Conference on Drug
Abuse and Illicit Trafficking in Vienna, Austria in June 1987.
This Conference produced an international consensus that drugs
are a global problem requiring a global solution. A Comprehen-
sive Multidisciplinary Outline of Future Activities in Drug
Control was prepared during the conference to provide a blueprint
for action on drug control over the coming years.
Eradication
Twenty-three nations joined the United States in eradicating
drug crops in 1987. This number has increased significantly
since 1981, when only two countries were eradicating their crops.
Herbicidal eradication continues to be the most efficient and
effective way of eliminating crops close to their source. In
1987, the Governments of Jamaica, Guatemala, and Pakistan began
employing herbicides in their marijuana eradication campaigns.
Field tests to identify an environmentally safe and effective
herbicide for use against coca also took place in 1987.
About 283 metric tons of opium, 5,046 metric tons of coca
leaf and 17,585 metric tons of cannabis were destroyed through
eradication campaigns around the world. These figures represent
four times the amount of opium that reaches the United States as
heroin, three times the amount of marijuana consumed in the
United States, and one-seventh the amount of coca leaf required
for conversion into the cocaine consumed by American users.
Eradication works, as evidenced by Thailand's program which
has virtually eliminated that country as a major opium producer.
Ecuador too reported that it was able to destroy most of its
known coca cultivation. Colombia's destruction of 85 percent of
the marijuana grown in traditional areas, Jamaica's remarkable
elimination of three-quarters of its ganja crop (down from 1,755
to 325 metric tons), and Bolivia's inauguration of a voluntary
coca eradication campaign wherein over 1,000 hectares of coca
were destroyed in 1987 illustrate how successful eradication
programs can be when countries are committed to eliminating
narcotics production and trafficking.
International Drug Enforcement
Progress was made in international narcotics enforcement
during 1987, as the United States worked with Latin American and
Asian governments to reduce the supply of narcotics to the United
States. In cocaine control, U.S. Government enforcement agencies
worked with the Governments of Columbia, Peru, Bolivia, Ecuador,
Brazil, and Venezuela to eliminate cocaine paste and base
laboratories, control precursor chemical shipments, and increase
the difficulties to traffickers using land and riverine routes.
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During 1987, progress was also made in the area of money
laundering. The Governments of Panama and the United States
cooperated in Operation Pisces, a joint money laundering
investigation which resulted in the freezing of $12 million in
assets. The Federal Bureau of Investigation completed a three
year money laundering investigation, Operation
Cashweb/Expressway, which penetrated the highest money laundering
organizations of Colombian drug trafficking syndicates. The case
resulted in the indictments of 114 conspirators for drug and/or
money laundering violations and the seizure of 2,100 pounds of
cocaine, 22,000 pounds of marijuana, and $22.5 million in cash.
An additional $11 million has been identified in bank accounts
against which forfeiture proceedings have been initiated.
The extradition of drug lord Carlos Lehder from Colombia to
the United States to stand trial was an encouraging sign. The
United States will continue to urge Colombia to extradite other
major traffickers until and unless they can be arrested, tried
fairly, and sentenced in Colombian courts.
In Asia, enforcement efforts centered on reducing the amount
of heroin trafficked to the United States. U.S. Government
agencies continued to work with their counterparts in Thailand,
Burma, Malaysia, and Pakistan to locate and destroy heroin
refineries, caravans, and shipments of chemicals used in heroin
processing. The U.S. Government continues to urge Asian
governments to crack down on money laundering activities and
adopt asset seizure, forfeiture, and conspiracy legislation to
enable their law enforcement agencies to act decisively against
major trafficking networks.
PROGRAMATIC PROGRESS
As previously noted, the U. S. Government's international
drug control program includes eradication, enforcement,
development assistance, public diplomacy, and training. These
functional elements are integrated into country-specific drug
control programs. The following are highlights of program
developments in these countries in 1987.2/
2/ The source of this summary is primarily the State
-Department's annual International Narcotics Control Strategy
Report (INCSR). Refer to the 1988 INCSR for a more detailed
analysis of source and transhipment country enforcement
initiatives and progress.
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Latin America and the Carribean
o The Bahamas is a major transit country for cocaine and
marijuana destined for the United States. In 1987, U.S. -
Bahamian interdiction teams seized approximately 147 tons of
marijuana and 25,000 pounds of cocaine.3/ Both figures
reflect unprecedented progress compared to seizures in
previous years. Joint interdiction capabilities will be
strengthened in 1988 through improved communications,
additional radar coverage, and expanded maritime activities.
Narcotics-related corruption continued to be a serious
problem, with few investigations or prosecutions of corrupt
officials taking place. New Bahamian banking laws and
regulations have made money laundering more difficult. The
Bahamian Government welcomed increased joint interdiction
efforts in 1987 which included expanding Operation BAT to a
seven day, twenty-four hour mission capability.4/
o Belize changed its eradication strategy in 1987 to respond
to new growing patterns. Three U.S. Government-assisted
aerial eradication campaigns destroyed an estimated 80
percent of the marijuana crop; but there is also evidence
that Belizean traffickers, deprived of marijuana profits,
are using their established supply routes to smuggle cocaine
to the United States.
o Bolivia initiated a coca eradication program in August 1987
in accordance with a new U.S.-Bolivian narcotics control
agreement.5/ Eradication is being carried out under a new
program which permits cash payments for labor to
participating farmers and development assistance to villages
and areas which eradicate substantial hectarage. U.S.
Government assistance and training considerably improved the
enforcement capability of the Bolivian Police which seized
six tons of cocaine products and destroyed more than 1,000
processing sites. There were few arrests or prosecutions,
however, and corruption, exacerbated by economic conditions,
remains a problem.
3/ This cocaine seizure statistic is for calendar year 1987.
4/ OPBAT is a special operation in the Bahamas and Turks/Caicos
Islands which utilizes U.S. personnel and equipment in combined
operations with Bahamian law enforcement personnel. (See Chapter
IV, Interdiction, for further discussion).
5/ By December 1987, Bolivian narcotics personnel had destroyed
1,000 of 1,800 hectares targeted for voluntary eradication. The
critical assessment of Boliva will come in August 1988 when,
under the agreement, the Bolivian Government must demonstrate
(Footnote Continued)
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o Brazil is a significant producer of marijuana, virtually all
of which is consumed locally. It is also an important
transit route for cocaine and marijuana and a major producer
of acetone and ether used in refining cocaine hydrochloride.
The country's increasing domestic drug problem is largely
attributed to the expansion in trafficking. Despite
resource constraints and economic difficulties, Brazil's
drug control unit tripled the results of 1986 enforcement
efforts, seized nearly a ton of cocaine, and destroyed 82
million marijuana plants, 18 tons of packaged marijuana, and
2,650 tons of coca leaf. The drug problem will likely
increase with the expanded cultivation of epadu, a local
variety of coca.
o Colombia faces the most serious threat from violence-prone
drug trafficking groups, whose long list of political
assassinations continued into 1988 with the shooting of the
Colombian Attorney General. Although drug lord Carlos
Lehder was extradited to the United States, two key
traffickers, Jorge Ochoa and Matta Ballesteros, succeeded in
gaining their release from Colombian prisons.6/ A major
weapon in the anti-drug arsenal was lost when the Colombian
Supreme Court invalidated the U.S.-Colombian extradition
treaty and denied President Barco certain state of siege
authorities. Despite the marijuana eradication campaign's
success in reducing marijuana cultivation in the traditional
zones, new cultivation in other areas pushed production
figures higher than in 1986. Colombia continued to
cooperate in the search for an effective anti-coca herbicide
and the destruction of cocaine laboratories. A major coca
destruction program, however, did not materialize.
Moreover, Colombia continues to be reluctant to attack
cocaine laboratories in insurgent-held territory.
o Ecuador successfully destroyed much of the coca cultivation
which began in 1984 and is no longer considered a major
source country. Although cocaine trafficking continues, the
Ecuadorean National Police maintain a vigorous program to
interdict shipments of cocaine and precursor chemicals and
to suppress cocaine refining laboratories.
o Guatemala is both a transit area for South American cocaine
and a producer of opium poppy and marijuana. In 1987, as
(Footnote Continued)
compliance with first year voluntary eradication goals and be
prepared to begin involuntary eradication.
6/ Ballesteros was arrested in March 1988 on a Federal warrant
by the U.S. marshals following his expulsion from the Dominican
Republic. The warrant was based on his 1971 escape from the
Elgin Federal Prison Camp in Florida.
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much as ten tons of cocaine are estimated to have transited
Guatemala and an estimated 300 hectares of opium poppy were
under cultivation.7/ The Government has pledged to
eradicate opium poppy through chemical spraying. Marijuana
cultivation, which has also been attacked though chemical
spraying, may have totalled 325 hectares in 1987.
o Jamaica has significantly improved its marijuana eradication
program. Using a combination of manual and herbicidal
methods, net production was down from 1,755 metric tons in
1986 to 325 metric tons in 1987. Jamaica, however, remains
an important transit point for South American cocaine.
Fines imposed by the U.S. Government on Air Jamaica have put
pressure on this country to improve its interdiction efforts
which remain heavily dependent upon the U.S. Government for
assistance and training.
o Mexico remains the largest single source country for heroin
and marijuana entering the United States and it serves as
the transit route for more than a third of cocaine imports
to the United States. Mexico has a broad-based,
anti-narcotics program which includes crop eradication,
interdiction of shipments, suppression of refining
laboratories, and increased public awareness programs. The
Mexican Government has committed both its military and its
police force to the anti-drug campaign. Although the
Mexican authorities eradicated greater quantities of
marijuana and opium poppy in 1987, net production for both
crops increased last year. While a Mutual Legal Assistance
Treaty was signed in 1987, cooperation on enforcement is
still considered inadequate because of the failure to arrest
major traffickers and conclude the prosecution of the
Camarena and Cortez cases.8/
o Panama has been very successful in reducing marijuana
production and suppressing traffic in cocaine and precursor
chemicals, but continues to be the major Latin American
center for laundering drug profits. U.S. Government
agencies experienced mixed cooperation on money laundering
investigations in 1987.
o Paraguay is a major marijuana producing and trafficking
country, harvesting 3,000 tons of marijuana annually, most
of which is shipped to Brazil and Argentina. There is some
7/ Theoretically, the opium poppy yield was enough to produce
three tons of opium for smuggling into Mexico for processing.
8/ U.S. Drug Enforcement Administration (DEA) Agent Enrique
-C-amarena Salazar was murdered in Mexico in 1985; DEA Agent Victor
Cortez was detained and tortured in Mexico in 1986.
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evidence of cocaine refining in and trafficking from
Bolivia. There are also indications that officials in the
Stroessner government and the ruling Colorado party are
involved in the drug trafficking. More information should
become available after the Drug Enforcement Administration
(DEA) reopens its office in Asuncion this year.
o Peru continues to be the world's largest producer of coca
leaf, with 1987 production rising to about 109,000 metric
tons. Enforcement efforts continue to be hampered by the
violence of traffickers and political insurgent groups.9/
U.S. Government-provided aircraft were used to support an
expanded interdiction effort which proved unable to reach
the projected goal of 6,000 hectares. However, the
Government of Peru continues to show a strong willingness to
cooperate in eliminating coca production and drug
trafficking.
o Venezuela is increasingly concerned about Colombian
traffickers growing cannabis and coca in, and trafficking
these drugs through Venezuela. An estimated 15 - 20 tons of
cocaine transit Venezuela annually, much of it destined for
the United States. The Government of Venezuela intensified
its border control efforts and committed new military and
national guard resources for interdiction and cannabis/coca
eradication in 1987.
Southeast and Southwest Asia
o Afghanistan, denied certification in 1987, continues to be a
major producer of opium and hashish and an important refiner
of heroin. Opium production is estimated at 400-800 metric
tons for 1987, with no expectation of reductions in 1988.
An estimated 70 percent of its opium production, all of its
heroin yield, and 90 percent of its hashish are exported for
consumption in the United States, Europe, and elsewhere.
There are indications that the regime in Kabul and the
Soviets are encouraging opium production for political
reasons. Although there is an anti-smuggling unit in the
Interior Ministry, there is no known eradication program nor
verified estimates on seizures or other enforcement actions.
The Afghan Government does not cooperate with U.S.
Government officials.
o Burma continues to be the world's largest producer of
illicit opium, with a 1987 production estimate of 925-1,230
metric tons compared to 700-1,100 metric tons in 1986.
9/ For example, the Sendero Luminoso and the Tupac Amaru
7-evolution Movement.
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Burmese Government agencies destroyed 16,279 hectares of
opium poppy in 1987, despite having to curtail spraying to
counter a major offensive by the Burmese Communist party.
The 1988 target is 20,234 hectares, much of it to be
destroyed by aerial spraying. The Burmese continued their
very active program of destroying heroin laboratories,
intercepting opiate caravans, and seizing precursor
chemicals and other contraband.
o Hong Kong is considered the premier narcotics money
laundering center for Southeast Asian narcotics trafficking.
It is also an important transiting center. U.S. Government
officials believe that half of the heroin No. 4 entering
the territory may be destined for the United States.10/
There is considerable trafficking in heroin base, which is
converted in Hong Kong into heroin No. 3 as the drug of
choice for the vast domestic drug-consuming population.11/
Police and customs drug enforcement units are well-trained,
efficient, and have cooperated in joint efforts to reduce
corruption. Hong Kong maintains close links with U.S.
Government and international drug enforcement agencies.
Hong Kong has also begun enforcing its own form of a
racketeer-influenced, criminal organization law and has
revised its banking laws to facilitate release of
information for drug-related investigations.
o India, as the world's leading producer of licit opium (more
than 800 metric tons in 1986-87), is a major supplier for
the world pharmaceutical markets. In recent years, India
has also become a transit route for Southwest and Southeast
Asian heroin and precursor chemical traffic. While Indian
Government authorities continue to deny the existence of
illegal opium cultivation, some officials estimate that
there may be as much as a ten percent diversion from licit
production. It is believed that there are now hundreds of
thousands of heroin addicts in India who consume the bulk of
the illicit domestic production of heroin and opium. U.S.
Government agencies receive good cooperation from India
which formed an elite investigative unit in 1987 which is
attracting talented professional investigators.
o Iran, denied certification in 1987, has not cooperated with
U.S. Government authorities on narcotics control (see p. 25
for a discussion of "certification"). Its production of
10/ Heroin No. 4 is injectable; heroin No. 3 is heroin which is
smoked and, with further chemical processing, can be made into
heroin No. 4.
11/ An estimated one in every 140 persons is believed to be a
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200-400 metric tons of opium does not meet internal demand,
so traffickers must import heroin and opium from Southwest
Asia to supply Iran's estimated one million addicts.
Despite this high internal demand, some portion of opiates
produced in Iran are shipped to the West to take advantage
of higher opium prices outside Iran. The Government
maintains that it has eliminated opium production, but U.S.
Government officials believe it continues at the 200-400
metric ton level, and that Iran is also a transit route for
Afghan and Pakistani shipments of opiates. There is no
cooperation with the United States.
o Laos is an increasingly important cultivator of illicit
opium and cannabis. Production of heroin has increased
significantly amid charges that Laotian officials and
companies are involved in the drug trade. There is little
prospect for a reversal of these trends in the near future.
o Lebanon is reportedly the world's major producer of hashish,
a key processing and transit point for heroin, and a transit
point for cocaine and other drugs. The central government
has little control over the countryside where armed militia
factions and Syria hold sway. U.S. Government officials
continue to dispute Syrian claims of extensive opium crop
eradication. Most of the cannabis and opium poppy
cultivation and refining takes place in the Bekka Valley,
which is controlled by the Syrian military.
o Malaysia, which considers drug trafficking its major
national security concern, imposes some of the world's most
severe drug penalties. It cooperates closely with U.S.
Government agencies and plays an important role in
multilateral anti-drug efforts. In recognition of his
government's commitment to narcotics control, Prime Minister
Mahathir was elected President of the United Nations
International Conference on Drug Abuse and Illicit
Trafficking. Malaysia does not cultivate opium poppy but
is considered a major transit and refining center for
morphine and heroin base smuggled from Thailand. Although
the opiates primarily supply Malaysia's own addict
population, heroin is also shipped to Europe and Australia.
While most of the traffic is in heroin No. 3, some heroin
No. 4 bound for the United States also transits Malaysia.
The drug scene in Malaysia is dominated by ethnic Chinese
traffickers.
o Pakistan had an increase in opium poppy cultivation in 1987,
primarily in those areas where the Government's development
assistance/crop substitution program had not yet been
extended or in tribal areas where the government is unable
to exercise effective control. Estimates of opium
production range as high as 135-160 metric tons, compared to
40-70 metric tons in 1985. However, Pakistan may be a net
importer of opium, given a domestic addict population
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estimated in excess of 600,000. The country's importance to
the United States is as a refining site and transit point
for Southwest Asian opium gum converted into heroin for the
United States and European markets. While U.S. Government
assistance is being provided to improve the eradication
program, enforcement cannot keep pace with the activities of
major traffickers and refiners.
o Thailand is a major source country for opium and cannabis,
and a transit route for Southeast Asian heroin destined for
the United States. U.S. Government agencies receive very
good cooperation in their investigations and, in turn,
assist Thai units in their multifaceted program to destroy
crops and heroin labs and to suppress trafficking on the
border with Burma.
o Turkey continues its highly effective program of preventing
illicit opium poppy cultivation and suppressing heroin
refining. Although the Turkish Government had an excellent
record of drug seizures in 1987, Turkey remains a
significant transit point for heroin and other drugs
smuggled from Asia into Europe.
Development and Economic Assistance
Development assistance is intended to address the
fundamental economic and social factors in source countries which
contribute to farmers' reliance on drug crops for income.
Because of the disparity between profits derived from
legitimate crops and drug crops, these economic incentives
have proven to be of limited effectiveness when applied in
isolation. If eradication and interdiction programs are
successful in driving down the market price of drug crops, then
development assistance and crop substitution programs become
far more attractive to local farmers. Development and
economic assistance may also be used as an incentive for
recipient countries to meet certain drug control objectives. The
following are examples of ongoing assistance programs:
o Bolivia. The Chapare Regional Development Project, which
became operational in 1984, continued to progress in 1987.
The project strategy is to: develop the Chapare region and
provide coca farmers with alternative sources of income; and
coordinate and link the provision of development assistance
with the Bolivian drug control program. As a result of
enforcement operations, particularly Operation Blast Furnace
in 1986 which forced the price of leaf below the cost
of its production, ?several farmers sought crop substitution
technical assistance. In late 1987, the Chapare Project
was amended to include the Associated High Valleys (AHV)
area of Cochabamba in order to induce coca farmers to
migrate from the Chapare to the AHV and provide economic
incentives to AHV farmers to remain in place and not seek
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work in the Chapare. It is hoped that this amendment will
improve the effectiveness of this program.
o Peru. The Upper Huallaga Area Development Project continued
in 1987, but on a reduced scale. Project efforts have been
hampered by narcotics traffickers' activities aimed at
disrupting coca control initiatives. Despite these
disruptions, Peruvian officials are providing extension
services to local farmers. The Agency for International
Deelopment (AID) staff assistance has also been expanded
from two to five full-time advisors providing technical
assistance in agricultural research and extension. In 1987,
a family planning program was inaugurated, five kilometers
of irrigation canals built, and seven potable water studies
completed.
o Pakistan. The Northwest Frontier Area Development (NWFAD)
project, initiated in 1983, continued in 1987 to demonstrate
that projects can be designed that offer farmers alternative
sources of income in traditional poppy growing regions. The
goal of the project is to diversify the area's economy by
providing alternative income through agriculture and
livestock development, new wheat and tree crop varieties,
and vocational training. As in Bolivia, the NWFAD project
links project assistance to Pakistan's drug enforcement
efforts. Although poppy eradication efforts have been
hampered by armed resistance in some areas, Pakistani
officials reiterated their determination to enforce
eradication decrees. Consequently, enforcement proceeded
smoothly during 1987.
Drug Awareness Programs
One of the U. S. Government's major narcotics control goals
is to help countries raise awareness among opinion makers and the
general public about the dangers of drug production, trafficking,
and abuse. The U.S. Government's anti-narcotics public health
diplomacy campaign aims to sensitize societies to the health and
social consequences of inaction against the drug threat. During
1987, public awareness efforts were succeeding in several
countries. The United Nations International Conference on Drug
Abuse and Illicit Trafficking provided the international
community an opportunity to exchange information and experiences
on what works in public awareness.
United States-sponsored drug awareness programs continued in
a number of countries in 1987--Peru, Ecuador, Bolivia, Belize,
Jamaica, Pakistan, and Thailand. A brief description of some
successful programs follows:
o Peru. In 1986, the Center of Information and Education for
the prevention of Drug Abuse (CEDRO) was created and a
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national drug survey completed. In 1987, CEDRO conducted
training programs and produced media material on drug abuse.
o Pakistan. AID and INM provided support for a nationwide
drug awareness program, including a mass media campaign
during August-September 1987 to draw attention to the
country's growing heroin addiction problem. This effort
was similar to the one undertaken in 1986 which helped focus
Pakistani attention on the drug problem. The United States
is also providing technical assistance to Pakistan to design
a drug information resource center.
o Asian Regional Project. This major eight country survey of
narcotics use and awareness (completed in May 1987) will be
the basis for a three year, $3 million narcotics education
program, with priority consideration given to Pakistan and
Thailand.
DIPLOMATIC PROGRESS
The recognition that narcotics production, trafficking, and
abuse pose threats to all nations, and the realization that no
country is solely responsible for the drug problem--or its
solution--have led to increased international cooperation on the
drug issue. Once considered only an enforcement or health issue,
the narcotics problem has been recognized as a threat to the
national and regional security of nations in Latin America, Asia,
Africa, and Europe.
The results of the United Nations International Conference
on Drug Abuse and Illicit Trafficking were important and
illustrate that progress can be made when nations work together
to address the drug problem. Government representation was at
the highest levels, including Ministers of Justice, Health, and
Interior. Consequently, the Conference served as a catalyst in
the promotion of stronger and broader anti-narcotics programs at
the national, regional, and international levels. The Conference
also produced two noteworthy documents which will guide the
United Nations community anti-narcotics efforts over the next
several years: the Comprehensive Multidisciplinary Outline of
Future Activities in Drug Control and a Conference Declaration.
The Declaration is a political statement of commitment by the
participating governments to work together toward the elimination
of drug abuse, illicit production, and trafficking.
United Nations members are also cooperating in the
development of the new Convention against the Illicit Traffic in
Narcotic Drugs and Psychotropic Substances. Now in its third
year of development, a final draft text was approved by the
Commission on Narcotic Drugs (CND) during its February 1988
meeting. Following CND approval, a plenipotentiary conference
will be held to complete any minor revisions and sign the
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convention. Member nations are expected to ratify this treaty
quickly.
Another concrete example of diplomatic cooperation is the
wide international support for the United Nations Fund for Drug
Abuse Control, a large scale, multimillion dollar organization.
The Fund sponsors projects in support of coca control in South
America; provides assistance in Africa (where U.S. Government
assistance has been limited to Egypt and Morocco) with training
programs for Kenya, Nigeria, Senegal, and the Ivory Coast; and
provides economic assistance linked to commitments by recipient
governments to eliminate illicit drug crops by a specified date.
The Organization of American States has also become an
active participant in anti-narcotics work. In October, the
Inter-American Drug Abuse Control Commission met in Washington to
recommend how member nations could work together effectively to
eliminate drug abuse in the hemisphere.
The Economic Summit nations again reaffirmed their
commitment to increased international cooperation on narcotics
control at the 1987 Summit in Venice. At the conclusion of their
November Summit meeting, President Reagan and General Secretary
Gorbachev announced that during 1988 both countries would
cooperate more closely on drugs control issues.
LEGISLATION
IMPLEMENTATION OF LEGISLATION
Anti-Drug Abuse Act of 1986
o Country Certification (?2005). Required the President to
certify positive cooperation on narcotics control as a
prerequisite for provision of almost $1.5 billion in foreign
assistance. The certification process enables the U.S.
Government to send a clear signal to the international
community that it considers positive performance on drugs a
serious foreign policy issue. In 1987, three
countries--Iran, Afghanistan, and Syria--were denied
certification, while Laos and Lebanon were certified under
the "National Interest" provision indicating that
non-certification on the basis of drug control performance
might jeopardize progress on other foreign policy issues.
o Coca Research Center (52006). Provided funding to establish
a coca research center to assist scientists in the
investigation of coca cultivation and eradication methods.
A coca research center has been established in Hawaii and
tests are currently underway to identify a safe and
effective herbicide which can be used against coca.
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o Air Wing (S2003). Provided funding to establish an air wing
to provide countries, particularly in Latin America, with
the necessary air support to conduct eradication and
enforcement operations. The air wing is now operational.
During the past year, INM aircraft were used to eradicate
marijuana in Belize, raid cocaine laboratories in
Bolivia, and airlift coca eradication teams in Peru.
o Visa Information Sharing (S2011). Established a visa
information sharing system in cooperation with DEA, Customs,
and the Immigration and Naturalization Service. This
computerized system allows visa issuing officers quick
access to a data base of aliens arrested on drug charges.
The system has been operational since March 1987. Over
136,000 records have been entered into the State
Department's Bureau of Consular Affairs Automated Lookout
System. The Department of State received 855 inquires from
consular officers abroad as a result of information placed
in the Lookout System by law enforcement agencies. Of these
cases, 280 were found ineligible to receive a U.S. visa
because of drug related activity.
o Corrupt Officials and Governments (S2013). Required a
report on corrupt officials and governments. Two reports
were submitted: one in May 1987; the other, in January
1988.
o Assessment of Narcotics Trafficking from Africa (S2017).
Required an updated threat assessment of narcotics
trafficking and, if warranted, increased U.S. narcotics
control training for African countries. The assessment was
included in the March 1, 1987 International Narcotics
Control Stategy Report.
o Multilateral Development Bank Assistance for Drug
Eradication and Crop Substitution Programs (S2018).
Required the United States Directors of multilateral banks
to propose to other directors of their respective banks: (1)
that all possible assistance be provided to each major
illicit drug producing country to develop/implement a drug
eradication program; and (2) that the banks increase lending
for crop substitution programs. The report of the National
Advisory Council on the International Monetary Fund is to be
released by the Treasury Department in the summer of 1988.
o Drugs as a National Security Problem (S2019). Urged that
the United States explore the possibility of engaging
security- oriented organizations (e.g., NATO) in
participating in cooperative drug programs. The President
issued an Executive Order declaring the drug problem to be a
national security matter.
o U.S.-Mexico Intergovernmental Commission (S2024). Required
that the United States enter into negotiations with the
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Government of Mexico to create a joint inter-governmental
commission on narcotics and psychotropic drug abuse and
control. Negotiations were entered into and a report was
filed with the Congress calling for Executive Branch
attendance (in an advisory role) of inter-parliamentary
conferences on drug issues.
o Narcotics Control Efforts in Mexico (?2030). Required the
U.S. Government to take certain punitive economic measures
unless substantial progress was made by the Mexican
Government in (1) the Camerana and Cortez cases; (2)
effectively utilizing U.S.-provided aircraft for drug
eradication and interdiction; and (3) preventing drug
trafficking and drug-related violence on the U.S.-Mexican
border. One million dollars in INM funds were withheld from
Mexico in FY87 in accordance with the provision of this
section.
Other Legislation
o The 1987-88 Continuing Resolution expanded the list of
discretionary trade sanctions which can be imposed against
countries denied narcotics certification.
o The State Department suspended $7.2 million in economic and
military assistance to Bolivia under 5611, P.L. 99-63.
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CHAPTER IV: INTERDICTION
INTRODUCTION
RAFT
The goal of the Federal Interdiction strategy is to reduce
the quantity of illegal drugs entering the United States by
targeting the transportation link between drug supply and demand.
Specifically, interdiction focuses on detecting, sorting,
intercepting, tracking, and apprehending shipments of illegal
drugs as they move from their departure zone in source countries,
along smuggling routes, to U.S. air, land, and sea borders. The
Interdiction Committee of the National Drug Policy Board (NDPB)
is chaired by the Commissioner of Customs. The Commandant of the
Coast Guard serves as the Vice Chairman.1/
Presently, all of the cocaine and heroin and 75 percent of
the marijuana supply available in the United States originate
from outside the United States.2/ These supplies are produced
and arrive primarily from South America, Mexico, and the
Caribbean. The many opportunities available to the smugglers for
importing these illegal drugs are reflected in the following
list of conveyances and passengers entering the United States in
1986:
o 265 million persons at U.S. land borders
o 3 million sea containers
o 4.4 million land containers
o 30 million air passengers
o 421,000 commercial aircraft
o 125,000 non-commercial vessels and small boats
o 84,000 commercial vessels
o 250,000 private general aviation aircraft
1/ Other members of the Interdiction Committee include
representatives of the Department of Defense, Drug Enforcement
Administration, Immigration and Nationalization Service, and the
National Narcotics Border Interdiction System.
2/ The 1987 National Narcotics Intelligence Consumers Committee
(NNICC) Report projected worldwide cocaine hydrochloride
production at 322 - 418 metric tons in 1987. Net marijuana
producation was estimated to be 6,545 - 12,585 metric tons.
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o 94 million vehicles
o 4 million sea passengers
o 1.2 million illegal aliens
PROGRESS IN 1987
Effective deployment of interdiction resources continues to
disrupt established trafficking patterns and shipment modes,
causing smugglers to shift to alternate routes that are longer or
more risky, and to more expensive methods of conveying their
cargo. Interdiction resources and efforts are being concentrated
in the areas of highest current threat to present the greatest
risk to the smuggler.
Interdiction related progress during FY87 included the
following:
o Customs-Coast Guard MOU. On May 11, 1987, Customs and
Coast Guard signed a Memorandum of Understanding (MOU)
that committed these agencies to an alliance to more
effectively interdict illicit drugs. The MOU identified
Customs as the lead agency responsible at the ports of entry
and the land borders of the United States, the Coast Guard
as the lead agency responsible for the maritime area from
the shoreline seaward, and both Customs and Coast Guard
jointly responsible for air interdiction.
o National Drug Policy Board Directive. On May 22, 1987, the
NDPB issued a directive delineating Lead Agencies for
various areas of the Federal drug control effort. The
directive established the Customs Service as the lead
Federal agency responsible for the interdiction of
illicit drugs into the United States; Coast Guard was
designated the principal deputy.
o C3I. Construction of two Command, Control, Communications,
and Intelligence (C3I) Centers was initiated. C3I West
(March Air Force Base, California) is scheduled to be
operational in the summer of 1988; C3I East (Miami) is
scheduled to be operational in October 1988. The C3I West
Center will be under the command of Customs while command
of the C3I East Center will rotate between Customs and
Coast Guard.
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o Southwest Aerostats. The first of six southwest border
aerostat sites was completed at Ft. Huachuca, Arizona.3/
o Bahamas Aerostat. The Grand Bahamas Island aerostat was
operated in conjunction with Air Force aerostat radars in
the South Florida and Northern Bahamas areas in 1987.4/
o P-3 Program. This program incorporates the 3600 radar
system (APS-125) from an E-2C aircraft into the airframe of
the P-3 aircraft. The modified P-3 will provide an airborne
detection platform capable of 14-hours endurance and an
ability to detect targets greater than 1,000 miles from a
base of operation.5/
o Customs Blue Lightning Operations Center (BLOC). The Miami
BLOC continued full operations in FY87 while the Houston
BLOC began limited operations. In conjunction with BLOC
operations: several hundred State and local law enforcement
officials received Customs training and were cross-
designated with limited Customs authority; Customs purchased
mobile radios with the BLOC radio frequency and distributed
them to State and local agencies; and the Civil Air Patrol
flew over 1,000 hours in support of the Miami BLOC.6/
o Customs Maritime Interdiction Base. Customs established a
joint Bahamian-U.S. Customs maritime interdiction base at
Gun Cay, Bahamas. The base is equipped with interceptor
boats jointly crewed by Customs, Coast Guard, and Royal
Bahamian Defense Force (RBDF) personne1.7/ A boat is also
being used as a communications center pending construction
of a static facility.
3/ Additional sites are planned for locations at Deming, New
Mexico; Big Bend Area, Texas; Eagle Pass, Texas; Moore Field,
Texas; and Yuma, Arizona.
4/ Two additional aerostats are planned for deployment at
-George Town, Great Exuma Island, and the Southern Bahamas.
5/ The first modified P-3 is scheduled for delivery in the
summer of 1988; contingent upon successful operational evaluation
of this aircraft, four of these aircraft could be delivered by
FY90.
6/ BLOC Miami contributed to 311 arrests and the following
seizures by operational units: cocaine - 12,653 pounds; marijuana
- 453,928 pounds; hashish - 33 pounds; oil - 80 pounds; 228
vessels; 22 vehicles; 29 weapons; and $362,270 in currency.
7/ Since its establishment in April 1987, the Gun Cay base has
been responsible for the seizure of 4,723 pounds of marijuana,
(Footnote Continued)
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o Container Strategy. Customs established a strategy for the
control and examination of high risk containers used to
smuggle large loads of illegal drugs into the United States.
Container seizures accounted for 28,595 pounds of
cocaine, or 33 percent of all Customs cocaine seizures.
o ACS-Selectivity. Customs improved border enforcement
efforts through the use of ACS-Selectivity at major ports
of entry.8/ Operational Analysis Staffs (OAS) were placed
in all major ports to identify commercial transactions
posing the highest illegal drug risks. These high risk
shipments were identified to inspectors via ACS-Selectivity.
As a result of ACS/OAS developed information, inspectors
seized 6,900 pounds of cocaine in two sea containers, the
largest cocaine seizure in 1987.
o Manifest Review Unit. The Customs Manifest Review Unit
permits the pre-arrival review of a carrier's manifest for
cargo transmitted by an Automated Manifest System. These
units play a key role in the interdiction effort
directed at containers and were responsible for targeting
and seizing a container of asphalt tiles from Venezuela
containing over 2,900 pounds of cocaine.
o Operation Chessmen. This Customs operation was developed to
identify airports with a high passenger threat
assessment, but low productivity in illegal drug
enforcement. Additional inspectors were detailed to
selected airports to improve inspection methods and
increase seizures.9/ These inspections resulted in the
seizure from passengers of over 26 pounds of heroin.
o CES Concept. Customs began implementation of the
Centralized Examination Station (CES) concept. This allows
for the presentation of pre-selected merchandise at the
CES, while other cargo, not requiring Customs action, is
released as expeditiously as possible. The concept allows
(Footnote Continued)
3,006 pounds of cocaine, and eight vessels; 22 arrests have also
been made.
8/ The Automated Commercial System is a Customs, comprehensive,
-computerized tracking, controlling, and processing system
covering most aspects of the importation process. One function
of the system targets certain high risk commercial containers and
containerized cargo for intensive enforcement examination.
9/ Operations were conducted in Boston, Dallas, Houston,
Atlanta, San Francisco, and Los Angeles.
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Customs to centrally locate manpower and equipment
resources, specifically, ACS computer terminals which
provide access to the Automated Manifest System, Tier
II Cargo Selectivity, and automated enforcement systems.
o Cross-Designation. Border Patrol, which has permanent
resources deployed along the southwest border, serves as the
principal interdicting force for drug smugglers and illegal
aliens entering the United States between the ports of
entry. In conjunction with Customs and the Drug Enforcement
Administration (DEA), over 2,800 Border Patrol Agents were
cross-designated and received limited Title 19 and 21
authorities .10/
o Coast Guard Resources. Coast Guard received $89 million
under the Omnibus Drug Supplemental Appropriations Act of
1987. Coast Guard used these funds to purchase two C-130
aircraft, five 110-foot patrol boats, several secure
communications packages, and a boat lift facility at Coral
Harbor, Bahamas.
o Coast Guard LEDETs. Coast Guard employed 300 Law
Enforcement Detachment (LEDET) billets authorized under the
1986 Anti-Drug Abuse Act. LEDETs are comprised of Coast
Guard personnel embarked on U.S. Navy ships which conduct
interdiction missions primarily on the high seas.
o Sea-Based Aerostats. Coast Guard operated two sea-based
aerostats (SBA) in 1987. In addition to the prototype, the
Coast Guard contracted to purchase four more SBAs in 1987
and modified the SBA contract to include air search radar.
This radar capability will provide a "trip wire" detection
capability against general aviation aircraft flying through
the Caribbean choke points. Four SBAs are scheduled to
receive this air search radar capability: three in 1988 and
one in 1989.11/
10/ Title 19 conveys authority to enforce Customs laws while
Title 21 conveys authority to conduct narcotics investigations.
The Border Patrol has incorporated cross-designation for Title 19
and Title 21 authorities in their academy curriculum. All Border
Patrol Agent trainees are cross-designated with limited Title 21
authority upon graduation from the academy. Upon arrival at a
southwest border duty station, they are cross-designated with
limited Title 19 authority.
11/ SBAs are tethered balloons with radars which detect vessel
movements and pass the information to interdiction units. "Choke
points" is a term used to describe the passages between the
islands of the northern rim of the Caribbean (e.g., the Windward
(Footnote Continued)
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o Coast Guard Interceptors. Coast Guard began daytime visual
(VFR) intercepts with the HU-25A aircraft in January 1987.
In April 1987, a contract was awarded to modify the HU-25A
with intercept radars and night vision sensors (forward
looking infrared radar - FLIR). The first aircraft was
delivered in April 1988.
o E-2C Aircraft. In January 1987, the Coast Guard established
its E-2C unit at Naval Air Station Norfolk, Virginia. Later
that month, the Navy transferred two E-2C aircraft to the
Coast Guard. On February 9, 1987, the Coast Guard began
its first E-2C operational deployment which resulted in the
seizure of an aircraft on Cat Island, Bahamas. In FY87,
Coast Guard E-2Cs flew on 15 deployments of one to two weeks
duration each (1,017 total hours). These resources were
involved in the seizure of eight aircraft and one vessel,
the confiscation of 1,666 pounds of cocaine and 651 pounds
of marijuana, and 18 arrests. The Navy also transferred two
E-2C aircraft to Customs. These aircraft became operational
at the Surveillance Support Center, Corpus Christi, Texas in
July 1987. On July 9, 1987, the E-2C was instrumental in
the seizure of one aircraft and 700 pounds of marijuana.
Since June 1987, Customs E-2Cs have flown 523 hours
resulting in ten arrests and the seizure of 20,000 pounds of
marijuana, 1,200 pounds of cocaine, three aircraft, and nine
vehicles.
o Coast Guard Personnel. Personnel to be assigned to the C3I
East center contributed significantly to planning,
coordinating, and executing several Department of Defense
(DOD) and multiagency drug law enforcement operations.
These personnel were also assigned on temporary duty to air
search radar watches at DOD radar sites at Guantanamo Bay,
Cuba and Roosevelt Roads, Puerto Rico. Additionally,
personnel were temporarily assigned to a radar site on
Providenciales Island (Turks and Caicos). This support
provided considerable information at little additional cost.
o Bahamian RBDF "Shipriders." The Department of State and
Coast Guard negotiated a two year extension of an agreement
authorizing RBDF personnel (with some Bahamian governmental
authority) to embark on Coast Guard cutters operating in or
near the Bahamas.
o Coast Guard Attaches. Coast Guard established new attache
billets in Bogota, Colombia and another in Mexico City.
These attaches will facilitate combined operations, visits
by U.S. officials, and vessel port calls. They will also
(Footnote Continued)
Passage between Cuba and Haiti). These choke points allow for
concentration of law enforcement assets.
