PRECURSOR CONTROL AT A GLANCE - unodc.org

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The designations employed and the presentation of the material in this document do not implythe expression of any opinion whatsoever on the part of the United Nations Office on Drugs andCrime or of the United Nations Secretariat. This document is meant for information of drug lawenforcement officers and other stakeholders. This document has not been formally edited. Underno circumstances shall UNODC, the United Nations or any of its affiliates be liable for any loss,damage, liability or expense incurred or suffered which is claimed to have resulted from use of thisbook, including without limitation, any fault, error, omission, interruption or delay with respectthereto even if UNODC has been advised of the possibility of such damage.

Year of publication: 2006

Precursor control is one of the five key areas identified by the United Nations General AssemblySpecial Session held in June 1998 as requiring time-bound action. For the past several years,UNODC's Regional Precursor Control Projects in South Asia have been assisting thegovernments of the seven SAARC countries to strengthen their precursor control regimes.Sensitising drug law enforcement officers to the threat of the diversion of precursors and theneed to control them has, we believe, been one of the important achievements of ourendeavours. As a result of these interventions, a trained pool of trainers is now available in eachof the project countries.

However, the training programmes obviously cannot reach all those who need to know aboutprecursors. Therefore, in order to expand the scope of the project's activities, this booklet has beenprepared. Anyone who can spare the hour or so it will take to read and digest the booklet shouldcome away with a much better understanding of the subject of precursor control.

UNODC greatly appreciates the efforts of the Regional Precursor Control Project team - Mr.Devendra Dutt, Mr. P. V. Subba Rao and Ms. Shveta Aima - who worked hard to distil the essenceof precursor control into this small booklet. Special thanks also to Mr. Mark Colhoun, from theINCB Secretariat (Precursor Control Unit) in Vienna who reviewed the contents.

Gary LewisRepresentativeRegional Office for South Asia

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Pr e f a c e

Page

List of Abbreviations v

1. Introduction 1

2. Precursor chemicals 2

2.1 Precursors of concern in South Asia 3

2.1.1 Acetic anhydride 3

2.1.2 Anthranilic acid 3

2.1.3 Ephedrine and pseudoephedrine 3

3. International control over precursors 4

3.1 The United Nations Convention against illicit traffic in 4Narcotic Drugs and Psychotropic Substances, 1988

3.2 The role of INCB 5

3.3 The role of competent authorities 5

4. Preventing diversions 6

4.1 Methods of diversion 6

4.2 Intelligence collection 7

4.2.1 Overt or open methods 7

4.2.2 Covert methods 8

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Co n t e n t s

4.3 Investigation 8

4.3.1 Consignments 8

4.3.2 Documents 10

4.3.3 Statements 10

4.3.4 Follow up 10

4.4 Role of different agencies in preventing diversions 11

4.4.1 Role of Customs Department 11

4.4.2 Role of the Excise Department or Department of Trade and Industry 11

4.4.3 Role of Police 11

4.4.4 Role of the Regulatory Authority 12

4.4.5 Role of Border Guards 12

4.5 International operations 12

4.5.1 Operation Purple 12

4.5.2 Operation Topaz 12

4.5.3 Project Prism 13

Annexure: Information about Precursors 14

iv

ATS Amphetamine Type Stimulants

CND Commission on Narcotic Drugs

DMT Dimethyltryptamine

ECOSOC Economic and Social Council

HCl Hydrochloride

ICPO-Interpol International Criminal Police Organisation

INCB International Narcotics Control Board

LSD Lysergic Acid Diethylamide

MDA 3,4-Methylenedioxyamphetamine

MDE 3,4-Methylenedioxyethamphetamine

MDMA 3,4- Methylenedioxymethamphetamine

NOC No Objection Certificate

PCP 1-(1-phenylcyclohexyl) Piperidine – also known as phencyclidine

PEN Pre-Export Notification

TCP 1-[1-(2-thienyl)cyclohexyl] Piperidine- also known as tenocyclidine

UNODC United Nations Office on Drugs and Crime

WCO World Customs Organisation

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L i s t o f a b b r e v i a t i o n s

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The illicit production and abuse ofdrugs is one of the major challengesfaced by mankind today. Some drugs

of abuse are produced from plants and arecalled natural drugs. There are three mainspecies of plants from which drugs areproduced.

The first of these, opium poppy (Papaversomniferum), is the source of opium. Opiumis a natural drug which, acting on thecentral nervous system, has a depressanteffect. The seeds of this plant, called poppyare used as a condiment in South Asiancooking.

Cannabis is the second drug producing plant.The flowering tops of this plant are calledganja while the resin derived by crushing theplant is known as hashish or charas. Likeopium, cannabis is a natural drug.

The third drug producing plant, the cocaplant, grows in South and Central America.Coca leaves and coca paste are natural drugsderived from this plant.

These natural drugs can be processed toisolate the active ingredient, i.e., thepsychoactive substance in the natural drugthat actually produces the effect on the user.Such active ingredients can also be modifiedchemically to make them more potent. Theactive ingredients so isolated or theirchemically modified forms are known assemi-synthetic drugs. For instance, morphineand codeine are active ingredients isolatedfrom opium. If morphine is chemically

combined with acetic anhydride, we getdiacetylmorphine also known as heroin.Morphine, codeine and heroin are semi-synthetic drugs produced from opium whilecocaine is a semi-synthetic drug producedfrom coca.

