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DEA
Congressional Testimony
Statement
by:
Joseph J.
Corcoran
Special Agent in Charge
Saint Louis Division
Drug Enforcement Administration
Before
the:
House Judiciary
Subcommittee on Crime
Date:
August 8,
2000
Note: This document
may not reflect changes made in actual delivery.
Congressman Hutchinson,
Members of the Subcommittee: I am pleased to have the opportunity to appear
before you today to discuss the growing dangers that methamphetamine trafficking
use and abuse and the spread of clandestine drug laboratories pose to
the citizens of our country. It is fair to say that methamphetamine is
one of the most significant law enforcement and social issues facing our
nation today, and it has affected specific regions of the country in a
dramatic fashion. I will focus my comments today specifically on the Kansas
City District Office's area of responsibility, which includes the states
of Kansas and the western portion of Missouri.
Methamphetamine trafficking
and use have increased exponentially over the past six years, and my testimony
today will provide the subcommittee with information on how, where, and
why this has occurred, and how federal law enforcement is working with
state and local partners across the nation to address the methamphetamine
problem.
While methamphetamine
is not an entirely new problem in the United States, about six years ago
an upsurge in methamphetamine trafficking and abuse began taking hold
in many regions of the nation, starting on the West Coast, and rapidly
expanding into the Midwest and, to a lesser extent, the Southeastern United
States. DEA statistics indicate that in 1993, DEA seized a total of 218
methamphetamine labs. Current DEA statistics indicate that in 1999, DEA
alone seized over 2,000 clandestine laboratories and that the total number
of laboratories seized by Federal, state, and local law enforcement officers
nationwide was over 7,000.
Since 1994, the Midwestern
United States has experienced a significant increase in the use and availability
of methamphetamine. DEA Kansas City continues to confront a dual methamphetamine
problem: not only is methamphetamine transported into Kansas and Missouri
by organized criminal drug trafficking groups operating from California
and the Southwest border, but methamphetamine is produced in hundreds
of local clandestine laboratories by loose-knit networks of individuals.
These clandestine laboratories represent a substantial health and safety
threat to communities. The toxic, and often highly flammable chemicals
used in the manufacturing process pose a threat to law enforcement and
emergency response personnel, as well as the general public. Fires and
explosions are a constant threat in this type of environment. Traffickers
often dispose of chemicals improperly, creating environmental problems
that require expensive clean up.
The National Clandestine
Laboratory Database, which became operational in January 1999, serves
as a clearinghouse for all federal, state, and local clandestine laboratory
seizures and is maintained by the El Paso Intelligence Center (EPIC).
DEA nationwide methamphetamine arrests in 1999 totaled 8,783. Of those,
450 methamphetamine arrests were made in Kansas City District Office's
area of responsibility. Nationwide methamphetamine seizures have increased
significantly since 1995. In 1992, the Kansas City District Office seized
only three clandestine labs compared to 1998 where approximately 347 labs
were seized. By 1999, the total number of labs seized in the KCDO area
of responsibility climbed to over 590 and as of July 2000, the KCDO has
seized over 400 clan labs. These clandestine laboratory seizure statistics
are based upon data submitted to the EPIC, the actual number of lab seizures
may be higher as some state and local police agencies have not submitted
all of the reports to this database.
Although the quantities
of production were insignificant in comparison to California "super lab"
operations, it is noted that the seizure and processing of a small lab
is usually almost as time consuming as the large laboratories. The vast
majority of methamphetamine distributed in the U.S. is produced by Mexican
crime groups in "super lab" operations in California and Mexico, then
subsequently distributed nationwide to areas such as Kansas and Missouri.
However, based strictly on numbers, Kansas and Missouri have more total
laboratories reported (on a per capita basis) than California. However,
despite the continued seizures of clandestine laboratories throughout
our area, methamphetamine remains readily available and routinely sells
for approximately $800 - $2,000 dollars per ounce and from $12,000 - $25,000
dollars per kilogram.
Until recently, the
DEA Kansas City District Office reported that the number of clandestine
methamphetamine laboratories in its area of responsibility was increasing
at an alarming rate, with an average of one clandestine lab seizure per
day, including labs seized by state and local agencies and dismantled
with COPS funding. In addition, the Kansas City office still continues
to note significant trafficking of methamphetamine from California by
local Mexican drug trafficking organizations.
