US embassy cable - 05PANAMA2375

UNCLAS SECTION 01 OF 04 PANAMA 002375 
 
SIPDIS 
 
DEPT FOR INL/LP AND WHA/CEN 
JUSTICE FOR OIA, AFMLS, AND NDDS 
TREASURY FOR FINCEN 
DEA FOR OILS AND OFFICE OF DIVERSION CONTROL 
 
E.O. 12958:  N/A 
TAGS: SNAR, PM, NAS 
SUBJECT:  2005-2006 INTERNATIONAL NARCOTICS CONTROL STRATEGY 
REPORT (INCSR)FOR PANAMA:  PART I, DRUGS AND CHEMICAL CONTROL 
DIVERSION CONTROL 
 
REF:  State 209560 
Panama 
I. Summary 
By virtue of its geographic position and well-developed 
transportation infrastructure, Panama is a major transshipment 
point for narcotics from the Andean Region to the United States 
and Europe. Cooperation between United States and Panamanian law 
enforcement agencies to stem this flow of narcotics, illegal 
firearms, and money, is excellent.  The Torrijos Administration 
has built upon its predecessor's policies of close cooperation 
with the United States and its other neighbors on security and 
law enforcement issues.  Panama's law enforcement agencies are 
being restructured to enhance their ability to fulfill their 
respective missions.  Assistance provided by the United States 
remains crucial to ensuring effective Panamanian law enforcement. 
Panama is a party to the 1988 United Nations drug convention. 
II. Status of Country 
Panama's geographic proximity to the Andean cocaine- and heroin- 
producing regions makes it an important transshipment point for 
narcotics destined for the United States. Although security in 
the Darien region bordering Colombia has improved in recent 
years, smuggling of weapons and drugs between the two countries 
continues.  Over the last year, Panamanian authorities have paid 
increased attention to security along Panama's border with Costa 
Rica.   Panama is also a major drug-transit hub due to its 
containerized seaports, the Pan-American Highway, an 
international hub airport, numerous uncontrolled airfields, and 
vast unguarded coastlines on both the Atlantic and Pacific 
oceans. The steady flow of cheap illicit drugs has taken a toll 
on Panamanian society by increasing domestic drug abuse, 
particularly among young people. The lucrative drug trade has 
also contributed to pervasive public corruption and has 
undermined the GOP's criminal justice system.  Panama is not a 
significant producer of drugs or precursor chemicals, however, 
cannabis is cultivated for local consumption, primarily within 
the Pearl Islands in the Gulf of Panama. 
III. Country Actions Against Drugs in 2005 
Policy Initiatives.   Since taking office in September 2004, the 
Torrijos Administration has adopted a broad policy of enhanced 
inter-agency coordination related to narcotics interdiction and 
related law enforcement activities.   This "integrated security" 
policy has led the government to look at ways of restructuring 
the security forces in order to enhance their effectiveness in 
countering narcotics trafficking and other transnational crime. 
Accomplishments.   Culminating a process begun in 2001, Panama's 
model chemical control legislation was approved in April 2005 
(see below).   Panama was an active participant in the Central 
American "IDEC" and participated in the DEA-organized "Operation 
Contralado" between August and October 2005.  In the most 
significant operation of the year, Panama's National Police 
seized four tons of cocaine in September 2005 from an area along 
the Atlantic Coast. 
Law Enforcement Efforts. USG law enforcement agencies enjoy a 
healthy and cooperative relationship with GOP counterparts in 
every aspect of narcotics-related criminal matters.  DEA- 
monitored statistics through mid November 2005 indicate seizures 
of 10,284.5 kilograms of cocaine, 37.6 kilograms of heroin, 
9,547.9 kilograms of cannabis $10,316,148 in currency seizures, 
and 259 arrests for international drug-related offenses.  Heroin 
seizures declined slightly since last year, while MDMA tablets 
and amphetamines were last seized in 2003, and Pseudoephedrine in 
2004.   Seizures of cocaine, cannabis and currency have risen 
considerably over the past year.   International drug-related 
arrests have increased slightly since last year.   As in recent 
years, many narcotics operations are intelligence-driven 
movements and are usually cooperative ventures between the GOP 
and the USG. 
The Public Ministry's Drug Prosecutor's Office (DPO) remains a 
respected entity for combating narcotics-related crimes and a 
principal coordinator of Panama's Public Forces' counternarcotics 
investigative resources. DPO cooperation with U.S. law 
enforcement agencies is excellent and extensive. The PNP's 
Directorate of Information and Intelligence (DIIP) and its Anti- 
Drug Sub-Directorate (DAD) are effective drug investigative 
units. 
The NAS-funded and DEA-supported Public Ministry/PTJ sensitive 
investigative unit, with authority to conduct investigations 
relative to major drug and money laundering organizations, 
continues to grow and regularly carries out operations. The PNP 
Mobile Inspection Unit and Paso Canoas Interdiction Enhancements, 
the International Airport Drug Task Force, and the Canine Unit 
continue to operate with USG support and have fielded major 
arrests and seizures. 
The National Maritime Service (SMN) enjoys good relationships 
with USG counterparts. The SMN responds to USG requests for 
