San Antonio Drug Summit 1992
We, the Presidents of Bolivia, Colombia, Ecuador, Mexico, Peru, and the United States of America, and the Minister of Foreign Relations of Venezuela, met in San Antonio, Texas, on the 26th and 27th of February, one thousand nine hundred and ninety-two and issued the following
Declaration of San Antonio
We recognize that the Cartagena Declaration, issued on February 15, 1990, by the Presidents of Bolivia, Colombia, Peru, and the United States of America, laid the foundation for the development of a comprehensive and multilateral strategy to address the problem of illegal drugs. Those of us who represent the countries that met in Cartagena strongly reaffirm the commitments assumed at that time. Meeting now as representatives of seven governments, we express our determination to move beyond the achievements of Cartagena, build upon the progress attained, and adapt international cooperation to the new challenges arising from worldwide changes in the drug problem.
We recognize that the overall problem of illegal drugs and related crimes represents a direct threat to the health and well-being of our peoples, to their economies, the national security of our countries, and to harmony in international relations. Drugs lead to violence and addiction, threaten democratic institutions, and waste economic and human resources that could be used for the benefit of our societies.
We applaud the progress achieved over the past two years in reducing cocaine production, in lowering demand, in reducing cultivation for illicit purposes, in carrying out alternative development programs, and in dismantling and disrupting transnational drug trafficking organizations and their financial support networks. The close cooperation among our governments and their political will have led to an encouraging increasing in drug seizures and in the effectiveness of law enforcement actions. Also as a result of this cooperation and political will, a number of the principal drug lords who were actively engaged in the drug trade two years ago are in prison in several countries. Alternative development programs have proven to be an effective strategy for replacing coca cultivation in producer countries.
Although we are encouraged by these achievements, we recognize that mutual cooperative efforts must be expanded and strengthened in all areas. We call on all sectors of society, notably the media, to increase their efforts in the anti-drug struggle. The role of the media is very important, and we urge them to intensify their valuable efforts. We undertake to promote, through the media, the values essential to a healthy society.
In addition to the cocaine problem, we recognize the need to remain alert to the expansion of the production, trafficking, and consumption of heroin, marijuana, and other drugs. We emphasize the need to exert greater control over substances used in the production of these drugs, and to broaden consultations on the eradication of these illegal crops.
We are convinced that our anti-drug efforts must be conducted on the basis of the principle of shared responsibility and in a balanced manner. It is essential to confront the drug problem through an integrated approach, addressing demand, cultivation for illicit purposes, production, trafficking, and illegal distribution networks, as well as related crimes, such as traffic in firearms and in essential and precursor chemicals, and money laundering. In addition, our governments will continue to perfect strategies that include alternative development, eradication, control and interdiction, the strengthening of judicial systems, and the prevention of illicit drug use.
We recognize the fundamental importance of strengthening judicial systems to ensure that effective institutions exist to bring criminals to justice. We assume responsibility for strengthening judicial cooperation among our countries to attain these objectives. We reaffirm our intention to carry out these efforts in full compliance with the international legal framework for the protection of human rights.
We reaffirm that cooperation among us must be carried out in accordance with our national laws, with full respect for the sovereignty and territorial integrity of our nations, and in strict observance of international law.
We recognize that the problem of illicit drugs is international. All countries directly or indirectly affected by the drug problem should take upon themselves clear responsibilities and actions in the anti-drug effort. We call on the countries of the region to strengthen national and international cooperative efforts and to participate actively in regional programs. We recognize that in the case of Peru, complicity between narco-trafficking and terrorism greatly complicates the anti-drug effort, threatens democratic institutions, and undermines the viability of the Peruvian economy.
We express our support for the anti-drug struggle being carried out by our sister nations of the Western Hemisphere, we call on them to increase their efforts, and we offer to strengthen our governments' cooperation with them through specific agreements they may wish to sign. We value and encourage regional unity in this effort.
