What proceeds are recovered? the confiscation of criminal assets in Spain

Abstract

Spanish institutions have been developing new methods in order to be more efficient in terms of data management (see Section 8.6 and 10.8). The present chapter will focus on the analysis of data regarding different aspects of the confiscation of assets in Spain.
Criminal assets recovery and management is implemented by different governmental institutions. The Intelligence Centre against Organised Crime (CICO) (see Section 10.8) and the Special Anti-Drug Prosecution Office (Fiscalia Special Anti Drogas) have been designated as the Spanish contact points for asset recovery (Palomo et al., 2009). At present, Spain has not yet officially designated an asset recovery office. The Plan Nacional sobre Drogas (PNSD) was created to manage confiscated assets related to the illicit traffic of drugs and money laundering in relation to drug trafficking offenses, and it could be considered an Asset Management Office for assets of these types.

Full text

FROM ILLEGAL MARKETS
TO LEGITIMATE BUSINESSES:
THE PORTFOLIO OF ORGANISED
CRIME IN EUROPE
Final report of Project OCP
Organised Crime Portfolio
With the financial support of the Prevention of and Fight
against Crime Programme
European Commission – Directorate-General Home Affairs.
: The case of Spain
Suggested citation: Palomo, Marquez & Laguna (2015) What proceeds are
recovered? the confiscation of criminal assets in Spain. In From Illegal markets to
legitimate businesses: the portfolio of organised crime in Europe. Eds. E. Savona &
M. Riccardi. Trento: Transcrime - Università degli Studi di Trento.

With the nancial support of the Prevention of and Fight against Crime Programme
European Commission – Directorate-General Home Affairs.
Project OCP has been funded with support from the European Commission. This publication
reects the views only of the authors, and the European Commission cannot be held respon-
sible for any use which may be made of the information contained therein.

Suggested citation: Palomo, Marquez & Laguna (2015) What proceeds are
recovered? the confiscation of criminal assets in Spain. In From Illegal markets to
legitimate businesses: the portfolio of organised crime in Europe. Eds. E. Savona &
M. Riccardi. Trento: Transcrime - Università degli Studi di Trento.

