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U.S. Department of State
1996 International Narcotics Control Strategy Report, March 1997
United States Department of State
Bureau for International Narcotics and Law Enforcement Affairs
UKRAINE
I. Summary
Drug trafficking, abuse, and cultivation increased in Ukraine in 1996.
Ukraine's role as a conduit for drug smuggling from Central Asia and Turkey to
Europe was reflected in over 36 mt of narcotics seized in the first ten months
of the year. According to Ukraine officials, organized crime groups
increasingly are involved in the domestic cultivation of opium poppy and
cannabis, both of which are illegal. Meanwhile, drug abuse appears to be on
the rise. The Government of Ukraine (GOU) has begun to take steps to counter
the drug problem. Ukraine is a party to the 1988 UN Convention and adopted
several laws in 1994 and 1995 to implement the Convention, including asset
seizure and forfeiture legislation. Moreover, the GOU has accelerated
antidrug law enforcement cooperation with many of its neighbors and Western
Europe. These positive steps have been made despite challenges to the GOU
counterdrug efforts from inadequate coordination, lack of financial resources,
and the relatively low priority assigned by the government to the issue.
II. Status of Country
Ukraine's location and traditional role as an opium poppy producer attracts
drug interests, as reflected in the increase in domestic drug arrests and
seizures on Ukraine's borders. According to GOU estimates, 35,000 criminal
cases involving narcotics were brought to court in 1996, and an additional
22,000 individuals were fined. The number of registered drug addicts was over
60,000 by end-1996, up from only 8,000 in 1992. The number of unregistered
addicts is estimated at close to 500,000. Ukrainian efforts to combat these
trends are plagued by low pay among law enforcement personnel, and by the lack
of resources available for the fight against drugs.
Authorities believe that small organized gangs control most of the domestic
drug activities in Ukraine. One Ukraine official estimated that there are
about 480 such drug operations producing and distributing opium poppy straw
and other drugs in the eastern cities of Kharkiv, Dnipropetrovsk, and Donetsk.
Most of these gangs are from Ukraine or from Central Asia and the
Transcaucasian states.
Ukraine was once a source of licit poppy straw for the Soviet Union. While
the government outlawed most opium poppy cultivation in 1987, authorities
still discover cultivation. Ukraine authorities also indicate increased
discoveries of amphetamine processing laboratories. Although GOU authorities
did not report any major chemical seizures this year, officials indicated that
traffickers shipped sizable cargoes destined for Southwest Asia for use in the
production of illicit narcotics such as heroin.
Drug smugglers use Ukraine as a conduit for smuggling drugs from Central Asia
and Afghanistan to Western Europe. In the first ten months of 1996, Ukrainian
authorities seized over 35 mt of illicit drugs, including hashish, opium poppy
straw, and amphetamines, compared to the seizure of 20 mt in the first half of
1995. Moreover, a recent case where Czech border guards intercepted a
shipment of 4.5 mt of marijuana, which transited Ukraine from Nigeria en
route to the Netherlands, underscores the increased use of Ukraine by
international drug traffickers. Russian officials claim to have confiscated
two mt of narcotics on the Ukrainian border over the last 10 months, and
believe Ukraine is the main source of narcotics for St. Petersburg. The
Ukrainians detained more than 700 foreign nationals on drug-related charges,
including a number of citizens of African and South Asian countries.
Ukrainian officials are concerned that drug traffickers may be exploiting the
Central Bank system to launder drug profits. Although there were indications
several years ago that Russian organized crime groups are involved in money
laundering in Crimea, authorities do not know the extent of money laundering
in Ukraine.
III. Country Actions Against Drugs in 1996
Policy Initiatives. The GOU antidrug campaign slowed in 1996 after
efforts the previous year to develop new antidrug legislation and a policy
framework to implement the 1988 UN Convention. To implement the legislation
and coordinate government efforts, however, the Cabinet of Ministers approved
a three-year national antidrug strategy and established a national
coordinating council. For 1996, the plan called for the allocation of funds
for medical research, drug detection equipment and an inter-agency drug data
bank; although the Ministry of Health conducted some training programs, a lack
of resources hampered implementation of most programs. Moreover, the MVD's
antidrug subunit, created in 1994, will soon face significant staff
reductions.
Enforcement Efforts. Although the GOU law enforcement programs are
understaffed and their personnel inexperienced, the Security Service of
Ukraine (SBU) and the Ministry of Interior (MVD) have made progress, including
the seizure of the 36 mt of narcotics in the first ten months of 1996, a
substantial increase over the amount seized in 1995. The police also
apprehended more than 5,500 drug dealers, and 1,500 criminal groups involved
in narcotics. Despite these successes, there is still a lack of coordination
among law enforcement agencies responsible for anti-narcotics activities which
hampers effective drug enforcement efforts.
Corruption. Ukrainian officials indicate that corruption is a major
problem, and hinders investment and broader economic reform. Nevertheless,
Ukrainian authorities have not reported any cases of narcotics-related
corruption, although the number of arrests of government officials involved in
corruption reportedly is increasing.
Agreements and Treaties. Ukraine is a party to the 1988 UN Convention,
the 1961 UN Single Convention on Narcotic Drugs, and the 1971 UN Convention on
Psychotropic Substances. The GOU is modifying its antidrug law to implement
the 1988 UN Convention. However, effective implementation will require
stricter controls on narcotics trafficking and production, more effective law
enforcement, and the application of new laws on asset seizure and forfeiture.
The GOU recently signed a bilateral narcotics control agreement with the UK
and has agreements to exchange antidrug officials with Poland, Hungary,
Romania, Bulgaria, and Russia.
Cultivation and Production. The GOU outlaws drug cultivation, except for
officially registered hemp and opium poppy crops, which are limited to 9,000
hectares in 176 farms; these are strictly monitored with police units
stationed in fields during harvest. However, Ukrainian officials believe that
there is an increase in illicit cultivation, primarily in western and northern
Ukraine; the police destroyed more than 4,500 hectares of illegal poppies, and
3,500 hectares of cannabis during the year. "Koknar," a homemade mixture of
boiled poppy straw that some experts believe causes the same effects as heroin
when injected, is produced throughout Ukraine. There also is increased
cannabis cultivation in southern Ukraine.
Domestic Programs. Although government officials have begun to acknowledge
growing drug abuse problems, there are only limited drug addiction treatment
programs. In the past, the police ran detoxification centers were because
drug abuse traditionally has been considered a criminal problem. Several
religious organizations now have programs in Ukraine and a US NGO has opened a
drug information center in Kiev. Moreover, Ukrainian officials are seeking
more support to target education efforts in schools.
IV. US Policy and Objectives.
Policy Initiatives and Bilateral Cooperation. The USG urged greater
attention to the drug issue. Efforts focused on identifying existing
problems, possible areas for assistance, and the need to implement the UN drug
conventions--particularly in the areas of interdiction and demand reduction.
Moreover, the USG encouraged antidrug assistance from those nations,
primarily in Western Europe, that are most directly affected by heroin
smuggling through Ukraine.
Against this backdrop, the USG provided assistance for several DEA regional
courses and Ukrainian participation in the Budapest international training
academy. The USG also earmarking contributions to the UNDCP for a law
enforcement and forensics program in Ukraine.
The Road Ahead. The USG will encourage the GOU to expand its drug control
activities and to establish the necessary legislative and institutional
capabilities to implement the 1988 UN Convention. Law enforcement and demand
reduction training will be provided in 1997.
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