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### Viewing cable 09HELSINKI429, FINLAND: 2009-2010 INTERNATIONAL NARCOTICS

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
09HELSINKI429 | 2009-11-16 14:46 | 2011-04-24 00:00 | UNCLASSIFIED | Embassy Helsinki

`

    VZCZCXRO9242
    RR RUEHIK
    DE RUEHHE #0429/01 3201446
    ZNR UUUUU ZZH
    R 161446Z NOV 09
    FM AMEMBASSY HELSINKI
    TO RUEHC/SECSTATE WASHDC 5276
    INFO RUEHZL/EUROPEAN POLITICAL COLLECTIVE

` `

    UNCLAS SECTION 01 OF 06 HELSINKI 000429

    SIPDIS
    DEPT FOR INL/JLYLE

    E.O. 12958: N/A
    TAGS: SNAR PREL PGOV KCRM FI
    SUBJECT: FINLAND: 2009-2010 INTERNATIONAL NARCOTICS
    CONTROL STATEGY REPORT - PART I

    REF: STATE 97228

    HELSINKI 00000429  001.2 OF 006

    ¶I. Summary

    Finland is not a significant narcotics-producing or
    trafficking country.  Drug use and drug-related crime
    rates have been mixed over the past four years,
    although there was significant increase in only one of
    the classes of narcotics seized in 2008 -
    pharmaceutical preparations classified as narcotics.
    Finnish officials describe the situation as generally
    stable.  Finland's constitution places a strong
    emphasis on the protection of civil liberties and this
    sometimes adversely impacts law enforcement's ability
    to investigate and prosecute drug-related crime.  The
    use of electronic surveillance under the Finnish
    Coercive Measures Act, such as wiretapping, is
    generally permitted in serious narcotics
    investigations.  The police may carry out a simplified
    pre-trial investigation in cases where the statutory
    punishment for the offence/s is restricted to a fine or
    maximum of six months imprisonment (e.g. unlawful use
    of narcotics).  In a simplified pre-trial investigation
    the questioning and other aspects of the investigation
    can often be performed at the place that the offence
    was committed in order to target investigation
    resources towards more serious offences.  Finnish
    political culture tends to favor the allocation of
    resources to demand reduction and rehabilitation
    efforts over strategies aimed at reducing supply.
    Finnish law enforcement believes that increased drug
    use in Finland may be attributable to the wider
    availability of narcotics within the European Union,
    increased experimentation by Finnish youth and cultural
    de-stigmatization of narcotics use.

    While there is some overland narcotics trafficking
    across the Russian border, Finnish law enforcement
    believes that existing border controls are largely
    effective in preventing this route from becoming a
    major trafficking conduit into Finland.  Estonian and
    Russian organized crime syndicates, and to a lesser
    degree, syndicates from other Baltic countries, are
    believed responsible for most narcotics trafficking
    into Finland.  Estonia's accession to the Schengen
    Treaty has complicated law enforcement efforts to
    combat narcotics trafficking through the reduction in
    border checks of the nearly 5.8 million annual
    travelers and 900,000 cars, which transit between
    Helsinki and Tallinn.  Early indications that increased
    numbers of direct flights to Asia would result in Asian
    criminal syndicates becoming more involved with the
    Finnish drug trade have not played out.

    Finland is a major donor to the UNDCP and is active in
    counternarcotics efforts within the EU.  It is a party
    to the 1988 UN Drug Convention.  Finland maintains
    strong law enforcement and customs relationships with
    its Baltic neighbors, the European Union and Russia -
    these close ties have been very helpful in combating
    the production and trafficking of narcotics in the
    region.

    II. Status of Country

    Narcotics production, cultivation, and the production
    of precursor chemicals in Finland are very modest in
    scope. Most drugs that are consumed in Finland are
    produced elsewhere, and Finland is not a source country
    for the export of narcotics.  Estonia, Russia and Spain
    are Finland's principal sources for illicit drugs, with
    Spain representing the origin point within the EU for
    most cocaine entering Finland.  Finnish law
    criminalizes the distribution, sale and transport of
    narcotics; the Government of Finland cooperates with
    other countries and international law enforcement
    organizations regarding extradition and precursor
    chemical control.

