II. Institutional Counterdrug Cooperation
Introduction
Institutional cooperation between United States and Mexican government agencies on counterdrug activities improved measurably in 1996 and has continued to improve in 1997. In 1996-1997, Mexican law enforcement institutions were rocked by revelations about the degree to which drug traffickers had penetrated the organizations, and underwent rapid personnel turnover. In the last six months, Mexican institutional reforms have gone far to stabilize the situation and create the basis for law enforcement cooperation in an atmosphere of trust. Nonetheless, there is still room for greater law enforcement cooperation. The final result of institutional reforms will not be known for some time.
The U.S.-Mexico High Level Contact Group (HLCG) established in 1996 continues to provide an effective cabinet-level forum for ensuring counterdrug policy coordination at the national level and developing a Joint U.S.-Mexico Counterdrug Strategy, as directed by the Presidents of both countries in May. The process of developing the joint strategy has led to a greater mutual understanding of national capabilities and limitations and has provided the impetus for enhancement and integration of ongoing cooperative efforts across a broad spectrum of activities.
Advances in information sharing continue through increases in the amount and kinds of information exchanged and the establishment of new fora and mechanisms for exchange. U.S. and Mexican organizations involved in the reduction of drug use and in drug law enforcement and interdiction have strengthened their working relationships. While U.S.-Mexican law enforcement cooperation has not yet reached desired levels, there has been progress. For example, the U.S. and Mexico have been developing new ways to improve the use of the Mutual Legal Assistance Treaty (MLAT) in conjunction with their respective domestic laws -- particularly Mexico's Organized Crime Law -- to increase effectiveness in fashioning stronger cases against individuals involved in transborder narcotics trafficking and related crimes. Specifically, as an incentive for Mexican prisoners to appear as witnesses in U.S. proceedings (as required by the MLAT) Mexican authorities have recently agreed to use the Organized Crime Law to seek a reduction in a witness' Mexican sentence based upon full and truthful cooperation with U.S. and Mexican prosecutors and investigators. Success in this first initiative should pave the way for similar exchanges of witnesses in the future.
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Strengthened Working Relationship Between Law Enforcement Organizations
The United States and Mexico have established a multi-tiered structure for cooperation on law enforcement matters. The HLCG provides a policy framework for joint counternarcotics cooperation. A working group of the U.S.-Mexico Binational Commission meets regularly to address a full range of law enforcement issues. Closer to the operational level, the Senior Law Enforcement Plenary Group, chaired by a U.S. Deputy Assistant Attorney General and the Mexican Deputy Attorney General, meets about three times a year to focus in greater detail on a range of law enforcement issues -- primarily, operational matters related to drugs. Senior Law Enforcement Plenary meetings in March and August 1997 provided useful platforms for both frank discussion and progress toward resolution of bilateral counterdrug issues.
Much of the substantive work and progress overseen by these groups is accomplished by technical working or consultative groups, which cover specific areas such as money laundering, chemical control, demand reduction, prisoner transfer, extradition, and mutual legal assistance. The working groups meet about four times each year, most recently in June-July 1997, to exchange information on laws and regulations, discuss procedures and problems, plan joint strategies, promote expanded information sharing, and organize training. These continual exchanges also serve to reinforce our mutual counternarcotics commitments and to help enforce agreed deadlines. The Bilateral Chemical Control Working Group illustrates the work of such groups: it has fostered greater cooperation on investigation of significant cases in each country; overseen two training sessions for Mexican law enforcement and regulatory officials; actively pursued chemical control initiatives; hosted a visit by a Mexican team to observe the U.S. system of chemical regulation and enforcement; provided U.S. officials with a better understanding of Mexican controls and helped tighten controls of chemical shipments between the two countries; and improved the systems of information exchange between the U.S. and Mexico.
Operational-Level Law Enforcement Cooperation
The prospects for cooperation between U.S. and Mexican law enforcement entities were greatly enhanced by the passage of the Mexican Organized Crime law in November 1996. The law (discussed in more detail in Chapter III) provides Mexican law enforcement officials with new investigative authorities more closely aligned with those employed by U.S. agencies. This law, and the restructuring of the PGR counterdrug law enforcement apparatus into specialized and vetted units, offers significant potential for enhanced bilateral counterdrug cooperation.