Many of the small
clandestine laboratories manufacture methamphetamine using the sodium
ammonia or "Nazi" method. The "Nazi" formula of methamphetamine production
utilizes ephedrine/pseudoephedrine reduction, as well as sodium or lithium
metal, and other dangerous chemicals such as anhydrous ammonia and ethyl
ether in the process. Sodium metal is an extreme fire hazard, and will
ignite upon contact with water. This production technique has spread throughout
the Midwest and accounts for many of the methamphetamine labs seized by
DEA.
Historically, the
suppliers of methamphetamine throughout the United States have been outlaw
motorcycle gangs and numerous other independent trafficking groups. Although
these groups continue to produce and distribute methamphetamine, organized
crime polydrug trafficking groups operating from Mexico and California
dominate wholesale methamphetamine trafficking in the United States. Over
the past few years, these groups have revolutionized the production of
this drug by operating large-scale laboratories in Mexico and the United
States that are capable of producing unprecedented quantities of methamphetamine.
The groups have saturated the western U.S. market with this product, increasingly
moving the product to markets in the eastern United States.
The violence associated
with methamphetamine trafficking and use has also produced a collateral
impact on the crime statistics of communities across the U.S. Methamphetamine-related
violence usually results from the user under the influence of the drug;
users who committed violent acts to obtain money or more of the drug;
and distributors who used violence in the course of conducting their illicit
business. Every community with a methamphetamine abuse problem has experienced
violence in some form or another. However, most commonly, this violence
routinely presents itself in the form of domestic violence.
International
Organized Crime Groups Based in Mexico
Today, there are
two major forces fueling the methamphetamine trade within the United States:
first, the well-organized methamphetamine manufacturing and trafficking
groups based in Mexico; and second, a widely scattered series of local
methamphetamine producers, predominantly based in rural areas around the
country.
Traffickers based
in Mexico have had a long history of involvement in poly-drug production
and smuggling. For years, these powerful and violent groups produced and
smuggled marijuana and heroin into the United States, dominating the heroin
trade in the Southwest and Midwest regions of the nation. During the early
1990s, the Cali cartel reached an accommodation with trafficking groups
based in Mexico who agreed to transport multi-ton quantities of cocaine
into the United States. At first, transporters from Mexico were paid in
cash, but eventually they negotiated to be paid in cocaine, which they
distributed themselves within the United States. This series of changes
in the cocaine trade, along with the arrest of the powerful Cali leaders
in 1995 and 1996, greatly strengthened the organizations from Mexico.
The increased power
and sophistication of the Mexican traffickers led them to seek to successfully
dominate all phases of the methamphetamine trade, from beginning to end.
Because methamphetamine is a synthetic drug created from a mixture of
chemicals, traffickers based in Mexico did not have to rely on traffickers
in other nations to provide coca or finished cocaine for distribution.
These groups initially had ready access to precursor chemicals on the
international market. These chemicals have fewer controls in Mexico and
overseas than in the United States, a fact which allowed the organizations
to produce large quantities of high purity methamphetamine in clandestine
laboratories in Mexico. Methamphetamine organizations based in Mexico
have developed international connections with chemical suppliers in Europe,
Asia, and the Far East, and with these connections, they have been able
to obtain ton quantities of the necessary precursor chemicals (ephedrine
and pseudo-ephedrine) to manufacture methamphetamine and amphetamine.
In recent years, with the growth of DEA led international efforts to control
the flow of bulk ephedrine and pseudo-ephedrine, Mexican traffickers have
also turned to tableted forms of these precursors to manufacture their
product and now frequently buy their products from rogue chemical suppliers
in the United States.
In addition, readily
available precursor chemicals allow trafficking groups from Mexico to
produce thousands of pounds of methamphetamine in laboratories in Mexico
and California. These methamphetamine organizations based in Mexico also
have well-established, polydrug distribution networks in place throughout
our country. This snapshot of methamphetamine use is a graphic illustration
of the kind of devastation international cartels can bring to American
communities--even the smallest ones. They are responsible for the majority
of the methamphetamine available in this country, and the super-labs they
operate produce between 10 to 100 pounds of methamphetamine per process.
