THE PRESIDENT'S 1984 NATIONAL STRATEGY FOR PREVENTION OF DRUG ABUSE AND DRUG TRAFFICKING

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP86M00886R000700210002-3
• Release Decision: RIPPUB
• Original Classification: K
• Document Page Count: 115
• Document Creation Date: December 21, 2016
• Document Release Date: November 18, 2008
• Sequence Number: 2
• Publication Date: September 27, 1984
• Content Type: MEMO

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1984
NATIONAL
STRATEGY
FOR
PREVENTION OF
DRUG ABUSE
AND
DRUG
TRAFFICKING
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September 10, 1984
In the past three years, we have made progress in
the fight against drug abuse. Permissive attitudes are
giving way to a sense of responsibility to ourselves,
to our families and to our country. Hopelessness and
helplessness have been replaced with optimism and a
willingness to work toward a better future. People all
across our nation have joined in the fight.
We have halted the growth of drug abuse which
occurred during the 1970s, but our battle is far from
over. Millions of Americans, including one-fourth of
our nation's young people, continue to abuse drugs
or alcohol. The costs are measured in lost lives,
troubled families and forsaken dreams.
Our strategy to fight drug abuse replaces debate with
action. Our goal is clear. We intend to conquer drug
abuse and ensure a safe and productive future for our
children and our nation. The Federal government is
committed to doing all in its power to stop drug abuse
and drug trafficking, but ultimate victory will be deter-
mined by individual Americans working within their
home, workplace and community.
Together, we are proving that the moral strength of
the American people can overcome one of our most
challenging national and international problems.
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1984
National Strategy
For Prevention-of
Drug Abuse and Drug
Trafficking
Prepared Pursuant To
The Drug Abuse Office and Treatment Act of 1972
Participating Departments
Department of Agriculture
Department of Commerce
Department of Defense
Department of Education
Department of Health
and Human Services
Department of the Interior
Department of Justice
Department of Labor
Department of State
Department of Transportation
Department of the Treasury
Drug Abuse Policy Office
Office of Policy Development
The White House
For sale by the Superintendent of Documents. U.S. Government Printing Office
VCashington, D.C. 20402
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1984 National Strategy
For Prevention of Drug Abuse
and Drug Trafficking
Table of Contents
PAGE
OVERVIEW ............................................ 1
Introduction .......................................... 3
Drug Abuse in the United States .......... . . . . . . . . . . . . . .. 3
Executive Direction ...................................... 4
The Federal Strategy for Prevention
of Drug Abuse ......................................... 5
Priorities ......................................... 5
Private Sector Participation . . . . ......... . . .............. 6
Major Elements and Roles . ..... . . . . . . . . ... 6
Drug Abuse Prevention ........................... 7
Drug Law Enforcement ........................... 8
International Cooperation . . . . . . . . . . . .... . . ....... 10
Medical Detoxification and Treatment . . . . . . . . . . . . . 11
Research ........................................ 13
Drug and Alcohol Abuse in the Armed Forces . . . . . .. 14
Summary ............................................. 14
H. DRUG ABUSE IN THE UNITED STATES . . . . .............. . . . 15
Introduction ........................................... 17
Drugs of Abuse ........................................ 19
Cannabis/Marijuana ..... . . . . . . . . .............. . .. 19
Cocaine ......................................... 22
Heroin .......................................... 24
Other Drugs ..................................... 24
Depressants ..................................... 25
Stimulants ...................................... 26
Hallucinogens ................................... 26
Inhalants ........................................ 27
Alcohol ......................................... 27
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III. DRUG ABUSE PREVENTION .. - --------------- 29
Introduction 31
National Drug Abuse Prevention .. _ . 32
Drug Abuse Awalreness and Education . .. . .. . . . . . . ...... 32
The National Reponse ..... .......................... 33
Truth and Credibility ............................... 35
Why Alcohol in a Drug Abuse Prevention Strategy? _ .. _ _ . _ . 35
IV. DRUG LAWENF7RCEMENT ........................... 43
Introduction ........ 45
Objectives .... 46
Leadership and coordination ............................ 47
The Threat and t
Principal Federal
Financial Investigations and Asset Forfeiture . ... . .... . .... 51
Drug Interdiction and Border Control . . . ... . . ...... . . . ... 52
Military Support of Drug Law Enforcement .. . . . . .... . .... 53
Areas for Special Attention 54
National Training Center 54
United States Attorneys .. . . . . ... . . . . .. . . ............... 55
Domestic Canna is Eradication .. . . . . . . . ....... . .... . ... 55
Diversion Control ................................... 57
Clandestine Labgratories 59
Drug Intelligence ...................................... 60
Criminal Justice ........................................ 61
CommunityActill n .. _ 62
Our Most Powerful Weapon 63
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V. INTERNATIONAL COOPERATION ..... . . ... . . . . . . ......... 65
Introduction .......................................... 67
Definitions and Basic Principles .............. . ... . ....... 68
Objectives ............................................ 69
Diplomatic Initiatives .................................. 70
Roles and Functions .................................... 71
Crop Control .......................................... 74
Development Assistance ................................ 75
Enforcement Assistance ................................. 76
Reducing the Demand for Drugs ......................... 76
Regional Objectives .................................... 77
Latin America and Caribbean Regional Strategy ..... 77
Southeast Asia Regional Strategy .................. 78
Southwest Asia Regional Strategy .................. 79
International Organizations ............................. 79
Other U.S.Efforts ...................................... 80
An International Commitment .......................... 81
VI. MEDICAL DETOXIFICATION AND TREATMENT ............. 83
Introduction ........................................... 85
The Federal Role ....................................... 86
Principal Federal Agencies .............. . . .... . . . ....... 87
Financing ............................................. 87
Treatment Approaches ................................. 88
General Health Care .................................... 89
Drugs in the Workplace ................................. 90
Private Sector Support ................................... 91
Special Considerations .................................. 92
Treatment for Youthful Abusers ......................... 93
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VII. RESEARCH .. 95
Introduction ... ....................................... 97
Data Collection and Analysis . . . . . ....... . ............ . .. 99
Potency Monitoring .................................... 100
Basic and Applie Research .............................. 101
Agonists and An agonists . . . .................. . ...... . . . 102
Identification and Assessment ........................... 103
Recent Developments .................................. 103
The Pathway to rogress ................................ 105
VIII. DRUG AND ALC ~ HOL ABUSE IN THE ARMED FORCES . - - - - - 107
Introduction ..
........................................ 109
Department of D
efense .................................
109
APPENDICES
A
FEDERAL DEPAR
DRUG ABUSE R
TMENTS AND AGENCIES WITH
ESPONSIBILITIES .. . ... . . ......... . . ... . ..
113
B FEDERAL DRUG
ABUSE BUDGET ........................
119
B-1
Overall Pro
gram Summary . . .......................
121
B-2
Drug Law E
nforcement ............................
122
B-3
Health-Rel
ated Drug Abuse Programs .. . .. . . . . ... . ..
123
B-4
Index of Ab
breviations .............................
124
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1. Overview
Introduction
Over the past two decades, the use of illegal drugs in the United
States spread at an unprecedented rate and reached into every
segment of our society. The drug-oriented youth culture was foreign
to most of our adult population. There was a feeling of inevitability
regarding widespread drug use and concern over what was the right
thing to do. Ending a long period of discouragement and lack of
decisiveness, the early 1980s have brought a dramatic change: a less
defeatist attitude, a belief that destruction of young minds and bodies
through deliberate ingestion of drugs for non-medical reasons is
dangerous and wrong. Most importantly, people are beginning to
accept that drug use is not inevitable; that by learning and working
together, and setting standards and expectations regarding behavior,
we can make a real difference ....we can make a better future for
America. This is what the 1984 Strategy for Prevention of Drug Abuse
and Drug Trafficking is about.
Drug Abuse in the United States
President Reagan has repeatedly emphasized the importance of
the fight against drug abuse. On March 6, 1981, he called drug abuse
one of the gravest problems facing us," warning that if we fail to act,
we are "running the risk of losing a great part of a whole generation."
There is reason for concern. More than 20 million Americans use
marijuana at least once a month. One out of 18 high school seniors use
marijuana daily. Over four million people, half of whom are between
the ages of 18 and 25, are current users of cocaine. Approximately
one-half million Americans are heroin addicts. Countless others are
affected by the significant abuse problems which involve medical
drugs manufactured in illicit laboratories or diverted from legal
pharmaceutical sources. Alcohol is a major problem as well; there are
an estimated 10 million adult problem drinkers and an additional
three million between the ages of 14 and 17.
The millions of Americans who use illicit drugs are suffering more
severe consequences because of higher potency in most types of
drugs, more dangerous methods of drug use, and choosing to use
more than one drug simultaneously. It is not unexpected that more
dangerous drug-taking habits result in dramatic increases in medical
emergencies and deaths.
However, these bleak statistics do not indicate a hopeless
situation. In the 1980s, there has been a leveling off in the use of
drugs, and youthful drug involvement has begun to decline, largely as
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a result of individual and community decisions to take a firm stand
against drug abuse. This leveling clearly does not signal victory over
drug abuse; we have a long way to go before our drug problem is
solved.
The Administration has embarked on an aggressive campaign to
attack drug abuse on every front -- international and domestic;
foreign assistance, border control, law enforcement, health care and
prevention. The programs encompass all efforts to help those
currently exposed to or involved in drug abuse. The campaign includes
priority attention on reaching our young children before they become
involved in drugs, including alcohol. In short, we are teaching them
how to say "no" to drugs.
Executive Direction
A major element of the Federal effort is the personal leadership
of the President, Vice President, and Cabinet officers in supporting the
drug abuse reduction effort. The President has assigned a high priority
to the drug abuse program and charged two Cabinet Councils with
program responsibilities:
? The Cabinet Council on Legal Policy, aided by a Working
Group on Drug Supply Reduction, focuses on the
development and implementation of international and
domestic efforts to reduce the supply of illicit drugs; and
? The Cabinet Council on Human Resources, with a
Working Group on Drug Abuse Health Issues, is
responsible for developing recommendations and
overseeing the implementation of the health-related
aspects of the Strategy.
The President has, by Executive Order 12368, formally designated
the Director of the Drug Abuse Policy Office in the White House Office
of Policy Development as his adviser on drug abuse policy matters.
The Executive Order assigns responsibility to the drug abuse policy
adviser for coordinating and overseeing both international and
domestic drug abuse functions by all executive branch agencies.
The system established by the President for White House
oversight and coordination has been effective in implementing the
Federal Strategy. Eleven cabinet departments and 37 Federal agencies
are involved in the broad Federal effort. The President's budget for
Fiscal Year 1985 includes one and one-half billion dollars to support
the Federal anti-drug programs. Also, money is included in the block
grants to provide state governments with funding flexibility in
meeting their own drug abuse priorities.
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While the White House has a key role in providing leadership and
coordinating Federal efforts, continuing support by the Congress also
plays an important part in the efforts to reduce drug abuse in the
United States.
The Federal Strategy for Prevention of Drug Abuse
The first Federal Strategy was published in 1973 in response to
Congressional direction for "the development of a comprehensive,
coordinated, long-term Federal strategy for all drug traffic prevention
functions conducted, sponsored, or supported by any department or
agency of the Federal Government."
The 1984 Strategy goes beyond the Federal responsibilities and
establishes a comprehensive national strategy where all individuals;
all business, civic and social organizations; all levels of government;
and all agencies, departments and activities within each level of
government are called upon to lead, direct, sponsor and support
efforts to eliminate drug abuse in families, businesses and
communities.
The 1984 Strategy is not a dramatic change in direction. The
President's 1982 Federal Strategy provided a long-range approach
which is working well. The 1984 Strategy reinforces these efforts in a
continuing long-term plan to eliminate drug abuse in the United
States.
The Strategy sets forth the tone and direction of the national
response to drug abuse problems. The Strategy provides a flexible
framework within which government administrators and
policymakers can increase the effectiveness of existing programs, as
well as design and vigorously implement specific new initiatives across
the broad spectrum of domestic and international drug abuse
prevention and control activities. The Strategy also serves as a source
of information and guidance to assist and encourage the private
sector in efforts to reduce drug abuse.
Priorities
The 1984 Strategy continues to be concerned with the
widespread social and health problems created by the abuse of a
number of drugs. The highest priority in the 1970s was given to
heroin, the drug perceived to be "most dangerous," with the
understanding that as use and abuse patterns changed, it would be
necessary to modify older priorities and reallocate resources
accordingly. Opiate abuse still causes serious problems in terms of
criminality and personal suffering and the 1984 Strategy continues to
recognize the need for a strong response to heroin. However,
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intensified use patterns and recent research leave little doubt that
cocaine is potentially as destructive to health as heroin.