Organized Crime Unit
The Organized Crime Unit (OCU) of Mexico’s PGR was formed on February 1, 1997 under the provisions of the Organized Crime Law. The OCU is tasked with conducting investigations and prosecutions aimed at criminal organizations, principally those involved in drug trafficking. As part of the reorganization announced by Attorney General Jorge Madrazo on April 30, the OCU was designated as one of the specialized units to be staffed by completely vetted individuals. The GOM reports that there are currently 77 prosecutors, investigators, and other personnel assigned to the OCU, which will eventually consist of 307 fully vetted and trained personnel.
DEA Mexico has had an excellent working relationship with the OCU, and OCU response to sensitive U.S.-provided information has been timely and effective. U.S. law enforcement is confident that the effectiveness of the unit and its working relationship with the U.S. agencies will be enhanced when the process of vetting and training OCU personnel is complete. As noted in the discussion of the Organized Crime Law in Chapter III, to be completely effective, the OCU and other specialized vetted units must adopt appropriate implementing procedures and guidelines for their new evidence gathering authorities.
Construction of Bilateral Border Task Forces (BTFs)
BTFs are bilateral drug law enforcement units established along the U.S.-Mexico border by a 1996 Memorandum of Understanding. The BTFs were designed to be the key units and cornerstone for U.S.-Mexico cooperative enforcement efforts targeting the major drug trafficking organizations along the border. Reflecting some administrative and operational problems, the BTFs are among the first PGR units to undergo vetting and reorganization.
The GOM has agreed to provide official-acts immunity to U.S. participants in the BTFs. The safety and security of U.S. personnel in this and other counternarcotics related cooperative activities in Mexico is a matter of primary concern to the Administration. The U.S. and Mexican Governments are agreed on the importance of ensuring the safety of our respective law enforcement officers.
The Zedillo Administration’s drive for far-reaching institutional reform has also affected Mexican participation in the BTFs. In April, Mexican Attorney General Jorge Madrazo and Special Prosecutor Mariano Herran announced that personnel of the BTFs would be replaced by the top graduates of the May 1997 PGR Academy class, who would be properly vetted. The GOM initiated establishment of these special vetted units, but actions since the restructuring began in May have been limited to organizational activities as the new personnel are screened and trained. In addition, the full complement of U.S. personnel has not joined the groups for security reasons.
In July, the GOM formally authorized an increase in the number of U.S. law enforcement personnel assigned to Mexico, adding six DEA and six FBI Special Agents to support U.S. investigations and work with Mexican counterparts. Several of those resident agents will be assigned as liaison with the BTFs.
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Investigation and Dismantlement of Major Drug Organizations
The Governments of Mexico and the United States are cooperating on several levels to investigate and dismantle major drug trafficking organizations. To better focus bilateral law enforcement efforts, the U.S. and Mexico have recently refined the target list of principal drug trafficking organizations. In this regard, the U.S.-Mexico Bilateral Drug Threat Assessment provided a joint analysis of the drug threat as the basis for a cooperative strategy. The study catalogued the principal transnational drug trafficking organizations, their leadership, their principal areas of operation, and their operating methods. Two of the polydrug trafficking organizations listed in the study, the Amado Carrillo Fuentes Organization and the Arellano Felix Organization, are responsible for transporting large quantities of drugs into the U.S., and wield considerable influence on both sides of the border. A third group, the Amezcua Organization, has been identified as the top methamphetamine trafficking organization in Mexico. The following is a summary of current law enforcement activities against these organizations. Despite some near misses against Amado Carrillo Fuentes prior to his death, and the arrests of Oscar Malherbe and Jaime Ladino, law enforcement have not arrested and prosecuted the kingpins of these major drug trafficking organizations.
Amado Carrillo Fuentes Organization
Prior to the unexpected death of Amado Carrillo Fuentes, the GOM intensified its efforts to locate and apprehend him and members of his organization. Numerous arrests were made and search warrants executed in the process. Among those arrested were military and former law enforcement officials suspected of collaborating with Carrillo Fuentes. Heightened bilateral enforcement efforts put Carrillo Fuentes under intense pressure just before his death. He spent much of his time eluding the authorities and attempting to disguise his identity.
Following Carrillo Fuentes' death, the GOM acted on information indicating that his organization had widely penetrated Mexican military and law enforcement institutions, resulting in a number of current investigations. Several Mexican military officials have been arrested by military authorities and charged with corruption-related offenses, such as allegations of accepting substantial bribes from the Carrillo Fuentes Organization. Additional military officers have been identified for disciplinary action because of their narcotics ties.
Although the full impact of Carrillo Fuentes' death on the Organization is not yet clear, it appears that his demise has caused substantial internal disruptions. The U.S. and Mexican Governments continue to work together to utilize this opportunity to fully dismantle the Carrillo Fuentes Organization while it is vulnerable.