There is a third category of drugs known assynthetic drugs. These are produced solelythrough chemical reactions. Diazepam,methaqualone (commonly called as mandrax),amphetamine-type stimulants such asamphetamine and MDMA (commonlyknown as ecstasy) are examples of syntheticdrugs.

The majority of the drugs of abuse are eithersemi-synthetic or synthetic by nature. One ofthe techniques of containing them is curbingtheir production by denying illicit drugmanufacturers access to the chemicals requiredto manufacture drugs. Such chemicals arewidely referred to as precursors.

Precursors are legitimate chemicals with usesin industry, medicine, research, etc. and arelegally produced. Illicit drug manufacturersdivert them from legitimate trade and industryand use them to produce illicit drugs. The jobof enforcement officers is to stop this diversionwithout impeding the normal legitimate trade.

Precursor control is thus a strategy toreduce the availability of narcotic drugsand psychotropic substances by preventingillicit drug manufacturers from obtainingthe chemicals they require for suchmanufacture.

In t r o d u c t i o n1

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P recursors are chemicals frequentlyused in the illicit manufacture ofnarcotic drugs and psychotropic

substances. There are hundreds ofsynthetic and semi-synthetic drugs ofabuse. In order to produce each of them,one requires precursors. If we try tocontrol all these precursors, our jobbecomes unwieldy, our efforts will bespread too thin, over too many chemicals,rendering controls ineffective. We must,therefore, identify a few key precursors andcontrol them. For instance, we can identifythe most widely abused semi-synthetic andsynthetic drugs and then identify theprecursors most critical to theirmanufacture. Since precursors are often

trafficked across the borders, there shouldbe harmony between the laws of differentcountries both in terms of whichprecursors are controlled and what kindsof controls are imposed on them.

The United Nations Convention AgainstIllicit Traffic in Narcotic Drugs andPsychotropic Substances, 1988 (which weshall call the 1988 Convention for the sake ofbrevity), therefore, identifies those precursorsmost crucial to the illicit manufacture ofdrugs. These are listed in Table-I and Table-IIof the convention and are universallyaccepted as precursors. These chemicals arelisted below and their licit and illicit uses arein the annexure.

Pr e c u r s o r c h e m i c a l s2

Table I Table II

Acetic anhydride Acetone

N-acetylanthranilic acid Anthranilic acid

Ephedrine Ethyl ether

Ergometrine Hydrochloric acid

Ergotamine Methyl ethyl ketone

Isosafrole Phenylacetic acid

Lysergic acid Piperidine

3,4-methylenedioxyphenyl-2-propanone Sulphuric acid

Norephedrine Toluene

1-phenyl-2-propanone

Piperonal

Potassium permanganate

Pseudoephedrine

Safrole

The salts of the substances listed in this Table The salts of the substances listed in thiswhenever the existence of such salts is possible. Table whenever the existence of such

salts is possible (the salts of hydrochloricacid and sulphuric acid are specificallyexcluded)

P R E C U R S O R C H E M I C A L S

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2.1 Precursors of concern inSouth AsiaOf the 23 precursors listed above, thefollowing precursors are of special concern inSouth Asia.

2.1.1 Acetic anhydrideThis chemical is widely used in textileprocessing, dyes and pharmaceutical industry.Since textiles and textile dyes are a majorindustry in South Asia, consumption of acetic anhydride is indispensable. In the pharmaceutical industry, the biggestconsumption of acetic anhydride is in themanufacture of the common anti-pyretics-aspirin and paracetamol.

Acetic anhydride is used illicitly for the manufacture of amphetamine-typestimulants, heroin and methaqualone(commonly known as mandrax). South Asiais flanked by two of the world's largest illicitopium growing regions of the world. Theopium so produced is processed into heroin.Acetic anhydride is not produced in neitherof the two regions and hence traffickersdivert heroin from other regions, includingsouth Asia and smuggle it into these regions.Some of the world's largest methaqualoneseizures during the past few years were madein India and in almost all cases, aceticanhydride was diverted and used to producemethaqualone.

2.1.2 Anthranilic acidAnthranilic acid is also legally used inpharmaceutical and textile industries. Illegaldrug manufacturers use it to producemethaqualone (mandrax). Typically, thisprecursor is diverted and used to manufacturemandrax within India.

The methaqualone so produced is largelysmuggled to South Africa and onwards to othercountries in Africa which form the bulk of themarket for methaqualone.

2.1.3 Ephedrine and pseudoephedrineEphedrine and pseudoephedrine have similarchemical structure. Both are used legally toproduce anti-asthmatic drugs - bronchodilatorsand nasal decongestants. Both are illegally usedto produce the amphetamine type stimulant(ATS), methamphetamine.

Two of the world's largest producers ofephedrine are India and China. China extractsephedrine from a herb, ephedra, while Indiaproduces synthetic ephedrine from molasses -a by-product of sugar factories.

Ephedrine and pseudoephedrine diverted fromIndia and China are often smuggled intoMyanmar and used for illicit production of methamphetamine. The bulk of themethamphetamine so produced is smuggled intoThailand and onwards to the rest of the world.

Many countries - especially the onesknown for illicit heroinproduction - neither manufacture

precursors nor have the capacity to do so.Since precursors have licit uses and areavailable for those purposes, illicit drugmanufacturers obtain them by either divertingthem from international trade or throughsmuggling. They only rarely produceprecursors themselves.

