FBIS3-22049 "jptdd013__l94052"
JPRS-tdd-94-013-L Document Type:JPRS Document Title:Narcotics 9 March 1994
LATIN AMERICA PERU

`Summary' of Draft National Drug Control Plan Published

PY2303183894 Lima LA REPUBLICA in Spanish 9 Mar 94 p 15,16,17,18 PY2303183894 Lima LA REPUBLICA Language: Spanish Article Type:BFN ["Summary" of the government's "National Plan for Drug Prevention and Control," which was drafted by a team of experts presided over by Air Force General Arnaldo Velarde Ramirez] [Text] Part 1: Problem Diagnosis 1. General Context 1.1 General Considerations Over the past two decades the problem of drugs in Peru has increased and become very complex. There is general consensus that: a. the very large production of coca for illegal purposes is--in most cases--encouraged by foreign interests; b. the number of users of legal and illegal drugs such as tobacco, alcohol, cocaine paste, inhaled toxic materials, marijuana, etc., has increased significantly; c. the traffic and illegal trading of legal and illegal drugs, the criminal activities provoked by this activity, and the grave consequences of drug addiction have increased; d. criminal activities, which have overwhelmed the capacity of legislators, have evolved very fast; e. there is a need for coordinated action by the involved nations against the international character of this illegal trade. 1.2 Historic and Cultural Context From time immemorial, coca cultivation has been part of the tradition and custom of the Andean peasant. Coca is used for chewing, for trade, medicinally, and in social and religious ceremonies. It has a sacred meaning for the people. 1.3 Geographical Context The Peruvian territory--which lies in the west-central part of the South American continent--comprises three macroeconomic regions: The coastal region, which represents 10 percent of the territory; the ranges, which represents 31 percent; and the Andean Amazon jungle which represents 59 percent. The high-elevation jungle ecosystems of this region, with steep hills and high humidity between 600 and 2,000 meters above sea level, are right for coca cultivation. 1.4 Economic, Political, and Social Context Peru has a population of 22 million people. Social and economic indicators have dropped over the past 30 years and are today among the lowest in Latin America. This economic depression has impoverished the Andean region, forcing its inhabitants to migrate to coastal and higher jungle zones where foreign pressures provoked a staggering increase in the coca plantations. In 1990 the government launched an economic stabilization program seeking to reinsert the country into the international economic community. The program obtained important results in the control of inflation and the reorganization of the productive apparatus. International drug traffickers have made large profits by purchasing cheap coca from Peruvian peasants and selling it back transformed into cocaine. To protect their interests, drug traffickers then decided to become associated with terrorists. Over the past seven years this alliance has tied up a considerable proportion of human and material resources which could have been used to fight trafficking. The successful campaign to pacify the country that began in 1992, and the government's political willingness to fight the scourge, have created new hopes for a successful future campaign against drugs in the country. 2. Production 2.1 Coca Leaf Production The cultivation of coca for legal purposes, which is being implemented particularly in traditional Andean areas (Cuzco, Huanuco, Puno, Cajamarca, Ancash, Junin, and Huancavelica, among others) currently involves around 20,000 hectares and some 27,000 peasant families. The "National Coca Enterprise," which by law has the monopoly on the marketing of coca, presently controls less than half the cultivated area and the coca produced for legal purposes. The lack of trustworthy and current data on coca cultivation in Peru is a serious obstacle in properly understanding the situation and in proposing alternative solutions to the problem it represents. From the estimated 129,000 hectares of plantations for non-traditional purposes, some 223,900 tonnes should be harvested annually. This activity occupies at least 200,000 peasant families and produces an estimated annual revenue of $300 million. 2.2 Production of Cocaine Base and Cocaine Hydrochloride Exportable cocaine base in Peru allegedly totals 900 tonnes (worth approximately $600 million per year). This can be used to produce approximately 700 tonnes of cocaine per year. Some 90 percent of the cocaine base is bought by Colombian interests, for processing later. 2.3 Production of Other Crops There is worrying evidence of poppy cultivation in several places in Peru, backed by foreign interests linked to a heroine connection. 2.4 Impact of Illegal Crops on the Environment Coca cultivation and the illegal use of its byproducts cause very serious damage to the jungle ecosystem, like: -- the deforestation of higher jungle areas not fit for agriculture, consequently provoking hydro-biological changes and harming biodiversity; -- the direct erosion of soil by effect of coca cultivation; -- the contamination of soil and rivers, as well as of the flora and fauna as a consequence of the indiscriminate use of biocidal fertilizers and chemical components used to transform coca into PBC (cocaine base) and PBL (washed coca paste). 