VZCZCXRO3788
RR RUEHCHI RUEHDT RUEHHM RUEHNH
DE RUEHGP #1989/01 3040743
ZNR UUUUU ZZH
R 310743Z OCT 07
FM AMEMBASSY SINGAPORE
TO RUEHC/SECSTATE WASHDC 4330
INFO RUEATRS/DEPT OF TREASURY WASHDC
RUEAWJA/DEPT OF JUSTICE WASHDC
RUCNASE/ASEAN MEMBER COLLECTIVE

UNCLAS SECTION 01 OF 04 SINGAPORE 001989 
 
SIPDIS 
 
STATE FOR INL JOHN LYLE 
JUSTICE FOR OIA AND ARMLS 
TREASURY FOR FINCEN 
DEA FOR OILS AND OFFICE OF DIVERSION CONTROL 
CIA FOR CNC 
 
SENSITIVE 
 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: KCRM SNAR ECON ETRD PREL SN
SUBJECT: 2007-2008 INTERNATIONAL NARCOTICS CONTROL STRATEGY REPORT 
(INCSR) PART I, DRUGS AND CHEMICAL CONTROL 
 
REF:  STATE 136782 
 
¶1.  (U) Per reftel instructions, this message is Post's draft 
2007-2008 International Narcotics Control Strategy Report, Part I - 
Drug and Chemical Control.  Part II will be submitted septel. 
 
¶2.  (SBU) Begin text. 
 
¶I. Summary 
 
The Government of Singapore (GOS) enforces stringent 
counternarcotics policies through strict laws -- including the death 
penalty and corporal punishment -- vigorous law enforcement, and 
active prevention programs.  Singapore is not a producer of 
precursor chemicals or narcotics, but as a major regional financial 
and transportation center, it is potentially an attractive target 
for money launderers and those engaged in drug transshipment. 
Singapore is widely recognized as one of the least corrupt countries 
in the world.  Corruption cases involving Singapore's 
counternarcotics and law enforcement agencies are rare, and their 
officers regularly attend U.S.-sponsored training programs as well 
as regional forums on drug control.  Singapore is a party to the 
1988 United Nations Convention against Illicit Traffic in Narcotic 
Drugs and Psychotropic Substance (UN Drug Convention). 
 
According to GOS statistics, the number of drug abusers arrested 
in 2006 increased 34.8 percent to 1,218, up from 793 in 2005. 
The change in part reflects additional enforcement actions 
related to amendments made to the Misuse of Drugs Act in August 
¶2006.  The number of first-time offenders in Singapore increased 
slightly in 2006, with 477 arrests compared to 463 in 2005.  Nearly 
half (49 percent) of drug abusers used synthetic drugs, including 
Ketamine, Methamphetamine, MDMA (Ecstasy), Erimin-5, and 
Nimetazepam.  Buprenorphine (Subutex) users accounted for 31 
percent, and heroin offenders for 9.7 percent, of total drug 
abusers. 
 
II. Status of Country 
 
In 2006, there was no known production of illicit narcotics or 
precursor chemicals in Singapore.  While Singapore itself is not 
a known transit point for illicit drugs or precursor chemicals, 
it is one of the busiest transshipment ports in the world.  The 
sheer volume of cargo passing through makes it likely that some 
illicit shipments of drugs and chemicals move undetected.  With 
few exceptions, Singapore does not screen containerized 
shipments unless they enter its customs territory.  Neither 
Singapore Customs nor the Immigration and Checkpoint Authority 
(ICA) keep data on in-transit or transshipped cargo unless there 
is a Singapore consignee involved in the shipment. 
 
