US embassy cable - 05MINSK1487

UNCLAS MINSK 001487 
 
SIPDIS 
 
SIPDIS 
 
Justice for OIA, AFMLS, and NDDS 
Treasury for FinCen 
DEA for Oils and Officer of Diversion Control 
For INL 
 
E.O. 12958: N/A 
TAGS: PGOV, PHUM, BO 
SUBJECT: INCSR Part I from Belarus 
 
 
1. I. Summary. 
Belarus continues to grow in importance as a transit country 
for drugs. Local drug use and drug-related crime rates 
continue to increase. Belarus does not produce drugs for 
export, though it may be a source of precursor chemicals. 
With the help of other nations and organizations, Belarus is 
improving its efforts to combat drug abuse and trafficking, 
but corruption, and lack of organization, funding and 
equipment continue to hinder progress. Belarus is a 
recipient of the EU/UNDP program BUMAD (Belarus, Ukraine, 
Moldova Anti-Drug Programme), which seeks to reduce 
trafficking of drugs into the European Union. The program, 
which just launched phase two of its three part project, 
seeks to develop systems of prevention and monitoring, 
improve the legal framework, and provide training and 
equipment. It is the most significant counter narcotics 
program in Belarus at this time.  Belarus is a party to the 
1988 UN Drug Convention. 
2. II. Status of Country. 
Drugs increasingly transit Belarus on their way to points 
east, west and north due to Belarus' porous borders and good 
railway and road system. This trade is facilitated by 
Belarus' customs union with Russia, and the resultant lack 
of border controls between Belarus and Russia.  The 
formation of the Eurasian Economic Community (Belarus, 
Russia, Kazakhstan, Kyrgyz Republic, and Tajikistan) has the 
potential to create a broader border-free area, which would 
facilitate all types of trafficking. 
3. There is no evidence of large-scale drug production in 
Belarus.  Belarus, however, has all the resources necessary 
for the production of synthetic narcotics and lack of 
controls, which lead to such production elsewhere. The 
chemical industry, completely government owned, is allowed 
to police itself. According to law enforcement officials in 
neighboring countries, Belarus is a source of precursor 
chemicals, but officials in Belarus deny this. 
4. III. Country Actions Against Drugs in 2005 
 
Policy Initiatives.  Belarus' counter narcotics strategy - 
The State Program of Complex Measures Against Drug and 
Psychotropic Substances Abuse and Their Illicit Trafficking 
for 2001-2005 - expires this year.  Although never fully 
implemented, this program aimed to launch preventative and 
rehabilitation strategies and to suppress illegal 
trafficking.  Government officials confess, however, that 
the program lacks details of implementation, timeframes, as 
well as sufficient financial support. The Ministry of 
Interior has primary responsibility for its implementation, 
which was never entirely completed. Other institutions 
involved in reducing drug demand include the Ministry of 
Health, Ministry of Foreign Affairs, Ministry of Education, 
Committee on State Security (BKGB), and the State Customs 
Committee.  The program will not be renewed.  Instead, drug 
abuse prevention will be incorporated into the Belarusian 
government's overall national program against crime. 
 
5. While interdepartmental rivalry profoundly inhibits 
cooperation, Belarus has made some strides in restructuring 
government agencies to enhance information gathering on 
drugs.  Under the Ministry of Health, the government of 
Belarus created a the legal framework for a National 
Observatory on Drugs, which aims to link 19 government 
agencies in order to collect and analyze non-medical drug 
data. 
 
6. In an effort to combat drug trafficking on a regional 
level, the Collective Security Treaty Organization launched 
the first stage of the international anti-crime operation 
"Channel 2005" in Belarus.  This cooperative effort between 
CIS law enforcement officials resulted in the seizure of 
more than 80 kg of narcotics in Belarus in October. 
 