International control over precursors is,therefore, essential to prevent such diversion ofprecursors. The 1988 Convention provides theframework for international control andensures:

✦ Some degree of harmony between the lawsof different countries and

✦ Provide mechanisms for cooperationbetween different countries

To coordinate these activities, the Economicand Social Council requested Governments toidentify a 'competent authority' for eachcountry who serves as national nodalauthority. The Competent Authorities alsointeract with their counterparts in othercountries as well as international bodies suchas the International Narcotics Control Board(INCB).

3.1 The United NationsConvention against illicittraffic in narcotic drugs andpsychotropic substances, 1988There are three UN Conventions, which dealwith drug related matters:

✦ Single Convention on Narcotic Drugs,1961

✦ Convention on Psychotropic Substances,1971 and

✦ United Nations Convention Against IllicitTraffic in Narcotic Drugs and PsychotropicSubstances, 1988 (hereinafter called 1988Convention)

Although all these three UN conventionsemphasized the need to regulate precursors,the 1988 convention has dealt with the subjectin detail laying down the basic framework ofcontrol of precursors (Article 12). The articlerequires states to adopt legislative, regulatoryand administrative measures they deemnecessary to prevent diversion of precursors.

Furthermore, trafficking should be an offence inthat country's law. The convention requiresparties to make it a criminal offence tomanufacture, possess, transport, or distributeprecursors or equipment with the knowledgethat they are meant for illicit production ormanufacture of drugs (Article 3). The conventionalso requires states to cooperate closely with oneanother (Article 9). What does 'co-operation'mean in practical terms? It means that:

✦ States should establish and maintainchannels to facilitate rapid exchange ofinformation.

✦ They should also cooperate in conductingenquiries.

The 1988 Convention also requires states tomake effective use of the technique calledcontrolled delivery (Article 11). In thistechnique, suspect consignments of precursorsor drugs are not immediately seized but areallowed to reach their final destination undersurveillance of the authorities to identify the

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I n t e r n a t i o n a l c o n t r o l so v e r p r e c u r s o r s

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real persons behind the transaction. Sinceconsignments often move across internationalborders, cooperation is vital.

3.2 The role of INCBThe International Narcotic Control Board orINCB was established in 1968 under thesingle convention on Narcotic drugs, 1961. Itis an independent quasi-judicial body formonitoring the implementation of the drugconventions. It is responsible for monitoringthe control of precursors by governments. Italso assesses chemicals to be placed underinternational control as precursors.

At a more operational level, the INCB assistsgovernments in verifying the legitimacy of theinternational trade in precursors.

For this purpose, the INCB maintains adatabank and also interacts with thecompetent authorities of the importing,exporting and transit states.

The INCB receives reports from about 190countries as well as information on individualinternational transactions or shipments, which have been stopped on suspicion andconsignments of precursors seized. It compilesall this information and submits an annualreport to the Economic and Social Council(ECOSOC) through the Commission onNarcotic drugs (CND).

3.3 The role of CompetentAuthorities Effective international control on precursorsrequires countries to constantly interact withone another and with international bodies.The competent authority of each country actsas the nodal point. In 1992, the Economic andSocial Council requested each country todesignate a Competent Authority to facilitatesuch interaction through which any countrycan receive and transmit information to thecountry. It also executes requests for mutuallegal assistance.

Let us see in detail, what role these competentauthorities can play with respect to precursorcontrol. Competent authorities issue Pre-Export Notifications, commonly known asPENs, to importing countries. These PENsserve as advance warnings and help theauthorities in the importing country to verifythe legitimacy of the transaction and seize anyunauthorized shipments.

Competent authorities also interact with theINCB. In international trade, both the INCBand the competent authorities monitormovement of precursor chemicals.

The competent authorities also assist eachother in investigations involving precursorchemicals and also furnish reports to theINCB.

I N T E R N A T I O N A L C O N T R O L S O V E R P R E C U R S O R S

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Pr e v e n t i n g d i v e r s i o n s4

In this section we will examine the variousmethods that traffickers employ to divertprecursors and the techniques through

which we can counter them under thefollowing five sub-headings:

✦ Methods of diversion ✦ Intelligence collection✦ Investigation ✦ Role of different agencies in preventing

diversions✦ International operations

4.1 Methods of diversion Precursors can be diverted from any stage inthe course of legitimate trade. Some possiblepoints of diversion are:

✦ From the place of manufacture ✦ At the point of sale✦ During transportation✦ During importation✦ During exportation✦ During use or consumption✦ During re-cycling✦ During destruction of seized precursors.

Traffickers employ a variety of techniques todivert precursors, including the following:

a) Under-reporting production andclandestinely removing the remainingprecursor: The manufacturer of theprecursor enters only part of theproduction in his records and diverts therest to illicit trade and sells it at a muchhigher price. The manufacturer alsogenerates more profits by evading exciseduty and other taxes.

b) Theft during transportation: Criminalssteal precursors in small quantities fromtankers and trucks with the connivance

of drivers. The quantity of precursorspilfered from each tanker or truck is sosmall that it can easily go undetected.But traffickers often accumulatesignificant quantities of precursorsthrough repeated pilferage. In SouthAsia, this method has often been used todivert acetic anhydride.

c) False reporting of leakage: The consignorsends a false report stating that thetanker leaked in transit and a significantquantity of precursor was lost. Theprecursor is meanwhile diverted intoillicit channels.

