This new text revises and updates the previous strategy, whose validity framework extended from 2011 to 2014, and adapts to changes in certain criminal, technological, social and international aspects from an integral perspective. The new text will be the frame of reference for the State Security Forces and other public bodies to prevent and fight against the criminal phenomena that cause serious damage to society.

1. Deputy Directorate for Operations – Operations Command
Criminal Investigation Division – Criminal Intelligence Unit
National Strategy against Organized
and Serious Crime 2019-2023

2. INDEX OF CONTENTS
Introduction
Framework of reference. Characterization of organised and
serious crime
Dimension of the threat of organised and serious crime in Spain
International overview of organized and serious crime
Principles, objectives and strategic lines
Period of validity, evaluation and updating

3. Introduction

4. NATIONAL SECURITY STRATEGIES
STRATEGIC THINKING
STRATEGIES IN SPAIN
Spanish SECURITY Strategy
2011
24th June 2011
NATIONAL SECURITY Strategy
2013
31st March 2013
NATIONAL SECURITY Strategy
2017
1st December 2017

5. THREATS AND CHALLENGES

6. FIELDS OF INTEREST

7. Framework of reference . Characterisation
of organised and serious crime

8. ORGANIZED CRIME CONCEPT
Essentially economic
purpose
Involvement in illegal
activities complemented
by legal activities
Association of a plurality
of people
Continuity in time Use of security measures Adaptability
Transnationality
Undesirable effects on
citizens, society and
States with significant
destabilising potential
Use of influence or
corruption

9. Dimension of the threat of organised and
serious crime in Spain

10. New
emerging
criminal
landscape
Flexible groups and
criminals
Multiple criminal
sectors
Illicit use of new
technologies
Individual crime
entrepreneurs
“Crime as a service”
business models
Internationalization
as a reflection of a
globalized world
GENERAL THREAT ANALYSIS

11. MAIN CRIMINAL ACTIVITIES
Drug trafficking
• Spain as a retaining wall for the entry of cocaine and hashish into the EU
• Strait of Gibraltar as a strategic area at the entrance of most of the hashish
• Exponential and alarming increase of cultivation and traffic of marijuana, more and
more active principle
• Possible future evolution of New Psychoactive Substances (NPS)
Illegal arms market
• Individual criminals operating by reconstructing and placing firearms on the illicit
market
Documentary forgeries
• Activities related or linked to organized crime and serious crime that perfect it
Criminality associated with new technologies and cybercrime
• Generalised rise worldwide, with a tendency to continue increasing
Trafficking in human beings, in its various forms
• Spain as a destination country for victims, taking advantage of the vulnerability of
migrants

12. WEALTH-RELATED CRIMINAL MARKETS
Robberies with force Illicit traffic of vehicles
Crimes against
intellectual and industrial
property
Smuggling Scams and other frauds
Public and private
corruption (e.g. sports)

13. CRIMINES THAT PRODUCE SOCIAL UNREST
Serious serial crimes (sexual
assault, homicide, grievous bodily
harm)
Institutional corruption
Cybercrime (child pornography or
online scams)
Environmental crime Food, drug, and other frauds

14. OTHER FACTORS
Violence used by
criminal
organizations,
between groups or
against security
forces or citizens
New criminal
activities (online
gambling fraud)
New forms of
money laundering
(use of crypto
currencies)
New criminal
markets managed
over the internet
(deep network)
Direct and indirect
economic cost of
organized crime

15. International overview of organized and
serious crime

16. NEW LANDSCAPE OF ORGANIZED CRIME
Diversification of structures and methods
Proliferation of itinerant groups
Unstoppable use of new technologies
Links between organized crime and terrorism
New criminal business models
Hybrid threats
Demographic changes
International economic, political and social imbalances that provoke
irregular migratory flows, armed conflicts, poverty, etc.
More
international
cooperation
Latin
America
Africa
Asia