Programs must also respond to the large numbers of people and
families who are suffering the direct and indirect effects of other
drugs of abuse, including marijuana and alcohol. The effects of drug
abuse are felt in nearly every family and every community throughout
the United States. This broad social impact requires greater attention
to the entire spectrum of drug abuse and requires feasible health and
law enforcement priorities which address the specific drug problems in
each geographic area.
Therefore, the 1984 Strategy does not attempt to dictate from a
national level the relative priorities for local responses to drug
problems. While drug abuse is a menace to our entire society, the drug
problems of a large city may be quite different from those of a small
town. Each locality must determine its own priorities and must have
the flexibility to fashion appropriate responses.
Private Sector Participation
Our experience over the past decade proves that, regardless of
the amount of Federal resources available, the success of the national
drug abuse prevention effort ultimately depends on the dedication
and the commitment of private industry, public organizations and
citizen volunteers.
Important private efforts are underway in the United States to
prevent drug abuse where it really counts: by individuals, in families
and in local communities. The highly successful Parent Movement,
described in the Drug Abuse Prevention chapter of this Strategy, is a
dramatic indication of the intense concern across the country and the
willingness of people to get personally involved in solving drug abuse
problems that touch their lives. Significantly, the Parent Movement
has grown with little financial support from the government.
The 1984 Strategy recognizes the existing network of Federal,
state and local government activities, as well as the expanding private
sector efforts directed at reducing drug abuse. Therefore, the
challenge of the Strategy is to seek the optimum use of this network in
reducing the effects of drug abuse on our society as a whole and on
each individual citizen. Described simply, real success is achieved when
those people most affected by drug and alcohol abuse are directly
involved in solving their own problems.
Major Elements and Roles
The Strategy is a comprehensive approach to reducing the avail-
ability of illicit drugs and reducing the adverse effects of drug abuse
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on the individual and society. The five major elements of the
Administration's drug program are:
? Drug abuse prevention through awareness and action;
? Drug law enforcement;
? International cooperation to control narcotics;
? Medical detoxification and treatment; and
? Research directed at causes, treatments and
understanding.
The Federal role is to provide national leadership, working as a
catalyst in encouraging the efforts of state and local governments and
the private sector, and to pursue those drug abuse functions which lie
beyond the jurisdictions and capabilities of the individual states. The
Federal government has the primary responsibility for enforcing
Federal laws, for international cooperation and for certain research
activities. The roles and missions of the various agencies and
departments of the government are described in the later chapters.
The responsibility for the successful implementation of the
Strategy to eliminate drug abuse in the United States is shared by
government and the private sector. In fact, the responsibility for
stopping drug abuse is shared by every American.
Drug Abuse Prevention
Drug abuse prevention - through awareness, education and
action - is key to long-term success in stopping drug abuse and
drug-related crime in our society. Prevention must begin with public
awareness of the problem, an understanding of what can be done to
improve the situation and a willingness to do something about it. The
prevention strategy includes teaching young children to actively resist
drug-taking behavior and convincing those of all ages who are
currently involved in drugs to stop.
President Reagan, in proclaiming National Drug Abuse Education
Week in 1983, stated, "Drug abuse is a national problem and a target
for a nationwide program. All across America, our citizens, community
organizations, and the private sector have recognized that they can
make a difference in the battle against this serious concern. Expanded
drug abuse awareness efforts, the banding together of concerned
parents, and the involvement of the many community groups are
lowering the rate of drug abuse which prevailed during the
Seventies."
The Administration has worked closely with the private sector in
initiating a comprehensive national campaign to discourage drug and
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alcohol use among school-age children. Support from the business
community has been particularly outstanding. During the past two
years, major national efforts have been sponsored by Keebler
Company, Xerox Corporation's Weekly Reader Publications, D.C.
Comics, International Business Machines, Lions International, the
National Soft Drink Association, WQED in Pittsburgh, the Public
Broadcasting System, the American Lung Association, McNeil
Pharmaceutical and others too numerous to mention.
Mrs. Reagan has been a leader in the drug abuse awareness and
prevention efforts. Directing her efforts at helping young children,
Mrs. Reagan has visited schools and treatment facilities and has sought
every opportunity to be involved in sponsoring or assisting with
prevention activities. Her assistance with the national television
programming of the "Chemical People" and with the mailing of over 4
million drug awareness comic books has made a significant
contribution to prevention. Mrs. Reagan has stated the objective well,
"Our number one priority is prevention. We don't want children to try
marijuana even once. And parents hold the key. Children look to their
parents for guidance and we must give it to them."
The 1984 Strategy calls for strong support of an anti-drug,
pro-achievement generation, with emphasis on prevention efforts
among elementary school children. Special attention must be given to
those eight years old (third grade) and younger. These efforts include
teaching positive behavior, such as making good decisions and
constructive handling of responsibilities and feelings. In the school,
drug abuse prevention should be treated as a positive cultural value
related to achievement and should be integrated into the rest of the
curriculum. The goal of "Excellence in Education" goes hand in hand
with "Say No to Drugs."
President Reagan has called on "all Americans to join the battle
against drug abuse to protect our children so that we ensure a healthy
and productive generation of Americans as our contribution for the
future."
A more detailed description of the prevention program is
contained in Chapter III, Drug Abuse Prevention.
Drug Law Enforcement
The Administration's vigorous drug law enforcement strategy is
designed to destroy criminal drug trafficking networks, both
international and domestic, and to intercept and eradicate illicit drugs
which are enroute to consumers. Effective drug law enforcement
reduces the availability of illicit drugs in the United States, deters
drug-related crime and creates an environment favorable to the
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implementation and development of long-range programs to
eliminate the production and abuse of illicit drugs.
Since the early days of the Administration, President Reagan has
provided strong personal leadership to the drug law enforcement
effort and taken every step possible to strengthen four major areas.
First, all available Federal, state and local statutes, expertise and
resources are being brought to bear on the full spectrum of drug
trafficking and related criminal activities.
? At present, 14 Federal agencies are involved in the drug
law enforcement effort and provide the manpower,
expertise and jurisdictions to pursue varied criminal
activities associated with the drug traffic, including
smuggling, racketeering, conspiracy, bribery, tax evasion
illegal money transfers, firearm violations, and crimes of
violence, among others.
? As a result of legislation in December 1981, the
Department of Defense is providing valuable support to
civilian law enforcement operations consistent with
national security obligations.
? Also in December 1981, President Reagan signed
Executive Order 12333 which authorizes the U.S.
intelligence community, in accordance with law, to
produce intelligence on foreign drug trafficking.
Second, the Administration has expanded the resources available
to the drug law enforcement effort to the highest level in U.S. history.
The Federal budget for drug law enforcement will exceed $1.2 billion
in Fiscal Year 1985, a 75 percent increase since 1981.
Third, a strong system of cooperation and coordination has been
established for the most effective and efficient use of the diverse
resources involved, recognizing that law enforcement agencies
working together often can accomplish more than the same agencies
working separately.
? The Cabinet Council on Legal Policy, established by
President Reagan in January 1982, provides Cabinet-level
direction for the overall effort.
? In January 1982, the President created the South- Florida
Task Force, headed by the Vice President, as a major new
initiative against crime problems in Florida, including the
massive drug smuggling and associated illegal financial
activities.
? On October 14, 1982, President Reagan announced an
8-point national effort to combat drug trafficking by
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organized crime, including the establishment of 12
Organized Crime Drug Enforcement Task Forces. In late
1984, an additional task force will be established for the
Florida and Caribbean region.
? On March 23, 1983, President Reagan created the
National Narcotics Border Interdiction System (NNBIS),
headed by the Vice President, to coordinate the drug
interdiction effort around all borders of the United
States.
? On July 28, 1983, President Reagan named a President's
Commission on Organized Crime to study the influences
of organized crime in various regions of the country and
to recommend ways of combatting those influences.
Fourth, President Reagan has repeatedly emphasized that those
individuals who violate the law should receive swift and certain
justice, rather than allowing criminals to exploit those provisions of
the law which were designed to protect the innocent. On March 16,
1983, President Reagan submitted to Congress the Comprehensive
Crime Control Act of 1983, an omnibus criminal justice proposal
containing urgently needed reforms of criminal statutes. The support
of the Congress in passing the reform of criminal justice laws is
essential.
The 1984 National Strategy calls for continuing aggressive pursuit
of drug traffickers, the seizure of their illegally-gained assets, and the
ultimate destruction of their criminal organizations. A detailed
description of the law enforcement program is contained in Chapter
IV, Drug Law Enforcement.
International Cooperation
President Reagan has established "a foreign policy that
vigorously seeks to interdict and eradicate illicit drugs, wherever
cultivated, processed or transported." The Administration has pursued
a vigorous implementation of this policy. The international effort is an
integral part of the total effort by the U.S. Government to stop drug
abuse by reducing both availability and use of illicit drugs in the
United States. Fundamental to the overall supply reduction effort is
eliminating illegal drugs as close to their source as possible. The major
gains will be realized in the longer term reduction in availability of
illicit drugs.
There have been significant achievements during the past few
years. Key source countries have acted to stop drug trafficking. For
instance, major law enforcement and eradication efforts have begun
in Colombia; Pakistan has taken steps to gain control over the
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outlying opium-producing areas; and Thailand's military forces have
attacked opium traffickers in the border areas of their country. Other
governments around the world have moved to stop drug production
and trafficking within their countries.
The response by other nations to the efforts of the United States
Government is evidence of the growing understanding that drug
abuse is truly an international problem, with adverse social, political
and economic impacts on producer and transit nations, as well as on
the consumer nations.
The United States is encouraging foreign governments to control
cultivation, production and refining of illicit drugs. To assist them in
narcotics control, the U.S. Government is providing aid for crop control
and other law enforcement activities, complemented where
appropriate by development activities.
Achieving control of illicit production is a formidable challenge
because the worldwide supply of marijuana, cocaine, heroin and other
drugs is large and complex. Production is widely distributed and often
concentrated in areas which are not policed or controlled by the
recognized government. The Strategy calls for leaders and
governments worldwide to condemn illegal drugs and to take
aggressive action to stop production, transport and use of such drugs.
Where it is necessary and appropriate, the Strategy calls for U.S.
decisions on foreign aid and other matters, such as refinancing of
debt, to be tied to the willingness of the recipient country to execute a
vigorous enforcement program against narcotics traffickers.
The financial aspects of the illicit drug traffic are as damaging as
the production and smuggling of the illegal drug material. The multi-
billion dollar illicit drug traffic breeds corruption; undermines political
processes, government stability and economies; and plagues societies
with acts of terrorism and other violent crime. The Strategy calls for
the illegal financial activities associated with drug trafficking to
receive a high level of attention and cooperative action by law
enforcement agencies and by the regulators of the banking industry,
both nationally and internationally.
A more detailed description of the international program is
contained in Chapter V, International Cooperation.
Medical Detoxification and Treatment
The 1984 Strategy recognizes that detoxification and treatment
of individual drug abusers is an essential element in the
comprehensive strategy to reduce the effects of drug and alcohol
abuse in the United States.
Since 1968, the Federal government has provided funding to the
States on a matching basis to encourage development of prevention
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and treatment programs. The national treatment capability,
stimulated through matching funds, far exceeded that which the
Federal resources alone could have provided. The drug abuse
treatment network in the United States has grown significantly from
the 183 programs existing in 1968. A report developed by the National
Association of State Alcohol and Drug Abuse Directors in April 1984
indicated that a total of 2,961 drug abuse treatment units and 3,909
alcohol treatment units received some government funding assistance
in Fiscal Year 1984. Reported financing for the national drug and
alcohol abuse treatment, rehabilitation and prevention programs in
Fiscal Year 1984 exceeded $1.4 billion, with the Federal government
providing $302 million or (21 percent), state and local government
providing $802 million (57 percent), and the private sector providing
$308 million (22 percent). Treatment programs have been directed at
overcoming the physical problems of drug addiction and providing
psychological and social counseling to help the individual drug abuser
live without drugs.
The treatment strategy is based on:
? Recognizing the existence of a national network of drug
treatment programs and established referral systems;
? Continuing the evolution of effective drug and alcohol
treatment delivery systems by encouraging the states to
allocate an appropriate level of funding based on local
needs and priorities,
? Seeking less expensive, more effective treatment
alternatives;
? Integrating drug and alcoholism treatment services into
the general health care system;
? Encouraging private industry, religious groups, private
organizations and state agencies to work together to
support treatment programs; and
? Promoting drug-free treatment programs.
Meeting acute medical needs associated with drug emergencies,
providing treatment for chronic drug abusers, and efforts toward
prevention and early non-medical intervention are often viewed as
competitors for scarce resources. However, all of these elements are
necessary if an affected community is to go beyond a holding action
and seek the larger goal of a better future. Therefore, responsible
public officials should avoid destructive competition between these
activities and seek the synergistic effect which occurs when effective
and balanced programs exists within their communities.
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A more detailed description of the treatment program is
contained in Chapter VI, Medical Detoxification and Treatment.