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assist in ongoing anti-drug smuggling negotiations between
the Department of State and the Governments of Colombia and
Mexico.
Bahamas Liaison Officer. Coast Guard established a new
liaison officer billet (CGLO) in Nassau, Bahamas. The
CGLO will facilitate OPBAT and SEABAT operations (see
"Special Operations" section in this chapter), vessel port
calls, and visits by U.S. officials. The CGLO will also
assist in ongoing anti-drug smuggling negotiations between
the Department of State and the Bahamian government.
o Pulse Operations. The Coast Guard participated in various
pulse operations deploying Navy and Coast Guard ships in the
southern Caribbean.12/ National Narcotics Border
Interdiction System (NNBIS) coordination improved
cooperation between the Coast Guard, Navy, Air Force, and
Army during this period. Secure interoperable
communications also improved.
o Operation Blue Pennant Six. The combined operation Blue
Pennant Six was conducted off the west coast of Mexico. A
Coast Guard cutter operated with Mexican Navy interdiction
units to disrupt west coast drug smuggling. Though no
seizures resulted, the Coast Guard was able to develop a
better working relationship with the Mexican Navy Zone
Commanders on the west coast. There was also progress in
addressing communications problems and an increase in
intelligence sharing and Mexican Navy interest in conducting
independent operations.
o Law Enforcement Training. The Coast Guard provided maritime
law enforcement mobile training teams to train law
enforcement personnel in many countries.13/ Additionally,
the Coast Guard maintains a technical assistance team in
Antigua to assist the eastern Caribbean Coast logistic
support.
o Border Patrol Assets. In FY87, the Border Patrol acquired
the following assets for employment in anti-drug operations
along the southwest border: nine narcotic and illegal alien
detecting K-9 units; a low-light level television (L3TV);
12/ Pulse operations in FY87 improved relations with various
countries including Colombia, Venezuela, Honduras, Jamaica,
Haiti, Dominican Republic, and other Caribbean Island nations.
13/ These countries include: Venezuela, Martinique, Guadeloupe,
Costa Rica, Barbados, Antigua, St. Kitts, Dominica, St. Lucia,
Grenada, Pakistan, Greece, and Mauritius.
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and a fast response mobile unit equipped with heat detection
radar (FRED).14/
o Criminal Aliens. Border Patrol increased their efforts to
locate, prosecute, and remove criminal aliens from the
United States under the Border Patrol Criminal Alien Program
(BORCAP).15/ The total apprehensions of illegal aliens
declined in FY87 (1.16 million) from FY86 (1.69 million),
but because of the impact of the Immigration Reform and
Control Act of 1986, the number of criminal aliens located
and deported from the United States actually increased from
FY86 (14,180) to FY87 (15,143).
o Mobile Corridor Operations. Border Patrol detailed 294
agents in support of Operation Alliance mobile corridor
operations. The intent of these operations is to provide
additional resources (manpower, equipment, intelligence) to
a designated area along the southwest border for a limited
time to interdict drugs, contraband, and aliens thus
disrupting drug trafficking operations. There were five
such operations in FY87 resulting in the seizure of 54,882
pounds of marijuana and 1,107 pounds of cocaine.
o Border Patrol Tactical Unit (BORTAC). Border Patrol
expanded tactical unit operations in FY87. BORTAC, which
has already proven effective in both domestic and
international narcotics eradication efforts, was involved in
several classified operations. Operation Res-Sweep, an
unclassified marijuana eradication operation with the Bureau
of Indian Affairs Law Enforcement Division, took place on
the Hoopa Indian Reservation in California. This operation
resulted in the eradication of 54,000 pounds of marijuana
(an estimated 75% of the high grade sensimilla marijuana
crop planted on the reservation).
o INS Resources. Even though the Immigration and
Naturalization Service (INS) has never received any drug
interdiction related funding, the agency expended over $3.5
14/ L3TV allows visual coverage of high traffic areas. This
system permits one agent to visually monitor several areas at one
time, immediately confirm sensor alerts, and coordinate intercept
teams responding to illegal activity. FRED is used after
intelligence is developed that illegal activity is occurring in
locations not covered by L3TV. FRED is then moved into the area
to facilitate the visual monitoring of the suspected illegal
activity.
15/ BORCAP was instituted by the Border Patrol after records
ITIdicated that the number of illegal aliens encountered who could
be considered criminals was increasing (FY85 - .7 percent; FY86 -
.8 percent; and FY87 - one percent).
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million for manpower and equipment dedicated to the support
of Operation Alliance.
NATIONAL NARCOTICS BORDER INTERDICTION SYSTEM
U.S. agencies, with assistance by the Office of the Vice
President/National Narcotics Border Interdiction System
(OVP/NNBIS), continued to improve coordination procedures for
planning, integrating, and conducting complementary regional,
national, and international joint and combined drug interdiction
operations. Specifically, the agencies adopted a formal
recurring planning process using proven NNBIS coordination
mechanisms.
o In support of this recurring planning process, intelligence
entities of the law enforcement agencies, the National
Intelligence Community and the NNBIS Regional Centers
continued to enhance collection, analysis, reporting, and
interagency interaction in support of drug interdiction
efforts.16/ Agency and NNBIS Region daily and weekly
national seizure summaries are published to improve the flow
of intelligence information and OVP/NNBIS publishes a weekly
national seizure summary in support of joint agency efforts.
o Agency planners use the recurring NNBIS quarterly request
process to obtain major DOD resource support, including
secure military communications assistance.
o Foreign cooperating country initiatives in support of
complementary interdiction operations are coordinated
through OVP/NNBIS, the State Department's Bureau for
International Narcotics Matters (INM), and the DEA.
State/INM also allots monies to cooperating countries on a
quarterly basis in support of these combined initiatives.
o This recurring planning process requires continuing local
and regional joint assessments of operational efforts and a
national-level assessment at least semi-annually. These
national level assessments of joint/combined interdiction
operations are reviewed by a standing National Drug
Interdiction Operations Oversight Group, which is chaired by
the Vice President and includes agency heads and other
senior department/agency representatives who support drug
interdiction efforts. The lessons learned and
recommendations approved by this Oversight Group are
addressed with follow-up actions by OVP/NNBIS and the NDPB.
16/ NNBIS has regional facilities in New York, Miami, New
Orleans, Houston, Chicago, Long Beach, and Honolulu.
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o These improved coordination procedures, along with efforts
to determine how best to address all drug smuggling threats
and conveyances nationwide, are reviewed annually during a
joint agency drug interdiction game.17/
o These improved planning and coordination procedures ensure
that maximum benefit is gained from existing resources
available for interdiction purposes and that follow-up
actions on all lessons learned are integrated into our
evolving national and international anti-drug strategies.
SEIZURES
Interdiction seizure statistics are collected by Customs,
Coast Guard, and INS. Fluctuations in these statistics reflect
changes in the volume and type of drugs in transit, shipment
modes and methods, and the deterrent effect in interdiction
efforts on smuggling operators.
o Exhibit IV-1 presents the amount of illegal drugs seized by
Customs, Coast Guard, and INS for FY83-87.
o Exhibit IV-2 presents the number of assets seized by Customs
and Coast Guard for FY83-87. Seized assets are often used
by Federal and State law enforcement agencies. Proceeds
from the sale of assets can be used for law enforcement
purposes, and the remainder revert to the U.S. Treasury.
o Exhibit IV-3 shows the number of interdiction-related
arrests by Customs, Coast Guard, and Border Patrol for
FY 83-87.
17/ The last drug interdiction game was conducted August 31 -
September 4, 1987 at the Naval War College, Newport, Rhode
Island.
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EXHIBIT IV - 1
ILLEGAL DRUGS SEIZED THROUGH INTERDICTION*
(weight in pounds except as indicated)
(by fiscal year)
U.S. CUSTOMS**
Year
Heroin
Cocaine
Marijuana
Hashish
1983
594
19,602
2,732,974
2,210
1984
664
27,526
3,274,927
42,390
1985
784
50,506
2,389,704
22,970
1986
692
52,521
2,211,068
17,555
1987
639
87,898
1,701,150
1,073
U.S. COAST GUARD
Year
Cocaine
Marijuana
Hashish
1983
55
2,299,825
0
1984
1,932
2,857,511
29,962
1985
5,890
1,952,076
0
1986
7,495
1,840,678
2,099
1987
12,930
1,298,095
2
IMMIGRATION AND NATURALIZATION SERVICE
Year Heroin Cocaine Marijuana Hashish Dangerous Drugs***
1983
11
154
38,700
83
339,534
1984
27
236
37,342
5
46,065
1985
23
1,378
72,473
12
13,290
1986
62
2,763
143,339
29
160,397
1987
83
13,121
226,055
7
654,259
* Due to differences in accounting methods, numbers in
common categories cannot be added to arrive at an aggregate for
all Federal agencies.
** These data include all seizures by Customs alone and, in
many instances, in conjunction with or by other agencies.
*** Measured in dosage units.
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Cocaine seizures by Customs, Coast Guard, and INS continued
to increase significantly in 1987. Customs cocaine seizures
increased by 67.4 percent from FY86 to FY87. Coast Guard
cocaine seizures increased by 72 percent and INS cocaine
seizures increased 375 percent during the same period.
o Marijuana seizures by Customs and Coast Guard continued
their downward trend in 1987. Customs marijuana seizures
declined over 23 percent from FY86 to FY87; Coast Guard
marijuana seizures decreased by 29 percent. This reduction
is partly due to the deterrent effect of previous operations
on maritime smuggling. INS's marijuana seizures, however,
increased by 58 percent during the same period. This
increase is largely attributed to the operational
adjustments made by the Border Patrol to augment illegal
drug interdiction capabilities along the southwest border
and a shift by smugglers to land trafficking.
EXHIBIT IV-2
ASSETS SEIZED THROUGH INTERDICTION*
(by fiscal year)
Asset
1983
1984
1985
1986
1987
Vessels
Customs
418
582
570
302
720
Coast Guard
145
224
186
147
136
Aircraft
Customs
211
206
155
133
193
Vehicles
Customs
10,194
9,897
11,224
9,775
12,124
Monetary Instruments
Customs
(in millions) $50
$68
$96
$122
$102
* Figures show the number of vessels, aircraft, and vehicles
seized by each seizing agency. Monetary instruments are shown
by their value in dollars.
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EXHIBIT IV-3
ARRESTS THROUGH INTERDICTION EFFORTS*
(by fiscal year)
1983
1984
1985
1986
1987
Coast Guard
709
1,056
737
646
568
Customs
18,999
24,235
21,855
26,323
21,735
Border Patrol
861
847
1,101
1,746
3,834
* Coast Guard arrests include those individuals apprehended
on conveyances or in transshipping operations at the time of
seizure. Customs arrests include all interdiction-related
arrests as well as those individuals apprehended on conveyances
at seizure.
DOD SUPPORT
DOD provides substantial support to drug law enforcement
agencies. DOD efforts in support of drug interdiction include:
o Aerial surveillance. A new high in DOD aerial surveillance
support was attained in FY87 with 16,288 flight hours in
support of drug law enforcement agencies.18/
o Surveillance Data. A DOD initiative in FY87 involved
efforts to enhance long-range surveillance of aerial drug
smugglers by providing access to data from Navy and Air
Force strategic Over-The-Horizon (0TH) Radar and the
conventional land-based radars which comprise the
Caribbean Basin Radar Network.19/ When full operational
capability of these radars is achieved in the
mid-1990s, they have the potential to play a key
role in the overall long-range surveillance system for
detection of aerial drug smugglers.
18/ Surveillance missions were flown in the Caribbean, along the
Mexican border, over the Gulf of Mexico, and over the offshore
waters of California and Florida.
19/ The range of radars currently employed by law enforcement
personnel is limited by the curvature of the earth. 0TH radar
will extend the detection range beyond the horizon.
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o National Guard. DOD also supports drug law enforcement
agencies with the National Guard. In FY87, National
Guard units provided 3,121 aerial surveillance flight
hours and 9,000 man-days in support of drug eradication.
o Naval Support. The U.S. Navy provided 2,512 ship-days in
support of embarked Coast Guard LEDETs patrolling in high
drug trafficking areas. This is a 100 percent increase
over support provided last year.20/
o Equipment Loans. DOD aircraft valued at $300 million are on
loan and employed by drug law enforcement agencies. In
FY87, for example, new aircraft loans included four Navy
E-2C (two each to Customs and Coast Guard) and four Army
UH-60 Blackhawk helicopters to Customs./
SPECIAL OPERATIONS/ACTIVITIES
Drug Interdiction Game-1987
The Coast Guard sponsored "Drug Interdiction Game (DIG)
1987." DIG was designed, hosted, and directed by the Naval War
College, Newport, Rhode Island, with the assistance of NNBIS.
While DIG-1985 and DIG-1986 addressed maritime smuggling
activity only in the Caribbean, DIG-1987 addressed all threat
avenues with a view toward countering all transportation
conveyances for smuggling illegal drugs to and through U.S.
borders. Further, the game was restructured around existing
NNBIS regional cells and used established NNBIS coordination
procedures. The objective of the game was to test and evaluate
options for the strategic and operational control, coordination,
and communications among all other U.S. agencies engaged in drug
interdiction operations. Because of the expanded scenario and
increased interagency participation in DIG-1987, the environment
was conducive to surface national policy issues. Therefore, the
NDPB chaired a cell to address issues with possible national
policy implications.
20/ LEDETs arrested 110 people and seized 21 vessels, 223,965
pounds of marijuana, and 549 pounds of cocaine. In addition,
LEDETs discovered 1,750 pounds of floating marijuana and 450
pounds of floating cocaine in FY87.
21/ The Army now has 12 Blackhawk helicopters on loan to
Customs.
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Operation BAT
Operation BAT (Bahamas and Turks/Caicos Islands - OPBAT)
began in April 1982. The goals of OPBAT are to disrupt the flow
of marijuana and cocaine transitting this area enroute to the
United States; attempt to close the islands to smugglers for use
as refueling stops, storage locations, and staging points;
identify major smuggling organizations by their aircraft and
pilots in the area; and provide additional training to the host
country's narcotics and law enforcement officers.
o OPBAT. Coast Guard and DEA personnel operate the OPBAT
operations center in Nassau. The operations center
coordinates all maritime and air interdiction activities
that occur in the Bahamas involving U.S. forces. In
October 1987, the center began 24-hour a day operations.
OPBAT resources include personnel and helicopters from
the Coast Guard, DEA, Customs, and Army. These agencies
conduct combined operations with Bahamian strike force and
RBDF personnel. In FY87, OPBAT resulted in 146 arrests and
the seizure of 17,729 pounds of cocaine, 259,290 pounds of
marijuana, five vehicles, 22 vessels, and 26 aircraft.
o SEABAT. Coast Guard implemented the SEABAT concept which
provides a mobile launch platform (Coast Guard or Navy
ship) for Coast Guard helicopters with an embarked
Bahamian strike force. The presence of the strike
force confers authority for the helicopter to perform
air and maritime interdictions in Bahamian territory.
SEABAT basically extends the reach of OPBAT interdiction
resources.
o Operation Bandit. This initiative to increase air
interdiction response capabilities in the Bahamas began in
September 1986. It employs Customs helicopters stationed at
Homestead Air Force Base, Florida operating in the Bahamas
with RBDF personnel aboard. Operation Bandit arrested 29
people and seized 15 aircraft, five vessels, 3,032 pounds of
cocaine, and 12,570 pounds of marijuana.
Operation Alliance
Operation Alliance is a major, multiagency interdiction
initiative covering the entire southwest border from Brownsville,
Texas to San Diego, California and the adjacent Gulf and Pacific
water areas. Alliance participants include Federal and
State/local law enforcement agencies located on the southwest
border. As shown in Exhibit IV-4, there was a significant
increase between FY86 and FY87 in the quantity of drug seizures
along the southwest border. While not all of these seizures can
be attributed to Operation Alliance, this operation has had a
significant impact on seizures along the southwest border.
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EXHIBIT IV-4
SOUTHWEST LAND BORDER SEIZURES*
(by fiscal year)
Year Marijuana Cocaine Heroin
1986 60,409 1,807 27
1987 136,461 8,519 56
* All seizures are in kilograms. Minimum amounts for
seizures to be included are one gram of heroin, 200 grams of
cocaine, or 2,000 grams of marijuana.
Examples of agency cooperation and significant or unusual
seizures include the following:
o In September 1987, Border Patrol agents at the Calexico,
California station seized 1,014 pounds of marijuana after
responding to a sensor alert approximately eight miles
east of the port of entry in Calexico.
o In September 1987, DEA agents at the Brownsville and
McAllen Texas offices, in coordination with the Border
Patrol, Customs, the Border Smuggling Group, Federal Bureau
of Investigation, Texas Department of Public Safety (DPS),
and the Willacy County Sheriff's Department, seized
approximately 2,600 pounds of marijuana concealed in an
underground bunker at the Filigonia Airport near
Raymondville, Texas. Five aircraft valued at $400,000,
assorted radio communication equipment programmed to
monitor DEA, a list of Customs and Texas DPS frequencies,
and $20,000 were also seized.
o In September 1987, Border Patrol Agents at the Santa, Texas
checkpoint searched a trailer which had been placed on
lookout by the Texas DPS. The search revealed approximately
1,300 pounds of cocaine. The cocaine, truck, and driver
were turned over to DEA.
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LEGISLATION
IMPLEMENTATION OF LEGISLATION
Anti-Drug Abuse Act of 1986
o Seizure and Civil Forfeiture of Monetary Instruments
(?1355). Amended 31 U.S.C. 5317 to delete the "reasonable
cause to believe" requirement for border searches for
monetary instruments. The number of seizure cases
increased by 64 percent from 671 in FY86 to 1,049 in FY87.
The value of the monetary instruments seized increased by 68
percent from $21.5 million to $34.9 million during the same
period.
o Amendments to the Tariff Act (?1863). Amended the section
to allow the sharing of forfeited property with any Federal
agency and any State or local law enforcement agency which
participated directly in the seizure of the property. On
February 2, 1987, the Treasury Department delegated the
authority to Customs to discontinue Customs administrative
forfeiture actions in favor of forfeiture under State law.
The implementation of these enhancements has enabled
Customs to dispose of seized and forfeited property more
expeditiously, thereby improving cooperation with State and
local agencies.
o Foreign Police Arrest Actions (?2009). Removed Manfield
Amendment (22 U.S.C. 2291 (C)) restrictions from maritime
law enforcement in a consenting coastal State's territorial
seas. Prior to this amendment, the Mansfield restrictions
had been viewed as inhibiting joint operations and
operational training in these coastal areas.
o Authorization of Appropriations for Enhanced Drug
Interdiction Activities (?3052). (1) Required DOD to
provide two E-2C aircraft each to Customs and Coast Guard
(all four aircraft have been provided). (2) Authorized
$99,500 for seven radar aerostats for detecting drug
smuggling aircraft on the southwest border and in the
Caribbean--to be loaned to agencies designated by the NDPB
(two are now operational, one on Grand Bahamas Island and
one at Fort Huachuca, Arizona). (3) Authorized $40 million
for Blackhawk helecopters for apprehending drug smuggling
aircraft after they land in the U.S.--to be loaned to
agencies designated by the NDPB ($18 million were
appropriated for four aircraft which were loaned to
Customs). (4) Authorized $40 million for a 360? radar
system to be installed on a Coast Guard long-range
surveillance aircraft (funds were transferred to Coast
Guard, reprogrammed, and obligated for APG-66 radars for
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HU-25 Falcon jet interceptors, sea-based aerostats, and
Coast Guard E-2C support). (5) Authorized $7 million for
drug interdiction surveillance equipment to be loaned to the
Civil Air Patrol (CAP) (Air Force purchased small aircraft
support equipment for CAP).
o Tactical Law Enforcement Teams (?3053). Authorized DOD to
use $15 million in DOD funds to pay compensation of Coast
Guard LEDETs assigned to Navy vessels for drug enforcement
duty. This was completed in February 1987.
o Additional Department of Defense Drug Law Enforcement
Assistance (?3057). Required DOD (1) to submit to Congress
a list of all forms of assistance that are available to
civilian drug law enforcement agencies (report submitted in
February 1987); and (2) to convene a conference of drug law
enforcement agencies to determine the appropriate
distribution of assistance offered in its report to Congress
(conference convened under the auspices of NNBIS in May
1987).
o Aviation Smuggling (3120). Added 19 U.S.C. 1950 which is
intended to control aviation smuggling by adopting many of
the provisions which apply to vessels. It made it unlawful
for pilots or passengers to possess merchandise to be
introduced into the United States contrary to law. It
established a presumption of guilt for aircraft which
operate without lights, with unlawful fuel tanks, with
compartments for smuggling, or fail to properly identify.
As a result, 26 aircraft valued at $1.7 million were seized
and numerous investigations of aircraft suspected of
smuggling activities initiated.
o Coast Guard Drug Interdiction Enhancement (0251).
Authorized $89 million for acquisition, construction, and
improvement. Two C-130 aircraft, five 110-foot patrol boats,
and secure communications packages are being acquired with
this money.
o Establishment of a U.S.- Bahamas Interdiction Task Force
(?3301). Created the U.S. - Bahamas Drug Interdiction Task
Force and authorized the following funding for this task
force: $9 million for three helicopters; $1 million for
enhanced communications; and $5 million for initial design
engineering and other activities associated with a docking
facility in the Bahamas. Coast Guard stationed two
helicopters from its existing fleet at Nassau in October
1987 pending procurement of additional helicopters. An
upgrade of communications equipment was completed in April
1988. A travel lift capable of lifting 110-foot patrol
boats is being located at Coral Harbor, Nassau.
Additionally, because a mobile facility is more appropriate
to counter changing threats than a fixed facility, an
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advanced tactical support base concept is being pursued.
This base is capable of providing the full range of routine
support necessary to maintain surface interdiction resources
on station. It was implemented on a temporary basis on
April 1, 1987 and will be fully functional by the summer of
1988.
o Establishment of Command, Control, Communications and
Intelligence Centers (C3 I) (?3351). Required the
establishment of a national and sector centers. The
national center is partially operational in leased space in
Oklahoma City. C3I West (March Air Force Base, California)
is expected to have an initial operational capability in the
summer of 1988. C3I East (Miami) is expected to be
operational in October 1988.
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CHAPTER V: INVESTIGATION
INTRODUCTION
_DRAFT
The Federal Drug Investigations strategy emphasizes a highly
sophisticated division of labor to insure coverage of all aspects
of drug investigations that begin with the uniformed patrol
officer in the United States, end with counterparts in source
countries, and span a progressive continuum between the two. One
of the most important characteristics of the strategy is that,
for the first time, the coordinated efforts of the agencies
involved in drug investigations have been expressed in terms of
shared programs.
The Drug Investigations Committee of the National Drug
Policy Board (NDPB) is chaired by the Drug Enforcement
Administration (DEA); the Federal Bureau of Investigation (FBI)
serves as the vice-chairman.1/ The Committee's mission is to
reduce the availability of illicit drug supplies through the
immobilization of major drug trafficking organizations by
arresting their leaders and seizing their drugs and assets.
PROGRESS IN 1987
In order to immobilize principal drug trafficking
organizations, the highest level leaders, organizers, and
operators must be arrested. This strategy, therefore, focuses on
a variety of interrelated activities which are discussed below.
ORGANIZED CRIME DRUG ENFORCEMENT TASK FORCE PROGRAM
The OCDETF Program is the major cooperative Federal drug law
enforcement program for investigations. Of the numerous
investigative approaches used, this program is the best equipped
to respond to and disrupt high-level organized trafficking groups
because of its multiagency approach. In FY87, OCDETF continued
to target and pursue violators who direct, supervise, and finance
the illicit drug trade. These task forces utilized the combined
resources of DEA, FBI, Internal Revenue Service (IRS), Bureau of
Alcohol, Tobacco, and Firearms (ATF), Immigration and
Naturalization Service (INS), U.S. Marshals Service, Customs,
Coast Guard, U.S. Attorney's Office, and State and local law
1/ Other members of the Investigations Committee include
representatives of the U.S. Marshals Service, Immigration and
Naturalization Service, Internal Revenue Service, Customs
(Footnote Continued)
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enforcement agencies. Accomplishments of the OCDETF Program in
FY87 include the following:
o Operation Cashweb/Expressway. This three-year undercover
operation penetrated the highest levels of three Colombian
money laundering organizations. undercover FBI Agents
identified over $300 million in Colombian drug proceeds.
Federal, State, and local indictments were handed down on
114 conspirators for drug and/or money violations. Seizures
included 2,100 pounds of cocaine, 22,000 pounds of
marijuana, and $22.5 million in cash. Forfeiture proceedings
for $11 million in the bank accounts of two major subjects
were also initiated.
o Pizza Connection. From 1982-87, the FBI directed an
international investigation focused on heroin importation/
distribution and money laundering by Sicilian Mafia figures
in association with the La Cosa Nostra in the United
States.2/ The Mafia used pizza parlors throughout New York
and five other States to facilitate the distribution of an
estimated $1.65 billion worth of heroin smuggled into this
country from Sicily. Thirty-eight high-level traffickers in
the United States and 175 Mafia members and associates in
Italy were indicted for drug trafficking and money
laundering violations. Eighteen defendants, including
Gaetano Badalamenti, the former Sicilian Mafia "Boss of all
Bosses," were sentenced in Federal Court in New York to jail
terms up to 45 years.
o Sicilian Mafia Connection Case. Over the past two years,
the FBI has directed a multiagency international
investigation focusing on heroin importation and
distribution by Italian drug trafficking groups and their
criminal associates in the United States and Italy.3/ The
FBI and Italian law enforcement authorities discovered that
Italian drug traffickers had been engaged for years in the
routine and rarely interrupted importation and distribution
of heroin from Southwest Asia through Italy and Sicily and
into the United States. This long-term and complex
investigation addressed heroin trafficking in New York,
(Footnote Continued)
Service, Bureau of Alcohol, Tobacco, and Firearms, Coast Guard,
and the Departments of State, Treasury, and Agriculture.
2/ The FBI also received support form DEA, Customs, IRS,
foreign governments, and numerous State and local law enforcement
agencies.
3/ Other law enforcement agencies provided assistance during
The investigation, including DEA, Customs, Immigration and
Naturalization Service, and the New York City Police Department.
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Pennsylvania, New Jersey, North Carolina, Florida, Ohio,
Texas, and Washington, D.C. and employed 39 court-ordered
electronic surveillances. It is projected that
approximately 200 high-level Italian traffickers will be
prosecuted for drug trafficking violations both in the
United States and Italy.
o Herrera Mexican Trafficking Case. In March 1983, the FBI
initiated a four-year investigation of this major Mexican
drug trafficking organization that had established a
sophisticated network for the distribution of brown heroin
in the United States. The Herrera case used 14
court-authorized electronic surveillances for a nine-month
period. Over 100 drug indictments have been obtained and,
thus far, 75 felony convictions have been recorded with jail
sentences of up to 30 years. Additionally, assets valued at
over $500,000 have been forfeited to the United States
Government. The FBI continues to address this major Mexican
drug trafficking organization through a series of related
investigations.
o Operation Rum Punch. Organized by INS and ATF, this
? 13-State area investigation resulted in 154 arrests and
seizures of 71 weapons, $164,000 in currency, two vehicles,
and narcotics.
o Joint Investigations. INS, the Alaska State Police, and
local narcotics officers arrested four Jamaican nationals
and seized vehicles, $60,000 in currency, six kilograms of
cocaine, and 30 weapons.
o Pablo Acosta Organization. DEA, INS, and local narcotics
officers targeted the Pablo Acosta cocaine trafficking
organization; a 21-count indictment resulted. The principal
was sentenced to life imprisonment plus 209 years (to run
concurrently), and fined $1 million. Ten other defendants
received sentences ranging from 3-25 years.
OTHER MAJOR INVESTIGATIONS
o Operation Pisces. Directed at cocaine traffickers' money
laundering activities, this is the largest and most
successful undercover investigation in Federal drug law
enforcement history. It resulted in 350 arrests and seizures
of $78 million in assets, 8,600 kilograms of cocaine, and
6.5 tons of hashish. $12 million in currency was seized by
the Panamanian Government.
o Operation Man. Directed at false corporations laundering
marijuana smuggling profits, this operation resulted in the
seizure of $42 million in assets, $6 million in cash, $14
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million in currency located in Switzerland, and real
property in Florida, Georgia, and Puerto Rico.
o Operation Sea Horse. Major Oriental narcotics organizations
trafficking Southeast Asian heroin to the United States were
targeted. Informant networks capable of penetrating those
groups were developed which provided in-depth, long-term
intelligence.
o Operation Columbus. This operation targeted major Mexican
heroin and cocaine trafficking organizations and identified
their structures, smuggling routes, modus operandi, and
distribution networks.
o Operation Leyenda. This DEA-initiated Federal Task Force
investigated the murder of DEA Special Agent Enrique
Camarena. On May 13, 1987 Mexican trafficking kingpin,
Rafael Caro-Quintero--alleged to have masterminded the
kidnap, torture, and murder of Special Agent Camarena--was
indicted.
o Operation Alliance. Operation Alliance, established in
August 1986 as a multiagency interdiction effort, has
resulted in significant investigative successes. Defendants
processed by DEA offices along the Mexican border have
increased by 47 percent over FY86 totals. Case initiations
in the same offices were up 57 percent over FY86 and drug
removals increased by 100 percent during the same period.
DEA has increased its investigative and analytical staff in
these offices as well as its Mexico City office by 26
percent since April 1986. DEA also cross-designated 2,932
Border Patrol Agents located on the southwest border with
limited authority under Title 21. This cross-designation
enhances the Border Patrol's ability to conduct drug
searches and arrest violators. In FY87, ATF Agents
initiated 264 investigations involving firearms trafficking
to Mexico and 290 investigations targeting armed drug
traffickers along the southwest border. A total of 454
defendants have been recommended for prosecution. Seizures
include 1,348 firearms, 56 machine guns, 104 silencers, 22
destructive devices, 54,437 rounds of ammunition, and 22
pounds of explosives. IRS and Customs have concentrated on
illegal money laundering activities and on obtaining tax
charges against narcotic violators who operate along the
border.
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SPECIAL INVESTIGATIONS/TECHNIQUES
Corruption Investigation
The existence of drug-related public corruption underscores
the significance of the drug problem. Public officials'
acceptance of bribes and payoffs to protect drug organizations or
influence the outcome of prosecutions undermines the public's
trust and confidence in its elected and appointed officials.
Allegations of drug-related corruption continue to be
carefully scrutinized and are given high priority by the FBI and
the Department of Justice (DOJ). While there appears to be a
decline in the number of corruption convictions resulting from
drug investigations in 1986-87 [Exhibit V-1], the FBI considers
the 1985 figure (68) to be a statistical anomaly. In fact, total
convictions, taken from 1983, 1984, 1986, and 1987 have shown
progressive increases.
EXHIBIT V-1
FBI DRUG PROGRAM
PUBLIC CORRUPTION CONVICTIONS*
(by fiscal year)
1983 1984 1985 1986 1987
Drug Investigations 35 40 68 48 37
OCDETF Investigations 0 38 59 47 63
Total 35 78 127 95 100
* Includes those cases in which the defendant was referred
to treatment or other supervision prior to trial (pretrial
diversions). These convictions include those obtained through
unilateral FBI drug investigations and OCDETF investigations
where the FBI was the lead agency.
The FBI's decision to conduct a public corruption
investigation is based on the seriousness of the offense,
perceived impact, deterrent effect, crime problems particular to
a field division, and the prosecutive merits of the case.
Investigations of officials in managerial or executive positions
are considered higher priority than are investigations of local
government regulatory inspectors or law enforcement officers of
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patrolman or equivalent rank. Notable exceptions include
pervasive corruption throughout a governmental agency or the
involvement of organized crime figures. Instances of public
corruption not meeting FBI criteria are referred to appropriate
State and local authorities. Illustrative of the FBI's efforts
in corruption investigations are the following:
o Randy S. Fink Investigation. As a result of a joint
FBI/Customs investigation, Fink and 23 other individuals
(including three former Customs Patrol officials) were
charged in October 1987 with conspiracy to import cocaine
and marijuana. The three Customs officers provided
protection for drug traffickers operating in Louisiana and
Florida. The joint investigation continued for two years
and centered on a conspiracy to import an airplane load of
cocaine from Colombia to the United States.
o Armando Estrada Investigation. The investigation focused on
pervasive drug-related corruption by high-ranking current
and former officers of the Metro-Dade and Miami, Florida
Police Departments. This FBI investigation has resulted in
the indictment of 19 persons, 15 of whom are former police
officers. Seventeen police officers have been convicted and
28 others have been dismissed from police service. It is
anticipated that 70 police officers will have been dismissed
by the time this investigation ends. Approximately $300,000
in property has been seized and approximately $3,000 in cash
has been surrendered.
IRS Investigations/Tax Assessments
During FY87, the IRS attained record totals in virtually
every statistical category of narcotic enforcement results.
Since the inception of the OCDETF Program, the IRS has provided
the largest participation of any Treasury agency. Its
participation in 71 percent of all OCDETF cases initiated and 50
percent of all cases resulting in indictments is among the
highest of any agency. The following trends reflect the
continuing enforcement emphasis on financial investigations of
high-level drug traffickers and their organizations.
o There continued to be increases in 1987 over 1986 in
prosecutions recommended by the IRS Criminal Investigation
Division (CID) (four percent), indictments and informations
returned on CID cases (ten percent), and convictions
obtained involving CID investigative efforts (23 percent).
[Exhibit V-2].
o Total fines increased 21 percent in FY87 to $11.7 million.
[Exhibit V-2].
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EXHIBIT V-2
INTERNAL REVENUE SERVICE
SUMMARY OF DRUG ACTIVITIES
(by fiscal year)
1983 1984 1985 1986 1987
Prosecutions
Recommended 421 712 840 956 996
Indictments and
Informations 265 516 673 817 898
Convictions including
Guilty Pleas 167 353 515 666 680
Percent of Convicted
Sentenced to Prison 87 71 80 73 77
Average Prison
Sentence (months) 67 52 67 68 74
Total Fines
(millions) $ .89 $4.5 $4.2 $9.7 $11.7
Jeopardy and termination tax assessments against drug
traffickers apply to property used in or obtained by illegal
activities and other property owned by the individual. Such tax
assessments by the IRS result in the immediate demand for payment
of taxes.4/
Over the past five years, the total value of jeopardy and
termination assessments against drug traffickers totaled $657
million. The average assessment for the five-year period was
$498,891. [Exhibit V-3.]
4/ Jeopardy assessments are made when collection of any tax is
In jeopardy after the due date for filing a tax return has
passed. Termination assessments are made when the IRS finds that
the collection of income tax is in jeopardy before the end of the
tax year.
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EXHIBIT V-3
JEOPARDY AND TERMINATION ASSESSMENTS
AGAINST DRUG TRAFFICKERS
(by fiscal year)
Year
Number
Assessments
(millions)
Average
Assessment
1983
260
69
265,384
1984
297
117
393,939
1985
296
244*
824,324
1986
280
176
628,571
1987
220
51
231,818
Total
1,353
$657
$498,891
* One case involved an assessment of nearly $93 million.
INS Investigations
INS has made a strong commitment to curtailing alien
involvement in narcotics trafficking enterprises. The enactment
of the Anti-Drug Abuse Act of 1986 and the Immigration Reform and
Control Act of 1986 and the Attorney General's decision to
include INS's Investigations Division as a full member of the
OCDETF Program have enhanced INS's success in locating,
apprehending, investigating, and removing criminal alien drug
traffickers from the United States and for pursuing extra
territorial prosecutions and extradition of drug traffickers.
Despite the relatively short tenure of INS investigations in
the OCDETF program, the accomplishments have been significant:
INS Agents have been responsible for, or assisted in,
drug-related seizures and forfeitures amounting to $6.9 million
in currency, 88 vehicles, 167 weapons, 979 kilograms of cocaine,
and 1,521 vials of "crack." INS Agents have also been
responsible for, or assisted in, the arrest of 474 aliens
involved in illegal narcotics trafficking activities during
designated OCDETF investigations.
Operation Black Gold, an INS investigation in Philadelphia,
focused on a Jamaican criminal organization ("posse") involved in
the importation and distribution of marijuana and cocaine. As a
result of the investigation, the organization was dismantled and
a Pennsylvania State Trooper was convicted on 24 counts of aiding
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and abetting the sale of fraudulently issued identity documents
to hide the illegal alien status of posse members. Additionally,
a Philadelphia city corrections officer plead guilty to three
counts of document fraud in supplying bogus drivers licenses to
the group.
Drug-Related Firearms and Explosives Investigations
o Over the past several years, officials responsible for the
enforcement of drug laws at all levels of government have
experienced an alarming increase in the number of drug
violators who use firearms and explosives.
o Firearms, particularly automatic weapons, have become
popular among drug traffickers who seek to protect their
profits and further their illicit enterprises. (Exhibit
V-4.)
o DEA seized nearly 5,000 weapons during FY87.
EXHIBIT V-4
BUREAU OF ALCOHOL, TOBACCO, AND FIREARMS
FIREARMS AND EXPLOSIVES TAKEN INTO ATF CUSTODY
DURING DRUG-RELATED INVESTIGATIONS
(by fiscal year)
1985*
1986
1987
Handguns
424
457
1,175
Rifles/Shotguns
335
441
2,119
Machine guns
44
35
152
Sawed-off Shotguns/Rifles
24
34
181
Destructive Devices (bombs)
22
59
129
Silencers
41
47
117
Explosives (pounds)
1,281
470
354
Ammunition (rounds)
16,433
36,756
37,390
* Statistics for the years prior to 1985 are unavailable.
Electronic Surveillance
o Electronic surveillance is a carefully employed
investigative tool for obtaining evidence against powerful
drug traffickers and their associates. The use of this type
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of surveillance, which must be authorized by court order,
varies by case.
o For each fiscal year, the total number of orders obtained
includes initial interception orders (which are valid for
only a specified number of days) and extensions of those
orders.
o The number of electronic interceptions authorized by the
court increased in 1987 in response to increased
investigative activity. [Exhibit V-5.]
EXHIBIT V-5
DEA, FBI, AND CUSTOMS
ELECTRONIC INTERCEPTIONS (TITLE III)
(by fiscal year)
Year
Court Orders
Obtained
Initiations
Extensions
DEA
1983
81
48
33
1984
85
57
28
1985
142
82
60
1986
81
58
23
1987
107
68
39
FBI
1983
155
84
71
1984
308
148
160
1985
159
101
58
1986
83
53
30
1987
90
57
33
CUSTOMS*
1985
3
3
1986
2
2
1987
10
8
2
* Customs was not granted electronic interception authority
for Title 31 violations until late 1984.
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Fugitives
o Because high-level drug traffickers face lengthy prison
sentences when convicted and risk losing all assets derived
from their illegal activities, many traffickers attempt to
flee from justice before prosecution. The Marshals Service
has made significant contributions in fugitive apprehension.
In 1987, the Marshals Service received approximately 11,500
fugitive cases. Of these, 40 percent were drug-related.
The Marshals arrested about 60 percent of these fugitives.
o Between March and May 1987, the Marshals Service implemented
the Warrant Apprehension Narcotics Team (WANT) to pursuit
and apprehend narcotics-related Federal fugitives. The WANT
program resulted in the arrest of 166 narcotics fugitives.
