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DEA
Congressional Testimony
Statement
by:
Donnie R.
Marshall
Acting Administrator
Drug Enforcement Administration
Before
the:
House Committee
on Appropriations, Subcommittee for the Departments of Commerce, Justice,
State, the Judiciary and Related Agencies
Date:
March 23,
2000
Note: This document
may not reflect changes made in actual delivery.
Mr. Chairman, Members
of the Subcommittee: I appreciate the opportunity to appear before you
today to discuss the FY 2001 budget request of the Drug Enforcement Administration
(DEA). Before providing the committee with an overview of our agency operations
and summary of our FY 2001 budget request, I would like to take this time
to express my sincere gratitude for the ongoing support of this Subcommittee
and entire U.S. House of Representatives. Without your support, DEA could
not continue to effectively meet the growing challenges posed by increasingly
sophisticated and dangerous international drug trafficking organizations
which operate with impunity throughout the global community. Your ongoing
efforts work to send a message to these traffickers that their assault
on the citizens of this nation will not be taken lightly and that we will
continue to fight to ensure that our streets remain safe for generations
to come.
Mission and
Approach
The mission of the
Drug Enforcement Administration (DEA) is to enforce the Controlled Substances
laws and regulations of the United States and to bring to the criminal
and civil justice system those organizations involved in the growing,
manufacturing and/or distribution of controlled substances destined for
the United States. The DEA also recommends and supports non-enforcement
programs aimed at reducing the availability of illicit controlled substances
on both domestic and international markets. To accomplish this mission,
DEA works with international, federal, and state and local law enforcement
partners to target and immobilize the organizations of major drug traffickers
operating at all levels of the drug trade.
Because DEA is the
only single-mission federal agency dedicated to drug law enforcement,
the agency has, over the years, developed the ability to direct resources
and manpower to identify, target and dismantle drug organizations headquartered
overseas and within the United States. DEA's strategy to successfully
accomplish these goals is straightforward, requiring that the agency's
resources and manpower be focused on all three levels of the drug trade:
the international, national/regional and local levels. Each of these categories
represents a critical aspect of the drug continuum which affects communities
across the nation.
The 9,000 dedicated
men and women of the DEA are committed to improving the quality of life
of the citizens of the United States. The agency directs and supports
investigations against the highest levels of the international drug trade,
their surrogates operating within the United States, and those traffickers
whose violence and criminal activities destabilize towns and cities across
the country. These investigations are intelligence-driven and frequently
involve the cooperative efforts of numerous other law enforcement organizations.
DEA's strategy to
successfully impact drug trafficking at all levels of operation is flexible
and reflects the constantly-changing nature of the drug trade. In concert
with the Department of Justice and the Office of National Drug Control
Policy (ONDCP), DEA has crafted an innovative and effective program to
keep pace with developments and shifts in the drug trafficking spectrum
and bring both national and international drug traffickers to justice.
Drug Trafficking
Threat to the United States
The heads of the
most powerful drug trafficking organizations impacting the United States
today are based in Mexico and Colombia. Believing they are safe from the
U.S. justice system, they tightly control their operations by directing
a large number of surrogates who carry out orders on U.S. soil. These
operatives are responsible for the vast majority of the cocaine, heroin,
methamphetamine and marijuana trafficking taking place in U.S. communities.
Surrogates answering to drug lords based in Mexico also produce methamphetamine,
both in that nation and in the U.S., particularly in California. These
producers and traffickers are responsible for over 75 percent of the methamphetamine
that is available in U.S. communities today.
Traffickers based
in Mexico pose a significant threat to the United States because of their
power, influence and dominant status in the drug trade. Where at one time
traffickers from Colombia controlled the vast majority of cocaine trafficking,
traffickers from Mexico today are responsible for transporting cocaine
into and throughout U.S. markets. The heads of organizations based in
Colombia rely almost entirely on traffickers from Mexico to transport
and distribute cocaine while they direct operations from the safety of
their headquarters in Cali or Bogota. In one recent case entitled Operation
Millennium, the director of a powerful Colombian organization wrongly
believed that by distancing himself from his organization's U.S. operations,
he would make himself immune from indictment.