2.5 The Use of Coca in Traditional Medicine The therapeutic and nutritional properties of coca are currently under study by the Traditional Medicine Institute of the Health Ministry. Promising results have been obtained so far. Its conclusions will serve as the basis for future actions by the government, seeking to solve the controversy over the classification of coca. 2.6 Peruvian Experience in Alternative Development In terms of strategy, the Peruvian Government gives the highest priority to Alternative Development for which it seeks the help of the social groups involved in this activity. Alternative Development programs have experienced financial difficulties. The search for new mechanisms to raise funds for these programs will be subject of concrete actions in the future. 3. The Illegal Trafficking of Drugs 3.1 The Illegal Trafficking of Drugs The Repression of illegal trafficking is of major importance at a national and international level. Peru has approved extensive regulations, in keeping with international treaties, to classify and punish all types of illegal trafficking. Along with the emphasis on repressive measures, norms have also been approved to legalize the cultivation of coca in the country, while specific cases of addiction and possession for personal use have also been legalized. The current plan considers tightening control on criminal actions through a systemic approach, when the illegal trafficking of drugs can be described as "organized crime." 3.2 Situation in Peru The illegal trafficking of drugs (TID) began as a criminal activity in Peru in around 1960. It gradually became a threat to political, economic, and social stability--because of its nature and because of its tie up with terrorist criminals who seek to obtain mutual benefits. The subdividing of international TID has created a situation where Peruvian trafficking groups or "firms"--like the one headed by Demetrio Limonier-Chavez Penaherrera, aka "Vaticano"--can control the production, sale, and storage of PBC and PBL prior to its transportation by Colombian cartels for refining and later introduction into consumer markets, taking advantage of its leading role in the trafficking structure. 3.3 Organization and Dynamics of the Illegal Trafficking of Drugs By nature, the illegal trafficking of drugs is performed by gangs organized at a national and international level, which control the production, sale, transportation, and storage and/or transfer of funds through "money laundering," using--throughout the process--methods and technology to minimize risks. Through their economic capacity, they exercise diverse influence on society, creating corruption mechanisms, violating internal laws, winning the goodwill of people through superficially benevolent development activities, and through protection rackets. 4. The Improper Use of Drugs Legal and/or socially accepted substances like tobacco and alcohol head the list of most-consumed psycho-active substances in Peru. They involve the highest risk because their use initiates the habit among minors and leads to the consumption of illegal drugs. The illegal use of drugs is the responsibility of all social groups. The problem presents itself in different ways, and in that sense, is a problem that concerns not only minors, the poor, or unaffected individuals: It affects all social and economic groups. Outright prevention, treatment, and rehabilitation policies have not obtained the expected results because they fail to attack all aspects of the problem. It is necessary to implement overall policies that give priority to the participation of the population from their grassroots organizations. 5. The Institutional Framework The official way to deal with drugs in Peru has been basically through criminal prosecution. The appearance of new aspects of the problem during the 1980's contributed to change the official perception of the issue and prompted the government to try new answers. The economic and social aspects became the main causes of the problem's present magnitude. Terrorism and its alliance with the illegal trade became one of the greatest threats to social peace and public order. The greatest problem affecting the institutional answer to the problem is the lack of an integrated system for a more rational use of the equipment and resources dedicated to fight the scourge. The absence of a valid policy representative (planner, coordinator, and policies' implementation officer) has reduced the effect of state actions. 6. International Arena Peru has participated in the world crusade against this scourge since 1912. It has signed international instruments drawn up by the community of nations. Our actions have involved the bilateral, multilateral, and regional arenas. In the past few years the Peruvian state has sought the recognition of the principle of "shared responsibility" and "integral response" in the handling of the problem, which has traditionally been faced from a juridical and repressive viewpoint. It is worth noting that the Peruvian proposal seeks the international community's understanding of the meaning of this struggle in our country and the important contribution we are making to the global effort to solve the problem. Part 2: National Plan for Drug Prevention and Control 1. Objective 1.1 The conceptual framework The conceptual framework is defined by a methodical interpretation of the Peruvian people's attitude, which is expressed through daily and multiple demonstrations (debates, seminars, experts' meetings, etc.). This attitude projects a defined image of the people's desire to achieve the general objective. 1.2 General Objective A gradual reduction of coca cultivated for nontraditional use through alternative development and environmental protection programs; a reduction of the improper use of drugs and the consequences of addiction through integral prevention and appropriate treatment programs; the repression of illegal production and trade within a framework of respect for the law and human rights in order to protect the well-being and dignity of individuals, and a contribution with the international struggle against the problem. 