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Diplomacy in Action

Strategic Goal 5: International Crime and Drugs

FY 2005 Performance Summary (The Plan)
Bureau of Resource Management
February 2004

Strategic Goal 5: International Crime and Drugs
Minimize the Impact of International Crime and Illegal Drugs on the United States and its Citizens

I. Strategic Goal Public Benefit
Americans face growing security threats, both at home and abroad, from international terrorist networks and their allies in the illegal drug trade and international criminal enterprises. Illegal drugs impose a staggering toll, killing more than 19,000 Americans annually and costing more than $160 billion in terms of law enforcement, drug-related heath care, and lost productivity. This is in addition to the wasted lives; the devastating impact on families, schools, and communities; and the generally corrosive effect on public institutions. In the President's words, "Illegal drug use threatens everything that is good about our country." International crime groups also pose critical threats to U.S. interests, undermine the rule of law and enable transnational threats to grow. International trafficking in persons, smuggling of migrants and contraband, money laundering, cybercrime, theft of intellectual property rights, vehicle theft, public corruption, environmental crimes, and trafficking in small arms cost U.S. taxpayers and businesses billions of dollars each year. International trafficking in persons violates fundamental human rights of victims. Experts estimate that non-drug crime accounts for half of the estimated $750 billion of money laundered each year globally.
The events of 9/11 and their aftermath highlight the close connections and overlap among international terrorists, drug traffickers, and transnational criminals. All three groups seek out weak states with feeble judicial systems, whose governments they can corrupt or even dominate. Such groups jeopardize peace and freedom, undermine the rule of law, menace local and regional stability, and threaten the United States and its friends and allies.
To meet these challenges, the Department supports a robust and comprehensive range of public-private, bilateral, regional, and global initiatives and assistance programs to build up the law enforcement capabilities of foreign governments to help stop these threats before they reach U.S. soil. This includes working with other USG agencies and foreign governments to break up drug trafficking and other international crime groups, disrupt their operations, arrest and imprison their leaders, and seize their assets. To this end, the Department works with foreign governments to set international anti-crime standards, close off safe-havens to criminal groups, pool skills and resources, and improve cross-border cooperation.

II. Resource Summary($ in Millions)

  FY 2003 Actual FY 2004 Estimate FY 2005 Request Change from FY 2004
Amount %
Staff 717 747 744 (3) (0.4%)
Funds $1,256 $1,448 $1,321 ($127) (8.8%)

III. Strategic Goal Context
Shown below are the two performance goals, initiatives/programs, resources, bureaus and partners that contribute to accomplishment of the "International Crime and Drugs" strategic goal. Acronyms are defined in the glossary at the back of this publication.

Strategic Goal Performance Goal
(Short Title)
Initiative/Program Major Resources Lead Bureaus External Partners
International Crime and Drugs Disruption of Criminal Organizations Andean Counterdrug Initiative D&CP, ACI INL, WHA DOD, USAID, DEA, DOJ, ONDCP, CNC
Improve Anti-Trafficking in Persons Prosecutorial and Protection Capacities D&CP
Law Enforcement and Judicial Systems Support Investigations of Major International Criminals D&CP, INCLE, ACI, ESF, SEED, FSA INL, IO DOJ, DHS, UN
International Law Enforcement Academies (ILEAs) D&CP, INCLE, SEED, FSA INL FBI, DEA, DHS, Treasury
Money Laundering Initiative D&CP, INCLE, ACI, SEED, FSA, ESF, NADR INL, S/CT Treasury, FATF, UN, G-8, DOJ. DHS

IV. Performance Summary
For each Initiative/Program that supports accomplishment of this strategic goal, the most critical FY 2005 performance indicators and targets are shown below.

Annual Performance Goal #1

I/P #1: Andean Counterdrug Initiative
Reinforce the unified campaign against drug trafficking and the terrorists who benefit from it.
Results Targets
2000 & 2001 2002 2003 2004 2005
Outcome Indicator
Indicator #1: Foreign Cultivation of Coca in Hectares

Coca: 223,700

Coca: 205,450 Data pending. However, early projections indicate that the target will be reached. Total Coca: 154,000

Colombia: 95,000

Peru: 33,600

Bolivia: 25,000*

*Includes 12,000 hectares of legal coca.