Research
Research, carefully planned and widely undertaken, can
reinforce all efforts to prevent, treat and control drug problems. The
Strategy supports the expansion of research directed at understanding
the causes and consequences of drug abuse and the application of
that knowledge to drug and alcohol abuse prevention, treatment and
rehabilitation. Accurate and timely information about drugs and
alcohol must be produced in an understandable format and
disseminated for use by health care professionals, researchers,
educators and the public.
The research strategy will continue to emphasize:
? Investigating the biological interaction between the
combination of marijuana and alcohol and between
other drugs and alcohol;
? The development of chemical agents that will block or
change the expected psychological effects of a drug or
provide pharmacologic support during treatment;
? The development of an effective system to monitor the
composition and potency of illicit drugs;
? Longitudinal and other epidemiological research to
expand knowledge of drug and alcohol use patterns, risk
factors and long-term health consequences;
? Basic research on the biological and psychological
determinants of drug and alcohol abuse;
? Studying the effectiveness of prevention and treatment
approaches; and
? Stimulating interdisciplinary research which allows the
integration and analysis of data from the criminal justice
system, social sciences, biochemistry, etc.
The 1984 Strategy encourages the pharmaceutical community,
colleges, universities and professional health care organizations to
undertake more extensive drug abuse research. The Strategy also
recognizes that alcohol and drugs are reported to be the two leading
causes of mental health problems and, therefore, calls for additional
coordination of the planning, conduct and application of research by
the organizations and persons involved in mental health, drug abuse
and alcoholism issues.
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A more detailed description of the research program is contained
in Chapter VII, Research.
Drug and Alcohol Abuse in The Armed Forces
The Department of Defense and the Coast Guard have
established a strong policy based on the conclusion that drug and
alcohol abuse are incompatible with the maintenance of high
performance standards, military discipline and combat readiness.
Significant progress has been made during the past several years. The
use of illicit drugs in the military has begun to decrease.
!r addition to drug and alcohol abuse prevention efforts directed
at the military member, the Department of Defense has major
initiatives underway to promote healthy living and the attitudes and
values that support such lifestlyles.
As an example, the Chief of Staff of the Army has banned the
reduced pricing of alcohol beverages in Army service clubs, stating
that such practices were "not consistent with Army policies and
programs to eliminate alcohol-related problems." Club events, such as
the "happy hour," are not eliminated, but the primary emphasis of
these social activities is being shifted away from alcoholic drinks to
food or entertainment.
A more detailed description of the drug abuse programs of the
Department of Defense is contained in Chapter VIII, Drug and Alcohol
Abuse in the Armed Forces.
Summary
The National Strategy outlines a comprehensive program to
reduce drug and alcohol abuse in the United States. The program
continues to rely on integrated and cooperative efforts of Federal,
state and local governments, as well as on the close involvement of the
private sector - through the business community, social and civic
organizations, and volunteers.
The 1984 Strategy provides a flexible framework responsive to
local priorities based on the nature of drug problems and drug
trafficking threats which exist in a particular geographic area. The
principles set forth in the Strategy are guidelines which respond to
current drug and alcohol problems, support successful drug control
and prevention activities, and promote innovation. They are designed
to take full advantage of the almost unlimited potential for
cooperative citizen efforts in support of the goal of reducing drug and
alcohol abuse in the United States.
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Ii. DRUG ABUSE
IN THE
UNITED STATES
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II. Drug Abuse in the United States
Introduction
During the 1960s and 1970s, the use of marijuana, hallucinogens,
cocaine and other drugs spread at an unprecedented rate, particularly
among our youth. In the 1980s, by contrast, there has been a leveling
in the use of drugs, and youthful drug involvement has begun to
decline. This reversal of the trend toward increasing drug abuse
provides proof that it is possible to stop drug abuse.
However encouraging these trends may be, the extent of the
existing drug problem is of national concern. A majority of our young
people have experimented with illicit drugs by the time they finish
high school. A substantial number of young Americans become
seriously involved, with the results ranging from poor grades and
family disruption to mental problems and deaths.
One thing is obvious. We cannot deny the existence of massive
drug and alcohol problems. Today, more than 20 million Americans
use marijuana at least once a month. One out of 18 high school seniors
uses marijuana daily. Over four million people, half of whom are
between the ages of 18 and 25, are cocaine users. Approximately
one-half million Americans are heroin addicts. Countless others are
affected by the significant abuse problems which involve medical
drugs manufactured in illicit laboratories or diverted from legal
pharmaceutical sources. Alcohol is a major problem as well, with an
estimated 10 million adult problem drinkers and an additional three
million between the ages of 14 and 17.
Although the number of current users appears to have peaked,
the millions of Americans who continue to use illicit drugs are
suffering more severe consequences of drug use because of higher
potency in most types of drugs, more dangerous methods of use, and
choosing to use more than one drug simultaneously. It is not
unexpected that these more dangerous drug-taking habits result in
dramatic increases in medical emergencies and deaths.
At the same time, a broad spectrum of our society has
demonstrated an intense concern over the more insidious long-term
effects of chronic drug use and the impact on the users, on their
families, on their communities, and on the future of our Nation.
Reasons for this concern include drunk and drugged driving accidents,
accidents on the job, learning disabilities and other mental problems,
family disruption, and direct health problems in many forms, including
interference with normal reproductive functions, and long-term
damage to the brain, heart and lungs. All of these may seem distant
and insignificant until they happen to you or to one of your
immediate family.
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C:
(D
a-
CU
r+
During the past 20 years, the health of all Americans has been
improving, with one notable exception. The death rate for young
Americans between the ages of 15 and 24 is higher than it was 20
years ago- Alcohol and drug abuse are the major contributors to these
unnecessary deaths. Almost 60 percent of American youth try an illicit
drug before they finish high school. Some learn quickly and stop- A
substantial number continue. In 1979, more than one-third (37
percent) of our Nation's young people between the ages of 12 and 17
used drugs or alcohol at least once a month- In 1982, this had
improved to 27 percent. Despite the improvement, the current high
levels of use continue to pose potentially disastrous consequences for
the future of a large number of families and for the Nation.
Brief summaries of the estimated levels of use, supply and sources
of specific drugs are provided in this chapter- Data on the extent and
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nature of drug abuse in the United States and on the estimated
availability of illicit drugs come from several sources:
? The 1982 and 1983 High School Senior Surveys on drug
use by high school seniors;
? Information on clients admitted to treatment for drug
abuse in state-funded programs reported through the
Client Oriented Data Acquisition Process (CODAP);
? Data on drug-related medical emergencies and death
reported from hospital emergency rooms and medical
examiners to the Drug Abuse Warning Network (DAWN);
? The 1982 National Survey on Drug Abuse, a survey on
nonmedical use of drugs gathered from a random sample
of American households; and
? The National Narcotics Intelligence Consumers
Committee (NNICC) which reports data on illegal drug
production and drug trafficking.
The introduction of the block grant program for treatment
services eliminated the requirement for states to report on treatment
admissions to the Federal government. Some states continue to collect
admission data and voluntarily provide the information to the
National Institute on Drug Abuse for epidemiological analysis.
However, improved data sources are needed. The data requirements
are discussed in Chapter VII, Research.
Additional information comes from research activities supported
by the Department of Health and Human Services. Reviews of current
literature on the health effects of marijuana are contained in the
triennial report to Congress called Drug Abuse and Drug Abuse
Research. Current information on the health consequences of using
alcoholic beverages is contained in the triennial report to Congress
entitled Alcohol and Health. In addition, the National Academy of
Sciences recently completed a systematic analysis of alternative
approaches to the prevention of alcohol-related problems entitled
Alcohol and Public Policy: Beyond the Shadow of Prohibition.
Drugs of Abuse
Cannabis/Marijuana
An estimated 20 million people in the United States use
marijuana once or more each month, according to the most recent
national survey. The use of marijuana among young people (age 25
and under) has continued to decline gradually since 1979, but in 1982
there was no change in use by adults 26 and older. As the most
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commonly used illicit drug in the United States, marijuana can be
found throughout the Nation, in rural areas as well as in big cities.
Marijuana mentions in emergency room incidents increased
slightly from about 5,300 in 1982 to 5,500 in 1983. The increased
mentions are primarily the result of the fact that marijuana is
frequently used in combination with other drugs. Alcohol is most
often the other drug, but there has also been a rise in the use of
marijuana with PCP and cocaine.
Another factor contributing to increased health consequences of
marijuana use is the increase in potency over the past several years.
Average potency, or the amount of tetrahydrocannabinol (THC), the
psychoactive ingredient in marijuana, has been increasing and now
averages around 3 percent as compared to the marijuana of the 1960s
which averaged less than 1 percent. Selected marijuana products, such
as sinsemilla produced in some varieties of cannabis, may exceed 7
percent THC and present a greater danger, particularly to new users.
The health effects of marijuana use are of serious concern.
Recent research demonstrates a series of significant risks and dangers
in such areas as intellectual functioning, reproduction, driving and
other skilled performance. Consequences can include impairment of
the immune response and of the respiratory and cardiovascular
systems, and possible changes in the central nervous system and
genetic material.
Daily use of marijuana by high school seniors, which had been as
high as one in nine in 1978, is now at approximately one in 18. The
annual surveys since 1979 reveal a number of major changes in the
attitudes of those young people toward marijuana. In the 1983 survey,
seniors were more concerned about the health consequences of
regular marijuana use and were more likely to feel the disapproval of
their peers if they used marijuana. Also reflecting the change in
attitudes, both seniors and adults questioned in different parts of the
United States favor stricter enforcement of laws against marijuana.
The reported change in attitudes suggests that strong reinforce-
ment of prevention and education efforts could produce a significant
reduction in marijuana use. The continued decline in marijuana use
among younger persons may also lead to declines in the use of other
drugs in future years. Recent research has indicated that by the time
youth reach their mid to late twenties, early users of marijuana are
almost twice as likely to use psychoactive drugs as non-marijuana
users. Research also shows that, while youthful experimentation with
cigarettes and alcohol does not automatically lead to marijuana use,
those who do use marijuana usually have started with cigarettes and
alcohol.
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Trends in Attitudes Regarding Marijuana Laws Among
High School Seniors: 1975-1983
Using Marijuana Should Be Entirely Legal
Using Marijuana Should Bea Crime
of I I I I I 1 1
1975 1976 1977 1978 1979 1980 1981 1982 19J83
During 1983, marijuana was available in most metropolitan
areas, although spot shortages and temporary price increases occurred
in some locations before domestic cannabis was harvested in the fall.
Wholesale prices of Colombian marijuana and domestic sinsemilla
increased between 1982 and 1983, perhaps indicating a slight
reduction in supply.
In 1983, Colombia supplied an estimated 59 percent of the 12,600
to 15,000 metric tons of marijuana available in the United States. The
remainder came from Jamaica (13 percent), domestic production (11
percent), Mexico (9 percent) and other minor suppliers (8 percent).
While foreign supplies remained relatively stable, production from
dorrfestic sources decreased about 26 percent from 1982 levels. This
reduction is believed to be the result of expanded domestic
eradication efforts.
A positive commitment to eradication is clearly being demon-
strated in the United States and Mexico. In the past few months, the
Government of Colombia has taken action against marijuana by
implementing a cannabis eradication program using herbicides. The
effects of such a program will be significant in the current situation.
However, the potential exists for Jamaica and other countries to
expand production.
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While the estimating techniques used for 1983 suggested that
the amount of marijuana consumed had increased slightly over the
prior year, other indicators, such as surveys of attitudes and use
patterns, indicate reduced levels of use. It is anticipated that
consumption of marijuana will decrease in 1984, reflecting a
combination of factors, including fewer users, the effect of foreign
and domestic eradication efforts, and gradual reduction of marijuana
in the smuggling pipeline.
Cocaine
A notable drug trend during the last decade was the spreading
use of cocaine. Recent trends toward intensive use patterns and
current research findings leave little doubt that cocaine is dangerous
and in several respects the most addictive drug in general use. The
erroneous, but widely accepted belief that cocaine is nonaddictive
may have contributed to a willingness to experiment with this drug. As
the consequences of cocaine use have become apparent, public
awareness of the cocaine problem has increased sharply.
According to the most recent national surveys, the number of
individuals who used cocaine at least once in the month preceding the
survey has been essentially level between 1979 and 1982. In 1982:
? Over half of the users were young adults from 18 to 25
years old;
? The number of users 26 years or older increased slightly;
and
? Use among young people under 18 years of age leveled
off after showing sharp increases between 1976 and
1979.
Intelligence estimates indicate that the price of cocaine was
down and the quantity consumed in the United States may have
increased slightly between 1982 and 1983. There are indications that
the number of current users may be decreasing; however, more of the
current users are experiencing cocaine-related problems. The
increased consumption may reflect the higher amounts associated
with the intensified use patterns among a significant portion of the
users.