    The overall incidence of drug use in Finland remains
    low (relative to many other western countries);
    however, drug use has increased over the past decade.
    The number of different persons suspected of narcotics
    offenses in 2008 was 4,543, which represented 8.6
    percent of the 5.2 million person population.  Cocaine
    is rare, but marijuana, khat, amphetamines,
    methamphetamine, synthetic club drugs, Ecstasy, LSD,
    and heroin and heroin-substitutes can be found.
    Finland has historically had one of Europe's lowest
    cannabis-use rates.  Cannabis seizures have been mixed
    since 2003, with total numbers of seizures in several

    HELSINKI 00000429  002.2 OF 006

    areas increasing, yet with total quantities of cannabis
    seized having decreased. In 2008, the Finnish
    authorities seized 56 kg of Marijuana and 41 kg of
    cannabis plants.  Ecstasy, GHB, Ketamine (Vitamin K)
    and other MDMA-type drugs are concentrated among young
    people and associated with the club culture in Helsinki
    and other large cities.  Social Welfare authorities
    believe the introduction of GHB and other date rape
    drugs into Finland has led to an increase in sexual
    assaults. Changing social and cultural attitudes
    towards the acceptance of limited drug use also
    contribute to this phenomenon.

    Heroin use began to increase in Finland in the late
    1990s, but seizures have continued to decline since
    ¶2003. The quantity of seized heroin has remained small
    for several years.  With the exception of a 51.7 kg
    seizure of heroin in 2005, seizures have never been
    larger than (and consistently smaller than) 1.6 kg
    since 2003. Typically, heroin is smuggled by ethnic
    groups residing in Scandinavia using vehicles.  They
    pass by way of Germany and Denmark to the rest of
    Scandinavia.

    Abuse of Subutex (buprenorphine) and other heroin-
    substitutes seems to have replaced heroin abuse to a
    significant extent.  Finnish officials note that
    Finland is one of few countries reporting that people
    become addicted from Subutex use.  Possession of
    Subutex is legal in Finland with a doctor's
    prescription, but Finnish physicians do not readily
    write prescriptions for Subutex unless patients are
    actually in a supervised withdrawal program.  Finnish
    couriers do obtain Subutex from other EU countries,
    however.  A major change occurred at the end of 2007
    when the Baltic countries joined the Schengen area.
    This means that a person who resides principally in
    Finland is no longer allowed to import Subutex
    prescribed elsewhere.  Finnish officials have not seen
    a significant move to heroin now that Subutex is not as
    readily available from the Baltic countries.  The size
    of Subutex seizures by the Finnish customs has remained
    consistent over the last five years.

    Finnish Customs recorded 94 firearm violations,
    approximately the same amount as in the previous
    reporting period.  There was a total of 125 weapons
    seized in connection with these violations, with 14
    being firearms and 111 being gas-spray guns.

    According to Finnish law enforcement, the number of
    organized crime groups has grown slightly in the past
    few years, and so has the number of their members; in
    the end of 2008 there were 88 organized crimes groups
    with some 1,200 persons.  The number of crime
    organizations that meet the EU criterion was 36.  Most
    Finnish syndicates have international contacts,
    particularly with crime groups operating in Russia or
    the Baltic countries.

    Since Estonia's entry into the Schengen Treaty,
    Estonian travelers to Finland are no longer subject to
    routine customs inspection at ports-of-entry, making it
    difficult to intercept narcotics.  Although Estonian
    syndicates control the operations, many of the domestic
    street-level dealers are Finns.  Estonian smugglers
    also organize the shipment of Moroccan cannabis from
    Southern Spain to Finland.  Again, overall amounts are
    small.  Finnish law enforcement reports that
    cooperation with Estonian law enforcement is excellent.
    Finnish law enforcement appears well prepared to
    address the potential use by Asian crime groups of new
    air routes from Helsinki to major Asian cities like
    Bangkok, Beijing and New Delhi. In 2000, Finland had 4
    non-stop flights per week between Finland and Asia.  In
    2008, Finnair has 11 non-stop flights per day to Asia.
    To reduce the likelihood of Asian syndicates'
    exploiting such routes, Finnish law enforcement has
    established close cooperation with airline officials
    and Asian law enforcement to coordinate interdiction
    efforts, including the posting of liaison personnel in
    Beijing and Guangzhou.

    III. Country Actions against Drugs

    Policy Initiatives.  Finland's comprehensive 1998
    policy statement on illegal drugs articulates a zero-
    tolerance policy regarding narcotics.  Finnish
    comprehensive drug policy is based on general public
    policy measures, national legislation and international
    agreements.  A Government Resolution on co-operation in

    HELSINKI 00000429  003.2 OF 006

    drug policy that runs from 2008 to 2011 defines an
    overall plan to guide the Ministry of Social Affairs
    and Health preventing drug use and distribution.  In
    accordance with the Government Resolution, a new
    Narcotics Act was adopted by Parliament in 2008.  The
    Act brings the Finnish drug legislation in conformity
    with the current EU provisions.  However, a 2001 law
    created a system of fines for simple possession
    offenses rather than jail time. The fine system enjoys
    widespread popular support and is chiefly used to
    punish youth found in possession of small quantities of
    marijuana, hashish, or Ecstasy.  There is limited
    political and public support for stronger punitive
    measures.