7.  Accomplishments.   While Belarus does not face 
production or cultivation problems, drug use and transit 
issues must be addressed before Belarus is in full 
compliance with the UN 1988 Drug Convention.  Government 
agencies have proposed a set of amendments on drug control 
to the Belarusian Criminal Code to be included in the 
national law drafting annual plan for 2006.  If the 
amendments are accepted without change, the legislation will 
bring Belarus fully in line with the 1988 Drug Convention. 
8. Law Enforcement Efforts. From January 1 to November 1, 
2005, 2,735 people committed 4,707 drug-related crimes. 
Authorities seized 907 kilograms of drugs during that same 
time period, but experts, including government officials, 
agree that this quantity fails to reflect the real quantity 
of drugs transiting or used in Belarus. Official seizure 
figures do not reflect the reality of the problem, as it is 
assumed most drugs transit Belarus undetected. Neighboring 
countries reported an increase in drugs that came from or 
passed through Belarus. 
9. Enforcement efforts suffer from lack of communication and 
coordination among agencies.  For example, State Security 
Services refused to allow law enforcement agencies to use a 
BUMAD-sponsored software program to enhance information 
sharing.  It is the same program that other BUMAD recipients 
have already adopted and implemented. 
 
10. Belarusian border guards lack the training, and in many 
cases the equipment to conduct effective services. 
International assistance programs have tried to alleviate 
this problem, but insufficient supplies and training still 
plague law enforcement officials' work. 
 
11. Despite these resource problems, the majority of 
government officials take seriously their efforts to combat 
drug smuggling. By all accounts officials involved in 
combating drug trafficking cooperate well with their 
colleagues in neighboring countries.  For example, the lack 
of a border control between Belarus and Russia creates an 
easy drug smuggling route.  In recognition of this problem, 
police officials from both countries met in October to 
discuss ways to more effectively stop drug trafficking 
across the shared border. 
12. The total amount of drug seizures has declined since 
last year.  Drugs seized from January 1-November 1, 2005 (in 
kilograms) are as follows: Poppy Straw (608); Marijuana 
(167); Extraction Opium (74.8); Heroin (26.7); 
Amphetamine/Methamphetamine (18.9); Acetylated Opium (liquid 
heroin) (6.0); Hashish (4.4); Cocaine (2.0); Hallucinogens 
(1.2); Methadone (1.1); Depressants (1.0); All Other Drugs 
(under one kilogram). 
13. Belarus continues to have problems with abuse of the 
extract from poppy straw, which is very popular in Ukraine, 
Russia, and Belarus. Poppy straw was again the drug seized 
in greatest quantity in 2005 - 608 kilograms. There is, 
however, no evidence of large-scale production of poppies 
for export.  Heroin seizures have skyrocketed after three 
years of steady decline; this year police seized 26.7 
kilograms, which is a 1000 percent increase from 2004. 
Despite their higher prices, synthetic drugs are growing in 
popularity due to their longer lasting effects.  In 2005, 
authorities seized 1.1 kilograms of methadone, compared to 
682 grams in 2004. 
14. Corruption. Corruption is a problem among border and 
customs officials, which makes interdiction of narcotics 
difficult.   An anti-corruption bill that has been voted 
down two times last year was removed from the legislative 
agenda in 2005.  The government did not accept any of the 60 
proposals in the bill, which included prosecuting 
presidential candidates and public servants for corruption. 
15. In an effort to curb corruption, however, Belarus is in 
the process of ratifying the 1999 Council of Europe Civil 
Law Convention on Corruption.  This bill would guarantee 
compensation to those who suffer damages as a result of 
corruption.  Moreover, if a public official commits the 
corrupt act, this legislation mandates that the government 
is liable for providing compensation. 
16. Agreements and Treaties. Belarus is a party to the 1988 
UN Drug Convention, the 1961 UN Single Convention on 
Narcotic Drugs, as amended by the 1972 Protocol, and the 
1971 UN Convention on Psychotropic Substances. Belarus is a 
party to the UN Convention against Transnational Organized 
Crime and its three protocols. 
17. The international donor community has had repeated 
difficulties in getting assistance programs registered by 
the government. In September, a presidential edict greatly 
restricted all foreign technical assistance, making it 
nearly impossible to introduce and utilize international aid 
in Belarus.  There have also been attempts by the Belarusian 
government to tax foreign aid, despite international 
agreements. These problems have slowed the implementation of 
international assistance programs.  For example, it took 
several months to register the second part of BUMAD, which 
resulted in an interruption in program activities and a 
delayed launch of the second phase. 
18. Cultivation/Production. There is no confirmed drug 
cultivation or production in Belarus.  Belarus, however, 
does possess the resources necessary to produce precursor 
chemicals.  Neighboring countries allege that Belarus is a 
source of precursor chemicals, but Belarusian authorities 
deny this accusation. 
19. Drug Flow/Transit.  Most heavy drugs, especially heroin, 
enter Belarus from Russia. Drugs enter Belarus from Russia, 
Ukraine (Semi-refined Opium); the Baltic states, the 
Netherlands, Poland (Amphetamines); Afghanistan, Caucasian 
republics, Pakistan, Russia, Tajikistan, Turkmenistan, 
Ukraine (Heroin); Caucasian republics, Ukraine (Marijuana); 
Russia (Methadone); Ukraine (Poppy Straw). 
 