III. Country Actions Against Drugs in 2006 
 
Policy Initiatives 
------------------ 
 
Singapore continues to pursue a strategy of demand and supply 
reduction for drugs.  The GOS has worked closely with numerous 
international groups dedicated to drug education, including the 
Partnership for a Drug-Free America.  In addition to arresting 
drug traffickers, Singapore focuses on arresting and detaining 
drug abusers for treatment and rehabilitation, providing drug 
detoxification and rehabilitation, and offering vigorous drug 
education in its schools.  Singaporeans and permanent residents 
are subject to random drug tests.  The Misuse of Drugs Act gives 
the Singapore Central Narcotics Bureau (CNB) the authority to 
commit all drug abusers to rehabilitation centers for mandatory 
treatment and rehabilitation.  Since 1999, individuals testing 
positive for consumption of narcotics have been held accountable 
for narcotics consumed abroad as well as in Singapore. 
Singapore has continued efforts to curb synthetic drug abuse, of 
which Ketamine abuse is the most prevalent.  Amendments made to the 
Misuse of Drugs Act in 2006 designated Ketamine as a Class A 
Controlled Drug and increased penalties for trafficking 
accordingly.  Anyone in possession of more than 113g of Ketamine 
is presumed to be trafficking in the drug and can face maximum 
penalties of 20 years imprisonment and 15 strokes of the cane. 
 
Amendments to the Misuse of Drugs Act also established long-term 
imprisonment penalties for repeat synthetic drug abusers.  Those 
arrested for a third time are subject to five to seven years 
imprisonment and three to six strokes of the cane; and seven to 13 
 
SINGAPORE 00001989  002 OF 004 
 
 
years imprisonment and six to 12 strokes of the cane for subsequent 
offenses.  Singapore's long term imprisonment regime, first 
introduced in 1998, is thought to have helped curb the country's 
heroin use. 
 
Additional amendments to the Misue of Drugs Act classified 
Buprenorphine, the active ingredient in Subutex, as a Class A 
Controlled Drug.  This means that, unless dispensed by a 
licensed physician or practitioner, the importation, 
distribution, possession and consumption of Subutex is a felony 
offense.  Subutex, first introduced by the Ministry of Health in 
2000, is a heroin substitute clinically used in the 
detoxification/rehabilitation of heroin addicts.  Drug abusers 
were found to be abusing Subutex by mixing it with other drugs, 
mainly Dormicum, a prescription sleeping pill.  Buprenophine was 
the most commonly abused drug in Singapore in 2006, comprising 
more than one-third of total narcotics offenders. 
 
Law Enforcement Efforts 
----------------------- 
 
As noted above, arrests for drug-related offenses increased 34.8 
percent, from 793 arrests in 2005 to 1218 arrests in 2006, a 
reflection of new enforcement measures under the amended Misuse 
of Drugs Act.  These statistics include persons arrested for 
trafficking offenses, possession, and consumption.  Nearly 46 
percent of all drug arrests involved synthetic drugs, including 
Nimetazepam (14.9 percent); Ketamine (15.3 percent); 
Methamphetamine (10.2 percent); and MDMA or Ecstasy  (5.5 
percent).  Non-synthetic drug-related arrests included marijuana 
(10 percent) and heroin (9.7 percent).  Singapore recorded no 
cocaine-related seizures or arrests in 2006.  Of the total 
arrests, 477 involved new drug abusers. 
 
In 2006, authorities executed 52 major operations, during which 
they dismantled 25 drug syndicates.  A majority of these arrests 
were conducted during sweeps of drug distribution groups, which 
were infiltrated by undercover Singapore narcotics officers. 
CNB officers frequently perform undercover work, purchasing 
small, personal-use amounts of narcotics from generally low and 
mid-level traffickers and drug abusers.  These sweeps often 
produce additional arrests when subjects present at arrest 
scenes test positive for narcotics in their system. 
 
Singapore's CNB seized the following quantities of narcotics in 
2006:  6.1 kg of heroin; 14.9 kg of cannabis; 4,136 tablets of 
MDMA; 0.5 kg of crystal Methamphetamine; 22 tablets of tablet 
Methamphetamine; 5.3 kg of Ketamine; 38,230 Nimetazepam tablets; 
and 6,432 Buprenorphine tablets. 
 
