2005 INTERNATIONAL NARCOTICS CONTROL STRATEGY

UNCLAS SECTION 01 OF 04 HELSINKI 000122

SIPDIS

STATE FOR INL, EUR/NB
JUSTICE FOR OIA, AFMLS, AND NDDS
TREASURY FOR FINCEN
DEA FOR OILS AND OFFICE OF DIVERSION CONTROL

E.O. 12958: N/A
TAGS: SNAR FI
SUBJECT: 2005 INTERNATIONAL NARCOTICS CONTROL STRATEGY
REPORT FOR FINLAND: PART I

REF: 04 STATE 248987


I. SUMMARY
--------------

(U) FINLAND IS NOT A SIGNIFICANT NARCOTICS PRODUCING OR
TRAFFICKING COUNTRY. HOWEVER, DRUG USE AND DRUG-RELATED
CRIME HAVE INCREASED STEADILY OVER THE PAST DECADE. LAW
ENFORCEMENT AUTHORITIES ARE AFFECTED BY THE FACT THAT
FINLAND'S CONSTITUTION STRONGLY EMPHASIZES CIVIL LIBERTIES
AND CONSTRAINS THE STATE FROM USING ELECTRONIC SURVEILLANCE
TECHNIQUES SUCH AS WIRETAPPING, ETC., IN ALL BUT THE MOST
SERIOUS INVESTIGATIONS; FINLAND'S POLITICAL CULTURE TENDS
TO FAVOR DEMAND REDUCTION AND REHABILITATION EFFORTS OVER
STRATEGIES AIMED AT REDUCING SUPPLY. THE POLICE BELIEVE
INCREASED DRUG USE IS ATTRIBUTABLE TO THE WIDER
AVAILABILITY OF NARCOTICS IN POST-COLD WAR EUROPE, GREATER
EXPERIMENTATION BY FINNISH YOUTH, A CULTURAL DE-STIGMATI-
ZATION OF NARCOTICS USE, AND A GAP BETWEEN LAW ENFORCEMENT
RESOURCES AND THE GROWING INCIDENCE OF DRUG USE. WHILE
THERE IS SOME OVERLAND NARCOTICS TRAFFICKING ACROSS THE
RUSSIAN BORDER, PARTICULARLY IN HEROIN, POLICE BELIEVE
EXISTING BORDER CONTROLS ARE MOSTLY EFFECTIVE IN PREVENTING
THIS ROUTE FROM BECOMING A MAJOR TRAFFICKING CONDUIT INTO
FINLAND AND WESTERN EUROPE. POLICE REMAIN CONCERNED ABOUT
SHIPMENTS OF ECSTASY AND OTHER MDMA-TYPE DESIGNER DRUGS
ARRIVING FROM THE BALTIC COUNTRIES, CHIEFLY ESTONIA.
POLICE FEAR THAT ESTONIA'S ACCESSION TO THE EU AND SCHENGEN
ARRANGEMENTS COULD LEAD TO INCREASED TRAFFICKING OF ECSTASY
FROM TALLINN INTO FINLAND. FINLAND IS A MAJOR DONOR TO THE
UNDCP AND IS ACTIVE IN COUNTERNARCOTICS EFFORTS WITHIN THE
EU. FINLAND IS A PARTY TO THE 1988 UN DRUG CONVENTION.


II. STATUS OF COUNTRY
--------------

(U) NARCOTICS PRODUCTION, CULTIVATION, AND THE
PRODUCTION/DIVERSION OF PRECURSOR CHEMICALS IN FINLAND IS
RELATIVELY MODEST IN SCOPE. MOST DRUGS THAT ARE CONSUMED IN
FINLAND ARE PRODUCED ELSEWHERE, AND FINLAND IS NOT A SOURCE
COUNTRY FOR EXPORT OF NARCOTICS ABROAD. ESTONIA, RUSSIA,
SPAIN, AND THE NETHERLANDS ARE FINLAND'S PRINCIPAL SOURCES OF
ILLICIT DRUGS. FINNISH LAW MAKES THE DISTRIBUTION, SALE, AND
TRANSPORT OF NARCOTIC SUBSTANCES ILLEGAL, AND PROVIDES FOR
EXTRADITION, TRANSIT AND OTHER LAW ENFORCEMENT COOPERATION,
AND PRECURSOR CHEMICAL CONTROL. DOMESTIC DRUG ABUSE
REHABILITATION AND EDUCATION PROGRAMS ARE EXCELLENT. NEW
LEGISLATION PASSED IN 2001 ALLOWS THE POLICE TO FINE
VIOLATORS FOR POSSESSION OF SMALL AMOUNTS OF NARCOTICS.
STATISTICS ARE NOT YET AVAILABLE FOR HOW MANY FINES WERE
LEVIED IN 2004.

