Embassy of the United States Serbia

March 7, 2012

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Volume I: Drug and Chemical Control

Serbia

A. Introduction

The Republic of Serbia is an important transit country for narcotics and other drugs along the traditional Balkan smuggling corridor leading from Afghanistan, Central Asia and Turkey to Central and Western Europe. Heroin grown and processed in Afghanistan and marijuana, moving from Albania through Montenegro, are the main illicit drugs transiting Serbia. Small quantities of cocaine also enter Serbia. Smugglers appear to be shifting attention to Serbia's southern and eastern neighbors, especially European Union (EU) members. The government of Serbia continues to prioritize international law enforcement cooperation, particularly with neighboring states, recognizing that regional cooperation is critical in the fight against drug trafficking and organized trans-national crime.

Serbia’s Ministry of Interior believes that Serbian organized crime groups primarily smuggle cocaine directly from South America to Western Europe. Trafficking of synthetic drugs and precursors also remains a concern. Serbia is not a major producer of organic or synthetic drugs or precursors. Serbian authorities take the threat of domestic production of synthetic drugs very seriously and occasionally seize drug labs in Serbia. The Serbian government estimates that relatively small amounts of internationally trafficked narcotics, mostly heroin or marijuana, remain in the country for domestic consumption. Marijuana and synthetic drugs are the most frequently abused.

Serbia’s drug abuse and treatment capacity is limited. Estimates of the addict population range from 30,000-100,000. The only dedicated government-run drug and alcohol rehabilitation clinic treats about 1100 patients per year. The government conducts some public outreach on prevention. The Republic of Serbia is party to the 1988 UN Drug Convention, as a successor state to the former Yugoslavia.

B. Drug Control Accomplishments, Policies, and Trends

1. Institutional Development

The Ministry of Interior, Border Police, and Customs Administration are responsible for combating drug-related crimes in Serbia. These agencies report generally good internal cooperation, but there is no government-wide coordinating body that has a clear lead in counter-narcotics law enforcement efforts, analogous to the U.S. DEA. Interior Ministry officials advocate a more centralized and robust organizational response to narcotics trafficking, but note serious resource constraints. The Interior Ministry conducts joint investigations with neighboring countries and provides intelligence, contributing to international seizures and arrests throughout Europe. Serbia is also working with South American countries with U.S. assistance. The Commission for the Fight against Drugs is composed of the Ministries of Health, Education and Sport, Interior, Social Welfare, and Justice and implements the National Strategy for the Fight against Drugs. The Ministry of Health has the lead, in prevention and treatment efforts. The government has made limited progress in implementing the National Action Plan and five-year National Strategy for the Fight against Drugs, both adopted in 2009. Serbia concluded agreements on law enforcement and counternarcotics cooperation with Turkey in April and with Russia in August 2011, among others.

Serbia participated in the Southeastern Europe Cooperative Initiative (SECI) Regional Center for Combating Trans-border Crime activities, as well as the associated Southeast European Prosecutors Advisory Group (SEEPAG), and ratified the Southeast European Law Enforcement Center (SELEC) Convention in October 2011.

Cooperation with Kosovo remains a significant exception. Serbia does not recognize Kosovo as an independent country and will not cooperate directly with Kosovo government representatives, permit them to attend conferences that Serbia hosts, or participate in multilateral events with them. The Interior Ministry signed a law enforcement cooperation agreement with the EU Rule of Law Mission in Kosovo (EULEX) in 2009, and the Customs Service cooperates informally with EULEX. Direct interaction needs to increase significantly, however, in light of the practical challenges. This has been made more difficult for the short-term by increasing tensions on Serbia’s border with northern Kosovo since late July 2011.

A new law on psychotropic drugs was adopted in December 2010. A revised Criminal Procedure Code was adopted in September 2011. A new Customs Service Law, which would bring Serbia into compliance with EU standards, remains under review. Serbia became a legal successor state to the State Union of Serbia and Montenegro on June 3, 2006. All international treaties and agreements continue in force, including the 1988 UN Drug Convention.