    Finnish officials state that new instruments available
    in international cooperation, such as joint
    investigation teams and the rapid exchange of
    information available now that Finland is a signatory
    of the Prum Convention, will support the fight against
    the crime at national level.

    The present legislation provides for use of wiretapping
    only in those cases which would result in a prison
    sentence (such as homicide, espionage, aggravated
    sexual abuse and aggravated narcotic crime).  A bill
    went before Parliament in 2009 that attempted to expand
    the use of wiretapping in criminal investigations but
    it was eventually voted down.  The proposal would have
    also allowed wiretapping in specific criminal cases
    followed by a pecuniary penalty.

    Finland has a streamlined system that allows it to
    categorize new designer drugs as illegal narcotics
    within two to three months.  Law enforcement is still
    concerned with the ability of manufacturers to slightly
    modify existing narcotics to make them not technically
    illegal under the law.  The authorities are frustrate
    with the 12-24 months that the E.U. and the U.N. can
    take to make new designer drugs illegal.

    Law Enforcement Efforts. Finnish law enforcement
    continued to effectively investigate and prosecute
    instances of narcotics possession, distribution and
    trafficking.  Within Finland, the Finnish Police and
    Customs have primary responsibility for interdicting
    and investigating narcotics trafficking and
    distribution (the Border Guards, who primarily
    interdict narcotics during immigration checks, can
    conduct investigations and since 2005 their authority
    was expanded to cover all of Finland).  Within the
    police, the National Bureau of Investigation (NBI) is
    charged with coordinating organized crime
    investigations, as well as serving as the Finnish focal
    point for international law enforcement cooperation.
    The police, as well as the Finnish Border Guards, fall
    under the Finnish Ministry of the Interior.  Customs
    falls under the Finnish Ministry of Finance, and also
    maintains responsibility for coordination of Finnish
    customs narcotics interdiction efforts with other
    nations' customs services.  Finnish judicial
    authorities are empowered to seize assets, real and
    financial, of criminals.

    Finnish law enforcement has effectively prioritized
    narcotics cases through Joint Intelligence Teams and
    Centers, which comprise representatives of the police,
    Customs and Border Guards.  These centers are located
    at the national, provincial and local levels, where a
    broad range of intelligence and analysis capabilities
    are brought to bear in identifying priority narcotics
    investigations.  For instance, the center responsible
    for Helsinki includes representatives from the NBI,
    Helsinki police, Customs, Border Guards, prison
    authorities and provincial police representatives.  The
    reformulation of joint Teams and Centers was initiated
    in 2008 in order to enhance the criminal investigation
    process.  In addition to organizational changes, a new
    national level situation center operating alongside the
    joint Teams and Centers will provide up-to-date
    information and situation monitoring for law
    enforcement organs.

    Additionally to the branch-specific training modules
    within the Police, Customs and Border Guard
    organizations, the personnel operating at the joint
    Teams and Centers were provided a collective course of
    crime analysis at the Police College in fall 2008.
    In 2007, the Finnish law enforcement community received
    additional government funding to pursue a number of
    interagency, target-oriented narcotics investigations,

    HELSINKI 00000429  004.2 OF 006

    including the assignment of prosecutors to an
    investigation from its inception.  The result of this
    additional funding has been positive, allowing
    authorities to target transnational organized crime
    syndicates attempting to import drugs to Finland.

    In 2006 Finnish Customs deployed a mobile X-ray
    scanning facility at Helsinki's Western Harbor to
    provide Customs with the ability to conduct scanning of
    incoming trucks and containers.  In 2007, Customs
    employed two such scanning devices and had one
    permanent scanning facility placed at Vaalimaa, which
    is the primary border-crossing between Finland and
    Russia.  More than 25,000 cargo units were scanned by
    the Finnish Customs during 2007.  Additionally, Customs
    has enhanced its use of narcotics detection canine
    units at key ports of entry into Finland.  While these
    resources have yielded limited narcotics seizures, the
    authorities feel that they serve a strong deterrent
    function.