d) Misdeclaration of description: In manycountries, one needs a licence to importor export precursors. Such consignmentsare also subjected to more intensivechecks by customs services. Traffickersexport the consignment of precursorchemical wrongly declaring it as aconsignment of some other commodityto bypass both licensing requirementsand rigorous checks. Through thismethod nine tons of acetic anhydridewas successfully exported from India toDubai by declaring the consignment ofchemicals as consignment of acid forpickles. The diverted acetic anhydridewas sufficient to produce 3.6 tons ofheroin.

e) Forged no objection certificates (NOCs) orimport and export permits: Traffickersplace an order for the import of aprecursor along with a forged importpermit and if the authorities in theexporting country do not detect theforgery, a huge consignment is availablefor diversion.

f ) Manipulation of the quantity in theNOC or import or export licence: Thisinvolves taking a genuine license andinserting a zero in the quantitydescriptor. A Mumbai-based exporteronce presented an NOC from thecompetent authority of the importingcountry to export 2 million ephedrinetablets to Trinidad and Tobago. Whenan enquiry was conducted, it wasconfirmed that the actual quantitypermitted in the NOC was only twohundred thousand ephedrine tablets.The difference of one million eighthundred thousand tablets could have been easily used to producemethamphetamine.

g) Orders placed using the names of non-existent firms: If you succeed, the entireconsignment is available for illicittrade. If the authorities find out, thereis very little chance of being caught.Alternatively, using the name of a bonafide company but inserting a falsecontact address with false telephoneand fax numbers makes it easy toimport. When the time for deliverycomes, traffickers ask the transporter todeliver the consignment at a differentaddress citing some place with storageprovision.

h) Conceal orders for precursors amongstinnocuous chemicals: They begin withplacing orders for small quantities ofprecursors and often conceal the trueorder for precursors amongst a list ofinnocuous or harmless chemicals andother materials.

4.2 Intelligence collection Intelligence, by definition, is foreknowledge -knowing all that you need to knowbeforehand. Since precursors are legitimatesubstances with a variety of legal uses, it isextremely difficult to detect diversion and

trafficking without intelligence. To gatherintelligence we need to concentrate our effortsat possible stages of diversion such as place ofmanufacture, sale and transportation. Thereare two methods of collecting intelligence -overt or open and covert or secret.

4.2.1 Overt or open methods The overt or open method refers to thecollection of information regarding a possiblediversion from secondary sources likenewspapers, books, and technical publicationsas well as data from other government sourcesor other bodies. The data so gathered whenput through the "intelligence mill", mayprovide extremely useful pointers that enablethe enforcement officers to decide where toconcentrate their efforts. Often referred to asprofiling, this helps identify the most likelysuspicious consignments of precursors passingthrough the international trade.

Profiling starts off with the systematic analysisof past cases to determine the characteristics ofa typical suspect consignment or trafficker. Byexamining such characteristics carefully, wecan zero in on suspect consignments andtraffickers. A few pointers could be:

Destination of the goodsA consignment of precursors destined to aborder area adjoining a country known forillicit manufacture of drugs runs a high risk ofbeing smuggled to that adjoining country.

Change in custom house agentIf an exporter suddenly changes his customhouse agent for exporting precursor chemicals,that would constitute a cause for suspicion.

First time orders should be subject to greaterscrutiny.

✦ If the chemical is sold at a very high pricecompared with the prevailing marketprice, it requires a careful examination.

P R E V E N T I N G D I V E R S I O N S

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Unusual and special packaging of the chemical isanother cause for suspicion.

✦ Similarly, incorrect or vague labelling is alsoa reasonable cause for suspicion.

✦ Bulky consignments of chemicals being sentby air should also be checked carefullysince it does not make business sense tosend such consignments by air.

4.2.2 Covert methods Covert methods often provide direct,actionable intelligence. There are three primarycovert methods: informers, surveillance andundercover operations.

Informers are persons with inside informationabout an illicit activity who are willing to shareit with the authorities for any of the variety of reasons including financial reward,recognition, revenge or thrill factor. In order toget information on diversion of precursors,informers should be cultivated in places suchas factories manufacturing precursorchemicals, associations of brokers andtransport agencies used by such companies.Informers can also be cultivated among truckdrivers engaged in the transportation ofprecursors, among custom house agents,forwarding agents, in inspection agencies or inthe offices of port / airport authorities. Otherplaces to cultivate informers are chambers ofcommerce and also in shipping lines or airlinesand in roadside restaurants. You may wonderwhy roadside restaurants? Roadside restaurantsoften act as collection points for the precursorspilfered by truck drivers. From theserestaurants, the precursors are sent to illicitdrug manufacturers through intermediaries.

The second covert method - surveillance - is oftwo types; physical and electronic.

Physical surveillance consists of keeping adiscrete watch over places and persons, where as electronic surveillance comprises

telephone intercepts, GPS-based satellitetracking, etc. Interception of telephones,when permitted legally, can be extremelyuseful in identifying and preventingdiversions. Satellite tracking devices areextremely useful to monitor internationalmovement of suspect consignments.

Finally, undercover operations, including theinfiltration of networks by agents or theconducting controlled deliveries, provide auseful source of intelligence and can beorientated directly for a prosecution in a court oflaw or in furthering investigations to learn moreof the methods used by trafficking networks andthose involved in the illicit activities.

