DEA Congressional Testimony
Statement by:
Terrance W. Woodworth
Deputy Director
Office of Diversion Control
Drug Enforcement Administration
United States Department of Justice
Before the:
Senate Subcommittee on the Western Hemisphere and Peace Corps Affairs
Regarding:
Abuse and Trafficking of Rohypnol
Location:
Dirksen Senate Office Building
Room 419
Washington, D.C.
Date:
July 16, 1996
Note: This document may not reflect changes made in actual delivery.
Mr. Chairman and Members of the Subcommittee: it is a pleasure to appear before
you today to discuss the significant problems that have emerged in the last
few years as a result of the abuse and trafficking of the powerful sedative
Rohypnol.
In recent years, the drug flunitrazepam, more popularly known by its trade
name Rohypnol, has emerged as a significant abuse and trafficking problem in
the United States. In fact, the 1996 National Drug Control Strategy contains
a section on Rohypnol. This drug is not approved by the Food and Drug Administration
for marketing in this country, and is smuggled into the U.S. from Mexico and
various Latin American countries.
Abuse of this drug has created a
serious health threat to both the abuser and the community. Untold numbers
of unsuspecting young women are being victimized
and abused by criminals who spike their drinks with Rohypnol, so much that
Rohypnol has gained notoriety as the "date rape" drug.
As DEA's Deputy Director of Diversion Control, I am responsible for the control
and regulation for chemicals and legitimate pharmaceutical drugs under the
Controlled Substances Act. Rohypnol is currently listed in Schedule IV of the
Federal Controlled Substances Act. Schedule IV ordinarily includes substances
with a low potential for abuse, and substances that have a currently accepted
medical use for treatment in the United States. Rohypnol meets neither of these
requirements. Rohypnol was placed in Schedule IV in 1984, following international
control of the drug under the Convention on Psychotropic Substances.
It has recently become clear that the current level of control is not adequate
to combat abuse and trafficking of this drug. As a result, DEA is seeking to
move flunitrazepam, the active ingredient in Rohypnol to Schedule I, a more
restrictive schedule, which includes drugs with a high potential for abuse
and no accepted medical use in the United States. Other drugs currently included
in Schedule I are heroin. marijuana, and LSD.
What is Rohypnol?
Flunitrazepam is a tranquilizer developed in the 1960s and early 1970s by
Hoffman-La Roche, Inc., and first marketed under the trade name Rohypnol in
Switzerland in 1975. Rohypnol is 10 to 20 times more potent than Valium (diazepam).
This class of drugs is used to treat anxiety, convulsions, muscle tension and
sleep disorders. Its powerful sedative effects can last up to 12 hours, with
some residual effects occurring as late as 24 hours later.
Low doses of Rohypnol may cause drowsiness, dizziness, motor incoordination,
memory loss, gastrointestinal upsets, headache, reduced blood pressure, visual
disturbances, dry mouth, and hangover. Higher doses can cause coma, respiratory
depression, and even death. In southern Florida, six deaths occurred in which
flunitrazepam use was found during autopsy.
Rohypnol impairs mental judgment and reaction time, and individuals who drive
under its influence increase their chances of automobile accidents. Law enforcement
officers have frequently reported observing severely impaired driving ability
in motorists who have used Rohypnol along with small amounts of alcohol.
Today, Rohypnol is legally marketed in 64 countries in Europe, South America,
Africa, the Middle East and Asia. Although Rohypnol is the most common trade
name product containing flunitrazepam, in many countries there are additional
generic and trade name products. Rohypnol is abused in many counties where
it is approved for marketing. Much of the abuse in these countries involves
heroin addicts, and recently DEA has become aware of the abuse of Rohypnol
in Mexico and Colombia. Use and Abuse in the United States
The effects of Rohypnol, also referred
to as "Rophies," "Roofies," "Ropes," and "Roach-2," are
similar to alcohol intoxication, and there are three distinct patterns of abuse
of this drug; alone for its intoxicating effects; in combination with other
drugs; and for the purpose of rape.
Those who abuse Rohypnol include middle school and high school students, college
students, rave party attendees, and heroin and cocaine addicts. The middle
school, high school and college students either use Rohypnol alone or more
commonly in combination with alcohol or marijuana. Those who attend rave parties
often take amphetamines to stay awake throughout the night and may take Rohypnol
tablets to ease the effects of the amphetamine use. Heroin addicts use Rohypnol
to potentiate the effects of heroin, while cocaine addicts use it to modulate
the effects of cocaine binges.
Sexual predators and street gangs take advantage of the sedative and memory
loss effects of Rohypnol to incapacitate women and commit sexual assault. The
severe mental incapacitation, along with the amnesia produced by Rohypnol,
makes it difficult, if not altogether impossible, for the rape victim to recall
the circumstances surrounding her sexual assault.
The use of Rohypnol to commit sexual
assault has earned it the street names of the "Forget Pill," the "Date-Rape Drug," "Trip-and-Fall," and "Mind-Erasers." In
one recent case in Broward County, Florida, a convicted rapist boasted of using
Rohypnol to rape as many as 20 different women. Adding to the complexity of
the problem of Rohypnol use in the commission of rape, is the victim's difficulty
in remembering facts surrounding the incident, compounding the problem of successful
rape prosecution for law enforcement agencies. In Texas, street gangs have
been known to administer Rohypnol to females in order to commit gang rape as
part of initiation into the gang.