    The 2008 Police report on narcotics offenses and
    seizures is the latest available.  In 2008, Finland
    experienced a 1 percent increase in the number of drug
    offenses and a 10 percent decrease in the number of
    aggravated narcotics offenses.  9,933 of the 16,530
    offenses reported for 2008 were related to narcotics
    use; the number of aggravated narcotics offenses was
    ¶869.  Evidence of the limited cannabis market comes
    from the Customs figures for 2008 which show seizures
    totaling 56 kg of marijuana.  In 2008, 25 percent of
    the suspects of aggravated narcotics offenses were
    foreigners; of those, 40 percent were Estonian and 21
    percent were Russian.

    Authorities estimate that the use of cocaine has
    increased in Finland and in the other EU countries.
    While overall amounts of cocaine entering Finland
    remain extremely low, Finnish law enforcement believes
    the importation of cocaine will continue to increase.
    Finnish authorities have asserted that cocaine
    predominantly enters Finland from Spain and that
    Finnish motorcycle gangs play a significant role in the
    supply chain.  3 kg of cocaine were seized in 2008,
    down from 4 kg in 2007.

    Cocaine has not threatened the position of cannabis,
    amphetamine or Subutex among the most popular drugs.
    Finnish authorities have noted an increase in the
    number and quantity of steroid seizures on the Finnish
    market, from 111,000 and 116,000 tablets/ampoules
    seized in 2004 and 2005, respectively to 200,000 and
    192,000 seized in 2006 and 2007.

    One potentially worrying trend is that the few
    smuggling enterprises that do exist are becoming
    increasingly sophisticated.  For instance, consignments
    of amphetamine have been hidden in trucks, and
    subsequently buried in remote, locations. The locations
    are then mapped and sold to criminals in Estonia
    handling the retail trade in Finland.  To counter
    schemes of this type, the Finnish police are
    increasingly dependent on cooperation with their
    Estonian counterparts' cooperation they describe as
    outstanding.  It is now estimated that 90 percent of
    amphetamine is imported to Finland from or through
    Estonia.  Finnish law enforcement believes that
    significant quantities of the amphetamine on the
    Finnish market are produced in Lithuania by Lithuanian
    crime groups.  According to Finnish law enforcement,
    Estonian and Lithuanian organized crime groups appear
    to be working in close cooperation in trafficking
    amphetamine into Finland

    According to Customs officials, there has been an
    increase in the number of Subutex couriers departing
    Finland on a regular basis to Estonia and Latvia.
    However, as the couriers possess valid Subutex
    prescriptions, Customs authorities are prevented from
    seizing these legal prescriptions.  Suspected courier
    travel has increased annually for the past few years.
    From December 21, 2007, changes in EU regulations
    prevent Latvian and Estonian pharmacies from filling
    Subutex prescriptions for Finnish citizens.  However,
    Finnish couriers are likely attempting to identify
    other EU sources for Subutex, including France.

    Finland continued its impressive record on multilateral
    law enforcement, working through, among other
    organizations, EUROPOL, INTERPOL and the Baltic Sea
    Region Task Force on organized crime.  Finland

    HELSINKI 00000429  005.2 OF 006

    maintains thirteen liaison officers in ten cities,
    (Finland's reach extends to 36 countries if one
    includes Finland's participation in the Nordic liaison
    network).  Along with great cooperation with Estonian
    authorities, Finnish authorities report very good
    cooperation with Russian authorities.  Finnish law
    enforcement personnel continue to conduct criminal
    narcotics investigations involving Finland abroad,
    including the investigation of suspects beyond
    Finland's borders.

    Several international joint operations were launched
    during the reporting period, aimed at uncovering
    connections between organized crime groups, trafficking
    of drugs, illegal medicines and other substitutes,
    money laundering, forgeries and cargo surveillance.
    Five out of total eleven operations initiated in 2008
    were EU related, two were coordinated by the European
    Anti-Fraud Office and four operations were
    transnational.  Besides European and Finland's
    neighboring countries, the cooperating partners
    included countries from Asia (China, India, Thailand),
    South and North America (Argentina, Chile, Peru and
    U.S.) and Africa (Algeria, Tunis, Morocco).

    Corruption. As a matter of government policy, Finland
    does not encourage or facilitate illicit production or
    distribution of narcotic or psychotropic drugs or other
    controlled substances, or the laundering of proceeds
    from illegal drug transactions.  Finnish officials do
    not engage in, facilitate, or encourage the illicit
    production or distribution of such drugs or substances,
    or the laundering of proceeds from illegal drug
    transactions.  Official corruption is extremely rare in
    Finland.  There have been no arrests or prosecutions of
    public officials charged with corruption or related
    offenses linked to narcotics in Finnish history.