Between 1982 and 1983, the total number of cocaine-related
hospital emergencies increased approximately 12 percent and
cocaine-related deaths increased an estimated 13 percent. The greater
health consequences are largely the result of more dangerous
methods of use, including:
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? "Freebasing" -- smoking a relatively pure form of
cocaine;
? Intravenous -- often associated with heroin/cocaine
"speedballs;" and
? Use of cocaine in combination with other drugs,
including heroin, alcohol, marijuana and PCP.
Reflecting the lower prices, cocaine use in 1983 appeared to be
spreading from high-income users to drug abusers in lower
socio-economic levels, including narcotics addicts. Many heroin
retailers reportedly chose to expand cocaine sales in lieu of increased
heroin activity.
Excessive production in source countries has contributed to an
oversupply of cocaine and declining wholesale prices. An estimated 54
to 71 metric tons entered the United States in 1983, compared to
about 40-65 metric tons in 1982. About 75 percent of the finished
product is exported from Colombia, 10 percent from Peru, 10 percent
from Boliva, and 5 percent from other sources.
Peru and Bolivia are the primary sources for preliminary coca
products, although Colombia now produces about 15 percent of the
coca converted to cocaine for the illicit market.
Colombian criminal organizations continue to dominate the
cocaine traffic from the manufacture of cocaine to its distribution in
the United States; however, these groups are being affected by
competition from other criminal elements and intensified law
enforcement.
Cocaine trafficking organizations have been hard hit by law
enforcement during 1984. In the United States, the Organized Crime
Drug Enforcement Task Forces and other investigative efforts are
successfully pursuing major cocaine trafficking organizations. Control
of cocaine precursor chemicals by Colombia, the United States and
other countries, appears to be disrupting cocaine laboratory activity in
Colombia. The Government of Colombia, in recognition of severe
internal social, economic and political problems related to illicit drugs,
has declared an all-out offensive against the drug traffic.
During March through June 1984, the Government of Colombia
seized an unprecedented 14 metric tons of cocaine in raids against
cocaine processing plants. The impact of these raids on availability of
cocaine is not yet known. However, it should be noted that the
quantity seized is roughly equivalent to one-fifth of the estimated
annual supply of cocaine to the United States. Some cocaine
conversion laboratories have been found in the United States,
apparently established as a reaction to the intensified enforcement
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activities against both the chemicals essential for producing cocaine
from coca and the cocaine laboratories in Colombia.
Long-term efforts to eliminate coca supplies are also showing
signs of progress. The Government of Colombia has implemented a
coca eradication program. In mid-1983, both Peru and Bolivia began
moving ahead with coca control programs after several years of delay.
Heroin
Estimates of the number of individuals addicted to heroin, a
narcotic which produces physical dependence, have remained
relatively stable, at about one-half million, since the mid-1970s. Most
of the available data indicate that the current users are predominantly
older addicts with an average age of 30 and increasing. This suggests
that there is a decline in new, young users and that present users are
largely from a group of people who began using heroin during the
"heroin epidemic" in the late 1960s and early 1970s.
Heroin addicts appear primarily in major metropolitan areas,
particularly in Los Angeles, Detroit, and in the Northeast corridor
between New York City and Washington, D.C. Although the number
of heroin addicts is low compared with the number of people who use
other drugs, heroin is a significant cause of drug-related emergencies
and deaths in the United States.
The annual number of heroin-related emergency room episodes
stabilized between 1982 and 1983 at about 12,500, after increases
from 1978 to 1982. As with treatment admissions, the heroin users
reported in these data appear to be older and increasingly involved in
multi-drug use. The intravenous use of heroin and cocaine
"speedballs" has become more prominent and is expected to
continue.
An estimated 4.1 metric tons of heroin were consumed in the
United States during 1983, which was about the same quantity as in
1982. Approximately 48 percent was refined from opium produced in
the Southwest Asian countries of Pakistan, Afghanistan and Iran.
Mexico accounted for 33 percent of the supply. The remaining 19
percent came from the Golden Triangle of Southeast Asia, which
refers to the common border areas of Burma, Northern Thailand and
Laos.
Other Drugs
A significant portion of the drug abuse problems in the United
States involves drugs manufactured in illicit laboratories or diverted,
domestically or abroad, from legitimate laboratories or pharma-
ceutical sources. The Strategy addresses those drugs causing the
greatest concern.
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The primary source of pharmaceutical narcotics, analgesics and
most depressants continues to be through diversion from legitimate
U.S. manufacturing and distribution channels. Diversion occurs
through thefts, burglaries, and fraudulent prescribing and dispensing
practices. Clandestine laboratories manufacture illicit stimulants,
hallucinogens and methaqualone.
Depressants
According to the most recent national survey of drug use, there
were over one and one-half million people who used a sedative and
over one million individuals who used a tranquilizer for a nonmedical
purpose at least once in the month preceding the survey. The misuse
of depressant drugs can have severe consequences for the user and
continues to account for a large percentage of the total drug-related
medical emergencies reported each year despite the fact that abuse of
major depressant drugs has steadily decreased since 1980.
The continuing decline in nonmedical use of barbiturates is
paralleled by similar decreases in adverse health consequences as
reported by hospital emergency rooms and medical examiners. Barbi-
turates are still a serious concern because overdose may result in major
respiratory and circulatory problems, leading to coma or death.
The availability and abuse of methaqualone, a sedative/hypnotic
drug commonly known by the brand Quaalude, has decreased since
1980. The bulk of the illicit methaqualone available in the United
States since the late 1970s was diverted from legitimate international
channels and then smuggled from Colombia. Within the past two
years, the international community has increased regulatory controls
over the manufacture and distribution of methaqualone, resulting in a
shortage in the amount of bulk methaqualone powder available for
illicit distribution. In the United States, the sole manufacturer of
methaqualone has removed it from the licit market.
Methaqualone-related hospital emergencies and deaths also
have decreased. Emergency room mentions have dropped from
approximately 6,000 in 1980 to about 2,000 in 1983. In 1982 and 1983,
methaqualone use declined among high school seniors, after sharp
increases in 1976.
Asa result of the success in limiting availability of methaqualone,
Quaalude counterfeits containing diazepam (Valium), flurazepan and
phenobarbital have become available in the illicit traffic during the
last two years and will probably increase in 1984. Substantial amounts
of these counterfeits have been smuggled into the United States from
foreign sources, primarily Colombia and Canada. Additionally, current
illicit sources for diazepam include diversion from legitimate
distribution channels.
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Stimulants
Approximately 2.8 million people used a stimulant drug for non-
medical purposes in the month preceding the most recent national
survey on drug use. Among high school seniors, use of stimulant drugs,
which has nearly doubled since 1975, has begun to stabilize or decline
slightly. Mentions of amphetamines in hospital emergency rooms
declined in 1983.
The primary source for amphetamine and methamphetamine
substances remains domestic illicit manufacture, with some smuggling
from Mexico. Although the diversion of these substances through
clinics has been highly publicized, this is a relatively minor source. In
1983, clandestine domestic laboratories produced an estimated 80
percent of the amphetamine and 95 percent of the metham-
phetamine available in the United States.
Hallucinogens
The most recent national survey on drug abuse (1982) indicates
that almost one million Americans used hallucinogenic drugs other
than marijuana within the month preceding the survey. About half of
these were young adults between 18 and 25 years old. This is a signifi-
cant drop of almost 900,000 users since the 1979 survey. The hallucin-
ogenic drugs lysergic acid diethylamide (LSD) and phencyclidine (PCP)
cause great concern primarily because of the bizarre and often
dangerous behavior associated with their use.
Domestic clandestine laboratories produced virtually all of the
LSD and PCP available in the United States. From 1976 to 1983, the
popularity of LSD as a drug of choice has decreased significantly.
LSD-related hospital emergencies decreased approximately 30 percent
between 1982 and 1983.
The hallucinogen situation in the United States has been
dominated during the last eight years by the powerful veterinary
tranquilizer called PCP. The use of PCP has undergone significant
changes over the last several years. Initially, use was concentrated in
white, working-class communities of Detroit, Chicago, Philadelphia
and Washington, D.C. Rates of PCP use fell in 1980 and 1981 because
of PCP's negative reputation among users and the law enforcement
successes in curtailing illicit manufacture and distribution. Use appears
to have increased since then, especially among Black and Hispanic
groups in New York, Los Angeles and Washington, D.C. A disturbing
trend toward intravenous PCP use, frequently in combination with
heroin, was noted during 1983. This development was reflected in
increased PCP-related hospital emergencies and deaths.
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Inhalants
Inhalants are a diverse group of chemicals that produce
psychoactive (mind-altering) vapors and includes a number of
common products such as aerosols, gasoline, some glues, solvents and
butyl nitrites marketed as "room odorizers." Almost one and one-half
million people used inhalants in the month preceding the latest survey
and more than one-half were young people under the age of 18.
Inhalant use among high school seniors increased slightly in 1983.
Sniffing moderate amounts of inhalants for even a relatively short
time can disturb vision, impair judgment, and reduce muscle and
reflex control. Death from sniffing inhalants occurs suddenly, and
without warning, as a result of suffocation, respiratory collapse or
heart failure.
Alcohol
Alcohol is the drug which causes the greatest range of acute and
chronic medical and social problems. Illegal for youth and legal for
adults, alcoholic beverages are widely available and have a relatively
high level of acceptance in American society. Overall, alcohol use in
conjunction with other drugs is the most frequently mentioned drug
in emergency room episodes and drug-related deaths. The
relationship between drinking and automobile accidents is of
particular concern. Alcohol-related accidents kill twenty-five
thousand persons each year and are the leading cause of death for our
young people between 16 and 24 years of age.
The 1984 Strategy focuses on alcohol as an illegal drug when
used by youth and addresses the issues of youthful use, drunk and
drugged drivers and employee assistance programs.
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III. DRUG
ABUSE
PREVENTION
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III. Drug Abuse Prevention
Introduction
The old adage, "An ounce of prevention is worth a pound of
cure," is an obvious truth in the fight against drug and alcohol abuse.
President Reagan has committed the Federal government to doing all
in its power to encourage a vigorous national drug abuse prevention
and education effort, recognizing "that as important as intercepting
the drug traffic might be, it cannot possibly equal the results in
turning off the customers, the users, and making them take a different
course in deciding to no longer be customers." During the past three
years, prevention has come to the forefront as the essential element in
the long-range goal of eliminating drug abuse. Private industry,
professional and civic organizations, and private citizens banding
together in action-oriented groups, such as the nationwide parents
organizations, have invested their time and resources in preventing
drug abuse.
Only a decade ago, planning toward a society free of drug abuse
was called unrealistic. Many planners focused on how society could
learn to live with the effects of drug abuse. Today, it is widely believed
that a drug-free society is possible. This vision is shared by people from
every segment of American society, including the President and Mrs.
Reagan, parents, civic leaders, business and government.
An important change is the elimination of the moral confusion
previously associated with drug abuse. President Reagan pointed out
the need for a strong moral foundation when he stated, "The
American people today insist that judges and government officials
recognize what common sense has ,always taught: that right and
wrong matters; that individuals are responsible for their actions..."
There is broad consensus across the United States that drug abuse
is clearly wrong and individuals who take drugs or promote drug
taking by others are responsible for their actions. Drugged and
drunken behavior is not acceptable in our society.
Another important factor is the change in attitude. Americans
have rejected the fatalistic attitude of the Seventies which suggested
that drug use was so rampant that they were defenseless to do
anything about it. Individuals have begun to take responsibility for
educating themselves about drug abuse and how to counter it.
Parents are more aware of drug abuse and are attempting to become
better informed about the problem and what to do about it.
Individuals, groups and business are willing to make a commitment
toward a drug-free future. Parents are willing and eager to get
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involved in improving the quality of life for themselves and their
children.
The positive attitudes and new knowledge are helping young
people move away from drug-taking behavior and embrace positive
goals such as excellence in education, physical fitness and personal
integrity.
President Reagan has called on "all Americans to join the battle
against drug abuse to protect our children so that we ensure a healthy
and productive generation of Americans as our contribution for the
future."
National Drug Abuse Prevention
The drug abuse prevention program is a nationwide activity
aimed at reaching into every community, every family, every school,
every business; to bring drug abuse awareness to everyone and to
motivate them to participate in the fight against drugs and
drug-taking behavior. Prevention includes both motivating non-users
to never use drugs and convincing current users to stop drug use.
The Strategy is flexible in responding to the problems of drug
and alcohol abuse and to the needs of each community and age
group. Prevention programs must be designed to have meaning for
individuals at dramatically different stages of readiness and desire for
change. The Strategy encourages creative responses at the local level
to fit each community's needs and resources with simultaneous
national initiatives to raise awareness of drug abuse, mobilize citizen
action and create an environment in which drug abuse is recognized
as unacceptable behavior.
