| Dominican Republic drug route |
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The Dominican Republic is a major transit country for illicit drugs originating in South America with destinations to North America and Europe. Reports sourced by the United States indicate that approximately three percent of the cocaine en route to the United States transits Hispaniola. Illicit drugs continue to arrive in the Dominican Republic via aircraft and increasingly by sea aboard maritime conveyances such as go-fast boats, privately owned fishing and recreational vessels, and cargo containers. These vessels predominately originate in the Colombian Guajira Peninsula. In addition to these drug trafficking challenges, corruption at all levels of the government and throughout the private sector continues to hinder law enforcement efforts.
International drug trafficking organizations (DTO) often pay their local partners in narcotics rather than in cash. This results in an increasing domestic drug abuse problem that affects the youth of the country. It also has led to an increase in drug-related violent crimes. In order to combat the influence of DTOs in 2010, the Dominican Republic continued its cooperation with the United States government (USG) through the extradition of narcotics-related criminals and illicit drug seizures.
The Dominican Republic is a party to the 1988 United Nations (UN) Drug Convention.
B. Drug Control Accomplishments, Policies, and Trends
1. Institutional Development
The cooperation between the Government of the Dominican Republic (GODR) and the USG in efforts to control narcotics trafficking and related transnational crime remains strong overall. The USG’s primary GODR partners are the Dominican National Police (DNP) and the National Directorate for the Control of Drugs (DNCD). Efforts that began in 2009 to foster greater cooperation between the DNCD and DNP were enhanced in 2010 with a focus on corruption, money laundering activities, and drug seizures. The DNCD and DNP also made improvements in domestic law enforcement capabilities and in interagency cooperation.
Furthermore, the GODR improved its relations with other Caribbean countries by its continued participation in the Cooperating Nations Information Exchange System (CNIES) agreement which allows the Dominican Republic to receive information on suspected aerial and maritime drug trafficking activities. The GODR also continued its participation in a joint agreement with Haiti to fight against drug trafficking and to increase law enforcement cooperation. However, the GODR has not signed a radar-sharing agreement that would allow the United States to share third country nation information with the GODR.
The Dominican Republic is a party to the 1988 UN Drug Convention, the 1961 UN Single Convention as amended by the 1972 Protocol, the 1971 UN Convention on Psychotropic Substances, the UN Convention against Transnational Organized Crime (UNTOC) and its three protocols, the UN Convention against Corruption (UNCAC), and the Inter-American Convention against Corruption. In 1985, the USG and the GODR signed an agreement on international narcotics control cooperation. The Dominican Republic also has signed and ratified the Caribbean Regional Maritime Agreement and has a maritime counter-drug agreement with the USG that entered into force in 1995. Additionally, the 1909 United States-Dominican Extradition Treaty dates was augmented in 2005 to include judicial review for more transparency. Furthermore, the United States Marshals Service continued to receive excellent cooperation from the DNCD Fugitive Surveillance/Apprehension Unit and other relevant Dominican authorities in arresting fugitives and returning them to the United States to face justice. In 2010, the GODR extradited 22 fugitives, 15 of whom were wanted for narcotics related offenses, to the United States. The GODR also deported 10 criminals, six of whom were wanted for narcotics charges.
The Dominican Republic is not party to the OAS Mutual Legal Assistance Treaty and no bilateral mutual legal assistance treaty is in effect. Direct requests for judicial cooperation are made through formal and informal means. These include diplomatic notes and formal legal assistance requests between “Central Authorities” related to the multilateral law enforcement cooperation treaties and conventions to which the USG and the GODR are parties. The Central Authority office responsible for processing all of the GODR’s international requests for assistance, including those from the USG, is small and under-resourced. Nevertheless, it attempts to process the requests it receives in a timely manner.
2. Supply Reduction
Although the distribution methods of illicit drugs to the Dominican Republic vary, the tourist zones and major metropolitan areas remain common destinations where cocaine and heroin are widely used. The majority of crack cocaine and ecstasy seizures in 2010 occurred in the provinces of La Altagracia on the eastern coast, Peravia on the southern coast, and Santiago and Puerto Plata on the northern coast. Cocaine seizures occurred on land, at sea, from air drops, and through airports in the country. Heroin seizures were predominately made at the country’s international airports. Marijuana is cultivated for local consumption, and seizures have been concentrated in the northwest and southwest provinces bordering on Haiti.
In concert with maritime and aerial interdiction, the head of the DNCD, General Rolando Rosado Mateo, continues to emphasize the pursuit of major drug traffickers and the dismantling of their organizations. These combined efforts have led to a modest increase in the amount of narcotics seized in 2010 as compared to 2009 interdiction efforts. During 2010, Dominican authorities seized approximately 4.85 metric tons (MT) of cocaine, 30 kilograms (kg) of heroin, 642 kg of marijuana, and 138 units (tablets) of ecstasy.