The major organizations
based in Mexico---the Arellano-Felix organization, the Amezcua Contreras
brothers, the Amado Carillo Fuentes group and the Caro Quintero organization---all
have a demonstrable negative impact on the United States. The leaders
of these groups are routinely indicted in U.S. judicial districts for
drug trafficking offenses committed on U.S. soil.
In recent years,
these traffickers have become more prominent in the drug trafficking trade
within the U.S. They are responsible for manufacturing methamphetamine
in Mexico and California and trafficking it to cities such as Des Moines,
Boise, Atlanta and Salt Lake City. Major organizations based in Colombia
and Mexico also rely on surrogates from Mexico to move multi-ton quantities
of cocaine across the United States, including locations on the East Coast.
While traffickers
from Mexico have a direct impact on drug trafficking trends in the United
States, it is important to note that many major traffickers are still
operating from Colombia where the cocaine and heroin trade are centered.
The large-scale production of Colombian heroin has created major U.S.
markets for this high quality product. In 1998, the latest year for which
we have statistics, South American heroin comprised 62 percent of the
heroin seized by federal authorities and analyzed by DEA's Special Testing
and Research Laboratory. Cocaine production has also increased dramatically
since 1994, and it is possible that Colombian cocaine yield may be as
much as three times that of previous estimates.
None of the major
drug traffickers headquartered overseas could operate without the assistance
of national and regional drug trafficking organizations which are responsible
for trafficking huge quantities of drugs into U.S. communities. These
organizations are comprised of a network of operatives who transport,
store and distribute drugs throughout the United States and whose activities
are directed by drug lords based in foreign countries. In many cases,
national and regional drug trafficking organizations are comprised of
numerous cells whose directors are responsible for specific tasks such
as communications, financial matters and/or logistics. These cell heads
are sent to the United States for a period of time to carry out the business
mandates of the top drug lords and are given specific tasks to accomplish.
The national and regional drug syndicates have infiltrated many states
and communities, bringing with them the crime and violence once limited
to major urban areas. A survey of recent DEA investigations revealed that
over 400 investigations stemming from Operations Reciprocity and Limelight
involved drug traffickers from foreign countries who had set up operations
in various cities across the United States.
Local violent drug
trafficking organizations also operate across the United States and are
responsible for eroding the quality of life in many American communities.
Previously centered in major urban areas, violent drug trafficking groups
are now part of the landscape in smaller cities and rural areas. Fueled
in large part by methamphetamine production and trafficking, violent drug
trafficking organizations are now affecting the crime rates in smaller
cities such as Spokane, Washington and Cedar Rapids, Iowa. While these
local, violent groups appear to be unrelated to the large international
drug trafficking organizations headquartered overseas, it is important
to note that all of the cocaine and heroin that is trafficked by these
groups is produced overseas and transported to the United States for eventual
distribution on the local level.
Drug Abuse
in America - The Changing Demographics
Although drug abuse
among young people increased significantly over the past decade, recent
statistics indicate that this trend may be stabilizing. Even with this
positive trend, there continues to be sobering news brought to our attention
daily regarding the state of drug use in smaller cities and rural areas,
fueled by the proliferation of methamphetamine production and trafficking,
and the increased availability of cheap, high-purity heroin from Colombia.
Although there has
been a decrease in violent crime in major cities due to vigorous law enforcement
efforts, similar reductions in the violent crime rates of smaller cities,
suburban and rural areas have not been realized. In fact, many smaller
cities are now confronting the same problems that larger urban areas faced
a decade ago. While 1998 violent crime rates decreased (-9.5%) in cities
having populations between 250,000 and 999,999, significantly smaller
decreases took place in suburban counties (-5%) and rural areas (-2%).
Between 1997 and 1998, violent crime rates actually increased in a number
of mid-sized communities.
A recent reported
released by the Center on Addiction and Substance Abuse at Columbia University
(CASA), indicates that eighth graders living in rural America are 79 percent
more likely than their urban counterparts to use amphetamines, including
methamphetamine. They are also 75 percent more likely to use crack cocaine,
52 percent more likely to use cocaine and 26 percent more likely to smoke
marijuana than young people in major urban locations.