We note with concern the opening and expansion of markets for illicit drugs, particularly cocaine, in Europe and Asia. We call upon the nations of those continents and on other member countries of the international community to strengthen, through bilateral or multilateral agreements, cooperation in the anti-drug effort in which the nations of the Western Hemisphere are engaged. To this end, we have agreed to form a high-level group with representatives designated by the signatory countries of this Declaration, to visit other countries of this Hemisphere, Europe, and Japan, with the purpose of inviting them to participate actively in the efforts and cooperative strategies described in this Declaration.
We reaffirm our solid commitment to the anti-drug efforts of international organizations, notably the United Nations and the Organization of American States. Inspired by the mandate of the Inter-American Commission on the Control of Drug Abuse, we express our full support for its programs.
We recognize the fundamental importance of strong economies and innovative economic initiatives to the successful conduct of the anti-drug effort. Further progress in the areas of trade and investment will be essential. We support the Enterprise for the Americas Initiative as a means of improving economic conditions in the Hemisphere, and we are encouraged by the progress the countries of the region have made in restructuring their economies.
We reaffirm the importance of alternative development in the anti-drug effort. We note that the victims of narco-trafficking in the region include those sectors of society that live in extreme poverty and that are attracted to illicit drug production and trafficking as a means of livelihood. We consider that if our efforts to reduce illegal drug trafficking are to be successful, it will be essential to offer legitimate options that generate employment and income.
We propose to achieve the objectives and goals defined above in this Declaration and in its attached Strategies for Action.
Recognizing the need to ensure cohesion and progress in our anti-drug efforts, our governments intend to hold a high-level meeting on an annual basis.
In order to broaden international anti-drug efforts still further, we invite additional countries or representatives of groups of countries to associate themselves with this Declaration.
Done at San Antonio, Texas, on this, the 27th day of February, 1992, in the English and Spanish languages.
[At this point, the representatives of the seven nations signed the declaration.]
Strategies for Drug Control and the Strengthening of the Administration of Justice
The Countries intend to strengthen unilateral, bilateral, and multilateral enforcement efforts and strengthen judicial systems to attack illicit trafficking in narcotic drugs, psychotropic substances, and precursor and essential chemicals. The Countries are determined to combat drug trafficking organizations through the arrest, prosecution, sentencing, and imprisonment of their leaders, lieutenants, members, accomplices, and accessories through the seizure and forfeiture of their assets, pursuant to the Countries' respective domestic legal systems and laws in force. To attain these objectives, the Countries intend to carry out coordinated cooperative actions through their national institutions.
Enforcement efforts cannot be carried out without economic programs such as alternative development.
The Countries request financial support from the international community in order to obtain funds for alternative development programs in nations that require assistance.
1. Training Centers
The Countries intend to provide training for the personnel who are responsible for or support the counter-drug battle in the signatory Countries at national training centers already in existence in the region. Emphasis will be given to the specialties of each of these centers in which personnel from governments of the other Countries may be enrolled as appropriate, in accordance with their respective legal systems. The signatory Countries, other governments, and international organizations are encouraged to provide financial and technical support for this training.
2. Regional Information Sharing
The Countries intend to expand reciprocal information sharing concerning the activities of organizations, groups, and persons engaged in illicit drug trafficking. The Countries will establish channels of communication to ensure the rapid dissemination of information for purposes of effective enforcement. This information sharing will be consistent with the security procedures, laws, and regulations of each country.
3. Control of Sovereign Air Space
The Countries recognize that drug traffickers move illicit drugs via identified air corridors and without regard to international borders or national airspace. The Countries also recognize that monitoring of airspace is an important factor in the apprehension of aircraft and crews involved in illicit drug traffic.
The Countries recognize that there is a need to exchange timely information on potential drug traffickers in and around each country's sovereign air space.
The Countries also agree to exchange information on their experiences and to provide one another with technical assistance in detecting, monitoring, and controlling aerial drug trafficking, when such assistance is requested in accordance with the domestic laws of each country and international laws in force.