4.3 Investigation Let us consider what factors can triggerinvestigations into cases of diversion:

a. Specific intelligence about diversion; b. Follow-up into a detection and seizure at

an illicit drug-manufacturing factory; c. Investigations into shipments stopped in

international trade as reasons exist tobelieve the order was an attempt todivert the precursors in question;

d. Follow-up into a case in some othercountry

In investigations into diversions of precursorsfrom international trade, special attentionshould be paid to the following:

✦ Consignment✦ Documents✦ Statements ✦ Immediate follow up

4.3.1 ConsignmentIn the case of an export of precursor chemicals,the following should be checked:

✦ Does the exporting company actually exist?✦ Is it registered for the purpose?✦ Is the ordered chemical consistent with

the use for which it is specified?

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✦ Is there a requirement for this particularchemical in the importing country?

✦ Is it a first time order or is it part of anirregular ordering pattern?

✦ Has the customer specified any unusualpackaging requirements?

✦ Is the consignment to travel by airfreight? Isthis cost effective for the particular chemical?

✦ Is there a bona fide delivery address? Dothe delivery requirements specify a postoffice box number?

✦ Is the consignment destined for a namedindividual within a company?

4.3.2 Documents The documents recovered during a searchshould be carefully examined. Pay specialattention to the following documents:

✦ Past shipping bill or bills of entry✦ Transport documents✦ Private documents relating to transactions✦ Documents relating to bank accounts✦ Documents relating to properties

Careful and timely scrutiny of documents mayprovide valuable clues and evidence of linksbetween members of trafficking networks,their foreign links and the flow of moneyearned from the illegal venture.

4.3.3 Statements Questioning the persons involved in, orconcerned with, a diversion and carefullyrecording their statements play a veryimportant role in successful investigations.

The statements should, among other things,contain the following:

✦ Place, date and time.✦ Name and address of person giving the

statement.✦ Name and designation of person asking

the questions.✦ Name and addresses of persons who are

witnesses, if any.

✦ Notice given to the person beingquestioned concerning his right againstself-incrimination.

✦ Signature of the person preparing thestatement should also be taken intoconsideration.

Investigating officers should keep in mind thefollowing while recording statements.

✦ Use short questions confined to one topicthat can be clearly and easily understood.

✦ Ask questions that require narrativeanswer and avoid questions that can beanswered by 'YES' or 'NO'.

✦ Avoid leading questions, that is, questionsthat suggest an answer.

✦ Ask the interviewee how he or she learnedwhat he or she states to be a fact. Theinterviewee should also be required todeliver the factual basis of any conclusionsstated.

✦ Remain alert to prevent the intervieweefrom aimless wandering and demand adirect response.

✦ Concentrate more on the answer than onthe next question.

✦ To avoid an unrelated or incompletechronology, the investigating officershould clearly understand each answerand ensure that any lack of clarity iseliminated before continuing further.

When all the important points get resolved,the officer should terminate the interview. Ifpossible, leave the door open for furthercontact with the person giving statements.

The investigating officer should get theanswers from the person under questioning tothe basic questions such as Who? What? Why?Where? When? and How? of the events.

4.3.4 Follow-up Follow-up should be immediate and swift as anydelay facilitates the destruction of evidence by


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the suspects. Samples of seized precursors shouldbe drawn and sealed as per the prescribedprocedure and sent to a laboratory for testing asearly as possible. The chain of custody of theseized goods, documents and other forms ofevidence should be properly recorded toestablish their integrity in a court of law.

4.4 Role of different agenciesin preventing diversionsDifferent law enforcement agencies can helpprevent and detect diversions of precursors andthe role each agency can play is discussed below:

4.4.1 Role of Customs Department Since Customs officers regulate import andexport of all consignments they can play animportant role in preventing their diversionfrom international trade. They are alsoresponsible for the prevention and detection ofsmuggling. In order to prevent diversions,custom officers should carefully examinedocuments related to import, export andtransit consignments.

The following aspects should be checked inthe documents:

✦ Was the mode of payment in conformitywith normal commercial practice?

✦ Was there any unusual request forshipping or delivery?

✦ Are there any specific requests for packing/ labelling / shipment that are not inconformity with normal commercialpractice and or means of transport?

✦ Does the transaction involve acombination of controlled chemicals,which can be used illicitly to manufacturea controlled drug?

✦ Does the order involve an unusualmixture containing a high content of aprecursor chemical?

✦ Is the means of transport, for example byair, consistent with the value of theprecursor chemical?

Answers to these questions can enable customsofficers to narrow down suspicious consignmentsof precursor chemicals.

4.4.2 Role of the Excise Department orDepartment of Trade and Industry1

This department exercises control over themanufacturers of precursor chemicals. Theyinspect or audit, assess the production andexamine records of clearance of goods of thosemanufacturing units that produce and useprecursors. Any unusual increase inconsumption of raw materials or anyinexplicable drop in the production of finishedproducts of a precursor manufacturing unitshould be carefully scrutinized. The input oroutput ratio of such factories should becompared to other factories producing similarproducts. It is necessary to look forabnormalities that can, after investigation, leadto the detection of diversions.

4.4.3 Role of Police Police have an extensive networks and,therefore, can check consignments ofprecursors in transit within a national territoryas this is one of the weakest links in the chainof control over precursors.

Precursors stolen during transit are often soldto illicit operators along the highways who, in turn, sell them to the illicit drugmanufacturers. Often, this takes place througha series of intermediaries.

The presence of alert, trained police on roadsand along highways can help in checkingsuspicious movements of precursor chemicals.

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1Responsible departments vary between countries in accordance with national legislation, competencies andmandates.

4.4.4 Role of the Regulatory Authority The regulatory authority, by whatever name itis called in any country (e.g., the NarcoticsControl Bureau in India), usually issues andreceives pre-export notifications, verifies thelegitimacy of transactions and co-ordinateswith other countries.