Corruption 
---------- 
 
Singapore's Corruption Practices Bureau (CPB) actively 
investigates allegations of corruption at all levels of 
government.  Neither the government nor any senior government 
officials is thought to engage in, encourage or facilitate the 
production or distribution of narcotics or other controlled 
substances, or the laundering of proceeds from illegal drug 
transactions.  The CNB is charged with the enforcement of 
Singapore's counternarcotics laws.  Its officers and other elements 
of the Singapore Police Force are well-trained professional 
investigators. 
 
Agreements and Treaties 
----------------------- 
 
Singapore is a party to the 1988 UN Drug Convention, the 1961 UN 
Single Convention on Narcotic Drugs, the 1972 Protocol amending 
the Single Convention, and the 1971 UN Convention on 
Psychotropic Substances.  Singapore and the United States 
continue to cooperate in extradition matters under the 1931 
U.S.-UK Extradition Treaty.  Singapore and the United States 
signed a Drug Designation Agreement (DDA) in November 2000, a 
mutual assistance agreement limited to drug cases.  Singapore 
has signed mutual legal assistance agreements with Hong Kong and 
ASEAN.  The United States and Singapore have held discussions on 
a possible bilateral MLAT, most recently in December 2005, 
although there have been no formal negotiations since 2004. 
Singapore has signed, but has not yet ratified, the UN 
Convention against Transnational Organized Crime and the UN 
Corruption Convention.  In April 2006, Singapore amended 
 
SINGAPORE 00001989  003 OF 004 
 
 
domestic legislation to allow for mutual legal assistance 
cooperation with countries for which they do not have a 
bilateral treaty. 
 
Cultivation/Production 
---------------------- 
 
There was no known cultivation or production of narcotics in 
Singapore in 2006. 
 
Drug Flow/Transit 
----------------- 
 
Singapore is one of the busiest seaports in the world. 
Approximately 80 percent of the goods flowing through its port 
are in transit or are transshipped and do not enter Singapore's 
customs area.  Due to the extraordinary volume of cargo shipped 
through the port, it is highly likely that some of it contains 
illicit materials, although Singapore is not a known transit 
point for illicit drugs or precursor chemicals.  Singapore does 
not require shipping lines to submit data on the declared 
contents of transshipment or transit cargo unless there is a 
Singapore consignee to the transaction.  The lack of such 
information creates enforcement challenges.  Singapore Customs 
authorities rely on intelligence to uncover and interdict 
illegal shipments.  They reported no seizures of transshipment or 
transit cargoes involving illicit narcotics shipments in 
¶2006.  GOS officials have been reluctant to impose tighter 
reporting or inspection requirements at the port, citing 
concerns that inspections could interfere with the free flow of 
goods, thus jeopardizing Singapore's position as the region's 
primary transshipment port. 
 
However, Singapore has increased its scrutiny of goods, 
primarily as part of an enhanced posture to combat terrorism and 
control the proliferation of weapons of mass destruction (WMD) 
and their precursors.  Singapore became the first Asian port to 
join the Container Security Initiative (CSI) in 2003, under 
which U.S. Customs personnel prescreen U.S.-bound cargo. 
Singapore also participates in other counterterrorism-related 
programs such as the Proliferation Security Initiative, the 
Megaports Initiative, and the Secure Freight Initiative. 
The country's new export control law went into effect in 2003, and 
Singapore is implementing an expanded strategic goods control list 
that takes effect in January 2008.  While these initiatives aim to 
prevent WMD from entering the United States, the increased scrutiny 
and information they generate could also aid drug interdiction 
efforts. 
 