Total Coca: 132,000

Colombia: 75,00

Peru 32,500

Bolivia: 25,000*

*includes 12,000 hectares of legal coca.

Outcome Indicator
Indicator #2: Potential Production of Cocaine in Key Source Countries in Metric Tons


880 Data pending. 639 537
Outcome Indicator
Indicator #3: Seizures of Cocaine (HCI/base) (Columbia, Peru, Bolivia) in Metric Tons


132 Data pending. 120 125

I/P #2: Global Poppy Cultivation
Results Targets
2000 & 2001 2002 2003 2004 2005
Outcome Indicator
Indicator #4: Global Cultivation of Illicit Opium Poppy in

in Hectares



141,200 Data pending. Preliminary data indicates that the target will not be reached, primarily as a result of cultivation in Afghanistan. 133,000 128,000

I/P #3: Improve Anti-Trafficking in Persons, Prosecutorial and Protection Capacities
Train law enforcement officials and service providers to work collaboratively to take preventive measures against trafficking in persons, identify trafficking rings and victims, effectively use existing legislation to prosecute traffickers, weed out corruption, and ensure protections for victims.
Results Targets
2000 & 2001 2002 2003 2004 2005
Outcome Indicator
Indicator #5: Progress Toward the Elimination of Trafficking in Persons (TIP)


The Trafficking Victims Protection Act of 2000 (P.L. 106-386) called for the creation of the Office to Monitor and Combat Trafficking in Persons.

The Office to Monitor and Combat Trafficking in Persons was established.

First Trafficking in Persons Report was issued.

The President's Interagency Taskforce and Senior Policy Advisory Group coordinated anti-trafficking policy.

Second Trafficking in Persons Report was issued.

Ratification package for UN Trafficking in Persons Protocol was sent to the Senate.

Forty-two percent of Tier 2 and Tier 3 countries use Department assistance to develop or further anti-trafficking initiatives.

Third TIP Report was issued and includes 26 additional countries for a total of 116.

Promoted "best practices" through five new bilateral and regional initiatives among source, transit, and destination countries.

Forty-two countries ratified UN Trafficking in Persons Protocol, which entered into force.

Increase number of countries in Tier 1 by five, bringing total to 31 countries.

Tier rating target for 2004 TIP Report

  • Tier 1: 31

  • Tier 2: 80

  • Tier 3: 12

Enhance research and data collection; include the addition of countries to TIP report.

Enhance public awareness in U.S. and abroad.

Thirty additional countries, including the U.S., ratify UN Trafficking in Persons Protocol.

Number of countries in Tiers 2 and 3 improve their anti-trafficking record and move up one tier, including three moving up to Tier 1 in the 2005 Trafficking in Persons Report .

Tier rating target for FY 03

  • Tier 1: 34

  • Tier 2: 85

  • Tier 3: 10

The number of prosecutions against traffickers increases worldwide as a result of better information collection, improved laws and U.S.G. assistance.

I/P #4: Mexico
Improve border security, counternarcotics, and other crucial programs in Mexico.
Results Targets
2000 & 2001 2002 2003 2004 2005
Outcome Indicator
Indicator #6: Capacity to Identify Illicit Goods Through Use of High-Tech Equipment


No border checkpoints equipped with high tech screening equipment (VACIS).

No border checkpoints equipped with high-tech screening equipment. Planning initiated to establish border enhancement program based on the Border Accord.

VACIS installed at one crossing point.

VACIS installed at two additional northern (U.S./Mexico crossing points. NIEE installed at three airports. VACIS installed at five additional northern crossing points (for a total of ten) and two southern crossing points; NIEE (VACIS or other) installed at three other key locations yet to be determined.
Outcome Indicator
Indicator #7: Professionalization of Justice Sector

No background checks conducted, pay scales below private sector. Federal Judicial Police force disbanded.
Background checks routinely conducted on new personnel - beginning to re-check or re-vet current personnel; improved pay for special federal investigative units. New Federal Investigations Agency (AFI) established. Narcotics police force disbanded following evidence of wide-spread corruption. Mexico's federal law enforcement academy graduated 979 students in 2003.

Increase in capacity of GOM academies to train personnel.