(U) THE OVERALL INCIDENCE OF DRUG USE IN FINLAND REMAINS LOW
BUT IS INCREASING. COCAINE USE IS RARE, AND FINLAND HAS ONE OF
EUROPE'S LOWEST CANNIBIS-USE RATES, BUT AMPHETAMINES,
METHAMPHETAMINE, OTHER SYNTHETIC DRUGS, AND HEROIN USE ARE
INCREASINGLY POPULAR. THE USE OF ECSTASY AND OTHER MDMA-TYPE
DESIGNER DRUGS HAS GROWN SIGNIFICANTLY IN RECENT YEARS, AND
POLICE ARE ALSO CONCERNED ABOUT THE ARRIVAL OF GAMMA-HYDRO-
XYBUTYRATE (GHB) IN FINLAND. AS IN MANY OTHER WESTERN
COUNTRIES, ECSTASY AND GHB USE IN FINLAND TENDS TO BE
CONCENTRATED AMONG YOUNG PEOPLE AND ASSOCIATED WITH THE
"CLUB-CULTURE" IN HELSINKI AND OTHER LARGER CITIES. SOCIAL
SERVICE AUTHORITIES BELIEVE THE INTRODUCTION OF GHB AND OTHER
"DATE RAPE" DRUGS INTO FINLAND HAS LED TO AN INCREASE IN THE
NUMBER OF SEXUAL ASSAULTS REPORTED BY YOUNG WOMEN. FINNISH LAW
ENFORCEMENT AUTHORITIES ADMIT THAT LACK OF RESOURCES AND LEGAL
RESTRICTIONS ON ELECTRONIC SURVEILLANCE AND UNDERCOVER POLICE
WORK MAKE PENETRATING THE ECSTASY TRADE DIFFICULT. CHANGING
SOCIAL AND CULTURAL ATTITUDES TOWARD DRUG USE AND EXPERIMEN-
TATION ALSO CONTRIBUTE THIS PHENOMENON.

(U) HEROIN USE IS ON THE RISE IN FINLAND. POLICE REPORTED A
SIGNIFICANT DROP IN THE PURITY OF HEROIN IMPORTED TO FINLAND
SUBSEQUENT TO THE CONFLICT IN AFGHANISTAN IN 2001. A NUMBER
OF SEIZURES MADE PRIOR TO LATE 2001 HAD A PURITY AS HIGH AS
75%. MORE RECENT SEIZURES HAVE INDICATED A PURITY AS LOW AS
5%, AND OVERDOSE-RELATED DEATHS HAVE DECLINED FOR SEVERAL
YEARS. BECAUSE OF THE DIFFICULTY OF OBTAINING HIGH-GRADE
HEROIN, SOME USERS ARE TURNING TO SUBUTEX (BUPRENORPHINE),
WHICH THEY OBTAIN PRIMARILY FROM FRANCE. ACCORDING TO THE
POLICE, FRENCH DOCTORS CAN PRESCRIBE UP TO THREE WEEKS SUPPLY
OF SUBUTEX. FINNISH COURIERS TRAVEL FREQUENTLY TO FRANCE TO
OBTAIN THEIR SUPPLY WHICH IS THEN RESOLD IN FINLAND WITH A
HIGH MARK-UP. POSSESSION OF SUBUTEX IS LEGAL IN FINLAND WITH
A DOCTOR'S PRESCRIPTION. THE INCIDENCE OF NEW HIV CASES
RELATED TO IV DRUG USE IN FINLAND HELD STEADY IN 2004.
ACCORDING TO FINNISH POLICE, THERE ARE APPROXIMATELY TWO
DOZEN ORGANIZED CRIME GROUPS OPERATING IN FINLAND, MANY OF
WHICH HAVE CONNECTIONS WITH ORGANIZED CRIME SYNDICATES IN THE
BALTICS AND RUSSIA. SOME OF THESE GROUPS ARE FACILITATORS
AND DISTRIBUTORS OF NARCOTICS TO THE FINNISH MARKET. POLICE
ARE CONCERNED THAT AS ESTONIA AND THE BALTIC COUNTRIES ENTER
INTO THE EU'S SCHENGEN AGREEMENT, WHICH ALLOWS THE FREE
MOVEMENT OF GOODS AND PEOPLE THROUGHOUT THE EU, FINLAND COULD
INCREASINGLY BECOME BOTH A TRANSIT COUNTRY FOR TRAFFICKERS
AND A MORE ATTRACTIVE MARKET. CRIME SYNDICATES ARE ALREADY
USING FINLAND AS A TRANSIT COUNTRY INTO THE SCHENGEN REGION
FOR TRAFFICKING-IN-PERSONS.