    Agreements and Treaties.  Finland is a party to the
    1988 UN Drug Convention.  Finland is also a party to
    the 1961 UN Single Convention as amended by the 1972
    Protocol, and the 1971 Convention on Psychotropic
    Substances. Finland is a party to the UN Convention
    against Transnational Organized Crime and its protocols
    on trafficking in persons and migrant smuggling and the
    UN Convention against Corruption.  A 1976 bilateral
    extradition treaty is in force between the United
    States and Finland. Finland signed the bilateral
    instrument of the EU-U.S. Extradition Treaty in 2004;
    Parliament's Legal Affairs Committee approved the
    Treaty in mid-2007, and the Finnish Parliament
    unanimously approved the Treaty in December 2007.
    Finland has also concluded a Customs Mutual Assistance
    Agreement with the United States. Finland is a member
    of the major Donors' Group within the Committee on
    Narcotic Drugs.  The vast majority of Finland's
    financial and other assistance to drug-producing and
    transit countries has been via the UNODC. The Treaty of
    Prum, which addresses cross-border cooperation
    (including information exchange) in combating crime and
    terrorism, took effect in Finland in June 2007.

    Cultivation/Production.  There were no reported
    seizures of indigenously cultivated opium, no recorded
    diversion of precursor chemicals and no detection of
    illicit methamphetamine, cocaine, or LSD laboratories
    in Finland in 2007.  Finland's climate makes
    cultivation of cannabis and opium poppy almost
    impossible.  Local cannabis cultivation, while
    described by authorities as increasing is nevertheless
    believed to be limited to small-scale, indoor
    hydroponic culture for individual use not sale.
    Authorities see the main reason for the increase in
    personal home cultivation as being mainly due to the
    ease of obtaining the specialized equipment over the
    internet.

    Seizures by weight of cannabis plants have fluctuated
    over the past several years with 2008 seeing seizures
    of 41 kg, a 47 percent decrease from 2007.  The other
    side of this statistic is that the number of plants
    seized increased dramatically, from 7600 plants in 2007
    to 14000 plants in 2008.  The majority of cultivation
    cases were very small, with an average of 1 to 20
    plants per seizure.  The distribution of 22 precursor
    chemicals listed by international agencies is tightly
    controlled.

    Drug Flow/Transit.  Medical narcotics (including
    Subutex), amphetamine and methamphetamine represent the
    majority of police seizures in Finland. Finland is not

    HELSINKI 00000429  006.2 OF 006

    a major transit country for narcotics. Most drugs
    trafficked into Finland originate or pass through
    Estonia.  Finnish authorities report that their land
    border with Russia is well guarded on both sides to
    ensure that it does not become a major transit route.

    Domestic Programs/Demand Reduction.  According to the
    Development Center for Social Affairs and Health, there
    are approximately 20,000 registered drug users in
    Finland, with some 10,000 undergoing treatment.
    Despite these low numbers, the Ministry of Health and
    Social Services has stated that the Government must do
    more to reduce demand.  The central government gives
    substantial autonomy to regional and municipal
    governments to address demand reduction using general
    revenue grants, and often relies upon the efforts of
    Finnish NGOs.  Finnish schools continued to educate
    students about the dangers of drugs. Finland's national
    public health service offered rehabilitation services
    to users and addicts.  Such programs typically use a
    holistic approach that emphasizes social and economic
    reintegration into society and is not solely focused on
    eliminating the subject's use and abuse of illegal
    drugs.  The government has been criticized for its
    failure to provide adequate access to rehabilitation
    programs for prison inmates.  An additional challenge
    in Finland in terms of treatment is that there is no
    substitute treatment for amphetamine in Finland.

    IV. U.S. Policy Initiatives and Programs

    Policy Initiatives and Bilateral Cooperation.  The U.S.
    has worked with Finland and the other Nordic countries
    through multilateral organizations in an effort to
    combat narcotics trafficking in the Nordic-Baltic
    region.  This work has involved U.S. assistance to and
    cooperation with the Baltic countries and Russia.

    The Road Ahead.  The U.S. anticipates continued close
    cooperation with Finland in the fight against
    narcotics. Finnish law enforcement is expected to
    maintain its willingness to work with relevant U.S. law
    enforcement agencies, and is well positioned to
    exchange law enforcement information and
    collaboratively pursue narcotics traffickers and
    international organized criminal entities involved in
    the manufacture and distribution of narcotics

    BUTLER

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