Increase in advanced training by USG; number of GOM personnel trained; continued increase in pay scales.

Increase in money laundering prosecutions/convictions and forfeitures.

GOM fully staffs new federal law enforcement agencies - providing all basic training via national academies.

Increase in capacity of GOM academies to provide advanced law enforcement training; continued increase in pay scales.

Increase in money laundering prosecution/convictions and asset forfeitures.

Means for Achieving FY 2005 Targets
Reduction in foreign cultivation of coca and production of cocaine.

  • Following delivery of last round of Plan Colombia equipment in 2004, continue aggressive aerial eradication program, spraying all identified coca at least once.
  • Support Colombian National Police Reinsertion Program to extend law enforcement presence into many of the drug transit corridors by deploying police units to municipalities with little state presence.
  • Continue to enable coca growers to leave this illicit activity behind by providing alternative development assistance and promoting legal income generating activities.
  • Prevent spillover of trafficking activities into Colombia's neighbors by aggressive public information campaign backed by safe and effective Air Bridge Denial program.
  • Maintain political pressure on Governments of Peru and Bolivia to firmly support active coca eradication programs.
  • Enable Colombianization of counter-narcotics aviation programs by increasing the number of trained pilots and mechanics in the Colombian security forces.

Number of countries in Tier 1 of the 2005 Trafficking in Persons report increases by three.

  • Continue to utilize the Trafficking in Persons Report as a tool to engage governments, non-governmental organizations and the media to combat trafficking.
  • Continue to develop customized country plans for implementation by governments whose countries are in Tiers 2 and 3.
  • In cooperation with other agencies, identify highest priority countries to receive increased diplomatic and programmatic assistance.
  • Work with overseas posts to develop and implement diplomatic and programmatic action plans to assist highest priority countries.

The number of prosecutions against traffickers in persons increases worldwide as a result of better information collection, improved laws and U.S.G. assistance.

  • Develop strategies to increase law enforcement and judicial capacity in key countries
  • Actively promote the development or amendment of laws using the U.S.-developed model law on trafficking.
  • Use diplomatic engagement to continue pressing governments to step up their efforts to investigate, prosecute and convict traffickers and corrupt government officials.
  • Continue to support training for criminal justice officials.
  • Provide technical assistance as necessary to assist governments in improving their criminal records databases and provide start-up equipment for anti-trafficking taskforces.
  • Institutionalize TIP training programs offered through the International Law Enforcement Academies and other regional or national criminal justice academies.
  • Continue to support the expansion of shelters and services for victims of trafficking.
  • Encourage governments to publicize their anti-trafficking efforts to inform the public and warn traffickers.

Develop comprehensive anti-money laundering regimes in 5 TF priority countries designated in FY02; Provide training to all 2003 designated TF priority countries.

  • Conduct assessments of vulnerabilities to terrorist financing of countries' financial sectors.
  • Provide technical assistance, to include training programs, mentors and/or resident advisors, as appropriate and work to build bilateral relationships with designated countries.
  • Provide support to multilateral groups and organizations promoting the development of international anti-money laundering and anti-terrorist financing standards and to donor countries assisting in the building of anti-money laundering regimes.
  • Impel countries to build/improve their regimes to meet international standards through countermeasures or special measures as authorized by the USA PATRIOT Act, if necessary.

Non-intrusive inspection units (VACIS or other) installed at five additional crossing points (two northern and three southern), for a total of fifteen.

  • Coordinate with DHS and Mexican Government to determine appropriate locations and ensure that machines fit within an overall Mexico law enforcement strategy.
  • Work with DHS and Mexico to ensure that users are properly trained, sites are properly prepared, machines are properly maintained once in use.
  • Ensure that prosecutions result from their use. ...

GOM fully staffs and equips new federal law enforcement agencies - continued institutional development, including personnel management.

  • Build on strong foundations laid at Federal Investigations Agency (AFI) and the anti-crime intelligence planning and analysis center (CENAPI) to further professionalize these entities.
  • Provide integrated technical, material and training support to the newly-created Federal Prosecutor for Organized Crime Office (SIEDO) to ensure solid structure, professional operation and sophisticated capabilities for federal anti-drug/anti-crime prosecutors.
  • Continue to assist the planning, administrative and internal affairs offices of the Office of the Attorney General (PGR) to reform and modernize personnel structures and practices, establishing merit-based promotion systems, improved pay and benefits packages, tighter anti-corruption procedures, improved recruitment and training.