(U) SMUGGLING ROUTES: POLICE REPORT THAT ESTONIANS RUN MOST
OF THE ILLICIT DRUG SMUGGLING TRADE FOR FINLAND, ALTHOUGH THE
DOMESTIC STREET-LEVEL DEALERS ARE CHIEFLY FINNS. IN THE
PAST, THE ESTONIAN RINGS PRIMARILY SMUGGLED DUTCH OR BELGIAN
MADE ECSTASY. BEGINNING IN 2003, THE SYNDICATES ALSO BEGAN
SMUGGLING GREATER QUANTITIES OF ESTONIAN-PRODUCED ECSTASY,
ALTHOUGH THE QUALITY AND MARKET VALUE IS LOWER. MOST ECSTASY
IN FINLAND TODAY IS NOW BELIEVED TO ORIGINATE IN ESTONIA.
ESTONIAN CRIME SYNDICATES ALSO ORGANIZE THE SHIPMENT OF
MOROCCAN CANNABIS FROM SPAIN TO FINLAND. RUSSIAN SYNDICATES
IN ST. PETERSBURG HAVE BEEN THE PRIMARY SUPPLIERS OF HEROIN
FOR THE FINNISH MARKET, BUT ESTONIAN TRAFFICKERS ARE NOW
ACTIVE IN THIS AREA AS WELL.


III. COUNTRY ACTIONS AGAINST DRUGS IN 2004
--------------


(U) POLICY INITIATIVES: THE FINNISH GOVERNMENT RELEASED A
COMPREHENSIVE POLICY STATEMENT ON ILLEGAL DRUGS IN 1998 WHICH
CLEARLY ARTICULATED A ZERO-TOLERANCE POLICY FOR ILLICIT
NARCOTICS. THE STATEMENT WARNED CITIZENS THAT ALL NARCOTICS
INFRACTION, FROM CASUAL USE TO MANUFACTURING AND TRAFFICKING,
ARE CRIMES PUNISHABLE UNDER FINNISH LAW. HOWEVER, A NEW LAW
TOOK EFFECT IN 2001 IMPLEMENTING A SYSTEM OF FINES FOR
POSSESSION OF SMALL AMOUNTS OF DRUGS RATHER THAN JAIL TIME.
THIS LAW ENJOYS WIDESPREAD POPULAR SUPPORT, AND IS CHIEFLY
USED TO PUNISH YOUTH FOUND IN POSSESSION OF SMALL QUANTITIES
OF MARIJUANA, HASHISH, OR ECSTASY. FINNISH LAW ENFORCEMENT
AUTHORITIES HAVE EXPRESSED CONCERN OVER THE MIXED MESSAGE THE
2001 LEGISLATION ENTAILS AND WOULD PREFER TO SEND A STRONGER
DETERRENT MESSAGE ON THE DEMAND SIDE. THERE DOES NOT APPEAR
TO BE SUFFICIENT POLITICAL SUPPORT AT THIS TIME FOR A POLICY
AIMED AT CURBING DEMAND THROUGH STRONGER PUNITIVE MEASURES,
HOWEVER. A MEMBER OF PARLIAMENT IN 2004 WAS INVOLVED IN A
TABLOID SCANDAL WHEN SHE ADMITTED HAVING SMOKED HASHISH AT A
PARTY AS A SITTING MP; THERE WERE NO CHARGES FILED IN THE
CASE.