277 | Part 3
12.7.1. Introduction
As seen in previous chapters, Spanish institutions have been
developing new methods in order to be more efficient in terms
ofdata management(see Section8.6and10.8).Thepresent
chapter will focus on the analysis of data regarding different
aspectsoftheconscationofassetsinSpain.
Criminal assets recovery and management is implemented
by different governmental institutions. The Intelligence Centre
against Organised Crime (CICO) (see Section 10.8) and the
Special Anti-Drug Prosecution Oce (Fiscalia Special Anti
Drogas) have been designated as the Spanish contact points
forassetrecovery(Palomoetal.,2009).Atpresent,Spainhas
not yet officially designated an asset recovery office. The Plan
Nacional sobre Drogas (PNSD)427 was created to manage
conscated assets related to the illicit trac of drugs and
money laundering in relation to drug trafficking offences, and
it could be considered an Asset Management Office for assets
of these types.
Methodological remarks
The PNSD publishes an annual report on its website with
updated data concerning dierent aspects of conscated
assets, such as estimated values or geographical location
(Ministeriodel Interior,2013).Accordingly,theannualreports
from 2001 to 2013 have been analysed from different
perspectives. The statistics in the PNSD reports are the
only available data on confiscated assets in Spain, and
they will constitute the only set for this analysis. Initially, this
mayberegardedalimitation sinceall theconscated assets
considered will derive from drug trafficking and money
laundering oences. However, because most conscation
orders regarding organised crime in Spain concern drug-
trackingandmoney-laundering oences(seeSection 5.6),
we do not expect biased results, and the analysis may be
takenasthecurrentgeneralviewofSpanishconscation.
12.7.2. Analysis
Types and trends428
The different types of assets managed by the PNSD are
classiedinto vecategories(boats,vehicles,objects,jewels
and real estate). However, according to the classication
adoptedbyProjectOCP(seetheMethodologicalAnnex),they
have been grouped into the four OCP categories.429
According to the latest data available, 49%oftheconscated
assets fall within the category of registered assets, including
watercrafts and vehicles;43%aremovableassets(objects
and jewels); and the rest (7%) are real estate properties,
including companies’ properties. As regards bank accounts
and cash, there are no available data on the number of cases
inwhichmoneyhasbeen conscated.However,conscated
cash amounts can be found in the annual reports of the PNSD.
427. Founded in 1985, its main goal is to address the complex phenomenon
of drug dependency with a holistic and multidisciplinary approach. Later, in
1995, the Spanish government decided to establish a fund of conscated
assets integrated in the PNSD. Among its duties, the PNSD is involved in the
management and disposal of conscated assets related to the illicit trac
of drugs and other crimes related to it. In addition, the PNSD promotes social
programmes regarding the prevention of drug use as well as special social
assistance rehabilitation programmes. It is regulated by Royal Decree No. 846,
of 6 June 1997, adopting the regulation of the fund originating from property
conscatedonaccount ofdrug trackingandother relatedoences (PNSD,
2014).
428. The information regarding conscated assets is provided by each
autonomous community. However, some important cases are handled by the
Spanish National High Court and the Spanish Supreme court located in Madrid.
Thiscausestheappearanceofconscatedassets(suchasboatsorvessels)in
Madridwhentheymayhavebeenoriginallyconscatedinanotherregion.
429. Cash and bank accounts: liquid money amounts and bank accounts;
OtherMovableAssets: e.g.objects (clothes,cellphones, furniture,electronics,
appliances,etc)andjewels(watches, goldand silverornaments andprecious
stones);RegisteredAssets:e.g.watercrafts(e.g.vesselsandboats)andvehicles
(cars,vans,motorcycles,trucks,etc);RealEstate;houses,apartments,ranches,
parkingspaces,businesspremises,etc.;Companies.Companypropertieshave
been included in the real estate category.
Figure 92 - Confiscated assets by type of assets in Spain
Figure 93 - Trend of confiscated assets in Spain (2000-2013)
Source: URJC elaboration on PNSD data
12.7. Spain
Jesús Palomo, Jerónimo Márquez and Pilar Laguna (Universidad Rey Juan Carlos, Spain)
Movable
assets
43.2%
Registered
assests
49.6%
Real estate
7.2%
N = 2,391
Source: URJC elaboration on PNSD data
1,174
1,599
1,908
1,643
1,807
1,991
2,162
1,000
1,200
1,400
1,600
1,800
2,000
2,200
2,400
2,600
Suggested citation: Palomo, Marquez & Laguna (2015) What proceeds are recovered? the confiscation of
criminal assets in Spain. In From Illegal markets to legitimate businesses: the portfolio of organised crime in
Europe. Eds. E. Savona & M. Riccardi. Trento: Transcrime - Università degli Studi di Trento.