Increase in capacity of GOM law enforcement academies to provide all basic training, as well as begin to provide more advanced training.

  • Develop bilaterally-agreed law enforcement training/institution building strategy to ensure that training stays focused on achieving strategic objectives, is properly sequenced, and is directed at the appropriate agencies/personnel.
  • Continue to provide critical training for criminal justice officials at the federal and state levels.

Prosecutions against money laundering and terrorist financing increase.

  • Actively promote the development or amendment of anti-money laundering laws that meet international standards.
  • Provide technical assistance, to include training programs, mentors and/or resident advisors to assist law enforcement, prosecutorial and judicial officials involved in money laundering investigations and prosecutions.
  • Actively promote the development of asset freeze, seizure, confiscation and forfeiture regimes using model laws developed by the U.S.
  • Actively promote the development of a financial intelligence unit with the authority to share information with its counterparts in other countries.
  • As necessary, use mutual legal assistance treaties or other law enforcement coordination agreements to assist in international tracing and seizing of assets.

Annual Performance Goal #2

I/P #5: Support Investigation/Prosecution of Major International Criminals
Set standards; share political and financial burdens through international cooperation.
Results Targets
2000 & 2001 2002 2003 2004 2005
Outcome Indicator
Indicator #1: Status of UN Convention Against Transnational Organized Crime (TOC) and Supplemental Protocols

Negotiations in progress.

TOC completed; 135 states signed treaty.

A total of 141 states have signed the TOC, of which, twenty-four have ratified it. Of the 107 states that have signed the Trafficking in Persons Protocol, fourteen have ratified it.

Of the 103 states that have signed the Migrant Smuggling Protocol, thirteen have ratified it.

Of the thirty-five states that have signed the firearms protocol, two have ratified it.

Fifty-three states have ratified the TOC; forty-two states have ratified the Trafficking in Persons Protocol; both have entered into force.

Forty states have ratified the Migrant Smuggling Protocol.

First meeting of Conference of Parties for TOC in June; ten additional states ratify TOC.

Migrant Smuggling Protocol enters into force (January).

Ten additional states become party to the Convention.

Ten additional states ratify the Supplementary Protocols on Trafficking in Persons and Migrant Smuggling.

I/P #5: International Law Enforcement Academies
Upgrade the facilities of existing ILEAs to permit a broader range of operational training, including counterterrorism.
Results Targets
2000 & 2001 2002 2003 2004 2005
Output Indicator
Indicator #2: Number of Officials Trained at International Law Enforcement Academies (ILEAs)


2,100 2,200 2,400 2,800

I/P #6: Anticorruption
Target four USG anticorruption areas: transparency in fiscal affairs, transparency in procurement, enforcement, and empowering civil society.
Results Targets
2000 & 2001 2002 2003 2004 2005
Outcome Indicator
Indicator #3: Status of UN Convention Against Corruption

UN Crime Center received mandate to complete comprehensive study of existing work on corruption.

Study completed. Experts Group developed Terms of Reference for negotiations.

Progress made at three negotiating sessions.

Agreement reached on text of convention. Signing ceremony took place in December, with more than ninety-three states (including United States) signing. Ratified by one state. Convention open for additional signatures and ratifications. At least ten countries ratify. Convention is ratified by at least thirty countries and enters into force. Preparations begin for developing a follow-up mechanism.
Outcome Indicator
Indicator #4: Status of Regional Anticorruption Frameworks

Three existing multilateral anti-corruption and peer review mechanisms (OAS, COE, GCA).

Number of mechanisms increased to four, by addition of Stability Pact agreement.

Number of mechanisms increased to five, by addition of ADB/OECD Asia Initiative. African Union (AU) Convention on Preventing and Combating Corruption was adopted by the African Union General Assembly at the AU Summit in Maputo on July 11, 2003. The Convention is now open to signature for 42 AU member states. AU is working with Transparency International to develop a monitoring and assistance mechanism related to the New Partnership for Africa's Development (NePAD). Number of mechanisms increased to seven, by addition of Middle East and North Africa Anticorruption Initiative. Initiate process in each regional body to determine impact of efforts to encourage implementation of regional anticorruption commitments.