Among those apprehended were five drug traffickers who had
jumped bonds of $1 million or more. Seizures valued at
$1.02 million were also made.
STATE AND LOCAL COOPERATION
DEA State and Local Task Force Program
The 52 DEA State and Local Task Forces nationwide contribute
to the national drug enforcement effort by disrupting illicit
drug traffic; seizing drug evidence and drug-related assets;
providing intelligence that assists the development of national
cases, informants, and investigative leads; and providing
training and experience to State and local officers. For
example, 19 percent of DEA's active OCDETF investigations in 1987
were initiated as a result of a State and Local Task Force
investigations. As OCDETF investigations, these cases have
yielded over 300 Class I arrests and $23 million in seized
assets. The following are examples of task force cases:
o New York Drug Enforcement Task Force Investigation. This is
an eight-year investigation of an organization with 3,000
members. The organization ships 6,000 kilograms of cocaine
per month from Colombia through Mexico to New York City and
makes profits estimated at $2.5 million per month. To date,
two tons of cocaine, $7 million in cash, $2 million in
jewelry, 65 cars, and 200 automatic weapons have been seized
and 300 defendants arrested.
o DEA San Diego Narcotic Task Force. Suspects were observed
loading cardboard boxes into a truck. A routine vehicle
stop by the San Diego Sheriffs Department resulted in the
seizure of 100 pounds of methamphetamine powder. The FBI
identified approximately $6.5 million in assets and property
belonging to the main defendant and his associates. An
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OCDETF investigation is being proposed to consolidate the
investigation.
DEA State and Local Task Force Program arrests and
convictions increased significantly from 1986 to 1987. The
number of individuals arrested increased by 25 percent;
convictions increased by ten percent. [Exhibit V-6.1
EXHIBIT V-6
DEA STATE AND LOCAL TASK FORCE PROGRAM
ARRESTS AND CONVICTIONS*
(by fiscal year)
Arrests
Convictions
1983 1984 1985 1986 1987
2,703 2,465 3,172 4,433 5,559
1,945 2,506 2,025 2,383 2,629
* Figures for arrests and convictions for a given fiscal
year do not necessarily refer to the same individual.
State and Local Investigations
Another means of immobilizing trafficking organizations is
through State and local investigations. State and local
governments have become more active as drug investigation
partners with the Federal government. Some FY87 examples
include:
o Operation Pipeline. This operation focuses on State and
highway police interception of shipments of cocaine and
other controlled substances along the interstate and highway
systems. Nine States joined Operation Pipeline's
statistical reporting system during 1987 bringing the total
to 38. FY87 seizures included approximately 2,783 kilograms
of cocaine, 24,084 kilograms of marijuana, 11 kilograms of
heroin, 65 kilograms of amphetamines, and over $18 million
in currency.
o Washington Heights, New York City. From July 1986 to July
1987, a Federal, State, and local Task Force was convened in
the Washington Heights area. DEA Special Agents and other
law enforcement officers arrested New Jersey residents who
crossed the George Washington Bridge into New York to
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purchase "crack" cocaine from dealers. A total of 952
buyers and sellers were arrested and 617 automobiles seized.
o Zero Tolerance. In December 1986, DEA, Customs, the U.S.
Attorney's Office, and other law enforcement agencies in San
Diego implemented a "zero tolerance" campaign on the
U.S.-Mexican border. Individuals found crossing into the
United States with any amount of an illicit drug are now
charged with a violation of Federal law and given the
option of forfeiting their vehicles or facing prosecution
and subsequent incarceration. Of the 1,200 arrests to date,
only one individual has chosen the latter.
COCAINE SUPPRESSION PROGRAM
The objective of this program is to destabilize cocaine
trafficking operations as close to the source as possible, but
also in the ports of border areas of the United States.
o Latin America. An operation was initiated in April 1987 to
reduce over a three-year period the supply of illicit
cocaine reaching the United States from Latin America. This
operation is coordinated by DEA and the Department of State
with appropriate foreign authorities in eleven cooperating
Central and South American countries. Through December
1987, seizures in this operation included: 1,375 cocaine
hydrochloride and base laboratories, 2,452 (55 gallon)
drums of chemicals, 23,799 kilograms of cocaine
base/hydrochloride, 42 aircraft, 12 boats, 388 vehicles, and
$4 million in currency.
o Colombia. On February 4, 1987 Carlos Lehder-Rivas was
arrested by Colombian National Police and extradited to the
United States. Lehder-Rivas was one of the largest
suppliers of cocaine to the United States and reputedly the
most violent of the Medellin drug cartel. Estimates are
that Lehder's organization transported an average of 1,000
kilograms of cocaine per month to the United States, and
that his organization had expanded operations to include
marijuana trafficking.
o Guatemala. During 1987, a single investigation conducted by
DEA and Guatemalan authorities resulted in the seizure of
2,404 kilograms of cocaine destined for the United States,
one of the largest single seizures in history.
o Honduras. Responding to increasing evidence of smuggling
activity, the United States increased its drug enforcement
presence in Honduras in 1987 resulting in the seizure of
several thousand pounds of cocaine. Also, inspection of a
shipment of plantains from Honduras revealed 125 of the
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cartons contained cocaine. Approximately 5,000 pounds of
cocaine were seized and six individuals arrested.
o Mohawk, New York. DEA, FBI, New York State Police
investigators, and the Albany Drug Enforcement Task Force
seized a cocaine conversion laboratory on a 305-acre dairy
farm in Mohawk. Eleven individuals were arrested and
approximately 1,200 pounds of cocaine base-saturated
charcoal, 125 pounds of cocaine hydrochloride, and 210
pounds of cocaine hydrochloride were seized.
HEROIN SUPPRESSION PROGRAM
The objective of this program is to destabilize heroin
trafficking operations as close to the source as possible, but
also in the ports of border areas of the United States.
o New York-Hong Kong. DEA and Customs seized 160 pounds of
pure Southeast Asian heroin in New York. Personal documents
of the three arrested defendants revealed over 100 bank
accounts and safety deposit boxes in the United States and
Hong Kong. Approximately $1 million in cash and negotiable
instruments were seized in the United States.
o Mexico. The Jaime Herrera-Nevarez organization
(confederation), based in Durango, Mexico, is one of the
largest Mexican heroin trafficking organizations. The
Mexican Federal Judicial Police, acting on DEA information,
arrested Herrera-Nevarez's son in Mexico on narcotics
charges. Jaime Herrera-Nevarez was then apprehended in
Mexico by Mexican police. Both Herreras remain
incarcerated, each facing numerous charges for drug
violations.
o New York-Thailand. Information developed by DEA led to a
Customs search of a shipment of furniture from Thailand
destined for Brooklyn, New York. Concealed inside the
furniture were 55 pounds of pure heroin. Two members of a
large Oriental heroin smuggling organization were arrested.
o Belgium. As a result of the cooperative efforts of DEA
Special Agents and authorities in Turkey, Austria, Germany,
France, and Belgium, 30 kilograms of heroin and $100,000 in
cash were seized in Antwerp, Belgium; two arrests were also
made. This investigation was initiated by DEA and Turkish
authorities who obtained authorizations from four of the
countries to conduct a controlled delivery of heroin.
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CANNABIS DETECTION AND ERADICATION
Cannabis Seizures
o Colombia. As a result of a four-month investigation
involving DEA offices in Miami and Colombia, the Colombian
National Police seized 150 tons of marijuana in Colombia,
the second largest marijuana seizure on record in Colombia.
o Louisiana. DEA, Customs, FBI, the Louisiana State Police,
and the Mississippi Bureau of Narcotics observed an aircraft
land in Houma, Louisiana and off-load 1,080 pounds of
marijuana. The suspects were followed to a farm near
Greensburg, Louisiana where they were arrested and the
marijuana seized. A search warrant served on one defendant
resulted in asset seizures amounting to $1.4 million in
currency and over $2 million in real estate and other
property.
Domestic Cannabis Eradication/Suppression Program
The national cooperative effort by DEA to eradicate
domestically grown marijuana involves State, local, and other
Federal agencies to coordinate the eradication of marijuana,
arrest violators, seize assets, conduct follow-up investigations
of violators, develop an intelligence data base, and train
outside agencies in marijuana eradication. DEA funds help the
States defray the costs of their eradication efforts. In 1987,
48 states participated in this program.5/ [Exhibit V-7.]
o Of the 71,845 cannabis plots sighted in FY87, all but 9,482
were eradicated. Over seven million pounds of marijuana
were removed.
o Nearly 1,200 greenhouse/indoor operations were seized, a
10.7 percent increase over 1986.
o Asset seizures, including farms, residences, and other
property, were reported in 35 States. In 1987, asset
seizures remained constant with $13.7 million seized.
o Program-related arrests increased by 17.4 percent between
1986 and 1987, from 5,537 to 6,502.
o DEA flew 210 missions (over 632 hours) in support of the
Program's enforcement and training activities throughout the
5/ The following States did not participate: Nevada, New
Jersey, North Dakota, and South Dakota.
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country. Aviation resources from other Federal, State and
local agencies, National Guard units, and civilian contract
sources were utilized in 1987 as they were in 1986.
The Bureau of Indian Affairs Law Enforcement Division and
members of the Border Patrol Tactical Unit launched a joint
marijuana eradication effort on the Hoopa Indian Reservation in
Northern California that ended in FY87. This highly successful
airmobile enforcement operation eradicated an estimated 75
percent of the high grade sensimilla marijuana crop planted on
the reservation, seizing and destroying approximately 54,000
pounds of marijuana plants.
EXHIBIT V-7
DOMESTIC CANNABIS ERADICATION/SUPPRESSION PROGRAM
(by fiscal year)
1983
1984
1985
1986
1987
Plots Sighted
76,588
21,075
47,399
33,291
71,845
Plots Eradicated
70,572
19,199
39,745
32,196
62,363
Plants Eradicated
(millions)
4
13
39
130
113
Greenhouses
714
649
951
1,077
1,192
Arrests
4,318
4,941
5,151
5,537
6,502
Weapons Seized
984
1,424
1,768
1,646
1,728
DEA Cannabis Cultivation Investigations
o Minnesota/Nebraska. In 1987 the first evidence of an
organized group involved in multi-State cannabis cultivation
and distribution was discovered in Minnesota, where 48 tons
of marijuana were seized on a farm located in New York
Mills. The group also had a farm in Nebraska where
authorities seized an additional 34 tons of marijuana.
o Hawaii. The Hawaii County Police Department conducted an
aerial spraying operation and destroyed 102,416 marijuana
plants located in 2,600 plots. This operation was conducted
with the approval of the Hawaiian State environmental
agencies. To date, approximately 880,000 plant have been
eradicated in Hawaii County by both manual and spraying
methods.
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Cannabis Activity in National Forests
In 1987, there was considerable use of National Forest
System (NFS) lands for illicit cannabis cultivation. Emphasis of
the Forest Services' Target Priority Program is on the highest
level of individuals responsible for cannabis production in the
NFS.
Cannabis growers are becoming more organized and are
utilizing creative methods to camouflage their operations. The
presence of booby traps at cultivation sites and confrontations
between armed growers, public visitors, and Forest Service
employees continued. Thirty-one cultivation sites had
potentially lethal booby traps installed and operational.
Highlights of the Forest Service Drug Control Program include the
following:
o Of the more than 3,000 cannabis cultivation sites detected,
41 percent contained high potency "sinsemilla." Nearly
300,000 cannabis plants were eradicated.6/ This represents
approximately 40 percent of the total amount of cannabis
being cultivated on NFS lands. In 1987, 135 persons were
arrested for cannabis cultivation on NFS lands; 101 firearms
were seized.
o The Forest Service requested cross-designation authority
from DEA in order to do completed investigative work in
remote areas adjacent to the National Forests where DEA or
State and local law enforcement resources are limited. A
subcommittee of the NDPB was formed to study this issue.
DANGEROUS DRUG CONTROL
Domestic Clandestine Laboratory Program
o Most of the illicit dangerous drugs abused in the United
States are produced in clandestine laboratories.
o Total clandestine laboratory seizures increased 34 percent
from 509 in 1986 to 682 in 1987. This increase is
attributed to an increase in the number of labs and their
operating capacity prompted by the steadily increasing
demand for methamphetamine. The increase also includes a 51
percent increase in methamphetamine lab seizures and a
6/ Due to reduced manpower caused by the massive forest fires
In the Pacific Northwest, the amount of cannabis eradicated form
NFS lands in 1987 decreased by about 11,000 plants; sites
detected decreased by about 800.
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decreases in the P2P and cocaine labs seized. [Exhibit
V-8.] The number of P2P labs seized decreased in 1987 for
two reasons: (1) P2P is now a controlled substance; (2) the
ephedrine method of producing methamphetamine, which does
not require P2P, is now the preferred production method.
o There were 83 clandestine laboratories discovered on NFS
lands. Most were set up to produce either PCP or
methamphetamine.
o A record number of weapons have been seized at clandestine
laboratory sites (1,364). Fifteen percent of the weapons
were fully automatic.
EXHIBIT V-8
DEA AND STATE AND LOCAL LAW ENFORCEMENT AGENCY
CLANDESTINE LABORATORY SEIZURES*
(by fiscal year)
1983
1984
1985
1986
1987
Methamphetamine
122
184
257
372
562
P2P
7
14
25
21
19
Amphetamine
25
31
67
66
66
PCP/PCC
47
26
23
8
11
Cocaine
10
24
29
23
17
Methaqualone
11
4
5
4
1
Psilocybin
2
4
3
0
0
MDA
5
0
3
3
1
Fentanyl
0
0
2
3
1
Other
12
4
5
9
4
Total
241
291
419
509
682
* Total national clandestine laboratory seizures are
probably higher than those reported here since not all seizures
are reported to DEA by local law enforcement agencies.
Clandestine Laboratory Investigations
o Philadelphia. Following a three-year investigation
initiated by DEA and the FBI in Philadelphia, a Federal
grand jury returned a 46-count indictment charging 28
organized crime leaders and associates with involvement in
international P2P importation and distribution and
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methamphetamine manufacture and distribution. The leaders
were charged with conducting a continuing criminal
enterprise. Property and asset seizures were estimated at
$5 million.
o Orlando. DEA charged two defendants with conspiracy to
manufacture methamphetamine. Computerized records seized at
their residence contained evidence of a distribution
network, financial records, and chemical formulas. It is
estimated that these individuals had distributed
approximately 400 kilograms of methamphetamine since 1982.
o Los Angeles. The Los Angeles Police Department Clandestine
Laboratory Squad and DEA Agents seized approximately 84
pounds of methamphetamine oil and finished methamphetamine
as well as precursor chemicals, glassware, and laboratory
apparatus from a garage in San Diego County. The laboratory
had the capacity to produce 50 pounds of methamphetamine per
week. The search also resulted in the seizure of 33 weapons
and 12 booby traps. The perimeter of the property was
protected by a closed circuit video system.
o Florida. A 105-count indictment naming 49 defendants in the
Southern District of Florida charges an organization with
clandestinely manufacturing 13.5 million counterfeit
diazepam pills in Quebec, Canada and with subsequent
distribution in Southern Florida. The principal defendants
are charged with racketeering and interstate transport in
aid of racketeering.
Seizure of Essential Chemicals
o Chemicals and precursors used in the illicit production of
drugs are either diverted from legitimate production and
distribution networks or are produced illicitly.
o DEA has worked with its State counterparts in obtaining
precursor and essential chemical laws at the State level. A
major effort is currently under way to obtain a Federal law
for the control of these chemicals.
o A conference on cocaine and essential chemicals was held in
Quito, Ecuador in July 1987. The conference, attended by
cabinet-level officials from 21 countries and
representatives from the United Nations and the South
American Accord, examined the role of producing,
transmitting, and consuming countries in precursor and
essential chemical markets.
o Operation Origination is aimed at companies which supply
chemicals to clandestine laboratory operators. To date, 40
such companies have been targeted by DEA. During FY87, ten
were immobilized and $11.2 million in assets were seized.
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o DEA seized 564 kilograms of P2P when it arrived in Boston
from Frankfurt, Germany. The P2P, which was 96 percent
pure, would have made 1,380 pounds of methamphetamine with
an approximate illicit wholesale value of over $16 million.
The suspect, a German national, was arrested in Boston and
released on $100,000 bond pending trial.
Domestic Diversion Investigations
o Criminal Diversion Investigations, which involve the
identification of high-level violators (both practitioners
and financiers backed by organized crime elements)
responsible
for large-scale diversion, increased by 13.3 percent between
1986 (353 investigations) and 1987 (400 investigations).
o Public Interest Revocation Investigations allow DEA to deny
an application for registration or immediately suspend or
revoke a registration if such registration would be or is
inconsistent with the public interest. In 1986, DEA
requested the denial or revocation of 307 applications for
registration; in 1987, there were 450 such requests, an
increase of 46.6 percent.
o Preregistration Investigations, which serve to assure that
the authority to handle controlled substances is granted
only to those whose registration is in the public interest,
increased from 1,326 in 1986 to 1,528 in 1987, a 15.2
percent increase.
o Cyclic Investigations involve
investigations of manufacturers,
and exporters to ensure required
The number of these investigations
1986 and 1987 (740 investigations).
periodic, unannounced
distributors, importers,
controls are maintained.
remained constant between
o Michigan. 1987 saw the culmination of a two-year
DEA/FBI/IRS/Michigan State Police investigation focusing on
the diversion of controlled substances and pharmacy fraud
through generic substitution by subjects associated with a
Michigan firm. Prosecution resulted in the conviction of 65
defendants (including one physician and 30 pharmacists) and
the forfeiture of 29 pharmacies.
o Operation Quaker State. Eighty-one physicians and
pharmacists have been targeted for investigation under this
Operation which addresses the significant diversion of
amphetamine, methamphetamine, and phenmetrazine in
Pennsylvania. Federal and State investigative efforts
during 1987 resulted in the arrest and conviction of two
physicians and a number of other criminal and civil actions.
As a result of this Operation, the State legislature has
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banned the use of amphetamines for the treatment of obesity
and restricted the prescribing of Schedule III and IV
anoractics to no more than 45 days per patient in
Pennsylvania.
Domestic Conference
o In September 1987, senior policy officials from 41 States,
the District of Columbia, and Puerto Rico attended the third
National Conference on the Control and Diversion of
Controlled Substances held by DEA in San Antonio, Texas.
Major conference recommendations included a call for State
enactment of legislation to establish multiple copy
prescription systems, revoke or suspend the licenses of
drivers convicted of drug-related offenses, and the adoption
of bail and sentencing reforms similar to those enacted at
the Federal level. Letters endorsing and urging favorable
consideration of these recommendations were sent by DEA's
Administrator to the governors of the 50 States and Puerto
Rico and the mayor of Washington, D.C.
International Diversion Activities
An Asian Conference on the Diversion of Controlled Drugs,
Precursors, and Essential Chemicals from International
Commerce was held in Kuala Lumpur, Malaysia, April 22-24,
1987. The conference was designed to enhance cooperation
between participating nations and encourage the development
of methods to curtail trafficking. It also provided a forum
for discussing international drug and chemical diversion
concerns.
o Throughout 1987, DEA and the State Department continued
developing the new international convention for the
suppression of drug trafficking. The most recent draft
proposal, which includes a number of drug and chemical
diversion control provisions, was presented to the United
Nations Commission of Narcotic Drugs in February 1988. A
plenipotentiary conference is scheduled for November 1988 to
adopt the convention.
Controlled Substances Analogues
o A conference on the "Technical Aspects of Drug
Control--Assessment of Issues Relative to Illicit Substances
of Abuse and Controlled Substance Analogues" was held by DEA
in conjunction with the World Health Organization in Rabat,
Morocco in September 1987. Participants from 24 countries,
including experts in the fields of medicine, science, law
enforcement, and commerce, met to identify drugs which are
clandestinely manufactured and to assess the extent of their
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abuse and harm to the public safety. Recommendations were
developed and discussed by the conferees.
o As of December 1987, DEA had used the emergency scheduling
provision of the Comprehensive Crime Control Act of 1984 to
temporarily control 16 substances, including 15 analogues of
controlled substances. Ten of the analogues have been
permanently placed into Schedule I of the Controlled
Substances Act of 1970.
DOMESTIC DRUG REMOVALS
Drug removals include drugs seized, surrendered, or
purchased during the course of an investigation. Various
factors, such as availability and enforcement emphasis, affect
the fluctuation of drug removal statistics from year to year.
o Seized drugs (and other evidence) must be analyzed to assess
weight and purity. DEA chemists analyzed 42,112 exhibits of
evidence (including 11,243 for State and local agencies),
testified in 1,025 trials, conducted 801 ballistic
examinations, and identified 26 new illegal types of tablets
and 22 new types of LSD blotter paper.7/
o DEA cocaine removals (seized and purchased) increased
dramatically--up 32 percent from FY86 to FY87 (from 27,161
to 35,970 kilograms). [Exhibit V-9.]
o DEA marijuana removals decreased by 11 percent from 1986 to
1987 (from 710,000 to 632,000 kilograms). Hashish removals,
however, increased nearly 50 percent in the same period
(from 719 to 1,075 kilograms). [Exhibit V-9.]
7/ Blotter paper is saturated with individual dosage units of
LSD and sold as "hits".
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EXHIBIT V-9
DEA AND FBI DOMESTIC DRUG REMOVALS*
(by fiscal year)
Drug
1983
1984
1985
1986
1987
Heroin (kg)
FBI
4
39
15
5
16
DEA
306
349
468
382
356
Cocaine (kg)
FBI
317
221
31
839
1,051
DEA
7,569
11,768
24,637
27,161
35,970
Marijuana (kg)**
FBI 2
4
2
1
1
DEA
1,045
1,386
851
710
632
Hashish (kg)
FBI
3
2
1
.4
.12
DEA
1,302
14,371
9,831
719
1,075
Dangerous Drugs (d.u.)**
FBI
1,936
1,265
4,649
3,833
1,063
DEA
20,194
13,985
25,968
46,222
33,530
Stimulants (d.u.)**
FBI
954
1,151
4,502
3,738
1,061
DEA
10,802
11,125
20,710
27,846
26,839
Depressants (d.u.)**
FBI
804
75
80
5
2
DEA
2,810
1,627
665
1,627
643
Hallucinogens
(d.u.)**
FBI
178
39
67
90
.33
DEA
6,583
1,233
4,594
16,749
6,048
* Source: STRIDE (System to Retrieve Information from Drug
Evidence) Program.
** Measurements are in thousands.
1
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ARRESTS, CONVICTIONS AND SENTENCING
o DEA arrests and convictions were higher in FY87 than in any
previous year. Total DEA arrests of Class I and II
violators (the most significant) increased 15-percent from
5,989 in 1986 to 6,884 in 1987. The number of arrests in
Class I and II cases increased 14 percent during the same
period. [Exhibit V-10.]
Total drug-related arrests reported by DEA from all sources
increased 17 percent from 18,746 in 1986 to 21,921 in 1987.
This increase includes arrests by DEA acting alone, DEA and
State/local cooperative investigative efforts, DEA State and
local Task Forces, and referrals from other Federal agencies
to DEA. [Exhibit V-11.]
o Convictions obtained through investigations involving DEA
increased four percent from 12,022 in 1986 to 12,497 in
1987. [Exhibit V-12.]
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EXHIBIT V-10
DRUG ENFORCEMENT ADMINISTRATION
GEOGRAPHICAL DRUG ENFORCEMENT PROGRAM ARRESTS*
(by fiscal year)
Year
1983
1984
1985
1986
1987
Arrests by GDEP Class Arrests by GDEP Class
I & II Case** I & II Violator***
6,816
7,467
9,441
12,905
14,666
2,495
2,852
4,057
5,989
6,884
* The Geographical Drug Enforcement Program (GDEP) is DEA's
basic system for measuring its enforcement activities. Using the
GDEP Classification System, Class I and II violators are those
that are the most significant.
** The number of arrests by "GDEP Class I and II Case"
includes data on all Class I and II case-related violators
regardless of their classification. For example, if five
suspects are arrested in a case, and one of those suspects is a
Class I violator, then all five arrests are recorded in this
column.
?*** The number of arrests by "GDEP Class I and II Violator"
includes data on Class I and II violators only, i.e., the most
significant violators. For example, if five suspects are
arrested in a case, and one of those suspects is a Class I
violator, then only one arrest is recorded in this column.
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EXHIBIT V-11
DRUG ENFORCEMENT ADMINISTRATION
ARRESTS BY SOURCE
(by fiscal year)
Year
DEA
Only*
State/Local
Cooperative
State/Local
Task Force
Federal
Referrals
Total
1983
7,887
1,436
2,703
971
12,997
1984
7,839
1,724
2,465
1,098
13,126
1985
8,239
2,940
3,172
1,344
15,695
1986
9,466
3,466
4,433
1,381
18,746
1987
10,361
3,705
5,559
2,296
21,921
* Includes OCDETF Program arrests.
EXHIBIT V-12
DRUG ENFORCEMENT ADMINISTRATION CONVICTIONS*
(by fiscal year)
Year
DEA
Only**
State/Local
Cooperative
State/Local
Task Force
Federal
Referrals
Total
1983
6,001
1,087
1,945
933
9,966
1984
6,172
1,245
2,506
892
10,815
1985
6,455
1,157
2,025
912
10,549
1986
6,508
1,961
2,383
1,170
12,022
1987
6,350
2,203
2,629
1,315
12,497
* Figures for arrests and convictions for a given
year do not necessarily refer to the same individuals.
** Includes OCDETF Program figures.
fiscal
o DEA also reports record numbers of convicted offenders
entering prison on drug charges. In 1987, the total number
imprisoned was 10,042, a seven percent increase over 1986.
Defendants convicted on cocaine-related charges represent
the largest increase in imprisonments from 1986 to 1987,
from 4,462 to 5,607' (26 percent). [Exhibit V-13.]
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EXHIBIT V-13
DRUG ENFORCEMENT ADMINISTRATION SENTENCING DATA
(average sentences in months)
(by fiscal year)
Case Drug
1983
1984
1985
1986
1987
Heroin (Opiates)
Number imprisoned
1,565
1,522
1,526
1,470
1,198
Average sentence
64
68
68
69
76
Cocaine
Number imprisoned
2,185
2,946
3,202
4,462
5,607
Average sentence
52
57
56
65
69
Cannabis
Number imprisoned
1,899
2,151
1,977
2,022
1,953
Average sentence
42
51
46
51
52
Dangerous Drugs
Number imprisoned
1,166
1,156
1,214
1,420
1,284
Average sentence
43
47
56
57
65
TOTAL
Number imprisoned
6,815
7,775
7,919
9,374
10,042
Average sentence
50
56
56
61
66
Source of Arrest
DEA Only
Number imprisoned
4,302
4,721
5,010
5,270
5,330
S/L Cooperative*
Number imprisoned
676
799
828
1,459
1,760
S/L Task Force*
Number imprisoned
1,206
1,625
1,443
1,684
1,934
Federal Referrals
Number imprisoned
631
630
638
961
1,018
TOTAL
Number imprisoned
6,815
7,775
7,919
9,374
10,042
* S/L abbreviates State/local.
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The FBI claims only those OCDETF statistical accomplishments
derived from cases in which the FBI was the initiating, lead
investigative agency. The decline in FBI OCDETF statistics from
FY 86-87 [Exhibit V-14] reflects the 1986 implementation of the
FBI's National Drug Strategy (NDS) which focuses resources on
those long-term investigations of international drug trafficking
organizations. Such cases employ extensive use of electronic
surveillance and other manpower-intensive investigative
techniques designed to infiltrate and ultimately dismantle major
drug trafficking organizations. The organizational approach to
drug investigations, epitomized by the NDS, emphasizes the
quality-over-quantity concept in statistical accomplishments.
Reductions in statistical accomplishments are expected to
continue to decrease slightly over FY88 as a result of continued
refinement of the NDS.
o The FBI maintains statistical data on arrests, indictments,
and felony convictions as a method of indicating program
implementation.
o The FBI's felony conviction rate has increased steadily.
Although data are slightly skewed for fiscal years, the
conviction to indictment rate for 1987 exceeds 80 percent.
Such comparisons can be interpreted as a measure of
prosecutive effectiveness in FBI drug investigations.
EXHIBIT V-14
FEDERAL BUREAU OF INVESTIGATION
DRUG ARRESTS, INDICTMENTS, AND CONVICTIONS*
(by fiscal year)
Year
1983
1984
1985
1986
1987
Felony
Arrests Indictments Convictions
1,186
1,927
2,766
2,501
2,326
1,238
2,367
3,308
3,527
3,417
471
1,362
2,232
2,671
2,851
* Includes OCDETF statistics where FBI was lead agency.
The investigation and successful prosecution of
organizations and individuals involved in drug trafficking
continues to be a top priority in the FBI's multimission
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strategy. Violations of drug laws are vigorously pursued in all
areas of the FBI's investigative programs.
Individual convictions of violations under Title 21 are not
double-counted in drug program statistics. The following
statistics are provided to accurately portray the full impact of
the FBI investigative programs on drug traffickers primarily
associated with other criminal activities: General Crimes, 178
convictions; Organized Crime, 158 convictions; White Collar
Crime, 103 convictions (total - 439 convictions).
FINANCIAL INVESTIGATIONS
Investigations of the financial transactions of drug
trafficking organizations play a crucial role in the overall drug
enforcement strategy. Immobilizing drug trafficking
organizations requires that their assets be seized. Federal
agencies now enforce a variety of laws to attack drug traffickers
financially. The goal of the Federal effort is to establish a
sustained capability to identify, target, seize, and recover
monetary assets of traffickers. Pursuit of this goal through the
investigation of known criminal organizations is one approach.
Additionally, targeting the money flow and following the money to
the upper echelons of the enterprise will maximize the potential
for interagency success.
Recent changes in Title 31 and Title 18 allow a much broader
attack on the assets of drug traffickers than has been possible
before. Care must be taken to ensure equal effort is directed at
targeting the money flow process and the organizations involved
in any aspect of the narcotics enterprise. A recently signed
Memorandum of Understanding of Money Laundering has shown great
promise as a means for ensuring effective coordination of
high-level undercover infiltration operations. This strategy and
targeting approach will become an integral part of all drug
investigations.
o Customs has revised its financial investigative strategy to
concentrate its resources on high-level drug-related money
laundering organizations. Special emphasis has been placed
on geographic specific problem areas. Two new money
laundering task force operations have been established to
cover the San Antonio and San Francisco areas.8/
o As a result of the Money Laundering Control Act of 1986,
Customs increased its investigative responsibilities in the
8/ For a further description of these operations, see Operation
-Greenback in Chapter VI, Prosecution.
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area of money laundering. One hundred cases were initiated
for potential violations of the Money Laundering Control
Act. Sixty-five additional arrests were made and an
additional $10.6 million was seized.
o The FBI is providing Drug Money Laundering in-service
classes in the six core-cities of the FBI/DEA Joint Drug
Plan. Elements of the continuing FBI training program will
be used as a model for the Financial Enforcement Committee
coordinated interagency training program.
o The FBI, in association with the Office of Justice Programs'
Bureau of Justice Assistance (BJA), is developing a
curriculum for financial training of State and local law
enforcement officers involved in drug investigations. The
FBI will adopt a mentor approach by training a cadre of
officers who will, in turn, provide instruction to their
colleagues within their respective regions. The FBI/BJA
financial training course will train approximately 1,000
State and local officers in investigative techniques
designed to enhance asset and money flow tracing and will
include hands-on computer based training.
o Following on the success of the Operation Cashweb/Expressway
money laundering investigation, the FBI continues
centralized management of FBI money laundering
investigations nationally and internationally to ensure
efficient use of Federal resources and coordination with
other agencies of the Departments of Justice and Treasury in
accordance with the joint Memorandum of Understanding on
Money Laundering.
o Historically, because of the unique jurisdiction under Title
26 of the Internal Revenue Code, the IRS has long been
involved in conducting financial investigations of organized
criminals who derive their income from illegal activities.
With the enactment of new money laundering statutes, the IRS
has applied their expertise to prosecute individuals
profiting from this illegal activity. The IRS will continue
to pursue narcotics traffickers and those individuals
involved in the illegal money laundering aspects of the
organization by vigorously enforcing Title 31 and the new
Title 18 money laundering statutes.
Financial Enforcement Committee
Since its founding in 1987, the Financial Enforcement
Committee (FEC) has become the most active and visible
coordinating body for national programs actively attacking the
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financial operations of drug traffickers.9/ It is the focal
point of the Federal government for a newly emphasized attack on
drug trafficking organizations, their financial infrastructures,
and the financial assets generated by their illegal trade. The
committee, one of three Special Committees of the NDPB's
Enforcement Coordinating Group, is organized with two standing
subcommittees (Intelligence and Investigations) and has several
special task forces.
The ambitious mission of the FEC is to ensure the
development, coordination, implementation, and execution of all
Federal programs designed to identify, target, seize, recover, or
expose the financial operations and assets of drug trafficking
organizations.
o The first major project of the FEC, a money laundering
"Think Tank," was held in July 1987. Participants made
specific recommendations to improve many agency-specific
programs dealing with money laundering. A subsequent report
has served as a roadmap for the basic tasking of the
subcommittees and the foundation of an integrated strategy.
o In September 1987, the first Financial Enforcement Strategy
was written and adopted as part of the NDPB Strategy. This
was the first multiagency policy statement for attacking the
assets of drug traffickers. The strategy, which directs
equal efforts at targeting the money flow process and the
organizations involved in the narcotics enterprise, is the
basis for investigations in all drug cases.
o The Financial Enforcement Training Program is designed to
ensure a coordinated approach for training in all aspects of
financial investigation, intelligence, prosecutions, and
asset forfeiture and removal techniques. The principal
targets for this training initiative are OCDETF personnel
(including Federal, State, and local agent managers and
prosecutors). A flagship effort in this program has been
the use of FBI in-service training as a testing ground for
cross-agency instructors and speakers. This will be a
continuing effort using the joint FBI and DEA core city
program.
o As part of the training effort, the Financial Crimes
Investigation Institute of the Federal Law Enforcement
Training Center is cataloging all Federal financial
9/ Members of the Financial Enforcement Committee include
representatives of INTERPOL, Federal Bureau of Investigation,
Drug Enforcement Administration, Internal Revenue Service,
Customs Service, the Intelligence Community, and the Departments
of Treasury, Justice, State, and Defense.
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investigation and enforcement training courses. This effort
includes controling the scheduling of financial enforcement
training.
o The Money Flow Model Project with the Los Alamos National
Laboratory is a joint technology program sponsored by the
NDPB as a multiagency venture. The lead agency for project
coordination is the Department of Treasury, but the FEC runs
this project through a task force steering group. This is
the flagship project of the effort to structure the many
data bases that process financial information into more
usable formats.
o Other FEC projects include a project to collect,
review, and coordinate financial intelligence requirements.
A task force has been established and the collection work is
underway. The immediate goal is to articulate intelligence
requirements for financial intelligence in the same format
that was used by the Interdiction Committee.
o The Data Base Sharing Task Force of the FEC explores
existing data base capabilities and resources for financial
information and recommends ways to ensure coordination and
effective safeguards against misuse.
Asset Removal
Asset seizure and forfeiture laws give the government
authority to seize the funds, conveyances, property, and other
assets derived from illegal drug activities. The goal of asset
forfeiture is to destroy the economic power of drug enterprises.
Both the Departments of Justice and Treasury continued to place
strong emphasis in 1987 on asset forfeiture as a means of denying
drug traffickers the fruits of their illicit activities, as well
as the means by which those activities may be continued. Seizure
and forfeiture activity is the highest priority within the FBI,
second only to the investigation and prosecution of the
underlying crime. FBI seizures and forfeitures increased
steadily from FY85 through FY87 (See Exhibit VI-3).10/
10/ The FBI has seizure and forfeiture jurisdiction under 14
statutes involving the Drug, Organized Crime, White Collar
Crimes, Personal Crimes, General Government Crimes, General
Property Crimes, Anti-Terrorism, and Foreign Counter Intelligence
Programs.
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Asset Management
The government must store and maintain seized property from
the time of seizure until disposition following forfeiture. The
Marshals Service's National Asset Seizure and Forfeiture
Program (NASAF) manages seized assets for the DOJ agencies.
NASAF also manages DOJ's Assets Forfeiture Fund.
o The number of seized properties in Marshals custody nearly
doubled between FY86 and FY87. [Exhibit V-15.]
o The value of seized property also increased significantly in
FY87. The total value of seized property in the Marshals'
custody at the end of FY87 was $500 million--a 30 percent
increase over that held at the end of FY86. [Exhibit V-15.]
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EXHIBIT V-15
U.S. MARSHAL'S SERVICE
SEIZED PROPERTIES IN MARSHAL'S CUSTODY*
(by fiscal year)
Number
Value
(in millions)
Types
1985
1986
1987
1985
1986
1987
'
1
Aircraft
68
194
87
$8
$15
$18
Vessels
143
197
112
51
10
10
Vehicles
1,098
1,325
2,274
10
11
17
Real
Property**
429
802
1,258
109
153
205
Cash***
869
1,585
4,252
86
142
204
Other
1,057
1,289
3,634
49
55
46
1
Total
3,664
5,192
10,328
$313
$386
$500
* Excludes some DEA and INS administrative seizures.
** Includes businesses.
*** Includes financial instruments.
Equitable Sharing Program
Since its inception in mid-1985, the equitable sharing
program has expanded rapidly. The Federal government has
distributed slightly more than $135 million to State and local
agencies through this program. In 1987, DOJ shared $68.8
million in forfeited property and cash with State and local law
enforcement agencies. This is 180 percent more than the $24.4
million shared in 1986.1 Since the inception of the program in
1985, California received approximately $51.2 million from DOJ
and $10.7 million from Customs, reflecting the outstanding
cooperative efforts between Federal and California law
enforcement agencies. The overall sharing amounts reported by
agencies of the Departments of Justice and Treasury resulted from
many joint investigations by Federal, State, and local law
enforcement agencies throughout the country.
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LEGISLATION
IMPLEMENTATION OF LEGISLATION
Anti-Drug Abuse Act of 1986
o Precursor and Essential Chemical Review (.51901). Required a
precursor and chemical review to assess the need for
legislation, regulation, or alternative methods to control
the diversion of legitimate precursor and essential
chemicals to the illegal production of drugs of abuse. DEA
conducted the study which resulted in the preparation and
introduction by DEA of legislation entitled "The Chemical
Diversion and Trafficking Act of 1987." The legislation,
currently before Congress, will place controls upon the
importation, exportation, and distribution of certain
precursor and essential chemicals.
o Amendment to Immigration and Nationality Act (?1751).
Required INS (1) to determine if an alien arrested for a
narcotics offense is subject to deportation and, if so, to
detain the alien; and (2) to establish pilot programs in
four cities to improve computer capabilities for exchange of
information between INS and local law enforcement officials.
INS has designated New York, Chicago, Miami, and Los Angeles
as the four pilot cities and has started a feasibility study
for the improvement or establishment of computer system
interfaces.
o Monetary Tracing Provisions (?5317c). Expanded the seizure
provisions of Chapter 53 of Title 31 U.S.C. ?5317c to
include a "tracing provision." As a result, $4.1 million in
monetary instruments were seized in FY87.
o National Forest System Drug Control Act of 1986
(??15001-15007). Provided limited Title 21 authority for
Forest Service law enforcement personnel related to drug
offenses occurring within the NFS. This Act also provided
penalties for use of booby traps during drug manufacturing
activities on Federal public lands. Over 350 Forest Service
Special Agents and law enforcement officers were trained by
DEA.