The report also states
that according to recent surveys, it is as easy for young people in rural
areas and small cities to obtain drugs as it is for their urban counterparts.
Additionally, from 1990 to 1998, smaller cities experienced significantly
more drug violations than larger cities; for instance, cities with populations
of 25,000 to 50,000 people had three times as many drug violations as
larger cities. In cities with fewer than 10,000 residents, the level of
drug violations was six times higher than that found in larger cities.
The media has reported
the tragic results of increased drug use in cities like Plano, Texas Orlando,
Florida and Elkton, Maryland. Smaller cities are generally unable to meet
the demands for social services and treatment placed on them when a methamphetamine
or heroin epidemic hits. Additionally, law enforcement agencies are often
unprepared to address the full range of issues associated with methamphetamine
lab cleanups and investigations.
In the end, all three
facets of the drug trafficking trade---the international, national/regional
and local levels---are interrelated and interdependent. As these different
echelons of the drug trade in each of these levels work together, it is
essential that our nation's the law enforcement response address all three
of these levels simultaneously.
DEA's Strategy
In order to meet
the enormous challenges posed by internationally-based narcotics traffickers
and their surrogates within the United States, DEA is in the process of
developing a five-year strategic plan which will make use of the agency's
unique skills and limited resources to achieve the maximum impact against
international, national/regional and local drug traffickers through the
use of intelligence-driven investigations.
DEA's proposed strategy
will take into account the current drug trafficking situation affecting
the United States and identify the characteristics and vulnerabilities
of all three levels of the drug trade, responding to each of these levels
simultaneously:
International
Targets: This category is comprised of trafficking organizations
based in foreign countries that are the primary source of supply for their
surrogates within the U.S. Through DEA's International Operations program
and the efforts of the agency's Special Operations Division (SOD) and
numerous field divisions throughout the country, DEA effectively targets
these organizations and their members.
National/Regional
Targets: These organizations operate domestically throughout
the United States and are responsible for distributing drugs from international
and domestic sources to U.S. communities. In many cases, these groups
report directly to major drug lords overseas. They also operate on a national
or regional basis, supplying several markets. The vast majority of DEA's
cases fall into this category and investigations against members of these
organizations are generated and supported by every DEA office in the United
States.
Local
Initiatives: Criminal organizations operating at the local
level generally deal in smaller quantities of drugs and are responsible
for providing these drugs to users within the United States. Through local
enforcement initiatives such as the Mobile Enforcement Team (MET) program,
DEA works with state and local counterparts to identify and immobilize
these organizations and to arrest the most violent members of these groups.
Using the basic tenets
of this strategy, DEA has successfully targeted significant traffickers
and organizations in each of these categories. Over the past several years,
major cases tied to each of these categories have resulted in the arrest
of thousands of major violators.
INTERNATIONAL
TARGETS
Operation
Millennium - Less than one month after the successful conclusion
of Operation Impunity, an operation aimed at the highest level of the
drug trade operating within the U.S., an important international law enforcement
operation made headlines. Operation Millennium, a one-year operation designed
to dismantle a Colombian-based transportation consortium believed to be
responsible for supplying between 20 and 30 tons of cocaine per month
to the United States and Europe, resulted in the arrest of more than 30
drug traffickers and money launderers, including alleged high-profile
trafficker Alejandro Bernal Madrigal, and Fabio Ochoa. The operation also
resulted in the seizure of over 13,000 kilograms of cocaine. Critical
to the success of the operation was the unprecedented level of cooperation
between DEA, the Colombian National Police, the Fiscal General of the
Republic of Columbia, the U.S. Attorney's Office in Miami and the Justice
Department's Criminal Division.
Operation
Juno - Initiated after the seizure of approximately 386 kilograms
of liquid cocaine concealed in a shipment of frozen fish destined for
the United States, Operation Juno, which began in September 1996 and concluded
in August 1999, was unique in that for the first time in drug enforcement
history, the U.S. government set up an undercover brokerage firm to aid
in intercepting drug dollars destined for the Colombian black market.