The DNCD focused its interdiction operations on the drug-transit routes in Dominican territorial waters along the southern border, while attempting to prevent air drops and maritime delivery of illicit narcotics to remote areas of the country. Due to the efforts of the DNCD, there were significantly fewer suspect drug flights from Venezuela destined for the Dominican Republic in 2010 compared to the same time period in 2009. However, flights delivering narcotics to the Dominican Republic remained a problem, and illicit drugs were easily available for local consumption in most metropolitan areas. To counter this flow, the Dominican Air Force, in cooperation with the USG, initiated an effort to develop effective end game operations using helicopters to transport DNCD Tactical Response Teams (TRT). This responsive and versatile transportation will allow the highly successful TRTs to interdict the illicit drug drops and increase seizures and arrests. Despite the GODR’s recognition that illicit narcotics are also transiting the country to North America and Europe through maritime means, only one Dominican port, Caucedo, is operating in compliance with the Container Security Initiative (CSI). The other Dominican Republic Mega Port, Rio Haina, is not CSI compliant.
3. Drug Awareness, Demand Reduction, and Treatment
The Dominican Republic continues to experience an increase in the domestic consumption of drugs, because DTOs often use illicit drugs as a method of payment for criminals involved in drug transit. However, no official surveys regarding domestic drug use have been conducted due to a lack of resources resulting from the focus on interdiction. With the limited resources that the GODR dedicated to demand reduction in 2010, the DNCD conducted sporting events and seminars targeting hundreds of thousands of Dominican youth to publicize the negative effects related to the use of narcotics and drugs. Additionally, the GODR, with USG support, implemented programs focused on grass-roots solutions to citizen safety and demand reduction. A community-based policing project established in 13 high-risk barrios in Santo Domingo demonstrated positive trends in crime reduction. Based on this success and on great praise from community leaders and law enforcement officials, the GODR expanded this project to Puerto Plata, Cabarete, and Santiago.
4. Corruption
As a matter of policy, the Government of the Dominican Republic (GODR) does not publically encourage or facilitate the illicit production, processing, or distribution of narcotics, psychotropic drugs, and other controlled substances, or condone drug related money laundering activities. However, corruption remains endemic in Dominican society. Numerous law enforcement, military, and government officials have been implicated in a range of corrupt activities, including drug trafficking and money laundering. The GODR increased its efforts to reduce corruption in several areas during 2010. To counter the influence of drug traffickers in the judicial system, the GODR continued its focus on internal affairs operations and changed the venue of judicial proceedings when necessary. The GODR also continued to fight against corrupt public officials by cashiering officers and, in some cases, entire units implicated in drug trafficking or working with DTOs. Furthermore, the DNCD and DNP both have established internal affairs units to investigate officers accused of corruption and abuse of authority. The DNP Internal Affairs Office was restructured in 2009 and continued to operate efficiently in 2010 by conducting 2,246 investigations which led to the dismissal of 217 police officers for either testing positive for drug use, abuse of authority, or corruption. The DNCD dismissed another 408 officers for similar reasons. The GODR also has agreed to support a series of governmental reforms suggested by United States, multilateral institutions, and European nations.
The GODR is beginning to address its citizens’ perception of corruption by implementing limited anticorruption initiatives. In response to a series of scandals in 2009, President Leonel Fernandez asked multilateral organizations, the United States, and other donor nations to help him address the perception of corruption. After organizing a multi-sector dialogue, the Participatory Anticorruption Initiative (IPAC) presented 30 recommendations for the GODR’s consideration on November 17, 2010. Subsequently, the President agreed to begin implementing these recommendations recognizing that corruption in the Dominican Republic adversely affects programs ranging from promoting economic growth to combating illicit drug trafficking.
C. National Goals, Bilateral Cooperation, and United States Policy Initiatives
The USG supports counternarcotics projects that address crime and violence largely driven by drug and other illicit trafficking that affects the safety of Dominican Republic citizens. In combination with currently funded bilateral programs, the policy objectives of the USG are to substantially reduce illicit trafficking, advance public safety and security, and promote social justice. The goal is to establish sustainable institutional changes in support of GODR law enforcement capacity and capabilities that are free of corruption.
The Department of State’s Bureau of International Narcotics and Law Enforcement Affairs (INL) is represented through the Embassy’s Narcotics Affairs Section (NAS). Through this office, the USG implements programs to enhance existing land and maritime law enforcement capabilities, to improve investigations and prosecutions of criminal cases, and to coordinate counternarcotics efforts with the United States and neighboring countries. The United States also works with GODR officials to develop an effective anti-money laundering agency.