Arellano Felix Organization
The Arellano Felix Organization (AFO) is directed by three extremely violent and dangerous brothers. Operating out of Tijuana, the AFO transports illicit drugs into the southwestern part of the United States -- primarily southern California.
Despite the high profile status of this major trafficking organization, none of its senior members has been arrested. The AFO is alleged to have been responsible for the death of a Roman Catholic Cardinal and the assassination in Mexico of law enforcement officials and individuals cooperating with U.S. and Mexican authorities. Further, the AFO has issued death threats and otherwise sought to intimidate law enforcement authorities in Mexico and the United States. The violence and intimidation plaguing areas in Mexico controlled by the Arellano Felix Organization thus spill across the border into southern California and beyond.
Mexican and U.S. authorities are working together in innovative ways against this shared threat, including exchanging and sharing witnesses critical to investigations and prosecutions in the U.S. and Mexico.
Amezcua Organization
The Governments of Mexico and the United States have actively focused law enforcement task force efforts against the Amezcua brothers, a significant Mexico-based methamphetamine trafficking organization which also has extensive U.S. operations. To assist in dismantling the Amezcua Organization, the U.S. has encouraged the GOM to focus on methamphetamine and chemical control both in the interior of Mexico and along the U.S.-Mexican border. The GOM has not yet taken full advantage of the evidence-gathering tools provided in the new Organized Crime Law to investigate and bring successful prosecutions against the Amezcuas and the other major trafficking groups.
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Counterdrug Institution Building: Training
Both nations agree that training will play a crucial role in rebuilding Mexico’s drug law enforcement institutions. Cooperative training could be critical to the success of President Zedillo’s reforms. Training is a particularly important aspect of strengthening law enforcement cooperation, having great potential for near-term positive results. At the May meeting of Presidents in Mexico City, the U.S. and Mexico agreed to broaden Mexico's efforts to strengthen the core training and professionalism of Mexico's federal police and prosecutors. The two governments have focused their immediate attention on training and equipping specialized anti-crime units such as the Organized Crime Unit, the bilateral Border Task Forces, and a Financial Intelligence Unit. Programs for longer-range training and exchanges for other critical parts of the justice system have also been initiated.
Law Enforcement Training
At the operational level, combined training for the OCU and BTFs has already begun. Thirty-nine fully-vetted Mexican agents, 29 BTF officers and 10 OCU officers, attended a four-week advanced training program in the U.S. sponsored by DEA, FBI, the Department of Justice’s Criminal Division, and the Department of the Treasury. DEA and FBI agents resident in Mexico attended the training with their Mexican counterparts.
This initial class, which was completed in August 1997, studied a variety of topics designed to enhance their investigative and technical skills, familiarize them with the law enforcement approaches and techniques authorized by Mexico's new Organized Crime Law, and to cement working relationships with U.S. counterparts. Instruction included such subjects as intelligence analysis; telephone toll charting techniques; financial investigations and analysis; interview and interrogation techniques; and legal issues regarding informants and electronic surveillance. This training cycle will be repeated as additional Mexican officers are vetted and appointed to their new law enforcement positions.
In other training activities in FY 97, USCS and the Bureau of Alcohol Tobacco and Firearms (ATF) jointly provided training in Washington and Mexico City to 40 Mexican officials from 11 different agencies in the investigation of firearms trafficking offenses. Additional training under this program was given to Mexican policy-makers in Miami in August 1997. Training plans for FY 1998 are currently being developed.
The Internal Revenue Service Criminal Investigation Division (IRS-CI) continues to provide in-depth, expert training for Mexico's criminal investigators and prosecutors responsible for the enforcement of Mexico's new financial crime and money laundering laws. The IRS-CI Attache in Mexico City also provided technical input to Mexican officials who drafted the money laundering and asset forfeiture laws and regulations which were enacted by Mexico.
In November 1996, IRS-CI personnel, along with personnel from Treasury's Financial Crimes Enforcement Network (FinCEN), provided training in processing and analyzing Suspicious Activities Reporting (SAR) to investigators and prosecutors from the Mexican Treasury (Hacienda), PGR, and officials from the Mexican National Banking and Securities Commission. In December 1996, IRS-CI personnel from the Southwest Border states provided a Money Laundering/Financial Investigative Techniques Course to investigators from Hacienda and PGR, as well as Mexican Customs officials and the National Banking and Securities Commission. These two courses marked the first time that members of the Hacienda and PGR participated in joint training to coordinate and maximize the effectiveness of the new anti-money laundering legislation.