(U) ACCOMPLISHMENTS: IN LATE 2000, PARLIAMENT PASSED
LEGISLATION THAT WOULD INCREASE THE LAW ENFORCEMENT
COMMUNITY'S ABILITY TO PURSUE CRIMINALS WITH ADDITIONAL
INVESTIGATIVE TOOLS, INCLUDING UNDERCOVER INVESTIGATIONS
AND WIRETAPS. ALTHOUGH THE LEGISLATION WENT INTO EFFECT
IN 2001, A NUMBER OF RESTRICTIONS ON USING SUCH TECHNIQUES
REMAIN AND THEY ARE NOT REGULARLY EMPLOYED. THE FINNISH
GOVERNMENT'S STRATEGY DURING 2004 FOCUSED ON REGIONAL AND
MULTILATERAL COOPERATION AIMED AT STEMMING THE FLOW OF
DRUGS BEFORE THEY REACH FINLAND'S BORDERS AND ON BEEFED-UP
BORDER CONTROL MEASURES DESIGNED TO DISCOURAGE TRAFFICKERS.
IN 2004 FINNISH OFFICIALS ACTIVELY PARTICIPATED IN SEVERAL
MULTILATERAL CONFERENCES AND TRAINING SEMINARS AIMED AT
COMBATING NARCOTICS. IN PARTICULAR, FINLAND PLAYED A MAJOR
ROLE IN THE OSCE'S DRUG CONTROL STRATEGY.

(U) LAW ENFORCEMENT EFFORTS: ALTHOUGH FINAL 2004 FIGURES ARE
NOT YET AVAILABLE, THE POLICE BELIEVE THAT ARRESTS AND
SEIZURES ARE PROJECTED TO HAVE REMAINED RELATIVELY STABLE.
BEGINNING IN THE MID-1980S, LAW ENFORCEMENT AUTHORITIES
FOCUSED LIMITED POLICE RESOURCES ON MAJOR NARCOTICS CASES
AND SIGNIFICANT TRAFFICKERS, SOMEWHAT TO THE DETRIMENT OF
STREET-LEVEL PATROLS, INVESTIGATIONS, AND PROSECUTION.
POLICE SUGGEST THE RESULT OF THIS FOCUS WAS TO
REDUCE DRUG USERS' FEAR OF ARREST AND TO MAKE RECREATIONAL
DRUG USE MORE WIDESPREAD. ACCORDING TO POLICE, THE RISE IN
DRUG USE DURING THE PAST DECADE LED TO A SITUATION IN WHICH
THE NUMBER OF DRUG OFFENDERS EXCEEDS THE RESOURCES DEPLOYED
TO COMBAT ILLEGAL DRUGS. THE POLICE REPORT THAT FOLLOWING
THE RELEASE OF THE 1998 GOVERNMENT POLICY STATEMENT ON DRUGS,
GREATER RESOURCES HAVE BEEN DEVOTED TO INVESTIGATIONS AT THE
STREET-LEVEL. THIS INCLUDES ACTION BY UNIFORMED PATROLS AS
WELL AS PLAINCLOTHES POLICE OFFICERS.

(U) CORRUPTION: THERE HAVE BEEN NO ARRESTS OR PROSECUTIONS OF
PUBLIC OFFICIALS CHARGED WITH CORRUPTION OR RELATED OFFENSES
LINKED TO NARCOTICS TRAFFICKING IN FINNISH HISTORY.