boarding and interdictions, assisting the U.S. Coast Guard (USCG) 
with verifying ship registry data, and transferring prisoners and 
evidence to Panama for air transport to the United States. 
Despite the SMN's successes and cooperation, operations are 
threatened by a lack of resources, particularly fuel. There is 
concern that without USG assistance the SMN operational status 
may erode significantly. The SMN and National Air Service (SAN) 
have positive relations and annually team together to eradicate 
cannabis fields in the Pearl Islands. 
Despite limited air assets, the National Air Service (SAN) 
provides excellent support for counternarcotics operations when 
their resources are available. An example was the SAN's 
participation in Operation Sombra III, which was intended to 
identify clandestine airstrips. Another example was the SAN's 
involvement in an October 2005 seizure of 1880 KG of Cocaine 25 
miles north of Porvenir, Colon.    The SAN unit involved utilized 
warning and disabling shots to immobilize the suspect go-fast 
pending the arrival of maritime forces.  The SAN continues to 
respond to U.S. law enforcement requests to over-fly and 
photograph suspect areas and to identify suspect aircraft in 
flight or on the ground. The SAN provides logistical support in 
the transfer of detainees and drug evidence through Panama to 
U.S. jurisdiction. 
The SAN-SMN relationship continues to grow in a positive 
direction. The Government is currently exploring the possibility 
of merging the two forces into a "Coast Guard."   The PNP are 
also in the process of developing a specialized border force. 
Overall, Panama's Public Forces will receive  modest budgetary 
increases in 2006. 
Cultivation and Production. Joint DEA-SAN aerial reconnaissance 
efforts indicate small-scale coca cultivation.   There have been 
no confirmed reports of cocaine laboratories in Panama since 1993- 
94. GOP resource constraints, triple-canopy jungle, and the 
presence of heavily armed Colombian insurgents in the region have 
prevented crop eradication. Limited cannabis cultivation, 
principally for domestic consumption, exists in Panama, 
particularly in the Pearl Islands. The SMN, SAN, and PNP 
cooperate effectively to eradicate these crops. 
Precursor Chemicals. Panama is not a significant producer or 
consumer of chemicals used in processing illegal drugs. However, 
it is believed that a significant volume of chemicals transits 
the Colon Free Zone for other countries. Legislation to 
strengthen Panama's chemical control regime was approved by the 
National Assembly and signed by President Torrijos in April 2005. 
The last known seizure of pseudoephedrine in January 2004 totaled 
3,006,430 tablets.   With the new precursor chemical control 
legislation in place, focus has shifted towards capacity building 
to assist in implementation of the new laws. 
Drug Flow/Transit. Panama remains an integral territory for the 
transit and distribution of South American cocaine, heroin, and 
Ecstasy. These drugs are moved in a variety of modes: traffickers 
primarily use fishing vessels, cargo ships, small aircraft, and 
go-fast boats. These vehicles often refuel or exchange goods in 
or near Panama. Goods exchanged from sea borne mediums to land 
are loaded onto trucks for a northbound journey via the Pan- 
American Highway or placed in sea-freight containers near the 
Panama Canal for transport on cargo vessels. Illegal airplanes 
utilize hundreds of abandoned or unmonitored legal airstrips for 
refueling, pickups, and deliveries. Couriers transiting Panama by 
commercial air flights continued to move cocaine, as well as 
heroin, to the United States and Europe during 2005.   European 
law enforcement agencies have detected an increase in cocaine 
trafficking via direct flights from Panama City to Madrid. 
Domestic Programs (Demand Reduction). CONAPRED's five-year 
counternarcotics strategy identifies 29 demand reduction, drug 
education, and drug treatment projects to be funded between 2002 
and 2007 at a cost of U.S. $6.5 million. In 2005,CONAPRED funded 
seven demand reduction projects with a total cost of $924,700 
(Somos Triunfadores with MEDUC and First lady Office $475,000, 
MIDES Anti-Drug and Violence projects $29,500, Treatment projects 
with Centro Juvenil Vicentino CEJUVI $30,500, Instituto de Salud 
Mental $30,000, Cruz Blanca $59,700, Hogares Crea $250,000, 
Centro Nueva Vida $50,000).  CONAPRED also funded law enforcement 
projects with the Drug Prosecutors' Office (Kuna Yala , Darien) 
$734,560, SMN $452,273 and training for the JICC $49,890. The 
Ministry of Education and CONAPRED-supported by U.S. 
funding-promoted demand reduction through training for teachers 
and information programs. NAS is assisting with the 
implementation of an August 2003 law that created a national drug 
prevention education program, which mandates inclusion of drug 
prevention in school curriculum. CONAPRED and the Embassy's NAS 
also supported the Ministry of Education's National Drug 
Information Center (CENAID). The PNP Juvenile Police, with NAS 
funding, implemented the DARE Program in Panama City public 
schools. 
Corruption. Corruption emerged as one of the primary issues in 
the 2004 Presidential campaign. As a result of the public's 
opinion on corruption, President Martin Torrijos ran a campaign 