2. Politics The government reiterates its political willingness to fight this scourge, with due respect for all international agreements, and calls on all national groups to fight against the illegal trade based on five guiding principles: a. the right of peasants to a free, viable, and dignified alternative; b. the unity of all Peruvians in the face of this world scourge; c. the national desire to confront this phenomenon; d. a shared responsibility, which strengthens international understanding and cooperation; e. the Peruvian Government's political decision to fight with all its energy and ability, legally and with respect for human rights. 3. Strategy 3.1 Concept The strategy adopted by the Peruvian Government is all encompassing and provides for strategic lines of action. Its implementation calls for the participation of all national sectors. 3.2 General Strategy Herewith the basic elements of the strategic lines of action: a. to establish, in 1994, the necessary juridical and institutional framework for the area of drugs; b. to attach, during the 1994-2000 period, the highest priority to the implementation of the Alternative Development plan for reducing illegal coca plantations; c. to continue the fight against narcotics and drug-related crimes, with the cooperation of the Armed Forces; d. to call on the people to participate in an all-encompassing preventive action, in treating and rehabilitating addicts, and in reducing the social consequences of addiction; e. to grant particular attention to international actions and to joint, cooperative work, based on the principle of shared responsibility. 4. Specific Objectives a. The National Plan for Drug Prevention and Control reflects the main factors of the diagnosis made in Part 1 of this document, identifying 21 specific objectives: 1) Alternative Development: To implement a set of actions aimed at gradually replacing the coca economy, for which the state will strengthen the structural reform in order to create the conditions favorable for developing a competitive economy; 2) Participation of the Private Sector: In the implementation of the Alternative Development programs, the state will create the basic necessary conditions and will give real guarantees to national and foreign entrepreneurs who wish to invest in areas where coca is being produced; 3) Investigation for the Advantageous Use of Coca: A national commission will be created to investigate the therapeutical, nutritive, and industrial properties of coca; 4) Production for Traditional and Industrial Use: The demand for coca for traditional consumption and for legal use will be covered by assigning appropriate reserve zones, preferably in the areas in which coca has been traditionally produced; 5) Environment Preservation: The environmental deterioration process, caused by expanded coca farming, will be controlled by promoting the recovery and preservation of biological diversity of the affected ecosystems and of those that are being jeopardized, through adoption of environmental balance measures; 6) Monitoring of Land Dedicated to Production of Coca and Other Drug-Producing Plants: The state will have permanent, updated information of the land dedicated to the production of plants from which narcotics are obtained, through remote sensoring methods, photogrammetry, and surveying work; 7) Development of the Higher Andean Regions Abandoned by the Population: These areas will be developed in order to prevent the migration of their inhabitants to coca producing areas; 8) The National System for Control and Repression of the Production and Illegal Trafficking of Drugs, and of Related Crimes: National efforts will be strengthened and coordinated with a view to controlling and repressing the production and illegal trafficking of drugs, the improper use of precursors and specific chemicals, the laundering of money and transferring of funds, and the smuggling of arms, explosives and related activities, in order to facilitate the timely enforcement of the law. To this end, the National Control and Repression System and Subsystems will be created; 9) Control of Production and Illegal Drug Trafficking: A subsystem will be created to coordinate national efforts in the control of the production and illegal trafficking of drugs; 10) Control Over Improper Uses of Precursors and Specific Chemicals: Efforts by the national institutions that control precursors and specific chemicals will be coordinated; 11) Laundering Money and Transferring Funds: National efforts to control the laundering of money and the transfer of funds will be coordinated; 12) Smuggling of Arms and Explosives: National efforts to control the smuggling of arms and explosives will be coordinated; 13) Action against Corruption: Corruption will be controlled in the work of the agents in charge of supervision and who use their influential position in the structure of the state and in financial institutions to favor the illegal trafficking of drugs; 14) Comprehensive Prevention: A Comprehensive Prevention Program will be developed, based on complete epidemiologic studies, to meet school curricular requirements but--with creative versatility--and to encourage people to adopt prevention as a permanent attitude against drugs; 15) Treatment and Rehabilitation: A national treatment program will be developed based on the real needs of the affected population using classical and alternative methods; 16) The Consequences of