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Viewing cable 10MOSCOW226, SCENESETTER FOR FEBRUARY 4 U.S.-RUSSIA BILATERAL
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Reference ID | Created | Released | Classification | Origin |
---|---|---|---|---|
10MOSCOW226 | 2010-01-29 15:33 | 2011-08-24 01:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Moscow |
VZCZCXRO1600
PP RUEHDBU RUEHLN RUEHPOD RUEHPW RUEHSK RUEHSL RUEHVK RUEHYG
DE RUEHMO #0226/01 0291533
ZNR UUUUU ZZH
P 291533Z JAN 10
FM AMEMBASSY MOSCOW
TO RHEHAAA/WHITE HOUSE WASHDC PRIORITY
RUEHC/SECSTATE WASHDC PRIORITY 6110
INFO RUCNAFG/AFGHANISTAN COLLECTIVE
RUCNCIS/CIS COLLECTIVE
RUEHXD/MOSCOW POLITICAL COLLECTIVE
RHEHNSC/NSC WASHDC
RUEABND/DEA HQS WASHINGTON DC
RUEATRS/DEPT OF TREASURY WASHDC
RUEKJCS/SECDEF WASHDC
UNCLAS SECTION 01 OF 04 MOSCOW 000226
SENSITIVE
SIPDIS
FOR ONDCP DIRECTOR DIRECTOR KERLIKOWSKE FROM AMB. BEYRLE
EUR-RS FOR CAROLINE SAVAGE
E.O. 12958: N/A
TAGS: PGOV PREL SNAR KCRM RS AF
SUBJECT: SCENESETTER FOR FEBRUARY 4 U.S.-RUSSIA BILATERAL
PRESIDENTIAL DRUG TRAFFICKING WORKING GROUP MEETING
This information is Sensitive But Unclassified. Do Not
Release to Public Internet.
¶1. (SBU) Summary: The U.S. and Russia have powerful
reasons to work together to combat illicit trafficking of
narcotics. As you heard in September from your counterpart
on the working group, Viktor Ivanov, Director of Russian
Federal Drug Control Service (FSKN), his priority is engaging
you on Afghanistan and specifically suppressing the flow into
Russia of Afghan-origin heroin. Heroin from Afghanistan
floods Russia leading to high rates of addiction; money
from the heroin trade finances terrorist organizations
fiercely hostile to the U.S. and Russia. Ivanov and others
in the Russian government take issue with the new U.S.
whole-of-government approach which emphasizes interdiction
over eradication of poppy fields to reduce the production and
distribution of Afghan heroin. The U.S. and Russia also have
different approaches on how to best reduce demand for heroin
within Russia. Although our principal policies on combating
the Afghan narcotics trade differ, however, the establishment
of this inter-agency working group has provided new
opportunities to discuss counternarcotics cooperation in
Afghanistan as well as prevention and treatment of substance
abuse, financial controls, and international best practices.
In addition, the working group has paved a political opening
for increased peer-to-peer exchanges and cooperation on the
enforcement front. The adverse consequences of inaction or
non-cooperation are too severe, particularly for Russia. End
Summary.
------------------------------
Heroin Trafficking into Russia
------------------------------
¶2. (SBU) Trafficking in opiates from Afghanistan
(primarily opium and heroin) and their abuse are major
problems facing Russian law enforcement and public health
agencies. The UN Office on Drugs and Crime (UNODC) reported
in October 2009 that Russia has become the largest single
market for Afghan-origin heroin, consuming approximately
75,000-80,000 kilograms per year (20 percent of the annual
production of Afghan heroin). Russia has one of the highest
rates of opiate abuse in the world. Opiates (and hashish to
a lesser degree) from Afghanistan are smuggled into Russia
through the Central Asian states along the "Northern Route."
Russians at all levels routinely blame the U.S. for its
failure to curb opium production in Afghanistan, some even
seeing in this failure a plot to undermine Russia. FSKN
Director Ivanov has repeatedly and publicly called on the
U.S. to carry out broad eradication of poppy fields in
Afghanistan.