Domestically
Produced Methamphetamine
While the vast majority
of methamphetamine available in the United States is produced and trafficked
by the well-organized groups from Mexico, domestic production of methamphetamine
by United States citizens is also a significant problem. The production
level of these laboratories, often makeshift and described as mom and
pop labs, is relatively low; however, the large number of these labs and
the environmental and law enforcement concerns associated with their operation
poses major problems to state and local law enforcement agencies, as well
as to DEA.
Methamphetamine is,
in fact, a very simple drug to produce. A user can go to retail stores
and easily purchase the vast majority of the ingredients necessary to
manufacture the drug. Items such as rock salt, battery acid, red phosphorous
road flares, pool acid, and iodine crystals can be utilized to substitute
for some of the necessary chemicals. Precursor chemicals such as pseudoephedrine
can be extracted from common, over-the-counter cold medications. A clandestine
lab operator can utilize relatively common items such as mason jars, coffee
filters, hot plates, pressure cookers, pillowcases, plastic tubing, gas
cans, etc., to substitute for sophisticated laboratory equipment. Unlike
Fentanyl, LSD, or other types of dangerous drugs, it does not take a college-educated
chemist to produce methamphetamine. In fact, less than 10 percent of those
suspects arrested for the manufacture of methamphetamine are trained chemists,
which may be one reason we see so many fires, explosions, and injuries
in clandestine lab incidents.
Despite the fact
that the majority of these laboratories produce relatively small amounts
of methamphetamine, the proliferation of this type of laboratory has imposed
terrible burdens on law enforcement agencies and departments.
In some respects,
the methamphetamine problem is synonymous with the clandestine laboratory
problem and this issue has been the focus of much media attention this
past year. Although the methamphetamine problem and the clandestine lab
problem are both part of the same drug abuse mosaic, in reality, they
are somewhat different issues, which may require a different law enforcement
response in order to successfully combat the spiraling increases in both
arenas.
The threats posed
by clandestine labs are not limited to fire, explosion, poison gas, drug
abuse, and booby traps; the chemical contamination of the hazardous waste
contained in these labs also poses a serious danger to our nation's environment.
Each pound of methamphetamine generated in a clandestine lab can result
in as much as five pounds of toxic waste, which clandestine lab operators
routinely dump into our nations streams, rivers, and sewage systems to
cover up the evidence of their illegal operations. In addition, clan lab
operators routinely show a blatant disregard for the health and safety
of others as evidenced by the number of children who have been present
at clan lab sites. In 1999 the states of Kansas and Missouri reported
a total of 88 children located at lab sites. As of July 2000 over 104
children were reported at clan lab sites.
Because of the possibility
of explosions and direct contact with toxic fumes and hazardous chemicals,
law enforcement officers who raid clandestine drug labs are now required
to take special hazardous materials (HAZMAT) handling training. The highly
toxic and flammable chemicals involved make these rudimentary laboratories
ticking timebombs that require specialized training to dismantle and clean.
DEA is pleased to have certified thousands of state and local law enforcement
officers in raiding and dismantling them and provide funds for cleaning
them up.
The size of lab does
not matter when it comes to the danger level involved in a clandestine
laboratory raid. The smaller labs are usually more dangerous than the
larger operations because the cooks are generally less experienced chemists
who often have little regard for the safety issues that arise when dealing
with explosive and poisonous chemicals. However, the size of a clandestine
laboratory can be a significant factor in the costs associated with the
hazardous waste cleanup. Larger production laboratories usually have larger
quantities of toxic chemicals, and therefore, more significant hazardous
waste disposal charges.
DEA records indicate
that the average costs of cleanup for clandestine labs seized in Kansas
and Missouri during Fiscal Year 1999 is approximately $3,500 dollars.
In September of 1998 the DEA conducted an investigation which led to the
discovery and seizure of a "super lab" located in Kansas City, capable
of producing 70 kilograms of methamphetamine. The lab was located in a
false room in the basement of a residence, which was hidden behind a magnetically
controlled door. The subsequent cost of the clean up for this super lab
was in excess of $10,000.00 dollars.