This authority may also be responsible foreducating the chemical industry and trade tothe possible threat of diversion of precursors.An enlightened industry and trade candevelop voluntary codes of conduct toprevent diversion of precursors. Any attemptto divert a precursor by a trafficker willalmost always be first known to someone inthe trade who can pass on such intelligence tothe authorities.

Since training is vital to the efficacy ofprecursor control measures in a country, theregulatory authority should take the lead inorganizing precursor-training programmes.It is necessary for enforcement officers aswell as the trade to be involved in suchtraining.

The regulatory authority should also maintaina national database on precursor chemicals.This would help exercise better control overprecursors meant for both domestic andinternational trade.

4.4.5 Role of Border Guards Almost all countries deploy guards along theirborders for the security of the nation. Theseborder guards form the first line of defenceagainst the smuggling of both goods andpersons and can help foil attempts to smuggleprecursor chemicals.

4.5 International OperationsThere are international operations aimed atpreventing the diversion of precursors.Different countries and international bodies

work in tandem in these operations. Threesuch operations namely Operation Purple,Operation Topaz and Project Prism have so farbeen launched.

4.5.1 Operation PurpleOperation Purple was launched in 1999 tomonitor the international movement ofshipments of potassium permanganate (theprecursor used in the illicit production ofcocaine) to minimize the scope for theirdiversion.

Thirty-one authorities and three internationalbodies - ICPO-Interpol, INCB, and WCOparticipate in this operation which is guidedby a steering committee. Central nationalauthorities (CNAs) are designated under theoperation to exchange intelligence onmovements of potassium permanganate andmonitor all shipments over 100 kg from theexporting countries till they reach their finaldestination. The operation has been successfulas a result of which, illicit prices of potassiumpermanganate increased and the purity ofcocaine has fallen.

4.5.2 Operation Topaz Operation Topaz was launched in 2001 tomonitor the international movement ofconsignments of acetic anhydride. Forty-sixauthorities and three international bodies -ICPO-Interpol, INCB, and WCO participatewhile a steering committee monitors theoperation. International movements ofconsignments of acetic anhydride over 100 kgare monitored till they reach their finaldestination.

Operational activities have resulted in theidentification of trafficking routes of aceticanhydride from Europe to West Asia.Furthermore, the networks responsible havebeen dismantled and the individuals involvedprosecuted.


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4.5.3 Project Prism Project Prism, the latest of the internationalinitiatives, is designed to address diversions offive main precursors used in the illicitmanufacture of ATS, namely, (i) ephedrine, (ii) 3,4-methylenedioxyphenyl-2-propanone,(iii) 1-phenyl-2-propanone, (iv) pseudoephe-drine and (v) safrole as well as the equipment

used in such manufacture . Project Prism is directed by a task force supported by two working groups-the Chemicals Working Group and the Equipments Working Group. Operational activitiescommenced in January 2003 with a focus being placed on specific time-bound regionaloperations.

I N T R O D U C T I O N

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I n f o r m a t i o n a b o u t p r e c u r s o r sAn n e x u r e

Physical appearanceFine, white or off-white crystalline powder

Countries where producedBelgium, Germany, USA and UK

Licit / Illicit usesLicit- pharmaceuticals, plastics, fine chemicalsIllicit- Methaqualone, Meclaqualone

Drug that can be produced from 1 kg or 1 LitreEach kg is sufficient to produce 1 kg methaqualone

HazardsHarmful if swallowed

Physical appearanceColourless (sometimes yellowish) liquid with a strong, vinegar-like smell

Countries where producedChina, India, France, Germany, Russian Federation,Switzerland, UK and USA are major producers

Licit / Illicit usesLicit- pharmaceuticals, paints, dyes, plastics, explosives andchemical industries Illicit- Heroin, Methaqualone

Drug that can be produced from 1 kg or 1 LitreEach kg is sufficient to produce 0.4 kg heroin

HazardsVapour can irritate eyes, ears and nose. Acetic anhydride ishighly corrosive

N- Acetylanthranilic Acid

Acetic Anhydride

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A N N E X U R E

Physical appearanceWaxy solid crystals or granules with a soapy feel

Countries where producedChina, the CIS, Czech Republic, Germany, India and Japan

Licit / Illicit usesLicit- in manufacture of bronchodilators and nasaldecongestants Illicit- in manufacture of ATS

Drug that can be produced from 1 kg or 1 LitreEach kg is sufficient to produce 700 grams of amphetamines


Physical appearanceWhite crystalline substance

Countries where producedCzech Republic, Slovenia, Switzerland

Licit / Illicit usesLicit- as oxytocin in treatment of obstretics and treatment ofmigraine Illicit- to produce Lysergic acid diethylamide (LSD)

Drug that can be produced from 1 kg or 1 LitreEach kg is sufficient to produce 300 grams of LSD

HazardsIngestion can cause vomiting, diarrhoea, severe thirst,confusion and even unconsciousness

Ergometrine

Ephedrine


16

Physical appearanceMade of hygroscopic crystal

Countries where producedCzech Republic, Slovenia, Switzerland

Licit / Illicit usesLicit- used in treating acute attacks of migraine and asoxytocin in obstetrics Illicit- manufacture of LSD


HazardsIngestion can cause vomiting, unconsciousness, confusion,unquenchable thirst and diarrhoea

Physical appearanceColourless (sometimes yellowish) viscous liquid with sweet odour