Operation Juno resulted in over 40 arrests, the seizure of $10.0 million
and warrants against 59 bank accounts at 34 U.S. banks and 282 accounts
at 52 foreign banks. Monies in these targeted accounts were believed to
total another $16.0 million. The investigation also resulted in the seizure
of 3,601 kilograms of cocaine and 106 grams of hashish oil.
Operation
Columbus - Concluding in October 1999, Operation Columbus was
a multi-national, regional enforcement effort involving Colombia, Venezuela
and Panama, and the island nations of the Caribbean. This operation focused
on air, land and maritime interdiction, eradication and clandestine airstrip
denial. The final arrest and seizure statistics for Operation Columbus
were unprecedented for this region, resulting in more than 1,290 arrests,
as well as the seizure of 900 kilograms of cocaine and nine kilograms
of heroin. Over 38 weapons, 26 vehicles, 27 vessels, three laboratories
and one aircraft were also seized. In addition, 1,097 metric tons of marijuana
were eradicated. In the end, Operation Columbus struck a solid blow against
the operations of Caribbean-based drug trafficking groups.
NATIONAL/REGIONAL
TARGETS
Operation
Impunity - This two-year international investigation concluded
in September, 1999, and resulted in the arrest of 109 individuals, including
three major drug trafficking cell heads, linked to the Mexican-based Amado
Carillo Fuentes organization. The operation was coordinated by DEA's Special
Operations Division (SOD) which headed a combined investigative center
involving the DEA, U.S. Customs Service, FBI and IRS. Besides substantially
hindering the trafficking organization's ability to move cocaine and other
drugs into, and around, the United States, Operation Impunity succeeded
in seizing $19.0 million in U.S. currency, another $7.0 million in assets
and well over 12,434 kilograms of cocaine and 4,800 pounds of marijuana.
Operation
Heartland - Beginning in October 1997, this investigation targeted
the Martin Chavez Organization, a multi-pound methamphetamine and marijuana
importation and distribution operation that was responsible for transporting
marijuana and methamphetamine from Mexico into the United States via the
Juarez/El Paso, Texas corridor to the Oklahoma City, Oklahoma area. Over
the next several years the scope of this investigation spread to include
DEA offices in Fresno (California), El Paso (Texas), Dallas (Texas) and
Des Moines (Iowa). Information obtained as a result of the investigation
resulted in the seizure of 47 pounds of methamphetamine, 525 pounds of
precursor chemicals, 1,378 pounds of marijuana, $47,500 in U.S. currency
and the arrest of 22 individuals. Additional indictments were anticipated,
including one for Chavez - currently a fugitive.
Mario Ibarra
Sanchez Investigation - The Mario Ibarra Sanchez Organization
was in charge of transporting and distributing large quantities of methamphetamine,
amphetamine, heroin and cocaine for trafficking organizations operating
in both Mexico and the United States. On November 11, 1998, DEA conducted
an investigation, in conjunction with several state and local law enforcement
agencies, that resulted in the issuance of nine federal search warrants
and 10 federal arrest warrants against members of the Sanchez organization
. Those arrested included the cell leader and a significant methamphetamine
laboratory operator based in Mexico. The investigation ultimately resulted
in the seizure of 65.5 pounds of methamphetamine, 30.4 pounds of black
tar heroin, 106.3 pounds of amphetamine, 154.0 pounds of cocaine and $156,600
in U.S. currency.
Omaha, Nebraska
RET Deployment - In September 1999, the Des Moines Regional Enforcement
Team (RET) deployed to Omaha, Nebraska to assist in a methamphetamine
investigation. A court-authorized wire intercept was initiated on two
cellular telephones utilized by the targeted organization. As a result
of these efforts, the Omaha District Office, along with the Des Moines
RET, identified individuals in Juarez, Mexico; El Paso, Texas; and Los
Angeles, California, who were directly linked with the transshipment of
cocaine, marijuana and methamphetamine to Omaha, Nebraska, for distribution
purposes. On October 20, 1999, a Federal Grand Jury in Omaha, Nebraska
indicted 19 individuals, 17 of whom were arrested. This indictment included
the arrest of the primary targets, along with others, effectively dismantling
the targeted organization in Omaha. Additionally, this investigation resulted
in the seizure of six kilograms of cocaine; one pound of methamphetamine;
200 pounds of marijuana; and, $22,000 in U.S. currency. Evidence gathered
during the intercept of telephones utilized by the targeted organization
continues to be exploited for use in investigations in California, Texas,
Nebraska, and Mexico.