Mexico also participated in an IRS-CI/State Department regional money laundering seminar held in El Salvador in February 1997. The focus of the seminar was to establish an awareness of the overall threat of money laundering and its impact on the region and to foster an atmosphere of cooperation and exchange among the countries involved in the seminar in a joint effort to combat global money laundering.
Justice Sector Training
Effective training programs will also be critical to the success of the Zedillo Administration’s efforts to strengthen justice sector institutions. Both governments are cooperating to develop a project which provides technical assistance and training to the PGR -- focusing on its academies responsible for training federal police and prosecutors -- in a range of areas. These include strategic planning, instructor training and curriculum development, resource and personnel management, career development, policy and procedure development, and recruitment and selection. Strengthening and modernizing key Mexican training institutions are particularly important to support Mexico’s efforts to improve the core training and professionalism of Mexico’s federal police and prosecutors, and to long-term strength of the justice sector.
The proposed training program will involve the review and analysis of existing academy training curricula to determine the need for modifications and enhancements in areas such as investigative techniques, development of evidence, case management, and presentation of cases for prosecution. In addition, assistance would be provided to develop a more focused and practical training methodology to enhance technical skills as well as legal knowledge with the goal of preparing more effective police and prosecutors. Training would be offered to a select group of academy instructors to increase the instructional capability of the academies. Finally, assistance would be offered in the area of academy administration.
The proposed training project will be implemented mainly by the U.S. Departments of State and Justice, and the U.S. Embassy working in conjunction with the PGR. During a July 1997 consultation trip, the initial PGR reaction to the proposal was favorable.
The U.S. Agency for International Development (USAID) has also initiated a U.S.-Mexico Judicial Exchange Program, the first meeting of which took place August 17-20 in Mexico City. The program has established a two-year schedule of bilateral seminars and conferences on judicial themes, including organization and administration of court systems, court information management systems, organized crime, extradition procedures, and rules of evidence.
Military-to-Military Relations: Training and Equipping to Enhance Interdiction
Given President Zedillo’s decision to temporarily expand the role of the Mexican military in counterdrug missions, development of effective military counterdrug capabilities is essential. The two governments are cooperating on an extensive range of issues involving U.S. and Mexican military counterdrug interdiction forces. The Department of Defense (DOD) has established a highly successful training and equipment program for the development of an airmobile, rapid-reaction, counterdrug capability to support drug interdiction efforts in Mexico. In FY 96, approximately 300 Mexican military personnel completed counterdrug training provided by DOD. In FY 97, more than 1,500 Mexican military personnel will be trained in an expanded counterdrug training program, including courses in aircraft maintenance, communications, intelligence, UH-1H pilot training, Special Forces skills instruction, cadre development, and maritime counterdrug operations.
Central to the development of Mexico's military counterdrug capability is the training of GAFE (Grupos Aeromoviles Fuerzas Especiales) units and UH-1H pilot and maintenance training. GAFEs are elite Mexican Army units that have received Special Forces and air assault training for use in counterdrug interdiction operations. The training program was designed to rapidly improve the capabilities of GAFE units and UH-1H squadrons that support their operations. The training will also establish a cadre of Mexican instructors to sustain these counterdrug capabilities. Training of GAFEs is scheduled to continue through FY 99. All GAFE training includes a strong human rights component.
DOD is transferring 73 UH-1H helicopters to the Mexican Air Force to support GAFE units’ counterdrug operations and four C-26 fixed wing turboprop aircraft for use in counterdrug reconnaissance and support missions. The first 20 helicopters were delivered to Mexico in November 1996 and an additional 28 were transferred in July 1997. The remaining 25 UH-1Hs will be delivered by September. These air mobility assets mark a significant improvement in Mexico’s counterdrug capabilities. They are employed in conjunction with the GAFE as well as in reconnaissance, eradication, and interdiction operations. DOD also provided helicopter support via the transfer of two years' worth of spare parts, aviation maintenance tool kits, and ground support equipment to sustain Mexico's near-term airmobile counterdrug capability.
To further bolster Mexico's long-term ability to maintain the counterdrug UH-1H fleet, Section 1031 of the 1997 Defense Authorization Act for DOD provided $8 million in counterdrug procurement support to Mexico. The support is administered through a Foreign Military Sales (FMS) case for acquisition of helicopter spare parts and components. This very important authority is also being sought in the FY98 Defense Authorization Bill.