(U) AGREEMENTS AND TREATIES: FINLAND IS A PARTY TO THE 1988
UN DRUG CONVENTION AND ITS LEGISLATION IS CONSISTENT WITH ALL
THE CONVENTION'S GOALS. FINNISH JUDICIAL AUTHORITIES ARE
EMPOWERED TO SEIZE THE ASSETS, REAL AND FINANCIAL, OF
CRIMINALS. FINLAND IS ALSO A PARTY TO THE 1961 UN SINGLE
CONVENTION ON NARCOTIC DRUGS, THE 1972 PROTOCOL AMENDING THE
SINGLE CONVENTION, AND THE 1971 CONVENTION ON PSYCHOTROPIC
SUBSTANCES. FINLAND HAS EXTRADITION TREATIES WITH MANY
COUNTRIES, AND RATIFIED THE EU EXTRADITION TREATY IN 1999.
FINLAND IS CURRENTLY PREPARING TO IMPLEMENT THE EU ARREST
WARRANT. FINLAND IS A SIGNATORY TO THE UN CONVENTION AGAINST
TRANSNATIONAL CRIME, THE PROTOCOL TO PREVENT, SUPPRESS AND
PUNISH TRAFFICKING IN PERSONS, AND THE PROTOCOL AGAINST THE
SMUGGLING OF MIGRANTS. A 1976 BILATERAL EXTRADITION TREATY
IS IN FORCE BETWEEN THE UNITED STATES AND FINLAND, ALTHOUGH
FINLAND WILL ONLY EXTRADITE NON-FINNISH CITIZENS TO THE
UNITED STATES. FINLAND IN 2004 SIGNED THE BILATERAL
INSTRUMENT OF THE EU-U.S. EXTRADITION TREATY.

(U) THE UNITED STATES HAS ALSO CONCLUDED A CUSTOMS MUTUAL
ASSISTANCE AGREEMENT WITH FINLAND. FINLAND IS A MEMBER OF
THE MAJOR DONORS' GROUP WITHIN THE DUBLIN GROUP. THE VAST
MAJORITY OF ITS FINANCIAL AND OTHER ASSISTANCE TO
DRUG PRODUCING AND TRANSIT COUNTRIES HAS BEEN VIA THE UNDCP.
FINLAND CONCLUDED BILATERAL NARCOTICS AGREEMENTS WITH ESTONIA
SHORTLY AFTER THAT COUNTRY GAINED INDEPENDENCE. MULTILATERAL
TREATIES, INCLUDING MEMBERSHIP IN THE UNDCP, CONSTITUTE THE
BASIS OF FINNISH COOPERATION WITH THE UNITED STATES ON
COUNTERNARCOTICS INITIATIVES.

(U) FINLAND MAKES AN IMPRESSIVE INTERNATIONAL EFFORT TO COMBAT
DRUG TRAFFICKING AND OTHER ORGANIZED CRIME. THE FINNISH
POLICE MAINTAIN LIAISON OFFICERS IN TEN EUROPEAN CITIES (SIX
IN RUSSIA, FOUR ELSEWHERE). THE PROSECUTOR-GENERAL'S OFFICE
MAINTAINS LIAISON OFFICERS IN ST. PETERSBURG, TALLINN, AND
MOSCOW. IN ADDITION, FINLAND AND THE OTHER NORDIC COUNTRIES
POOL THEIR RESOURCES AND SHARE INFORMATION GATHERED BY NORDIC
LIAISON OFFICERS STATIONED IN 34 POSTS AROUND THE WORLD.
FINLAND PARTICIPATES MULTILATERALLY IN REGIONAL EFFORTS
CHIEFLY THROUGH THE EU AND THE COUNCIL OF BALTIC SEA STATES/
ORGANIZED CRIME TASK FORCE.


(U) CULTIVATION/PRODUCTION: THERE WERE NO SEIZURES OF
INDIGENOUSLY CULTIVATED OPIATES, NO RECORDED DIVERSIONS OF
PRECURSOR CHEMICALS, AND NO DETECTION OF ILLICIT
METHAMPHETAMINE, COCAINE, OR LSD LABORATORIES IN FINLAND IN

2003. FINLAND'S CLIMATE MAKES NATURAL CULTIVATION OF
CANNABIS AND OPIATES ALMOST IMPOSSIBLE. LOCAL CANNABIS
CULTIVATION IS LIMITED TO SMALL NUMBERS OF PLANTS IN
INDIVIDUAL HOMES USING ARTIFICIAL LIGHTING CHIEFLY FOR
PERSONAL USE. THE DISTRIBUTION OF THE 22 KEY PRECURSOR
CHEMICALS USED FOR COCAINE, AMPHETAMINE, AND HEROIN
PRODUCTION IS TIGHTLY CONTROLLED.

