Confronting a hidden, illicit business requires discipline, intelligence, and creativity. To a degree not commonly imagined, it also requires coordination, since trafficking organizations can span dozens of states and hundreds of jurisdictions, and investigating them can involve dozens of law enforcement agencies. The multi-agency Special Operations Division (SOD) has performed a critical role in coordinating investigations that, like the trafficking organizations they pursue, span many jurisdictions and extend across national boundaries.The recent indictment of Mexican drug lord Ismael Zambada-Garcia and members of his trafficking organization, for instance, resulted from the coordination by SOD of more than 80 separate investigations involving seven Federal agencies and over 60 state and local agencies within the United States. Also instrumental were the cooperation and assistance of foreign counterparts, particularly the Federal Investigative Agency in Mexico and the Colombian National Police.Yet, focusing Federal as well as state and local law enforcement agencies on the same set of targets—and inducing them to share intelligence—has been a perennial challenge. Agencies have not always been disciplined enough to forego targets of opportunity in favor of more timeconsuming, coordinated investigations.As the Zambada-Garcia case suggests, that is beginning to change, thanks in large part to leadership from the Department of Justice. In 2002, Attorney General John Ashcroft called upon Federal law enforcement agencies to create a single list of the most significant international drug trafficking and money laundering organizations and those primarily responsible for the Nation’s drug supply.The first Consolidated Priority Organization Target (CPOT) list was issued later that year.The CPOT list is not public. The list represents the collective judgment of investigators and intelligence analysts from the DEA, FBI, the IRS, U.S. Immigration and Customs Enforcement, the U.S. Marshals Service, and other agencies. The CPOT organizations thus identified are a top priority for the Department of Justice and for the Organized Crime Drug Enforcement Task Forces Program, better known by its acronym, OCDETF.The CPOT list for fiscal year 2004 contains 40 targets, including organization heads, drug manufacturers, transporters, major distributors, and money launderers. In addition, the list identifies the hundreds of active investigations not only of the CPOT targets themselves but also of major associates and related distribution networks, which move and market the illegal drugs throughout the United States. The CPOT strategy seeks to incapacitate the foreign-based organization heads, their transportation and smuggling systems, their regional and local distribution networks, and their financial operations, thereby interrupting the flow of drugs into the United States and diminishing the capacity of the organizations to reconstitute themselves.

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The fact that all CPOT targets are based in foreign countries places a particular premium on extradition, a favorite tool of prosecutors and one that has led to substantial progress in some countries. Colombia’s President Alvaro Uribe, for instance, has moved decisively to extradite high-level traffickers to the United States, 68 of whom were sent to this country for prosecution during Uribe’s first full year in office.

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Recognizing that the drug trade is profit driven, drug enforcement agencies are strategically refocusing resources to attack the financial infrastructure of trafficking organizations. Attacking the financial underpinnings of drug trafficking organizations places a premium on cooperation among various agencies and with the private sector.Law enforcement is working with the financial services industry and Federal regulators to close the financial system to drug traffickers. As progress is made on closing down the legitimate financial system to drug money, traffickers resort to bulk cash smuggling and the use of the Colombian Black Market Peso Exchange system to move their drug proceeds. Coordinated efforts are under way with the governments of Colombia and other affected nations and with the private sector to attack and disrupt this system as well.

Toward that end, the Departments of Justice, Homeland Security, and the Treasury are working jointly to plan the creation of a Financial Attack Center. The center will bring together our most experienced financial investigators and analysts to prioritize targets and develop plans to attack them.

Recent years have seen a significant rise in the use of synthetic drugs, a worldwide trend implicating Europe, China, Thailand, and other countries. In the United States, the synthetic drug market has centered around methamphetamine and Ecstasy. Methamphetamine use has been migrating from the West Coast eastward, leaving devastating social consequences wherever it takes hold. Ecstasy remains a serious concern but appears to have peaked in popularity among American youth.