17. Principles, objectives and strategic lines

18. INSPIRING PRINCIPLES
Analysis, risk
assessment and
generation of
appropriate responses
Publicity of
state-of-play
and results
Collaboration of involved
operators, national
and international,
public and
private
Addressing criminal
variants and
relationship to
other Illicit
activities Comprehensive
view of
organized and
serious
criminality
Multidisciplinary
action
Permanent
adaptation
Transparency

19. OBJECTIVES
To reduce the level of threat and uncertainty associated with
organized and serious crime that affects the peaceful coexistence of
people, their interests and those of Spain
Dismantle existing
criminal structures
Reduce impact of crime
on society
Reduce criminal acts
Counter growing link
between terrorism and
organized crime
Prevent and hinder
establishment of new
criminal groups
Reduce interaction
between organized
crime and armed
conflict, espionage and
proliferation of weapons
of mass destruction

20. STRATEGIC LINES
Main lines
• Line 1. Intelligence as prevention and anticipation of threats
• Line 2. Neutralizing economy of organized crime and criminals
• Line 3. Combating criminal markets and serious forms of crime
• Line 4. Link between organized crime and terrorism
• Line 5. International cooperation and coordination
• Line 6. Safety. Common commitment
• Line 7. Legislative development and adaptation
Transversal lines
• Line 8. Education and training
• Line 9. New technologies against crime in the 21st century
• Line 10. Prevention of organized and serious crime

21. LINE 1: INTELLIGENCE AS PREVENTION AND ANTICIPATION
OF THREATS
Improve intelligence
capabilities, update
existing tools or create
new ones that allow better
and greater generation of
strategic and operational
intelligence, as a
mechanism of anticipation
Performance of intelligence
units, developing specific
organic structures
Elaboration of intelligence
and coordination through
CITCO
Collaboration between
administrations with
competence in National
Security
Integration of databases of
public security operators
Regulatory adequacy to
make information from
private repositories
accessible to public security
operators

22. LINE 2: NEUTRALIZE ECONOMY OF ORGANIZED CRIME AND
CRIMINALS
Continue promoting and developing more active policies to seize proceeds
from organized crime and criminal activity
European anti-money
laundering legislation
Asset Recovery Office
(ARO) of the Ministry of
the Interior, attached to
CITCO, and Office of Asset
Recovery and
Management (ORGA) of
the Ministry of Justice
International joint
operations, forming Joint
Investigation Teams with
direct involvement of
OLAF, Eurojust and Europol
Acting of supervisory
bodies of regulated
entities in the field of
prevention of money
laundering
Effective implementation
of legal provisions on
criminal liability of legal
persons
Regulatory response and
international
commitments on
monitoring and
investigation of new
threats of economic
nature

23. LINE 3: COMBATING CRIMINAL MARKETS AND SERIOUS
FORMS OF CRIME
Drugs trafficking Crimes related to
corruption
Money laundering Cybercrime
Trafficking in human
beings
Smuggling of
migrants
Crimes against
intellectual and
industrial property
Fraud to public
treasury interests
Crimes against
property
Illicit arms trafficking Serious offences
against environment

24. LINE 4: LINK BETWEEN ORGANIZED CRIME AND TERRORISM
Improve levels of coordination and action in the face of
growing link between organized crime and terrorism
Action of CITCO
Passenger Name Records
(PNR)
Joint work of units
dedicated to organized
crime and terrorism
Investigation of payments
outside financial system
(hawala, virtual currencies)
International exchange of
information with countries
of strategic interest
(Maghreb, Sahel)
Training programmes,
renewing research
methodologies
Databases
Prison control mechanisms
through Special Follow-Up
Interns File (FIES)
Precursors control and
monitoring mechanisms to
manufacture Improvised
Explosive Devices (IEDs)