DEA's
Strategy to Fight Methamphetamine
DEA's methamphetamine
strategy encompasses several elements, including targeting and building
cases against the major methamphetamine traffickers based in Mexico, and
against their surrogates operating in the United States today; assisting
state and local law enforcement agencies in making cases against methamphetamine
manufacturers and traffickers working in the United States; partnering
with state and local law enforcement to assist with training and laboratory
clean-up; and controlling the precursor chemicals necessary for methamphetamine
production in Mexico and the United States.
As a part of the
KCDO strategy, DEA implemented a Clan Lab Task Force that is comprised
of DEA agents as well as state and local law enforcement officers. In
addition, the Kansas City High Intensity Drug Trafficking Area (HIDTA)
Task Force assigned a DEA agent to the Metropolitan Law Enforcement Meth
Task Force as a part of the HIDTA strategy. The purpose of these strategies
is to combine federal, state, and local assets in order to combat the
methamphetamine threat within this region.
DEA Clandestine
Laboratory Safety/Certification Training
In 1987, DEA created
a special training unit for clandestine laboratory safety/certification
training which is located at the U.S. Marine Corp Base at Camp Upshur,
Quantico, Virginia. This unit originated in response to concerns from
DEA management that the agency's Special Agents and task force officers
were being exposed to hazardous, toxic, and carcinogenic chemicals while
executing raids on clandestine drug laboratories. Some DEA field offices,
primarily in the state of California, were reporting that Special Agents
and officers appeared to be suffering serious health problems as a result
of both short and long-term exposure to the chemical and toxic fumes encountered
when processing these drug laboratories. The U.S. Code of Federal Regulations,
29 C.F.R. 1910.12, now mandates that all federal, state, and local law
enforcement officers must receive at least 24 hours of hazardous chemical
handling training (specific Occupational Safety, Health and Administration
(OSHA) standards for courses and equipment), prior to entering a clandestine
drug laboratory.
The dangers associated
with the clandestine manufacture of methamphetamine are clear. Reports
from DEA and state police records indicate that at least five or six methamphetamine
producers are now being killed every year from explosions and/or fires
in clandestine labs. Many more receive serious burns or develop serious
health problems from clandestine laboratory explosions and fires. There
have been reports of apartment complexes and a $3,500,000 hotel, which
burned down as the result of drug lab "cooks" that turned into chemical
time bombs. Recent years have seen an increase in the number of injuries
to untrained police officers that investigate and/or dismantle clandestine
laboratories without utilizing the proper safety equipment.
However, the chemical
and environmental hazards are not the only threat to law enforcement.
Clandestine laboratory operators continue to pose a significant threat
to law enforcement officers conducting operations. In Bethany, Missouri,
a DEA entry team came under fire while conducting an enforcement operation
at a clandestine lab. In another incident in Independence, Missouri, the
laboratory operators attempted to dispose of their chemicals by throwing
them on the floors and walls, thereby creating a cloud of hazardous fumes
for the entry team. And in Gladstone, Missouri, the laboratory operators
actually threw their chemicals at the entry team. These potentially lethal
confrontations underscore the need for this specialized training and equipment.
In Kansas and Missouri, DEA has trained and certified over 490 law enforcement
officers.
In response to this
serious problem and to satisfy the training requirement established by
OSHA, DEA has initiated an aggressive training schedule to increase the
number of clandestine laboratory safety schools provided to state and
local police throughout the nation. The DEA Clandestine Laboratory Safety
Program conducts its safety/certification schools at the DEA Clandestine
Laboratory Training Facility in Quantico Virginia. This specialized unit
frequently conducts in-service training and seminars for law enforcement
groups such as the Clandestine Laboratory Investigators Association (CLIA)
and the International Association of Chiefs of Police (IACP). In addition,
the DEA Clandestine Laboratory Training Unit provides police awareness
training seminars to law enforcement organizations across the U.S., as
well as the annual re-certification training which is mandated by OSHA
regulations.
Students who graduate
from the DEA Clandestine Lab School in Quantico, Virginia, are issued
over $2,000 in specialized clandestine lab safety gear. Some of the items
issued include: Level III nomex fire-resistant ballistic vests; nomex
fire-resistant jackets, pants, and gloves; chemical resistant boots; air
purified respirators; combat retention holsters; special flashlights;
chemical resistant clothing for conducting hazard assessments and processing
drug labs; and goggles to prevent eye injuries in the event a suspect
throws acid or other dangerous chemicals at law enforcement personnel.
