UNCLAS PANAMA 000881
FOR INL/LP - Crook AND INL/AAE - LYLE
E.O. 12958: N/A
TAGS: SNAR, PM
SUBJECT: DRAFT 2008-2009 INTERNATIONAL NARCOTICS CONTROL STRATEGY
REPORT (INCSR) FOR PANAMA: PART I, DRUGS AND CHEMICAL CONTROL
DIVERSION CONTROL
REF: STATE 137250
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Summary
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1. By virtue of its geographic position and well-developed maritime
and transportation infrastructure, Panama is a major logistics
control and trans-shipment country for illegal drugs to the United
States and Europe. Major Colombian and Mexican cartels as well as
Colombian FTOs such as the Revolutionary Armed Forces of Colombia
(FARC), and paramilitary remnants of the United Self-Defenses of
Colombia (AUC) use Panama for drug trafficking and money laundering
purposes. The Torrijos Administration has cooperated vigorously
with the U.S. and, to a lesser extent, with its regional neighbors
on counter-narcotics operations. In 2008, seizure levels remain very
high with over 40 tons of Cocaine having been seized so far this
year. U.S. support to Panama's counter-narcotics efforts, including
developing an effective community policing model to help control a
nascent gang problem, is crucial to ensure fulfillment of agency
missions. Panama is a party to the 1988 United Nations Drug
Convention.
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Status of Country
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2. Panama's geographic proximity to the South American cocaine and
heroin producing countries makes it an important trans-shipment
point for narcotics destined for the U.S. and other global markets.
Panama's four major containerized seaports, the Pan-American
Highway, a rapidly growing international hub airport (Tocumen),
numerous uncontrolled airfields, and relatively unguarded coastlines
on both the Atlantic and Pacific all facilitate drug movement.
Smuggling of weapons and drugs continues to take place, particularly
between Colombia and the isolated Darien region, the Azuero
peninsula and the sparsely populated Caribbean coastal areas. The
flow of illicit drugs has contributed to increasing domestic drug
abuse and gang violence, and Panamanian authorities attributed the
majority of murders to revenge killings between traffickers. Panama
is not a significant producer of drugs or precursor chemicals.
However, limited amounts of cannabis are cultivated for local
consumption.
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Country Actions Against Drugs in 2008
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3. Country Actions Against Drugs in 2008:
--Policy Initiatives: The Torrijos Administration is strongly
committed to counter-narcotics and anti-crime cooperation with the
U.S. Panama participated in the U.S.-Central American Integration
System (SICA) security dialogue. Panama passed a law reforming the
criminal system from a written (inquisitorial) system to a largely
oral (accusatorial) system. The accusatorial system will be
implemented over a several year period. The first province to switch
will be Cocle in late 2009, and Panama will be the last province to
adopt the new system in 2014. The GOP passed laws by decree in
August that reformed the organization of the security apparatus,
eliciting strong opposition from some media, civil society and
opposition political leaders, who claimed the government was
attempting to "re-militarize" the country. Among the reforms was the
merger of the National Air Service (SAN) and the National Maritime
Service (SMN) into one "Coast Guard"-like service to be called the
National Aero-Naval Service (SENAN) that will become official on 22
November and require heavy investment to make the new service
operational. The GOP also passed a reform that separates the
frontier police from the National police (PNP), as of November,
creating an independent National Frontier Service (SENAFRONT). This
reform will be less traumatic, as the frontier force already existed
as a separate force (DINAFRONT). Early in 2008, another reform
folded the Technical Judicial Police (PTJ) into the National Police
investigative division, creating the new Division of Judicial
Investigations (DIJ). A separate intelligence directorate known as
DIP still remains a separate function under the PNP. The forensic
investigation responsibilities remained with the Public Ministry and
Attorney General's office. In 2008, Panama for a second straight
year, carried out a successful table-top exercise (Panamax Alpha) to
address asymmetrical threats to the Panama Canal.