Drug Abuse Awareness and Education
Drug abuse problems have been described as too much
awareness in young children and an absence of awareness among
adults. School-age children are especially vulnerable to drug and
alcohol use. A Weekly Reader survey of children's attitudes on drugs
and alcohol, sponsored by Xerox Education Publications as a
community service, revealed that many fourth graders report that
children their age feel pressure to try drugs or alcohol. These results
suggest that prevention programs must include children eight years
old (third grade) and younger because of this early potential .for
experimentation.
It is important to put education in perspective. Programs in the
1970s were generally technical education efforts which focused on
how to identify specific drugs and the effects on the individual.
Accurate information concerning the hazards of marijuana and
cocaine was not available and the government could not
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communicate with young people in a credible way. These
well-meaning efforts were widely criticized for "teaching young
people about drugs" and "encouraging experimentation." Also,
inaccurate scare tactics subjected some drug abuse avoidance themes
to ridicule. Accurate and credible information is now available and
education is playing a critical role in the overall fight against drug
abuse.
For those individuals who have started using drugs, education
provides a pathway to successful intervention and treatment by
increasing the user's awareness of the risks and dangers of continuing
drug abuse and helping them make the choice to stop. Education is
also critical to assisting parents, educators and others in under-
standing the nature of the problem and how best to respond to their
individual situation. Education provides a factual basis for teaching
young people to develop healthy behavior which does not include
drug taking and is therefore an important ingredient of prevention,
which stops the problem before it exists. A major portion of the
Federal research effort is directed at developing accurate, credible
information and making it readily available.
Prevention programs for young children should teach positive
behavior, such as constructive handling of feelings and responsi-
bilities. Each child who never starts using drugs represents a victory.
Once an individual has started using drugs, the opportunity has been
lost to truly prevent his or her involvement and the focus must be
shifted to intervention or finding a way to stop potentially destructive
behavior. Intervention requires more effort, has less chance of success,
and, even if successful, cannot undo the lost opportunities and other
damage which have already occurred.
The 1984 Strategy calls for drug abuse education to be integrated
into the public and private school programs, with emphasis on the
destructive effects of drug use, including alcohol, on excellence in
education, health and overall well-being.
The National Response
Citizens from each segment of society. have recognized, along
with President Reagan, that we are "running the risk of losing a great
part of a whole generation" if we fail to stop drug abuse. Today,
prevention and education efforts are in the hands of parent and
community groups, local officials, school teachers and administrators,
health care professionals and youth themselves -- those closest to
current and potential users and therefore those who can have the
greatest influence.
Adults must meet their responsibility of providing youth with
positive leadership and a sound role model. The artificial
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glamorization of mind-altering and mood-changing drugs, including
alcohol, confuses young people. The existence of a family liquor
cabinet is often a contributor to the problem.
A key element of the 1984 Strategy is the continuing partnership
between government and the private sector to bring the full range of
this country's resources to bear on reducing existing drug and alcohol
abuse and ultimately to provide a drug-free environment for all
Americans, especially our young people.
The President and the First Lady have actively participated in
numerous drug abuse prevention and education activities. They have
repeatedly expressed their great concern about drug abuse and its
effect on our children. Mrs. Reagan has traveled extensively to take
her concern about the destructive effects of drug abuse on our
children to audiences all across our country and internationally.
Parents and parent groups are especially effective in preventing
the use of drugs by children. There are now more than 4,000 groups of
parents across the United States devoted to stopping drug and alcohol
abuse among their children and within their communities. The Parent
Movement, discussed below, is an outstanding example of the
effectiveness which is possible when concerned citizens gather
together to address mutual problems. Throughout American society,
our government, business, educational institutions, civic groups and
individual citizens are continuing to organize and sponsor major drug
abuse awareness and prevention activities. For example, a national
prevention coalition of volunteer and private sector organizations has
been formed to coordinate, expand and plan drug abuse prevention
activities. Participants include the American Medical Association,
International Association of Lions Clubs, National 4H Association,
American Association of School Administrators, National Parent/
Teacher Association, National Federation of Parents for Drug-Free
Youth, Quest National Center, Association of Junior Leagues,
Education Commission of the United States, Rotary International, and
the Benevolent and Protective Order of Elks.
Private business has a unique capability for communicating
accurate information about drug abuse in a credible way to large
segments of the population. Examples of innovative prevention
programs designed and sponsored by businesses include several public
service announcement campaigns, a nationwide distribution of over
four million special adventure comic books to elementary schools,
activity books and information distribution campaigns through
pharmacies. A large number of well-known corporations have
sponsored and funded these efforts.
By working toward the elimination of drug abuse in the United
States, the private sector is making an important investment in the
future of the Nation.
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Truth and Credibility
A major obstacle in fighting drug abuse is the insidious nature of
experimentation, often encouraged by the commercial exploitation of
drugs of abuse and the associated "drug culture." Any activity tending
to glamorize drug and alcohol use must share in the blame for the
dangerous health and social consequences resulting from drug abuse,
particularly among our youth. Manufacturing, packaging and adver-
tising of drug paraphernalia, so-called "look-alike" pills, and room
odorizers as inhalants are examples of commercial activities which are
supported by the drug abuse culture. Commercially promoted
products having names of illicit drugs and publications glamorizing
illicit drug use are other examples of subtle forces giving messages to
youth that drug-taking behavior is socially acceptable. Sensation-
alized reporting by the mass media of drug and alcohol use by
contemporary sports and entertainment figures also contributes to an
atmosphere tending to encourage young people to experiment with
drugs and alcohol.
In addition to activities which deliberately promote drug use,
several terms have been commonly used in discussions of drug abuse
which, whether well-meaning or intentionally misleading, foster
misconceptions and hinder understanding of the nature of drug
problems. To avoid misunderstanding, the Strategy discourages the
use of the following terms: "recreational use" of drugs, "responsible
use" of drugs and alcohol, "substance abuse," "decriminalization,"
"getting high" and defining drugs as "hard" or "soft."
President Reagan best described the inaccuracy of such terms in
November 1983 when he said, "No longer do we think of so-called
hard drugs as bad and so-called soft drugs as being acceptable.
Research tells us there are no such categories; that the phrase
'responsible use' does not apply to drug experimentation by America's
youth. And so far as the 'recreational use ' of drugs is concerned, I've
never in my life heard a more self-serving euphemism by those who
support drug use. There is nothing recreational about those children
whose lives have been lost, whose minds have been ruined."
Why Alcohol In A Drug Abuse Prevention Strategy?
Alcohol is a dangerous and widely abused drug. The Strategy for
drug abuse prevention calls for strong support for efforts to stop
alcohol use by school-age children.
? Alcohol is usually the first drug to which youth are
exposed.
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? Alcohol is the most frequently used drug by those under
the age of 18-
? In all states, it is illegal for young people under the age of
18 to purchase alcoholic beverages.
? Alcohol is the cause of substantial physical and
psychological damage-
? Alcohol is particularly dangerous when used in
combination with other drugs-
? Alcohol-related accidents account for nearly half of all
deaths of youth under the age of 24.
Beer, wine and liquor do not carry the same stigma as illicit drugs.
Few adults think of alcohol as a drug. Parents who are careful to keep
prescription drugs inaccessible to youngsters often fail to take the
same care with their supply of alcoholic beverages. Ironically, parents
are frequently relieved when they find that their children are
intoxicated on alcohol instead of other drugs. However, use of any of
these drugs presents significant hazards to our youth.
The Strategy seeks both to increase the awareness of such risks
and to increase the involvement of adults in reducing these risks. The
practice of encouraging drinking among youth as a marketing
technique is condemned. Such practices can be reduced by increasing
public awareness and visibility, including identification of the sponsors
and holding them responsible. The Strategy urges the alcoholic
beverage producers and distributors to police their own industry in
developing and marketing their products.
Impaired driving after drinking or taking drugs is one of our
Nation's most serious public health and safety problems. The
Administration has embarked upon a comprehensive, community-
based program to combat alcohol-related traffic fatalities. Citizen
groups, such as Mothers Against Drunk Driving (MADD) and Remove
Intoxicated Drivers (RID) have been a major force in fighting the
senseless carnage caused by drivers impaired by the use of alcohol and
other drugs.
The President's Commission on Drunk Driving, created by
President Reagan in March 1982, presented its final report in
November 1983. The report encouraged a systematic, integrated
approach among local, state and national levels, with
recommendations in the areas of enforcement, prosecution,
adjudication, licensing, administration, alcohol beverage regulation,
public awareness, public education, private sector activities and
treatment. A National Commission on Drunk Driving has been formed
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to continue the work of the President's Commission and to oversee
implementation of their recommendations.
Many states have raised their legal drinking age as a result of the
growing public awareness that motor vehicle accidents are the leading
cause of death among young people. Further, states which have raised
the drinking age have experienced a significant drop in teenage
driving fatalities. In July 1984, President Reagan signed legislation
which encourages states to raise their drinking age to 21. The 1984
Strategy calls for all states to establish 21 as the minimum age at which
individuals may purchase, possess or consume alcoholic beverages.
Parent Groups
The nationwide Parent Movement is the epitome of national
awareness and prevention with involvement by those closest to the
problem. This outstanding example is exactly what the President
intended when he said, "Such (grassroots) groups are almost
invariably far more efficient than government in running social
programs. "
More than 4,000 parent groups have joined together in the
National Federation of Parents for Drug-Free Youth (NFP). They have
taken a no-nonsense position on youthful drug use and have brought
about new laws, public policies and attitudes. For example, parents
have forced the removal of drug paraphernalia from local stores,
ensured that accurate information is available in schools and libraries
and even supervised successful rock concerts. They have also assisted
and supported law enforcement officials in reducing the availability of
illegal drugs in the community.
The strength of the Parent Movement is reflected in the fact that
the groups have grown with little financial support from the Federal
government. Several thousand additional community groups were
formed as a direct result of "The Chemical People" program, described
later in this chapter. Continued growth and success of the movement
is based on parents uniting with each other, knowing how their
community works, and maintaining their identity as voluntary
organizations.
Prescription Drugs
The abuse and misuse of legally-available drugs, such as sleeping
pills, tranquilizers and over-the-counter diet aids, is a continuing
concern. In the past two years, important new efforts by physicians
and other health care professionals have been undertaken to reduce
the inappropriate use of drugs that have legitimate medical uses.
The American Medical Association (AMA) has taken the lead in
an effort to reduce prescription drug abuse. The AMA is collaborating
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with the National Institute on Drug Abuse, the Drug Enforcement
Administration, and the Food and Drug Administration on education
and communication initiatives to ensure that health professionals
make full use of available information on drug abuse research,
treatment and prevention.
The pharmaceutical industry has been an active and valuable
participant in the prevention effort. Sterling Laboratories is now
producing Talwin in combination with naloxone, an antagonist, in
order to prevent misuse of the analgesic drug. In addition, McNeil
Pharmaceuticals, working with pharmacy organizations, has
sponsored a nationwide awareness campaign with the local
pharmacist as the focal point for information on drug abuse.
Other professionals have started prevention programs. The
insurance industry has produced educational films for use by
community groups. Professional periodicals, such as Pharmacy Times
and Medical Times, devoted special issues during 1983 to drug and
alcohol abuse. The American Academy of Pediatrics is addressing
look-alike drugs. The term "look-alike" refers to tablets and capsules
containing noncontrolled, over-the-counter ingredients, but which
are manufactured to closely resemble, or are promoted as, highly
abused controlled drugs.
The National Federation of Parents for Drug-Free Youth is
opposing the continuing legality of "look-alike" drugs. The Drug
Enforcement Administration has prepared model legislation to render
"look-alike" drugs illegal and the NFP has been a catalyst in the
passage of this model legislation in 46 states.
The 1984 Strategy emphasizes the continued need for physicians,
pharmacists and other health care professionals to find ways to reduce
the dangers of misuse of prescription drugs and to make people more
aware of the risks involved in combining alcohol with prescription and
non-prescription drugs.
The Federal Role
Chaired by the Special Assistant to the President for Drug Abuse
Policy, the Working Group on Drug Abuse Health Issues under the
President's Cabinet Council on Human Resources oversees the
implementation of the overall Strategy to reduce drug and alcohol
abuse.
The National Institute on Drug Abuse (NIDA), the National
Institute on Alcohol Abuse and Alcoholism (NIAAA), and ACTION are
the agencies with primary responsibility for implementing Federal
drug abuse prevention programs. Many other Federal agencies
contribute to the prevention effort.
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NIDA, the principal source for current information about the
effects of drug abuse, promotes increased awareness of drug
problems, sponsors research and disseminates research findings.
NIDA's activities include:
? Sponsoring research surveys, such as the National High
School Senior Survey and the National Survey on Drug
Abuse;
? Developing and disseminating educational and media
materials on the health hazards of illicit drugs for use in
public information programs;
? Working with private sector sponsors, such as Blue Cross
and Blue Shield Associations, to develop and disseminate
materials to their constituencies,
? Providing technical assistance related to prevention
planning and implementation, such as employee
assistance programs; and
? Communicating the latest and most effective prevention
approaches to the public and private sector.
