Drug Control
Cooperation with Many Major Drug Transit Countries Has Improved, but Better Performance Reporting and Sustainability Plans Are Needed
GAO-08-784, Aug 14, 2008
Additional Materials:
Contact:
Each year, criminal organizations transport hundreds of tons of illegal drugs from South America to the United States through a 6 million square mile "transit zone" including Central America, the Caribbean, the Gulf of Mexico, and the eastern Pacific Ocean. Since fiscal year 2003, the United States has provided over $950 million to support counternarcotics efforts in transit zone countries, which historically lacked the capacity to interdict drugs. GAO was asked to examine (1) how the United States has assisted transit zone countries in disrupting drug trafficking and (2) what factors have impeded these efforts. GAO analyzed relevant data, met with U.S. and foreign officials, and visited selected countries.
U.S. government assistance has improved international counternarcotics cooperation with the eight major drug transit countries GAO reviewed, except Venezuela. First, assistance programs have helped partner nations gather, process, and share information and intelligence leading to arrests and drug seizures. Second, they have enabled these nations to participate in counternarcotics operations--both at sea and on land--by providing assets (such as interceptor boats and vehicles), logistical support, and training for police units. Third, U.S. assistance has helped strengthen the capacity of prosecutors to work more effectively on drug-related cases. Assessing the impact of such a wide variety of programs is difficult because some are indirectly related to drug interdiction, and because results reporting has been limited and inconsistent. Despite gains in international cooperation, several factors, including resource limitations and lack of political will, have impeded U.S. progress in helping governments become full and self-sustaining partners in the counternarcotics effort--a goal of U.S. assistance. These countries have limited resources to devote to this effort, and many initiatives are dependent on U.S. support. Programs to build maritime interdiction capacity have been particularly affected, as partner nations lack fuel and other resources needed to operate and maintain U.S.-provided boats. Limited political support, particularly in Venezuela, and corruption have also hindered U.S. counternarcotics efforts. In addition, the Department of Homeland Security (DHS) has implemented a Container Security Initiative (CSI) that targets and scans containers for weapons of mass destruction and terrorist contraband. But CSI has not routinely been used for illicit drug detection, despite its applicability for this purpose.
Status Legend:
Status will change from "In process" to "Open," "Closed - implemented," or "Closed - not implemented" based on our follow up work.
- In Process
- Open
- Closed - implemented
- Closed - not implemented
Recommendations for Executive Action
Recommendation: To link U.S.-funded initiatives in transit zone countries to the priority of disrupting illicit drug markets and the goal of assisting nations to become full and self-sustaining partners in the international counternarcotics effort, the Secretary of State, in consultation with the Director of the Office of National Drug Control Policy (ONDCP), the Secretaries of Defense and Homeland Security, the Attorney General, and the Administrator of U.S. Agency for International Development (USAID), should report the results of U.S.-funded counternarcotics initiatives more comprehensively and consistently for each country in the annual International Narcotics Control Strategy Report.
Agency Affected: Department of State
Status: Open
Comments: State generally agreed with the report's conclusions, but disagreed with our recommendation on results reporting. State noted that it has already developed performance measures to reflect progress in achieving broad counternarcotics goals and development goals in general, though they do not necessarily capture program-specific results. The recommendation emphasizes the need for more systematic reporting of program-specific results that would link U.S. counternarcotics efforts to State's broader performance goals and measures. State also noted that there is substantial variation in assistance programs in particular countries in terms of program types and funding levels. However, we observed that many programs in several countries are similar in nature and lend themselves to the comparison of results among countries. Developing a method of reporting these results more comprehensively and consistently across years and among country programs in the International Narcotics Control Strategy Report would address our concern.
Recommendation: The Secretary of State, in consultation with the Director of ONDCP, the Secretaries of Defense and Homeland Security, and the Attorney General, should (1) develop a plan to ensure that partner nations in the transit zone can effectively operate and maintain all counternarcotics assets that the United States has provided, including boats and other vehicles and equipment, for their remaining useful life and report this plan to the Congress for the fiscal year 2010 appropriations cycle and (2) ensure that, before providing a counternarcotics asset to a partner nation, agencies determine the total operations and maintenance cost over its useful life and, with the recipient nation, develop a plan for funding this cost.
Agency Affected: Department of State
Status: Open
Comments: State partially agreed with our recommendation on sustainability planning and indicated that its project designs, agreements with recipient countries, and monitoring mechanisms are appropriate for addressing sustainability concerns, given the unpredictability of recipient countries' long-term priorities and budgetary resources. Furthermore, State commented that it has limited ability to influence the coordinated sustainability planning of other agencies and has no influence over Defense's Enduring Friendship program. Given past experience, we question whether providing assets is justifiable without more specific and detailed plans that give better assurances that the recipient country and participating agencies are committed to funding specified operations and maintenance costs. State is in a unique position as the lead foreign affairs agency to ensure that all participating U.S. agencies involved in providing counternarcotics assets agree on a discrete sustainability plan. State, in particular, can influence Defense?s sustainability planning when it approves security assistance programs, such as Enduring Friendship. Section 1206 of the National Defense Authorization Act of 2006, under which Enduring Friendship was authorized, requires State and Defense to jointly approve all projects and coordinate their implementation.
Recommendation: To help maximize cargo container security assistance, the Secretary of Homeland Security, in consultation with the Secretary of State and the Attorney General, should determine the feasibility of expanding the Container Security Initiative to include routine targeting and scanning of containers for illicit drugs in major drug transit countries in the transit zone, and report the results to the Congress. Factors to be assessed should include the cost, workload and staffing ramifications, the potential benefits to international counternarcotics law enforcement efforts, the political support of CSI participating countries, statutory authority, and any risks associated with such an expansion.
Agency Affected: Department of Homeland Security
Status: Closed - Not Implemented
Comments: The Department of Homeland Security (DHS) did not concur with our recommendation to study the feasibility of expanding the Container Security Initiative (CSI) program. According to DHS, expanding CSI to include narcotics interdiction would unnecessarily broaden the program's strategic goals and is inconsistent with its mandate to secure the international supply chain from high-risk shipments with a potential risk of terrorism and acts of terrorism.