From December 1996 to August 1997, the increased capability represented by the DOD-provided UH-1Hs showed immediate results. As of August 1997, these aircraft had logged a total of 3,600 flight hours in support of counterdrug missions. According to figures supplied by the GOM, through May 1997, UH-1H flights resulted in the location of 9,076 drug fields; identification of 281 new clandestine airfields; identification of 30 previously unknown areas suitable for clandestine airstrips; identification of 56 previously unknown possible border crossing points; and seizure of 4,605 kilograms of marijuana.
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Maritime Interdiction Cooperation
Maritime counterdrug operations gained new significance in FY 97, as both governments recognized the increased threat posed by maritime transport of cocaine, marijuana, precursors, and other related contraband, both in commercial shipping and in smaller, high performance "go-fast" boats. Mexico and the United States made advances in the areas of training, information exchange, and cooperative maritime law enforcement.
Maritime Training
DOD, with the support of the U.S. Coast Guard (USCG), has developed a maritime counterdrug training program to train Mexican naval forces for operations in a marine/coastal and riverine environment. More than 600 Mexican Navy personnel will receive this training in 1997. Mexico also acquired two U.S. Knox class frigates for use in a maritime counterdrug role, and DOD will provide training to assist in developing this capability. To further assist the Mexican government in improving its maritime law enforcement capabilities, the USCG International Training Division also provides training to the Mexican Navy in basic boarding and law enforcement procedures. In April 1997, at the request of the Mexican Navy, a USCG Mobile Training Team (MTT) traveled to Mexico and trained more than 100 Mexican Navy officers and enlisted sailors on maritime law enforcement and counterdrug boarding techniques.
LEDET Support
At Mexican request, USCG Law Enforcement Detachment Teams (LEDETs) deploy with increasing frequency to Mexico to assist the Mexican Navy with dockside boardings using IONSCAN equipment. In addition, LEDET personnel have appeared in Mexican courts three times to testify as expert witnesses against suspected drug smugglers, most recently on July 22, 1997. During the course of one deployment in late 1996, the LEDETs boarded seven vessels which the Mexican Navy suspected of drug smuggling. Although no contraband was discovered, there were several positive hits which indicated the presence of drugs previously. On the basis of this evidence, Mexico seized all seven vessels (estimated worth: $3-4 million). In January 1997, a LEDET participated in the boarding of the Mexican fishing vessel, "Viva Sinaloa", leading to the seizure of more than three metric tons of cocaine.
Maritime Air Patrols
The exchange of information between CENDRO (the Mexican national counterdrug coordination and intelligence center) and the USCS Aviation Liaison Officer in the Information Analysis Center (IAC) in the Embassy in Mexico City concerning suspected maritime trafficking has enhanced coordination on reconnaissance flights. In addition, Mexico's willingness to pursue traffickers several hundred miles out to sea has greatly improved maritime interdiction efforts. The result has been significant seizures near the Yucatan Peninsula, and areas near the southern tip of Baja California and the adjacent west coast of the Mexican mainland.
Cooperative Maritime Interdiction Operations
The USCG, in conjunction with other federal law enforcement agencies, is also conducting maritime interdiction operations in the coastal waters along our border with Mexico in both the Pacific and the Gulf of Mexico. Operation GULF SHIELD is centered in Brownsville, Texas. Operation BORDER SHIELD is centered in San Diego, California. In conjunction with Operation GULF SHIELD, the Mexican Navy is conducting Operation TAMAULIPAS 97 along the Texas/Mexico border. The Mexican Navy has two warships with deployed helicopters in support of the operation, and has expressed a desire to continue this operation indefinitely. In addition, the Mexican Navy is requiring the registration of all small boats and the sale of outboard engines larger than 75 horsepower.
Operational Success
A recent success in maritime interdiction resulted from bilateral cooperation in Operation BORDER SHIELD. On August 11, 1997, Joint Interagency Task Force West (JIATF-West, the USG interagency interdiction command center responsible for the Eastern Pacific) developed information on a smuggling operation south of Acapulco involving the transfer of drugs from a mother ship to a go-fast boat. The USCG Cutter BOUTWELL, a U.S. Navy P-3, and a Mexican Navy aircraft responded by diverting from other missions to intercept the suspect vessel.
Taking part in the pursuit at various times were BOUTWELL's HH-65 helicopter, the USN P-3, a USCS P-3, and a PGR King Air. The USCS aircraft tracked the go-fast vessel, which jettisoned more than 100 bales of cocaine, until nightfall. Despite the Mexican Navy's fast response (three Mexican Navy vessels participated), the go-fast crew of five managed to escape before the authorities could arrive. BOUTWELL and the three Mexican Navy vessels worked overnight recovering the jettisoned cocaine. The total amount recovered was more than 2.7 tons of cocaine, which was transferred to the custody of the Mexican Navy. The significant contribution of Mexican Navy support to this successful operation showcases the potential for cooperative maritime law enforcement.