278 | Part 3
The number of confiscated assets increased from 1,762
in 2007 to 2,391 in 2013. The total amount of conscated
assets managed by the PNSD between 2000 and 2013 rose
to 25,296.
AsFigure94shows,theconscationofrealestateproperties
has surged in recent years. Although movable assets
decreased between 2004 and 2006, in recent years it is
evident that they have constantly increased. Moreover,
registered assets seem to have increased the most since
2000(seeFigure95).
In terms of conscated companies, as mentioned earlier,
there is a signicant number of real estate agencies and
screen companies with little activity and mainly focused
on money laundering. After conscation, when the PNSD
starts the administration process, there is usually not much
to manage in these companies and, in most cases, the value
of the company equals the value of its assets(mainlyreal
estate properties). Occasionally, some company shares are
conscated and the court integrates the liquid amounts of
money attributable to these shares into the process. However,
insomecasesconscatedcompanies havea realeconomic
activity. In a particular case, there were 27 conscated
companies subject to management, and twelve of them
remained under judicial administration and had actual activity
intherealestatesector(PNSD,2014).
430.The SEPI(Sociedad Estatalde ParticipacionesIndustriales) isa Spanish
publicentitycreatedunderRoyalDecree5/1995withthemaingoalofmanaging
public business participations.
431. In both cases, the PNSD contacted a public auditing company to estimate
the economic situation of the business and its potential future protability
afterconscation.In theformercase,thevineyardwasjudiciallyadministrated
and managed by the PNSD for more than eight years until it was successfully
auctioned to the private sector with a remarkable social reuse programme
implemented. In the latter case, after the large taxes, debts and loans had
beenpaid, itwas decidedtoliquidatethe companysince protabilitywas not
guaranteedforafuturepublicauctionofthecompany(PNSD,2014).
Figure 94 – Trend of confiscated real estate properties in
Spain (2000-2013)
Movable assets include objects such as clothes, cell phones,
furniture, electronics, appliances, etc., while the jewellery
category comprises various items, including watches, gold,
silver ornaments and precious stones. During 2013, jewellery
represented only about 14% of total movable assets, while
objects reached 86%.
Figure 95 - Trend of confiscated movable and registered
assets in Spain (2000-2013)
Source: URJC elaboration on PNSD data
As mentioned, registered assets represent the majority
of conscated assets (49.6%). This percentage includes
watercrafts(boats,vessels, jetskis,sailboats,etc.)andmotor
vehicles (cars, vans, motorcycles and trucks) managed
and disposed by the PNSD. The number of vehicles has
increased noticeably since 2000, reaching the amount of
10,872 conscated vehicles and representing 87.4% of total
registered assets.
Figure 96 – Number of confiscated vehicles and boats in
Spain (2000-2013)
Source: URJC elaboration on PNSD data
There have been two cases (Pazo Bayón in Galicia and a
public parking lot “Parking el Molino” in Marbella, Málaga)
where the conviction included conscation of companies
that had real economic activity and actively working
employees. In these cases, management was undertaken by
thePNSD(AwardBoard)untilthenalsentence.Owingtothe
lack of sta with professional qualications to carry out the
management task, the PNSD has contracted COFIVACASA,
a state company belonging to the SEPI group,430 to assist the
CoordinatingBoard(PNSD,2013)inprotabilityanalysisofthe
companiesconscated.431
0
2,000
4,000
6,000
8,000
10,000
12,000
14,000
16,000
18,000
Source: URJC elaboration on PNSD data
0
50
100
150
200
250
Movable assets Registered ass ets
Vehicles
Watercrafts
0
200
400
600
800
1,000
1,200
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013

279 | Part 3
Geographical distribution
According to the data, conscated assets can be found in
all the autonomous communities in Spain. However, some
regionsrecordahighernumberthanothers(seeFigure97).
In 2013, within the southern region, the autonomous
community of Andalusia heads the list in terms of number
of conscated assets, with a total number of 751 (PNSD,
2014),morethan30%ofallthe assetsconscatedin2013in
Spain. The Mediterranean coast also records a large number
of assets. In this area, the region of Valencia together with
Catalonia concentrates most of the conscated assets.
Another important area is the autonomous community of
Madrid where 385 conscated assets (16%) were reported
alsoin2013.Thedistributionofconscatedassetsreectsthe
distributionofevidenceoncriminalinvestments(seeSection
8.6). Finally, Galicia, the Canary Islands and the autonomous
cityofCeutarecordedhighlevelsofconscationin2013.
On focusing on the geographical distribution of real estate
properties (Figure 98), it emerges that most conscated
properties are concentrated in Andalusia, with a total amount
of 42 conscations since 2000. Andalusia is followed by
Galicia(18)and Valencia(11).However,the available datado
notmakeitpossibletodeterminewhethertheseconscated
properties are related to organised crime. As mentioned
in Chapter 8.6, it seems that the location of the real estate
properties in Andalusia may have some relation to its higher
housepriceindex(seeSection8.6).
Both maps show that coastal areas, especially Andalusia,
presenthighlevelsofconscations.Itisalsoworthmentioning
that the results obtained from the DOCI investments database
presentsome similaritieswiththelevelofconscatedassets
(see Section 8.6). Even though gures cannot be directly
Box 45 – Pazo Bayón: confiscation and manage-
ment of a wine production company
During the investigation of the Pazo (Palace) Bayón
case, several real estate and movable assets were
seizedintheautonomous community of Galicia.One
of the main activities of the seized companies was a
vineyard producing a well-known high quality white
wine in Spain (Albariño). The trial began in 1994 and
lasted until 2006, becoming the biggest operation
against the Oubiña criminal family. The various
companies seized were temporarily managed by a
specialized private company (Freixenet) in order to
preserve their activities and employees’ employment
conditions.Afterthenalconscationorderin2006,a
public auction was announced in 2007 specifying not
only the economic aspects on the bids but also other
requirements such as: maintaining transparency in the
sale process, preventing future speculation with the
assets,obtainingprotsnotonly fortheSpanishstate
but also for the region of Galicia and its population. A
Galician company submitted the best offer and the
entire property was sold for 15,102,000 euro in July
2008.
Figure 97 – Number of confiscated assets per region in Spain
(NUTS 2, 2013)432
Figure 98 – Geographical distribution of confiscated real
estate in Spain (2000-2013)433
Source: URJC elaboration on PNSD data
Source: URJC elaboration on PNSD data
Legend
< 70
71 - 190
191 - 385
> 385
Legend
< 2
2 - 7
8 - 18
> 18
432.ClassesidentiedusingJenksnaturalbreaksoptimization.
433.ClassesidentiedusingJenksnaturalbreaksoptimization.
434.The informationonconscated assetsis providedto thePNSD byeach
autonomous community court. However, some important cases are handled
by the Spanish National High Court and the Spanish Supreme Court which are
locatedin Madrid.Consequently, someof theassets originallyconscated by
regionalcourtsmaybeincludedinthenumberofassetsconscatedinMadrid.
compared,434 it is apparent that regions with high levels
of investments also have high numbers of confiscated
assets. Following this tendency, regions with low levels
of organised crime investment also have a low number of
conscatedassets.
Value
Even though the classication of conscated assets can be
found in the data provided by the PNSD, there is no detailed
explanation for each specic asset. Nevertheless, the