25. LINE 5: INTERNATIONAL COOPERATION AND COORDINATIONEnhancecollaboration,coordination
andinternationalcooperation
EU instruments (EMPACT), with clear operational orientation
Performance of police representatives abroad
EU bilateral and judicial police cooperation tools
(ECI, EAC, OEDE, OEI)
Agreements and conventions with countries of strategic interest, to exchange
information and intelligence, joint research, training and technical assistance
Cooperation in Latin America and the Caribbean,
especially in drugs and human trafficking
Bilateral police coordination with countries of major strategic and operational
interest (EU, Americas, Mediterranean, Maghreb and Sub-Saharan Africa)
Action by joint international police coordination bodies
(MAOC-N, JIATF, OCTRIS-Martinica and CECLAD-M)

26. Increasing citizen and private sector
participation in security matters
Collaboration between police forces and companies and private
security departments in training and information exchange
Collaboration between public security operators and industrial,
tourism and financial sectors
Community information and awareness-raising campaigns
Public Administrations promotion of channels of collaboration and
citizen participation
LINE 6: SAFETY. JOINT COMMITMENT

27. Regulations on
protection of
witnesses and
experts
Legislation
regulating
undercover agents
(physical and IT)
and controlled
deliveries
Legal regulation of
usual collaborator
Review and timely
adaptation of
legislation and
other general
administrative
provisions
LINE 7: LEGISLATIVE DRAFTING AND ADAPTATION

28. LINE 8: EDUCATION AND TRAINING
Updating
training
Operational
aspects (groups,
international
activity, trends,
modus operandi,
routes, etc.)
Technical aspects
(specific
regulations,
international
collaboration,
material
resources, etc.)
Specialization
and continuous
training in
specific subjects
Trafficking in
human beings
Smuggling of
migrants
Economic crime
Fraud
Knowledge and
investigation
procedures
Information and
communication
technologies
Cybercrime (deep
web, malware,
crypto-assets,
etc.)
Culture of
strength in
public security
operators
Joint training and
specialisation
processes
Exchange of
knowledge and
experiences

29. LINE 9: NEW TECHNOLOGIES AGAINST 21ST CENTURY CRIME
Use of new technologies in
prevention and research
Training of public security
operators in new applied
technologies
Exchange of information on
new tools at national and
international level

30. LINE 10: PREVENTION OF ORGANIZED AND SERIOUS CRIME
Operational use of
intelligence to improve
design of preventive
deployments, anticipation
and reaction
Prevention through
collaboration between
uniformed and
investigation units
Investigation by acquiring
information by uniformed
units, and subsequent
processing and analysis by
intelligence units
Collaboration between
police forces and prisons to
promote exchanges of
information and experience

31. STRATEGIC LINES
Main lines
• Line 1. Intelligence as prevention and anticipation of threats
• Line 2. Neutralizing economy of organized crime and criminals
• Line 3. Combating criminal markets and serious forms of crime
 ACTION LINES
• Line 4. Link between organized crime and terrorism
• Line 5. International cooperation and coordination
• Line 6. Safety. Common commitment
• Line 7. Legislative development and adaptation
Transversal lines
• Line 8. Education and training
• Line 9. New technologies against crime in the 21st century
• Line 10. Prevention of organized and serious crime

32. DRUG TRAFFICKING
Medium term: cocaine and hashish
Long term: synthetic drugs and New Psychoactive Substances (NPS)
Route control
(Latin America,
Caribbean, North
Africa and
Mediterranean)
Intelligence and
risk analysis to
detect suspicious
shipments and
transports,
especially
containers
Joint investigation
teams in the EU
Control measures
at points of entry
into Spain based
on exchange of
information and
intelligence with
cocaine- and
hashish-producing
countries
Collaboration
between judicial,
police, customs,
(air)port, private
security,
pharmaceutical
industry, ISP and
transport and
courier companies
Specific action
plans in especially
prone areas (Strait
of Gibraltar)
Laboratories for
illegal production
of synthetic drugs
and control of
trade in chemical
precursors
Illicit trade of New
Psychoactive
Substances (NPS)
and synthetic
derivatives
Sale of drugs on
line, deep web,
undercover
computer agent in
the network
Prevention
campaigns on
effects of drugs,
including cannabis
derivatives
(especially
marijuana)