(U) DRUG FLOW/TRANSIT: HASHISH IS THE DRUG MOST OFTEN SEIZED
BY THE FINNISH POLICE. TRAFFICKING IN HIGHLY PURIFIED
METHAMPHETAMINE FROM ESTONIA AND POLAND, ECSTASY FROM
ESTONIA, AND AMPHETAMINES FROM LITHUANIA ARE A CONTINUING
CONCERN FOR FINLAND. FINNISH AUTHORITIES REPORT THAT THEIR
LAND BORDER WITH RUSSIA IS WELL-GUARDED ON BOTH SIDES TO
ENSURE THAT THE BORDER WILL NOT BECOME A SIGNIFICANT
NARCOTICS TRANSIT ROUTE.

(U) DOMESTIC PROGRAMS (DEMAND REDUCTION): THE FINNISH
GOVERNMENT TAKES THE APPROACH THAT DEMAND REDUCTION IS BEST
ACHIEVED BY IMPLEMENTING AN EFFECTIVE NORDIC WELFARE POLICY
WHICH CALLS FOR EARLY AND EFFECTIVE INTERVENTION BEFORE DRUG
USE BECOMES A PROBLEM. THOUGH THE NORDIC WELFARE MODEL TENDS
TOWARD CENTRALIZATION, THE FINNISH GOVERNMENT GIVES SUBSTANTIAL
AUTONOMY TO LOCAL GOVERNMENTS TO ADDRESS DEMAND REDUCTION
USING FEDERAL MONEY. FINNISH SCHOOLS ARE REQUIRED TO EDUCATE
CHILDREN ABOUT THE DANGERS OF DRUGS. PUBLIC HEALTH SERVICES
OFFER REHABILITATION SERVICES TO USERS AND ADDICTS. SUCH
PROGRAMS TYPICALLY USE A HOLISTIC APPROACH THAT EMPHASIZES
SOCIAL AND ECONOMIC REINTEGRATION INTO SOCIETY AND IS NOT
SOLELY FOCUSED ON ELIMINATING THE SUBJECT'S USE AND ABUSE OF
DRUGS. REPLACEMENT AND MAINTENANCE THERAPY FOR HEROIN
ADDICTS USING BUPRENORPHINE IS RELATIVELY NEW IN FINLAND AND
NOT YET WIDESPREAD.


IV. U.S. POLICY INITIATIVES
--------------


(U) THE UNITED STATES HAS PURSUED COOPERATION WITH FINLAND IN
A REGIONAL CONTEXT, COORDINATING ASSISTANCE WITH FINLAND AND
THE OTHER NORDICS WITH ASSISTANCE TO THE BALTIC SEA STATES.
IN JANUARY 2000, THE DEA CONDUCTED A TWO-WEEK REGIONAL DRUG
ENFORCEMENT SEMINAR IN HELSINKI. THE SEMINAR BROUGHT
TOGETHER PARTICIPANTS FROM FINLAND, ESTONIA, LATVIA, AND
LITHUANIA.

(U) BILATERAL COOPERATION: COOPERATION BETWEEN U.S. LAW
ENFORCEMENT AGENCIES AND THEIR FINNISH COUNTERPARTS ON
NARCOTICS IS
EXCELLENT.

(U) THE ROAD AHEAD: THE UNITED STATES ANTICIPATES CONTINUED
EXCELLENT COOPERATION WITH THE GOVERNMENT OF FINLAND IN ALL
AREAS OF COUNTERING CRIME AND NARCOTICS TRAFFICKING. THE
ONLY LIMITATIONS TO SUCH COOPERATION WILL LIKELY BE
LIMITATIONS DICTATED BY THE SMALL RESOURCE BASE THAT FINNISH
LAW ENFORCEMENT AUTHORITIES HAVE AT THEIR DISPOSAL.



V. STATISTICAL TABLES
--------------


(U) 2004 STATISTICS FOR NARCOTICS SEIZURES AND ARRESTS WERE
NOT YET AVAILABLE AT THE TIME THIS REPORT WAS SUBMITTED.
SEPTEL INCLUDING 2004 STATISTICS WILL FOLLOW.



MACK