NIAAA promotes the prevention of alcohol abuse by conducting
research and sharing the most current knowledge about alcohol abuse
and alcoholism with researchers, State Prevention Coordinators,
practitioners, education staffs and many others. The NIAAA National
Clearinghouse for Alcohol Information distributes several million
publications on alcohol abuse each year. In addition, NIAAA actively
participates in national meetings and seminars, professional
associations, and other cooperative efforts with Federal, state and
local groups.
ACTION, the Federal agency for voluntarism, supports prevention
activities which stimulate the participation of volunteers and the
private sector. ACTION has been working with business, the entertain-
ment industry and voluntary associations which can assist parents who
are organizing to prevent drug and alcohol abuse. Specific ACTION
objectives include:
? Mobilizing private sector, public sector and volunteer
efforts in drug and alcohol abuse prevention within each
state;
? Assisting local citizen efforts;
? Offering technical assistance to parent groups;
? Distributing selected NIDA and NIAAA materials and de-
veloping new publications for nationwide dissemination;
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? Testing models for training adult and youth groups to
help create a drug and alcohol-free environment; and
? Encouraging corporate and other private sector
prevention programs.
Other Federal agencies are actively contributing to the overall
prevention effort. For example:
? The National Highway Traffic Safety Administration
(NHTSA) is the focal point for the national effort to
eliminate driving while intoxicated, including research on
drug-related highway problems.
? The National Institute of Mental Health (NIMH) supports
research on relationships between mental health and
drug or alcohol abuse-
? The State Department's Bureau of International Narcotics
Matters (INM), in cooperation with NIDA, supports
international efforts to reduce the worldwide demand
for drugs.
? The United States Information Agency (USIA), in its
principal role of explaining U.S. policy, society and values
to foreign audiences, transmits information about the
efforts of the United States to eliminate drug abuse.
? The Department of Defense conducts extensive drug and
alcohol abuse prevention programs for military
personnel.
? The Department of Education maintains five regional
training centers that have assisted school officials and
parents from over 4,500 communities to develop alcohol
and drug abuse programs for their schools-
? The Food and Drug Administration (FDA) directs
educational efforts at the proper use of prescription and
over-the-counter drugs.
? The Occupational Safety and Health Administration
(OSHA) is responsible for ensuring safe and healthful
working conditions in the Nation's 4.5 million
workplaces.
? The Department of Justice's Office of Juvenile Justice and
Delinquency Prevention (OJJDP) addresses all aspects of
delinquency prevention, including drug and alcohol
abuse.
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? Law enforcement agencies, such as the Drug Enforce-
ment Administration (DEA), the Federal Bureau of
Investigation (FBI) and the U.S. Customs Service, have
initiated drug abuse prevention programs for youth and
provided technical assistance and information concerning
drug abuse to parents and the general public.
The Challenge
The drug abuse prevention program is the element in the
National Strategy in which every person in our society has a unique
and important role. Examples abound of individuals, organizations
and businesses recognizing a need and taking action to meet it. One
of the major efforts involved a simultaneous nationwide series of
television broadcasts and local community events. "The Chemical
People" program resulted in an unprecedented number of organized
"town meeting groups" all across the Nation. The campaign was
produced by WQED (a PBS station in Pittsburgh), given technical
assistance from NIDA, sponsored by the National Coalition for
Prevention of Drug and Alcohol Abuse and hosted by the First Lady.
Over 50,000 volunteers and 35 national organizations dedicated
themselves to making the project a success.
The real success is in the number of individuals and families which
now have access to and are involved in a local support group. This kind
of awareness and action are the keys to a successful prevention
strategy.
The Strategy challenges you to learn what needs to be done and
to get involved in doing it, for your family and for a better future.
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IV. DRUG LAW
ENFORCEMENT
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IV. Drug Law Enforcement
Introduction
President Reagan established the basis for his national drug law
enforcement strategy when he stated, "We intend to do what is
necessary to end the drug menace and cripple organized crime. We
live at a turning point - one of those critical eras in history when time
and circumstances unite with the sound instincts of good and decent
people to make a crucial difference in the lives of future generations."
The Administration has responded vigorously to the grave
challenge posed by drug trafficking organizations. Major initiatives
have been undertaken to increase the overall effectiveness of drug
law enforcement through cooperation between law enforcement
officials and prosecutors at every level of government.
The strong law enforcement response to drug criminals is a result
of the personal leadership of the President, active coordination and
direction of the Vice President, dedicated support from the Attorney
General and other Cabinet Members; and the commitment,
cooperation and innovation of agency officials, U.S. Attorneys and
individual law enforcement officers.
The Administration has expanded Federal drug law enforcement
to the highest level in U.S. history. Measured in funding, the Federal
budget for drug law enforcement will exceed $1.2 billion in Fiscal Year
1985, a 75 percent increase since 1981. The Drug Enforcement
Administration has been strengthened, and the Federal Bureau of
Investigation, the Department of Defense, the Coast Guard, the
Internal Revenue Service, the Customs Service and others have
expanded their efforts, bringing additional resources to bear on the
broad range of criminal activities associated with illegal drugs.
Cooperation and coordination among Federal, state and local
law enforcement agencies have been facilitated by major
Administration initiatives to coordinate and target available resources
in areas critical to an effective national drug enforcement effort.
These initiatives include the South Florida Task Force, Organized Crime
Drug Enforcement Task Forces in 13 locations throughout the Nation,
the National Narcotics Border Interdiction System, the Law
Enforcement Coordinating Committees in 94 Federal judicial districts,
and the Domestic Marijuana Eradication Program.
The 1984 Strategy continues the goal of bringing to bear the full
range of Federal, state and local government resources on stopping
the drugs, wherever they are grown, processed, transported and used,
and apprehending and prosecuting those responsible for transporting
and distributing illicit drugs, as well as the financiers and organizers.
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The Strategy emphasizes cooperation between law enforcement
officials and prosecutors at all levels of government to achieve prompt
and certain justice in prosecuting drug traffickers, seizing their assets,
and destroying their criminal organizations. As a major part of the
Administration's crack-down on crime in the United States, the
Strategy requires aggressive investigation and prosecution of all
criminal activities associated with drug trafficking, domestic and
international.
The 1984 Strategy provides a flexible framework which is
responsive to local priorities based on the nature of drug problems
and drug trafficking threats which exist in a particular geographic
area. All Federal agencies are expected to actively seek ways in which
they can improve their contribution to the overall reduction of drug
abuse, including encouraging broader intergovernmental cooperation
and seeking additional ways to expand and enhance deterrence and
prevention efforts.
Objectives
The role of drug law enforcement is to reduce the availability of
illicit drugs in the United States. The high visibility of law enforcement
operations and the public support for strong law enforcement also
deters potential law-breakers and contributes to drug abuse
prevention. The Strategy objectives for drug law enforcement are:
? Aggressive investigation and prosecution of the full
range of criminal activities associated with drug
trafficking organizations, with emphasis on a full-scale
attack on the financial aspects of drug trafficking;
? Strong, coordinated anti-smuggling activities;
? Elimination of the production of illicit drugs in the United
States, including the cultivation of cannabis (marijuana);
? Reducing the diversion of legitimate drugs to illicit uses;
? Improving collection, analysis and dissemination of
accurate and timely intelligence concerning illicit drug
production and drug trafficking;
? Swift and just punishment of individuals involved in drug
trafficking and related criminal activities,
? Improving cooperation and coordination among Federal,
state and local law enforcement agencies; and
? Full involvement by all levels of law enforcement in
contributing to drug abuse awareness and prevention.
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Leadership and Coordination
The major expansion of Federal drug law enforcement during
the past three years includes new systems for developing and
coordinating policy and operations. The President has assigned special
responsibilities to the Vice President, provided for direct Cabinet
involvement through both the Cabinet Council on Legal Policy and the
Executive Board of the National Narcotics Border Interdiction System,
and designated a personal adviser to provide policy advice and
oversight of the overall national drug abuse program.
President Reagan has launched several major initiatives to
restructure and strengthen the national drug law enforcement effort.
In early 1982, he established the South Florida Task Force, a massive
effort in interdiction, investigation and prosecution headed by Vice
President Bush in the South Florida area. To provide similar
interdiction coordination on a national basis, the National Narcotics
Border Interdiction System (NNBIS) was established by President
Reagan on March 23, 1983. The Vice President chairs the cabinet-level
NNBIS Executive Board which coordinates the activities of those
Federal law enforcement agencies with responsibilities for
interception of seaborne, airborne and cross-border smuggling of
illicit drugs.
The Attorney General serves as chairman of the Cabinet Council
on Legal Policy and, as the Nation's chief law enforcement officer, is
responsible for the Federal drug law enforcement investigative and
prosecutorial programs. The Attorney General has established Law
Enforcement Coordinating Committees (LECCs) in all 94 Federal
judicial districts to focus Federal, state and local investigative and
prosecutorial resources on the most serious crime problems in the
district. Nationwide, the LECCs have identified drug trafficking as their
highest priority.
In October 1982, President Reagan announced a major national
program headed by the Attorney General to combat drug trafficking
by organized crime. The President's eight-point program included
regional Organized Crime Drug Enforcement (OCDE) Task Forces, a
Presidential Commission on Organized Crime, a Governors Project to
enlist the 50 state governors in the united campaign against drug
trafficking and organized crime, specialized training for state and
local law enforcement officials, the provision of new jail and prison
spaces, and legislative initiatives to effect passage of critical criminal
law reform.
The Strategy recognizes that law enforcement agencies working
together often can accomplish more than the same agencies working
separately. The Organized Crime Drug Enforcement program brings
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together the agencies' resources and expertise in a comprehensive
attack on major drug trafficking organizations. Thirteen enforcement
task forces have been established whose mission is to identify,
investigate and prosecute high-level members of drug trafficking
enterprises. Twelve of the Organized Crime Drug Enforcement Task
Forces are fully operational. On October 1, 1984, the Florida/Caribbean
task force will become operational, completing the program staffing.
The Threat and the Response
Drug trafficking is sophisticated and complex. A wide variety of
drugs are involved, most with several international sources. The traffic
in illicit drugs not only violates drug laws but also involves numerous
other criminal activities, including racketeering, conspiracy, bribery
and corruption of public officials, tax evasion, banking law violations,
illegal money transfers, import/export violations, crimes involving
firearms, and crimes of violence. The wide range of illegal activities
presents an equally wide range of vulnerability to law enforcement
action.
Fundamental to the overall Strategy is the Federal responsibility
for the investigation and prosecution of high level drug traffickers and
the destruction of their criminal activities. The Strategy continues to
emphasize expanding the involvement of every Federal enforcement
agency which has any capability for contributing to the fight against
drug abuse, including support to drug abuse prevention programs.
Fourteen Federal agencies are involved in the drug law enforcement
effort, along with approximately 14,000 state and local law
enforcement agencies and numerous counterpart organizations in
source and transshipment countries.
The 1984 Strategy calls for all Federal managers and employees
to seek continuing innovation in expanding the use and enhancing
the effectiveness of all available government resources and
jurisdictions in investigating and prosecuting illegal drug activities.
Private citizens are encouraged to demonstrate their concern and
support for strong law enforcement, including the reporting of illegal
drug production, sales or use to their local law enforcement agency.
Principal Federal Agencies, Roles and Missions
Drug Enforcement Administration (DEA). As the designated lead
agency, DEA is responsible for providing central leadership,
management and coordination for intelligence and investigative
functions relating to the suppression of illicit drugs. DEA responsi-
bilities include:
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? Investigation and preparation for prosecution of suspects
connected with illicit drug trafficking;
? Coordination and cooperation with other Federal
agencies, state and local law enforcement agencies, and
foreign drug law enforcement agencies;
? Regulation of legitimate manufacture and distribution of
controlled substances;
? Management of a drug intelligence reporting system
concerning illicit drug production and trafficking and the
extent and nature of drug abuse in the United States, in
cooperation with the health institutes; and
? Maintenance and reporting of statistics regarding all
Federal illicit drug seizures.
Federal Bureau of Investigation (FBI). On January 21, 1982, the
resources available to the Federal investigative effort were expanded
significantly when the Attorney General assigned to the FBI
concurrent jurisdiction with DEA to investigate drug offenses and
assigned to the Director of the FBI general supervision over drug law
enforcement efforts and policies. The FBI has added emphasis on drug
trafficking involvement by organized crime and conducts court
authorized electronic surveillance and drug-related financial and
public corruption investigations. The organized crime investigations
also involve international operations and the FBI has placed additional
assistant legal attaches overseas to coordinate with foreign authorities
in pursuing direct ties between organized crime figures in the United
States and other countries. The FBI legal attaches have also made
substantial contributions in international money laundering
investigations-
U.S. Customs Service. The U. S. Customs Service is responsible for
the processing and regulation of people, carriers, cargo, currency and
mail which pass into and out of the United States. As the primary
defense along our borders for detecting and intercepting drugs being
smuggled into the country, Customs has developed innovative
inspection, air and marine interdiction programs and works closely
with DEA in the development of intelligence and other cooperative
drug enforcement efforts. In addition, Customs authority for
enforcing laws related to the illegal transfer of currency across U.S.
borders has proven to be an effective weapon in the fight against
drugs. To facilitate the use of Customs resources, the Attorney General
authorized Customs agents to conduct drug investigative activities in
certain situations. The Customs Service is also active in international
activities, maintaining offices in selected locations overseas and
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developing bilateral agreements with foreign customs services for
reciprocal customs assistance, including intelligence sharing.