33. CORRUPTION-RELATED OFFENCES
Regulation of financial databases access
Material resources, especially technical ones, of research units
Assets investigations of natural and legal persons, promoting collaboration
with assets identification and recovery offices
Effective control of risk sectors, including sport
International collaboration and coordination
Implementation of Criminal Law Convention on Corruption
Codes of conduct

34. MONEY LAUNDERING
Elaboration and
exploitation of economic-
financial intelligence
More and better
technical tools to
monitor and control
emerging and traditional
laundering typologies
Strategic plan against
illicit enrichment of
criminal organizations
and criminals
Simultaneous
investigation "organized
crime/money laundering"
Exchange of national and
international information
with public and private
institutions to combat tax
havens
Knowledge of
laundering, recovery
and management of
crypto coins
Intelligence on financial
level of criminal
organizations and their
economic impact on
society

35. CYBERCRIME
Cooperation and
collaboration
• Between
administrations and
national institutions, in
case of mass
commission of
cybercrime
• Between public and
private sectors,
including private support
for police units
• With digital service
providers, e-commerce
and technology
companies
• International, bilateral
and multilateral, to avoid
cyber paradises
Performance of
specialized units
• Investigation, prioritizing
cybercrimes that
generate more damage
• Actions against
"individual crime
entrepreneurs" that
generate ongoing
cyberthreats
• Investigation of crimes
committed on network
against sensitive victims
and their identification
• Prevention and citizen
participation
• Forensic analysis of
storage devices
• Territorial police units
against less complex
forms of cybercrime
Other action lines
• Control of crypto-assets
as means of payment in
cybercrime activities
• Adequacy of legal
instruments and
adaptation of
investigation
procedures
• Security of commerce in
the net in case of
commission of serial
cybercrimes
• Culture and awareness
of cybersecurity,
especially in educational
and social centres and
critical system operators

36. TRAFFICKING IN HUMAN BEINGS
International cooperation with countries of origin of victims (technical, judicial and police
assistance, exchange of information and experience, training, etc.)
Action by specific units to prevent and combat trafficking in human beings and assist victims
Collaboration and multidisciplinary coordination of national actors, public and private, in
prevention and fight
Intelligence on new trends and economic flows, to update and improve methodology and
develop specific complementary actions
Operational coordination, sharing of useful intelligence and joint operations and investigations
between national police units and units from countries of origin or transit of victims
Preventive mechanisms for detection, identification, protection and assistance of victims,
updating and renewal of existing instruments and development of complementary ones,
especially on minors
Specific national strategic plan, coordinated by Secretary of State for Security and with the
participation of all actors involved

37. SMUGGLING OF MIGRANTS
Bilateral cooperation with countries of origin and transit of irregular migratory
flows
National and international exchange of strategic information to improve
intelligence at national, EU and international level
International operational collaboration, through joint investigation teams with
countries of origin and transit
New technologies to identify persons at external borders to improve control of
irregular migratory flows
Treatment and follow-up of unaccompanied foreign minors, collaborating more
with countries of origin
Collaboration and coordination between Public Administrations to favour joint,
solidary and responsible action in prevention, intervention and assistance to
victims

38. CRIMES AGAINST INTELLECTUAL AND INDUSTRIAL PROPERTY
Sectorial strategies, implementing operational and collaborative measures with agencies
involved
Generation of intelligence, especially on illicit traffic to Spain in containers and illicit
market through Internet (fake and anabolic medicines)
Prevention, in collaboration with public and private organizations, promoting citizen
awareness to eradicate social permissiveness
Cooperation and coordination with countries producing counterfeit goods, acting at
source and minimizing impact of illicit production and distribution channels
Prevention and control at points of distribution and sale, investigating possible links with
labour exploitation and other forms of organized crime
Regulatory update to act more effectively against counterfeits of products that affect
public health (food and pharmaceuticals)

