2009-2010 INTERNATIONAL NARCOTICS CONTROL STRATEGY REPORT

UNCLAS SINGAPORE 001062 SENSITIVE, SIPDIS INL - J. LYLE EAP/MTS - M. COPPOLA EAP/RSP - J. VORDERSTRASSE E.O. 12958: N/A TAGS: KCRM SNAR ECON ETRD PREL SN SUBJECT: 2009-2010 INTERNATIONAL NARCOTICS CONTROL STRATEGY REPORT (INCSR) PART I, DRUGS AND CHEMICAL CONTROL REF: STATE 97309 ¶1. (U) Per reftel instructions, Post submits its draft 2009-2010 International Narcotics Control Strategy Report, Drugs and Chemical Control Section, Volume 1. ¶2. (SBU) Begin text. ¶I. Summary The Government of Singapore (GOS) enforces stringent counter-narcotics policies through strict laws -- including the death penalty and corporal punishment -- vigorous law enforcement, and active prevention programs. Singapore is not a producer of narcotics, but as a major regional financial and transportation center, it is an attractive target for money launderers and drug transshipment. Singapore is widely recognized as one of the least corrupt countries in the world. Corruption cases involving Singapore's counter-narcotics and law enforcement agencies are rare, and their officers regularly attend U.S.-sponsored training programs as well as regional forums on drug control. Singapore is a party to the 1988 United Nations Convention against Illicit Traffic in Narcotic Drugs and Psychotropic Substance (UN Drug Convention). II. Status of Country. In 2008, there was no known production of illicit narcotics in Singapore. Singapore is one of the busiest transshipment ports in the world. The sheer volume of cargo passing through makes it likely that some illicit shipments of drugs and chemicals move undetected. With few exceptions, Singapore does not screen containerized shipments unless they enter its customs territory. Neither Singapore Customs nor the Immigration and Checkpoints Authority (ICA) keeps data on in-transit or transshipped cargo unless a Singapore consignee is involved in the shipment. According to Government of Singapore (GOS) figures, authorities arrested 1,925 drug abusers in 2008, compared to 2,166 in 2007. Arrests of first-time offenders decreased to 508 in 2008 from 520 in ¶2007. In 2008 arrests of repeat drug offenders decreased to 1,417 as compared to 1,691 in 2007. Synthetic drug abusers, including abusers of methamphetamine, MDMA, Erimin-5, Buprenophine hydrochloride, and Nimetazepam, comprised 51 percent of total drug abusers in 2008, a drop from 63 percent in 2007. However, the most significant increase was registered in the number of heroin abusers: during 2007 heroin offenders accounted for 31 percent of total drug abusers; in 2008, they accounted for 46 percent. Slight decreases were observed in the number of MDMA, Ketamine, and Nimetazepam abusers in 2008, while Buprenorphine abusers significantly decreased from 38 percent of all drug abusers in 2007 to 19 percent in 2008. III. Country Actions Against Drugs in 2008 Policy Initiatives. Singapore continues to pursue a strategy of demand and supply reduction for drugs. The GOS has worked closely with numerous international groups dedicated to drug education, including the Partnership for a Drug-Free America. In addition to arresting drug traffickers, Singapore focuses on arresting and detaining drug abusers for treatment and rehabilitation, providing drug detoxification and rehabilitation, and offering vigorous drug education in its schools. Singapore citizens and permanent residents are subject to random drug tests. The Misuse of Drugs Act gives the Singapore Central Narcotics Bureau (CNB) the authority to commit drug abusers to rehabilitation centers for mandatory treatment and rehabilitation. Individuals testing positive for consumption of narcotics are held accountable for narcotics consumed abroad as well as in Singapore. Singapore has continued efforts to curb abuse of synthetic drugs, among which Ketamine is the most prevalent. Anyone in possession of more than 113g of Ketamine is presumed to be trafficking in the drug and can face maximum penalties of 20 years imprisonment and 15 strokes of the cane. Repeat synthetic drug abusers are subject to long-term imprisonment. Those arrested for a third time are subject to up to seven years imprisonment and seven strokes of the cane, and up to 13 years imprisonment and 12 strokes of the cane for subsequent offenses. Singapore's long-term imprisonment regime is a contributing factor in curbing the country's heroin use. The Misuse of Drugs Act classifies Buprenorphine, the active ingredient in Subutex, as a Class A Controlled Drug. This means that, unless dispensed by a licensed physician or practitioner, the importation, distribution, possession, or consumption of Subutex is a felony offense. Subutex is a heroin substitute clinically used in the detoxification and rehabilitation of heroin addicts. Law Enforcement Efforts. In 2008, authorities executed 41 major operations and dismantled 25 drug syndicates. Most arrests occurred during sweeps of drug distribution groups that had been infiltrated by undercover Singapore narcotics officers. CNB officers frequently perform undercover work, purchasing small, personal-use amounts of narcotics from generally low- and mid-level traffickers and drug abusers. These sweeps often produce additional arrests when subjects present at arrest scenes test positive for narcotics in their system. A new trafficking trend observed in 2008 was the use of Singaporean females as couriers for West African drug trafficking groups. Several Singaporean women were arrested in Asia, Europe, and South America while attempting to receive or deliver drugs. The Government of Singapore has created public service announcements to warn women of West African men attempting to gain their trust and induce them to assist in drug trafficking activities. Singapore's CNB seized the following quantities of narcotics in 2008: 44.2 kg of heroin; 3.3 kg of cannabis; 6,948 tablets of MDMA; 1.8 kg of crystal Methamphetamine; 1,130 tablets of tablet Methamphetamine; 13.5 kg of Ketamine; 37,181 Nimetazepam tablets; and 2,092 Buprenorphine tablets. Corruption. Singapore's Corrupt Practices Investigation Bureau (CPIB) investigates allegations of corruption at all levels of government. Neither the government nor any senior government officials are known to engage in, encourage, or facilitate the production or distribution of narcotics or other controlled substances or the laundering of proceeds from illegal drug transactions. The CNB is charged with enforcing Singapore's counter-narcotics laws. Its officers and other elements of the Singapore Police Force are well-trained professional investigators. Agreements and Treaties. Singapore 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. Singapore and the United States continue to cooperate in extradition matters under the 1931 U.S.