Trafficking of Rohypnol
Since the mid-1980s, Rohypnol has been found in the illicit drug traffick
of many countries. Studies completed by the World Health Organization in 1990
and 1994 revealed at least 35 different countries in Europe, Asia, South America,
Africa and the Middle East in which Rohypnol was sold illegally.
On May 4, 1995, near London, England, authorities seized a record 100,000
Rohypnol tablets from the owner of a pharmaceutical distributor. The investigation
revealed that the product had been manufactured in Belgium and was intended
for distribution in Egypt.
Between 1985 and 1991, DEA had three cases or less each year involving Rohypnol.
In 1993, that number climbed to 15, primarily in Texas and Florida. By 1995,
DEA had 38 Rohypnol investigations. By March 1996, DEA had initiated 108 cases,
and the United States Customs Service had 271 cases. Nationwide, state and
local law enforcement reported 2,067 cases involving the illegal distribution
or possession of Rohypnol. The street price for a 2-milligram Rohypnol tablet
ranges from $1.75 to $5.00.
In Florida, there has been a dramatic increase in the distribution of Rohypnol.
Between 1990 and 1992, there were 14 state and local law enforcement cases
involving flunitrazepam. By 1995, that number had risen to 480--an increase
of over 3,000 percent. Prior to 1994, the cases were located almost exclusively
in Dade County, Florida.
By 1995, the distribution of Rohypnol had spread throughout the state. Rohypnol
is smuggled into Florida from Colombia and other Latin American countries through
the use of international mail, courier services, by passengers on commercial
airlines.
Due to this widespread abuse, which presents an imminent danger to the public,
Robert A. Butterworth, Attorney General of the State of Florida, moved to adopt
emergency legislation which transferred flunitrazepam to Schedule I(a) of the
Florida Comprehensive Drug Abuse Prevention and Control Act. This action significantly
enhances the penalties for abuse and trafficking in flunitrazepam.
Texas has also been the site of large increases in the distribution of Rohypnol.
In 1990 and 1991, DEA documented eight cases involving Rohypnol. By 1993, the
number of cases increased to 169 cases, and by 1995, the number of cases had
nearly tripled to 483 cases and distribution had spread throughout the state.
Rohypnol enters Texas by two methods: ( l ) Simple smuggling across the U.S.
- Mexico border; or (2) the abuse of the provisions of 21 USC 956(a), which
exempts from the requirements of the Controlled Substances Act an individual
who legally possesses a controlled substance for personal medical use.
Rohypnol is a prime example of unapproved drugs which enter the United States
under this exemption. Abuse of this provision significantly contributed to
the spread of Rohypnol throughout the United States. Quantities of Rohypnol
and other controlled drugs were being carried from Mexico across our border
after being declared to United States Customs. In mid-1995, a three-week survey
at the Laredo, Texas, footbridge disclosed that Rohypnol tablets ( 101,700)
were declared on 796 of the 1,678 declarations filed with United States Customs
and subsequently legally entered the United States.
The Federal Controlled Substances Act allows for this under the personal use
exemption of 21 USC 956 and 21 CFR 13 1 1.27. DEA officials have met with officials
from U.S. Customs and the Food and Drug Administration. Based on the provisions
of the Food, Drug and Cosmetic Act, which prohibits the introduction of drugs
not approved for use in the United States, Customs is now prohibiting the importation
of flunitrazepam.
Since mid-1995, DEA laboratory examinations have confirmed that all DEA domestic
cases involving Rohypnol has involved the Hoffman-La Roche brand.
DEA Response and Proposals
In response to the increased threat to our communities and citizens posed
by Rohypnol abuse and trafficking, DEA has taken several specific actions.
First of all, DEA has begun the administrative process to move flunitrazepam
from Schedule IV to Schedule I of the Controlled Substances Act, which imposes
more severe punishment for those trafficking in this illegal drug.
Second, DEA has proposed changes to the regulations which will drastically
reduce the amount and number of controlled substances that may enter the United
States for personal medical use.
Third, DEA has initiated numerous investigations of major traffickers.
Fourth, to address the problem of individuals abusing the personal use exemption,
early this year, DEA, Customs, and the FDA formed a working group to formulate
policy governing the entry of pharmaceutical controlled substances into the
United States.
Finally, DEA has developed and circulated an information brochure on flunitrazepam
which details the distribution and abuse of this drug.
In addition to these steps, the Administration has proposed legislation that
would give the Attorney General the authority to administratively reschedule
Rohypnol without engaging in the administrative procedures that are normally
required for rescheduling a drug on the Controlled Substances list.
Conclusion
Mr. Chairman and Members of the Committee, DEA considers the abuse and trafficking
of Rohypnol to be an extremely important issue with the potential for significant
and devastating effects on the people of this country.
We appreciate your support and concern in this matter, and look forward to
working with this Committee and the Congress to prevent Rohypnol from reaching
the epidemic proportions we've seen with the abuse of crack cocaine and methamphetamine. |