--------------------------------------------- ---------------
Scope of Drug Addiction Problem and the Treatment of Drug
Offenders
--------------------------------------------- ---------------
¶3. (SBU) The Russian Ministry of Health estimates that up
to six million people (4.2 percent of the population) take
drugs on a regular basis in Russia; according to official
estimates, 30,000-40,000 people die annually of drug
overdoses and another 70,000 deaths are considered
drug-related. Health experts estimate that nearly 65 percent
of newly detected HIV cases can be attributed to drug use and
that, among HIV-positive injecting drug users, about 85-90
percent are Hepatitis C positive. The FSKN reports that
there are 400,000 officially registered drug addicts in
Russia's treatment centers. A Human Rights Watch study
concluded, however, that the effectiveness of treatment
offered at state drug treatment clinics "is so low as to be
negligible" and constitutes a "violation of the right to
health." New models of cognitive therapy are being
implemented in treatment centers in St. Petersburg, but
substitution therapy (such as programs using methadone,
buprenorphine, and naltrexone) has not been fully explored.
Methadone remains illegal and politically sensitive.
¶4. (SBU) Director Ivanov has expressed interest in
studying the drug court systems used in the U.S. to divert
non-violent, substance abusing offenders from prison and jail
MOSCOW 00000226 002 OF 004
into treatment. A decade of research indicates that drug
courts reduce crime by lowering re-arrest and conviction
rates, improving substance abuse treatment outcomes, and
reuniting families, and also produces measurable cost
benefits. Court reform is an extremely complex subject, and
Russia lacks the social service infrastructure that supports
drug courts in the U.S. However, Ivanov's interest in drug
courts is encouraging, and your working group can foster
cooperation and information exchanges between judges,
lawyers, public health experts and social service
professionals to assist Russia in moving towards alternatives
to the criminal prosecution of drug addicts and substance
abusers.
--------------------------------------------- ---------------
Domestic and International Drug Enforcement Policy and
Activities
--------------------------------------------- ---------------
¶5. (SBU) The State Anti-Narcotics Committee is a
governmental steering body for developing proposals for the
President on national anti-narcotics policy, coordinating the
activities of various government agencies, and participating
in international drug enforcement cooperation efforts. The
Committee is chaired by Director Ivanov and comprises seven
federal ministers, 14 heads of federal services, a Ministry
of Foreign Affairs representative, members of the Duma and
the Federation Council, and other officials. The State
Anti-Narcotics Committee was tasked with developing a new
national drug control strategy by President Medvedev in 2009.
A draft of a ten-year strategy was recently released; once
finalized and adopted, it will be in force through 2020. The
strategy takes its own whole of government approach as it
calls on regional anti-narcotQ commissions, local
governmenQ community organizations, and religious
associations to be involved. Its objectives: reduce the
supply of illegal Qugs, develop and strengthen intQational
cooperation in counternarcotics, create and implement
nationwide measures to curb the illegal distribution of
narcotics, develop effective measures to counter drug
trafficking, ensure reliable state control over the illicit
movement of drugs and their precursors, and drug abuse
prevention.
¶6. (SBU) The FSKN is Russia's only law enforcement agency
dedicated solely to enforcing the narcotics laws. The FSKN,
which has approximately 35,000 employees and branch offices
in every region of Russia, has the responsibility of
coordinating the narcotics enforcement activities of other
Russian law enforcement agencies. The U.S. Drug Enforcement
Administration (DEA) has a working relationship with the
FSKN, but cooperation on cases and sharing information is
sporadic and needs to be improved. Despite FSKN's size and
coordinating authority over other police agencies, it has not
conducted significant cases of heroin distribution
organizations within Russia. In addition, although FSKN has
publicly stressed the importance of addressing money
laundering and other financial aspects of the drug trade, its
relationship with Rosfinmonitoring has not been productive.
Seizures and forfeitures of drug proceeds are insignificant
compared to the volume of heroin sales within Russia.
However, FSKN's participation in December in the Illicit
Finance Working Group, whose work compliments that of the
Drug Trafficking Working Group, is a positive development
which may lead to more effective financial investigations of
drug trafficking organizations. The FSKN has made efforts to
implement effective monitoring of the chemical industry.