--Accomplishments: USG law enforcement agencies continued to enjoy a
cooperative relationship with GOP counterparts in narcotics-related
criminal matters. Cocaine seizures are over 40 tons in 2008 and
arguably are the most significant in the region. International
drug-related arrests also remain strong. Our extradition
relationship with Panama is efficient and fluid. Several sensitive
vetted units continue to operate with impressive results.
--Law Enforcement Efforts: Drug Enforcement Administration
(DEA)-monitored statistics for 2008 indicate seizures of over 40.5
metric tons (MT) of cocaine, 17 kg of heroin, and 126 arrests for
international drug-related offenses. Several USG-supported GOP
sensitive units were fortified with equipment and increased
personnel in 2008. The SMN cooperates with the U.S. Coast Guard
(USCG) requests for ship registry data, and provides officers to
serve aboard USCG cutters as "ship riders," allowing USCG to patrol
Panamanian waters under Panamanian control. The SAN also provides
excellent support for counter-narcotics operations within its
limited means, including patrolling and photographing suspect areas,
identifying suspect aircraft. The newly formed "ICE vetted unit"
began operating in the summer of 2008. The unit will focus on
international crimes other than drug trafficking. So far they have
assisted in capturing U.S. fugitives, pedophiles and other criminals
escaping justice from the US and other countries. The Government of
Panama has staffed the U.S.-funded Guabala checkpoint (inaugurated
in early 2006) on the Pan-American Highway, and the national police
deploy mobile road blocks throughout the country targeting land
based movements of drugs.
--Corruption: President Torrijos's administration, through its
National Anti-Corruption Commission, charged with coordinating the
government's anticorruption activities, continued to audit
government accounts and launch investigations into major public
corruption cases. Several government ministries established
transparent, automated procedures to minimize opportunities for
corruption (e.g., for registering a business, preparing a shipment
for export). Despite the Torrijos Administration's public stance on
corruption, few high-profile cases, particularly involving political
or business elites, have been acted upon. Currently, one high-level
police commissioner is under investigation for fraud and other
charges. A USG-funded "Culture of Lawfulness" program, designed to
encourage officers to fight against corruption within the police,
has produced 10 trainers with the National Police, and Post
anticipate training 10 more in the coming year. This program is
being combined with an aggressive effort to implement a community
policing program with the PNP. Sixty-seven different police
districts in Panama City are each going to develop a "citizen's
security" group that will work with police, evaluate their
performance and address security issues within their communities.
The first group is being developed in the San Miquelito District
which is one of the higher crime areas in Panama.
--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 1972 Protocol, and the 1971 UN Convention on
Psychotropic Substances. A mutual legal assistance treaty and an
extradition treaty are in force between the U.S. and Panama,
although the Constitution does not permit extradition of Panamanian
nationals. A Customs Mutual Assistance Agreement and a stolen
vehicles treaty are also in force. In 2002, the USG and GOP
concluded a comprehensive maritime interdiction agreement. 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 OAS and is a party to the
Inter-American Convention on Mutual Assistance in Criminal Matters
and the Inter-American Convention Against Corruption. Panama is an
active participant in the U.S.-SICA security dialogue.
--Cultivation and Production: There have been no confirmed reports
of cocaine laboratories in Panama since 1994. Limited cannabis
cultivation, principally for domestic consumption, exists in Panama,
particularly in the Pearl Islands.
--Precursor Chemicals: Panama is not a significant producer or
consumer of chemicals used in processing illegal drugs. However, it
is believed that some chemicals transit the Colon Free Zone (CFZ)
for other countries. The Panamanian agencies responsible for
chemical control are the National Drug Control Council (CONAPRED)
and the Ministry of Health. Legislation to strengthen Panama's
chemical control regime was signed by President Torrijos in 2005.