4. Aircraft, Airfield and Landing Strip Control
The Countries, recognizing that private and commercial aircraft are being utilized with increasing frequency in illicit trafficking of narcotic drugs and psychotropic substances, intend to establish and increase the necessary enforcement actions to prevent the utilization of such aircraft, pursuant to the domestic laws of each country and international regulations in force.
The Countries also intend, if necessary, to examine their domestic regulations pertaining to civil aviation in order to prevent the illicit use of aircraft and airports. They will also take the enforcement measures necessary to prevent the establishment of clandestine landing strips and eliminate those already in existence.
The Countries will cooperate closely with each other in providing mutual assistance when requested in order to investigate aircraft suspected of illicit drug trafficking. The Countries, pursuant to their domestic legal systems, also intend to seize and confiscate private aircraft when it has been proven that they have been used in the illicit traffic of narcotic drugs and psychotropic substances.
5. Maritime Control Actions
As called for in Article 17 of the 1988 United Nations Convention against Illicit Traffic in Narcotic Drugs and Psychotropic Substances, the Countries intend to strengthen cooperation to eliminate to the extent possible illicit trafficking by sea. To this end, they will endeavor to establish mechanisms to determine the most expeditious means to verify the registry and ownership of vessels suspected of illicit trafficking that are operating seaward of the territorial sea of any nation. The Countries further intend to punish illicit traffic in narcotic drugs and psychotropic substances by sea under their national laws.
6. Chemical Control Regimes
The Countries recognize that progress has been made in international efforts to eliminate the diversion of chemicals used in the illicit production of narcotic drugs and psychotropic substances. They specifically support the ``Model Regulations to Control Chemical Precursors and Chemical Substances, Machines and Materials'' of the Organization of American States, the chemical control measures adopted at the April 1991 International Drug Enforcement Conference (IDEC) meeting, and the recommendations in the Final Report of the Group of Seven Chemical Action Task Force, published in June 1991. The Countries call on all nations, and in particular, chemical exporting countries, to adopt the recommendations of the Group of Seven Chemical Action Task Force. They welcome the work of the above-mentioned Task Force and await with interest its report to the 1992 Economic Summit, in which it will make recommendations for the proper organization of worldwide control of those chemical products.
The Countries express their support for including ten additional chemicals in the United Nations Convention Against Illicit Traffic in Narcotic Drugs and Psychotropic Substances, as proposed by the United States on behalf of the Chemical Action Task Force in the U.S. notification to the Secretary General.
The Countries call on the International Narcotics Control Board to strengthen its actions aimed at controlling essential and precursor chemicals.
The Countries intend to investigate, in their respective countries, the legitimacy of significant commercial transactions in controlled chemical products. The Countries call on the chemical producing nations to establish an effective system for certification of end uses and end users.
The Countries will take appropriate legal action against companies violating chemical control regulations.
Studies will be conducted in the countries where narcotic drugs and psychotropic substances are produced in order to quantify the demand for chemicals for legitimate purposes in order to assist in the control of these products. The United States intends to provide financial and technical assistance for conducting the aforementioned studies and for setting up national data banks.
The Countries urge all nations and international organizations to cooperate effectively with programs aimed at strengthening border control in order to prevent the illegal entry of chemicals.
7. Port and Free Trade Zone Control
The Countries intend to implement measures to suppress illicit drug trafficking in free trade zones and ports, as called for in Article 18 of the 1988 United Nations Convention Against Illicit Traffic in Narcotic Drugs and Psychotropic Substances and in accordance with the recommendations of the Ninth International Drug Enforcement Conference. A group of experts may be required to conduct a specialized study in order to identify the ports and free trade zones and identify the vulnerable points in the ports and free trade zones in the region that could be utilized for illicit traffic in drugs and chemicals. This study and subsequent reviews will serve as the basis for adopting measures to prevent illicit traffic in drugs and controlled substances in ports and free trade zones.