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Border Coordination
The customs services of the United States and Mexico have improved their communications and cooperation. Port Quality Improvement Council's have been formed in an effort by the major U.S. federal inspection agencies (USCS, Immigration and Naturalization Service, and Department of Agriculture) to coordinate the management of large Southwest border ports of entry. PQIC coordination and communication has been extended to Mexican counterparts via the Border Working Groups operating at the local level at Southwest border ports. Increased communication between U.S. and Mexican customs officials along the border has improved traffic management and facility usage. Cargo and passenger facility hours of operation are now coordinated, increasing the efficiency of both U.S. and Mexican agencies.
Border Liaison Mechanism (BLM)
The U.S. and Mexico created the BLM in 1993 to improve local communication on border incidents. The principal officers at U.S. and Mexican Consulates in five border pair cities (Tijuana/San Diego, Ciudad Juarez/El Paso, Nuevo Laredo/Laredo, Hermosillo/Nogales, and Matamoros/Brownsville) chair quarterly meetings with law enforcement officials, civic leaders and representatives of inspection agencies to discuss "border cooperation and any recent violent incidents." Additional BLMs have been added at Mexicali/Calexico, Reynosa/McAllen, and Ojinaga/Presidio.
The BLMs have proven very useful in resolving problems locally that otherwise might have escalated to national-level issues. In addition to narcotics-related issues such as border violence and customs inspections, BLMs have also dealt successfully with other issues, notably port management, border facilitation and immigration questions. A survey of U.S. Consulates participating in BLMs this spring indicated agreement that the BLMs are proving extremely useful in improving border coordination.
America’s Narcotics Control Initiative (ANCI)
Through the ANCI program, USCS will assist exporters, carriers, and port authorities in developing and implementing security programs and initiatives that safeguard legitimate trade from being used to smuggle narcotics and to assess border operations. ANCI will build upon the current Carrier Initiative and Business Anti-Smuggling Coalition programs which USCS has promoted with industry in the hemisphere. Mexico is one of the target countries for the ANCI.
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Air Interdiction Cooperation
The USCS Aviation Program has been involved in counterdrug operations with Mexico since 1990. These operations have resulted in an excellent level of cooperation in drug interdiction activities. The Mexican Government authorizes regular overflight and case by case pursuit in Mexican airspace for USCS P-3 aircraft monitoring suspect narcotrafficking aircraft, or responding to emergent intelligence. Regular pre-authorized overflights require a Mexican national, in most cases a representative from the PGR, to be present aboard the P-3 aircraft. When tracking suspect aircraft, P-3 crews coordinate with both the USCS Domestic Air Interdiction Coordination Center (DAICC) in Riverside, California and the USCS Aviation Liaison Officer in the IAC located in Mexico City. The Mexican representative aboard the USCS aircraft serves as a coordinator for Mexican law enforcement assets involved in prosecuting the suspect track.
USCS has proposed an exchange of liaisons between DAICC and its counterpart CENDRO. The DAICC offers the only means of monitoring suspect low-level flights in northern Mexico. The U.S. believes that the proposed liaison exchange will enhance communication between Mexican and U.S. law enforcement. This in turn should improve prospects of apprehending trafficker aircraft over Mexico.
Discussions between the U.S. Department of the Treasury and the GOM are continuing on this issue. As part of this process, Mexican representatives are to visit DAICC to see firsthand DAICC capabilities and the benefits that would stem from the liaison exchange.
In coordination with the Mexican government, two USCS Citation interceptor aircraft have been deployed to Mexico since the early 1990s to support interdiction and provide training, with USCS aircrews rotating into Mexico for 30-day, temporary duty assignments. Additional Citations are on alert in the United States at various locations along the southwest border. The forward-deployed Citations have enjoyed great success in interdicting trafficker aircraft throughout Mexico, leading the Mexican Government to purchase its own Citations and create its own national air interdiction capability.
USCS aircrews have provided on-the-job training to Mexican pilots and radar operators and have worked side by side on cases. Formal training has been provided at the USCS training facility in Marana, Arizona.
The capabilities of Mexico's air interdiction program have grown exponentially since its inception in 1991. The record of success already achieved could be strengthened with new initiatives in the future, perhaps including cooperative operations to target ongoing suspect air activity occurring just south of the U.S.-Mexican border.
