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.