8. Carrier Cooperation Agreement
The Countries are concerned about the difficulties inherent in the identification of suspicious shipments included in the great volume of legitimate commerce. In order to improve the effectiveness of border controls and also facilitate the transit of legitimate merchandise, the Countries intend to enlist the cooperation of air, land, and maritime transport companies. The Countries agree, in principle, to implement common standards and practices in order to include carriers in measure to improve anti-drug security.
9. Money Laundering
The 1988 United Nations Convention Against Illicit Traffic in Narcotic Drugs and Psychotropic Substances establishes a series of measures related to the control of financial assets to which the Countries intend to conform their domestic laws. The Countries support full implementation of this Convention, which requires, inter alia, the criminalization of all money laundering operations related to illicit drug traffic.
The Countries recognize and support the efforts of the Group of Seven Financial Action Task Force. The Countries call upon the Eleventh Meeting of senior-level OAS/CICAD officials to approve the Model Regulations on Money Laundering related to illicit drug traffic.
The Countries intend to make recommendations regarding the following:
-- The elements of a comprehensive financial enforcement and money laundering control program;
-- Exchange of financial information among governments in accordance with bilateral understandings.
10. Strengthening the Administration of Justice
The Countries recognize and support efforts designed to improve their judicial systems, in those cases in which this may be necessary, in order to ensure the effectiveness of those systems in establishing the culpability and penalties applicable to traffickers in illicit drugs. They recognize the need for adequate protection for the persons responsible for administering justice in this area inasmuch as effective legal systems are essential for democracy and economic progress.
The Countries call on all nations to strengthen the United Nations Drug Control Program.
11. Strengthening Judicial Cooperation
The Countries support the provisions of the 1988 United Nations Convention Against Illicit Traffic in Narcotic Drugs and Psychotropic Substances related to increased cooperation and mutual legal assistance in the battle against illicit drug trafficking, money laundering, and investigations and proceedings involving seizure and forfeiture. The Countries must consider approval of the projects of the OAS Inter-American Judicial Committee on mutual legal assistance in criminal matters and on precautionary measures.
The Countries will encourage the expeditious exchange of information and evidence needed for legal proceedings involving illicit drug trafficking, pursuant to their domestic laws and bilateral and multilateral agreements.
12. Sharing of Assets and Property
The Countries shall seek to conclude bilateral or multilateral agreements on the sharing of property seized and forfeited in the struggle against drug trafficking in accordance with the laws in force and the practices in each country. The Countries also consider that asset sharing would encourage international cooperation among law enforcement officials, and that confiscated property would be a valuable source of funds and equipment for combatting drug production and trafficking and for preventing drug consumption and treating addicts.
13. Firearms Control
The Countries recommend that measures to control firearms, ammunition, and explosives be strengthened in order to avoid their diversion to drug traffickers. The Countries also call for an enhanced exchange of detailed and complete information regarding seized weapons in order to facilitate the identification and determination of origin of such weapons, as well as the prosecution of those responsible for their illegal export.
To this end, the United States intends to tighten its export controls and to cooperate with the Governments of the other Countries to verify the legitimacy of end users.
The Countries consider that close cooperation with the OAS/CICAD is essential in such firearms, ammunition, and explosives control efforts.
14. Other Cooperative Arrangements
The Countries recognize that cooperative operations have been a useful tool in the war against drug traffickers in the past. The Countries intend to continue and expand such cooperative measures through their national organizations responsible for the struggle against illegal drug trafficking.
Strategies in the Economic and Financial Areas
The Countries propose to strengthen unilateral, bilateral, and multilateral efforts aimed at improving economic conditions in the countries involved in the cycle of illegal drug production and trafficking. Extreme poverty and the growth of the drug problem are the main reasons that peasants become involved in illegal coca leaf production. The Countries reaffirm the principles in the Declaration of Cartagena, which accept that alternative economic development is an essential part of the comprehensive plan to reduce illegal trade in narcotic drugs and psychotropic substances. Alternative development cannot succeed in the absence of enforcement and interdiction efforts that effectively reduce this illegal drug trafficking.
