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Commission Des Communautés Européennes COMMISSION DES COMMUNAUTÉS EUROPÉENNES SEC( 2004 ) 467 FINAL BRUXELLES, LE 23.04.2004 BUDGET GÉNÉRAL - EXERCICE 2004 SECTION III - COMMISSION TITRES 19, 31 VIREMENT DE CRÉDITS N° DEC11/2004 DÉPENSES NON OBLIGATOIRES EN EUROS ORIGINE DES CRÉDITS DU CHAPITRE - 31 02 RÉSERVES POUR LES INTERVENTIONS FINANCIÈRES ARTICLE 31 02 41 - 19 10 06 Aide à la réhabilitation et à la reconstruction de l'Afghanistan CC - 15 000 000 CP - 15 000 000 DESTINATION DES CRÉDITS AU CHAPITRE - 19 10 RELATIONS AVEC L'ASIE ARTICLE - 19 10 06 Aide à la réhabilitation et à la reconstruction de l'Afghanistan CC 15 000 000 CP 15 000 000 EXPOSÉ DES MOTIFS La Commission propose un virement de €15 million en crédits d'engagements et de paiements à partir de la réserve (chapitre 31 02) à la ligne 19 10 06 (Reconstruction de l'Afghanistan). Ce montant avait été entré dans la réserve, en attendant la présentation par la Commission d'un programme intégré destiné à combattre la drogue en Afghanistan (comprenant l'appui au développement alternatif, afin de fournir aux agriculteurs de nouvelles possibilités et de limiter l'exportation de la drogue). Ce programme a été préparé par la Commission et est joint en annexe à la proposition de virement (voir annexe technique). 2 I. RENFORCEMENT a) Intitulé de la ligne 19 10 06 – Aide à la réhabilitation et à la reconstruction de l'Afghanistan b) Données chiffrées à la date du 25.03.2004 CE CP 1A. Crédits de l'exercice (budget initial + BR) 168 000 000 113 500 000 1B. Crédits de l'exercice (AELE) 0 0 2. Virements 0 0 3. Crédits définitifs de l'exercice (1A+1B+2) 168 000 000 113 500 000 4. Exécution des crédits définitifs de l'exercice 127 500 000 6 466 468 5. Crédits inutilisés/disponibles (3-4) 40 500 000 107 033 532 6. Besoins jusqu'à la fin de l'exercice 55 500 000 122 033 532 7. Renforcement proposé 15 000 000 15 000 000 8. Pourcentage du renforcement par rapport aux crédits de 8,93% 13,22% l'exercice (7/1A) c) Justification détaillée du renforcement Voir l'exposé des motifs. 3 II. PRÉLÈVEMENT a) Intitulé de la ligne 31 02 - RÉSERVES POUR LES INTERVENTIONS FINANCIÈRES - Article 19 10 06 Aide à la réhabilitation et à la reconstruction de l'Afghanistan b) Données chiffrées à la date du 25.03.2004 CE CP 1A. Crédits de l'exercice (budget initial + BR) 15 000 000 15 000 000 1B. Crédits de l'exercice (AELE) 0 0 2. Virements 0 0 3. Crédits définitifs de l'exercice (1A+1B+2) 15 000 000 15 000 000 4. Exécution des crédits définitifs de l'exercice 0 0 5. Crédits inutilisés/disponibles (3-4) 15 000 000 15 000 000 6. Besoins jusqu'à la fin de l'exercice (*) 0 0 7. Renforcement proposé 15 000 000 15 000 000 8. Pourcentage du renforcement par rapport aux crédits de 100,00% 100,00% l'exercice (7/1A) (*) Sans objet pour une ligne de crédits provisionnels ou de réserve c) Justification détaillée du renforcement Voir l'exposé des motifs. 4 TECHNICAL ANNEX Subject: Afghanistan: Commission programme in the field of fighting against drug I. Introduction Opium poppy production is one of the biggest challenges facing Afghanistan. Since the Taliban imposed production ban in 2000, cultivation has risen dramatically, and Afghanistan is once again the largest producer of opium poppy in the world following bumper crops in both 2002 and 2003. The total value of the opium economy is put at about US $ 2.3 billion – equivalent to about 50 percent of Afghanistan’s legal GDP1. The increase in cultivation is linked to poor security and weak law enforcement as well as to poverty. Not only does poppy provide a revenue base for those with no interest in building a strong and cohesive Afghanistan, but at present the risk of traffickers being caught and prosecuted is low. Coupled with genuine hardship among the landless poor, it is perhaps unsurprising that cultivation has risen. A particular concern is the spread in cultivation. While only seven out of Afghanistan’s 32 provinces were producing opium poppy in 1994, cultivation has now spread to 28 provinces. Nonetheless it is important to remember that cultivation still covers only 1% of total arable land and less than 3% of irrigated land. The United Nations Office on Drugs and Crime (UNODC) Farmer Intentions Survey for the 2003/4 season (February 2004) shows that, despite drops in the opium price in 2003, high labour costs and some attempts at eradication (21,400 hectares in 2003), farmers still intend to plant opium on a larger area for the 2003-4 season. The key challenge facing the Afghan Government and the international community is how to stamp out this pernicious trade. The Afghan Government is clear that the drug economy is a threat to Afghanistan's progress in establishing a stable and moderate country. At the 9 February Kabul Drugs Conference, President Karzai gave an extremely strong opening speech which was televised for the national news, he said: “Poppy is the major problem facing Afghanistan…….