Immigration and Nationality Act
INS has endorsed legislation introduced by Senator Chiles to
amend the Immigration and Nationality Act to increase criminal
sanctions against aliens involved in violent crime and narcotics
trafficking. These include the following measures:
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o ?972, requiring mandatory detention of aliens convicted on
felony charges to include drug trafficking and aggravated
assault.
o ?973, providing for additional criminal penalties for
deported aliens who reenter the United States.
o ?974, imposing criminal penalties on those who fail to
appear at immigration proceedings.
o ?975, imposing criminal penalties on individuals who aid,
conspire, or assist illegal aliens convicted of a felony to
enter the United States, or those who recruit and assist
aliens in foreign countries to enter the United States for
the expressed purpose of dealing in illicit narcotics.
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1
CHAPTER VI: PROSECUTION
INTRODUCTION
FT
The objective of the Federal Prosecution strategy is to
immobilize drug trafficking and money laundering organizations by
incarcerating their members, forfeiting their assets, divesting
them of their power, and, as appropriate, extraditing, deporting,
and excluding their members. To accomplish this objective,
prosecution resources are directed at those significant national
and international targets where successful prosecution has the
greatest impact on the overall strategic objective. The
strategy, therefore, focuses on a variety of interrelated
activities including, but not limited to, the following:
o Extending efforts to reduce the supply of illegal drugs by
increased, pro-active targeting of the major traffickers
responsible for drug importation and distribution.
o Attacking significant local and regional drug threats by
maintaining a Federal enforcement presence in every
district.
o Continuing to work with State and local drug enforcement
authorities and expand efforts to assist them in drug
prosecution at the State and local levels.
o Extending efforts to interrelate Federal, State, and local
prosecutions with Immigration and Naturalization Service
(INS) administrative proceedings to deport convicted alien
drug traffickers and prevent their reentry to the United
States.
The Department of Justice (DOJ) (Criminal Division) is the
lead Federal agency for the prosecution of drug trafficking
investigations and chairs the Prosecution Committee of the
National Drug Policy Board (NDPB). The combined Federal effort
in prosecuting drug trafficking organizations involves close
cooperation among Federal agencies and the continuing support of
State and local law enforcement and prosecution agencies.1/
1/ Other members of the Prosecution Committee include
representatives of the Drug Enforcement Administration, Federal
Bureau of Investigation, Customs Service, Internal Revenue
Service, Coast Guard, U.S. Marshals Service, the Criminal and Tax
Divisions of the Department of Justice, and the U.S. Attorneys.
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PROGRESS IN 1987
Federal law enforcement agencies working with U.S.
Attorneys' offices, the Organized Crime Drug Enforcement Task
Force Program (OCDETF) and Organized Crime Strike Forces
continued to expand their prosecutorial efforts in 1987. Drug
Enforcement Administration (DEA) and Federal Bureau of
Investigation (FBI) arrest and conviction statistics reached new
highs both in terms of quantity and quality of cases (12,395
people were arrested by the DEA in FY87, up from 5,580 in FY81).
Additionally, the amount of assets forfeited pursuant to these
prosecutions also increased significantly; Customs and the
Internal Revenue Service (IRS) reported greater numbers of cases
referred for prosecution and asset forfeiture and, as a
consequence of this law enforcement activity, more than one-third
of the Federal prison population is comprised of drug criminals.
Additional Federal prosecution progress in a number of areas is
provided in this section.
The
collects
courts.
agencies
criminal
Executive Office for United States Attorneys (EOUSA)
information on all Federal cases filed in Federal
This information reflects the efforts of investigative
and U.S. Attorneys' Offices, among others in the
justice system. Exhibit VI-1 shows that while the
number of indictments filed for several categories of offenses
has remained relatively constant from 1983-1987, the number of
cases involving narcotics and dangerous drugs has increased
precipitously. Indeed, since 1983 the number of drug cases filed
has almost doubled.
EXHIBIT VI-1
CRIMINAL CASES FILED IN U.S. DISTRICT COURTS*
(by fiscal year)
Offense
1983
1984
1985
1986
1987
Anti-racketeering
224
238
220
244
297
Conspiracy
799
904
976
1,153
906
Controlled Substances
3,906
4,374
4,986
6,064
7,455
IRS - Income Tax
832
992
1,027
1,194
1,116
Weapons Control
1,648
1,487
1,599
1,911
1,748
*Excludes cases initiated by transfer under Rule 20 of the
Federal Rules of Criminal Procedure: Transfer from the District
for Plea and Sentence. Beginning in FY86, this table does not
include appeals.
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Witness Protection
The Witness Security Program is a vital component of the
Federal prosecution strategy. Because drug organizations become
increasingly violent as law enforcement pressure grows,
investigating and prosecuting criminal networks require
protecting witnesses and offering them immunity from prosecution.
Without the opportunity to offer protection to cooperating
witnesses, law enforcement efforts would be seriously
jeopardized. In FY87, the U.S. Marshals protected/serviced 787
witnesses and 1,731 family members. [Exhibit VI-2].
During the same period, the Marshals Service provided
protection for 135 new witnesses in prosecutions that involved
narcotics, two-thirds of all new witnesses during this period.
The Marshals Service provided protection to OCDETF, U.S.
Attorneys' offices, and Strike Force witnesses and their
families. These witnesses had been threatened because of their
willingness to provide information and testimony against
important targets. The following are examples of this program:
o The North Carolina Presidential Task Force indicted three
Colombian nationals on multiple narcotics felonies. The
case was one of the most significant narcotics convictions
in the history of North Carolina. Subsequently, one
defendant was convicted on 21 separate counts and received a
240-year prison sentence and fines in excess of $9 million.
Two defendants remain at-large. Four witnesses were placed
in the Witness Security Program because of the threat to
their lives as a result of their testimony against the
defendants.
o Approximately 80-100 individuals were implicated in what is
believed to be the largest methamphetamine production and
distribution ring in the Philadelphia area. Because of the
testimony of five protected witnesses, 16 defendants were
convicted.
o In 1987, the Marshals Service provided protection to 27
OCDETF and 46 DEA witnesses and families who had
been intimidated by the targets of drug-related
investigations.
o Tragically, DEA Special Agent Enrique Camarena and a DEA
informant were murdered in February 1985 by members of the
Caro-Quintero/Fonseca-Camillo drug trafficking organization.
The subsequent investigation into these murders and the drug
smuggling enterprise itself resulted in the sponsorship of
nine witnesses and their families into the Witness Security
Program in FY87.
o The security offered by the Marshals Service's Program
extends beyond the Federal level of drug investigations and
their resulting witness sponsorships. In December 1986, the
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District Attorney's Office of Medford, Oregon sponsored a
witness into the program who had knowledge of the gangland
style execution of a local informant who was not in the
Witness Protection Program.
EXHIBIT VI - 2
WITNESS PROTECTION PROGRAM ADMISSION HISTORY
(by fiscal year)
Year
New
Witnesses
Total New Witnesses
& Family Members
Serviced
WC/Total
1983
333
649
993/2,245
1984
290
554
945/2,103
1985
189
385
847/1,897
1986
217
401
781/1,714
1987
206
382
787/1,731
* WC abbreviates Witnesses
Asset Forfeiture
The goal of asset forfeiture efforts is to destroy the
economic power of drug enterprises by identifying, targeting,
seizing, and recovering their monetary assets. Both the
Departments of Justice and Treasury continued to place strong
emphasis in 1987 on asset forfeiture as a means of denying drug
traffickers the fruits and instrumentalities of their illicit
activities. Pursuit of this goal through the investigation of
known criminal organizations is one approach. Federal agencies
now enforce a variety of laws to attack drug traffickers
financially. Targeting the money flow and following the money to
the upper echelons of the enterprise will maximize the potential
for interagency success.
Exhibit VI-3 shows the appraised value of drug-related
assets seized by DEA, FBI, and Customs for FY84-87. The total
value of drug-related assets seized by DEA increased about 31
percent from FY86 to FY87; during the same period, the value of
drug-related assets seized by the FBI increased about 319
percent. The value of drug-related assets forfeited to the
government from FY86 to FY87 through DEA investigative activities
increased 86 percent. Although Customs seizures of cash declined
slightly from 1986 to 1987, the value of all seizures of cash
and other assets rose more than 150 percent.
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EXHIBIT VI-3
DRUG-RELATED ASSET SEIZURES AND FORFEITURES
(in millions, by fiscal year)
1984 1985 1986 1987
DEA
Seizures* $106** $100 $311 $407
Forfeitures 38** 56 47 144
FBI
Seizures* 29 35 50 66
Forfeitures 4 10 31 35
Customs
Seizures*** 68 96 122 102
Forfeitures 26 36 46 52
* DEA and FBI seizures reflect both cash and real and
personal property seizures. FBI seizures are derived solely from
FBI investigations conducted either unilaterally or jointly with
other State or local law enforcement agencies under an asset
sharing or adoption agreement. The FBI does not claim seizures
in joint investigations with other Federal agencies.
** Total seizures for FY84 were derived by combining DEA
seizures and seizures through interagency cooperation.
*** These figures reflect monetary seizures and do not include
real or personal property seizures.
United States Attorneys' Offices/EOUSA Statistics
United States Attorneys' offices and the Criminal Division
units that support their efforts (Narcotic and Dangerous Drug
Section, Asset Forfeiture Office, and the Office of International
Affairs) are vital participants in the Federal Prosecution
strategy. EOUSA collects information on all Federal cases filed
in United States District Courts and shows the following:
o Over 30 percent of all cases filed in the United States in
FY87 were for controlled substances violations.
o There were 140 monetary transaction cases covering 200
defendants in FY87; of these defendants, 145 were found
guilty by plea or after trial. This represents an 18
percent increase of defendants convicted over FY86.
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Exhibit VI-4 presents EOUSA statistics on controlled
substance cases for FY83-87. The figures show the following:
o 7,455 controlled substances cases were filed (up 21 percent
from 1986) which covered 14,655 defendants; of these, 12,180
pleaded or were found guilty. This represents a 37 percent
increase of defendants convicted from FY86.
o Defendant pleas as a percentage of all drug defendants whose
cases were terminated continued to increase in 1987. In
1985, 60 percent of these defendants pleaded guilty; in
1986, 63 percent pleaded guilty; and in 1987, 70 percent
pleaded guilty.
o Guilty pleas as a percentage of convictions also remained
steady in 1987, saving the government the time and expense
of trials. In 1985, 80 percent of all drug convictions
resulted from pleas; in 1986, 83 percent pleaded guilty; and
in 1987, 82 percent pleaded guilty.
EXHIBIT VI-4
EXECUTIVE OFFICE FOR U.S. ATTORNEYS
CONTROLLED SUBSTANCE STATISTICS*
(by fiscal year)
Filed: Pleas: Defendants Tried: Other:
Guilty Acquitted
Defs* Total After After Other**
Year Cases Defs* Pleas Tried Trial Trial Terminations
1983
4,753
9,732
4,583
1,852
1,656
196
2,413
1984
5,245
11,049
5,102
1,688
1,448
240
2,608
1985
6,137
12,161
5,604
1,635
1,395
240
2,123
1986
7,295
14,932
7,387
1,677
1,479
198
2,577
1987
7,445
14,655
9,769
2,411
2,122
289
1,509
* Includes OCDETF statistics. Figures for a given fiscal
year do not necessarily refer to the same individuals.
** Includes dismissals, inter-district transfers, pretrial
diversions, and court suspensions.
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Federal Prosecutions
United States Attorneys' offices alone or jointly with
OCDETF offices handled many of the most significant narcotics
prosecutions in the United States in FY87. Among these
prosecutions the following are representative:
o Southern District of New York. In June 1987, 20 defendants
were sentenced to terms of imprisonment ranging from 12 to
45 years for their roles in the "Pizza Connection" case.
The case involved the distribution of 1,650 pounds of heroin
(with a reported street value of $1.6 billion) and the
laundering of money using pizza parlors as fronts. The
trial lasted seventeen months and involved 30,000 exhibits
and testimony from 400 witnesses.
o North Central Regional Task Force. In July 1987, Federal
agents seized approximately 5,230 pounds of ?cocaine in
Chicago. The seizure, the second largest in Federal law
enforcement history, resulted in the indictment of eleven
individuals for conspiracy to possess and distribute
cocaine.
o Middle District of Florida. In February 1987, Carlos Lehder
Rivas was arrested in Colombia and extradited to the United
States. Lehder is alleged to be one of the leaders of the
"Medellin Cartel," which is reportedly responsible for 80
percent of the cocaine imported into the United States.
According to the indictment, the cartel coordinated the
production, importation, and distribution of more than four
tons of cocaine into the United States.2/
o Gulf Coast Regional Task Force. In September 1987, arrests
were made in several cities as part of the yearlong
"Operation Intruder." During the investigation, agents
arranged for the importation from Colombia of over 120,000
pounds of marijuana. When the marijuana arrived in Texas,
agents delivered some of the shipment to Colorado, Georgia,
and Florida and arranged for 18,000 pounds of marijuana and
1,300 pounds of cocaine to be flown to Detroit. As a
result, more than 20 individuals were indicted. The
majority entered guilty pleas.
2/ On May 19, 1988, Carlos Lehder-Rivas was convicted of
running a continuing criminal enterprise, possession of cocaine
with intent to distribute it, conspiracy to import, and
importation. The verdict followed a seven-month trial in
Jacksonville, Florida on the 11-count indictment. Ledher was
convicted on all counts, for which he faces up to life plus 150
years' imprisonment and $350,000 in fines.
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Strike Force
DOJ's Organized Crime and Racketeering Section maintains 14
strike forces and 10 field offices nationwide. These strike
forces join with the major Federal investigative agencies in
planning the steps to be taken against the most active criminal
organizations. All Federal agencies and many State and local
authorities participate in developing the cases later prosecuted
by strike force prosecutors in those 24 cities and elsewhere.
The strike forces play a key role in the prosecutive
strategy because many traditional organized crime figures are
involved in drug-related activities. In addition, this Section
recently initiated an Asian organized crime project in four
strike force offices: Boston, Houston, Los Angeles, and San
Francisco. In San Francisco, the strike force is being assisted
by DOJ's Narcotic and Dangerous Drug Section. The strike forces
in these cities will target money laundering and other serious
criminal activities as well as the narcotics offenses committed
by the Asian organized crime groups. Prosecution of drug
offenses has consistently consumed approximately 20 percent of
total strike force resources and resulted in a proportionate
percentage of strike force convictions (429 in FY87), although
that percentage is rising according to the Criminal Division's
Automated Case Management Information System.
Operations Greenback
Operations Greenback (Miami and Puerto Rico) continue to be
the preeminent antimoney laundering programs in the United
States. Multiagency task forces target both drug traffickers and
the money launderers willing to service them. From its inception
in 1980, Operation Greenback Miami has confiscated $93.6 million
in currency. Since its inception in 1984, Operation Greenback
Puerto Rico has seized currency and property conservatively
valued at $11.6 million. In addition, Greenback Puerto Rico is
responsible for jeopardy assessments totalling $1.8 million.3/
In late FY87, DOJ established two additional Greenback
Operations: Operations Greenback San Antonio and San Francisco.
Both are operational and expected to follow the successes of
their predecessor operations.
Exhibit VI-5 presents seizure statistics from two Greenback
Puerto Rico prosecutions.
3/ For a discussion of "jeopardy assessments," see Chapter V,
Investigations.
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EXHIBIT VI-5
OPERATION GREENBACK PUERTO RICO*
(FY87)
Operation Ali-Baba yielded a total of $444,197 in seizures:
Asset
U.S. Currency
Studio Apartment
Residential Structures (2)
Business Structure
Mechanic Shop
Office Building
Total
Value
$ 4,197
40,000
130,000
100,000
70,000
100,000
$444,197
Operation El Morro yielded a total of $2.1 million in
seizures:
Asset Value
Residential Structures (10) $730,000
Rural Farms (2) 875,000
Residential Apartments (2) 150,000
16' Pleasure Craft 4,000
Boat Trailer 1,000
Vehicles (6) 64,500
Currency 58,000
Digger 12,000
Rural Lots (3) 180,000
Total $2,074,500
Organized Crime Drug Enforcement Task Force Program
The OCDETF Program constitutes a nationwide structure of 13
regional task forces which utilize the combined resources and
expertise of its member Federal agencies in cooperation with
State and local investigators and prosecutors to target and
destroy major narcotic trafficking and money laundering
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organizations.4/ The task forces, established in 1982, grew out
of the realization that effective and comprehensive attacks on
major drug organizations are often beyond the capacity of a
single agency.
A multifaceted attack on highly sophisticated drug cartels
requires unique capabilities combined into a comprehensive and
orchestrated investigation and prosecution. Thus, for example,
by uniting the physical and electronic surveillance capabilities
of the FBI and the Bureau of Alcohol, Tobacco, and Firearms
(ATF), the undercover skills of DEA, the tax and financial
knowledge of the IRS, ATF's skill in weapons investigations,
Customs resources for tracking international movements of people
and funds, the intelligence gained from the Coast Guard maritime
activities, INS's expertise in tracking and deporting illegal
aliens, and the Marshals Service's authority, the full force of
the drug enforcement community is brought to an investigation.
The Task Force Program further broadens this base with the
local intelligence resources of State and local law enforcement
agencies and adds to the impact by utilizing attorney's skills at
the earliest stages of investigations. Joining such diverse
abilities and resources is the underpinning of the Task Force
Program.
The goal of the OCDETF Program is to identify, investigate,
and prosecute members of high-level drug trafficking enterprises
and to destroy the operations of those organizations. Four
objectives continue to guide the selection and conduct of
investigations:
o Target, investigate, and prosecute individuals who organize,
direct, finance, or are otherwise engaged in high-level
illegal drug trafficking enterprises, including large-scale
money laundering organizations;
o Promote a coordinated drug enforcement effort in each task
force region and encourage maximum cooperation among all
drug enforcement agencies;
o Work fully and effectively with State and local drug law
enforcement agencies; and
4/ Agencies involved in the OCDETF Program include: The Bureau
of Alcohol, Tobacco, and Firearms, the Drug Enforcement
Administration, Federal Bureau of Investigation, Immigration and
Naturalization Service, Internal Revenue Service, Coast Guard,
Customs Service, U.S. Marshals Service, a variety of State and
local enforcement and prosecutions organizations and all of the
United States Attorney's Offices.
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o Make full use of financial investigative techniques,
including tax law enforcement and forfeiture actions.
Those targeted for task force cases include: criminal groups
formed for the purpose of importing, distributing, and financing
large amounts of controlled substances; criminal groups that are
trafficking in drugs as well as engaging in other crimes;
traditional organized crime figures; major outlaw motorcycle
gangs; prison gangs or prison-associated organizations; and
physicians, pharmacists, and other persons registered to legally
dispense drugs but who engage in illicit distribution.
Earlier discussions of the history of drug trafficking, law
enforcement responses, and the composition and organizational
structure of the task forces in the 1983-86 OCDETF Annual Reports
provide a comprehensive background for the 1987 report. These
reports indicate that over the last several decades, the Federal
government has attempted a variety of strategies to combat the
increasingly complex and sophisticated operations of major
illicit drug traffickers. In addition to increased resources,
major legislative initiatives, and innovative investigative
techniques, it is clear that the most promising investigative
strategy is the long-term, multiagency, multifaceted OCDETF type
of investigations and prosecutions.
The OCDETF Program has been a highly successful multiagency
drug investigation and prosecution program during the last five
years as evidenced by:
o 1,888 investigations initiated resulting in 3,858
indictments and informations.
o Over 6,500 top and mid-level leaders and major suppliers and
distributors charged.
o 674 persons charged with Title 21 Continuing Criminal
Enterprise Act (CCE) violations and 869 individuals charged
with Title 18 Racketeer Influenced and Corrupt Organizations
violations.
o Cash and property asset seizures totaling $623 million.
o 7,553 were found or plead guilty to at least one charge.
The OCDETF Program continues to be the heart of the Federal
prosecution effort directed at multi-State and multinational
enterprises. Its success and accomplishments during its five
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years of existence are summarized in Exhibit VI-6 through
VI-23.5/
5/ Exhibits VI-6 through VI-23 present data collected for the
'Task Force Program by the OCDETF Case Monitoring Systems. All
previously reported data has been converted from a calendar year
to a fiscal year basis. Also, the percentages for all data in
Exhibits VI-6 through VI-23 are computed from the Statistical
Base Number (N) for each of the sets of data presented. Minor
variations in the "N" reflected at the bottom of each Exhibit are
reporting irregularities. Minor variations between these base
numbers and the summary numbers in Exhibit VI-6 are the result of
sub-set reporting variations principally where the specific data
set was not applicable to the individual report submitted.
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EXHIBIT VI-6
NUMBER OF INVESTIGATIONS, INDICTMENTS/INFORMATIONS,
(by fiscal year)
AND SENTENCES
1983
1984
1985
1986
1987
TOTAL
TYPE
NO.
NO.
NO.
NO.
NO.
NO.
Investigations
210
505
372
433
368
1,888
Indictments/
Informations
206
761
959
1,026
906
3,858
Sentences
200
1,474
2,653
2,733
2,659
9,719
o After a substantial growth in FY84, the first full year of
the OCDETF Program, the number of investigations initiated
has remained fairly constant. There was a small increase in
FY86 which represented a replenishment of the first full
cycle of investigations completed. The data indicated that
a case load of 350-400 OCDETF cases can be expected with the
present level of resources.
o Indictments/informations in the past three years have
leveled off between 900-1,026. This experience is
consistent with the case load and the demands on the
prosecution function in the process.
o Sentences have leveled off between 2,600-2,733 which is also
consistent with the case load experiences. In the third
through fifth year of the OCDETF Program, greater demands on
the prosecution and adjudication aspects of the program were
experienced because of increasingly complex cases and a
growing number of appeals in the system.
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EXHIBIT VI-7
TYPE OF CRIMINAL ORGANIZATIONS TARGETED IN INVESTIGATIONS INITIATED
(by fiscal year)
TYPE
1983
NO.* %
1984
NO.* %
1985
NO.* %
1986
NO.* %
1987
NO.* %
TOTAL
NO.* %
Drug Trafficking
Organization/Other
Criminal Group
180 87.0
400 81.3
330 90.2
397 91.7
342 92.9
1,649 88.4
LCN
8 3.9
47 9.6
24 6.6
21 4.8
12 3.3
112 6.0
Mbtorcycle Gang
15 7.2
32 6.5
12 3.3
6 1.4
7 1.9
72 3.9
Registrant
4 1.9
10 2.0
5 1.4
5 1.2
5 1.4
29 1.6
Prison Gang
5 2.4
6 1.2
2 0.5
3 0.7
1 0.3
17 0.9
Unspecified
1 0.5
3 0.6
2 0.5
4 0.9
4 1.1
14 0.8
N= 207**
N= 492**
N= 366**
N# 433**
N= 368**
N= 1,866**
I-
Drug Trafficking Organization/Other Criminal Group: Organizations whose primary purpose is drug trafficking or
organizations involved in felony crimes whose members also engage in drug trafficking.
LOG: "La Cope Nostra,". traditional organized crime families.
Motorcycle Gang: Organizations controlled by motorcycle clubs.
Registrant: Persons who have legal authority over controlled substances.
Prison Gang: Organizations controlled by prison inmates.
* *
The number of investigations in which at least one organization of this type was targeted.
The number of investigations initiated by the Task Forces.
The percentages in the exhibit Show the frequency of involvement for each type of organization. More than one
type of organization is involved in same investigations.
o The major focus of OCDETF investigations has continued to be
on organizations whose primary purpose is drug trafficking
or on organizations involved in felony crimes whose members
also engage in drug trafficking.
o A slight decline in targeting of "La Cosa Nostra" and
motorcycle gang organizations has been experienced the past
three years.
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DEIBIT VI-8
DRUGS INVOLVE) IN INVESTIGATICNS INITIATED
(by fiscal year)
DRUG
1983
NO.* %
1984
NO.* %
1985
NO.* %
1986
NO.* %
1987
NO.* %
TOTAL
NO.* %
Cocaine
162
78.3
363
73.6
292
61.3
353
81.9
315
85.6
1,485
80.0
Marijuana
111
53.6
236
47.9
174
48.5
162
37.6
179
_ 48.6
860
46.3
Heroin
32
15.5
125
25.4
99
27:6
102
'23.7
97
26.4
455
24.5
Methamphetamine
35
16.9
64
13.0
40
11.1
43
10.0
32
8.7
214
11.5
Methagualone
16
7.7
38
7.7
20
5.6
19
4.4
11
3.0
104
5.6
Hashish
15
7.2
29
5.9
25
7.0
20
4.6
15
4.1
104
5.6
PCP
10
4.8
12
2.4
14
3.9
13
3.0
.6
1.6
55
3.0
Pharmaceutical
15
7.2
14
2.8
10
2.8
14
3.2
5
1.4
58
3.1
Other/Unspecified
4
1.9
13
2.6
15
4.2
25
5.8
16
4.3
73
3.9
N= 207* N= 493* N= 359* N= 431* N= 368* N= 1,858*
* The number of investigations initiated by the Task Forces.
The percentages in the exhibit show the frequency of mentions for each drug. More than one drug is involved in
many investigations.
o Cocaine continues to be the principal targeted drug.
o Heroin continues to be targeted in approximately one-fourth
of the OCDETF investigations.
o After a decline in FY86, marijuana returned to just under 50
percent of the investigations as a targeted drug in FY87.
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Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
E:(ELEBIT 111-9
TYPE OF CRIMINAL ACTIVITIES INVOLVED IN INVESTICATICNS INITIATED
(by fiscal year)
ACTIVrFY
1983
NO.* %
1984
NO.* %
1985
NO.* %
1986
NO.* %
1987
NO.* %
TOTAL
NO.* %
Distribution
198
95.2
468
94.4
399
93.4
404
93.7
353
95.9
1,822
97.6
Importation
128
61.5
323
65.1
253
69.7
287
66.6
244
66.3
1,235
66.2
Money Laundering
107
51.4
270
54.4
221
60.9
268
62.2
257
69.8
1,123
60.2
Financial Backing
76
36.5
235
47.4
151
41.6
193
44.8
142
38.6
797
42.8
Street Sales
87
41.8
170
34.3
138
38.0
164
38.1
148
40.2
707
37.9
Famufacture
36
17.3
95
19.2
69
19.0
84
19.5
62
16.8
346
18.6
Crop Cultivation
13
6.3
32
6.5
21
5.8
25
5.8
16
4.3
107
5.7
Diversion
11
5.3
12
2.4
10
2.8
7
1.6
5
1.4
45
2.4
Official Corruption
3
1.4
13
2.6
48
13.2
82
19.0
68
18.5
214
11.5
Other
8
3.8
26
5.2
26
7.2
22
5.1
18
4.9
100
5.4
N= 208* N= 496* N= 363* N= 431* N= 368* N= 1,866*
* The number of investigations initiated by the Task Forces.
The percentages in the exhibit Show the frequency for each category of illicit activity under investigation.
More than one activity is involved in most investigations.
o Distribution and importation remain the two principal
activities investigated with a consistent level of attention
given to each for the past five years.
o In FY87, money laundering and distribution were targeted at
the highest level since the beginning of the program.
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Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
EXHIBIT VI-10
INVESTIGATIVE TECHNIQUES PROPOSED IN INVESTIGUIONS INMATED*
(by fiscal year)
TECHNIQUE
1983
NO.** %
1984
NO.** %
1965
NO.** %
1986
NO.** %
1987
NO.** %
TOTAL
NO.**
Financial
Investigation
152
72.0
356
71.9
242
67.8
322
74.9
294
79.9
1,366
73.4
Grand Jury
158
74.9
352
71.1
236
66.1
319
74.2
284
77.2
1,349
72.5
Undercover
136
64.5
327
66.1
244
68.3
310
72.1
271
73.6
1,288
69.2
Immunity
121
57.3
244
49.3
171
47.9
179
41.6
161
43.8
876
47.0
Tax Grand Jury
119
56.4
202
40.8
146
40.9
150
34.9
132
35.9
749
40.3
Title III
71
33.6
252
50.9
192
53.8
195
45.3
183
49.7
693
48.0
Witness Security
64
30.3
166
33.5
148
41.5
123
28.6
107
29.1
608
32.7
EXtradition
11
5.2
29
5.9
41
11.5
52
12.1
47
12.8
180
9.7
Parole into U.S.
1
0.5
11
2.2
41
11.5
4
0.9
9
2.4
66
3.6
Pen Register
5
2.4
33
6.7
135
37.8
247
57.4
228
62.0
648
34.9
Foreign Banks/
Financial Records
1
0.5
0
0.0
49
13.7
106
24.7
80
21.7
236
12.7
Other
17
8.1
51
10.3
54
15.1
35
8.1
39
10.6
196
10.5
N= 211*** N= 495*** N= 357*** N= 430*** N= 368*** N=1,861***
* The major investigative techniques which personnel anticipated would be used at the time the investigations were
initiated.
** The number of investigations in which this technique was proposed.
*** The number of investigations initiated by the Teak Forces.
The percentages in the exhibit Show the frequency with which each technique was proposed.
o In FY87, an increased use of financial investigations and
grand juries was experienced; all other investigative
techniques remained fairly consistent.
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Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
EXHIBIT VI-11
LAW ENFORCEMENT AGENCY PAWICIPATICN IN INVESTIGATIONS INIMATED
(by fiscal year)
AGENCY
1983
NO.* %
1984
NO.* %
1985
NO.* %
1986
NO.* %
1987
NO.* %
TOTAL
NO.* %
DEA
195
93.8
421
85.7
302
81.6
382
68.4
320
87.0
1,620
86.6
IRS
160
76.9
328
66.8
245
66.2
300
69.4
262
71..2
1,295
69.3
FBI
163
78.4
366
74.5
208
56.2
219
50.7
173
47.0
1,129
60.4
Customs
110
52.9
248
50.5
173
46.8
208
48.1
176
47.8
915
48.9
ATF
88
42.3
157
32.0
145
39.2
15
35.0
131
35.6
672
36.0
INS
0
0.0
3
0.6
8
2.2
21
4.9
28
7.6
60
3.2
Local Investigators
59
28.4
180
36.7
174
47.0
196
45.4
182
49.5
791
42.3
State Investigators
65
31.3
149
30.3
122
33.0
153
35.4
131
35.6
620
33.2
Marshals Service
45
21.6
57
11.6
77
20.8
193
44.7
187
50.8
559
29.9
Coast Guard
12
5.8
46
9.4
34
9.2
30
6.9
15
4.1
137
7.4
Local Prosecutors
19
9.1
41
8.4
21
5.7
27
6.3
15
4.1
123
6.6
State Prosecutors
21
10.1
29
5.9
21
5.7
33
7.6
21
5.7
125
6.7
Organized Crime
Strike Forces
8
3.8
33
6.7
10
2.7
12
2.8
7
1.9
70
3.8
Other/Unspecified
20
9.6
41
8.4
34
9.2
44
10.2
41
11.4
180
9.6
N= 208** N= 491** N= 370** N= 432** N= 368** N= 1,869**
* The number of investigations in which this agency expected to participate at the time the investigations
were initiated.
** The number of investigations initiated by the Task Fo
The percentages in the exhibit Show the frequency of anticipated involvement for each agency. More than one agency
is involved in all cases.
o At the investigation initiation stage, the Criminal
Investigation Division (IRS), the U.S. Marshals Service, and
local investigators indicated an increased participation in
the percentage of investigations initiated in FY87.
o The INS, in its first full year of participation in the
OCDETF Program, increased its participation in
investigations initiated to 7.6 percent of all
investigations. All other agencies remained at a consistent
or slightly reduced participation level.
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Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
IMOD:BIT VI-12
DRUGS CHARGED IN INDICTMENTS AND INFORMATIONS RETURNED
NUMBER OF INDICTMENTS AND INFORMATIONS*
(by fiscal year)
Acnv-iTy
1983
NO.* %
1984
NO.* %
1985
NO.* %
1986
NO.* .%
1987
NO.* %
TOTAL
NO.* %
COcaine
91
49.2
335
47.2
473
50.1
527
51.7
548
60,5
1,974
52.5
Marijuana
67
36.2
241
34.0
280
29.7
257
25.2
254
28.8
1,099
29.2
Methamphetamine
28
15.1
94
13.3
94
10.0
60
7.9
73
8.1
369
9.8
Heroin
18
9.7
98
13.8
97
10.3
122
12.0
69
7.6
404
10.7
No Drugs Charged**
2
1.1
35
4.9
151
16.0
159
15.6
112
12.4
459
12.2
Methaqualone
13
7.0
24
3.4
21
2.2
80
7.9
10
1.1
148
3.9
Hashish
11
5.9
17
2.4
12
1.3
7
0.7
8
0.9
55
1.5
Pharmaceutical
2
1.1
18
2.5
33
3.5
11
1.1
19
2.1
83
2.2
PCP
2
1.1
11
1.6
17
1.8
12
1.2
20
2.2
62
1.7
Other
5
2.7
24
1.4
28
3.0
43
4.2
20
2.2
120
3.2
N= 185*** N= 709*** N= 944*** N= 1,019*** N= 906*** N= 3,763***
* The number of irr3ictrents and informations in which this drug was charged.
** Includes indictments and informations which do not allege any drug offenses, primarily those involving money
laundering and financial offenses.
*** The number of indictments and informations.
The percentages in the exhibit Show the frequency of mentions for each drug. More than one drug is charged in many
indictments and informations.
o A significant increase in cocaine and a slight increase in
marijuana charged in indictments were experienced in FY87.
o A significant decrease in heroin charged in indictments was
experienced in FY87.
o All other activities remained fairly constant.
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Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
EiBIBIT VI-13
TYPE OF CRIMINAL ACTIVITIES CHARGED IN INDICIMNTS AND INFIDPSIATICNS
NUMBER OF INDICTMENTS AND INFORMATIONS*
(by fiscal year)
1983 1984 1985 1986 1987 TOTAL
ACTIVITY NO.* % NO.* % NO.* % NO.* % NO.* %
Distribution 169 87.1 628 86.6 739 83.1 749 76.6 721 79.6
Importation 78 40.2 210 29.0 261 29.4 267 27.3 190 21.0
Street Sales 44 22.7 113 15.6 193 21.7 254 26.0 190 21.0
Macey Laundering 32 16.5 119 16.4 147 16.5 183 18.7 170 18.8
Financial Backing 28 14.4 123 17.0 89 10.0 108 11.0 66 7.3
Manufacture 23 11.9 68 9.4 78 8.8 81 8.3 54 6.0
Crop Cultivation 4 2.1 43 5.9 34 3.8 22 2.2 19 2.1
Official C.orruption 0 0.0 10 1.4 48 5.4 57 5.8 49 5.4
Diversion 0 0.0 22 3.0 37 4.2 2 0.2 8 0.9
Other/Unspecified 13 6.7 95 13.1 119 13.4 158 16.2 168 18.5
N= 194** W.- 725** N= 889** 1.1= 978** W 906** N= 3,692**
NO
%
3,006
81.4
1,006
27.3
794
21.5
651
17.6
414
11.2
304
8.2
122
3.3
164
4.4
69
1.9
228
6.2
* The number of indictments and informations in which this activity was charged.
** The number of indictments and informations.
The percentages in the exhibit Show the frequency for each category of illicit activity charged. ?Ore than one
activity is charged in many indictments and informations.
o The type of criminal activities charged in Task Force
indictments/informations remain consistent with distribution
being the activity most frequently charged.
- 104 -
Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
EXHIBIT VI-14
INVESTICATIVE TECHNIQUES USED FOR INDICIRENTS AND INFORMTIONS RETURNED
NEMER OF INDICTMENTS AND INFORMATIONS*
(by fiscal year)
TECHNIQUE
1983
NO.* %
1984
NO.* %
1985
NO.* %
1986
NO.* %
1987
NO.* %
TOTAL
NO.* %
EXtended
Surveillance
101
53.7
329
48.7
51
5.5
10
1.0
3
0.4
494
13.7
Investigative
Grand Jury
91
48.4
343
50.8
598
64.8
720
70.7
603
66.6
2,355
63.5
Immunity
93
49.5
280
41.5
310
33.6
381
37.4
334
42.0
1,398
38.8
Undercover
106
56.4
420
62.2
544
58.9
627
61.6
601
66.3
2,298
61.9
Financial
Investigation
73
38.8
284
42.1
326
35.3
350
34.4
272
30.0
1,305
35.2
Tax Grand Jury
57
30.3
194
28.7
200
21.7
238
23.4
150
16.6
839
22.6
Witness Security
66
35.1
214
31.7
194
21.0
162
15.9
109
12.0
745
20.1
Title III
60
31.9
199
29.5
359
38.9
297
29.2
265
29.2
1,170
31.5
tradition
taltual Judicial
10
5,3
24
3.6
21
2.3
16
1.6
21
2.3
92
2.5
Assistance Treaty
3
1.6
6
0.9
7
0.8
0
0.0
2
0.1
18
0.5
Parole into U.S.
0
0.0
5
0.7
2
0.2
2
0.2
24
2.6
33
0.9
Foreign Bank!
Financial Records
1
0.5
4
0.6
20
2.2
56
5.5
28
3.1
109
2.9
Pen Register
2
1.1
55
8.1
264
28.6
331
32.5
274
30.2
926
25.0
Other/Unspecified
44
23.4
150
22.2
122
13.2
167
18.4
102
12.8
605
16.8
N= 188** N= 675** N= 923** N= 1,018**
N= 906**
N= 3,710**
* The number of indictments and informations resulting fram investigations in which this technique was used.
** The number of indictments and informations returned in Task Force cases.
o Undercover work and immunity as investigative techniques
increased in FY87. All other techniques were used at about
the same or slightly less frequent.
- 105 -
Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
EXHIBIT VI-15
LAW ENFOR=EMENT AGENCY PARTIO.T.PATION IN INVESTIGATIONS RESULTING IN CHARGES
NUMBER OF INDICTMENTS AND INFORMATIONS*
(by final year)
AGEZCY
1983
NO.* %
1984
NO.* %
1985
NO.* %
1986
NO.* %
1987
NO.* %
TOTAL
NO.* %
DEA
124
66.3
551
74.5
634
68.0
639
64.3
597
65.9
2,545
67.7
FBI
124
66.3
466
63.0
521
55.9
508
51.1
451
49.8
2,070
55.1
IRS
94
50.3
421
56.9
421
45.2
359
36.1
422
46.6
1,717
45.7
Customs
60
32.1
189
25.5
171
18.3
148
14.9
99
10.9
667
17.8
ATF
14
7.5
161
21.8
192
20.6
143
14.4
86
9.5
596
15.9
INS
1
0.5
6
0.8
2
0.2
0
0.0
0
0.0
9
0.2
Coast Guard
2
1.1
14
1.9
6
0.6
2
0.2
7
0.8
31
0.8
Organized Crime
Strike Force
8
4.3
10
1.4
19
10.2
10
1.0
6
0.7
53
1.4
State Investigators
37
19.8
137
18.5
272
29.2
454
45.7
333
36.8
1,233
32.8
State Prosecutors
2
1.1
34
4.6
45
4.8
61
6.1
20
2.2
162
4.3
Local Investigators
59
31.6
321
43.4
331
35.5
371
37.3
440
48.6
1,522
41.3
Local Prosecutors
28
15.0
118
15.9
67
7.2
151
15.2
54
6.0
418
11.1
Foreign Governnent
12
6.4
44
5.9
46
4.9
20
2.0
16
2.0
138
3.7
Other CODE Task Force
2
1.1
40
5.4
112
12.0
93
9.4
94
10.4
341
9.0
Unspecified
2
1.1
4
0.5
1
0.1
0
0.0
0
0.0
7
0.2
N= 187** N= 740** N= 932** N= 994** N= 906** W 3,759**
* The =doer of imii.clments and informations in which this agency participated in either the investigation or
prosecution. United States Marshals Service and United States Attorney Offices are assumed to be involved in
all cases.