based on purging corruption from the government. The new 
administration made several strides towards accomplishing this 
goal since taking office in September 2004, including auditing 
government accounts, and launching investigations into major 
public corruption cases.  Panama's national anticorruption 
commission is charged with coordinating the government's 
anticorruption activities.   With USAID assistance, the anti- 
corruption commission developed a strategic plan in 2005.   A NAS- 
funded "Culture of Lawfulness" program is also being developed 
with the Ministry of Education, the National Police, and PTJ. 
In 2005, the head of the PTJ anti-narcotics unit was arrested and 
charged with involvement in narcotics trafficking. 
Agreements and Treaties. Panama is a party to the 1988 UN Drug 
Convention, the 1961 UN Single Convention on Narcotics Drugs, as 
amended by the 1982 Protocol, and the 1971 UN Convention on 
Psychotropic Substances. A mutual legal assistance treaty and an 
extradition treaty are in force between the United States and 
Panama, although the Panamanian constitution does not permit 
extradition of Panamanian nationals. A Customs Mutual Assistance 
Agreement and a stolen vehicles treaty are also in force. In 
2002, a comprehensive maritime interdiction agreement between the 
USG and GOP entered into force. Panama has bilateral agreements 
on drug trafficking with the United Kingdom, Colombia, Mexico, 
Cuba, and Peru. Panama is a party to the UN Convention Against 
Transnational Organized Crime and its three protocols, and is a 
signatory to the UN Convention Against Corruption. Panama is a 
member of the Organization of American States and is a party to 
the Inter-American Convention on Mutual Assistance in Criminal 
Matters and the Inter-American Convention Against Corruption. 
IV. U.S. Policy Initiatives and Programs 
Policy Initiatives. The United States provided crucial equipment, 
training, and information to enhance the performance of GOP 
counternarcotics, public force, and law enforcement institutions 
in 2005. These U.S.-supported programs are aimed at improving 
Panama's ability to intercept, investigate, and prosecute illegal 
drug trafficking and other transnational crimes; strengthening 
Panama's judicial system; assisting Panama to implement domestic 
demand reduction programs; encouraging the enactment and 
implementation of effective laws governing precursor chemicals 
and corruption; improving Panama's border security; and ensuring 
strict enforcement of existing Panamanian laws. 
NAS is implementing a law enforcement modernization project that 
has the goal of professionalizing the Panamanian National Police. 
The key pillars of the project involve implementing community 
policing in Panama, expanding existing crime analysis technology 
and promoting managerial change to allow greater autonomy and 
accountability to develop best practices among local police 
commanders. 
Years of support to the SMN, including donations of equipment and 
regular USCG training contributed to the 2005 SMN successes. The 
SMN accounted for approximately 18 percent of Panama's total 
cocaine seizures last year. Aside from equipment for the 180-foot 
SMN ship, NAS also continued refurbishing "go fast" boats for the 
SMN. 
The United States has provided Panamanian Customs with training, 
operational tools, and a canine program that has become a 
linchpin of the Tocumen International Airport Drug Interdiction 
Law Enforcement Team.    During 2005, the canine program was 
dramatically expanded, allowing it to operate outside the 
confines of the airport. 
In 2005 the USG, through the NAS and DHS/ICE, assisted the GOP in 
upgrading the Public Ministry's Anti-Corruption prosecutor's 
office. NAS supplied training, computers, office equipment, and 
other necessary gear. 
Bilateral Cooperation. The Torrijos Administration continues to 
maintain close cooperation with the U.S. by sustaining joint 
counternarcotics efforts with the DEA and by strengthening 
national law enforcement institutions.  DEA Administrator Karen 
Tandy visited Panama in June 2005, and FBI Director Robert 
Mueller visited in October.    The maritime interdiction 
agreement has facilitated enhanced cooperation in maritime 
interdiction efforts, with Panama playing a vital role in 
facilitating the transfer of prisoners and evidence to the United 
States. 
The Road Ahead. The GOP continues to demonstrate its commitment 
to build strong law enforcement institutions and deter the flow 
of narcotics northward. The U.S. will continue to encourage 
Panama to devote sufficient resources to enable its forces to 
patrol fully the land borders, the Panamanian coastline, and the 
adjacent sea-lanes, rendering them inhospitable to illicit arms 
and narcotics traffic. The U.S. is encouraging the development of 
a risk assessment group within Customs, which should begin 
operation in 2005. 
The USG will continue to work with the GOP to help strengthen 
Panama's ability to deter trafficking in drugs by providing 
training and equipment. The United States will also continue to 
work with the GOP to help strengthen Panama's law enforcement and 
public forces institutional capacity and will provide assistance 
to Panama to support criminal justice reform, as well as 
anticrime and anticorruption efforts. 
EATON