Operation
Trinity - In October 1997, DEA, FBI, Customs and DOJ initiated
Special Enforcement Operation Trinity, a joint strategy designed to target
the primary domestic trafficking organizations that are controlled by
criminal leaders in Colombia, Mexico and the Dominican Republic. The primary
phase of Operation Trinity concluded on September 25, 1998; no new investigations
were accepted after July 1998. At this time 220 cases were still active.
Preliminary figures for all Operation Trinity investigations include over
1,260 arrests, with drug seizures totaling 12.8 metric tons of cocaine,
63,370 lbs. of marijuana, 3,178 lbs. of methamphetamine, 127 lbs. of heroin,
108 lbs. amphetamine and over 137,600 pseudoephedrine tablets. Asset seizures
from the case total over $59.2 million in U.S. currency, $1.2 million
in assets and 132 vehicles.
Operation
META - Operation META, which concluded in December 1997, targeted
a major U.S. methamphetamine-trafficking organization that was supplied
by the Amezcua-Contrera group from Mexico. This investigation combined
the efforts of DEA, FBI, other federal agencies and state and local agencies
from 17 U.S. cities in nine different states. It resulted in the arrest
of 121 members of the trafficking ring and the seizure of 133 pounds of
methamphetamine, 1,765 pounds of marijuana and 1,100 kilograms of cocaine.
During the META raids, agents discovered and dismantled three methamphetamine
labs that were each capable of producing more than 300 pounds of methamphetamine
at a time. Operation META seizures were especially important because they
alerted the law enforcement community to the growing methamphetamine problem
in the United States.
Southern
Frontier - In recent years, DEA has undertaken several successful
operations in support of the agency's Southern Frontier Initiative. Operation
Zorro II, Operation Reciprocity and Operation Limelight, each of which
relied extensively on numerous court-ordered wiretaps that were coordinated
and monitored by area law enforcement, collectively resulted in the arrest
of 156 individuals and the seizure of over 22,000 kilograms of illegal
drugs and over $35.0 million.
LOCAL INITIATIVES
Mobile Enforcement
Team Program - As a response to the overwhelming problem of drug
related violent crime which has plagued communities and neighborhoods
across the United States, DEA's Mobile Enforcement Team (MET) program
was created in early 1995 as a means of dismantling drug organizations
by securing the conviction and incarceration of those individuals dealing
drugs and causing violence in these communities. Recent examples of MET
program successes include the following:
- Phoenix,
Arizona - From July 1998 until March 1999 the Phoenix
Field Division MET worked closely with the Northern Arizona Street Crimes
Task Force in targeting the Colimas and Costillo drug-trafficking organizations.
The Colimas organization was responsible for supplying street-level
dealers with multiple-pound quantities of methamphetamine. The Costillo
organization, a polydrug trafficking group, had a reputation for extreme
violence; some of its members had criminal histories, which included
armed robberies, home invasions, assault, sex crimes, and child abuse.
Using confidential sources, the MET was able to successfully infiltrate
these two organizations and severely disrupt their operations. The nine
month deployment, resulted in the seizure of seven operational and three
dismantled methamphetamine labs, 44 grams of heroin, 22 pounds of marijuana,
500 dosage units of LSD, 40 weapons, 18 motor vehicles, and $16,292
in U.S. currency. In addition, The MET secured 86 arrests, including
the arrests of two primary targets: Jose Francisco Colimas and Ricardo
"Duke" Castillo.
- Brownwood,
Texas - At the request of local police, DEA's Dallas Division
MET deployed to Brownwood, Texas from October 1998 to March 1999 in
an effort to combat narcotics-related violence problems within this
community. The five month deployment resulted in 22 federal indictments
and 19 state arrest warrants. The initial sweep resulted in 38 arrests
(20 federal and 18 state). In response to the operation, the Brownwood
District Attorney stated, "This DEA MET deployment was significant in
getting important drug dealers off the street and making a major impact
in the community. This is a perfect example of what happens when all
parties cooperate and collaborate towards a common goal."