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By their very nature, synthetic drugs present special challenges. Production often takes place in industrialized nations, and because the drugs are made in laboratories and not harvested from fields, there are no crops to eradicate, as with marijuana, heroin, and cocaine. Supply reduction efforts must instead focus on limiting access to precursor chemicals, shutting down illegal labs, and breaking up the organized criminal groups that manufacture and distribute the drugs.

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Disrupting the synthetic drug market requires strengthening international and domestic law enforcement mechanisms, with emphasis on flexible and rapid communications at the operational level.We must be as nimble as the traffickers who fuel the market, developing policies and methods that allow us to adapt quickly and seize every opportunity to disrupt the trade, with a particular emphasis on chemical control efforts.

Most of the methamphetamine consumed in the United States is manufactured using diverted pseudoephedrine and ephedrine. This internal production is dispersed among thousands of labs operating throughout the United States, although a relatively small number of “super labs” are responsible for most of the methamphetamine produced.

To counter the threat from methamphetamine, we and our neighbors, Mexico and Canada, must continue to tighten regulatory controls on pseudoephedrine and ephedrine, thousands of tons of which are smuggled illegally into the United States each year. Controls on other precursor chemicals, such as iodine and red phosphorus, are equally important.

In recent years, an inadequate chemical control regime has enabled individuals and firms in Canada to become major suppliers of diverted pseudoephedrine to methamphetamine producers in the United States. The imposition of a regulatory regime last January, combined with U.S.-Canadian law enforcement investigations such as Operation Northern Star, appears for the moment to have reduced the large-scale flow of pseudoephedrine from Canada into the United States. There are signs that some of this reduction has been offset by the diversion from Canada of ephedrine.

Pseudoephedrine diversion from Mexico is also a serious threat to the United States. Once the drug is diverted from legal applications, numerous drug trafficking organizations efficiently smuggle it across the Southwest border and ship it to major methamphetamine labs in the United States, many of which are managed by Mexican traffickers. During just two months last year, authorities made seizures totaling 22 million pseudoephedrine tablets that were being shipped to Mexico from a single city in Asia. In addition to the pseudoephedrine threat from Mexico, methamphetamine is produced in Mexico for onward shipment to the United States—more than a ton of methamphetamine was seized on the Southwest border last year.

The National Methamphetamine Chemical Initiative targets domestic methamphetamine production by fostering nationwide sharing of information between law enforcement agencies and providing training to investigators and prosecutors. The initiative focuses on stopping the illegal sale and distribution of methamphetamine precursors. It also maintains a national database that tracks clandestine laboratory seizures, providing Federal, state, and local law enforcement with up-to-date information on methamphetamine production methods, trends, and cases.

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Roughly two-thirds of the Ecstasy seized worldwide can be traced to the Netherlands. Smugglers use methods such as express mail service, commercial air couriers, and air freight, with shipments to the United States typically containing 10,000 tablets or more. The United States is working closely with the Netherlands to disrupt this trade. Results from bilateral meetings last year include collaboration on more Ecstasy investigations, an exchange of information on Ecstasy seizures, and Dutch development of a risk indicator and profiles for targeting traffickers. More remains to be done, however, to dismantle the criminal organizations responsible for this illicit trade.

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Because the chemical industry is highly international, multilateral cooperation in chemical control is critical. DEA has encouraged international consensus for voluntary, informal, flexible, and rapid systems of international information exchange on precursor chemical shipments. For example, under the Multilateral Chemical Reporting Initiative, countries report chemical transactions to the International Narcotics Control Board, a UN-based body that tracks licit and illicit chemicals worldwide.

To target synthetic drugs, DEA has initiated Project “Prism,” which involves 38 countries that are major manufacturers, exporters, importers, or transit countries of key chemicals that are illegally diverted to manufacture synthetic drugs. Project Prism helps governments develop and implement operating procedures to more effectively supervise the trade in the precursor chemicals that are diverted to make methamphetamine and similar drugs. DEA is also coordinating an initiative with eleven countries in the Far East to prevent the diversion of Ecstasy precursor chemicals.

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