-UK Extradition Treaty. Singapore and the United States signed a Drug Designation Agreement (DDA),a mutual assistance agreement limited to drug cases, in November 2000. Singapore has signed mutual legal assistance agreements with Hong Kong and ASEAN. The United States and Singapore have held discussions on a possible bilateral MLAT, most recently in December 2005, although there have been no formal negotiations since 2004. Singapore has ratified the UN Convention against Transnational Organized Crime but has not signed any of its protocols. Singapore has signed but not ratified the UN Convention against Corruption. Singapore's domestic legislation allows for mutual legal assistance cooperation with countries with which Singapore does not have a bilateral treaty. Cultivation/Production. There was no known cultivation or production of narcotics in Singapore in 2008. Drug Flow/Transit. Singapore is one of the busiest seaports in the world. Approximately 80 percent of the goods flowing through its port are in transit or are transshipped and do not enter Singapore's customs area. Similarly, the Port of Singapore is the second largest transshipment port in the world for cargo containers destined for the United States. According to Government of Singapore statistics, in 2008, 1.6 million gross tons (GT) of shipping passed through the maritime Port of Singapore. This represents an increase of 11 percent from the previous record of 1.5 million GT set in 2007. Given the extraordinary volume of cargo shipped through the port, it is highly likely that some of it contains illicit materials. In 2008 there were instances of drugs being shipped through Singapore to final destinations elsewhere in Asia. Singapore does not require shipping lines to submit data on the declared contents of transshipment or transit cargo unless there is a Singapore consignee to the transaction. The lack of such information creates enforcement challenges. Singapore Customs authorities rely on intelligence to uncover and interdict illegal shipments. They reported no seizures of transit or transshipped cargoes involving illicit narcotics shipments in 2008. GOS officials have been reluctant to impose tighter reporting or inspection requirements at the port, citing concerns that inspections could interfere with the free flow of goods, thus jeopardizing Singapore's position as the region's primary transshipment port. When Singapore scrutinizes goods, it does so primarily as part of an enhanced posture to combat terrorism and control the proliferation of weapons of mass destruction (WMD) and their precursors. In 2003 Singapore became the first Asian port to join the Container Security Initiative (CSI),under which U.S. Customs personnel prescreen U.S.-bound cargo. Singapore also participates in other counterterrorism-related programs, such as the Proliferation Security Initiative and the Megaports Initiative. Singapore implemented an expanded strategic goods control list effective January 2008. While these initiatives aim to prevent WMD from entering the United States, the increased scrutiny and information they generate could also aid drug interdiction efforts. Singapore is a major regional aviation hub. In 2008, Changi International Airport handled 37.7 million passengers, a 3 percent increase over 2007 figures. The Changi Airfreight Center is one of the world's busiest and operates as a free trade zone where companies can move, consolidate, store, or repack cargo without need for documentation or payment of customs duties. Domestic Programs/Demand Reduction. Singapore uses a combination of punishment and rehabilitation against first-time drug offenders. Rehabilitation of drug abusers typically occurs during incarceration. The government may detain addicts for rehabilitation for up to three years. Similarly, under Singapore's "three strikes" laws, third-time convicted drug offenders are subject to a minimum of five years imprisonment and three strokes of the cane. In an effort to discourage drug use during travel abroad, CNB officers may require urinalysis tests for Singapore citizens and permanent residents returning from outside the country. Those who test positive are treated as if they had consumed the illegal drug in Singapore. Depending on the quantity of drugs involved, convicted drug traffickers may be subject to the death penalty, regardless of nationality. Adopting the theme, "Prevention: The Best Remedy," Singapore authorities organize sporting events, concerts, plays, and other activities to reach out to all segments of society on drug prevention. Drug treatment centers, halfway houses, and job placement programs exist to help addicts reintegrate into society. IV. U.S. Policy Initiatives and Programs Bilateral Cooperation. Singapore and the United States enjoy good law enforcement cooperation with respect to narcotics issues under the DDA. In 2008, approximately 12 GOS law enforcement officials attended drug training courses at the International Law Enforcement Academy (ILEA) in Bangkok. under the terms of the DDA, the GOS has cooperated with the United States and other countries in the forfeiture of drug-related proceeds discovered in Singapore banks, including the equitable sharing of such funds with the United States. The Road Ahead. The United States will continue to work closely with Singapore authorities on all narcotics trafficking and related matters. Increased customs cooperation under CSI and other initiatives will help further strengthen law enforcement cooperation. SHIELDS