During 2010, the USG provided equipment and training to increase the capabilities of various law enforcement entities. These programs supported the drug and explosive detection canine units in addition to the DNCD’s vetted Sensitive Investigation Unit (SIU) and TRTs. The NAS also established programs to expand DNCD computer training, database expansion, and systems maintenance support. This improved the DNCD’s capability to detect illicit drugs smuggled through airports and to enhance the Dominican Republic’s anti-money laundering capacity. The Law Enforcement Development Program implemented by the NAS continued to assist the DNP with its transformation into a professional, civilian-oriented organization. Since the program was initiated in 2006, over 14,000 police investigators and prosecutors have undergone training in basic criminal investigation techniques. In 2010 alone, 763 new personnel, 716 enlisted personnel, and 47 officers completed the training. The NAS initiated a similar program for the DNCD and has hired an advisor to oversee the development of this program.
Other USG departments and agencies work in concert with the Department of State’s initiatives in the Dominican Republic. The United States Coast Guard (USCG) continued to participate in joint counternarcotics and illegal migrant operations that included technical assistance for pier-side boardings. Additionally, the USCG used biometrics to identify and prosecute criminals transiting via maritime means between the Dominican Republic and Puerto Rico since November 2006. Furthermore, the USCG held three subject-matter expert exchange conferences for the benefit of the Dominican Navy. The Annual Interoperability Conference focused on improving coordination in maritime interdictions and the Caribbean Search and Rescue Conference aimed at coordinating collaborative efforts on mutual search and rescue resources. Additionally, the International Shipping and Port Security Conference focused on enhancing container security measures in the Dominican Republic. The USCG also provided training to the Dominican Navy in the areas of maritime law enforcement, leadership, engineering and maintenance, port security, crisis management, and command and control.
The Sovereign Skies Program is designed to improve Dominican capacity to conduct law enforcement end game operations at sea, in the air, and on the ground. The program is supported by several agencies, including the United States Department of Defense (DoD). The program supports a fleet of A-29 Super Tucano aircraft, the development of a helicopter program to transport TRTs to drug drop zones, and the integration of radars to develop a common operating picture. In 2010, NAS-funded training included sending pilots from the Dominican Republic Air Force to Colombia for training in effective air interdiction operations and night operations. However, INL is continuing to assess with the GODR how best to meet the Dominican Republic’s needs for end game capacity.
The United States Agency for International Development (USAID) continued to provide assistance to strengthen the Dominican Republic’s justice system with particular focus on effective implementation of the Criminal Procedures Code. This code ensures proper acquisition, storage, and handling of evidence and adherence to reasonable time limits for prosecuting cases. USAID also assisted the National Institute for Forensic Sciences by improving procedures to secure and preserve evidence. Additionally, USAID supported the National Magistrates School in order to provide judges with current professional knowledge and skills. To help combat corruption, USAID assisted the GODR to develop new audit procedures and standards and trained 300 public auditors in international standards. USAID also supported the development of the IPAC recommendations and will continue support for implementation.
D. Conclusion
The most important challenges facing the GODR are to stop endemic corruption and to improve public confidence in the government. The GODR is continuing efforts to build a coherent, multifaceted counternarcotics program that can resist the pressures of corruption and address new challenges presented by innovative narcotics trafficking organizations. However, results of a 2010 poll show that over 80 percent of Dominicans believe that the nation’s overall situation is “bad” and that 67 percent believe corruption is worse now than in earlier years. The poll also reveals that 75.6 percent of the people believe that the judicial system has the highest level of corruption followed by political parties, the National Police, municipalities, Congress, Presidency, Secretariat of Public Works and the Armed Forces. Despite the GODR’s efforts of institutionalizing judicial reforms and developing the capacity to conduct complex financial investigations, it must address corruption issues and develop an effective witness protection program.
The increased cooperation between the DNP and DNCD has improved efforts to fight drug-related crimes. Additionally, the cooperation with neighboring countries and the United States has decreased illicit drug trafficking by air from South America. However, the GODR must continue to improve these efforts through the installation of radars, development of its helicopter units, and effective command and control procedures to maintain the line of defense. Through the Caribbean Basin Security Initiative (CBSI), the Dominican Republic should also improve maritime interdiction cooperation with neighboring countries as well as with United Kingdom, French, and Dutch affiliated territories in the Caribbean. Furthermore, the GODR must develop initiatives to deny DTOs the use of commercial ports to transit illicit drugs.
Department of State - March 2011
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