Prior to the creation of the FSKN, precursor chemicals and
pharmaceuticals were governed by a patchwork of regulations
enforced by different agencies. Production, transportation,
distribution, and import/export of controlled substances now
require licensing from the FSKN.
¶7. (SBU) The Central Asian Regional Information and
Coordination Center (CARICC), based in Almaty, serves as a
regional focal point for communication, analysis, and
exchange of operational information in "real time" on
cross-border crime, as well as a center for the organization
and coordination of joint operations. In September 2009,
President Medvedev agreed to Russian participation at CARICC,
MOSCOW 00000226 003 OF 004
which may encourage greater commitment from Central Asian
nations. However, Russia sees the Collective Security Treaty
Organization (CSTO), comprising Russia and Central Asian
countries as an alternative to CARICC and the NATO-Russia
Council (NRC), and has spoken of establishing a coordination
center like CARICC within CSTO. Twice per year, the CSTO
conducts operation "Canal", a week-long interdiction blitz on
the Northern route based on shared intelligence among member
states. The effectiveness of this approach is questionable.
The U.S. believes that multilateral efforts through the
NATO-Russia Council and CARICC should be the primary means
for advancing our shared goals though we are willing to
consider proposals made by the CSTO.
¶8. (SBU) In 2006, then-President Putin authorized the
FSKN to station 50 officers in foreign states to facilitate
information sharing and joint investigations. The FSKN has
opened, or plans to open, liaison offices in at least ten
countries, including four of the five Central Asian
republics. Russia has indicated that its drug liaison
officer in Kazakhstan will also work with CARICC.
¶9. (SBU) Since 2006, roughly 1,000 officials from Central
Asia and Afghanistan have been trained on various aspects of
counternarcotics work through the NRC. While Russia has been
reluctant to pursue practical cooperation with NATO in many
areas, this program has consistently stood out as an area
where NATO and Russia can work together to achieve common
objectives. This joint training initiative is one of the
most practical and useful of the Council's various
activities. The Russian training center at Domodedovo
Airport is an important, but not principal, forum for
providing training. Russia has asked the U.S. to encourage
Afghan drug enforcement personnel to train at Domodedovo.
While the U.S. is supportive of the training, whether to send
Afghan Police agents for counternarcotics training at
Domodedovo is a decision for the Afghanistan Ministry of
Interior.
--------------------------------------------- ------
U.S. Support for Russia's Anti-narcotics Activities
--------------------------------------------- ------
¶10. (SBU) The U.S. government provides foreign assistance
to expand Russia's ability to combat narcotics trafficking,
especially along Afghan drug routes, reduce drug abuse, and
increase access to drug prevention and treatment facilities
for those at risk of or infected by HIV/AIDS, the majority of
whom are injecting drug users. The U.S. has contributed at
least $100,000 for several years for direct participation of
DEA trainers at the Domodedovo training center and $2.8
million to support CARICC. Programs like those of the
Healthy Russia Foundation, a Russian NGO funded by State's
Bureau of International Narcotics and Law Enforcement and
USAID, contribute to preventing drug abuse by Russian youth,
by raising awareness, knowledge, and understanding on drug
use prevention and mitigating risks of contracting HIV/AIDS.
With support from USAID, the Healthy Russia Foundation is
also working to help expand the spectrum of drug treatment
services available and to improve the treatment outcomes in
select facilities in St. Petersburg and Orenburg.
-------
Comment
-------
¶11. (SBU) The Drug Trafficking Working Group provides an
opportunity to establish constructive relationships leading
to real cooperation and information exchanges to further the
interests of the U.S. and Russia in fighting the Afghan
heroin trade and the scourge of drug addiction in Russia.
Director Ivanov, as the head of FSKN and the State
Anti-narcotics Committee, has broad authority over Russia's
domestic drug treatment and demand reduction policies and its
drug enforcement operations domestically and internationally.
While he appears open to discussing drug courts and other
approaches to dealing with the problems of drug addiction in
Russia, it is not yet clear whether he is prepared to offer
significant operational and intelligence cooperation to the
U.S. for combating the Afghan heroin trade. Progress toward
MOSCOW 00000226 004 OF 004
this objective would be a significant outcome of your visit.
I look forward to welcoming you to Moscow February 3.
Beyrle