Countries where producedChina and Taiwan

Licit / Illicit usesLicit- used in manufacture of piperonal , perfumes,fragrances, flavours and pesticides. Illicit- Tenamphetamineor MDA, 3, 4-methylenedioxymethamphetamine orMDMA and N-ethyltenamphetamine or MDE

Drug that can be produced from 1 kg or 1 LitreEach litre is sufficient to produce 200 grams of MDA orMDMA or MDE

HazardsModerately toxic. Poisonous if it takes parenteral route i.e.,routes other than alimentary tract. Skin irritant.Experimental carcinogen and tumorigen

Isosafrole

Ergotamine

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A N N E X U R E

Physical appearanceWhite crystalline powder

Countries where producedInformation not available

Licit / Illicit usesLicit- used in organic synthesis of chemicalsIllicit- manufacture of LSD


HazardsHighly toxic. Ingestion can cause vomiting, unconsciousness,confusion, unquenchable thirst and diarrhoea

Physical appearanceLiquid with anise-like odour

Countries where producedGermany and India

Licit / Illicit usesLicit- used in production of piperonal and perfume components Illicit- Used in manufacture of MDA, MDMA or MDE

Drug that can be produced from 1 kg or 1 LitreEach litre is sufficient to produce 400 grams of MDA,MDMA or MDE

HazardsCan cause severe irritation to eyes and skin

3,4-Methylenedioxyphenyl - 2-Propanone

Lysergic Acid


18

Physical appearanceWhite powder

Countries where producedGermany, India, United States of America

Licit / Illicit usesLicit- Used as appetite suppressant and nasal decongestant.Illicit- Used in manufacture of ATS

Drug that can be produced from 1 kg or 1 LitreEach kg is sufficient to produce 700 grams of ATS

HazardsHarmful if inhaled, ingested or absorbed through skin. Cancause irritation to eyes, skin and respiratory tracts

Physical appearanceColourless, yellowish moderately viscous liquid

Countries where producedIndia, France and United States of America

Licit / Illicit usesLicit- used in chemical and pharmaceutical industries. Illicit- Used in manufacture of ATS

Drug that can be produced from 1 kg or 1 LitreEach litre is sufficient to produce 500 grams of ATS

HazardsIs inflammable, can cause injuries. Irritates skin and eyes

1-Phenyl-2-Propanone

Norephedrine

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A N N E X U R E

Physical appearanceColourless, lustrous needle-shaped crystal with heliotrope odour

Countries where producedAustria, China, France, Taiwan and United States of America

Licit / Illicit usesLicit- In manufacture of perfumes. Flavouring agent in cherryand vanilla flavours. Manufacture of mosquito repellentIllicit- Used in manufacture of MDMA, MDA and MDE

Drug that can be produced from 1 kg or 1 LitreEach litre is sufficient to produce 200 grams of MDMA orMDA or MDE

HazardsSevere irritation to eyes and skin. If inhaled or ingested cancause headaches, dizziness and vomiting

Physical appearanceDark purple or bronze like crystal. It tastes sweet but has anastringent after taste

Countries where producedSpain, Japan, Germany, Taiwan Czech Republic, India andUnited States of America

Licit / Illicit usesLicit- Used as reagent in analytical laboratories. Disinfectantand in manufacture of anti-bacterial and anti-fungal agents,in water purification and bleaching agentsIllicit- Used in conversion of coca paste to cocaine base

Drug that can be produced from 1 kg or 1 LitreEach litre is sufficient to produce 4 kg of cocaine

HazardsMay cause explosion on contact with organic or otheroxidizable substances both in solution and in dry state

Piperonal

Potassium permanganate


20

Physical appearanceCrystalline White

Countries where producedGermany, India and United States of America

Licit / Illicit usesLicit- Used to manufacture bronchodilators and nasaldecongestants.Illicit- Used in manufacture of ATS

Drug that can be produced from 1 kg or 1 LitreEach kg is sufficient to produce 700 grams of ATS


Physical appearanceColourless or slightly yellow liquid or crystals with anodour much like that of sassafras tree

Countries where producedChina, Taiwan and United States of America

Licit / Illicit usesLicit- Used in manufacture of perfumes and piperonal. It isalso used as denaturing fats in soap production.Illicit- Used in manufacture of MDA or MDMA or MDE

Drug that can be produced from 1 kg or 1 LitreEach kg is sufficient to produce 100 grams of MDMA,MDA, MDE

HazardsModerately toxic when ingested. Known skin irritant.Experimental carcinogen and neoplastigen. Can turncombustible if exposed to heat or flame

Safrole

Pseudoephedrine

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A N N E X U R E

Physical appearanceColourless liquid with quickly evaporating sweetish odour

Countries where producedArgentina, Australia, Brazil, Ecuador, Finland, France, Germany,India, Italy, Japan, Korea, Mexico, Spain, Taiwan, Netherlands,Pakistan, United Kingdom, Venezuela and United States of America

Licit / Illicit usesLicit- Used as solvent and chemical intermediary in productionof plastics, paints, cosmetics, lubricants, pharmaceuticals,agricultural products and varnish etc.Illicit- Used in manufacture of heroine and cocaine

Drug that can be produced from 1 kg or 1 LitreEach litre is sufficient to produce 500 grams of cocaine orheroine HCl

HazardsHighly inflammable. Causes severs irritation to eyes and skin.Inhalation and ingestion may lead to headaches and dizzinessfollowed by nausea