Detection and Monitoring Enhancement
The GOM has approved a major step forward in bilateral detection and monitoring cooperation, streamlining overflight and refueling request procedures. The GOM recently provided immediate authorizations and assistance for U.S. aircraft to overfly Mexico when observing suspected drug trafficking aircraft flying into Belize and Guatemala. This assistance included permission to refuel in Mexico and agreement to keep airfields open while detection and monitoring missions are in the air and possibly in need of fuel. As the result of high-level discussions at the Bilateral Working Group on Military Cooperation meeting held in May 1997, Mexico has streamlined procedures by which U.S. aircraft and maritime vessels supporting counterdrug missions can receive authorization to overfly or refuel in Mexican territory.
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Information Sharing
Information sharing is critical to the effectiveness of both national and bilateral counterdrug efforts. Information sharing has been increased through more frequent personal contact between U.S. and Mexican counterparts and the creation of new mechanisms for transmitting information and intelligence. One of the most critical elements in this process has been the effort by the GOM to improve its information security practices, including intensified security screening for Mexican personnel who handle U.S.- provided information. Although these ongoing GOM screening efforts will be critical to building trust, remaining concerns about corruption in Mexico are barriers to greater information sharing.
Strategic Information Sharing
The development of strategic information sharing institutions and practices has improved understanding of drug trafficking organizations and increased law enforcement effectiveness in both countries. The IAC is critical to cooperative counternarcotics information sharing. The IAC is an interagency multi-source intelligence fusion center located in the U.S. Embassy in Mexico City which develops actionable intelligence for use by U.S. and Mexican law enforcement agencies. Mexican law enforcement authorities have provided the IAC with considerable case information electronically on major drug trafficking organizations in Mexico drawn from their case files. This information is analyzed and integrated into IAC data bases as well as forwarded to Dominant Chronicle, the Defense Intelligence Agency-FBI document analysis center in the Washington, D.C. area. Time-sensitive information is isolated and checked against U.S. data bases. The combined ("fused") information is then returned to Mexican authorities to support law enforcement operations, e.g., raids against specific drug trafficking locations. Products from Dominant Chronicle are also provided to Mexican law enforcement with expanded analysis for use in its strategic efforts.
This interaction among the IAC, the U.S. national intelligence community, and Mexican law enforcement agencies has resulted in a significant increase in our mutual understanding of the structure of Mexican drug-trafficking organizations, and the identity of key figures within these organizations. According to the U.S. Embassy in Mexico City, this interchange and the expansion of U.S. and Mexican understanding of trafficker structures and methods have also led to an increase in operations directed against traffickers, such as the Mexican Army's seizure of a tanker truck containing almost 10 tons of cocaine in the state of Tamaulipas in April 1997, one of the largest seizures of cocaine ever.
Tactical Information Sharing
Successful law enforcement and interdiction operations often depend upon sharing of detailed tactical information. Again, the IAC plays a key role in the tactical information sharing process. The IAC receives and analyzes reports and other information from tactical counterdrug centers, primarily JIATF West in Alameda, CA; JIATF East in Key West, FL; and the DAICC. In addition, reporting from all members of the national intelligence community is incorporated to form a tactical assessment of drug smuggling trends, routes and methods. A secure communications link between the IAC and CENDRO has been in place since December 1996 to share sensitive information and has been used with increasing frequency. The link is especially valuable for sharing real-time tracking information to support Mexican end game operations. For example, in July 1997, extensive real-time tracking information on airplanes and fast boats was transferred through the link. While there were no seizures or arrests in Mexican territory at that time, the operation resulted in a 1,000-kilogram cocaine seizure on the waters north of San Andres Island in the Caribbean.
Another example of the effectiveness of tactical information sharing was the seizure of the Mexican fishing vessel "Viva Sinaloa" in January 1997. Initial intelligence reports indicated an at-sea transfer of drugs would occur in the Eastern Pacific involving a ship coming from Colombia which would be met offshore by a vessel from Mexico. The IAC served as the coordination point for the maritime patrol assets under the command of JIATF-West and Mexican naval units which were deployed to interdict the trafficking vessels. Locational data were passed from the U.S. maritime patrol assets to the IAC, which relayed the information to the Mexican naval units. The Mexican Navy boarded the "Viva Sinaloa" and escorted it into port, resulting in the seizure of more than three metric tons of cocaine.