** The nunber of indictments and informations.
The percentages in the ekhibit ahow the frequency of participation for each type of agency. Mbre than one agency is
ir Elrrc,pt al: .
o A significant increase in participation of local
investigators in investigations resulting in charges was
experienced in FY87. All other agencies remained at
approximately the same level of participation.
- 106 -
Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
EMIBIT VI-16
DEFENDANTS' ROLES IN TARGETED CRIMINAL ORGANIZATIONS, NUMBER OF DEFENDANTS CHARGED
(by fiscal year)
ROLE
1983
NO.* %
1984
NO.* %
NUMBER OF DEFENDANIS*
1985 1986
NO.* % NO.* %
1987
NO.* %
TOTAL
NO.* %
Top Leader
127
14.3
406
15.2
446
13.2
472
13.2
325
11.8
1,776
13.4
Mid-Level Jeatipr
215
24.2
484
18.2
464
14.3
495
13.8
380
13.8
2,058
15.5
Major Financial
Backer
10
1.1
30
1.1
28
0.8
15
0.4
13
0.6
96
0.7
Major MOney
Launderer
17
' 1.9
64
2.4
112
3.3
83
2.3
107
3.9
383
2.9
Major Enforcer
1
0.8
43
1.6
39
1.2
32
0.9
33
1.2
154
1.2
Major Supplier/
Distributor
117
13.1
580
21.8
773
22.8
720
20.1
495
17.9
2,685
20.2
Key Contact to
Sources
38
4.3
127
4.8
180
5.3
202
5.6
147
5.3
694
5.2
Corrupt Public
Official
4
0.4
11
0.4
27
0.8
25
0.7
14
0.5
81
0.6
Major Smuggler
9
1.0
73
2.7
126
3.7
64
2.4
72
2.6
364
2.7
Other/Unspecified
346
38.9
847
31.8
1,175
34.7
1,456
40.6
1,175
42.6
4,999
37.6
N= 890** N= 2,665** N= 3,390 N= 3,587** N= 2,761** N= 13,293**
* The number of defendants who performed this role in the criminal organization targeted in this investigation and
prosecution. Note that if an individual was named in more than one indictgent or information, more than one entry is
made for role.
** The number of defendants named in Task Force indictments and informations. Some defendants were named in more
than one indictment or information.
o Although a slight increase in Major Money Launderers and a
decrease in Major Supplier/Distributors as role
identifications was reported in FY87, there were no major
shifts.
- 107 -
Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
EXHIBIT VI-17
SCOPE OF CRIMINAL ORGANIZATIONS TARGETED IN INDICTMENTS AND INFORMATIONS RETURNED IN FISCAL YEAR 1987
=PE
NUMBER
PORCEN'TACIE
Kati-district
388
42.8
International
334
36.9
Single district
130
14.3
Unspecified
39
4.3
906*
Legend
Kati-District: Criminal activities in two or more Federal judicial districts.
International: Criminal activities that include substantial international drug trafficking.
Single-District: Criminal activities limited to one Federal judicial district.
* The number of indictments and informations returned in Task Force cc
o Three-fourths of all OCDETF investigations continue to be
focused on trafficking organizations whose operations are
multidistrict or international in scope.
? 108 ?
Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
Declassified in Part - Sanitized Copy Approved for Release 2013/05/21 : CIA-RDP90G01353R000200190004-0
EXHIBIT VI-18
(FSE S CHARGED - NUMBER OF DEFENDANTS CHARGED
(by fiscal year)
TITLE
OFFENSE
1983
NO. %
1984
NO. le
1985
NO. t
1986
NO. fe
1987
NO. t
TOTAL
NO.
18:
RICO
50
5.6
235
8.4
196
5.8
187
5.2
201
7.3
869
6.5
18:
MAR
111
12.4
377
13.5
320
9.4
391
10.9
305
11.0
1,504
11.2
18:
Firearms
25
2.8
101
3.6
161
4.7
109
3.0
111
4.0
507
3.8
16:
&limbs Act
0
0.0
9
0.3
14
0.4
4
0.1
2
0.1
29
0.2
18:
Tax
Conspiracy
32
3.6
114
4.1
61
2.4
85
2.4
96
3.5
408
3.0
18:
Non Tax
Conspiracy
0
0.0
6
0.2
152
4.5
165
4.6
105
3.6
428
3.2
21:
CCE
50
5.6
124
4.4
146
4.3
179
5.0
175
6.3
674
5.0
21:
Manufacture
26
2.9
62
2.2
49
1.4
90
2.5
86
3.1
313
2.3
21:
Distribution
488
54.5
1,342
48.0
1,682
49.5
1,817
50.4
1,440
52.2
6,769
50.3
21:
Importation
258
28.6
416
14.9
307
9.0
513
14.2
218
7.9
1,712
12.7
21:
Conspiracy
746
83.3
2,100
75.1
2,552
75.1
2,770
76.9
2,062
74.7
10,230
76.0
21:
Use ct Comm
Facility
4
0.0
80
2.9
578
17.0
736
20.4
469
17.0
1,867
13.9
26:
Tax Violations
44
4.9
138
4.9
160
4.7
150
4.2
126
4.6
618
4.6
31:
Currency Violations 18
2.0
75
2.7
147
4.3
86
2.4
51
1.8
367
2.7
Other
274
30.6
943.
33.7
686
26.1
867
24.1
503
18.2
3,473
25.9
V= 896* N.. 2,798* N= 3,398* N= 3,602* , N# 2,761* N= 13,455*
* The number of defendants charged in Task Force indictments and informations. Many defendants were charged with acre
than one offense. Same defendants were charged in more than one indictmnt or information. ?
o OCDETF defendants continue to be charged with the major
offenses.
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EiBIBIT VI -19
DISPOSITICC6 BY DEFENDANT IN CASES ALCUDICATED
NUMBER OF DEFENDANTS RDCEIVING DISPOSITION
(by fiscal year)
DISPCSITION
1983
NO. %
1984
NO. %
1985
NO.
1966
NO. %
1987
NO.
NO.
TOTAL
%
Found guilty of at
least one charge
33
16.2
227
14.5
510
18.8
392
14.0
414
15.3
1,576
15.8
Pleaded guilty to
at least one charge
117
57.4
890
56.7
1,536
56.6
1,712
61.0
1,722
63.8
5,977
60.0
Dismissed on all
charges
42
20.6
394
25.1
584
21.5
634
22.6
523
19.4
2,177
21.8
Acquitted on all
charges
12
5.9
58
3.7
85
3.1
69
2.5
40
1.5
264
2.6
N= 204
N= 1,569
V= 2,715
2,807
2,699
N
9,994
o In FY87, the percentage of dismissals and acquittals
declined and convictions by trial or plea increased.
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EXHIBIT VI-20
CONVICTICNS BY OFFENSE FOR CHARGES DISPOSED
(by fiscal year)
NUMBER CF CONVICTIONS
ME
OFFENSE
1983
NO.* %
1984
NO.*
%
1985
NO.*
%
1986
NO.*
%
1987
NO.*
%
TUIAL
NO.* %
8:
RICO
3 1.5
95
6.5
170
6.4
115
4.2
176
6.6
559
5.0
8:
MAR
32 16.0
162
11.0
280
10.6
254
9.3
292
11.0
1,020
9.0
8:
Firearms
3 1.5
63
4.3
114 i
4.3
101
3.7
78
2.9
359
3.2
.8:
Tax
Conspiracy
6 3.0
56
3.8
80
3.0
62
2.3
65
2.4
269
2.4
.8:
Hobbs Act
0 0.0
6
0.4
5
0.2
10
0.4
3
0.1
24
0.2
21:
Use of Comm
Facility
0 0.0
27
1.8
229
8.7
597
21.9
507
19.1
1,360
12.0
21:
CCE
6 3.0
68
4.6
106
4.0
109
4.0
127
4.8
416
3.7
21:
Manufacture
3 1.5
44
3.0
56
2.1
36
1.3
68
2.6
207
1.8
21:
Distribution
106 53.0
736
50.0
1,344
51.0
1,339
49.0
1,410
53.0
4,935
43.6
:1:
Importation
60 30.0
219
14.9
299
11.3
280
10.3
282
10.6
1,140
10.1
:1:
Conspiracy
183 91.5
1,108
75.3
1,899
72.0
2,064
76.3
2,062
77.5
7,336
64.9
:6:
Tax Violations
6 3.0
63
4.3
156
5.9
149
5.5
95
3.6
469
4.2
J1:
Currency
Violations
1 0.5
21
1.4
61
2.3
79
2.9
49
1.8
211
1.9
Other
67 33.5
439
29.8
861
32.7
835
30.6
600
22.4
2,802
24.8
N= 200
N= 1,471
N= 2,636
N= 2,730
N= 2,659
N= 11,313
* The number of times convictions were obtained on all charges. Defendants may be convicted of more than one charge.
o In FY87, the percentage of convictions for the major
offenses increased in most categories.
o Sentences for less than five years declined in FY87; ykt
sentences for all terms over five years increased.
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DalIBIT VI-21
NET PRISON TERMS IMPOSED ON DEFENDANTS SENTENCED*
(by fiscal year)
NUMBER OF DEFENDANTS SENTENCED TO TERM
1983 1984 1985 1986 1987
TERM
NO.
%
NO.
%
NO.
%
NO.
%
NO.
%
NO.
%
0 years**
64
32.0
513
34.8
900
33.9
1,084
39.7
962
36.2
3,523
36.3
5 years or less
98
49.0
604
41.0
1,098
41.4
1,067
39.0
1,079
40.6
3,946
40.6
6- 10 years
27
13.5
236
16.0
383
14.4
329
12.0
361
13.6
1,336
13.8
11 - 15 years
8
4.0
65
4.4
156
5.9
135
4.9
135
5.1
499
5.1
16 - 20 years
1
0.5
25
1.7
65
2.5
58
2.1
57
2.1
206
2.1
21 - 25 years
1
0.5
12
0.8
14
0.5
23
0.8
24
0.9
74
0.8
26- 45 years
1
0.5
13
0.9
30
1.1
31
1.1
32
1.2
107
1.1
46 - 65 years
0
0.0
2
0.1
3
0.1
5
0.2
6
0.2
16
0.2
More than 65 years
0
0.0
4
0.3
4
0.2
1
0.0
3
0.1
12
0.1
N= 200 N= 1,474 N= 2,653 N= 2,733 N= 2,659 N= 9,719
* The total of all consecutive sentences imposed for the defendant (does not include any concurrent or suspended
sentences imposed).
** The number of defendants convicted but not sentenced to prison, e.g., those receiving suspended sentences or
probation.
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EXHIBIT VI-22
NON-DRUG ASSETS SEIZED
(in millions by fiscal year)
1983 - 1986
1987
TCTAL
Cash
$197
$ 46
$244
Property
$284
$ 95
$379
TOtal
$481
$141
$623
o Seizures of nondrug assets continued in FY87 at a
substantial level.
EXHIBIT VI-23
CN-DRUG ASSETS FORFEITED
(in millions by fiscal year)
Cash
Property
7btal
1983 - 1986
1987
=MAL
$ 46
$100
$ 7
$14
$21
$ 53
$114
$167
$146
o Forfeitures of non-drug assets exceeded $21 million in FY87.
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LEGISLATION
LEGISLATIVE AND REGULATORY INITIATIVES
Legislation, developed by DEA in conjunction with the
Criminal Division, was proposed regarding recordkeeping and
reporting requirements for precursor and essential chemicals.
The bill was introduced in the Senate as S. 1861 and in the House
as H.R. 2585.
The Criminal Division has made a number of proposals that
would bring about criminal law improvements in general and a
number that are limited to controlled substance offenses. These
proposals are summarized as follows:
o Exclusionary rule amendments that would protect evidence
from exclusion in court if it were obtained through a search
or seizure based on an objectively reasonable belief of
conformity with the Fourth Amendment;
o Capital punishment amendments which establish constitutional
procedures for the implementation of the death penalty;
o Forfeiture amendments regarding sharing seized assets with
foreign countries;
o Amendments to plug holes in current drug penalty, money
laundering, and drug trafficking laws, including increasing
the mandatory minimum prison term for CCE offenses and
providing mandatory minimum prison terms for trafficking in
specified quantities of methamphetamine and for attempts and
conspiracies to violate certain drug laws;
o Making the Career Criminal Act (with its 15 year mandatory
minimum term) more readily applicable to juvenile drug
traffickers;
o A posse comitatus amendment to expand the list of laws under
which military personnel may be assigned to operate military
equipment in a capacity to assist law enforcement officials.
The expanded list would include the Maritime Drug Law
Enforcement Act in 10 U.S.C. ?374(a)(1). This amendment was
approved by the NDPB in 1987 and included in the
Interdiction Report submitted to Congress under ?1373 of the
Department of Defense FY87 Authorization Bill;
o Firearms and explosives amendments which have been proposed
as "add-ons" to the plastic gun bill (H.R. 4445);
o Two alternatives for a series of amendments to the Right To
Financial Privacy Act (12 U.S.C. ?3401 et seq.) to
facilitate law enforcement access to bank records in drug
and money laundering cases; and
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o A new proposal for a Federal "narco-corruption" statute
which would make it illegal to bribe or to accept a bribe
for the purpose of facilitating the illegal importation,
possession, manufacture, transportation, or distribution of
a controlled substance. It would apply to Federal and State
public officials.
IMPLEMENTATION OF LEGISLATION
Anti-Drug Abuse Act of 1986
o Money Laundering Control Act (??1351-1361). Among the most
important provision of this legislation was the Money
Laundering Control Act. Under the terms of this Act, the
act of money laundering is now a Federal offense. Previ-
ously, Federal prosecutors had to rely on an arcane Bank
Secrecy Act reporting provisions to apprehend and convict
money launderers. It is expected that the new money
laundering statutes (18 U.S.C. ??1956 and 1957) will be
widely used in the Federal narcotics prosecution effort. In
addition to the new money laundering statutes found in Title
18, the Money Laundering Control Act closed a legal loophole
in the Bank Secrecy Act (31 U.S.C. ?5311 et seq.). Newly
enacted 31 U.S.C. ?5324 criminalizes the structuring of
currency transactions designed to evade the reporting
requirements of the Act regardless of whether there is a
reportable transaction in currency in excess of $10,000.
The closing of this loophole is expected to increase
significantly the number of money laundering prosecutions.
o Continuing Drug Enterprise Act of 1986 (??1251-1253).
Increases the five levels for CCE offenses and creates a new
offense (18 U.S.C. ?848(b)) which provides for mandatory
life imprisonment without parole for a "principal
administrator, organizer, or leader" of large CCE
organizations. While it is anticipated that this statute
will be used sparingly, its availability for CCE kingpins is
an invaluable law enforcement asset.
o Prison Facilities (51601). Required DOD to provide the
Attorney General a list of DOD sites whose facilities could
be used, or are being used, as detention facilities for
felons, especially those who are a Federal responsibility
such as illegal alien felons and major narcotics
traffickers. The report was sent to the Attorney General
and Congress in January 1987.
o Data Center and Clearinghouse. As part of an outgrowth of
the data requirements of various programs funded by the
Anti-Drug Abuse Act of 1986, the Office of Justice Programs'
Bureau of Justice Statistics established a new Data Center
and Clearinghouse for Drugs and Crime to provide easier
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access to data on drug law enforcement and the justice
system's treatment of drug offenders and nondrug offenders
who are drug users. The Center, assessable via a toll-free
telephone number (1-800-666-3332), will serve as a
centralized source of data from Federal, State, and local
agencies as well as the private sector and will respond to
all telephone requests, inform callers of new drugs and
crime data reports, send reports on drugs and crime, conduct
special searches on specific drugs and crime topics, make
referrals for additional information available from the
National Clearinghouse for Alcohol and Drug Information, and
publish special and comprehensive reports.
Other Legislation
Recently enacted legislation that is likely to have an
impact on drug prosecutions includes the Sentencing Act of 1987,
P.L. No. 100-182, and the Criminal Fine Improvements Act of 1987,
P.L. No. 100-185. These laws make certain technical and minor
corrections in the Sentencing Reform Act of 1984, clarify its
applicability to offenses committed on or after November 1, 1987,
and impose enhanced criminal fine collection mechanisms.
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DRAFT
CHAPTER VII: DRUG INTELLIGENCE
INTRODUCTION
The primary elements of the Federal Drug Intelligence
strategy are to:
o Determine the drug intelligence needs of all
engaged in drug supply and drug demand reduction;
o Formulate and
requirements;
issue drug information
entities
collection
o Improve intelligence collection efforts, insuring the
unimpeded flow of information to processors and consumers;
o Maintain and integrate systems for storage, retrieval, and
sharing of intelligence information;
o Improve intelligence analysis and estimation for tactical,
operational, and strategic purposes; and
o Ensure the timely dissemination of drug intelligence
products.
The National Drug Intelligence Committee (NDIC) of the
National Drug Policy Board (NDPB) is chaired by the Drug
Enforcement Administration (DEA).1/ As the lead agency for drug
intelligence, DEA ensures that drug intelligence activities are
coordinated among the appropriate Federal law enforcement
agencies, the Department of State, and the Intelligence
Community. The NDIC is the primary forum for this coordination
at the policy and planning level; the El Paso Intelligence Center
(EPIC) is the primary institution for multiagency, tactical drug
intelligence coordination.
The intelligence function of DEA is dedicated solely to drug
law enforcement, but significant portions of the intelligence
units of Customs, Coast Guard, and the Federal Bureau of
Investigation (FBI) focus on drug trafficking. Contributions to
drug intelligence from these and other Federal agencies,
including those of the Intelligence Community, are detailed
below. Since one of the primary concerns of the NDIC is the
protection of sources and methods, this progress report is
occasionally brief and general.
1/ Other members of the National Drug Intelligence Committee
include representatives of the Intelligence Community, the Office
of Management and Budget, and the Departments of Justice,
(Footnote Continued)
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PROGRESS IN FY 1987
El Paso Intelligence Center
o In September 1987, ground was broken for the new EPIC
facility at Ft. Bliss, Texas. Scheduled to become
operational in the fall of 1988, the new building more than
doubles existing space.
o EPIC provided continuous operational and analytical support
for major operations outlined elsewhere in this report. Of
particular significance are Operations Chemcon, Alliance,
and Pipeline, and investigations pertaining to members of
the Outlaws and Hells Angels motorcycle clubs.
o EPIC researched over 4,000 drug violator fugitives in
support of the U.S. Marshals Service's Warrant Apprehension
Narcotics Teams.
o Drug data bases were improved at EPIC with the receipt of
on-line access to the Bureau of Prisons inmate data base
(SENTRY) and to the Federal Aviation Administration's (FAA)
pilot and aircraft registration system. To obtain FAA
information on-line, the FBI continued development of
Project Tiger Paw. EPIC also developed a Navigation
Violation Data Profile data base to identify private
aircraft suspected of violating U.S. navigation laws.
o In addition to biweekly EPIC Briefs, eight special reports
and reference documents were published during FY87.
o EPIC processed 390,465 queries contributing to the seizure
of 44 aircraft and 104 vessels in FY87.
o EPIC became the central point of contact for implementation
of the Federal-wide Drug Seizure System (FDSS) in FY87.
This system provides accurate statistical summaries of
Federal drug removals above specified threshold levels.
o In March 1987, the United States Secret Service (USSS)
became the tenth Federal agency participating in EPIC. The
USSS will concentrate on coordinating the identification of
U.S. currency counterfeiting organizations that are
involved in drug trafficking.
(Footnote Continued)
Treasury, Transportation, State, Defense, and Health and Human
Services.
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Department of Justice
o To support a wide range of policy activities, DEA prepared
or updated over 60 country profiles or situation reports
focusing on narcotics trafficking.
o DEA's $1.4 million Special Field Intelligence Program (SFIP)
was instrumental in the development of 136 confidential
informants. In addition to the wealth of strategic drug
information obtained from these sources, the SFIPs
contributed significantly to investigations, seizures, and
arrests .2/
o DEA's SFIP Operation Intruder evolved into an international
cocaine and marijuana investigation of a Colombia-based
organization smuggling multiton quantities of drugs into the
United States. Telephone toll analysis identified
additional drug violators subject to prosecution. The list
of violator assets greatly assisted in the seizure of cash
and property worth millions of dollars. A detailed analysis
was prepared of the associations within this complex network
which allowed agents and the jury to better understand the
modus operandi and interrelationships of the organization.
Twenty-nine violators were arrested and more than 70 tons of
marijuana and nearly a ton of cocaine were seized.
o Based on exhaustive research, DEA's Office of Intelligence
prepared a series of detailed maps and charts depicting
Mexican drug trafficking organizations and their bases of
operation in western, central, and eastern Mexico. These
graphics have been used in investigations, special
operations, and to brief high-level U.S. Government
officials on Mexican drug networks.
o DEA's Office of Intelligence analyzed hundreds of records of
sales of essential and precursor chemicals. Suspicious
purchases were identified because of either the amount or
cost of the chemical, the purchaser, or the type of
chemical. Over a hundred leads were sent to the field for
follow-up investigation. Based on these leads, Intelligence
File Reviews (IFRs) were often produced to further identify
2/ The SFIPs contributed to 343 investigations; 449 arrests;
drug seizures totaling 7,400 kilograms of cocaine, 384 kilograms
of heroin, 82 tons of marijuana, 9,300 kilograms of hashish, 11
kilograms of methamphetamine, and 471,000 dosage units of LSD;
asset seizures amounting to over $13 million; the seizure of 46
clandestine drug laboratories and precursor and essential
chemicals; and the eradication of 53 million marijuana plants and
2.5 million opium poppy plants.
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and target those making chemical purchases.3/ As a result,
major organizations, mostly dealing in the illicit
manufacture of methamphetamine, were immobilized in Texas
and Louisiana.
o The DEA Office of Intelligence assisted in formulating
position papers in response to numerous queries from other
Federal agencies, the White House, and the Congress
concerning several sensitive drug-related issues which had a
direct impact on U.S. foreign policy.
o A DEA investigation focused on an organization which
distributed approximately 500 kilograms of cocaine monthly
from Colombia via Mexico to the United States and laundered
and exported millions of dollars of cocaine money. Analytic
contributions led to indictments, arrests, and prosecutions.
These contributions included: identification of associates
in Guatemala, Florida, and California; identification of
money laundering operations in Miami and Los Angeles;
analysis of seized documents which identified sources of
supply and additional associates; preparation of charts
depicting organizational links and investigative
chronologies depicting overt acts; and informant debriefings
which corroborated the primary defendants' activities and
better defined the Mexican branch of the organization.
o The volume of Immigration and Naturalization Service (INS)
field level reporting of drug incidents, suspected drug
activity, and suspected and known traffickers increased
significantly in FY87 and continues to do so. Such
information is entered into the appropriate operations
data base. Because of the increased drug information
obtained by INS, an intelligence staff officer was assigned
to coordinate drug intelligence matters within the INS.
o Of 1,866 lookouts posted in the INS Lookout System for
participating agencies at EPIC, over 700 were directly
drug-related, and of 1,000 requested by the U.S. Marshals
Service, several hundred related to drug law offenders.
o FBI Intelligence Research Specialists contributed
significant analytic support to assist in the dismantling of
major drug trafficking organizations.
3/ An IFR profiles a major trafficker or organization and
describes all the overt criminal acts and associations of the
traffickers. The IFR's are the principal means of providing
intelligence support to investigations and prosecutions. In
FY87, the Operational Intelligence Section produced 48 IFR's.
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Department of Transportation
o The U.S. Coast Guard expanded its Operational Intelligence
program by obtaining a Naval Intelligence Liaison Officer;
posting one attache in Colombia and one in Mexico City; and
activating a joint Customs/Coast Guard C3I center in
Miami.4/
o A dedicated Coast Guard drug intelligence collection and
analysis program continues to be directly responsible for a
significant number of maritime seizures.
Department of Treasury
o Customs Intelligence has established the Designated
Intelligence Officer program in which Customs Intelligence
Officers are assigned to field offices to assist in the
collection and reporting of drug intelligence.
o Customs Intelligence has expanded the ERIN program which
employs sophisticated electronics equipment to collect and
disseminate actionable intelligence to enforcement elements
interdicting narcotics and other contraband. This
intelligence provides Customs with the knowledge required to
more selectively target suspects that represent the greatest
threat and highest potential for successful enforcement
operations.
o Customs Intelligence has established an integrated system
for communications, storage, retrieval, and sharing of
intelligence information. Communications capabilities for
the Office of Intelligence cover a wide range of secure and
unclassified systems.
o Customs is assisting in the development of the improved
Treasury Enforcement Communications System (TECS II) which
will include operational and functional data for use by the
law enforcement community.5/
o Customs is establishing a C3I system, in cooperation with
the Coast Guard, to provide secure, interoperable voice,
cable, and data communications linking the primary air and
marine interdiction elements and information supplied by
4/ The C3I Center's primary mission is to coordinate air
-smuggling interdiction activities.
5/ The Department of Treasury's Enforcement Computer System
(TECS) contains Treasury's criminal records and information
related data.
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external intelligence collectors. A special automated link
will be implemented between EPIC and the C3I centers for
direct tactical support.
o The Customs Artificial Intelligence System (CAIS) is now
fully operational. CAIS is the rule-based expert computer
system that provides tactical targeting leads from the Bank
Secrecy Act data bases. CAIS has identified approximately
300 individuals and businesses with suspect currency
transactions. These subjects have been linked to over $200
million in Currency Transaction Reports and Currency
Monetary Instrument Reports.
o Customs prepared and disseminated a Statement of
Intelligence Interest together with specific Intelligence
Collection Requirements to provide guidance and direction to
drug intelligence collection and analysis efforts.
o Customs Officers have been assigned to three DEA offices in
Latin America to extract drug trafficking information for
drug interdictions.
o The Customs Intelligence Operations Center has been
established as the central point for the receipt of
intelligence from other agencies and the release point for
internally produced intelligence. It is a 24-hour contact
point for all field elements and other government agencies.
Department of State
o The Department of State, working through its Bureau for
International Narcotics Matters (INM), continued to provide
significant levels of funding for secure communications to
support counternarcotics activities of local law enforcement
authorities. Similarly, INM provided support for
computer-based data banks for counternarcotics programs.
Department of Defense
o Department of Defense (DOD) support to drug interdiction is
detailed in Chapter IV, Interdiction. Much of that support
takes the form of intelligence collection due to aerial
surveillance: 16,288 flight hours by Navy E-2C and P-3
(Advanced Early Warning) aircraft, Air Force E-3A AWACS, and
other military surveillance aircraft; 3,121 aerial
surveillance flight hours flown by the National Guard to
support drug eradication; and access to Navy and Air Force
Over-the-Horizon Radar and Caribbean Basin Radar Network.
o To provide overall coordination of the narcotics analysis
effort, the Defense Intelligence Agency (DIA) created the
Instability/Insurgency Branch within the Global Analysis
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Division, Directorate for Research. This branch analyzes
relationships between narcotics trafficking and insurgency
and terrorism, and provides operational support to U.S.
military forces and law enforcement agencies.
o DIA streamlined its Defense Attache "human intelligence"
reporting procedures to ensure more rapid and efficient
dissemination of drug intelligence to law enforcement
consumers.
o DOD, through the National Security Agency and the National
Narcotics Border Interdiction System (NNBIS), provided
equipment, crypto, keylists, and access to DOD circuits
(including satellite channels) to the drug enforcement
community enabling secure interoperable communications in
support of drug enforcement operations.
Central Intelligence Agency
o The CIA made significant progress in refining crop
estimating procedures through more creative use of hardware
and software and increased use of LANDSAT.6/
National Narcotics Border Interdiction System
o The Joint Intelligence Sub-Working Group, chaired by NNBIS,
identified and documented numerous gaps in intelligence
collection, reporting, and analysis.
o NNBIS Northeast Region developed a national tracking system
for nonimmigrant alien transits without visas (TRWOVs) which
is being used to track Chinese TRWOVs suspected of smuggling
heroin. This is a multiagency project involving NNBIS, DEA,
Customs, and INS. It was recently activated after a year of
intelligence collection and methodology development.
o An expanded drug threat assessment was produced to support
drug interdiction operations and the Drug Interdiction Game
(see Chapter IV, Interdiction, for a description of Drug
Interdiction Game - 1987). The assessment included
strategic and tactical elements of maritime, air, and land
threats. NNBIS facilitated this multiagency effort among
the CIA, Coast Guard, and EPIC.
6/ LANDSAT is a satellite data collection system using
-iultispectral imagery to collect data over a broad coverage area.
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o NNBIS participants generated three new intelligence
products: classified daily regional summaries of ongoing
operations; classified weekly regional summaries; and
unclassified daily regional summaries for distribution to
foreign forces participating in joint operations.
Department of Health and Human Services
o To determine and inform the public of the health-related
consequences of drug abuse in the United States, the
National Institute on Drug Abuse (NIDA) published the
National Household Survey on Drug Abuse Population Estimates
1985 and the National High School Senior Survey: Monitoring
the Future.
o To develop current assessments of drug abuse patterns and
trends in the United States, NIDA held two meetings of the
Community Epidemiology Work Group. This Group consists of
experts in drug-related fields from over 20 metropolitan
areas and selected foreign countries.
o NIDA continued to operate the Drug Abuse Warning Network
(DAWN), a nationwide morbidity and mortality program, and
published several trend analysis reports on cocaine, heroin
and PCP (for a further description of DAWN, see Chapter II,
The Drug Problem in 1987).
INTERPOL
The United States National Central Bureau (USNCB) represents
the United States, on behalf of the Attorney General, in the
International Criminal Police Organization (INTERPOL). The USNCB
is a primary channel for drug-related law enforcement
communications among police entities in other INTERPOL member
countries and the INTERPOL General Secretariat in St. Cloud,
France. In order to fulfil its mission, the USNCB depends on the
collaborative efforts of 14 Federal law enforcement agencies that
detail senior investigators to the USNCB. The USNCB's 24-hour
operation continues to enhance its ability to process
investigative inquiries transmitted via INTERPOL communications
channels. Some of the USNCB's drug-related capabilities follow:
o The USNCB's ability to facilitate drug-related inquiries on
behalf of U.S. law enforcement agencies is demonstrated by a
32 percent increase in these inquiries from FY86 to FY87.
o The Drug Financial Fraud and Terrorism Analytical Unit
within the USNCB continues to provide intelligence support
by reviewing USNCB and INTERPOL investigative files.
Production also includes: (1) dissemination of the INTERPOL
General Secretariat Weekly Drugs Message, reporting on items
of special interest, trends, modus operandi, and significant
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seizures; (2) assistance to Federal agencies requesting
specialized drug reports or international drug trafficking
data from the INTERPOL General Secretariat; and (3)
distribution of intelligence briefs from the INTERPOL
General Secretariat and INTERPOL member countries concerning
drug trafficking trends and methods to the appropriate
Federal law enforcement agencies.
o During 1987, the INTERPOL General Secretariat issued 56
international wanted notices for provisional arrest on
behalf of the USNCB, of which 12 were major international
drug traffickers. The number of international wanted
notices issued on behalf of the USNCB increased 47.3 percent
from FY86 to FY87.
o In conjunction with the INTERPOL Secretariat General, the
USNCB established the Caribean Basin Telecommunications
Region representing 33 Caribbean nations. Puerto Rico was
designated as the regional station for this new region.7/
The Puerto Rico regional station represents the introduction
of a new mode of international criminal police
telecommunications. Puerto Rico is equipped with modern
state-of-the-art telecommunications technology, including
computerized message traffic management, standardized
message formats, data packet switching, and satellite
communications. The United Nations, through its fund for
Drug Abuse Control, is financing the implementation of the
Caribbean telecommunications system. Each member country in
this region is equipped with a microcomputer that provides a
fast, convenient, reliable, and economical means of data
telecommunications between that country and other INTERPOL
member countries.
LEGISLATION
Anti-Drug Abuse Act of 1986/Other Legislation
Neither the Anti-Drug Abuse Act of 1986 nor any other
legislation required actions on the part of the NDIC in FY87.
7/ There are four other regional stations in Tokyo, Nairobi,
Abidjan, and Buenos Aires in the INTERPOL communications network.
The Puerto Rico Regional Station differs from these other regions
in that all the other stations are radio stations.
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r
I
CHAPTER VIII: PREVENTION EDUCATION
INTRODUCTION
DRAFT
The goal of the Federal Prevention Education strategy is to
assist grass roots efforts to implement comprehensive programs
for the prevention of alcohol and other drug use among youth.
To achieve its goals, the Prevention Education Committee of
the National Drug Policy Board (NDPB) has identified strategies
that focus on the many individuals who influence children's
lives: parents, community members, school officials, teachers,
and peers.1/ Briefly, these strategies:
o Support the collection of up-to-date information about
trends in drug and alcohol use, programs that work, and the
latest evaluation and research findings;
o Provide information to parents, individuals in the
community, school administrators, teachers, and youth to
promote effective prevention efforts and to increase
knowledge about drug and alcohol use; and
o Make assistance available to parents, communities, schools,
and youth as they work to implement comprehensive prevention
programs.
PROGRESS IN 1987
As noted in Chapter I, recent surveys of our youth show
steady declines in the use of cocaine, marijuana, and other
drugs. In addition, attitudes toward cocaine and other drugs are
changing, with young people becoming increasingly aware of the
dangers of drug use. While these survey results are encouraging,
drug use remains at dangerously high levels. Over 50 percent of
high school seniors report having used marijuana, and over 90
1/ Members of the Prevention Education Committee include
representatives of the Customs Service, U.S. Information Agency,
ACTION, and the Departments of Education (which chairs the
committee), Interior (Bureau of Indian Affairs), Health and Human
Services (National Institute on Drug Abuse and the Office for
Substance Abuse Prevention), Transportation (National Highway
Traffic Safety Administration), Justice (Bureau of Justice
Assistance; Drug Enforcement Administration; National Institute
of Justice; and the Office of Juvenile Justice and Delinquency
Prevention), Defense Housing and Urban Development, and State.
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percent have used alcohol.2/ During the 1980s, another cause for
great concern has been the availability of cocaine in a cheap but
extremely addictive form called "crack" or "rock." Evidence of
the widespread availability and use of this drug provides cause
for continuing the national fight against drug and alcohol use.
To assist in this ongoing effort, the Prevention Education
Committee has designed strategies to collect and disseminate
information and provide other assistance to parents, communities,
schools, and youth. The sections that follow provide a more
complete discussion of those strategies and our progress to date
in implementing them.
INFORMATION COLLECTION
The Prevention Education Committee supports the collection
of information vital to parents, communities, and schools as they
plan and implement comprehensive prevention programs. Information
is collected by conducting national surveys, identifying programs
that work, and supporting evaluations and research. This
information increases knowledge about the magnitude of the
problem of alcohol and other drug use among youth, effective ways
to address that problem, and how drugs and alcohol actually
affect young people. Examples of activities to collect accurate,
timely information in 1987 follow.
o Drug-Free Schools Recognition Program (Department of
Education - ED). Over 230 schools were nominated for
recognition as having noteworthy prevention programs. An
awards ceremony was held in May 1988 in Washington, D.C. for
the 30 schools with the best programs.
o Criteria and Procedures for Evaluation of K-12 Substance
Abuse Curricula (ED). A panel of experts has been convened
and members have visited schools currently implementing
curricula. A guide to assist other schools in selecting and
implementing substance abuse curricula is planned for the
summer of 1988.
o American Association of School Administrators (National
Highway Traffic Safety Administration - NHTSA ). Reviewed
school programs on occupant safety and drinking and driving.
A report on the programs was published in the spring of
1988.
2/ National High School Senior Survey: Monitoring the Future,
conducted for the National Institute on Drug Abuse by the
Institute for Social Research, University of Michigan, January
1988.
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o Violence Prevention Education Program (National Institute of
Justice - NIJ). Evaluates the impact of a curriculum
designed to teach youth to deal with their aggression and
thereby avoid turning to drugs and alcohol. Data has been
collected in ten jurisdictions and is being analyzed.
o Prevention Research (National Institute on Drug Abuse -
NIDA). Funding of research on drug use and prevention is
ongoing. NIDA also continues to support surveys that
monitor the health-related knowledge of youth, their
practices, and attitudes regarding drug and alcohol use, and
annual usage trends.
o Prevention Education Materials, Reviews, and Task Forces
(Office for Substance Abuse Prevention - OSAP). Over
2,500 organizations and programs have assisted OSAP in
identifying more than 2,000 books, brochures, kits, films,
videotapes, curricula, and other materials on prevention.
OSAP has developed criteria for screening the materials
received. In addition, five task forces are screening
the materials and will make recommendations for
adopting or adapting the materials and for developing new
materials.
INFORMATION DISSEMINATION
A critical need of parents, communities, and schools
involved in designing and implementing prevention programs is
accurate and timely information. The Prevention Education
Committee is meeting this need by providing general information
on drug and alcohol use, publicizing model programs, and
disseminating the latest findings from evaluations and research.
This information will educate the public about the nation's drug
and alcohol problems and ways for all concerned citizens to
become involved in prevention efforts.
The following section highlights Federal efforts to
disseminate prevention education materials. (See also Exhibits
VIII-1 and VIII-2).
Publications
o Meeting the Challenge (ACTION). ACTION has printed and
distributed this guide for service clubs.
o Take Action Against Drug Abuse: How to Start a Volunteer
Anti-Drug Program in Your Community (ACTION). ACTION has
developed, printed, and distributed this booklet.
o Publications (ED). To date, 1.8 million copies of
Schools Without Drugs, the comprehensive guide for parents,
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schools, communities, and students, have been distributed.
The Challenge newsletter, which also provides information
about successful prevention efforts, is being distributed to
126,000 schools and superintendents bimonthly. The total
nationwide distribution for the newsletter is almost
200,000.
o Publications (Drug Enforcement Administration - DEA). DEA
distributes approximately 300,000 copies of its
publications annually, including: Drugs of Abuse,
Controlled Substances: Use, Abuse, and Effects, Drug
Enforcement, and the Soozie and Katy Coloring Book.
o Taking the Lead: A Student Safety Action Handbook (NHTSA).
Development of this handbook began in FY87. When published
in 1988, it will provide information on planning and
implementing alcohol and safety belt programs.
o A Winning Combination: An Alcohol, Drug, and Traffic Safety
Manual for College Campuses (NHTSA). Work also began on
this manual in FY87. When published in 1988, it will
address how to plan, implement, and evaluate programs on
college campuses.
o Directory of Youth DWI Programs (NHTSA). Work also began on
this directory in FY87. When published, it will identify
programs and strategies for communities working to prevent
impaired driving.
o Future Farmers of America (NHTSA). FFA published a
manual on alcohol and drug use and driving and has designed
training for a leadership conference. Activity among local
FFA chapters should begin during the 1988-89 school year.
o Arresting the Demand for Drugs (NIJ). Examines prevention
programs planned and implemented by law enforcement agencies
and elementary schools in four jurisdictions. The report is
being disseminated by the National Criminal Justice
Reference Service.
o Handbook for Evaluating Drug and Alcohol Prevention
Programs: Staff/Team Evaluation of Prevention Programs
(STEPP) (OSAP). Provides program managers and staff a
comprehensive tool for use in evaluating, documenting, and
monitoring program effectiveness and the provision of
services.
