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Ret Hink Ing I N T E R N a T I O N a L D Rug Control TA SK FORCE REPORT Reth inki ng In t e r n a t i o n a l Dr ug Control New Directions for U.S. Policy Sponsored by the Council on Foreign Relations Mathea Falco, Chair Rethinking International Drug Control: New Directions for U.S. Policy Re p o r t of an Independent Task Force Sponsored by the Council on Foreign Relations Mathea Falco, Chair The Council on Foreign Relations, Inc., is a nonprofit and nonpartisan C O N T E N T S organization devoted to promoting improved understanding of interna- tional affairs through the free exchange of ideas. Members of the Task Force . .iv The Council on Foreign Relations takes no institutional position on policy issues and has no affiliation with the U.S. government. This Fo r e w o r d . .1 report is the sole responsibility of the Task Force. Statement of the Task Force . .3 From time to time, the Council will select a topic of critical importance to U.S. policy to be the subject of study by an independent, nonpartisan Background Study . .9 Task Force. The Council chooses members representing diverse views and backgrounds, including generalists as well as experts. Many, but not Illegal Drugs: A Complex Global Problem . .12 all, Task Force members are also members of the Council. International Drug Control: This study benefited from the advice of Task Force members as well as A Multi-Agency Federal Effo r t . .22 from the discussions of Council groups convened for one session each in Los Angeles, Chicago, Miami, and Atlanta. The statement reflects the Money Laundering: Hiding Drug Profits . .33 policy judgments of the Task Force members, although not every mem- U.S. Source Country Programs: ber necessarily subscribes to every aspect. Unintended Effe c t s . .36 For further information about the Council or this Task Force, please con- tact the Public Affairs Office, Council on Foreign Relations, 58 East 68th The Limits to International Supply Control . .44 Street, New York, NY10021. Reducing the Demand for Drugs: For additional background material on international drug control policy, Key to Lasting Progress . .52 please contact Drug Strategies, 2445 M Street, NW, Suite 480, Washington, DC 20037; phone 202-663-6090, fax 202-663-6110. Drug Su m m a r y . .57 Strategies is a nonprofit, policy research institute supported by several national foundations. Additional and Dissenting Vie w s . .59 Copyright ©1997 by the Council on Foreign Relations, Inc. Discussions at Meetings in Four Cities . .62 All rights reserved. Printed in the United States of America. This document may not be reproduced in whole or part, in any form (beyond that copying permitted by Sections 107 and 108 of the U.S. Copyright Law and except by reviewers for the public press), without written permission from the publishers. iii MEMBERS OF THE TASK FORCE JONATHAN A. CHANIS: Mr. Chanis is Managing Director of AIG Capital Partners, Inc. BRUCE M. BAGLEY: Dr. Bagley is Professor of International Relations at the Graduate School of W. BOWMAN CUTTER: Mr. Cutter is Managing International Studies, University of Miami. Director at E. M. Warburg, Pincus, and Co. in New York. He has served as Deputy Assistant to the DAVID BEALL*: Mr. Beall is Executive Secretary of President for Economic Policy, the National Economic the Inter-American Drug Abuse Control Commission Council at the White House. (CICAD) at the Organization of American States (OAS). MARK DANNER: Mr . Danner is staff writer at Th e New Yor k e r magazine and author of The Massacre at El EVERETT BRIGGS: Ambassador Briggs is President Mo z o t e (V intage, 1994). He is writing a book on Haiti of the Americas Society and the Council of the and is author of two AB C - T V News documentaries: Americas. He served as U.S. Ambassador to Panama, “While America Watched: The Bosnia Tragedy” and Honduras and Portugal; Deputy Assistant Secretary of “House on Fire: Am e r i c a ’ s Haitian Crisis.” State for Inter-American Affairs; and Special Assistant to the President for Latin America and the Caribbean MATHEA FALCO: Ms. Falco is President of Drug at the National Security Council. Strategies, a nonprofit institute to promote effective approaches to substance abuse. The author of The JAMES E. BURKE: Mr. Burke is Chairman of the Making of A Drug- Free America: Programs that Work Partnership for a Drug-Free America and former (Times Books, 1994), she was Assistant Secretary of Chairman of Johnson & Johnson. State for International Narcotics Matters from 1977 to 1981. ROBERT CARSWELL: Mr. Carswell is Partner at Shearman & Sterling and Chairman of the Carnegie STEPHEN E. FLYNN*: Dr. Flynn is a Lieutenant Endowment for International Peace. He served as Commander in the U.S. Coast Guard and Military Deputy Secretary of the Treasury from 1977-1981. Professor of International Relations at the Coast Guard Academy. In 1991, he was selected as the Coast G