Physical appearancePowder with a colour range from white to yellow. Sweet to taste

Countries where producedDenmark, Germany, India, Japan, and United States of America

Licit / Illicit usesLicit- Used to manufacture bird and insect repellents. Used aschemical intermediate in manufacture of dyes,pharmaceuticals and perfumes.Illicit- Used in manufacture of methaqualone

Drug that can be produced from 1 kg or 1 LitreEach kg is sufficient to produce equivalent quantity ofmethaqualone

HazardsHarmful if swallowed. Causes irritation to eyes andrespiratory tract

Anthranilic Acid

Acetone


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Physical appearanceColourless liquid with sweet pungent odour and burning taste

Countries where producedFrance, Germany, Japan, Norway, Spain, Taiwan and UnitedStates of America

Licit / Illicit usesLicit- Used as solvent in chemical laboratories. Also used inextraction of fats, oils, waxes and resins and also in munitions,perfumes and plastics.Illicit- Used in manufacture of various drugs like heroine,LSD, cocaine, mescaline, methadone amphetamines,methaqualone and DMT

Drug that can be produced from 1 kg or 1 LitreEach litre is sufficient to produce 500 grams of heroine orcocaine HCl

HazardsMildly toxic when inhaled or ingested. Can cause severeirritation to eyes and skin

Physical appearanceClear, colourless to light yellow fuming liquid with a pungent odour

Countries where producedAustralia, France, Germany, India, Norway, Spain and UnitedStates of America

Licit / Illicit usesLicit- Used to manufacture chlorides and hydrochlorides. Usedas neutralization of basic systems. Used as catalyst and solvent inorganic synthesis.Illicit- Used in manufacture of hydrochloric salt of narcoticdrugs. Conversion of any salt in its hydrochloric form renders itsoluble in water

Drug that can be produced from 1 kg or 1 LitreEach litre is sufficient to produce 3.3 kgs of either heroine orcocaine HCl

HazardsStrongly corrosive. Vapours can induce irritation intorespiratory tracts, mucous membranes and eyes

Hydrochloric Acid

Ethyl Ether

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A N N E X U R E

Physical appearanceColourless liquid with mint like moderately sharp odour

Countries where producedFrance, Germany, India, Japan, Netherlands, United Kingdomand United States of America

Licit / Illicit usesLicit- Used as common solvent. Also used to produce coatings,degreasing agents, lacquers and resins etcIllicit- Used to convert cocaine base to cocaine hydrochloride

Drug that can be produced from 1 kg or 1 LitreEach litre is sufficient to produce 50 grams of cocaine HCl

HazardsHighly inflammable. Causes severe irritation to eyes and skin.Inhalation and ingestion may lead to headaches and dizzinessand vomiting

Physical appearanceWhite powder with disagreeable, pungent odour

Countries where producedDenmark, France, Germany, India, Japan, Spain andUnited Kingdom

Licit / Illicit usesLicit- Used in the production of perfumes, phenyl acetic acidesters, herbicides ,penicillin and pharmaceutical productsIllicit- Used in manufacture of ATS

Drug that can be produced from 1 kg or 1 LitreEach kg is sufficient to produce 2.5 kgs of ATS

HazardsModerately toxic when ingested. Is an experimentalteratogen i.e can cause malformation of embryo or foetus

Phenylacetic Acid

Methyl Ethyl Ketone


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Physical appearanceColourless or yellowish-brown liquid with intensely unpleasant odour.

Countries where producedFrance, Germany, India, Japan, United Kingdom and UnitedStates of America

Licit / Illicit usesLicit- Used in manufacture of anaesthetics and analgesics. Usedin production of rubber products and plastics.Illicit- Used to produce phencyclidine or PCP andtenocyclidine or TCP.

Drug that can be produced from 1 kg or 1 LitreEach litre is sufficient to produce an equal amount ofphencyclidine or PCP

HazardsToxic if inhaled or on coming in contact with skin.

Physical appearanceOdourless, clear and colourless oily liquid. It is moreviscous than water.

Countries where producedCzech Republic, Germany, India, Japan, Spain, Taiwan andUnited States of America

Licit / Illicit usesLicit- Acidic oxidizer, dehydrating and purifying agent,catalyst in organic synthesis, anti-rust compound,component of drain and metal cleaners. Also used inmanufacture of fertilizers, explosives, dyestuffs, paper andglues, in automobile battery fluids, in the production ofsulphates and for neutralization of alkaline solutionsIllicit- Used to extract cocaine from coca leaves.

Drug that can be produced from 1 kg or 1 LitreEach litre is sufficient to produce 500 grams of cocaine HCL.

HazardsExtremely corrosive. Reacts with water or steam to produce heat.

Sulphuric Acid

Piperdine

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A N N E X U R E

Physical appearanceMobile, refractive, Colourless liquid with benzene like odour

Countries where producedGermany, India, Japan, Netherlands, Spain, Taiwan andUnited States of America

Licit / Illicit usesLicit- Used as industrial solvent. Also used in manufacture ofexplosives, dyes and coatingsIllicit- Used as a solvent in production of fentanyl, ATS, PCP,methaqualone, methadone, cocaine and psilocine

Drug that can be produced from 1 kg or 1 LitreEach litre is sufficient to produce 50 grams of cocaine

HazardsModerately toxic on inhalation or ingestion. Inhalation inhigher doses can result in headache, nausea and impairment of coordination and reaction time. Severe irritant to eyes andskin. Experimental teratogen

Toluene