The Countries recognize and approve of the structural changes that have taken place in the economies of the Andean countries and Mexico. These changes strengthen stability and increase prospects for economic growth. The Countries recognize that these reforms merit full support. Efforts to attract an increased flow of private investment will provide opportunities for sustained economic growth.
1. Economic Issues
The Countries recognize that the Enterprise for the Americas Initiative (EAI) with its three pillars -- investment, trade, and debt -- offers important means of improving economic conditions in the Hemisphere.
All of the Countries have signed bilateral trade and investment framework agreements with the United States. The Countries recognize that these agreements are important to encourage investment and trade liberalization, and they intend to move ahead with the three pillars of the EAI as follows:
a. Investment
The Countries recognize the critical importance of enacting laws and taking steps that encourage private investment and economic development. In this regard, the Countries have expressed their willingness to negotiate parallel bilateral agreements to protect intellectual property rights, as well as bilateral investment agreements, and others that promote trade liberalization. For this purpose, the Enterprise for the Americas Initiative includes trade and investment framework agreements.
The Countries express their satisfaction with the establishment of the Multilateral Investment Fund under the aegis of the Inter-American Development Bank. The Countries consider this Fund important to provide technical assistance and to encourage private investment.
The Countries note that the move towards a market economy in Latin America is a good vehicle for generating sustained economic growth, with benefits throughout society. They therefore view with interest experiences in privatizing services and industries that can serve to attract a significant flow of direct foreign investment. The initiation of operations by the Multilateral Investment Fund and technical assistance in support of privatization efforts will aid in the development of market economies. Some Andean countries plan to proceed with privatization programs and reforms of financial systems to the degree and depth possible in each country.
The Andean countries state that facilitating access to the 936 funds would have a catalytic effect in attracting private investment to that subregion.
The profound structural changes in the region make the active participation of financial entities in funding private projects more important than ever before. The Countries urge entities such as the International Finance Corporation (IFC) and the Inter-American Investment Corporation (IIC) to continue working with the Andean region. The countries of the Andean region are pleased by Mexico's participation as a stockholder in the Andean Development Corporation (ADC), which is a suitable channel for development activity in the subregion, particularly for the private sector, within a framework of productive integration. These countries express their interest in also being able to count on active participation by the United States Government in the ADC. The United States takes note of that interest.
b. Trade
The Countries express their satisfaction regarding enactment of the Andean Trade Preference Act which allows the countries of the Andean region to export a wide variety of products to the United States for a ten-year period without paying duties. Those eligible countries that wish to benefit from this law will take the required steps. The United States, furthermore, plans to implement the provisions of this law as rapidly as possible in order to extend its benefits to the countries determined to fulfill the criteria in the Law. The Andean countries also express their interest in having these preferences extended to Venezuela.
The Countries recognize that the proposed North American Free Trade Agreement will be an important step in the process of creating a hemispheric free trade agreement in accordance with the Enterprise for the Americas Initiative. The Countries stress the importance of continued economic integration and trade liberalization efforts.
c. Debt
The Countries express their satisfaction with the progress achieved by some Andean countries and Mexico in renegotiating their debt with the private international banking system and intend, when appropriate, to continue to support reduction of this debt. The Countries point out that the economic reforms implemented by Bolivia have already made it possible for that country to benefit from the reduction of a large part of its bilateral debt with the United States under the auspices and in the spirit of the Enterprise for the Americas Initiative, which will make it possible to implement environmental projects in Bolivia. The Government of the United States will continue to take the necessary steps to obtain the legislative approval required for the debt categories that still do not have this authorization.