Since 1997, DEA has conducted numerous clandestine laboratory schools
and have certified over 3,500 Special Agents and state and local law enforcement
personnel across the country.
COPS
FUNDING
In FY 2000, no additional
funding was provided to DEA through the COPS program for clandestine laboratory
training or cleanup services. Instead, funding was provided through COPS,
to 14 states across the country, to cover the cost of state and local
methamphetamine-related cleanup, training, and enforcement programs. Unfortunately,
even with this allocation of resources by the Congress, numerous states
continued to remain reliant upon DEA for clandestine laboratory training
and cleanup services.
Although DEA has
had enough reserve funding to provide clandestine laboratory training
to state and local law enforcement in FY 2000, with the continued escalation
of methamphetamine laboratory seizures across the country, the agency
quickly depleted its carryover resources for state and local clandestine
laboratory cleanup. By March 15, 2000, DEA completely exhausted its reserve
funding for state and local clandestine laboratory cleanup. This situation
put the agency in the precarious position of being unable to continue
to provide cleanup services to state and local law enforcement upon request,
without additional assistance from the Congress and President.
In an effort to address
this situation, DEA worked diligently with the Department of Justice,
the Office of Management and Budget, and the Congress to secure an additional
$10 million in FY 2000 funding for state and local clandestine laboratory
cleanup. On May 11, 2000, Congress approved a plan to provide DEA with
an additional $5.0 million in FY 2000 clandestine laboratory cleanup resources.
This funding has been officially reprogrammed to DEA from the Department
of Justice and is currently available for distribution.
DEA is continuing
to work with the Congress to secure the remaining $5million in FY 2000
clandestine laboratory cleanup resources to ensure that the agency has
enough funding to provide ongoing services to state and local law enforcement
for the remainder of the fiscal year. The agency has also implemented
a plan to reimburse states for the clandestine laboratory cleanup costs
they incurred from the months of March to May.
ACCOMPLISHMENTS
Today, we are optimistic
that our chemical control efforts, combined with aggressive anti-methamphetamine
law enforcement efforts in the local police arena, have been the catalyst
for the decrease in methamphetamine purity. However, success in combating
the smaller lab-based methamphetamine problem may be much more difficult
to achieve. In the past year, several DEA offices in the Midwest and California
have reported that the purity of Mexican methamphetamine has significantly
dropped in the majority of controlled purchases and seizures. Many law
enforcement agencies in the Midwest and California are now reporting that
the previous high purity (80%+ range) of Mexican methamphetamine has now
dropped to less than 30%. Information provided by DEA reporting systems
shows that nationally, the average purity for methamphetamine has dropped
from 71.9 percent in 1994 to an average of 31.1 percent in 1999.
Conclusion
Methamphetamine,
and other controlled substances, which are produced in clandestine laboratories,
provides an increasing threat to drug law enforcement personnel as well
as the citizens of our nation. The vast power and influence of international
drug trafficking syndicates, particularly those based in Mexico, continues
to grow. Their impact on communities around our nation is devastating.
Domestically based
drug traffickers who engage in methamphetamine production and trafficking
are also a major threat to our nation's stability. Since methamphetamine
is relatively easy to produce, and with the proliferation of information
on methamphetamine production available on the Internet, unscrupulous
individuals will continue to take part in this illegal and dangerous enterprise.
Traffickers only need $1,000 worth of chemicals to make $10,000 in methamphetamine
in a trailer, a hotel room or house in any location within the United
States.
As the number of
clandestine labs operated by both internationally-based criminal organizations
and mom and pop, small, independent groups continue to escalate, the chances
of narcotics officers, or other uniformed personnel, inadvertently encountering
clandestine labs will become more and more prevalent. In the years to
come, DEA will continue to work to improve its efforts in the methamphetamine
arena to ensure a safe future for both our law enforcement personnel dedicated
to addressing this dangerous problem as well as our citizens. I thank
you for providing me with this opportunity to address the Subcommittee
and I look forward to taking any questions you may have on this important
issue.
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