2. Supply Reduction

The Ministry of Interior continues the nationwide “Operation Morava” launched in October 2009 to pressure street-level drug dealers throughout the country and disrupt supply to local markets. Serbian law enforcement agencies report that most drug seizures are the result of international intelligence sharing, good interagency cooperation, and careful investigative work.

Serbia’s Customs Administration and all Interior Ministry agencies made a total of 3,897 seizures from January to September 20112010 saw a steep increase in overall seizures and a single, spectacular heroin seizure. Heroin seizures in 2011 thus were down significantly, a “base-effect” from last year (+66%), cocaine down slightly from a low and declining baseline (11%), and marijuana essentially steady (6% decline). The Customs Administration will have deployed ten new mobile x-ray systems [by end 2011] and invested in other equipment, training, and increased cross-border information-sharing.

3. Drug Abuse Awareness, Demand Reduction, and Treatment

The Serbian government conducts drug abuse prevention campaigns, including a voluntary addiction prevention program in primary and secondary schools. Serbia’s only dedicated government-run drug and alcohol rehabilitation clinic provides emergency services and inpatient and outpatient detoxification using opiate receptor blockers or methadone, psychotherapy, and reintegration skills workshops to treat patients. Public hospitals, including prison hospitals, run outpatient and inpatient drug rehabilitation programs.

4. Corruption

As a matter of policy the Serbian government does not encourage or facilitate the illicit production or distribution of narcotics or launder proceeds from illegal drug transactions. There is no evidence that any senior government official engages in, encourages, or facilitates the illicit production or distribution of drugs. Corruption in Serbia remains a serious social and governmental concern, however, due to low pay, inadequate working conditions and a culture of tolerance of petty corruption in certain fields of public administration, including law enforcement and healthcare. The Republic of Serbia is a party to the UN Convention against Corruption.

C. National Goals, Bilateral Cooperation, and U.S. Policy Initiatives

The Serbian Government works closely with the United States, the OSCE, and EU countries to reform and improve its law enforcement and judicial capacity. The United States has provided extensive technical assistance and equipment donations to the police, customs services, border police, and judiciary. Several USG agencies have programs that directly or indirectly support counter-narcotics activities in Serbia, including the Department of State, Drug Enforcement Administration, Department of Homeland Security, Department of Defense, and the Department of the Treasury. Department of State Bureau of International Narcotics and Law Enforcement (INL) funded programs are implemented by the Department of Justice International Criminal Investigative Training Assistance Program (ICITAP) and Department of Justice Office of Overseas Prosecutorial Development, Assistance, and Training (OPDAT) and have been instrumental in providing support to the Organized Crime Police and Organized Crime Court in Serbia.

USG assistance programs are aimed at professionalizing the police and customs services, building skills for prosecution and investigation techniques providing guidance in the drafting of new legislation, improving the ability of Serbia to prosecute corruption and organized crime, including money laundering and illicit trafficking, and increasing the ability of the judiciary to effectively address serious crime.

Negotiations are underway to update the 1902 Extradition Treaty between the United States and the Kingdom of Serbia, which remains in force between the United States and Serbia.

D. Conclusion

Serbia in 2011 bolstered counternarcotics cooperation on a bilateral basis with its Balkan neighbors and in multilateral fora. Serbia’s cooperation with international partners since at least 2009 has helped lead to multiple drug seizures, several indictments, asset seizures, and new court proceedings against powerful Serbian cocaine traffickers like Darko Saric, although more effective cooperation with Kosovo and EULEX is needed. Improved communication and strategic coordination among law enforcement and judicial bodies within Serbia is also needed to enhance the comprehensive counternarcotics efforts. The United States will continue to support the efforts of Serbian law enforcement to combat narcotics smuggling in the country and the region through training, capacity-building, and donations of critical equipment.