- Warren,
Ohio - At the request of the local police chief, DEA's
Detroit Division MET deployed to Warren, Ohio from January to May 1999
in an effort to target a significant increase of crack cocaine trafficking
and related violence within this community. The primary deployment targets
were members of a violent drug distribution organization operating in
Warren. This five month deployment resulted in the arrest of 16 individuals
(11 arrested on state charges that include mandatory sentences upon
conviction); the execution of six search warrants; and, the seizure
of 650 grams of crack cocaine. In addition, $8,100 in U.S. currency
was seized, along with nine weapons including two semi-automated handguns
with laser sights and seven rifles. In addition, the primary targets
of this deployment were also arrested.
FY 2001 Budget
Request
In an effort to support
DEA's evolving drug strategy through both ongoing and developing agency
operations, in FY 2001 we are requesting additional programmatic resources
through three primary budget initiatives: our Domestic Drug Enforcement
Initiative, Intelligence Initiative, and Infrastructure initiative.
Funding requested
through DEA's Enforcement Initiative includes
18 positions (11 Special Agents) and $3.1 million for the agency's Special
Operations Division. SOD-coordinated investigations enable DEA and its
drug law enforcement counterparts to attack the command and control infrastructures
of major drug trafficking organizations at their most vulnerable point
- their lines of communication. In order for these organizations to operate
effectively within the global community, extensive coordination and communication
between all echelons of their operations is required. DEA's main weapon
in thwarting the communications infrastructures of these organizations
is the use of Title III wiretap investigations. As DEA addresses emerging
drug threats, requests for Title IIIs and intelligence assistance are
expected to increase dramatically. In order to meet these requests, DEA
requires additional resources for SOD investigations along the Southwest
Border and for SOD's Financial Investigations program. Enhancements requested
for FY 2001 include nine positions (six Special Agents) and $1.671 million
to coordinate additional multi-division Title III investigations along
the Southwest border and nine positions (five Special Agents) and $1.429
million to establish a Money Laundering and Financial Investigations Section
within SOD, providing DEA with national oversight and coordination on
Title III money laundering investigations.
DEA requests a total
of $1.5 million through the agency's Intelligence Initiative.
Intelligence driven investigations represent the best means
of quickly and efficiently targeting, investigating and dismantling major
drug trafficking organizations. Our Intelligence Initiative focuses exclusively
on providing DEA's intelligence program with the tools necessary to address
all facets of the agency's investigative requirements. Further development
of DEA's drug intelligence and information sharing capabilities is vital
to efforts to maximize federal, state, and local anti-drug assets. The
resources requested through this initiative will provide DEA with additional
support for drug intelligence operations through further development of
DEA's El Paso Intelligence Center Information System (EIS). This system,
which collects, distributes and analyzes reported data on worldwide drug
trafficking trends and drug organization operations, is critical in the
facilitation of information sharing with other federal, state and local
law enforcement agencies.
Finally, DEA requests
a total of 26 positions and $59.957 million through the agency's Infrastructure
Initiative. DEA's dynamic enforcement and intelligence missions
continue to place great demands on the agency's key operational support
programs. As such, critical investments in technology for projects such
as the agency's FIREBIRD office automation system and financial management
system are essential to the successful performance of drug law enforcement.
In FY 2001 DEA is requesting two positions and $55.908 million to fully
support the Operations and Maintenance (O&M) and Technology Renewal
requirements of the agency's FIREBIRD office automation system and 24
positions and $3.957 million to enhance the agency's financial and resource
management oversight capacity. Without these additional resources, DEA
will not be able to continue to effectively provide necessary support
for the growing number of Special Agents, Intelligence Specialists and
Task Force Officers working actively to identify, target and dismantle
drug trafficking organizations around the globe.
This concludes my
presentation of DEA's FY 2001 budget request. I would be happy at this
time to take any questions the Committee Members may have regarding DEA
operations, programs or requested budget enhancements.
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