Films, Posters and PSAs
o Drugs: A Deadly Game Poster (ACTION). Depicts the harmful
effects of drugs and has been reprinted and distributed
nationwide to Scouts.
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o Posters (ED, DEA, and the Food and Drug Administration).
Warn against the use of steroids. ED also has distributed
posters warning against the use of "crack."
o Anti-Drug Abuse PSAs (ACTION). ACTION has six Public
Service Announcements (PSAs) and is developing a video for
implementing Project Team-Up, a public awareness campaign
that features antidrug messages delivered by local corporate
and sports figures.
o Films, PSAs, and Posters (NHTSA, ED, and DEA). NHTSA
continues to make films, PSAs, and posters available to
States and communities. ED supported a PSA, "Slam the
Door on Drugs," which featured the Secretary of Education.
DEA provided approximately 35 videos and PSAs. The
videos are available to communities, schools, and public
agencies.
o National School Safety Center (Office of Juvenile Justice
and Delinquency Prevention - OJJDP). This center
disseminated videos, posters, PSAs, and news journals on the
dangers of drug use to broadcasting networks, parents, and
school administrators. Examples of information disseminated
are the award-winning film What's Wrong with this Picture
and the bi-monthly publication School Safety, Newsjournal of
the NSSC.
o Audiovisual Grants Program (ED). In 1987, ED completed
evaluations of applications for grants for the development
and distribution of audiovisual materials focusing on
prevention .3/
Conferences
o ACTION - NAB Conference (ACTION). ACTION and the National
Association of Broadcasters (NAB) cosponsored a conference
for youth to learn about media efforts to increase
awareness about drug abuse. KIDSNET participated and
unveiled a Video Anti-Drug Abuse Guide.4/
o National Conference on Drug-Free Public Housing (Department
of Housing and Urban Development - HUD ). In May 1987, HUD
and the National Association of Housing and Redevelopment
Officials co-sponsored a National Conference on Drug-Free
3/ Eight grants were awarded in FY88.
4/ KIDSNET is a computerized clearinghouse for children's radio
and television.
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Public Housing. This two-day conference generated such a
positive response from the 600 attendees that plans for
regional conferences were begun.
o Regional Conferences on Drug-Free Public Housing (HUD). In
1987, HUD held six regional conferences attended by over
1,200 individuals representing public housing communities,
housing authorities, law enforcement agencies, youth
organizations, the media, the private sector, and Federal
agencies. HUD regional administrators have followed up with
attendees to determine what steps have been taken to
formulate and implement plans of action to ensure drug-free
public housing.
o National Student Safety Program Conference (NHTSA). This
conference showcased student traffic safety programs.
Campaigns
o National Crime Prevention Campaign (Bureau of Justice
Assistance - BJA). Through a national clearinghouse, the
campaign makes available: "The McGruff Spectacular," a
video on prevention for children ages 6-12; a video for high
school students emphasizing that winners do not use drugs;
and numerous booklets to supplement these videos. A
prevention PSA has also been produced through the AD
Council.
o National Drunk and Drugged Driving Awareness Week (NHTSA).
For this week, December 14-20, 1986, approximately 5,000
information kits were distributed; a report was issued in
July 1987.
o Media Campaigns (OSAP). OSAP supports two campaigns: "Be
Smart, Don't Start" and "Cocaine the Big Lie." The first is
being expanded to include junior high school students, and
the second has new PSAs and two additional publications.
o Drug Smuggling Awareness Program (Customs Service).
Educates the public about the dangers of drug smuggling
(through PSAs, pamphlets, direct mailings, and other
materials) and provides a 24-hour toll-free hotline
(1-800-BE-ALERT) for citizens to call and report suspect
drug activity. To date, Customs has received nearly 10,000
calls from concerned citizens with information about
smuggling activity.
Other Activities
o Speakers Bureau (ACTION). ACTION has compiled a list of
over 150 speakers available to talk to community-based
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organizations about volunteer-based drug use prevention
programming.
Speakers Bureau (HUD). HUD has put regional staff and
public housing authorities in touch with articulate local
and national speakers willing to address residents, HUD's
and other Federal agencies' field office conferences, or
public housing authority meetings on achieving drug-free
public housing.
o You Can Help-Drug Education Campaign (Customs). To educate
the public on what they can do to stop drug use in their
communities and on the dangers of drugs, a Speakers Bureau
consisting of Customs officers has been established. To
date, officers have made 705 presentations, attended by
nearly 85,000 individuals. In addition, a nine-part drug
information kit has been assembled for distribution at each
speaking event.
o National Clearinghouse for the Alcohol and Drug Information
(OSAP and ED). This national repository of information on
drugs and alcohol: responds to over 8,000 requests per month
for free copies of more than 600 titles available on
alcohol, drug abuse, and AIDS; processes over 2,000
telephone requests each month; convenes a panel of
noted librarians and information specialists to plan for
the clearinghouse's data base; develops a catalogue of
films available; reviews prevention materials; and
assists local resource centers in meeting local needs
for information and materials.
o Reprinting Existing Materials (OSAP).
screened those publications most
clearinghouse. More than 20 titles
and over two million copies of
available.
OSAP has reviewed and
requested from the
have been selected
the titles will be
o Anti-Drug Logos (Department of Agriculture). Developed
antidrug logos on milk cartons used in the National School
Lunch Program for distribution to 90,000 public schools
across America.
o Cooperative Agreement with the Health Resources Services
Administration (OSAP). In FY87, OSAP entered into this
agreement and will develop and field test training curricula
and materials for primary care providers and others involved
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in the over 600 Community Health and Migrant Health Centers
nationwide.
o Memorandum of Agreement (MOA) (Indian Health Service - IHS
and Bureau of Indian Affairs - BIA ). Coordinates BIA and
IHS resources and services. As part of this effort, a
newsletter has been distributed to tribes.
o Youth Impaired Driving Public Hearings (NHTSA). Focuses on
the need to prevent impaired driving among youth. Two
hearings have been held and three more are planned for 1988.
A final report will be issued during the summer of 1988.
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EXHIBIT VIII - 1
INFORMATION DISSEMINATED
(FY87)
Agency/Dept.
Program
Number
ACTION
ACTION
Meeting the Challenge
30,000
31,000
Take Action Against Drug Abuse
ACTION
Drugs: A Deadly Game Poster
35,000
BIA/IHS
MOA - Newsletter
24,000
BJA
DARE booklet*
600
Education
(ED)
Publications -
1,800,000
Schools Without Drugs
The Challenge
775,000
ED
Poster on Crack
378,000
ED/DEA/FDA
Poster on Steroids
136,000
DEA
Publications
300,000
NHTSA
National Drunk and Drugged
5,000
Driving Awareness Week -
Information kits
NHTSA
Road to Winning Assembly
250
Program - Information kits*
NHTSA
Project Graduation -
publications*
50,000
OSAP
Handbook for Evaluating Prevention
6,000
Programs: STEPP
CUSTOMS
Drug Education Campaign Kit
85,000
NIJ
Publication - Arresting the Demand
for Drugs
3,000
* Additional information on these programs can be found under
"Assistance to Parents, Communities, Schools, and Youth" in this
Chapter.
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EXHIBIT VIII - 2
MEDIA CAMPAIGNS
(FY87)
Agency/Dept.
ACTION
BJA
BJA/DEA/FBI
ED
ED
DEA
NHTSA
NHTSA
OJJDP
OJJDP/DEA
OSAP
CUSTOMS
Media Campaign
Anti-Drug Abuse PSAs*
National Crime
Prevention Campaign
Demand Reduction Drug
Prevention**
Audiovisual Grants
PSA*
Films and PSAs*
Films, PSAs, and
Posters*
Techniques for
Effective Alcohol
Management**
National School
Safety Center
Super Teams of the
Washington Metro Area**
Media Campaigns
Drug Smuggling Awareness
Program
Target Audience
General public
Law enforcement
agencies and schools
Schools and general
public
Schools
General public
Schools, communities,
government agencies,
and general public
Schools, communities,
government agencies,
and general public
General public
Parents and schools
General public
Schools, communities,
and general public
General public
Public Service Announcement
** Additional information on these programs can be
under "Assistance to Parents, Communities, Schools, and
this Chapter.
found
Youth" in
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ASSISTANCE TO PARENTS, COMMUNITIES, SCHOOLS AND YOUTH
In addition to collecting and disseminating information, the
Prevention Education Committee provides assistance to parents,
communities, schools, and youth. Through this assistance, the
Prevention Education Committee helps ensure that effective,
comprehensive prevention programs are implemented to address the
problem of drug and alcohol use among the young. The following
provides a more complete summary of these assistance programs.
Training
Among programs assisting grass roots efforts to prevent drug
and alcohol use are those providing training. (See also Exhibit
VIII-3).
o Demand Reduction Drug Prevention (BJA, DEA, and the Federal
Bureau of Investigation - FBI). Provides training for the
Sports Drug Awareness Program and antidrug PSAs and videos.
o Drug Alliance (ACTION). Provides training for nearly 100
community-based organizations operating drug use prevention
projects.
o Sports Drug Awareness Program (DEA, OJJDP, and FBI).
Provides training on prevention for coaches, athletic
directors, and school administrators. Approximately 13,000
attended these 60 seminars with an outreach of approximately
1.5 million student athletes.
o Technical Assistance and Training Workshops on Alcohol and
Drug-Impaired Driving (NHTSA). Provides technical
assistance and training programs to reduce alcohol- and
drug-impaired driving.
o Student Peer Leader Training (NHTSA and OJJDP). Agencies
began developing a student peer leader training curriculum.
o Safer Schools - Better Students Program (NIJ). Provides
training and technical assistance to school administrators
in improving school safety. The program is being
implemented in Milwaukee, Wisconsin and a State-wide
implementation strategy has been developed for Missouri.
o Prevention Education Programs (BIA). Provide training for
the counseling staff at BIA-funded schools; guidelines for
including a prevention curriculum in those schools; and a
resource center which provides information on prevention to
tribes and tribal schools.
o Regional Centers Program (ED). ED completed negotiations
on five cooperative agreements for the establishment of
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regional centers. These centers will provide training and
technical assistance for States, school districts, schools,
and institutions of higher education. State Departments
of Education will also be assisted in coordinating and
strengthening prevention programs and evaluating and
disseminating information on effective programs and
strategies.
Financial Assistance
While supporting training, agencies serving on the
Prevention Education Committee also make financial assistance
available to States and territories, parent and community
organizations, elementary and secondary schools, and institutions
of higher education. (See also Exhibit VIII-4).
o State and Local Programs (ED). Applications from the
States and Territories for approximately $161 million have
been approved. Funds allocated are used to support State
and local prevention efforts in schools and communities.
o Training and Demonstration Grants to Institutions of Higher
Education (ED). Forty-one grants have been awarded to
support pre-service and in-service training or the
demonstration of programs for elementary and secondary
schools.
o Federal Activities Grants Program (ED). Thirty-eight
grants have been awarded for the development of model
programs, technical assistance, and curriculum development.
o Program for Hawaiian Natives (ED). ED completed
negotiations for a grant of $389,000 for planning,
conducting, and administering prevention programs for
Hawaiian natives.
o Drug Prevention Program for Students Enrolled in
Institutions of Higher Education (ED). Grants totalling
$7.7 million have been awarded to 92 institutions of higher
education.
o Drug Alliance Demonstration Grant Program (ACTION). ACTION
funded 101 demonstration programs to test prevention
strategies that focus on community-based volunteer efforts
to assist youth.
o Program for Indian Youth (BIA and ED). Funds prevention
programs for Indian children living on reservations and
attending elementary and secondary schools operated by BIA.
o Model Community-Based Prevention Program (OSAP). Selects,
funds, and evaluates the efforts of the local affiliates of
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national organizations implementing innovative
community-based prevention programs and activities.
Other Activities
o Retired Senior Volunteer Program (ACTION). RSVP volunteers
have been involved in various projects addressing
prevention. For example, RSVP and the Just Say No
Foundation are jointly funding a demonstration with nine
RSVP projects and Just Say No clubs. This intergenerational
effort will involve the RSVP volunteers in activities
designed to prevent substance abuse among children.
o Drug Abuse Resistance Education (DARE) Program (BJA).
Nearly 40,000 students have participated in this
program to learn how to resist peer pressure to use
drugs. Eight grants have been awarded, one for a
training site and seven for planning new DARE programs.
Over 600 copies of a booklet explaining the program
have also been distributed.
o The Challenge (ED). To date, 1,337 schools and 258
districts have joined The Challenge program. As members,
these schools and districts are establishing and supporting
programs to get drugs and alcohol out of schools.
o Drug Prevention Program for DOD Schools (Department of
Defense - DOD). DOD schools are implementing comprehensive
programs, including DARE and ED's Challenge program. In
association with the University of Michigan's Institute for
Social Research, DOD also completed a survey of drug use in
the DOD school system.5/
o Network of Drug-Free Colleges (ED). College presidents
have formulated goals and strategies for a network of
colleges committed to eliminating drugs on campus.
Standards for campus antidrug policies have also been
developed and distributed. Support for the standards is
being sought from colleges and higher education
associations.
o Midshipmen Alcohol and Drug Education Program (Maritime
Administration). Supports a comprehensive prevention
program using lectures, posters, and films.
5/ The Second Worldwide Survey of Drug and Alcohol Use Among
Students in the Department of Defense Dependents School System,
1982-1987, Institute for Social Research, University of Michigan,
December 1987.
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o Road to Winning Assembly Program (NHTSA). Professional
and college athletes lead high school assemblies that
provide students with information about alcohol and drug use
and driving. Approximately 250 kits on organizing the
assemblies have been distributed.
o Project Graduation (NHTSA). Seeks to reduce alcohol- and
other drug-related highway fatalities among youth during
commencement season. Approximately 50,000 publications have
been distributed. A grant to the national PTA will ensure
that 1,000 PTAs conduct Project Graduation during the
upcoming school year.
o Techniques for Effective Alcohol Management (NHTSA).
Assists public assembly facility owners and managers in
reducing the incidence of drinking and driving. It has been
implemented in 44 facilities. PSAs and other materials have
also been produced by the National Basketball Association
and Major League Baseball.
o Super Teams of the Washington Metropolitan Area (OJJDP
and DEA). Assists high school athletes to resist drugs and
alcohol. As part of this effort, a video on the program has
been made available to the public.
o Just Say No (Coast Guard). Seeks to educate individuals
about the negative effects of alcohol and drug use.
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EXHIBIT VIII - 3
TRAINING PROGRAMS
(FY87)
Agency/Dept.
ACTION
BIA
BJA
BJA/DEA/FBI
ED
ED
DEA/OJJDP/FBI
NHTSA
NHTSA/OJJDP
NILT
Program
Drug Alliance
Prevention Education
Programs
DARE Program
Demand Reduction
Drug Prevention
Regional Centers
Program
Training and
Demonstration Grants
to IHE's
Sports Drug
Awareness Program
Technical Assistance
and Training Workshops
on Alcohol- and Drug-
Impaired Driving
Student Peer Leader
Training
Safer Schools - Better
Students Program
Target Audience
Community
organizations
School counselors
Law enforcement
officials
Law enforcement
officials
State Depts. of
Educ. staffs, school
administrators,
teachers, and
community orgs.
School teachers
and administrators
School coaches,
administrators, and
athletic directors
State agencies,
community orgs.,
and law enforcement
officials
Students
School
administrators
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EXHIBIT VIII - 4
PROGRAM FUNDING
(FY87)
Funding
Agency/Dept
Program
Number
(millions)
ACTION
Drug Alliance
101
$2.3
Demonstration Grant
Program
BJA
DARE Program
8
.6
ED
Training and Demonstration
41
7.7
Grants to IHEs
ED
State and Local
57
161.0
Programs*
ED
Federal Activities
38
4.5
Grants Program
ED
Drug Prevention Program
for Students Enrolled in
92
7.7
IHEs
* Formula Grant Program
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LEGISLATION
LEGISLATIVE AND REGULATORY CHANGES
ED proposed and supported amendments to the Drug-Free
Schools and Communities Act of 1986, Title IV, Subtitle B of the
Anti-Drug Abuse Act of 1986. Among the amendments enacted are
the following:
o Additional accountability and reporting requirements are
placed on the States and local educational agencies to
improve program assessment and effective use of funds.
o Each State is required to submit a biennial report on
programs which have been assisted.
o States are required to make allotments to localities on the
basis of the most recent student enrollment data.
o The Secretary of Education's responsibilities are expanded
to include the evaluation of programs conducted under the
Act.
o Language is added clarifying the participation of teachers
and students from private, nonprofit schools in programs
under the Act.
o The Secretary of Education is given the authority to carry
out the Act through grants, contracts, and cooperative
agreements.
IMPLEMENTATION OF LEGISLATION
Anti-Drug Abuse Act of 1986
o Office for Substance Abuse Prevention (S4005). Amended Title
V of the Public Health Service Act by adding new S508. This
new section provides for the establishment of OSAP in the
Department of Health and Human Services (HHS) and outlines
the activities of that office.
o Regional Workshops (S508(b)(1)). Required the sponsoring of
regional workshops on the prevention of drug and alcohol
abuse. OSAP cosponsored the March 1987 PRIDE conference and
supports regional substance abuse prevention conferences and
workshops.
o Coordinate Research (S508(b)(2)). Required the coordination
of the findings of research sponsored by agencies of the
Public Health Service on the prevention of drug and alcohol
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abuse. OSAP collected and collated the substance abuse
prevention research findings of NIDA, the National Institute
of Mental Health, and the National Institute on Alcohol
Abuse and Alcoholism (NIAAA). OSAP has also worked
with these institutes to coordinate research findings so
they can be disseminated through the National Clearinghouse
for Alcohol and Drug Information.
o Prevention Literature (?508(b)(3)). Required the development
of effective drug and alcohol abuse prevention literature.
OSAP has undertaken efforts to identify gaps in the
literature on prevention and to close those gaps.
o Disseminate Prevention Materials (?508(b)(4)). Required the
widespread dissemination of prevention materials among
States, political sub-divisions, and school systems. HHS and
ED signed an MOA mandating the transfer of funds to OSAP for
the National Clearinghouse for Alcohol and Drug Information.
The MOA also calls for ED's prevention materials to be
disseminated through the Clearinghouse. Finally, OSAP
conveys material to various interagency committees.
o Clinical Training (?508(b)(5)). Required support for
programs of clinical training of substance abuse counselors
and other health professionsls. OSAP has undertaken
initiatives to provide technical assistance and training for
parents, teachers, youth, and others.
o Develop Educational Materials (?508(b)(6)). Required the
development of educational materials to reduce the risks of
acquired immune deficiency syndrome (AIDS) among IV drug
abusers. Under the auspices of the National Clearinghouse
for Alcohol and Drug Information, OSAP will work closely
with the Centers for Disease Control on the dissemination of
educational materials about AIDS and IV drug use.
o Train, Assist, Collect, and Evaluate (?508(b)(7)). Required
training, technical assistance, data collection, and
evaluation activities of programs supported under the
Drug-Free Schools and Communities Act of 1986. ED and HHS
completed a study on the nature and effectiveness of
Federal, State, and local drug use prevention programs.
OSAP also supports technical assistance and training and has
entered into an interagency agreement to transfer $250,000
to ED to support and expand an evaluation study of the use
of State allotments under the Drug-Free Schools and
Communities Act.
o Community-Based Programs (?508(b)(8)). Required development
of model, innovative community-based programs to discourage
alcohol and drug abuse among young people. OSAP has
undertaken a major initiative to identify national
organizations with records of active involvement with and
demonstrated commitment to prevention of alcohol and drug
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use. The organizations receive support as they spearhead
effective, innovative, community-based substance abuse
prevention activities.
o Distribute Media Materials (?508(b)(9)). Required the
preparation for distribution of documentary films and PSAs.
OSAP launched the "Be Smart, Don't Start" campaign. In
cooperation with NIDA, OSAP also sponsors "Cocaine, the Big
Lie." Further, OSAP works closely with private sector
organizations in the development of their media campaigns.
o Information Clearinghouse (?509)). Required a clearinghouse
for alcohol and drug abuse information. On May 1, 1987, the
National Clearinghouse for Alcohol and Drug Information was
launched. This Clearinghouse merged and expanded the
previous clearinghouse activities of NIDA and NIAAA.
o State Programs (.54122). Required ED to administer a formula
grant program which supports States' prevention activities.
Under ED's State and Local Grants Program, funds are
allocated to State educational agencies, local educational
agencies, and governors based on the school-age population.
o Grants to Institutions of Higher Education (?4131). Required
ED to award grants to institutions of higher education to
support substance abuse programs. ED administers two
discretionary grant competitions implementing this section -
one to support training programs or demonstration programs
on substance abuse prevention for use by elementary and
secondary schools, and another to award grants to
institutions of higher education to develop and implement
prevention programs on their campuses. Grants awarded in
FY87 numbered 133.
o Federal Activities (?4132). Authorized the Secretary of
Education to carry out a variety of activities to prevent
alcohol and other drug use among youth. Activities being
conducted to implement this section include: publication
and distribution of over 1.8 million copies of Schools
Without Drugs; The Challenge newsletter; The Challenge
program; Drug-Free Schools Recognition Program; Network of
Drug-Free Colleges; Evaluation of Substance Abuse Curricula;
and New Research Perspectives on Student Drug Abuse. ED has
also funded the Federal Activities Grants Program, which
provides grants to support exemplary drug use prevention
programs, and evaluated applications for grants for the
development and distribution of audiovisual materials for
drug use prevention for elementary and secondary schools.6/
6/ This audiovisual program, authorized under ?4132, was
mandated by language in the conference report.
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o Federal Activities (?4132(c)). Required ED to provide
funding for OSAP's National Clearinghouse for Alcohol and
Drug Information. ED transferred $500,000 to HHS for the
Clearinghouse in FY87.
o Programs for Indian Youth (?4133). Reserved one percent of
the amount appropriated under the Drug-Free Schools and
Communities Act for programs serving Indian children on
reservations attending elementary and secondary schools
operated by BIA. To provide this support, ?4133 calls for
BIA and ED to enter into a Memorandum of Understanding
(MOU). This section also provides for the training of
counselors at BIA-funded schools and requires that those
schools include within their curricula a program of
instruction on alcohol and substance abuse prevention and
treatment. In FY87, BIA and ED entered into an MOU which
calls for providing financial assistance to schools serving
Indian children. Training of counselors and the development
and implementation of curricula are also underway.
o Programs for Hawaiian Natives (?4134). Mandated that the
Secretary of Education provide funding for drug use
prevention programs to organizations primarily serving and
representing Hawaiian natives. ED completed negotiations
for a three-year grant to the Kamehameha school district,
designated by the Governor of Hawaii.
o Regional Centers Program (?4135). Required ED to support
five regional centers. ED completed negotiations for five
three-year cooperative agreements for these centers to: (1)
train school teams to assess and combat substance abuse
problems; (2) assist State educational agencies in
coordinating and strengthening prevention programs; (3)
assist local educational agencies and institutions of higher
education in developing training programs for education
personnel; and (4) evaluate and disseminate information on
effective substance abuse prevention programs and
strategies.
o Inter-Departmental Memorandum of Agreement (?4205). Provided
for the coordination of resources for the prevention of
alcohol and other drug use among Indian people through an
MOA between the Departments of Interior and HHS.
Accordingly, these agencies entered into an MOA which
outlines each agency's responsibilities for implementing
relevant provisions of the Anti-Drug Abuse Act of 1986.
o Newsletter (?4210). Directed the Secretary of the Interior
to publish a newsletter on alcohol and substance abuse in
cooperation with the Secretary of Health and Human Services
and the Secretary of Education. The newsletter would include
reviews of exemplary prevention programs and be circulated
to those providing alcohol and substance abuse services or
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resources to Indian people. BIA has distributed over 24,000
copies of its prevention newsletter to date.
o Indian Education Programs (?4212). Authorized the use of
Federal financial assistance for the support of programs of
instruction on alcohol and substance abuse prevention and
treatment in schools enrolling Indian children. BIA-funded
schools have received financial assistance for the
development and implementation of alcohol and substance
abuse curricula. These schools have also received funds for
the training of counselors and other staff.
o ACTION Grants (?4301). Authorized the Director of ACTION to
conduct a variety of activities to mobilize the private
sector to address the problem of drug abuse. ACTION has
implemented this mandate by carrying out the following
activities: developing, printing, and distributing
publications and posters; developing and distributing videos
and PSAs; planning and conducting training and conferences;
establishing a speakers bureau; and funding community-based
demonstration projects.
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DRAFT
CHAPTER IX: HIGH RISK YOUTH
INTRODUCTION
The Federal High Risk Youth strategy focuses on children and
teenagers under the age of 18 who, because of certain
characteristics or conditions, are especially likely to use
illegal drugs and/or alcohol.1 High risk youth include those who
are: economically disadvantaged; children of substance abusers;
school dropouts; pregnant; victims of physical, sexual, or
psychological abuse; runaway or homeless; and youth who have
committed a violent or delinquent act. High risk youth are
different from other at risk youth because they have multiple
problems that are complex and interrelated.
The High Risk Youth Committee of the National Drug Policy
Board (NDPB) is chaired by the Office of Justice Programs' Office
of Juvenile Justice and Delinquency Prevention (0JJDP) of the
Department of Justice.2/ Based on the Committee's inventory of
programs and its assessments of issues and needs, members
formulated a national strategy that builds on developments to
date and specifies ways to strengthen the overall effort to help
high risk youth lead drug-free lives. Two guiding principles or
policies serve as the foundation for this action plan: (1) zero
tolerance for illegal drug use by high risk youth; and (2)
accountability on the part of individuals, fami4es, and
communities for preventing and controlling illegal drug use among
high risk youth.
The goal of the national strategy is to empower this and
future generations of high risk youth to achieve drug-free and
productive lives. Four strategies provide the means to achieve
this goal:
1/ The Office of Substance Abuse Prevention's focus is on young
persons under age 21.
2/ Other members of the High Risk Youth Committee include
representatives of ACTION/Drug Alliance Program and the
Departments of Health and Human Services (Administration for
Children, Youth, and Families; Family Support Administration;
Indian Health Service; National Institute on Drug Abuse; National
Institute on Alcohol Abuse and Alcoholism; National Institute on
Mental Health; and the Office for Substance Abuse Prevention),
Education, Housing and Urban Development, Interior (Bureau of
Indian Affairs), Justice (Bureau of Justice Assistance; DEA; and
the National Institute of Justice), Labor, and Transportation
(National Highway Traffic Safety Administration).
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o Promote a strong message that high risk youth who use
illegal drugs are accountable for their behavior;
o Strengthen high risk families and promote their
responsibility for preventing and intervening in illegal
drug use by their children;
o Encourage communities to implement comprehensive responses
to eliminate illegal drug use among high risk youth; and
o Enhance the national leadership role of the Federal
government by working as a catalyst to encourage further
development of comprehensive State and local responses to
illegal drug use among high risk youth.
Because the problems of high risk youth are very
complicated, implementing demand reduction efforts for them is
more difficult than for other populations. This challenge is not
insurmountable, however. Much was done in FY87 to prevent,
intervene in, and treat illegal drug and alcohol use among high
risk youth.
PROGRESS IN 1987
An important accomplishment of the High Risk Youth Committee
during FY87 was the coordination of Federal efforts on behalf of
this population. The Committee's emphasis on information- and
resource-sharing resulted in complementary and cooperative
Federal initiatives (rather than duplicative or overlapping) and
an action plan that can be implemented successfully without
funding beyond agencies' established budget allocations.
Fifty-nine ongoing or planned Federal drug programs for high
risk youth were identified in FY87 by the Committee, including 24
for juvenile delinquents and/or violent offenders, 18 addressing
multiple risk factors, and ten for economically disadvantaged
youth.3/ In addition, significant efforts at the State and local
3/ Other initiatives target children of substance abusers,
school dropouts, runaway/homeless youth, and those experiencing
mental health problems. Federal projects and programs were
counted if they placed a major focus on drug abuse and addressed
one or more of the high risk factors, including runaway and
homeless youth and those factors contained in the Anti-Drug Abuse
Act of 1986. Many other programs address high risk factors but
do not contain a major drug component (for example, teenage
pregnancy programs). As part of the High Risk Youth Committee's
national action plan, the represented agencies will review other
programs to identify appropriate candidates for inclusion of a
high risk drug component.
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levels and among national professional organizations, grass roots
organizations, and the private sector were identified.
PROMOTE ACCOUNTABILITY AMONG HIGH RISK YOUTH
By demonstrating zero tolerance through predictable
consequences, this strategy builds upon this Administration's
longstanding policy of intolerance of illegal drug use. At its
core are programs to reinforce individual responsibility, model
strategies to coordinate systems' responses, and laws that
mandate clear sanctions. Eleven FY87 Federal initiatives relate
to this first strategy:
o Drug Testing of Juvenile Arrestees (Bureau of Justice
Assistance - BJA and the National Institute of Justice -
NIJ). Examines illegal drug use among arrested juveniles.
Results will enhance monitoring drug use among juvenile
delinquents.
o Urine Testing of Juvenile Offenders (NIJ and OJJDP).
Examines the feasibility and utility of such tests,
including protocol development for use in other
jurisdictions.
o Etiological Research (National Institute on Drug Abuse -
NIDA). Includes projects that address the relationship
between drug abuse and such high risk factors as dropping
out of school, child abuse, running away, and economic
deprivation.
o Drugs and Youth Violence (NIJ and OJJDP). Measures patterns
of drug use related ?to violent delinquency in inner-city
areas, and analyzes classification and treatment methods.
o Understanding and Predicting Antisocial Behavior and
Substance Abuse (National Institute on Mental Health -
NIMH). Researches "multiple gating" in order to allow the
accurate early identification of boys who are at high risk
for serious antisocial behavior and/or substance abuse, and
to identify target variables for preventive interventions.4/
o Demonstration of Post Adjudication and non-Residential
Intensive Supervision Programs (OJJDP). Develops and
disseminates program models for reducing recidivism among
serious juvenile offenders, with particular attention to
preventing involvement in illegal drug use.
4/ "Multiple gating" refers to the various paths youths take
Into drug use and abuse.
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o Youth Drugs and Alcohol Abuse: Introduction of Effective
Strategies Systemwide (OJJDP and the National Highway and
Traffic Safety - NHTSA). Promulgates successful techniques
for each youth service system component to utilize in
addressing illegal drug and alcohol use among youth.
o Arrest Obstacles: Model Programs (NHTSA). Identifies and
replicates programs that identify and address obstacles to
the arrest process.
o Intensive Community-Based Aftercare Programs (OJJDP).
Assesses, develops, tests, and disseminates program models
for serious offenders who initially need residential care.
Overall goal is to reduce the incidence of crime by chronic,
serious juvenile offenders released from confinement.
o Serious Habitual Offender Community Action Program (SHOCAP)
(OJJDP). Disseminates an effective approach for giving
system priority to processing chronic, serious, violent
offenders, with attention to youth involved in illegal drug
use. The SHOCAP case management system is operational in 30
jurisdictions.
o Gateway Projects (Office for Substance Abuse Prevention -
OSAP). Thirty-four projects funded under OSAP's FY87
Demonstration Program focus on early intervention and
prevention of initial involvement in drug use (especially
alcohol), including efforts to preclude progression from
initial involvement to later drug abuse.
States and local communities, recognizing that individual
accountability is a critical element in eliminating the demand
for illegal drugs, responded with a variety of efforts. For
example, all States have passed statutes establishing 21 as the
minimum drinking age and many have passed statutes providing for
suspension (from 20 days to two years) or revocation of drivers'
licenses for first offenders of traffic violations involving
drugs or alcohol.5/
Many local jurisdictions implemented programs in which peer
role models are used to demonstrate the value of drug-free
living. Public Service Announcements (PSAs) and other media
tools were utilized to identify sources of assistance, urge youth
to get help if they have drug or alcohol problems, and
communicate a clear message of individual responsibility for
becoming involved with drugs or alcohol. The National School
Safety Center's award-winning video and PSA, "What's Wrong With
This Picture," exemplify such efforts.
5/ As of February 5, 1988, 23 States and the District of
Columbia had passed suspension/revocation statutes.
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STRENGTHEN HIGH RISK FAMILIES
The second strategy extends the accountability principle to
parents and other family members. Its success depends on
effective parenting programs, parental involvement in their
children's treatment, and prompt referrals for troubled families.
High risk families must be clear in their opposition to illegal
drugs and must take a visible, active part in keeping their
children drug free. Major Federal initiatives targeted in FY87
toward this strategy include:
o Research on Children of Alcoholics (National Institute on
Alcohol Abuse and Alcoholism - NIAAA). Examines alcoholism
among offspring of adult alcoholics and the biological
effects of parental alcoholism on youth's involvement with
drugs and alcohol.
o Intra and Intergenerational ?Aspects of Serious Domestic
Violence and Alcohol/Drugs (NIJ). Researches substance
abuse histories among parolees convicted of violent versus
nonviolent crimes in an examination of the connection
between parental drug abuse and drug problems among
offspring.
o Effective Parenting Strategies for Families of High Risk
Youth (OJJDP). Identifies and promulgates model program
approaches, with emphasis on prevention and intervention
techniques for families with youth involved in illegal drug
use.
o Family Involvement Projects (OSAP). Forty-five projects
funded under OSAP's FY87 Demonstration Grant Program that
place a high or very high emphasis on family involvement in
drug abuse prevention or intervention, including family
strengthening efforts.
o Project Hope (OJJDP). Provides prevention and treatment
programs for Hispanic runaways, abused/neglected and drug
abusing children; includes family strengthening and
involvement of community organizations.
State and local governments were also involved in promoting
family responsibility. States such as Ohio have enacted. and used
legislation that permits juvenile and family court judges to hold
parents responsible for children who become involved with illegal
drugs. High risk families were targeted for special attention
and services in developing drug abuse prevention strategies in
response to recommendations of the National Governors Association
Task Force on Alcohol and Drug Abuse. In addition, parenting
skills training and services for high risk families and their
children were provided through tenant management councils of
public housing projects such as Cochran Gardens in St. Louis,
Missouri.
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ENCOURAGE COMMUNITIES TO IMPLEMENT COMPREHENSIVE RESPONSES
Communities are a key component of the national action plan
because they have the closest ties to high risk youth. Existing
State and local community services must be energized and focused
into comprehensive, coordinated response systems. Volunteers,
religious leaders, and social and civic organizations must also
be mobilized. Team training, agency partnerships, private sector
involvement, multiservice assessment and referral centers, and
dissemination of information about effective strategies are among
the efforts that support this third strategy. Seventeen Federal
programs were identified that support the development of
comprehensive community strategies, including:
o Foster Grandparent Program (ACTION). Uses senior citizens
as volunteers to work with youth involved in illegal drug
use.
o Volunteers in Service to America (ACTION). Uses VISTA
volunteers to work with youth involved in illegal drug use.
o Emergency Medical Assessment (Bureau of Indian Affairs -
BIA). Establishes a procedure for emergency medical
assessment of Indian youth detained for illegal alcohol or
drug use. Efforts are being made to persuade medical
doctors to look beyond immediate determination of alcoholism
for other drug-related problems.
o Law Enforcement and Judicial Personnel Training (BIA).
Provides instruction in the investigation and prosecution of
illegal narcotics offenses and substance abuse intervention
and treatment. Efforts are being made to persuade law
enforcement and judges to make use of alternatives to jail
for drug abusing youths.
o Development of Model Juvenile Code (BIA). Provides
direction to juvenile courts handling delinquent offenders,
including those involved in illegal drug use.
o Youth Shelter/Halfway House and Juvenile Detention Centers
(BIA). Constructs and/or renovates facilities for housing
juveniles, including substance abusers.
o Training for Major City Juvenile and Family Court Judges
(BJA and OJJDP). Trains major city judges in handling
juveniles involved in illegal drug use and serious, violent
crime.
o Demand Reduction and Drug Prevention (BJA, the Federal
Bureau of Investigation - FBI, and the Drug Enforcement
Administration - DEA). Provides training and technical
assistance for FBI and DEA field officers in drug
intervention techniques.
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o Drug-Free Schools and Communities: Governors' Grants for
High Risk Youth (Department of Education - ED). Grants
awarded by the States (from formula grant allocations) for
alcohol and drug abuse education, prevention, and
intervention. About $23.9 million were awarded in FY87 for
high risk youth programs.
o National and Regional Conferences on Drug-Free Public
Housing (Department of Housing and Urban Development - HUD).
Workshops for public housing officials and residents, which
addressed issues such as law enforcement, private sector
support, causes of and alternatives to drug abuse, and the
vital role of residents in both parenting and resolving the
problem. As a result of these conferences, HUD plans to
produce an information resource guidebook in 1988
highlighting successful antidrug strategies that can be
replicated in public housing communities (See Chapter VIII,
Prevention and Education).
o Speakers Bureau (HUD). Provides local and national
informed, articulate persons willing to speak and provide
assistance for conferences and meetings. (See Chapter VIII,
Prevention and Education).
o Arresting the Demand for Drugs (NIJ). A monograph on
police/school partnerships to prevent drug abuse which
outlines model programs (New York's School Program to
Educate and Control Drug Abuse and Los Angeles' Drug Abuse
Resistance Education) and curricula and provides guidelines
for their implementation and evaluation.
o Safe Schools Program (NIJ and ED). A model technical
assistance and training initiative to reduce crime and
disruption in schools, including problems related to drug
abuse (implemented in Rockford, Illinois; Annaheim,
California; and Jacksonville, Florida).
o Boys Clubs in Public Housing (OJJDP and OSAP). Provides
training and technical assistance that includes specialized
drug abuse prevention and intervention techniques for Boys
Clubs personnel working in public housing settings; also
targets outreach efforts to include high risk youth in
programs. A total of 75 Boys Club personnel in ten major
cities have been trained.
o Team Approach to Drug Abuse Prevention (OJJDP and BJA).
Effects and facilitates community involvement with criminal
justice agencies, other service-providing agencies, and
public and private resources to prevent and intervene in
illegal drug use among youth.
o Ohio Systemwide Coordination Program (OJJDP). Develops
and demonstrates a model planning and resource coordination
process that marshals new and existing resources from the
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Federal, State, and local levels to focus on prevention,
intervention, and treatment for youth involved in illegal
drug use. A coordinated network of services is being
created at the State level.
o Comprehensive Projects (OSAP). All 131 projects funded
under OSAP's FY87 Demonstration Grant Program that focus
primarily on provision of comprehensive prevention,
intervention and treatment programs at the community level.
ENHANCE THE NATIONAL LEADERSHIP ROLE
Leadership is the primary Federal function. It involves
developing and testing promising approaches; conducting research
and disseminating results; providing training and technical
assistance; reinforcing the zero tolerance and accountability
concepts; and directing State, local, and private sector
attention to the special needs of high risk youth.
Since its beginning, this Administration has provided strong
national leadership in America's antidrug program and has moved
the Federal government into the forefront of responsive action to
eliminate illegal drugs from our society. Under the "Just Say
No" banner, the President and First Lady have articulated a clear
national policy of accountability and zero tolerance for
involvement with illegal drugs. Under their direction, a shift
in the public's attitude about illegal drugs has occurred.