280 | Part 3
Motor
vehicles
Watercrafts
Jewels
Objects
0
2,000
4,000
6,000
8,000
10,000
12,000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
available data allow calculation of the average sale value per
each category.435
According to the latest data, the current economic crisis has
hadanimpactontheconscatedassetvalueofsomeassets.
The average sale value of objects has decreased by almost
50% since 2012. As for watercrafts, there are no signicant
changes in their respective average sale values in recent years
(seeTable104).Thetotalvalueoftheassetsdisposedin2013
was 1,765,268 euro with an increase of 85% in the number of
disposed assets, mainly due to the lower value of the objects
andvehiclesbeingauctioned(PNSD,2014,p.16).
to the fact that a high number of real estate properties were
sold. In particular, over 60% of the real estate proprieties sold
during 2008 were owned by three companies.437 Moreover,
the estimated average value per sentence for the period 1999-
2013 was barely 1,300 euro.
The real estate sale value, including prices obtained from
public auctions and direct sales, may fluctuate due to a wide
variety of reasons, such as the current situation of the real
estate market, the location of the properties being sold, or
changes in the legislation regulating real estate valuation
(NavarroandPerez,2006).Owingtodatalimitations,nomajor
analysiscanbecarriedoutintermsofsaleprices;however,it
is worth mentioning that the real estate trend is similar to the
decrease in real estate prices due to the economic recession
(seeSection8.6).Nevertheless, it is alsonecessarytopoint
out that real estate conscations have increased in recent
years with a maximum and minimum sale value of 145,992 and
55,744eurorespectively(PNSD,2014).
As for the monetary values conscated in each Spanish
region, it seems that a substantial number of them range
between the medium and high levels. Madrid, Andalusia,
Valencia, Galicia and the Basque Country are the highest
in terms of monetary value in Spain. After these regions,
435. The average selling value has been calculated on the basis of data on public
auctions and direct divestitures managed by the PNSD. Data from selling values
in different years has been collected in other to produce a diverse number of
times series for each type of asset.
436.Notethata courtsentencecanordertheconscationofdiversegoods of
different natures, as well as in terms of number of assets.
437. A total number of 16 real estate properties were sold. Stocks and shares are
also included in the value shown for real estate properties.
438. The map shows contribution by each autonomy community based on the
valueof theassets conscated.Thetypesofassets usedfor themapinclude
registeredassets,movableassets,realestateandcash.Classicationbasedon
Jenksnaturalbreaksoptimization.
Type of assets 2012 2013
Real estate 63,871.88 55,774.20
Motor vehicles 2,717.65 1,704.15
Watercrafts 10,076.87 10,562.60
Jewels 3,854.17 900
Objects 864.15 51.57
Table 104 – Average sale value of assets 2012-2013
Source: URJC based on data from the PNSD 2014
Figure 99 – Asset average selling value 2001-2013 excluding
real estate in Spain (euro)
On the other hand, time series for the average sale value
of conscated assets show a growing trend over the years.
Watercrafts seem to have the highest sale value over the
years, with a moderate tendency to grow.
As for the average value per sentence,436thegurebelowshows
its tendency over the available years. In general, it seems that
the trend of the average value per sentence has undergone
moderate growth. In 2008 a notable change is apparent, due
Figure 100 – Value of confiscated assets (mn euro) by
autonomous community in Spain438
Source: URJC elaboration on PNSD data
Legend
< 0.86
0.87 - 2.12
2.13 - 5.68
> 5.68
Castilla León, Castilla La Mancha, and Catalonia form
anotherimportantgroup forthevalue ofconscatedassets.
As shown in Section 8.6, Andalusia and coastal areas seem
again to record levels higher than those of other regions, which
suggests that the large number of conscated assets and
investments in these regions is related to organised crime.
Althoughthemainpurposeofconscatedassetsistheirnal
disposal, processing time plays a key role in terms of asset
depreciation. According to data, between 1996 and 2013, a
totalof27,523conscatedassetswerecompletelyprocessed
by the PNSD, which represents about 92% of the total
amount of assets managed by this institution (PNSD, 2014).
Source: URJC elaboration on PNSD data