……Religion, economy and security are the three pillars of Afghan society – they are destroyed by poppy”. He stressed the Afghan Government’s determination to stop cultivation and noted that “money from drugs smuggling feeds terrorism”. But he said this could only be achieved with the full support of the International Community. The conference was the first time that Afghan Ministers, Governors and Police Chiefs have publicly gathered together to underline their determination to fight illegal drug production. The Commission, the UNODC, the World Bank and all major donors also attended. There were clear messages on: • The need to rapidly strengthen law enforcement – in particular to target traders and traffickers through a trained counter narcotics police and effective border control; • The need to put sustainable alternative livelihoods in place quickly, and to ensure that all National rural development programmes maximise the impact they can have on reducing opium poppy cultivation; • The need to reduce demand. There are now an estimated 1 million heroine addicts within Afghanistan, and the number is growing. The Conference agreed action plans to support the implementation of the National Drug Control Strategy in three key areas – law enforcement, demand reduction and alternative livelihoods. 1 UNODC opium poppy survey 2003. 5 II. The national drug control strategy. In May 2003, the Afghan National Drug Control Strategy (NDCS) was adopted by the Afghan Cabinet and approved by President Karzai. The strategy was developed in collaboration with both the UNODC and the United Kingdom (the lead donor on anti-narcotics). The Commission provided technical expertise to the Afghan Government to help them develop and present the strategy. It has strong support from the international community and is the key document for co-ordinating anti-narcotics activities. The overarching goal of the NDCS is to reduce poppy cultivation by 70 % in 5 years and eliminate it within 10 years. The strategy embraces effective law enforcement, alternative livelihoods, institution building, demand reduction and judicial reform. The evidence from elsewhere – Thailand and Pakistan – suggests that a broad based approach is critical for success and that a sustainable solution will take time. A strong anti-drugs law – which explicitly bans production - was adopted by the Afghan Government in October 2003. In recognition of the special nature of the drug problem and the need for a specialized agency to deal with it, the Afghan Government has established a Counter Narcotics Directorate (CND) reporting directly to the powerful National Security Council. The UK is the lead donor on drugs and has earmarked US $ 114 million over three years to build Afghan anti-narcotic capacity – including police and border control training – and to promote sustainable, alternative livelihoods. What is absolutely clear is that without better law enforcement – especially interdiction – the Afghan Government will struggle to control opium poppy production and trafficking in the short term. The UK has helped the ATA set up a National Counter Narcotics Police as well as a mobile detection unit in Kabul. These efforts to improve interdiction have had some early successes with big hauls in the North. As lead donor for overall Police reform and training, Germany has also a key role to play to building effective law enforcement agencies. In collaboration with the US a total of 20,000 new and existing police will have received training by June 2004. Germany has already started rolling out police training to the Provinces. The Commission is actively supporting this through its contribution to the Law and Order Trust Fund (LOTFA) which provides dedicated support to the police (see below). III. EC analysis of the present situation • Afghanistan’s national drug control strategy is a good basis for action. Well co-ordinated action within a robust national strategy is essential to make progress in the fight against drugs; • The illicit drugs economy in Afghanistan cannot be treated separately from the other major challenges facing the country including, insecurity, warlordism, corruption, a weak formal economy, abuse of human rights and long-term poverty. The illicit economy is both a cause and a symptom of these problems. • There is widespread agreement that a sustainable solution hinges critically on helping rural populations to find alternative sources of livelihood. Some opium farmers are resource-rich, but the majority are poor, often involved in sharecropping arrangements that require opium cultivation. However, the absence of data on farmers’ situations makes it difficult to determine the right balance and sequencing between 6 poverty alleviating approaches to crop reduction and law enforcement approaches such as forcible eradication.
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