In addition to the efforts of the First Family, 26 programs
and activities designed to enhance the Federal leadership role
were planned or operating in FY87:
Alcohol Abuse Demonstration Projects (Administration for
Children, Youth, and Families - ACYF). Enables Runaway and
Homeless Youth Centers to better serve youth with especially
difficult problems, including drug and/or alcohol use.
o Runaway and Homeless Youth Center Supplementals (ACYF).
Strenghthens the capacity of Centers to serve
runaways/homeless youth with drug problems.
o Runaway and Homeless Youth Program: Drug Abuse Training and
Replication (ACYF). Disseminates effective approaches for
handling runaway youth involved in illegal drug and alcohol
use.
o Community Education (Indian Health Service - IHS). Trains
Indian Health Service (IHS), BIA, and tribal professionals
in prevention, treatment, and intervention techniques for
dealing with youth involved in illegal alcohol/drug use.
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o Community Rehabilitation (IHS). Provides screening,
referral, and treatment for youth; family therapy for
families of youth in treatment; and aftercare services for
youth.
o Regional Intervention (IHS). Provides technical assistance
to tribal programs in community rehabilitation and liaison
between community programs.
o Regional Treatment Centers (IHS). Provides residential
treatment programs for chemically dependent Indian youth.
o Contract Health Care (IHS). Provides health care for
American Indian/Alaska Native youth in need of residential
treatment for chemical dependency.
o Identification and Promotion of Effective Screening
Instruments (NHTSA and OJJDP). Develops effective screening
instruments or processes for youth involved in illegal drug
and alcohol use.
o Classroom Training in Drug Evaluation and Classification
(NHTSA). Trains drug recognition technicians in assessing
illegal drug/alcohol use.
o Youth Impaired Driving Public Hearings (NHTSA). Supports
the National Commission Against Drunk Driving to conduct
such hearings.
o National Drunk and Drugged Driving Awareness Week (NHTSA).
Observed again in FY87, in cooperation with NIAAA and the
States.
o Alcohol Highway Safety Workshops for Juvenile Judges
(NHTSA). One-day workshops in three States alerted judges
to the serious nature of impaired driving and encouraged
appropriate prevention and deterrence efforts. The first
workshop was held in FY87.
o Directory of DWI Youth Programs (NHTSA). Compiled from a
nationwide search to identify programs and strategies to
help communities combat impaired driving.
o Research on Teenage Drunk Driving (NIAAA). Identifies the
most important factors related to DWI among youth.
o Program Development (NIDA). Includes testing program models
for preventing drug dependence, developing procedures for
employing urine and saliva screening, the National Household
Survey, and production of a monograph, "Youth at High Risk."
o Cities in Schools (OJJDP, ED, and the Department of Labor).
A dropout prevention/reduction program that includes a
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special focus on the prevention and intervention with youth
involved in illegal drug use.
o Promising Approaches to Prevention, Intervention, and
Treatment of Illegal Drug and Alcohol Use (OJJDP).
Develops, tests, and disseminates information to States and
communities regarding model program approaches.
o Law Enforcement Handling of Serious Juvenile Offenders
(OJJDP). Identifies, develops, and tests model strategies
to improve law enforcement handling of juvenile drug
offenders.
o Research on Drug Use Among Juveniles (OJJDP). Develops
information on high risk factors for becoming involved with
of illegal drugs.
o Causes and Correlates of Delinquent Behavior (OJJDP).
Longitudinal prospective studies of risk factors for
involvement in delinquency, including illegal drug use and
factors that prevent involvement or increase resiliency.
o Juvenile Gang Suppression and Intervention Program (OJJDP).
Identifies, develops, and tests strategies holding the most
promise for combating juvenile gangs, especially those
engaged in drug trafficking.
o Research on Juvenile Drug and Alcohol Abuse Among Ethnic and
Minority Populations (OJJDP and NIDA). Identifies cultural
factors and natural community support systems that promote
the use or nonuse of drugs.
o Policy and Safe Policy Curricula (OJJDP). Provides drug
prevention training for multidisciplinary teams, including
judges, school superintendents, prosecutors, police, and
probation officials.
o School Crime and Discipline (OJJDP). Assists school
administrators in developing policies that allow them to
address violence, truancy, and drug abuse in school
settings.
o High Risk Youth Learning Community (OSAP). Provides
knowledge transfer to high risk youth programs through
conferences, workshops, and resource packages.
Local and State governments showed a strong commitment in FY
87 to implementing coordinated programs to eliminate illegal drug
use among high risk youth. The School Program to Educate and
Control Drug Abuse in New York City, for example, is a
partnership between the police and education departments to
create drug-free school zones; and Chemical Abuse Reduced Through
Education in Toledo, Ohio has several committees to coordinate
various community resources in addressing the problems of
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juvenile alcohol and drug abuse. Additionally, more than 200
police departments have been trained to implement the Drug Abuse
Resistance Education curriculum that uses police officers to
teach children how to say "no" to drugs.
Minnesota and Tennessee have enacted legislation mandating
information exchange between schools and law enforcement on
drug-related incidents. Minnesota has also passed legislation to
establish comprehensive assessment centers at the county level to
evaluate "at risk" youth and coordinate appropriate services for
them. Similarly, Pennsylvania has established Student Assistance
Programs that provide complete assessments, evaluations, a
treatment plan, and referrals through local school districts.
Comprehensive strategies were also developed by national,
grass roots, and private sector organizations. The following
descriptions of their initiatives provide a general overview of
the types of programs that were planned or implemented in FY87.
Professional Organizations
o The National Governors Association established three task
forces on high risk youth: School Dropouts, Teen Pregnancy,
and Alcohol and Drug Abuse. Each developed a strategy and
an agenda for State action (published in Making America
Work--Bringing Down the Barriers).
o The National Council of Juvenile and Family Court Judges
conducted a national workshop on drug abusing juveniles to
develop a national agenda for juvenile courts that must
respond to this problem.
o The National Criminal Justice Association joined with the
National Governors Association to conduct a nationwide
analysis of State laws affecting the control of organized
crime and drug trafficking (publication: State Laws and
Procedures Affecting Drug Trafficking and Control: A
National Overview).
o The International Association of Chiefs of Police, in
conjunction with Trailways and Greyhound bus lines,
continued coordinating Operation Home Free through which
runaways are provided a free trip home, thereby helping
remove such juveniles from high risk situations.
o The National Sheriffs Association began a nationwide
information dissemination effort focused on drug prevention
and enforcement, through which useful program information is
shared among Federal and State agencies and sheriff's
departments.
o The U.S. Conference of Mayors sponsored a nationwide Mayors
D-Day that included a focus on juvenile drug abuse and
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published an annotated listing of programs submitted by
cities to the Mayors' Clearinghouse on Drug Control
(publication: City Responses to Drug Abuse).
Grass Roots Organizations
o The Community Families in Action, a San Antonio, Texas
parents organization, estimated that 15,000-17,000 youth
were exposed to overt drug and alcohol use at rock concerts.
The organization was instrumental in developing three
responsive city ordinances: a smoking ordinance for the
city arena; a citywide sound-level ordinance; and a curfew
ordinance.
o The Boys Clubs of America, in response to a challenge by
President Reagan, created a national program, "Drug-Free and
Proud To Be." Local clubs are securing pledges from one
million high risk boys and girls to remain drug-free and are
providing them with alternatives to drugs, using positive
peer pressure and techniques to build self-esteem.
o The Lions Club International (LCI) operates several programs
that target drug abuse among high risk youth. LCI's drug
abuse effort is embodied in its Lions-Quest Skills for
Adolescence program. This educational curriculum helps
provide 10- to 14-year-olds with the skills and attitudes
they need to resist drugs. More than 2,500 schools in 49
States have adopted the curriculum.
Private Sector
o The Southland Corporation joined with local school districts
to sponsor alcohol- and drug-free proms.
o Burger King, Inc. contributed $100,000 to Cities in Schools,
a national dropout prevention program that has a drug abuse
prevention component.
o The Annie Casey Foundation announced plans to allocate $10
million to each of five cities to help high risk youth.
LEGISLATION
LEGISLATIVE AND REGULATORY INITIATIVES
While no specific Federal legislative initiatives were
recommended by the High Risk Youth Committee, the Department of
Education did propose a legislative change in the way in which
its funding for high risk youth substance abuse programs is
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administered. The change would permit a small number of
individuals, who are not at risk as defined in the Anti-Drug
Abuse Act of 1986, to participate in programs funded by ED's high
risk monies, if their participation does not significantly
diminish that amount or quality of services furnished to high
risk youth. This change addresses problems that have arisen in
situations where a large percentage of children in a school or
classroom are deemed to be at risk as defined in the statute,
while a small minority do not fall within the statutory
definition. As the law is presently constituted, this small
minority of students would not be eligible to participate--an
impractical situation if a program is being conducted for an
entire school or class.
ED has also proposed that 2.5 percent of funding provided to
the governors of the 50 states under the Drug-Free Schools and
Communities Act be reserved to pay for administrative costs
incurred in meeting responsibilities under the Act; that States
file an annual report with the Secretary of Education providing
information on the number and characteristics of program
recipients as well as an assessment of whether or not programs
are accomplishing this goal; and that the Secretary of Education
be permitted to conduct evaluations of the programs authorized
under the Drug-Free Schools and Communities Act.
The High Risk Youth Committee strongly encourages States to
pursue the following legislative action:
o Enactment and enforcement of laws in every State that
require recipients of drivers' licenses to be drug free.
o Enactment and enforcement of laws in every State that
provide for suspension or revocation of drivers' licenses
for drug- and alcohol-related traffic violations.
o Enactment and vigorous enforcement of laws that require
families of drug abusing juveniles to be included in
intervention and treatment programs.
IMPLEMENTATION OF LEGISLATION
Anti-Drug Abuse Act of 1986
o Prevention, Treatment, and Rehabilitation Model Projects for
High Risk Youth (?4005/509a). Required the Secretary of
Health and Human Services, acting through the Director of
OSAP, to make grants to public and nonprofit private
entities for projects to demonstrate effective models for
the prevention, treatment, and rehabilitation of drug and
alcohol abuse among high risk youth. In FY87, OSAP awarded
$24 million in 131 grants for the development of model
community-based programs aimed at hard-to-reach, high risk
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youth. The grants were divided proportionately among black,
Hispanic, Native American, Asian, and mixed-ethnic white
youth in cities and rural areas.
o Drug-Free Schools and Communities Act of 1986 (?4122).
Required governors to direct at least 50 percent of the
funds available to them through ED to innovative
community-based programs of coordinated services for high
risk youth. In FY87, ED awarded to governors' offices
approximately $47.7 million, of which a minimum of $23.9
million was targeted to develop programs for high risk
youth. Many States have directed more than 50 percent of
their allocation to high risk youth--for example, New Jersey
and Wisconsin set aside all of their awards for this
purpose.
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youth. The grants were divided proportionately among black,
Hispanic, Native American, Asian, and mixed-ethnic white
youth in cities and rural areas.
o Drug-Free Schools and Communities Act of 1986 (?4122).
Required governors to direct at least 50 percent of the
funds available to them through ED to innovative
community-based programs of coordinated services for high
risk youth. In FY87, ED awarded to governors' offices
approximately $47.7 million, of which a minimum of $23.9
million was targeted to develop programs for high risk
youth. Many States have directed more than 50 percent of
their allocation to high risk youth--for example, New Jersey
and Wisconsin set aside all of their awards for this
purpose.
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CHAPTER X: MAINSTREAM ADULTS
INTRODUCTION
RAFT
The goal of the Mainstream Adults program is to involve the
nearly 180 million adult Americans who--by virtue of family ties,
friendship, or other relationships--can help deter drug use in
the workplace, the home, and communities. The program views the
deterrence of illicit drug use as an effort not solely of the
Federal government, but of all of society--the family, the
school, the work force, government at all levels, business,
industry, sports, entertainment, the media, and service clubs.
Critical to this effort is fostering responsibility to deter
illicit drug use among both users and nonusers.
The Mainstream Adults Committee of the National Drug Policy
Board (NDPB) is charged with developing and implementing the
program. The Committee is chaired by the Public Health Service
(PHS) of the Department of Health and Human Services (HHS).1/ The
Committee has two major goals, each supported by specific
strategies. The first is to promote national awareness and
involvement. Five strategies support this goal:
o Promote individual responsibility and involvement;
o Stimulate involvement of nonusers of illicit drugs in
nonworkplace settings;
o Enlist community leaders as role models;
o Enlist health/social service professionals as role models;
and
o Fund research to involve mainstream adults.
The second goal is to promote a drug-free work force. Three
strategies support this goal:
o Support Employee Assistance Programs (EAP) and treatment;
o Develop and implement work site role models; and
o Enlist workplace support for drug testing.
1/ Other members of the Committee on Mainstream Adults include
representatives of ACTION, the Nuclear Regulatory Commission, the
Office of Management and Budget, the Office of Personnel
Management, and the Departments of Labor, Justice, Housing and
Urban Development, Transportation, Commerce, Defense, Health and
Human Services, and Energy.
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PROGRESS IN 1987
Each strategy is designed to address both public and private
sector work sites. Accomplishments are discussed, by goals,
below.
PROMOTE NATIONAL AWARENESS AND INVOLVEMENT
The first goal is to promote national awareness and
involvement. The success of the Committee on Mainstream Adults
is dependent on tapping the underutilized, but vital resources of
mainstream adults. It is critical to reach those who realize
they have a role in the national battle against illicit drug use.
Five strategies have been developed to promote this goal.
Promote Individual Responsibility and Involvement
The Committee is working to give a clear message to
Americans of all ages, races, and ethnic backgrounds: if you use
drugs, you are responsible for the consequences of your actions.
If you don't use drugs, you are affected by those who do. Users,
as well as nonusers, of illicit drugs suffer in terms of personal
safety and diminished national security. The First Lady has set
the tone for this strategy with her "zero tolerance" philosophy
for the nation--no illicit drug use is acceptable. The major
focus of this Mainstream Adults strategy is to provide
information, generate knowledge and awareness, and stimulate
challenging behavior among users and nonusers. In particular,
the Committee is working to get the message to users through
organized parent groups and programs such as Foster Grandparents
of America.
o Technical Assistance. A majority of the agencies within the
Committee will continue to provide technical assistance and
education to stimulate national activities to deter illicit
drug use. For example, the Office of Personnel Management
(OPM) is mounting a drug awareness campaign to reach those
in the Federal work force. The National Institute on Drug
Abuse (NIDA) has established the Drug-Free Workplace
Helpline.
o White House Conference. All members of the Committee
provided technical assistance to support the White House
Conference for a Drug-Free America, held regionally during
1987 and culminating in Washington, D.C., February 28 -
March 4, 1988.
o "Just Say No" Campaign. HHS developed and supported the
First Lady's national and international activities in the
"Just Say No" campaign. Activities are continuing.
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Stimulate Involvement of Nonusers of Illicit Drugs
in Nonworkplace Settings
Some people in mainstream America have not been asked to
care about illicit drug use; some would like to consider it
distant from their daily existence. Yet, illicit drug use
affects everyone--parents, teachers, homemakers, students, those
in subsidized housing. A focus of the Committee on Mainstream
Adults is to stimulate interest within these otherwise
under-targeted populations, particularly those who perceive
themselves as removed from the abusing community.
o Information Dissemination. The Departments of Labor (DOL),
Housing and Urban Development (HUD), and HHS developed and
distributed materials designed to deter drug use among some
of our target populations. Additional materials will be
developed in FY88-89.
Enlist Community Leaders as Role Models
Community leaders are key links among the Federal, regional,
local, and private sector efforts to achieve a drug-free nation.
The Committee is working to tap community leaders as role models
to achieve a drug-free America.
o In support of this strategy, the Committee recommended to
the NDPB a National Drug-Free America Week. The week,
proposed to be held during October 1988, is intended to
mobilize Americans in the crusade against drugs. At the
White House Conference for a Drug-Free America, parent and
religious groups recommended a national "Sabbath/Sunday" for
focusing on the familial, health, and social hazards
associated with illicit drug use. The recommendation could
be included as part of the proposed week.
o The Committee is also soliciting the support of State and
local officials, religious and higher education leaders, law
enforcers, and the music industry to support a drug-free
America. For example, the PHS has produced over 150 Public
Service Announcements (PSAs) to deter drug use.
o Private sector initiatives are currently underway through
such mechanisms as the White House Conference for a
Drug-Free America. The Committee expects to become involved
in outcome and follow-up activities during FY88-89.
Implementation of some outcome activities may be the
responsibility of the Private Sector Working Group and the
Other Mainstream Components Working Group of the Committee.
Enlist Health/Social Service Professionals as Role Models
Health and social service professionals are an important
resource for deterring illicit drug use in America and represent
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another role model for mainstream adults. The Committee
identified Federal and private sector initiatives to be
implemented in the future:
o Technical Assistance. HHS and other agencies have provided
technical assistance to private and public sector
professionals on recognizing substance abuse symptoms,
encouraging substance abusers to acknowledge a drug problem,
and on developing knowledge on drug treatment.
o Curriculum. NIDA developed a drug abuse eradication
curriculum for employee assistance professionals. Its
purpose is to upgrade EAP staff knowledge and skills in
identifiving, referring, and treating individuals evidencing
problems associated with the use of drugs.
Fund Research to Involve Mainstream Adults
A body of knowledge must be developed on how best to involve
mainstream adults in efficient and effective ways to reduce drug
abuse. HHS, DOL, and other member agencies of the Committee fund
research on the behavioral, psychological, and environmental
factors that encourage the involvement of mainstream adults in
reducing drug abuse. The demonstrations and evaluations
suggested elsewhere in this chapter represent a good first step.
In addition, specific research initiatives are underway.
o Grant Announcement. NIDA issued a grant announcement in
July 1987 to fund research in the following program areas:
prevalence of drug use and its relationship to productivity
in the work/school environment; development of performance
assessment batteries; simulation and field studies;
assessment of employee assistance models; and workplace
policy research.
o Models. DOL is sponsoring several grants to collect
information and conduct research on the incidence of
substance abuse in the workplace and efforts to assist
workers. The grant program is being administered under the
auspices of the Occupational Safety and Health
Administration's "New Directions" program.
o Initiatives. HUD, in conjunction with HHS, the Department
of Justice (DOJ), and other agencies, is developing research
initiatives to focus on factors that contribute to or deter
illicit drug use in Public Housing/Communities.
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PROMOTE A DRUG-FREE WORK FORCE
The second goal of the Committee is to promote a drug-free
workplace. The use of illegal drugs undermines domestic
security, public health, and safety; weakens our ability to
compete against foreign products; facilitates the destruction of
our families; and destroys human lives. To address these and
other problems associated with illicit drug use, the Committee on
Mainstream Adults works to contribute to the concurrent and
coordinated reductions in the supply and demand for illicit
drugs.
One major avenue for achieving a drug-free nation is through
the workplace--where the locus of control is defined and the
rewards of a drug-free workplace are measurable in terms of
improved productivity and worker safety. Employers and employees
need to be convinced that use of illicit drugs affects work site
health and safety and diminishes the quality of work life.
Drug use in the work force is more prevalent than one might
expect. For example, in a 1985 survey of callers to the
800-COCAINE hotline, 75 percent reported cocaine use on the job,
69 percent reported working regularly under the influence of
cocaine, and 25 percent reported daily use of cocaine. Another
survey conducted in 1985 shows that 18 percent of all Americans
employed full-time reported having used an illicit drug within
the last 30 days. Of those aged 18-25 years, 25 percent reported
similar use.2/
Illicit drug use is also more costly than one might expect.
A 1983 study estimated the social and economic costs of drug
abuse at $59 billion. The estimate is currently being adjusted
to the 1988 level. Since illicit drugs distort normal
neurological function, illicit drug use has been associated with
absenteeism, on-the-job accidents, and increased use of medical
services .3/
The Committee's three-pronged approach to a drug-free work
force emphasizes preventive education, employee assistance, and
drug testing of employees under specified conditions. The
Committee views none of these approaches as separable, since none
will be as successful in isolation as when applied together.
Drug testing may foster prevention in the workplace since it can
be effective in deterring the onset of drug use or curtailing
existent drug use. The Department of Defense (DOD) has been drug
2/ 1985 National Household Survey on Drug Abuse,
National Institute on Drug Abuse, 1986.
3/ 1985 National Household Survey on Drug Abuse,
National Institute on Drug Abuse, 1986.
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testing since the 1970's. In 1980, 27 percent of all uniformed
military personnel reported that they had used some illegal drug
in the preceding 30 days. In 1982, the overall reported drug use
dropped to 19 percent. In 1985, it dropped to a little less than
nine percent. For DOD, this is a 67 percent reduction in
reported drug use since 1980.4/
Support Employee Assistance Programs and Treatment
Identifying illicit drug users in the work force represents
only a partial step in assuring a drug-free work force. Drug
testing must be implemented within the context of education and
prevention efforts aimed at employers, employees, and effective
EAPs.
o Effectiveness/Visibility of Employee Assistance Programs.
The Office of Personnel Management (OPM) continues to make
progress on its initiative to enhance the effectiveness and
visibility of Federal EAPs. A 13-point enhancement strategy
approved by the OPM Director in August 1987 is being
monitored to assure adherence to prescribed time frames and
objectives.
o Letters to Heads of Agencies. Letters were sent to(reaffirm
OPM's support of EAPs as a means of helping employees with
substance abuse problems and to inform agencies of OPM's
efforts to enhance EAP operations.
o Evaluation of Employee Assistance Programs. An evaluation
instrument intended to enhance the effectiveness of EAPs was
field-tested in FY87 and a full study will take place in
FY88.
o Guidelines for Employee Assistance Programs. OPM and other
Federal and private sector organizations began working with
NIDA's Office of Workplace Initiatives to develop
comprehensive guidelines for the establishment and
evaluation of a comprehensive Federal EAP, including a
monitoring instrument to assess program elements.
o Training Course for Managers and Supervisors. During FY87,
training was offered for managers and supervisors by OPM
training centers which focused on Federal drug policy and
how to deal with employees with drug problems.
4/ The 1985 Worldwide Survey of Alcohol and Nonmedical Drug Use
Among Military Personnel, Highlights, Figure 6, p. 20, June 1986.
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o Technical Assistance. HHS provided technical assistance for
management training. The aim is to elicit employer support
of nondiscriminatory employee practices that deter work site
illicit drug use (e.g., allowing employees to seek treatment
for drug use during work hours). Technical assistance was
provided in FY87 and will continue.
o Insurance Coverage. OPM worked with major insurance
providers to assure that all carriers in the Federal
Employee's Health Benefit Program provide benefits for
substance abuse treatment. Currently, all Federal insurance
carriers offer substance abuse benefits.
o Resource Manual. DOL's Mine Safety and Health
Administration (MSHA), in conjunction with the Mining
Industry Committee on Substance Abuse (MICSA), developed a
resource manual on alcohol and drug abuse in the mining
industry and distributed over 800 copies.
o Videotape. MSHA produced a videotape, "Substance Abuse: Is
It Our Problem?" and distributed over 350 copies to the
mining community.
o Regional Conferences. MSHA, in conjunction with MICSA, held
two regional conferences to explore the problem of substance
abuse in the mining industry. Plans were also initiated
with PHS and DOL for a series of FY88-89 joint regional
conferences to explore the problem of drug abuse in the
workplace and efforts to assist workers.
o Nationwide Survey. DOL initiated plans to conduct a
nationwide survey of 7,500 work sites to collect information
on the incidence of drug abuse and drug abuse prevention
programs in the workplace. The American Productivity Center
was asked to study the impact of substance abuse on
workplace productivity and quality.
Develop and Implement Work Site Role Models
Group norms are contingent on shared beliefs. For this
reason, the Committee on Mainstream Adults is working to capture
the interest and commitment of employers and employees in support
of a drug-free work site. Role models are being used to
demonstrate support of drug abuse prevention and education.
By being aware of the negative effects of illicit drug use
on workplace productivity and safety, and by giving the message
that using drugs is wrong, illegal, and unacceptable to fellow
workers, work force colleagues and managers can take a strong,
affirmative stand that emphasizes leadership, employee health,
safety, job protection, and self-respect.
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o Technical Assistance. A majority of the agencies on the
Committee will continue to provide technical assistance to
work force managers on effective, nonpunitive approaches for
recognizing substance abuse, dealing with drug using
employees and peers, and treatment options.
o Local Programs. In March 1987, the Department of
Transportation (DOT) sent letters to State Departments of
Transportation encouraging the development of local drug and
alcohol abuse programs.
o Drug-Free Transportation Conference. In July 1987, DOT
sponsored a conference on drug-free transportation at
Northwestern University to discuss substance abuse
prevention and to highlight successful private industry
efforts.
Enlist Workplace Support for Drug Testing
The Committee seeks to reach all managers and convince them
of the benefits to be achieved by drug testing under specified
conditions. A critical first step, already underway, is the
implementation of the Federal drug testing program. President
Reagan signed Executive Order 12564 on September 15, 1986
establishing the goal of a drug-free Federal workplace. This
order requires each Federal agency to implement a program to test
for use of illegal drugs by employees in sensitive positions.
The order requires each agency to: (1) increase awareness and
prevention of drug abuse; (2) identify and rehabilitate illegal
drug users; and (3) improve the quality and accessibility of
treatment services for employees.
o Guidance. OPM issued nonbinding guidance on interpreting
Executive Order 12564.5/
o Guidelines. Drug testing guidelines were drafted in FY87.
On April 11, 1988, HHS published the final Mandatory
Guidelines for Federal Workplace Drug Testing Programs in
the Federal Register as required under the Supplemental
Appropriations Act (P.L. 100-71). Tier I Agency Drug-Free
Federal Workplace Plans, including the drug testing
component, were certified to the Congress on May 3, 1988;
the required cost estimates, prepared by the Office of
Management and Budget (OMB), were included. Testing of
Federal employees in Tier I agencies for illegal drug use
could begin as soon as 60 days after certification,
5/ In November 1986 and March 1987 OPM issued government-wide,
nonbinding guidance in the form of FPM letters 792-16 and 792-17
to assist agencies in interpreting Executive Order 12564.
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depending
issued .6/
o Standards.
that the
employee
published
National
initiated.
available
on the date which employee notifications are
HHS developed laboratory standards to ensure
highest standards are met in handling Federal
urine specimens. The final standards were
in the Federal Register in April 1988 and the
Laboratory Certification Program will now be
The list of certified laboratories will be
by the end of FY88.
o Model Plan. The Interagency Coordinating Group (ICG)
developed a model plan for Federal agency drug testing
plans.7/ The Model Plan incorporates all of the
requirements of the Executive Order and the Public Law and
serves as the basis for ensuring overall uniformity of
Drug-Free Workplace Programs across the Federal government,
while allowing for individual variations necessitated by
unique agency missions.
Technical Assistance. All member agencies will continue to
provide management training on implementation of Executive
Order 12564.
o Legal Cases. DOJ defended a number of cases contesting the
constitutionality of drug testing Federal employees, some of
which are still pending in appellate courts.
o Rulemaking. DOT has rulemaking in place or underway to
require those industries under their purview to promote a
drug-free workplace by instituting mandatory drug testing
programs. Proposed rulemaking would include testing of
sensitive safety and security-related employees in aviation,
6/ Tier I consists of the Executive Departments and eight named
agencies. These agencies cannot implement their programs until
all of their individual agency plans are certified by HHS to
Congress as conforming to Executive Order 12546. Tier II
consists of agencies that had programs in place before the
issuance of Executive Order 12564, the Department of
Transportation, and certain positions in the Department of
Energy. These agencies are exempt from the requirements of P.L.
100-71 for six months from the effective date of the law. Tier
III consists of the remaining 100 or so smaller agencies whose
plans must be certified by HHS, but may move to implement drug
testing any time after Tier I is certified.
7/ The ICG includes representatives from the Office of
-Personnel Management and the Departments of Health and Human
Services and Justice.
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water, rail, motor carrier, pipeline, hazardous materials,
and bus and urban rail transportation. The objective of
DOT's proposed rules is to reduce and ultimately eradicate
the incidence of illegal drug use within the transportation
industries.
o Education Materials. Agencies are providing employers and
employees education about the health, economic, and social
effects of illicit drug use including reduced productivity,
increased work load for nonusing employees, compromised work
site safety, and national security.
o Employee Assistance Programs and Drug Testing. DOT
implemented a comprehensive program for employees which
includes drug awareness campaigns, drug testing, and
provisions for counseling and assistance. In addition to
random testing of civilian employees in sensitive safety and
security-related positions, the program includes
pre-employment, pre-appointment, periodic, reasonable
suspicion, follow-up, post-accident, and voluntary testing.
o Federal Drug Contractor Testing. The NDPB urged that
Federal contractors voluntarily provide assurance of their
drug-free workplace. The Board also supported agencies
adding as a term or condition of new contracts and
solicitations for work of a sensitive nature, a requirement
that the contractor meet the goals of Executive Order 12564.
LEGISLATION
LEGISLATIVE AND REGULATORY INITIATIVES
The Committee recommends no specific regulatory
changes--rather the promulgation of standards and regulations to
detect and eliminate illegal drug use by workers in hazardous or
public health/safety occupations. Proposed rulemaking by DOT is
outlined above. The Federal Railroad Administration already has
a rule in effect that requires postaccident and preemployment
toxicological testing for certain safety-related crew positions
and testing for reasonable cause.
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IMPLEMENTATION OF LEGISLATION
Anti-Drug Abuse Act of 1986
The Anti-Drug Abuse Act of 1986 (?4303) mandated that the
Secretary of Labor collect information on the incidence of drug
abuse in the workplace and efforts to assist workers, including
counseling, rehabilitation, and EAPs. DOL has or plans to
undertake the following initiatives (the date at the end of each
paragraph is the expected completion date):
o The Bureau of Labor Statistics (BLS) will survey employers
in 7,500 establishments to determine incidence and practices
related to drug abuse. The survey will be designed to
publish estimates by three size classes (1-99, 100-499,
500+), by the four Census geographic regions, and by ten
major industry divisions. (January 1989).
o The Association of Labor Management Advisors and Consultants
on Alcoholism will compile research on successful EAPs to
provide reliable, practical information for unions and
employers on what is working in the workplace to address the
problem of illegal drug use. The primary content is
descriptions of existing model employee assistance programs
in the private sector. (September 1988).
o Twelve grants have been approved by DOL to gather
information on drugs in the workplace and successful methods
and strategies to deal with education, awareness, employee
counseling, rehabilitation, and other facets of assistance
programs. (July 1989).
o MSHA will conduct a comprehensive research project to
determine the nature and scope of existing mining company
and union substance abuse programs, assess the impact and
effectiveness of those programs, and identify key or
critical program elements that have been most successful in
addressing and reducing substance abuse in the mining
industry. (March 1989).
o DOL and PHS regional officials will plan and implement
activities and initiatives for their respective regions to
collect information about drug abuse in the workplace. The
activities are designed to foster public/private and
labor/management collaborative efforts. (FY88).
o The American Productivity Center is conducting a project to
develop, analyze, and publicize a total cost model of the
productivity and quality impacts of substance abuse in the
workplace. The project will help organizations more
accurately determine the total cost associated with
substance abuse in the workplace, help correct public and
private sector misconceptions, and provide objective data
and specific steps companies can take. (March 1989).
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o Research will be undertaken to gather information on the
actual and potential role of the nonuser in current efforts
to address drug abuse in the workplace. The findings of
this research will be documented in a pamphlet to suggest
strategies for the nonuser to promote a drug-free workplace.
(September 1988).
o A study will be conducted addressing the use of chemicals of
abuse and exposure to regulated chemicals which will form
the foundation for special emphasis training and awareness
programs for workers. (August 1988).
Other Legislation
o Supplemental Appropriations Act of 1987, P.L. 100-71 (?503).
Congress established three requirements before agencies
without prior testing programs could begin testing: (1) HHS
must publish mandatory scientific and technical guidelines;
(2) HHS must review and certify each agency plan and submit
them to the Congress; and (3) OMB must submit to
Congressional Appropriations Committees a detailed,
agency-by-agency analysis of anticipated annual costs
associated with drug testing. These conditions were met on
April 29, 1988.
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DRAY
CHAPTER XI: TREATMENT AND REHABILITATION
INTRODUCTION
The goal of the Federal Treatment effort is to use the
nation's treatment and rehabilitation network to reduce the
demand for drugs, slow the spread of AIDS, reduce the need for
imprisonment, and decrease crime and the loss of productivity
associated with drug abuse. The Department of Health and Human
Services (HHS) is the lead Federal agency for developing,
coordinating, and implementing Federal activities for treatment,
rehabilitation, and research relating to drug users. The
Director of the National Institute on Drug Abuse (NIDA) chairs
the National Drug Policy Board's (NDPB) Committee on Treatment
and Rehabilitation.1/
While community sanctions, information, and education
efforts help to prevent the initiation of new users, there is a
large number of individuals who, having disregarded society's
admonitions, have made drugs the central focus of their lives.
These 6.5 million individuals are often unable to function in
legitimate social roles and are likely to engage in criminal
behavior as a result of their drug-using lifestyle. They are
the large, entrenched population of chronic abusers that form the
foundation of the illicit drug abuse market.
Treatment is the most potent means of reaching the drug
abusers who have not been successfully dealt with by our
prevention programs. Evidence exists that drug abuse treatment
is effective in reducing the demand for illicit drugs and for
stemming the current AIDS epidemic among intraveneous (IV) drug
1/ Other members of the Committee on Treatment and
Rehabilitation include representatives of the Alcohol, Drug Abuse
and Mental Health Administration (National Institute on Drug
Abuse; National Institute of Mental Health; and the National
Institute on Alcohol Abuse and Alcoholism), the Veterans
Administration, Health Resources Services Administration (Bureau
of Health Care Delivery and Assistance and Bureau of Maternal and
Child Health and Resources Development), Social Security
Administration, Indian Health Service, and the Departments of
Defense, Justice (Bureau of Prisons), Labor, Housing and Urban
Development, and Education. Additionally, the committee includes
three liaison members of State and private sector treatment
organizations (Alcohol and Drug and Problems Association;
National Association of State Alcohol and Drug Abuse Directors;
and Therapeutic Communities of America).
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abusers.2/ Treatment of drug abusers results in reduced criminal
activity, return to steady employment, establishment of family
relationships, and reduction of the possibility of transmitting
the AIDS human immunodeficiency virus (HIV) infection.
PROGRESS IN 1987
Federal progress in the treatment arena focused on four
areas in FY87: control of AIDS among IV drug users; facilitation
of entry into treatment; research to improve the quality of
treatment; and user responsibility.
CONTROLLING AIDS AMONG INTRAVENOUS DRUG ABUSERS
Community Outreach
Until there is a cure for AIDS, the only hope in combatting
the disease is to prevent its spread. The best way to prevent
the spread of AIDS among IV drug addicts, their sexual partners,
and their children is to get the IV drug abuser into effective
drug abuse treatment programs.
2/ Ball, J.C., Corty, E., Myers, C.P., Bond, H.m Tommasello,
T., Golden, J., and Baker, T. (1987). Patient characteristics,
services provided and treatment outcome in methadone maintenance
programs in three cities, 1985 and 1986 (Report of Methadone
Research Projects). Baltimore, MD: University of Maryland
School of Medicine.
Cooper, J.R.,Altman, F., Brown, B.S., and Czechowicz, D. (1983).
Research on the treatment of narcotic addiction: State of the
art (DHHS Publication No. ADM 83-1281). Rockville, MD: National
Institute on Drug Abuse.
De Leon, G. (1984). The therapeutic community: Study of
effectiveness (DHHS Publication No. ADM 85-1286. Rockville, MD:
National Institute on Drug Abuse.
Simpson, D.D. (1981). Treatment for drug abuse: Follow-up
outcomes and length of time spent. Archives of General
Psychiatry, 38, 875-880.
Tims, F.M. and Ludford, J.P. (1984). Drug abuse treatment
evaluation: Strategies, progress and prospects (DHHS Publication
No. ADM 84-1329). Rockville, MD: National Institute on Drug
Abuse.
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In FY87, NIDA implemented community-based AIDS Outreach
Projects targeted to inner-city IV drug abusers (especially those
not in treatment), their sexual partners, and drug-using
prostitutes. Through these projects, thousands of individuals
are educated about the risks associated with AIDS and shown how
to reduce their risk of contracting and transmitting the HIV
virus that causes AIDS. These projects include both specialized
and comprehensive programs, central data coordination, and
involvement of all levels of government.
Comprehensive outreach programs have been established in New
York City, Philadelphia, Miami, Chicago, Houston, and San
Francisco. Specialized outreach programs have been initiated in
many other cities.3/ The comprehensive programs include:
extensive community based resource networks; outreach methods and
approaches tailored to the needs of the targeted individuals;
AIDS counseling; and systems for referring high risk drug
abusers into treatment.
Through these programs, community outreach workers from
targeted areas are trained and deployed. Nurses make contacts
with addicts and drug using prostitutes in hospital emergency
rooms and detoxification units. Teams have been trained to reach
sexual partners in homes, stores, churches, clinics, and social
service agencies. Contacts are made with criminal justice
agencies and probation and parole workers. Outreach services
have also been established in community-based drug treatment
programs so that they are more capable of attracting and
maintaining IV drug abusers in treatment. In smaller cities,
more specialized outreach programs are being tested.
Confidential, voluntary HIV testing and counseling are available
to those involved in these programs.
One of the unique features of NIDA's AIDS Outreach Project
is that it focuses not only on drug addicts, but also on their
sexual partners who are at risk of infection with the AIDS virus
and on their children. The Centers for Disease Control (CDC) are
reporting increasing numbers of AIDS cases among sexual partners
and children.4/ These "hidden" populations are very difficult to
reach and counsel, so multifaceted methods are employed.
Personal and intensive communication will be maintained to bring
about and sustain behavior change. High risk women are advised
to be tested for AIDS prior to pregnancy, and to avoid pregnancy
3/ Boston, Providence, Baltimore, Newark, Jersey City, San Juan
(Puerto Rico), Detroit, Belle Glade (Florida), Washington, D.C.,
Denver, El Paso, Los Angeles, Nassau County, and in several other
sections of New York City.
4/ AIDS Weekly Surveillance Report, Atlanta, Georgia, Center
for Infectious Diseases, Centers for Disease Control.
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if they test positive. Ongoing supportive counseling is
provided.
NIDA's AIDS outreach efforts are coordinated at the national
level. Information from participating cities is fed into a
central data system permitting NIDA and others to assess and
compare the effectiveness of different outreach approaches.
Collaboration among programs allows researchers to communicate
with each other and continuously improve their efforts. In
addition, seroprevalence rates are being obtained in each city in
order to determine where and how the disease is spreading.5/
The CDCs played an active role in collaboration efforts, and
State and local health departments are part of the resource
networks and are used as local HIV testing sites. NIDA has also
linked with State drug abuse authorities and is providing
technical assistance and consultation on policy and programmatic
issues and initiatives relating to AIDS.
Training
Given the scope of the AIDS epidemic and the severe
morbidity rates associated with it, it is clear that the medical
community must become skillful at handling a variety of
sensitive situations. In 1987, NIDA developed, tested, and
delivered a comprehensive AIDS training program targeted at drug
abuse treatment personnel, "AIDS and the IV Drug Abuser." The
program includes basic medical and scientific information on AIDS
and antibody testing; modules on risk reduction/health promotion
counseling; treatment planning for infected clients; and special
topics such as prevention, education, support groups, and women
and IV drug use. As of November 1987, approximately 2,600
persons from 26 States received the basic AIDS training course.