The IAC also plays several key roles in bilateral cooperation against the air trafficking threat. Most initial detections of potential drug shipments via aircraft originate using Relocatable Over-the-Horizon Radar based in the continental United States. This information is passed to IAC where it is checked against drug trafficking profiles. If the initial detection is validated as a suspect flight, the IAC passes the information to Mexican counterdrug authorities over the secure electronic link. Mexican and USCS tracker and interception aircraft are alerted and when the target comes within range, Mexican interceptor aircraft are launched. During the first seven months of 1997, IAC air alerts resulted in a foiled airdrop in Mexican waters; the seizure of 175 kilograms of cocaine, 32 kilograms of marijuana, an aircraft, and a vehicle; and the arrest of four persons on drug-related charges.
Maritime Information Sharing and Communication Plan
Significant progress has been made in sharing information with Mexico on the flow of narcotics via maritime routes. Recent meetings (March to August 1997) between high level USCG and Mexican Navy officials led to the establishment of several agreements for increased cooperation. The Mexican Navy and USCG will: (1) advise each other of the locations of patrolling units to facilitate cooperative law enforcement actions along the border; (2) publish a communication plan so patrolling units can coordinate and de-conflict patrol efforts; (3) advise each other of information relevant to operations; (4) improve the quality and timeliness of search and rescue information; and (5) continue meeting regularly to improve mutual efforts.
The USCG and Mexican Navy began direct communication and coordination for counterdrug operations along the Texas/Mexico border in June 1997. Information was successfully exchanged with the Mexican Navy on five separate occasions concerning lancha (small boat) activity in the vicinity of the U.S.-Mexico border during the month of June. These incidents resulted in positive Mexican responses, including confirmation of Mexican Navy vessels in the area and agreement to investigate information relayed by the USCG. The agreements and activities between the USCG and Mexican Navy mark a significant advance over the previous lack of mechanisms for direct exchange of information.
Financial Information Sharing
The Governments of the United States and Mexico are cooperating to attack the financial underpinnings of drug trafficking organizations. U.S. and Mexican authorities now routinely share tax and financial information via a series of formal agreements. These agreements, Financial Information Exchange Agreement, Tax Information Exchange Agreement, and Mutual Legal Assistance Treaty, allow each country to assist the other in combating financial crimes by the exchange of evidence and other financial data available in the requested country.
Border Information Exchange
Along the U.S.-Mexico border (particularly in the San Diego-Tijuana area), special programs are being developed and implemented to exchange information and evidence needed to arrest and prosecute transborder criminals. For instance, consultations are continuing on more effective ways to ensure that minor transporters of drugs across the border can be prosecuted in their country of origin with the help of evidence collected by the border immigration or customs authorities of the excluding country.
Increases in border violence associated primarily with drug smuggling are of grave concern to both governments. In response to recent incidents of cross-border violence against law enforcement officers in southern California, the Governments of Mexico and the United States have recently set up a Southern California Border Public Safety Council within the Border Liaison Mechanism to handle emergency situations. The purpose of this Council is to provide an immediate response to violent encounters across the border and to facilitate the investigation by officials on both sides of the border at crime scenes. It is anticipated that the enhanced cooperative measures developed by the Council will serve as a model for similar bilateral groups in the border region.
With this increase in border violence, officer safety has emerged as a top priority for both the U.S. and Mexican customs services. Customs Port of Entry Directors on both sides of the border are now able to communicate, via a direct telephone link, with their counterparts. As a result, information on large scale public gatherings, mass migrations of persons, and individuals avoiding law enforcement efforts (all incidents that pose a significant threat to the officers of both agencies) can now be immediately communicated to the affected U.S. or Mexican port, making the border environment safer for citizens and customs officers of both nations.
Exchange of Chemical Control Information
Enhanced communication has also occurred in the area of precursor chemicals -- due, in large measure, to cooperation through the Bilateral Chemical Control Working Group. In 1997, Mexico implemented regulations limiting the legal importation of precursor chemicals to seven designated ports of entry. At Mexico’s request, since March 1997, the United States provides written notification for each precursor shipment to be sent from the United States to Mexico. The notification is made via letter to DEA-Mexico, which forwards it to CENDRO and the Health Ministry. This advance notification assists Mexican authorities in conducting their customs and regulatory operations. As part of this process, the United States also verifies that any proposed export is destined to one of the seven Mexican ports of entry legally authorized to receive precursor chemicals. The two countries are exploring means for more direct communications through an electronic mail package similar to the links the U.S. maintains with the European Union and with other countries.
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U.S. - Mexico Counterdrug Cooperation Contents
Last Updated: March 4, 2002