u a r d ’s first Council on Foreign Relations’ * Individual participated in the Task Force discussions but was not asked International Affairs Fellow. to endorse the statement or the background study because of his or her of ficial capacity. Note: Institutional affiliations listed for identification purposes only. iv v SERGIO GALVIS: Mr. Galvis is Partner at Sullivan CLIFFORD KRAUSS*: Mr. Krauss is outgoing Chief & Cromwell, where he coordinates the firm’s Latin of the New York Times Police Department Bureau. He American practice. has also reported on the State Department and Congress and is author of Inside Central America: Its EDUARDO A. GAMARRA: Dr. Gamarra is Director People, Politics and History (Summit, 1991). of Graduate Programs at the Latin American and Caribbean Center at Florida International University, J E F F R E Y LAURENTI: Mr . Laurenti is Executive where he is also Associate Professor of Political Director of Policy Studies at the United Nations Science and editor of Hemisphere Magazine. Associations of the United States of America, and author of Br eaking the Drug Chain: Options for International SUSAN GINSBURG*: Ms. Ginsburg is Senior Policy on Narcotic Drug s (UNA-USA, 1990). Advisor for Enforcement at the Department of the Treasury. RENSSELAER LEE: Dr . Lee is President of Global Advisory Services, a research company specializing in PETER HAKIM: Mr. Hakim is President of the Inter- international development and security issues. He is the American Dialogue. author of The White Labyrinth: Cocaine and Political P o w e r ( Transaction, 1989) and co-author of T h e MARGARET A. HAMBURG, M.D.*: Dr. Hamburg Andean Cocaine Industry (St. Martins Press, 1996). is Commissioner of Health for New York City and serves as Vice-Chairperson of the Board of Drug ELIZABETH LEEDS: Dr. Leeds is Executive Strategies. Director of the Center for International Studies at the Massachusetts Institute for Technology. ALBERTO HART*: Mr . Hart is Deputy Secretary of the Inter-American Drug Abuse Control Commission KENNETH MAXWELL: Dr. Maxwell is Nelson and (CICAD) at the Organization of American States (OAS). David Rockefeller Senior Fellow for Inter-American Affairs and Director of the Latin America Program at the Council on Foreign Relations. ROBERT B. MILLMAN, M.D.: Dr. Millman is Saul * Individual participated in the Task Force discussions but was not asked P. Steinberg Distinguished Professor of Psychiatry and to endorse the statement or the background study because of his or her Public Health at Cornell University Medical College of ficial capacity. and Director of Drug and Alcohol Abuse Programs at Note: Institutional affiliations listed for identification purposes only. New York Hospital-Payne Whitney Psychiatric Clinic. vi vii ANNE NELSON: Ms. Nelson is International K. JACK RILEY*: Dr. Riley is Acting Director of the C o o r d i n a t o r, Columbia Graduate School of Drug Use Forecasting/Arrestee Drug A b u s e Journalism, and former Executive Director of the Monitoring program at the U.S. Department of Justice, Committee to Protect Journalists. National Institute of Justice. He is author of Snow Job? The War Against International Cocaine HERBERT S. OKUN*: Ambassador Okun is the U.S. Trafficking (Transaction, 1996). member and First Vice-President of the United Nations International Narcotics Control Board ROBERTO SALINAS-LEÓN: Dr. Salinas-León is (INCB). He has served as U.S. Ambassador to East Executive Director of the Centro de Investegaciones Germany and to the United Nations. Sobre la Libre Empresa (Center for Free Market Research), Mexico city. He is also Adjunct Professor H O L LY PETERSON: Ms. Peterson is Domestic of Political Economy in the Escuela Libra de Derecho Policy Producer for ABC-TV’s World News Tonight. and a member of the Mont Pelerin Society. RENATE RENNIE: Ms. Rennie is President of The PETER H. SMITH: Dr. Smith is Professor of Political Tinker Foundation Incorporated. Science, Simon Bolivar Professor of Latin American Studies, and Director of Latin American Studies at the PETER REUTER: Dr. Reuter is Professor in the University of California, San Diego. School of Public A ffairs and Department of Criminology at the University of Maryland. From HERBERT STURZ: Mr. Sturz is President of The 1989 to 1993 he was Co-Director of RAND’s Drug Trotwood Corporation and is on the Board of Drug Policy Research Center. Strategies. He was founding Director of the Vera Institute of Justice, and also served as New York City Deputy Mayor of Criminal Justice and as Chairman of the New York City Planning Commission. WILLIAM J. VANDEN HEUVEL: Ambassador van- den Heuvel is former U.S. Deputy Permanent Representative to the United Nations and was Special * Individual participated in the Task Force discussions but was not asked to endorse the statement or the background study because of his or her Assistant to Attorney General Robert F.
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