NIDA also recognizes it cannot assume full responsibility
for the training of drug treatment personnel nationally.
Therefore, one of the primary goals of the project is to develop
a core group of trainers at the State level who will continue
training drug abuse counselors at the local level. In support of
this goal, a separate "Training of Trainers" course was developed
and delivered to 125 personnel from 16 States between January and
November 1987. NIDA intends that each State develop and
implement its own AIDS training program for treatment counselors.
Additionally, four AIDS Education and Training Centers were
funded in September 1987 to link providers, as appropriate, to
available substance abuse programs in their local areas for the
purpose of patient referral.
5/ Seroprevalence: the rate at which positive HIV test results
occur in a given group or population.
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AIDS Service Demonstration Program
The Health Resources and Services Administration's (HRSA)
Bureau of Maternal and Child Health and Resources Development
serves as the agency focal point for issues in the delivery of
health services to persons with HIV infections and AIDS. The
Bureau directs and supports projects that demonstrate
comprehensive, cost-effective, and community based service
delivery to AIDS patients; supports efforts to improve the
education and training of health professionals to deal with AIDS
and related conditions; and plans and administers a program that
provides funds to States to reimburse low income AIDS patients
for the cost of life prolonging drugs.
The Bureau has established an AIDS Service Demonstration
Program to support and facilitate the organization of HIV-related
patient care systems. Since the IV addict is the major vector
for HIV transmission to the general population, particular
emphasis is given to providing outreach, education, and
prevention services aimed at high risk IV drug users. In 1987,
13 Service Demonstration Projects were funded in metropolitan
areas with the highest prevalence of AIDS. These projects
coordinate community resources in all aspects of AIDS patient
care, including drug abuse treatment, rehabilitation, education,
and professional training. These projects are coordinated with
six comprehensive community demonstration projects funded by
NIDA. Innovative programs have been initiated in several of the
projects in major cities, including New York, Newark, and San
Francisco.
Prison HIV Testing Program
To protect communities from released inmates of Federal
prisons who are infected with HIV, the Bureau of Prisons tests
newly sentenced inmates, those scheduled to complete their
sentences within 60 days, and any inmate voluntarily requesting
the antibody test. Inmates who test positive for the HIV
antibody are counseled about their potential risks for infecting
others. Inmates with serious symptoms of AIDS are transferred to
prison medical centers. Probation officers are notified of any
released inmate who has tested positive for the HIV antibody.
An HIV-Positive Mental Health Workgroup has been formed to
develop a training program for Bureau of Prisons mental health
professionals and to develop treatment protocols to change the
behavior of HIV-positive inmates to help prevent contagion of
others.
Criminal Justice Reference Service AIDS Clearinghouse
At the Attorney General's request, the Office of Justice
Programs' National Institute of Justice created the AIDS
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Clearinghouse within the National Criminal Justice Reference
Service. The Clearinghouse, which is designed to be a source of
current medical information and policy guidance on AIDS for
criminal justice professionals, is accessible via telephone at
[phone] or 1-800-851-3420. Special AIDS reports and
bulletins are published and available through the Clearinghouse
covering a range of issues including: basic medical facts about
the disease; case studies on law enforcement and corrections
responses to specific situations; and recommended procedures for
handling arrestees, offenders, and inmates who may be infected
with the virus.
AVAILABILITY OF TREATMENT
Alcohol, Drug Abuse, and Mental Health Administration
Since 1982, block grants have been the major source of
Federal support for drug abuse treatment. Prior to 1982, Federal
funds were administered by NIDA and distributed directly to
treatment programs through categorical grants and to States
through formula grants. In 1982, the Alcohol, Drug Abuse, and
Mental Health Services Block Grant (ADMS) program was established
under the Alcohol, Drug Abuse, and Mental Health Administration
(ADAMHA).
o In 1987, $39.9 million was added to the existing $468.9
million ADMS block grant. Under the Anti-Drug Abuse Act of
1986 (P.L. 99-570), ADAMHA received an additional $162.9
million for FY87 to expand substance abuse treatment through
a new Alcohol and Drug Treatment Block Grant.
o Funds ($32.2 million) for a block grant program aimed at the
homeless were appropriated in 1987, up to one-third of which
($10.7 million) will probably find its way into drug
treatment. A research demonstration program ($19.2 million)
also directed at the homeless was established in 1987. This
program, administered by the National Institute on Alcohol
Abuse and Alcoholism (NIAAA) in collaboration with NIDA,
should further expand the Federal resources available for
drug abuse treatment.
Bureau of Justice Assistance
The Office of Justice Programs' Bureau of Justice Assistance
(BJA) is authorized to make block grants to States for programs
that identify and meet the needs of drug-dependent offenders,
including treatment. Such programs can be used to provide jails
and State prisons with support for prerelease treatment and
aftercare. BJA's FY87 Formula Grant Program for treatment was
$17.2 million.
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Veterans Administration
The Veterans Administration (VA) operates 51 drug dependence
treatment programs. These specialized programs provide for the
care and treatment of eligible drug-dependent veterans with
special emphasis on veterans dependent on drugs.6/ The VA
establishes contracts with non-VA community programs for
treatment and rehabilitation services for veterans with alcohol
or drug dependence and/or abuse disabilities.
o New funding was received in 1987 for treatment of
chronically mentally-ill patients, many of whom are
substance abusers. Forty-three hospitals are participating
in these new programs.
o VA drug dependence treatment programs have long-term goals
beyond elimination of nonprescription drug use. These
include development of work skills, cessation of antisocial
(criminal) activity, improvement of family and community
relationships, and establishment of posttreatment community
contacts to assist participants in remaining drug free.
o The VA also operates 189 community-based "Vet Centers" which
provide counseling and referral services to Vietnam-era
veterans with a wide range of readjustment problems,
including drug abuse.
The growing population of homeless includes veterans, many
of whom are chronic drug abusers. The VA recently initiated a
program to assist these homeless veterans--the Domiciliary Care
Program. The $15 million program converts existing
under-utilized VA facilities for homeless veterans in need of
care.
Indian Health Service
Alcohol and substance abuse is the most severe health
problem facing Indian people and is the leading generic risk
factor among Indian youth. The Indian Health Service (IHS)
oversees 250 alcohol/substance abuse programs conducted by local
tribal and Indian organizations for American Indians and Alaska
natives. The substance abuse component to these programs was
added only in 1985 and includes prevention, education, outpatient
and inpatient services, drop-in centers, outreach programs, and
halfway houses. There are 47 residential treatment centers, some
6/ Major treatment components include methadone detoxification,
methadone maintenance, naltrexone maintenance, and therapeuric
communities. The average length of inpatient stay is 23 days;
outpatient/ambulatory treatment is longer.
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of which are located on reservations. Funding for the programs
is obtained by grants/contracts to individual tribes. FY87
accomplishments include:
o A Secretary's Initiative resulted in a major program effort
of $5.4 million to coordinate and focus on alcoholism and
drug abuse among American Indians and Alaska Natives by five
major HHS agencies.
o A Memorandum of Agreement with the Department of Interior
initiated the first cooperative effort addressing alcohol
and substance abuse in Indian communities.
o The IHS School and Community-Based Alcoholism and Substance
Abuse Prevention Survey was published. Results indicate
that 85 percent of American Indian and Alaska Native
communities are providing positive prevention services.
o Eighty-five percent of the 300 Federally recognized tribes
authorized formulation of tribal coordinating committees to
address alcoholism and drug abuse problems in their
communities.
o 172 IHS primary care providers were trained to provide
medical services specific to alcoholism and drug abuse.
o Community rehabilitation and aftercare services for
adolescents were established in every IHS service unit.
o 5,000 physicians, nurses, alcoholism program workers, health
educators, social workers, tribal educators, and law
enforcement officers were trained through community
education and training programs established in every IHS
service unit.
o Regional intervention teams were established in 12 IHS areas
to provide technical assistance to Indian communities.
o 284 comprehensive alcohol/substance abuse programs were
conducted by local tribal and Indian organizations.
Bureau of Health Care Delivery and Assistance
o HRSA's Bureau of Health Care Delivery and Assistance (BHCDA)
reprogrammed $2 million of community health center monies to
establish linkages between substance abuse and primary care
activities. Forty-three projects were funded to integrate
substance abuse prevention/education, diagnosis, treatment,
referral, and follow-up services. Information from these
programs is provided on a quarterly basis. From these
projects, models will be identified for primary health care
and substance abuse providers.
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o Formal agreements and Memoranda of Understanding have been
completed between BHCDA and other Federal and non-Federal
agencies identifying areas for increased cooperation.
Agencies include ADAMHA (Office for Substance Abuse
Prevention - OSAP), BJA, and the Department of Education
(ED).
o In February 1987, an agreement was signed by BHCDA and OSAP
to collaborate in the development of a curriculum related to
early diagnosis, detection, and referral skills for health
care providers, substance abuse counselors, and educators.
Department of Defense
Illicit drug use emerged as a significant problem in the
military services with returning personnel from Vietnam. A 1980
survey found that 36 percent of military personnel had used one
or more illicit drugs in the past year.7/ Subsequently a
"Crusade on Drugs" was initiated and treatment programs,
primarily for lower ranking enlisted personnel, were provided.
o DOD has "zero tolerance" for illegal drug use in the
military services and provides treatment only for those
individuals evaluated as having potential for future
service. FY87 programs included nonresidential and
residential treatment, education to increase awareness,
random testing, training of personnel with leadership and
drug abuse program responsibilities, and evaluation projects
that ascertain relevance and effectiveness of these
programs.
o The policy of DOD to discharge drug abusers results in
significant numbers of individuals being released to
communities where treatment of their addiction becomes the
responsibility of the VA or local facilities. In FY85, more
than 16,000 administrative separations from the military for
drug abuse were reported. DOD, with its preinduction and
military personnel drug abuse screening program, has the
potential to become a fertile referral source for treatment
programs.
Bureau of Prisons
Approximately 40 percent of new inmate commitments to
Federal prisons have been identified as having moderate to severe
7/ Worldwide Survey of Nonmedical Drug Use and Alcohol Use
Among Military Personnel. Washington, D.C. (NTIS No. ADA
093880).
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chemical abuse problems. Since 1986, the Federal Bureau of
Prisons has offered inmates the opportunity to participate in
substance abuse treatment programs known as Chemical Abuse
Programs .8/
o In 1987, 3,000 inmates were participating voluntarily in
treatment for moderate and serious drug abuse problems.
o While participation in the Chemical Abuse Programs is
voluntary, a contract is developed with each inmate
participant that clearly specifies the responsibilities of
the participant for successful completion of each program
component. Careful documentation of each inmate's progress
is maintained.
Social Security Administration
The Social Security Administration is responsible for
administering the Social Security Disability Insurance Program
(Title II) and the Supplemental Security Income (SSI) Program
(Title XVI). Title II of the Social Security Act covers insured
workers and their dependents and provides benefits to such
individuals found disabled due to alcoholism or drug addiction.
Title XVI of the Act also compensates disabled drug addicts or
alcoholics who also meet certain income and resource
requirements. However, in order to receive disability benefits
under both Title II and Title XVI, individuals who have been
found disabled must follow treatment prescribed by their
physician or other treating source if the treatment can restore
the individuals' ability to work. If individuals do not follow
the prescribed treatment without a good reason, they will be
found not disabled, or if they are already receiving disability
benefits, payments will be terminated.
Under Title XVI, the law imposes additional special
treatment requirements on SSI recipients who are medically
determined to be drug addicts or alcoholics (DA/A). In these
cases, in order to receive benefits, the law requires that the
Title XVI claimant undergo treatment for alcoholism or drug
addiction if the treatment is appropriate and available at an
approved institution or facility and the claimant must
demonstrate that he or she is complying with the treatment terms
and requirements. In addition, the claimant's disability
8/ The Chemical Abuse Programs are managed by clinical
psychologists qualified in substance abuse therapies. Programs
are structured to include a mandatory standardized component that
is educational, followed by individualized treatment programs
based on the type of drugs abused and the severity of the
dependency.
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payments must be made through a third party, i.e., a
representative payee. Failure to comply with these provisions
will result in nonpayment of benefits for any month in which
noncompliance occurs.
o The number of Title XVI DA/A persons on the SSI rolls who
were eligible for disability benefits increased from 7,957
in 1986, to 12,027 in 1987.9/
o The remaining Title XVI DA/A who were eligible for benefits
but were not in pay status were in "suspense" for various
reasons (e.g., their whereabouts were unknown; they were
under investigation for noncompliance with the Title XVI
DA/A postadjudicative treatment provisions; they were
convicted and incarcerated for a felony, etc.).
The National Institute on Drug Abuse
NIDA has operated the toll-free Drug Abuse Information and
Referral Line, 1-800-662-HELP, since mid-April 1986. This line
provides callers with treatment referrals to State and local
programs as well as general drug abuse information. The line was
initially advertised through public service announcements for
NIDA's cocaine campaign, "The Big Lie." In addition, the 800-line
has received much media attention which has promoted increased
public awareness of the telephone number. During FY87, the hot
line answered nearly 75,000 calls.10/
Department of Labor
The Employment and Training Administration has established a
substance abuse program in all Job Corps Centers. Although
substance abuse education and prevention are the primary goals,
9/ This increase is attributable to changes in coding
procedures, increases in the number of referral and monitoring
agencies which monitor the SSI recipient's compliance with the
Title XVI DA/A treatment provisions, and an increase in the
number of individuals found to be eligible for SSI disability
benefits.
10/ The hot line, staffed between 9 a.m. to 3 a.m. weekdays and
noon to 3 a.m. on weekends, has received calls from all 50
States. From a sampling of the calls, NIDA found that: a
disproportionate number have come from New York, California, and
Florida (this may reflect both the extent of cocaine use in these
States and their broadcasters' willingness to air the cocaine
campaign materials); about half were calling for themselves and
the rest were calling about the drug use of their relatives and
friends; and most are over 18 years old.
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counseling and referrals to detoxification services are provided
and members of Alcoholics Anonymous Chapters visit the Centers.
Offenders, including drug offenders, are eligible to participate
in training programs funded under the Job Training Partnership
Act. 11/
Private Sector
Interest in expanding drug dependency treatment benefit
coverage through health insurance has increased over the past 15
years. This development parallels the expansion of alcoholism
and drug abuse treatment programs throughout the nation. Since
1971, when the first law mandating coverage for alcoholism
treatment services was enacted in Wisconsin, there has been a
steady growth in the number of States that have passed laws
related to health insurance coverage for alcohol and drug
dependency. Twenty States either mandated the inclusion of drug
abuse treatment benefits in all health policies or require that
insurance providers at least offer drug abuse benefits for
purchase.
RESEARCH TO IMPROVE THE QUALITY OF TREATMENT
National Institute on Drug Abuse
Rather than being a temporary condition that will respond to
a single episode of treatment, drug abuse is more correctly
viewed as a chronic disorder that requires prolonged management
and may require multiple treatment attempts. Thus, it is more
similar to chronic medical disorders such as hypertension,
emphysema, and diabetes than to acute disorders such as
appendicitis. At NIDA,. improving the quality of drug abuse
treatment has high priority. This includes developing newer,
more effective treatment strategies as well as improving the
effectiveness of existing treatment strategies. It also includes
recruiting more drug abusers into treatment, improving treatment
retention rates, and decreasing relapse following treatment. In
1987, approximately 100 research projects were funded that had a
direct bearing on a wide range of treatment issues.12/
11/ Job Training Partnership Act, P.L. 97-300, Title 4, as
amended by P.L. 99-570.
12/ Some NIDA research grants dealing with this topic are:
Rounsaville, Bruce. Psychiatric disorders in cocaine abusers
(No. 4029). Yale University. New Haven, CT.
(Footnote Continued)
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o A substantial number of projects were designed to improve
diagnosis and treatment of adolescent drug abusers. Several
studies attempted to identify outreach strategies that
facilitate the high risk family's entry into and retention
in treatment and assess the effectiveness of such
treatments.
o A priority was given to improving the availability,
accessibility, and appropriateness of treatment for
difficult-to-reach adolescents such as school dropouts,
runaways, juvenile prostitutes, and teenage unwed mothers.
o IV drug abuse, especially heroin abuse, has traditionally
been a matter of high priority. The emergence of the AIDS
epidemic necessitated a renewed emphasis in this area of
drug abuse, and in particular the need to increase the
number of addicts recruited to treatment, the retention rate
of treatment programs, and the effectiveness of treatment
for the opiate addict population.
o Drug abusers are a heterogenous population, with concurrent
psychopathology prevalent among the great majority of them.
Depression, anxiety, and alcoholism are common codiagnoses
with drug dependence. Several studies examined these
disorders in drug abuse patients with the expectation that
treatment of psychiatric disorders will improve treatment
outcome.
o A number of research projects concentrated on the use of
pharmacologic agents in the treatment of chemically
dependent adults. For example, several studies are designed
to determine the efficacy of tricyclic antidepressants to
block cocaine-induced euphoria and/or to diminish the strong
craving that usually develops after discontinuation of
cocaine.
o Most relapse to illicit drugs takes place within the first
90 days after leaving treatment. NIDA supported the
development of aftercare strategies to reduce the liklihood
of drug relapse after the client leaves treatment.
Prominent among the strategies is the use of self-help
groups in which addicts act as resources to one another to
(Footnote Continued)
Siris, Samuel. Antidepressants for drug abusing dysphoric
schizophrencis (No. 5039). Mount Sinai School School of
Medicine. New York, NY.
Lehman, Anthony. Implications of substance abuse in psychiatric
patients (No. 5114). University of Maryland Medical Center.
Baltimore, MD.
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maintain their resolve to remain drug abstinent through
continuing contact and regular meetings.13/
National Institute of Mental Health
Thirteen States received 3-year awards to administer
demonstration grants for dually diagnosed (drug abuse and mental
illness) young adults.14/ Several of the programs stress the
importance of having case management, vocational rehabilitation,
housing, and support groups for these clients. Some of the
programs focus on minorities located in public housing
developments and suburban and rural areas. Evaluation
assessments are being performed on each of the grants to
determine its relative strengths and value for replication.
USER RESPONSIBILITY--A TREATMENT PERSPECTIVE
As noted in Chapter I, a goal of the Administration is to
bring to the forefront of public discussion the concept that drug
users are responsible for and will be held accountable for their
behavior. In 1987, Treatment Committee participants began to look
at how treatment can contribute to the concept of user
responsibility.
Sanctions have found their place in treatment because
compulsion is significant as a motivator to enter treatment.
Based on a 1985 NIDA survey of admissions to treatment programs,
NIDA estimates that about 27 percent of those seeking help in
publically supported treatment programs do so under some form of
legal pressure.15/ As the AIDS epidemic worsens, there is a
growing interest in compelling IV drug abusers to seek treatment
for their drug problems.
13/ Individual grantees and some of NIDA's clinical research
centers also examined the potential of naltrexone as a treatment
modality for abstinent opioid addicts including parolees and
probationers. Also, buprenorphine, a mixed opiate
agonist/antagonist preparation, was investigated in several
programs as an alternative to methadone and naltrexone.
14/ These States are: California, Indiana, Louisiana, Maryland,
Michigan, New Jersey, New Mexico, Ohio, Oregon, South Carolina,
Tennessee, Utah, and Washington.
15/ Demographic characteristics and patterns of drug use of
clients admitted to drug abuse treatment programs in selected
states: Annual data 1985. (1987). Rockville, MD. National
Institute on Drug Abuse.
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The concept of legally-mandated treatment is not new. Judges
regularly order drug abusers convicted of criminal offenses to
enter treatment. Although mandating treatment is common practice
when drug abusers have committed a crime, legally forcing them
into treatment on the presumption that they are a danger to
themselves or to society (i.e., civil commitment) is not widely
practiced. However, 29 States have laws that provide for
involuntary institutionalization of drug addicts for reasons
other than the commission of a criminal offense.
Traditionally, drug abuse treatment was designed to force
clients to take a realistic view of how they got where they were
and to tear down excuses for their destructive behavior. Early
drug abuse treatment was highly confrontational. While still
widely used, confrontational approaches are being supplemented
with additional techniques that are compatible with the
philosophy of user responsibility. One such technique is
"contingency contracting," which was originally developed in the
field of mental health. Contingency contracting involves a
formal agreement between a therapist (called a "contingency
manager") and client, in which behavioral expectations for the
client are specified together with a range of consequences for
given behaviors .16/
LEGISLATION
LEGISLATIVE AND REGULATORY INITIATIVES
Methadone Regulatory Activities. During 1987, the four-year
process to revise the methadone regulation (21 CFR Part 291)
reached a milestone with the publication of the proposed revision
in the Federal Register, October 2, 1987. The major change
contained in the proposal was the revision in the definition of
detoxification treatment from 21 days to up to 180 days. There
were other proposed changes that would permit flexibility in the
operation of methadone treatment programs. These proposed
changes included deletion of the annual report and adverse
reaction reporting requirements, elimination of the specific
counselor/patient ratio and the maximum number of patients per
treatment unit requirements, and deletion of several other
documentation rules. The proposals were the result of a combined
effort by NIDA, the Drug Enforcement Administration (DEA), and
the Food and Drug Administration.
16/ While this procedure has not been fully assessed, it is now
being applied to the field of drug abuse and appears effective
with certain kinds of clients.
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IMPLEMENTATION OF LEGISLATION
Anti-Drug Abuse Act of 1986
o White House Conference (51931). Required the Secretary of
HHS to participate in the White House Conference for a Drug-
Free America, and all Federal departments, agencies, and
instrumentalities to provide support and assistance to the
Conference as necessary. NIDA's Deputy Director served as
Moderator of the Treatment Committee for the White House
Conference.
o Research Funds (554009 - 4010). Authorized $129 million in
research funds for FY87. Two new research priorities were
established: effective methods of drug abuse prevention,
treatment, and rehabilitation, particularly methods of
intervention to treat abuse of specific drugs; and the
development of chemical antidotes and narcotic antagonists
for use in the treatment of cocaine and heroin addiction.
In response to NIDA's announcements requesting proposals for
research, the scientific community involved with biomedical,
treatment, and prevention research submitted an
unprecedented number of research proposals. In the FY87
grant cycle, NIDA received 877 research grant proposals, or
about five-fold more than the Institute has ever received
for a single grant cycle.17/ NIDA supported 538 research
projects in FY87.
o Indians and Alaska Natives (54227). Addressed the needs of
Indian populations for developing and implementing
coordinated programs for prevention and treatment of
alcohol and substance abuse. Alcohol and substance abuse is
the most severe health problem confronting Indian people and
is the leading generic risk factor among Indian youth. IHS
has established emergency medical assessment and treatment
programs at the local level for Indian youth detained for
offenses related to alcohol and drug abuse. These programs
at regional centers include acute detoxification, treatment,
and rehabilitation.
o Substance Abuse Coverage Study (56005). Required a
Substance Abuse Coverage Study be undertaken by ADAMHA under
contract with the Institute of Medicine (IOM) of the
National Academy of Sciences. A $750,000 contract was let
with IOM in December 1987 to assess: (1) the extent to
which the cost of drug abuse treatment is covered by private
17/ Of these proposals, over 80 percent were from investigators
who had never had a NIDA grant; over 30 percent had never before
applied for an HHS grant.
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insurance, public programs, and other sources; and (2) the
adequacy of such coverage for the rehabilitation of drug
abusers. NIDA's Office of Financing and Coverage Policy is
managing the 18-month study.
o Drug-Free Workplace (?7361). Requires the Secretary of HHS,
acting through NIDA, to work with the Office of Personnel
Management to develop drug abuse prevention, treatment, and
rehabilitation programs for employees and, to the extent
feasible, their families. To meet this goal, NIDA created
an Office of Workplace Initiatives which is responsible for
stimulating the development of EAPs and helping to review
Federal agency drug testing plans, as required under ?503,
P.L. 100-71.
Other Legislation
o Health Care Quality Improvement Act (Title IV, P.L. 99-660).
Required development of a data bank on health care
providers. HRSA's Bureau of Health Professions (BHPr) is
exploring opportunities for capturing data on substance
abuse to determine the prevalence and impact of such
problems on the performance of physicians, dentists, and
other providers. BHPr is working with DEA to include in the
data bank information on providers whose registration to
dispense controlled substance has been suspended or revoked.
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GLOSSARY
CANNABIS: Latin name for plant genus that produces the
psychoactive drug found in marijuana and hashish.
CONTROLLED SUBSTANCES ACT (CSA): Common name for the
Comprehensive Drug Abuse Prevention and Control Act of 1970,
which provides the authority for controlled substance regulation
and law enforcement.
CONTROLLED SUBSTANCE ANALOGUE: Synthetic drug that is a chemical
variant of a controlled substance, typically very potent and with
a high abuse potential.
DANGEROUS DRUGS: Category of substances, both licit and illicit,
that includes the following: stimulants other than cocaine;
narcotics other than heroin and opium; hallucinogens other than
cannabis; and all depressants.
DEPRESSANT: Drug that depresses the Central Nervous System
resulting in sedation and decreased bodily activity. In
excessive doses can cause shallow respiration, weak pulse, coma,
or death. Examples: barbiturates, benzodiazepines,
methaqualone.
DESIGNER DRUG: Controlled substance analogue.
DRUG ABUSE: Any use of an illicit drug or any abuse of a licit
drug.
DRUG ABUSE WARNING NETWORK (DAWN): National network of hospital
emergency rooms and medical examiners in selected cities that
report medical emergencies and deaths in which drug abuse was a
factor. Each episode (overdose, suicide attempt, car accident,
etc.) is recorded as one or more "mentions," depending on the
number of drugs involved. The system includes self reporting by
the patient and reporting by health authorities at emergency
rooms and medical examiners' offices.
ESSENTIAL CHEMICAL: Chemical required in the drug manufacturing
process as a solvent, reagent, or catalyst. Examples: ethyl
ether, used to process cocaine; acetic anhydride, used to process
heroin.
FORFEITURES: Assets surrendered to the government because it has
been proven that they were derived from or used in illegal
activities. Assets are forfeited by administrative or judicial
proceedings.
HALLUCINOGEN: Drug that induces hallucinations that distort the
perception of objective reality. In large doses can cause
psychosis or death. Examples: LSD, Mescaline, Phencyclidine
(PCP).
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ILLICIT DRUG: a controlled drug that has no legally sanctioned
therapeutic use (e.g., heroin).
INTELLIGENCE COMMUNITY: The Intelligence Community includes the
Central Intelligence Agency, the Defense Intelligence Agency, the
National Security Agency, Department of Defense intelligence
components, Department intelligence elements (other than DOD),
and independent agencies, including the FBI. These elements are
part of the National Foreign Intelligence Program.
LICIT DRUG: Drug that has at least one legal therapeutic use.
NARCOTIC: A drug composed of opium, opium derivatives or
synthetic substitutes that in moderate doses dulls the senses,
relieves pain, and induces profound sleep, but in excessive doses
can cause stupor, coma, convulsions, or death. Examples: opium,
morphine, codeine, methadone, fentanyl. Commonly, but
inaccurately, used as a synonym for "drugs."
OPERATIONAL INTELLIGENCE: A term used in drug investigative
agencies providing analytical support to the investigation and
prosecution process.
PRECURSOR CHEMICAL: Chemical required for the production of a
drug that becomes part of the final product. Examples:
piperidine, used in the synthesis of PCP; anthranilic acid, used
in the synthesis of methaqualone; phenylacetic acid, used in the
manufacture of methamphetamine.
PSYCHOACTIVE DRUG: Drug that affects the Central Nervous System
and alters mood perception or consciousness. (Similar in
definition to, and often used interchangeably with,
"psychotropic" drug).
PSYCHOTROPIC DRUG: Similar to psychoactive drug.
SEIZURES: Include (a) drugs and conveyances seized by law
enforcement authorities and (b) drug-related assets (monetary
instruments, etc.) confiscated by law enforcement authorities
based on evidence that they have been derived from or used in
illegal narcotics activities.
SERO PREVALENCE: The rate at which positive HIV test results
occur in a given group or population.
STIMULANT: Drug that stimulates the Central Nervous System and
excites functional activity in the body. In excessive doses can
cause agitation, hallucinations, convulsions, or death.
Examples: cocaine, caffeine, nicotine, amphetamines,
phenmetrazine.
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STRATEGIC INTELLIGENCE: Evaluated information concerning drug
production, trafficking, abuse trends, and similar data. Used in
policy development and management decision-making; provides the
framework for strategy Idevelopment and resource allocation to
support operational planning.
SYNTHETIC DRUG: Drug that has been synthesized in a laboratory
using solely inorganic chemical compounds.
TACTICAL INTELLIGENCE:, Actionable, real-time information
regarding particular smuggling targets or other illicit
activities.
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ROUTING SLIP
TO:
'
ACTION
INFO
DATE
INITIAL
1
DCI
2
DDCI
3
EXDIR
4
D/ICS
5
DDI
X
6
DDA
7
DDO
8
DDS&T
9
Chm/NIC
10
GC
11
IG
12
Compt
13
D/OCA
14
D/PAO
15
D/PERS
16
D/Ex Staff
17
NIO/CN
X
18
19
20
,
21
22
SUSPENSE
Date
Remarks
STAT
ExecuRve Secretary
21 Jun 88
Date
3637 (10-81)
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LIMITED OFFICIAL USE Executive Re gist
I
NATIONAL DRUG POLICY BOARD 88-2459X
Washington, D.C. 20530
JUN 13 1988
Mr. David Pickens
Executive Director
National Drug Policy Board
9th & Pennsylvania Ave., N.W.
Washington, D.C. 20530
Dear Mr. Pickens:
The National Drug Intelligence Committee members have
reviewed "Chapter VII: Drug Intelligence" of the NDPB's
FY-87 Progress Report. The committee concurs except for
minor corrections noted on the enclosure.
Please contact Mr. Thomas Byrne or Mr. Patrick Tarr
(633-1071) if you need clarification or explanation of any
of the changes.
Sincerely,
Q.
C. Lawn
,,Ch man, National Drug
Intelligence Committee
Enclosure
cc:
NDIC Members
Mr. Frank Keating
Mr. Craig Coy
LIMITED OFFICIAL USE
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Honorable Carol T. Crawford
Program Associate Director
for Economics in Government
Office of Management and Budget
Mr. Gerald Hilsher
Deputy Assistant Secretary (Enforcement)
Department of the Treasury
Lt. General William E. Odom
Director
National Security Agency
Lt. General Stephen G. Olmstead
Deputy Assistant Secretary
Drug Policy and Enforcement
Lt. General Leonard H. Perroots, USAF
Director
Defense Intelligence Agency
Honorable William von Raab
Commissioner
United States Customs Service
Honorable Ann B. Wrobleski
Assistant Secretary
Bureau of International Narcotics
Matters
Department of State
Admiral Paul A. Yost, Jr.
Commandant
United States Coast Guard
Honorable William S. Sessions
Director
Federal Bureau of Investigation
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Captain Howard B. Gehring
Director, NNBIS
Mr. David Pickens
Executive Director
National Drug Policy Board
Ms. Mary Lawton
Counsel for Intelligence Policy
Office of Intelligence Policy
and Review
Department of Justice
Honorable Alan C. Nelson
Commissioner
Immigration and Naturalization Service
Director Charles R. Schuster
National Institute on Drug Abuse
"Honorable William H. Webster
Director
Central Intelligence Agency
Lt. General Edward J. Heinz
Director of Intelligence
Community Staff
Central Intelligence Agency
Washington, D.C. 20505
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STAT
? ?
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__ ?
ROUTING SLIP
TO:
'
ACTION
INFO
DATE
INITIAL
1
DCI
2
DDCI
3
EXDIR
4
D/ICS
5
DDI
X
6
DDA
7
DDO
8
DDS&T
9
Chm/NIC
X
10
GC
11
IG
12
Compt
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D/OCA
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D/PAO
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D/PERS
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D/Ex Staff
17
NTO/NARC
X
19
4041.
2#
21
22
SUSPENSE
Date
Remarks
STAT
Execotive Secretary
11 May '88
Date
3637 (10-81)
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VI"
STAT
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becutiOnity
NATIONAL DRUG POLICY BOARD
Washington, D.C. 20530
APR 2 8 1988
Mr. David Pickens
Executive Director
National Drug Policy Board
9th & Pennsylvania Ave., N.W.
Washington, D.C. 20530
Dear Mr. Pickens:
88-1836x
As requested in your April 4 memorandum, enclosed are
comments on the first draft of the 1987 Progress Report.
/Annotations have been made directly on Chapters IT and VII
of ?the :draft report. Additional material has been received
.from INTERPOL for Chapter VII. In addition, I strongly
recommend that Chapter I be discarded in favor of either an
executive summary or a lead.-in with Chapter II.
Should you have any questions regarding the report, please
contact Mr. Thomas Byrne, NDIC Working Group Chairman, on
633-1071, for further information.
. Sincerely,
hn C. Lawn, Chairman
National Drug Intelligence
Committee
Enclosure
cc: NDIC Members
Tom Byrne/OI
73-f
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NATIONAL DRUG POLICY BOARD
Washington, D.C. 20530
MAY 4 1988
Honorable Francis A. Keating II
Assistant Secretary .(Enforcement)
Department of the Treasury
15th & Pennsylvania Avenue, N.W.
Washington, D.C. 20220
Dear Mr. Keating:
Executive Registy_
88-1836x/1
I have received your April 5 request to review the Omnibus
Anti-Drug Abuse Act of 1988 to determine if its provisions
would significantly affect the National Drug Intelligence
Strategy and Implementation Plan. From an analysis of
S 2205 it would appear that nothing in the proposed bill
would contravene our drug intelligence strategy. Neverthe-
less, the bill is not adequate to our national drug
intelligence needs and could affect the strategy in several
ways.
If the bill is passed and fully funded there will be
additional resources for EPIC ($)4 million). In addition,
agencies receiving additional positions may allocate some of
them to their intelligence programs. But, the omnibus bill
fails to authorize directly additional resources for drug
intelligence programs.
Other provisions of the bill, such as the Latin American
Anti-Drug Strike Force and the Southwest Border Task Force
would create a greater demand for drug intelligence
information and services. Neither the law enforcement
agencies nor the Intelligence Community have been authorized
intelligence resources to address these new programs.
Although not bearing on the strategy directly, certain
provisions of the bill would realign strategic intelligence
responsibilities among the drug control agencies. Thus,
transferring from the Department of State to DEA the
responsibilities to determine illicit drug crop acreages
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2
under cultivation and to assess the effectiveness of
eradication programs would result in a disruption that may
not be justifiable. It should also be noted that the
increased pressure put on the validity of our strategic
assessments will require greatly improved data collection
and analysis. Here we depend a great deal on the
Intelligence Community, and they have not been earmarked
additional resources in this bill.
Because of the failure of the bill to provide additional
resources for drug intelligence programs, the bill generally
will strain our ability to implement the National Drug
Intelligence Strategy. At this time, the National Drug
Intelligence Committee has no legislative proposals for
inclusion in an omnibus bill.
If I can be of any further assistance,.please let me know.
Sincerely,
411?
ChAC. Lawn
rman, National Drug
Intelligence Committee
cc: NDIC Members
Mr. David Pickens
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ACTION
INFO
DATE
INITIAL
DCI
2
DDCI
3
EXDIR
4
D/ICS
5
DDI
X (w/o
att)
6
DDA
7
DDO
8
DDS&T
9A?Chm/NIC
X? (w/
o att)
10
GC
11
IG
12
Compt
13
D/OCA
14
D/PAO
15
D/PERS
16
D/Ex Staff
17
NIO/NARC
x Cw/
att)
18
19
20
21
ER
SUSPENSE
Date
Remarks To 17: Pis provide comments directly,
as appropriate, to tasking noted in Items 2 and 4
in transmittal memo.
-STAT
Execbtive Secretary
17 Mar '88
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FROM:
NATIONAL DRUG POLICY BOARD
Washington, D.C. 20530
MAR 1 6 1988
,/
/ ; ('
/John C. LaWn, Chairman
'Intelligence Committee of the
v National Drug Policy Board
SUBJECT: Summary of NDIC Meeting on 3/4/88
TO: National Drug Intelligence Committee
(See Distribution)
On Friday, March 4, 1988, the National Drug Intelligence
Committee received status reports from the Leal Issues
Working Group and the NDIC Working Group. The following due
dates and actions are noted for the committee.
(1) The classified report by the 'Legal Issues Working Group
was distributed. Please provide written comments to me by
April 11, 1988. After review of these formal comments, we
will refer the report on to the PolicyBoard.- If any agency
needs a copy of the draft report, please contact Deborah
Meyers on 633-1141.
(2) The first step in the NDIC's intelligence strategy is
to identify our collective drug intelligence needs. The
draft paper entitled "Drug Intelligence Needs" was
distributed. Comments are due in writing or by phone to
Patrick Tarr (633-1071) on March 21, 1988.
(3) The NDIC intelligence strategy, which we approved last
November, has been revisedin accordance with Policy Board
Staff instructions. .Agencies were to notify Patrick Tarr by
March 7, 1988, if the unclassified strategy was not
acceptable. The revised strategy (enclosed) has been
submitted to the Policy Board Staff for further distribution
to the Congress.
(4) A draft of the intelligence chapter for the
National Drug Policy Board's FY 1987 Progress Report is
enclosed. Please provide your comments- on this chapter to
Patrick Tarr by March 18, 1988.
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- 2 -
(5) On March 28, 1988, Mr. Thomas Byrne will hold an NDIC
.Working Group meeting. He will notify the working group of
the time and the agenda.
Mr. Howard Gehring, Director. of NNBIS, distributed a study
on the NNBIS intelligence function. The study was prepared
by the Intelligence Community Staff at the request of NNBIS.
The NDIC agreed to refer this report both to the NDIC/WG for
discussion at the March 28 meeting and to EPIC management
and the EPIC Advisory Board.
Finally, the Legal Issues Working Group proposed that the
Committee adopt general language on the protection of
intelligence sources and methods. The committee agreed that
all Policy Board committees and agencies should adopt the
following language where appropriate: "Ensure that
procedures and techniques are, adopted by the law enforcement
agencies to protect intelligence sources and methods."
Enclosures:
"Drug Intelligence Needs" (Draft)
"Drug Intelligence Strategy and Implementation Plan" (Final)
"Drug Intelligence" Chapter of FY '37 Progress Report'
(Draft)
cc: Mr. Keating, Acting-Chairman-
NDPB Enforcement Coordinating Group
Mr. Pickens, Exec. Director, NDPB
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NATIONAL DRUG INTELLIGENCE COMMITTEE (NDIC)
Administrator, Drug Enforcement Administration -- Chairman
Director, Central Intelligence Agency
Commissioner, United States Customs Service
Commandant, United States Coast Guard
Deputy Assistant Secretary of Defense for Drug
Policy and Enforcement, Department of Defense
Director, Federal Bureau of Investigation
Assistant Secretary of State, Bureau of
International Narcotics Matters
Commissioner, Immigration and Naturalization
Service
Director, National Institute on Drug Abuse
Assistant Secretary (Enforcement), Department
of the Treasury
Program Associate Director for Economics and
Government, Office of Management and Budget
Director, Defense Intelligence Agency
Director, National Security Agency
Director, National Narcotics Border
Interdiction System
Counsel for Intelligence Policy, Office of
Intelligence Policy & Review, DOJ
Director of Intelligence Community Staff
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