Singapore is a major regional aviation hub.  Changi 
International Airport handled 35 million passengers in 2006. 
The Changi Airfreight Center is one of the world's busiest and 
operates as a Free Trade Zone where companies can move, 
consolidate, store or repack cargo without the need for 
documentation or customs duties.  CNB seized narcotics at Changi 
Airport in 2006, including a 20 kilogram shipment of marijuana 
smuggled from Johannesburg, South Africa. 
 
Domestic Programs (Demand Reduction) 
------------------------------------ 
 
Singapore uses a combination of punishment and rehabilitation of 
first-time drug offenders.  Rehabilitation of drug abusers typically 
occurs during incarceration.  The government may detain addicts for 
rehabilitation for up to three years. 
In an effort to  discourage drug use during travel abroad, CNB 
officers may require urinalysis tests for Singapore citizens and 
permanent residents returning from outside the country.  Those who 
test positive are treated as if they had consumed the illegal drug 
in Singapore. 
 
Adopting the theme, "Prevention: The Best Remedy," Singapore 
authorities organize sporting events, concerts, plays, and other 
activities to reach out to all segments of society on drug 
prevention.  Drug treatment centers, halfway houses, and job 
placement programs exist to help addicts reintegrate into society. 
At the same time, the GOS has toughened anti-recidivist laws. 
Three-time offenders face long mandatory sentences and caning. 
Depending on the quantity of drugs involved, convicted drug 
traffickers may be subject to the death penalty, regardless of 
nationality. 
 
 
SINGAPORE 00001989  004 OF 004 
 
 
IV. U.S. Policy Initiatives and Programs 
 
Bilateral Cooperation 
--------------------- 
 
The United States and Singapore enjoy good law enforcement 
cooperation, in particular under the Drug Designation Agreement. 
In 2006, approximately 45 GOS law enforcement officials attended 
training courses at the International Law Enforcement Academy 
(ILEA) in Bangkok on a variety of transnational crime topics. 
The GOS has cooperated with the United States and other 
countries in the forfeiture of drug-related proceeds discovered 
in Singapore banks, including the equitable sharing of seized 
and forfeited drug-related funds with the United States. 
 
The Road Ahead 
-------------- 
 
The United States will continue to work closely with Singapore 
authorities on all narcotics trafficking and related matters. 
Increased customs cooperation under CSI and other initiatives 
will help further strengthen law enforcement cooperation. 
 
¶V. Chemical Control Issues 
 
Singapore was the largest non-U.S. importer of Ephedrine, a 
precursor for Methamphetamine, in 2005 (latest available data) 
and the third-largest non-U.S. exporter.  The quantities not re- 
exported are used primarily by the domestic pharmaceutical 
industry.  Singapore is one of the largest distributors of 
Acetic Anhydride in Asia.  Used in film processing and the 
manufacture of plastics, pharmaceuticals, and industrial 
chemicals, acetic anhydride is also the primary acetylating 
agent for heroin. 
 
Singapore participates in multilateral precursor chemical 
control programs, including Operation Purple, Operation Topaz, 
and Operation Prism, and is involved in law enforcement 
initiatives developed under these projects to halt worldwide 
diversion of precursors to illicit chemical trafficking and drug 
manufacturing organizations.  The CNB works closely with the DEA 
office in Singapore to track the import of precursor chemicals 
for legitimate processing and use in Singapore.  CNB's precursor 
unit monitors and investigates any suspected domestic diversion 
of precursors for illicit use. 
 
Singapore is a party to the 1988 UN Drug Convention and controls 
precursor chemicals, including Pseudoephedrine and Ephedrine, in 
accordance with its provisions.  Singapore will not authorize 
imports of precursors until it has issued a "No Objection" letter in 
response to the exporting country's pre-export notification. 
Pre-export notifications are issued on all exports; transshipment 
cases are treated as an import followed by an export.  The GOS 
conducts rigorous site visits on companies dealing with controlled 
chemicals to ensure awareness of the requirements and overall 
compliance. 
 
HERBOLD