281 | Part 3
The latest data show a clear tendency towards a reduction
in the processing time of the assets being managed.
Noticeable in Figure 101 is the increasing number of assets
beingcompletelyprocessed(60%)withinthesameyearthat
they enter the PNSD. Nevertheless, the data cannot be used
to perform a yearly depreciation value analysis for each type
of asset.
12.7.3. Concluding remarks
Because data on conscated assets are limited, deeper
analysis has not been possible. However, despite this difficulty,
some general conclusions can be drawn. First, it seems that
the number of assets conscated in the period analysed
increased over the years. In terms of assets allocation, the
autonomous community of Andalusia headed the list of the
numberofconscatedassets,as wellasshowinghighlevels
of investment evidence. Moreover, together with Andalusia,
coastal areas like Catalonia, Valencia and Madrid also exhibit
thesametrendintermsofconscatedassets.
As regards the most common types of conscated assets,
registered and movable assets represent the majority of
confiscated goods. Motor vehicles appear very often in the
data provided by the PNSD, as well as in those of the DOCI.
Regarding conscated real estate properties, low levels of
conscationhavebeenfoundtodate.Hence,examinationof
439. Figure 101 shows the evolution and tendency of asset-processing time
overtheyears.ThemaingoalofPNSDistoprotectthevalueoftheconscated
assets by increasing the number of assets processed within the same year as
their entry.
thevalueofconscatedgoods,andtimeseriesfortheaverage
sale value of conscated assets, showed a rising tendency
overtheyears.WhenndingsinChapter8.6werecomparedto
the data obtained from the PNSD, a wide gap was apparent
between the high level of investments made by OCG in
businesses and the low confiscation numbers in terms of
companies related to drug trafficking.
The geographical location of assets seems to be aligned with
the level of investments found in the southern region of the
country and in the coastal areas. Moreover, the processing time
of assets managed by the PNSD shows a decreasing tendency
towards more efficient managing protocols. Nevertheless,
the impossibility of accessing disaggregated data (on a
case-by-casebasis)on conscatedassetshasrestrictedthe
possibility to perform an analysis richer in terms of statistical
results.
Figure 101 – Asset processing time in relation to its entry (Spain, 1996-2013)439
Source: URJC elaboration on PNSD data
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
Entry year 1 year after entry 2 year after entry 3 year after entry Pending

291 | References
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