The new legislation created a chemical control unit. With the new
precursor chemical control legislation in place, focus shifted in
2007 towards capacity building to implement the new laws. A working
visit by DEA officials and participation in DEA's operation "seis
fronteras" has assisted Panama in identifying a list of suspicious
companies from approximately 675 chemical handlers. The Chemical
Control Unit also coordinated with the PNP Narcotics Unit to conduct
the necessary enforcement operations. The GOP also improved its
ability to combat precursor chemical diversion through training and
by conducting joint investigations with the DEA in 2008. So far
though, no significant seizures or violations have been reported.
--Drug Flow/Transit: Panama remains an important territory for the
transit and distribution of South American cocaine and heroin, as
indicated by the more than 40 MT of cocaine seized thus far in 2008.
Drugs were moved in fishing vessels, cargo ships, small aircraft,
and go-fast boats. Illegal airplanes utilize hundreds of abandoned
or unmonitored legal airstrips for refueling, pickups, and
deliveries. Panama's coastlines are used to store drugs for
continued shipment towards Mexico and to store fuel and supplies for
go fast boats making the runs. Couriers transiting Panama by
commercial air flights also moved cocaine and heroin to the U.S. and
Europe during 2008.
--Domestic Programs/Demand Reduction: Through CONAPRED, the GOP is
implementing a five-year counter-narcotics strategy that includes 29
demand reduction, drug education, and drug treatment projects for
2002 through 2007. The GOP has budgeted a total of $6.5 million to
fund the projects during the five-year period. MEDUCA and CONAPRED,
with USG support, promoted anti-drug training for teachers,
information programs, and supported the Ministry's National Drug
Information Center (CENAID).
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U.S. Policy Initiatives and Programs
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4. U.S. Policy Initiatives and Programs:
--Policy Initiatives: USG-supported programs focus on improving
Panama's ability to intercept, investigate, and prosecute illegal
drug trafficking and other transnational crimes; strengthening
Panama's judicial system; improving Panama's border security; and
ensuring strict enforcement of existing laws. The Narcotics Affairs
Section (NAS), DHS, Office of Defense Cooperation (ODC) and USCG
provided resources for modernization and upkeep of SMN and PNP
vessels and bases, and assisted the SAN with training personnel and
maintaining key aircraft for interdiction efforts. The USG provided
training and operational tools to the multi-agency Tocumen Airport
Drug Interdiction Law Enforcement Team. NAS coordinated training
for Tactical Law Enforcement procedures, internal affairs and
Anti-Corruption investigations and crowd controls procedures. NAS
and CBP continue to organize operational evaluation teams of Border
Patrol Agents who work in the border areas with National Police. NAS
continues to develop a major law enforcement modernization project
with the PNP to develop its police leadership and implement
community-based policing procedures. The program focuses on many
pillars including proven community policing tactics, expansion of
existing crime analysis technology, and promotion of managerial
change to allow greater autonomy and accountability. NAS provided
computers, office equipment, and other necessary gear to several
offices within the Public Ministry.
--Bilateral Cooperation: The Torrijos Administration continued to
sustain joint counter-narcotics efforts with DEA and USCG, and
worked to strengthen national law enforcement institutions with
assistance from NAS. Maritime cooperation continued to be
excellent.
--The Road Ahead: The USG encourages Panama to devote sufficient
resources to enable its forces to patrol land borders along Colombia
and Costa Rica, its coastline, and the adjacent sea-lanes, and to
increase the number of arrests and prosecutions of major violators,
especially in the areas of corruption and money laundering. The USG
will continue to offer the GOP expertise and resources to strengthen
Panama's ability to safeguard its citizens, confront drug
traffickers, and ensure that law enforcement efforts are anchored in
democracy. The USG will also continue to support law enforcement
modernization through improved equipment, maintenance, strategic
planning, decentralization of decision making, and
community-oriented policing philosophies.
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Statistical Tables
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5. Drug Seizures and Arrests in Panama: Our 1996-2007 statistics
table was provided separately (emailed to INL/LP). 2008 statistics
will be provided by e-mail as well.
Stephenson