I/P #7: Money Laundering Initiative
Support the Financial Action Task Force (FATF) and fund the growing demand for assistance For NCCT Countries.
Results Targets
2000 & 2001 2002 2003 2004 2005
Output Indicator
Indicator #5: Status of Financial Action Task Force on Money Laundering (FATF) List of Non-Cooperative Countries and Territories (NCCT)

FATF removed four countries from list and added eight new ones based on additional reviews. Nineteen jurisdictions on list at end of 2001.
FATF removed eight countries from list; eleven countries remain on list. FATF removed two countries from list; nine countries remain on list. FATF removes all but four countries placed on list prior to 2003. FATF removes all but three countries designated as NCCTs prior to 2003.

Means for Achieving FY 2005 Targets
Ten additional states become party to the Convention Against Transnational Organized Crime (TOC). Ten additional states ratify the Supplementary Protocols on Trafficking in Persons and Migrant Smuggling.

  • Promote ratification and implementation of these instruments through bilateral dialogue and at relevant multilateral fora.
  • Strengthen UNODC's technical assistance to states seeking to ratify and implement the commitments of the instruments.

Increase number of officials trained at International Law Enforcement Academies (ILEAs) to 2,800.

  • Open two new ILEAs, one for South America, one for Middle East/South Asia.
  • Expand the number of countries participating at the currently existing ILEAs.
  • Broaden curricula to reflect emerging criminal trends and issues, including trafficking in persons, counterterrorism, and environmental crime.

UN Convention Against Corruption is ratified by at least thirty countries.

  • Raise the profile of the convention through public diplomacy and UN outreach.
  • Encourage civil society to engage actively in pressing for ratification.
  • Strengthen existing assistance regimes to combat corruption in countries that ratify (assist them in meeting commitments).
  • Strategize with other leading anticorruption donor nations on enhancing adherence and increasing ratification.

Initiate process in each regional body to determine impact of efforts to encourage implementation of regional anticorruption commitments.

  • Engage other leading nations in each regional body to press for implementation.
  • Encourage open discussion of implementation efforts.
  • Press for mutual evaluation mechanisms in regional bodies.
  • Participate actively in all regional mechanisms and make U.S. evaluations public.

Removal of all countries designated by FATF as NCCTs prior to 2003.

  • Strongly promote adoption and implementation of international anti-money laundering standards by all NCCT jurisdictions.
  • Provide technical assistance, including training programs, mentors or resident advisors, as appropriate.
  • Impose countermeasures or special measures against non-cooperative jurisdictions, as authorized by the USA PATRIOT Act, if necessary.

V: Illustrative Examples of FY 2003 Achievements

International Crime and Drugs
Andean Counterdrug Initiative

Building on the record year 2002, when the aggressive U.S.-supported aerial eradication program in Colombia reduced coca cultivation by more than 15 percent and opium poppy cultivation by 25 percent, the 2003 aerial eradication program is expected to demonstrate further declines. Over 127,000 hectares of coca and 2,800 of poppy were sprayed. Since the beginning of the Uribe Administration in august 2002, Columbia has extradited 68 Colombian nationals to the U.S., primarily on narcotics or money-laundering charges. Completion of a new agreement with Colombia to resume the Air Bridge Denial program added an important weapon to the counterdrug campaign. Negotiations with Peru to establish a similar program there got underway. Meanwhile, coca cultivation in Peru declined 15 percent in 2003. Bolivia continues a strong forced coca eradication program in the Chapare, where it is expected to eradicate around 10,000 hectares in 2003, and has doubled the 2002 rate of interdiction of drugs and precursor chemicals. Despite these efforts, overall coca cultivation in Bolivia increased in 2003, although it remains well below the high point of the 1990's and significantly below the level in Colombia.