39. FRAUD AGAINST INTERESTS OF PUBLIC TREASURY
Operational action capabilities of national actors, through effective exchange of data and
requests to EU agencies or states
Constant flow of proactive strategic, operational and financial intelligence between
agencies involved to improve knowledge of complex modus operandi and their associated
laundering mechanisms
Investigations of emerging trends in fraud schemes (computer components, mobile
telephony and luxury cars)
International cooperation within the EU (Europol, Eurojust and OLAF), through rapid
exchange of information, coordinated action and joint investigation teams, notably on intra-
Community VAT fraud, and also with other key countries
Common European legislation to improve prevention and investigation of tax fraud,
especially VAT "carousels"
Use of information of intra-Community commercial operators register by security
agencies, with selective and audited accesses
Active communication strategies and public awareness to improve social rejection

40. CRIMES AGAINST PROPERTY
Central and territorial coordination of operational
units, strengthening joint investigation teams
Database feed to improve information and
intelligence exchange between units
Fluid and constant relationships with high-risk
business groups
Prevention campaigns aimed at most vulnerable
people and groups
Financial and assets investigations to minimize
proceeds of crime

41. ILLICIT ARMS TRAFFICKING
Elaboration of intelligence to assess threat and its links with
• Other criminal areas
• Terrorism
• Proliferation of NRBC Weapons of Mass Destruction
• Legal trade diversion
Illicit arms trafficking investigations and their use by criminals
• Illegal conversion of unused, acoustic, expansive or detonating weapons
• Illegal diversion of imports, exports or transfers
• Internet traffic
• Illicit trade using parcel services
• Introduction into Spain of illegal weapons from conflict zones
Performance of specialized units, both of administrative control and investigation
Coordination at national level of public and private actors involved in prevention and control
International collaboration and coordination
Early warning system to exchange information and intelligence at European level in the event
of weapons being stolen or lost

42. SERIOUS ENVIRONMENTAL CRIME
Actions of prevention, control and investigation, especially in
• Trafficking in protected species of flora and fauna (wood and endangered species)
• Traffic, management and dumping of waste (urban waste)
• Emissions trading and environmental pollution (gases that increase global warming and destroy ozone
layer)
• Intentional fires in waste treatment plants and forests
• Illegal fishing (by Spanish vessels in international waters or marketed in Spain from other countries)
• Plant and animal health (illegal fattening of livestock and their illegal pharmacological treatment)
• Animal abuse
Performance of specialized units in prevention, administrative control, intelligence, forensic
analysis and investigation, including update training
Exchange of information and intelligence between Spain, EU and other countries (especially
through Europol and Interpol) and conduct of joint international investigations
Economic approach to investigations, seizing proceeds to meet criminal or civil liabilities
Active policies to raise public awareness on fragility of natural space, vulnerability of certain
species and prevention of collaboration with agents of illegal recycling of waste

43. Period of validity, evaluation and updating

44. Validity of the Strategy 5 years
Superior management, promotion and
monitoring of measures, plans and actions
envisaged in the Strategy
Ministry of Interior, through
Secretary of State for Security
Monitoring, situation analysis and outcome
of the response
CITCO, at the request of
Secretary of State for Security
Annual report on organized and serious
crime
Ministry of Interior
Operational Action Plans, with actions,
timeframe and indicators for monitoring and
evaluation
General Directorates of Police
and Guardia Civil

45. Thank you
very much
Centre for Sociological Research (CIS):
"Guardia Civil is the institution most trusted by Spaniards"
(Study No. 3080, April 2015 Barometer)