United States Coast Guard (USCG). The USCG is responsible for
enforcing Federal laws on the high seas and navigable waters of the
United States and its possessions. The USCG has expanded efforts
directed against maritime drug smugglers. Other interdiction
operations have been successfully completed within the territorial
waters of several Caribbean Basin countries in cooperation with the
responsible governments.
Other Agencies. Other Federal agencies are actively contributing
to the overall drug law enforcement effort. For example:
? The Internal Revenue Service (IRS) supports drug law
enforcement by pursuing income tax violations and
money laundering related to the financial aspects of
illegal drug trafficking. Because financial investigations
are often the only way government can reach the upper
echelons in criminal organizations, the IRS has been
effective against high-level traffickers, corrupt bankers
and financiers-
? The Bureau of Alcohol, Tobacco and Firearms (BATF) is
pursuing drug-related violations of Federal law
concerning firearms, destructive devices and explosives-
? The Federal Aviation Administration (FAA) assists in
pinpointing and intercepting airborne drug smugglers by
enhanced use of radar, posting aircraft lookouts and
tracking the movement of suspect aircraft through air
traffic control centers.
? The U.S. Border Patrol of the Immigration and
Naturalization Service (INS), which is responsible for
control of illegal entry of persons along our borders, and
assists in apprehending smugglers.
? The U.S. Marshals Service fills an essential support
function in drug law enforcement as custodian for
Federal prisoners and for the vast amounts of seized
property awaiting forfeiture, and through special
programs such as the Witness Protection Program and the
Fugitive Investigations Program.
? U.S. intelligence community agencies are providing
critical assistance to drug law enforcement by supplying
intelligence concerning the international aspects of drug
trafficking.
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? As a result of Congressional approval in 1981 of an
exception to the Posse Comitatus Act, the U.S. Armed
Forces are assisting in the drug interdiction effort. The
military services are providing support in the form of
equipment, intelligence and training. The Department of
Defense (DOD) has taken an aggressive role, consistent
with national security responsibilities, in providing
support to civilian law enforcement efforts.
Financial Investigations and Asset Forfeiture
The 1984 Strategy establishes a high priority for pursuing the
financial aspects of drug trafficking, including use of criminal and civil
forfeiture laws, currency laws, tax laws and international agreements
against tax evasion and money laundering.
The criminal forfeiture provisions of the Racketeer Influenced
and Corrupt Organization (RICO) and the Continuing Criminal
Enterprise (CCE) statutes and the administrative forfeiture provisions
authorized under the Controlled Substances Act are used by DEA and
the FBI in combating organized crime and drug trafficking. These laws
are especially effective against high echelon criminal elements who
are isolated from the actual distribution of drugs, but who direct,
control and profit from the drug traffic.
The Internal Revenue Service investigates tax evasion related to
the tremendous revenues generated by the illicit drug traffic. The IRS
also conducts investigations of the flow of funds earned by drug
traffickers and of the attempts by money laundering specialists to hide
the profits through highly sophisticated and intricate schemes. The
Customs Service investigates the unreported transfer of large amounts
of currency across U.S. borders in violation of currency reporting
requirements. Customs also makes extensive use of seizures and
forfeiture authority, directed at smuggling and currency violations.
State and foreign governments are encouraged to adopt and use
powerful criminal and civil forfeiture laws to combat organized crime
and the drug traffic. Thirty-six states have adopted all or some aspects
of a model criminal forfeiture law developed by DEA. States are
encouraged to use the money derived from asset forfeiture to
construct and operate prisons to handle the increase in prisoner
population. It should be noted that over 65 percent of the prisoners in
Federal prisons are incarcerated for violations associated with drugs
and alcohol.
Supporting the priority on financial investigations, the
Departments of Justice and Treasury are working with the
Department of State to enlist the cooperation of foreign
governments, particularly where bank secrecy laws are involved. An
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agreement has been reached with Switzerland and, through the good
offices of the British Government, with the Cayman Islands. Similar
agreements should be negotiated with Panama and other
international banking centers.
Drug Interdiction and Border Control
President Reagan has called for a "border policy that will
improve detection and interception of illegal drug imports. This will
include the use of available military resources for detection whenever
necessary." Border interdiction is an essential element of the drug law
enforcement strategy. Effective interdiction of drugs disrupts the illicit
supply and provides intelligence and evidence which can lead to the
destruction of major drug trafficking organizations. In addition,
effective interdiction demonstrates to the international community
that we are committed to stopping drug abuse in the United States.
The borders of the United States present a difficult control
problem in the 96,000 miles of land border and coastline in addition to
the many internal ports of arrival for international air cargo and
travelers. Large numbers of people and conveyances cross these
borders each year: over 309 million legal travelers, 50,000 vessels, 13
million tons of containerized cargo, and thousands of small vessels and
general aviation aircraft. All of these persons and conveyances are
subject to inspection by the U.S. Customs Service and the Immigration
and Naturalization Service. A balance is sought in inspections: a
sufficiently high level of inspection to deter drug smuggling while also
facilitating legitimate entry.
The challenge is to even the odds posed by logistics and the
covert nature of drug smuggling. Coordination and cooperation are
vital ingredients in accomplishing that objective. The border program
emphasizes major cooperative interdiction efforts which utilize all
available resources, including enhanced intelligence and military
support, to detect and intercept illicit drugs before they are smuggled
into the United States.
Interdiction activities on the high seas, along U.S. borders, and at
ports of entry have been expanded significantly, both in the priority
use of resources and advanced technology for detection and
apprehension. Coordinating mechanisms have been established and
investigative and intelligence followup expanded. The South Florida
Task Force, headed by Vice President Bush, demonstrates what can be
accomplished when the various agencies join forces in a unified attack
on the drug traffic. The creation of the Task Force represented an
immediate response to the burgeoning problem of illegal drugs
entering the United States by air and sea in South Florida and of
escalating incidents of violence perpetrated by the organized crime
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groups operating in the area. Since February 1982, the BATF, Coast
Guard, Customs Service, DEA, FAA, FBI, INS, U.S. Attorneys Office,
Department of Defense, and state and local authorities have each
brought their unique resources, jurisdictions and expertise to the
effort, which also included temporary augmentation of the judicial
system.
On October 2, 1982, President Reagan said, "We're undertaking a
narcotics policy that might be termed 'hot pursuit.' We're not just
going to let them go somewhere else; we're going to be on their tail."
The intensity of the enforcement effort in South Florida changed
many of the trafficking routes and methods used by smugglers in that
area.
The coordinated interdiction effort was expanded to all borders
of the United States on March 23, 1983 when the President created the
National Narcotics Border Interdiction System. NNBIS is not an
operational agency, but was established to oversee and coordinate
the border interdiction operations of the several involved Federal
agencies. Operational coordination at a regional level is provided by
six regional NNBIS Operations Centers, which are staffed by personnel
from the Coast Guard, Customs Service, DEA, FBI, INS, Marshals Service,
the military services and the intelligence community. Local law
enforcement is also represented in the Miami, New Orleans, El Paso
and Long Beach centers.
Military Support of Drug Law Enforcement
While military personnel are prohibited from engaging directly
in civilian law enforcement, e.g. search, seizure, etc., legislation
enacted in December 1981 allows the use of available military
resources in furnishing information and equipment support to civilian
law enforcement agencies, providing that such support does not
adversely affect military readiness. The military services have
expanded their support of border interdiction efforts and a coordi-
nator has been assigned within the Office of the Secretary of Defense.
Navy and Air Force radar aircraft are flying surveillance missions
to detect drug traffickers offshore in support of the Coast Guard and
Customs Service. Navy ships operating in coastal waters are constantly
vigilant for suspect vessels and some carry Coast Guard tactical law
enforcement teams which board suspect vessels. The U.S. Marine Corps
has been operating aircraft for night-time detection of drug
smugglers. Air Force aircraft are flying frequent training missions in
support of the drug enforcement community. The Air Force provided
the Customs Service access to all information obtained from the
combined Air Force/FAA Joint Surveillance System and from two
balloon-borne radars which provide coverage off the Florida Coast.
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Two Air Force helicopters support a highly successful joint interdiction
effort conducted by the Bahamian and United States Governments.
The Army has loaned aircraft to the Customs Service, including the
state-of-the-art UH-60 (Black Hawk) helicopter and assists Customs in
the southwest border region by sharing information obtained during
training missions. The Strategy calls for continuing cooperation and
support from military resources, consistent with national security
readiness requirements.
Areas for Special Attention
The Strategy calls for additional law enforcement attention,
including research and development, in the areas of:
? Detection of illegal drug shipments in legitimate cargo;
? Added deterrents to smuggling by general aviation
aircraft, including stronger penalties for violators;
? Denying entry visas to any foreign national who has a
drug violation or is involved in drug trafficking;
? Use of all potential sources in collection of interdiction
intelligence, both in foreign countries and within the
United States;
? Improved detection capability throughout our border
areas against attempted intrusions by air, land and sea;
and
? An expanded coordinating role for the El Paso Intelli-
gence Center (EPIC).
An area which has not received the full attention of law
enforcement agencies is the transportation of illicit drugs within the
United States. Large drug shipments which enter the United States
must be transported to their destination via the Nation's highways or
by air, rail or other means of transportation. The States of New Jersey
and New Mexico have pilot programs directed toward drug shipments
on major highways. The 1984 Strategy calls for Federal agencies to
work with state and local officials whenever possible to assist them in
developing innovative programs to detect and intercept illicit drug
shipments in transit within the United States.
National Training Center
On March 22, 1983, the Attorney General and the Secretary of
the Treasury signed an agreement establishing the National Center for
State and Local Law Enforcement Training at the Federal Law
Enforcement Training Center (FLETC) located in Glynco, Georgia. The
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Center supplements other training programs provided by the BATF,
Customs, DEA and FBI and includes instruction in combatting drug
smuggling and other illegal activities associated with organized crime.
Approximately 1,000 state and local law enforcement officers
completed training during the Center's first nine months of
operations.
United States Attorneys
The United States Attorneys conduct the prosecution in Federal
Court of drug trafficking and connected illegal activities. In addition,
the United States Attorneys provide coordination of major drug
investigations to ensure that the court cases produced will be
successfully prosecuted.
The U.S. Attorneys have established Law Enforcement
Coordinating Committees in Federal judicial districts at the direction
of the Attorney General. These are the primary mechanisms for
ensuring an effective balance between regional and national priorities
and resources. Through the LECCs, the heads of Federal, state and
local law enforcement and prosecutorial agencies collectively assess
the crime problems in each district and determine how best to use
available resources to attack those problems. Cross-designation of
local prosecutors as Federal prosecutors is now a frequent occurrence
in cooperative investigations and prosecutions. Several U.S. Attorneys
are sponsoring major drug abuse prevention programs within their
districts.
The Strategy calls on prosecutors at all levels of government to
aggressively prosecute drug criminals and to present drug cases in the
Federal, state or local judicial system best suited to provide swift and
certain justice.
Domestic Cannabis Eradication
An integral part of the National Strategy is the eradication of
illicit drugs wherever cultivated or processed. Domestic cultivation of
cannabis was estimated to supply 1,500 metric tons or 11 percent of
the marijuana available in the United States in 1983. Some marijuana
production occurs in every state and this illegal activity breeds
contempt for the law, threatens public safety, and creates the
potential for violence and public corruption. Even the sensationalism
surrounding illicit cannabis cultivation has been detrimental to the
drug abuse prevention program, with greatly exaggerated estimates
of commercial value of illicit cannabis cultivation being argued by
pro-drug elements as justification for legalization.
Even though current domestic production is a relatively small
part of the overall supply, a strong eradication program is necessary so
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that the success in reducing supplies from foreign areas will not be
offset by increased production from domestic sources. Further, the
United States has undertaken a vigorous foreign policy to encourage
other nations to meet their drug control responsibilities under the
Single Convention on Narcotic Drugs of 1961. The United States has an
obligation, as a signatory to the treaty, to set the example for its own
citizens and for the international community.