Trafficking in Persons

There are an estimated 800,000 to 4 million persons trafficked annually across and within international borders. Approximately 20,000 victims of trafficking are brought into the United States each year. The Department and a consortium of U.S. NGOs hosted an innovative international conference on best practices bringing together 400 NGO and government representatives who are on the frontlines of the war to combat slavery. Since the conference, two countries are now working collaboratively on trafficking cases. The Department significantly strengthened the annual Trafficking in Persons report by adding 30 new countries, incorporating new law enforcement data, and adding new features, such as victims stories and color photographs, sections on best practices, areas for improvement, and special cases, and a special matrix of relevant international conventions. Department funding facilitated the development of a regional action plan on combating trafficking in persons that was adopted by the member states of the Economic Community of West African States (ECOWAS). ECOWAS countries are in the process of developing national action plans, revising their legislation and identifying national points of contact.

Crime and Terrorism

Strengthening the global partnership against crime, the U.S. gave assistance to 17 key foreign nations to build capacity to confront terrorist financing, including the creation of Financial Intelligence Units. Caribbean nations received help in bringing their anti-money laundering regimes up to international standards. The U.S. helped push forward and finalize negotiations for the UN Convention Against Corruption and signed along with 93 other countries at December signing ceremony. The State Department opened a new international law enforcement training facility in Africa - the fifth worldwide - while enhancing course offerings on fighting terrorism, corruption and trafficking in persons.

VI: Data Verification/Validation by Performance Goal

Performance Goal 1
International trafficking in drugs, persons, and other illicit goods disrupted and criminal organizations dismantled.
  • Cultivation levels are perhaps the most simple and direct gross indicator of the production of crop-based illicit drugs. The CIA's Crime and Narcotics Center (CNC) provides crop estimates for Colombia, Peru, Bolivia, Mexico, and Afghanistan. CNC estimates assume that all of the crop has reached harvestable age. Estimating the amount of raw product that is actually harvested is extremely difficult without routine access to narcotics farmers. What any farmer actually harvests during any given year depends on numerous factors, including the maturity of the plants, eradication efforts, available labor and market demand. Host governments provide estimates for other countries, or in some cases, other governments and the UN.
  • Estimates of potential production for selected countries offer a refinement over cultivation levels because the former include key data gathered directly from narcotics farmers and others on the ground. However, the periodic nature of the ground surveys means that there is a time lag before new developments, e.g., an expanded spraying program, are fully reflected in the production estimates. The Department's annual International Narcotics Control Strategy Report (INCSR) includes estimates of production levels for most countries in both hectares and metric tons and can be accessed on the Department's website.
  • The Department uses FATF standards to measure the effectiveness of anti-terrorist financing regimes. Verification is provided by USG experts who may also consult with other experts.
  • Trafficking in persons is a relatively new law enforcement issue and is poorly understood in many countries, even among those with long-standing trafficking problems. The various TIP indicators are part of a comprehensive strategy to provide teeth to the annual TIP Report by increasing public awareness to the issue in general, identifying problem areas in specific countries, and offering assistance to help develop or improve anti-trafficking laws and practices. TIP Office will provide verification.

VII. Resource Detail

Table 1: State Appropriations by Bureau ($ Thousands)

Bureau FY 2003 Actual FY 2004 Estimate FY 2005 Request
Western Hemisphere Affairs $48,313 $49,776 52,229
European and Eurasian Affairs 13,840 14,237 11,192
East Asian and Pacific Affairs 4,843 5,063 5,104
Near Eastern Affairs 4,136 4,295 4,780
Other Bureaus 16,996 18,266 17,861
Total State Appropriations 88,128 91,637 91,166

Table 2: Foreign Operations by Account ($ Thousands)

Title/Accounts FY 2003 Actual FY 2004 Estimate FY 2005 Request
Title I - Export and Investment Assistance
Export-Import Bank      
Overseas Private Investment Corporation      
Trade and Development Agency      
Title II - Bilateral Economic Assistance
Other Bilateral Economic Assistance 53,280 52,575 70,580
Independent Agencies      
Department of State 1,087,771 1,186,961 1,089,820
Department of Treasury      
Complex Foreign Contingencies      
Title III - Military Assistance
International Military Education and Training 2,765 3,290 3,229
Foreign Military Financing 24,307 113,840 66,433
Peacekeeping Operations      
Title IV - Multilateral Economic Assistance
International Financial Institutions      
International Organizations and Programs      
Total Foreign Operations 1,168,123 1,356,666 1,230,062
Grand Total $1,256,251 $1,448,303 $1,321,228

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