Acquiescence: A reduction will be sought in the social consequences of drug abuse--including accidents, the committing of crimes, labor losses, family disintegration, and public health associated with the use of drugs; 17) Information Pertaining To Use: Timely information, collected by the state, will be available on levels of the excessive use of drugs in the country; 18) The Role of the Media: The media will participate in the national effort to reduce the supply and demand, and in the repression of the illegal traffic of drugs and connected crimes; 19) The Institutional Framework: A national system will be implemented to handle the drug problem, to plan, coordinate, and execute the government's antidrug policy. The National System for the Prevention and Control of Drugs will be created to direct the resources in the fight against the various aspects of this matter; 20) Juridical Development: National legislation will be harmonized, seeking to standardize state policies on the various aspects of the phenomena with the directives and guidelines contained in the approved national plan and with agreements and declarations signed by Peru; 21) International Action: Contributions will be made to the international community effort toward the appropriate handling of the drug issue--a universal problem as acknowledged in international instruments signed by Peru. This will be achieved by paying special attention to the way the phenomena is characterized in our country, and by improving and implementing agreements and mechanisms with other nations and with specialized international organizations under the general principles of shared responsibility and comprehensive action, yet respecting the norms of international law and the principles that support it; b. The methodical development of specific objectives will be complemented with appropriate policies and strategies, including the necessary directives for planning and programming. It will also permit the clear defining of the institutions that will participate in the process. 5. Interconnected Plans and Programs a. The National Plan for the Prevention and Control of Drugs will begin a process of planning and programing through the following documents: 1) The National Program for Alternative Development; 2) The National Program for the Participation of the National Business Sector; 3) The National Program for Investigating the Beneficial Uses of Coca; 4) The National Program for Allocating Areas for the Legal Production of Coca; 5) The National Program for Obtaining Land Ownership Information and Monitoring Cultivation; 6) The National Program for the Development of the Higher Andean Region; 7) The National Program for the Repression of Drug Trafficking and Related Crimes; 8) The National Program for Integral Prevention of Drug Abuse, and Treatment and Rehabilitation of Drug Addicts; 9) The National Program for the Reduction of Social Consequences Resulting from Drug Addiction. 6. Program Goals The goals of the program are tentative and should be redefined at the beginning of the second phase of the planning process. a. 1994: -- The publication of the National Plan for Drugs Prevention and Control; -- The publication of the law creating the National Drugs Control System; -- The establishment of the National Drugs Control System; -- The implementation of the planning and programming process provided for in the National Plan for Drugs Prevention and Control. b. 1995: -- The conclusion of the Initial Planning and Programming Process provided for in the National Plan for Drugs Prevention and Control; -- The implementation of the Alternative Development National Plan for the gradual reduction of illegal coca plantations; -- The setting up and implementation of the National System for the Control and Repression of Production and Illegal Drug Trafficking and Related Crimes at a National Level; -- The institutional participation of the representatives of the private sector in the National Drugs Control System; -- The drafting of the National Drugs Law; -- The identification of priority areas for conservation, according to the environment law; -- The assessment of the national public and private sector's capability to treat and rehabilitate drug addicts. c. 1996: -- The assessment of the fulfillment of the National Alternative Development Program, implemented in 1995; -- The definition of areas earmarked for legal coca production; -- The conclusion of the Coca Leaf Studies and Investigation Program; -- The culmination of the registration of plantations; -- The beginning of a nationwide campaign to reduce unnecessary consumption of legal drugs (alcohol, tobacco, medicines); -- The culmination of the studies for a comprehensive law. d. 1997: -- The assessment of feedback on the National Alternative Development Program; -- The assessment of feedback on the National System for the Control and Repression of Illegal Drugs Production and Trafficking. e. 1998: -- The assessment of feedback on the National Alternative Development Program; -- The assessment of feedback on the National System for the Control and Repression of Illegal Drugs Production and Trafficking. f. 1999: -- The Assessment of feedback on the National Alternative Development Program; -- The assessment of feedback on the National System for the Control and Repression of Illegal Drugs Production and Trafficking. g. 2000: -- The involvement of at least 50 percent of the peasants engaged in the production of coca for non-traditional purposes in legal activities under the Alternative Development programs; -- The reduction of community dependency where 50 percent of the population's income is generated from drug consumption.