2. Alternative Development
The Countries acknowledge that the goals of the Cartagena Declaration regarding the substitution of other agricultural products for coca and other plants that feed the drug cycle, and the creation of new sources of licit income, have not yet been fully achieved. The Countries note that in a major new initiative, the United States -- in consultation with Bolivia, Colombia, Ecuador and Peru -- is engaged in a program to provide training and technical assistance in agricultural marketing that will stress participation by the private sector as well as assistance for animal and plant health. The Countries applaud this program and intend to facilitate its implementation to the maximum extent possible.
Notwithstanding assistance already pledged by the United States and the United Nations, the Countries recognize the need to establish a broad basis of funding for alternative development. For this reason, and given the worldwide range of illicit narcotics, the Countries intend to strive for increased participation of countries such as Japan and others as well as international financial agencies and institutions such as the World Bank, the Inter-American Development Bank the European Community, the OAS, the OECD and others. The Andean nations believe, and the United States takes note, that such actions should also include the establishment of a facility for alternative development in an international financial institution. The Countries are determined to enlist the support of the international community in their fight against drugs.
The Countries support the work of the OAS/CICAD Group of Experts charged with reviewing the alternative development approach and recommending ways to enhance it.
Under the alternative development program, the Countries recognize the importance of implementing short-term projects such as emergency food programs, food for work, and income and employment generation. The Countries recognize that these efforts must simultaneously accompany eradication efforts in order to reduce the economic impact on coca leaf producers. These short-term actions must be aimed at producing jobs and temporary income until such time as the alternative development projects are fully developed.
The Countries underscore the need for alternative development programs to be strengthened in coca leaf producing countries, or in those countries with areas that have potential for producing plants from which elements utilizable in the production of narcotics and psychotropic drugs can be extracted, so as to reduce the supply of raw material that feeds the narco-trafficking cycle. These programs will help farmers have different economic alternatives, which will allow them to move away from illegal coca production.
The Countries acknowledge the progress achieved in alternative development in Bolivia and the beginning of alternative development activities in Peru. In this context, the Countries note the bilateral agreements with the United States signed by Peru and by Bolivia to implement alternative economic development and drug control programs, as useful experiences applicable to other countries. These two most salient examples are summarized as follows:
Bolivia
In Bolivia, with the firm support of the United States, efforts undertaken to develop other crops in coca producing zones, as well as in those areas from which people have been expelled, are having some success, starting with the production of genetic material with a proven biological viability, acceptable rate of return and a potential for export. Technical assistance and credit, as well as continued training of farmers, permits the achievement of a good level of technology transfer.
Actions taken in the infrastructure area have made it possible to improve the means of transporting agricultural products to consumer markets and processing them.
Aggressive marketing is slowly allowing the opening of internal markets to the first items of this production, in accordance with phytosanitary and quality control requirements. The support being given to the social dimension by providing infrastructure in the health and education sectors is making it possible to improve the quality of life of the rural population.
A new five-year project, which will start in early June of 1992, will provide continuity and strengthen key activities, such as marketing and private investment.
Multilateral cooperation through the United Nations Drug Control Program (UNDCP) has also assisted in the alternative development process, especially in basic sanitation, roads, energy and agroindustry.
Nevertheless, based on the above-mentioned Bolivian experiences it is recommended that:
1. Recognition be given to the fact that implementation of coca reduction policy has to be adapted to the pace of alternative development in order to reduce the gap between the loss of income and its replacement. It is evident that the success in alternative development will discourage farmers from growing coca.
2. Recognition be given to the importance of full and active participation by the farmers in alternative development processes.
3. Bilateral and multilateral cooperation in alternative development be considered with regard to its specificity. It should include comprehensive, multisectoral and long-term program guidance and should also be sufficiently flexible, broad and timely to be able to promote qualitative changes beyond the short term.
Peru
In the case of Peru, progress can be summarized by the following points:
-- The participation of the United States Government and Japan in the support group for the reentry of Peru into the international financial community. This allows the IDB and other bilateral donors to provide funds.
-- The carrying out of massive food aid programs, promotion of a favorable economic po