20. Drugs transit Belarus to Poland, Russia (Amphetamines); 
Russia, Western Europe (Heroin); Lithuania, Russia 
(Marijuana, Poppy Straw); Poland, Russia (Precursors); 
Baltic states, Russia (Rohypnol). 
 
21. The Government of Belarus is not operating any 
significant programs particularly aimed at combating 
trafficking. Belarusian border guards lack the training, and 
in many cases the equipment, to conduct effective searches. 
The BUMAD program is attempting to improve Belarus' border 
checkpoints and the training of law enforcement personnel. 
Resource shortages plague the government's efforts in this 
area. 
22. Domestic Programs (Demand Reduction). Belarus still 
lacks an effective system of counter narcotics education, 
though such programs occur at the local level with varying 
degrees of success. Police officers who work with juvenile 
crime run drug prevention programs in schools, but lack 
sufficient training, resources, and nation-wide coordination 
of curriculum. The BUMAD program aims to formulate a 
national curriculum and provide training.  This year, BUMAD 
and the GOB launched an anti-drug information campaign - You 
and Me Against Drugs - targeted at youth in Minsk and in the 
regions.  Their information campaign included pamphlet 
distribution, lectures at organized sporting events and the 
creation of an informational anti-drug video with famnus 
Belarusian athletes.  In addition, the BUMAD-sponsored NGO 
Mothers Against Drugs (MAD) won the 2005 UN Civil Sochety 
Award for its work on developing and implementing drug 
prevention programs among Belarusian youth, including 
counseling services, HIV awareness programs, and self-help 
groups for addicts and their family members. 
23. According to official data, there are approximately 
6,100 registered drug addicts in Belarus and 1,250 
registered drug abusers. Belarusian experts, however, 
estimate the real number at 55,000.  The many unregistered 
addicts fear consequences at work, school, and in society if 
their addiction becomes known. Drug use is heavily 
criminalized and highly stigmatized by government and in 
society. The exception is among youth, who have ready access 
to narcotics at dance clubs, university dormitories and 
educational facilities. 
24. Treatment of drug addicts is generally done in 
psychiatric hospitals, either as a result of court remand or 
self-enrollment, or in prisons. The emphasis of all programs 
is only detoxification and stabilization. NGOs run six 
rehabilitation centers, which attempt to provide long-term 
care, including psychological assistance and job training. 
Financial limitations constrain the breadth of these 
programs. BUMAD has successfully launched several "Your 
Choice" one-stop counseling centers in Belarus this year. 
These centers help injection drug users find medical care, 
information, and counseling at no cost. 
25. IV. U.S. Policy Initiatives and Programs 
The USG has not provided narcotics/justice sector assistance 
to the GOB since February 1997 when the USG suspended all 
direct assistance to the Belarusian government. 
26. The Road Ahead. The USG will continue to encourage 
Belarus authorities to enforce their counter narcotics laws. 
 
KROL