Domestic cultivation of cannabis requires the attention of all
levels of government; however, the nature of domestic production
places it primarily within the jurisdiction and capabilities of state and
local authorities. To assist these local efforts, the Federal government
provides advice, coordination and technical support. Federal agencies
eradicate cannabis cultivation on Federal lands. The Federal
government also directly prosecutes cases of commercial cultivation
where major drug traffickers are involved or where state penalties are
inadequate in the particular situation. Using the most sophisticated
detection technology, Federal agencies develop intelligence on the
location of cultivation sites and on production and distribution
systems. This information is furnished to state and local law
enforcement officials.
The DEA coordinates the national Domestic Marijuana
Eradication and Suppression Program which promotes information
sharing and provides training, equipment, investigative and aircraft
support to state and local enforcement officers. The U.S. Forest Service
and the Bureau of Land Management are involved in a major effort to
eradicate cannabis being cultivated on Federal lands.
The use of herbicides for the eradication of cannabis is
encouraged whenever feasible and environmentally sound. Despite
concern regarding the possible health consequences of using
herbicides on cannabis, not one case of health injury attributed to the
presence of herbicide in a marijuana cigarette has been found.
However, the serious health problems caused by marijuana itself are
well documented. Therefore, the Administration is committed to
eliminating the production of marijuana in the United States and
supports the eradication of the cannabis plant by appropriate means,
including chemical herbicides.
The seriousness with which Federal authorities view the domestic
production of marijuana is well illustrated by the fact that a 1983 case,
involving four growers and approximately 4,400 cannabis plants, was
personally prosecuted by the United States Attorney in Sacramento,
California.
The 1984 National Strategy calls for continued strengthening of
the national eradication program through training, technical
assistance and intelligence support. The Strategy calls for concerned
private citizens to report the location of suspected marijuana
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production to their local law enforcement agency. The Strategy also
calls for strong penalties for those who are producing or selling
marijuana.
Diversion Control
The misuse of legitimate drugs is a major cause of drug-related
medical emergencies and deaths, particularly when used in
combination with alcohol. Several drugs are involved and the
numerous potential sources of these drugs are almost as varied as the
substances abused. The drugs may be obtained from the family
medicine cabinet or misused following legitimate prescription,
diversion from legitimate manufacturing and distribution channels,
theft and illegal dispensing by unscrupulous practitioners. The
popularity and marketability of certain types of these drugs, such as
methaqualone and methamphetamine, have resulted in large-scale
clandestine manufacture or diversion into international trafficking
channels.
The Administration's efforts to stem the diversion of
pharmaceutical drugs have met with considerable success during the
past three years. Reductions in the illicit manufacture and diversion of
methaqualone (Quaaludes) have been especially notable. In 1979,
methaqualone, a powerful addicting sedative/hypnotic used in
medicine to treat insomnia, became a fast-growing U.S. drug abuse
problem affecting mostly middle class teenagers and young adults.
The drug was being manufactured in the United States and produced
widely overseas, with major illicit diversion and subsequent smuggling
into the United States. An extensive effort, using diplomatic channels
and law enforcement operations and supported by the United States
Congress, persuaded numerous foreign countries to cooperate. Law
enforcement efforts simultaneously cut the illicit production of the
drug in the United States. As a result of this comprehensive effort,
illicit methaqualone has nearly disappeared from the traffic in 1984
compared to 1980 when an estimated 120 to 150 metric tons were
smuggled into the United States. During this same period, the U.S.
manufacturers have voluntarily taken licit methaqualone off the
market.
The following chart demonstrates the remarkable change in
hospital emergency room mentions associated with methaqualone.
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Methaqualone
Emergency Room Mentions, 1978-1983 (by Quarter)
1
1
1
ER Mentions Reported by ALL DAWN Facilities
ER Mentions Reported by a Panel of DAWN Facilities
The diversion of other controlled pharmaceutical drugs from
legitimate uses into the illicit drug traffic and the illegal manufacture
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and distribution of such substances continue to be serious law
enforcement concerns. DEA enforces the Controlled Substances Act
and works with other Federal agencies, such as the National Institute
on Drug Abuse, the Food and Drug Administration and the
Department of State, and with state and local authorities to develop
and administer appropriate quotas, scheduling of drugs and other
controls which will prevent diversion, while at the same time ensuring
that adequate quantities of these drugs are available for legitimate
medical uses. Increased emphasis is being placed on criminal
investigation of health care professionals who are trafficking in drugs.
There has been notable success in the investigation of "storefront"
medical clinics and "stress clinics."
Special programs, such as the Targeted Registrant Investigations
Program (TRIP), have been implemented to stop the increasing
problem of practitioner diversion and to develop high-impact criminal
investigations of major practitioner violators. In addition, DEA has
been working with the American Medical Association to aid the states
in identifying the nature, magnitude and source of prescription drug
diversion and abuse within their jurisdictions.
President Reagan has submitted legislation to Congress
containing Diversion Control Amendments which will, among other
things, strengthen the ability of the Federal government and the
states to deal with the diversion of pharmaceutical drugs. Passage of
this legislation will provide opportunities for innovative action.
Additionally, President Reagan signed into law on May 30, 1984
legislation which makes theft of drugs from pharmacies or medical
professionals a Federal crime.
Clandestine Laboratories
Clandestine laboratories supply all of the hallucinogens, nearly
all of the methamphetamines and about 80 percent of the
amphetamines available on the U.S. illicit market. Detection of
clandestine drug manufacturing operations is the joint responsibility
of Federal, state and local law enforcement.
A system for monitoring precursor chemicals required for the
production of illicit dangerous drugs is well established, including
ongoing liaison with and the voluntary compliance and support of
precursor manufacturers and distributors. in the past two years,
several initiatives have been undertaken to improve the effectiveness
of this system. A Precursor Chemical Information System was
developed and programmed to automate information resulting from
the precursor reporting system and case information. In 1983, a
working group representing DEA Agents and Chemists, FBI Agents
and local police developed 30 items to improve safety, health and
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investigative technology for detection and dismantling of clandestine
laboratories.
The 1984 Strategy calls for increased Federal, state and local law
enforcement action against clandestine laboratories. Efforts should
include sharing information and technical assistance, as well as
continued cooperation in the investigation and prosecution of major
violators.
Drug Intelligence
Timely and reliable intelligence on drug abuse, drug production
and drug trafficking enhances the effectiveness of the numerous
elements involved in implementing the National Strategy. Strategic
intelligence, which represents our collective knowledge and
experience concerning drug trafficking and abuse trends, identifies
those areas and activities upon which anti-drug resources can have
the greatest impact. Essential to policy development, strategic
intelligence also provides the framework within which individual
agencies may more effectively deploy resources and plan operations.
Operational intelligence identifies specific individuals and
organizations responsible for the importation and distribution of illicit
drugs, defines the extent of their criminal activity, and, as a
by-product, provides valuable details on drug trafficking
organizations. Tactical intelligence provides information concerning
anticipated drug or drug-related criminal acts so that enforcement
agencies can take effective action.
Executive Order 12333, signed by President Reagan on Decem-
ber 4, 1981, increased intelligence collection resources available to the
anti-drug effort by authorizing the U.S. intelligence community, in
accordance with law, to collect, produce and disseminate intelligence
on the foreign aspects of narcotics production and trafficking.
Intelligence community support has increased the accuracy of strategic
drug intelligence and added an important new dimension to efforts
against the international drug traffic.
Traditionally, the United States has established a clear separation
between foreign intelligence activities and intelligence collection
within the United States. However, narcotics law enforcement
intelligence must include both foreign and domestic intelligence
information because of the nature of illicit drug trafficking. Therefore,
DEA was assigned responsibility for developing and managing a
national narcotics intelligence system in cooperation with Federal,
state and local authorities and with foreign law enforcement officials.
The system must meet the needs of a wide range of public and private
sector consumers, including law enforcement officers, diplomats,
managers, policy makers, legislators and the public.
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To provide the best features and capabilities of both foreign and
domestic intelligence, the National Narcotics Intelligence Consumers
Committee (NNICC) was established. The NNICC is the primary vehicle
at the national level for the review and dissemination of strategic drug
intelligence. The 11-agency NNICC works with the U.S. foreign
intelligence community in developing an annual report on the
production, supply and consumption of illicit drugs entering the U.S.
market and the money associated with this traffic. The annual report is
the result of a coordinated interagency effort to collect, analyze,
evaluate and disseminate drug intelligence in an authoritative way.
The El Paso Intelligence Center (EPIC) is the national center for
drug interdiction and other border enforcement information.
Agencies participating in the 24 hour daily operation of EPIC,
managed by DEA, include BATF, Coast Guard, Customs, FAA, FBI, INS,
IRS and the Marshals Service. Additionally, law enforcement agencies
from 49 states are members and share information with EPIC.
Other intelligence activities supporting drug law enforcement
include the Treasury Financial Law Enforcement Center, the Coast
Guard's Inter-American Maritime Intelligence Network and others.
An effective intelligence system is itself a source of coordination
for the drug law enforcement effort and contributes to effective
enforcement action and sound policy development. The 1984 Strategy
emphasizes continued refinement of the intelligence necessary to
support investigative and interdiction priorities, diplomatic initiatives
and international drug control programs, policy formulation,
management and the development of future national strategies
against drug abuse and drug trafficking.
The 1984 Strategy also calls for the DEA, as lead agency, to
develop objective statistical means for central reporting of the
accomplishments of the Federal government in drug law enforcement
and prosecution, including establishing a central system for
maintenance and timely dissemination of statistics regarding drug
seizures by Federal agencies.
Criminal Justice
The ultimate test of the effectiveness of the drug law
enforcement effort rests with the Nation's judicial and penal systems.
On September 21, 1981, President Reagan told the International
Association of Chiefs of Police: "There has been a breakdown in the
criminal justice system in America... All too often repeat offenders,
habitual law breakers, career criminals, call them what you will, are
robbing, raping and beating with impunity and, as I said, quite literally
getting away with murder." Since the beginning of his
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Administration, President Reagan has worked to correct this
imbalance in our criminal justice system.
A fundamental challenge is posed to our government and our
society if criminals are permitted to exploit the very provisions of our
criminal justice system which were designed to protect the innocent.
The lack of a strict standard of justice for convicted criminals negates
the efforts of state, local and Federal law enforcement officers and
prosecutors; undermines the strength of our international initiatives
to eliminate the production and transshipment of illicit drugs; and
erodes the effectiveness of citizen efforts to reduce the demand for
drugs. Meeting the challenge requires the cooperative resolve of the
three branches of government and citizens from every segment of our
society.
To the extent possible, weaknesses in our legal system must be
corrected by legislative action. On October 14, 1982, as part of his
major eight-point program against organized crime and drug
trafficking, President Reagan announced that the Administration
would open a new legislative offensive designed to provide critical
criminal law reforms. On March 16, 1983, President Reagan submitted
to Congress the Comprehensive Crime Control Act of 1983. This
omnibus criminal justice proposal consists of urgently needed reforms
of criminal statutes which would enable the United States to fight a
more effective war against all forms of crime and particularly against
organized crime and drug trafficking. The full support of our citizens
and the cooperation of the Congress in reforming our criminal justice
laws will greatly enhance the effectiveness of drug law enforcement.
The judicial branch of government also has a critical role to play
in deterring drug trafficking and related crime. Judges, probation
officers and parole boards should give full recognition to the
seriousness of drug offenses. Judges should provide for strict
sentencing, to include just punishment for first offenders in drug
trafficking cases.
Community Action
The law enforcement community shares the responsibility with
other citizens and government officials in working "to make a crucial
difference in the lives of future generations." Long-term success in
stopping drug abuse and drug-related crime in our society depends
upon action by all segments of our society to make drug abuse
unacceptable behavior and eliminate the demand for illegal drugs.
Law enforcement officials throughout the country have long
recognized the important role they play in supporting parents,
teachers and other concerned citizens who are working to reduce the
demand for drugs. Law enforcement officers have special expertise
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and information to help private groups deal with drug abuse and drug
dealing in their communities. The Customs Service, DEA and FBI are
sponsoring prevention initiatives including assistance to parent
groups; the development and dissemination of special publications;
and encouraging professional athletes both to eliminate drug abuse in
professional sports and to participate in the prevention effort by
providing healthy role models for our Nation's youth. In addition, law
enforcement agencies are actively working with health care
professionals to prevent the diversion of legitimate drugs to the illicit
drug traffic and the misuse of pharmaceuticals after legitimate
prescription.
The reverse is also true. Support from the private sector is
important in the fight against crime. Individual citizens are supporting
strong law enforcement through their Federal and state congressional
representatives and by learning about the drug problem and what
they can do to stop it in their communities. Parents have formed
"court watch" groups designed to ensure strict and uniform
punishment for drug offenses.
Our Most Powerful Weapon
The story behind the South Florida Task Force exemplifies the
ability of government and private citizens, working together, to end
the drug problem and cripple organized crime. The Task Force was
initiated in response to the citizens of South Florida - citizens who
took strong personal action to rid their community of the rampage of
violence brought by the drug traffic. Their effectiveness in
accomplishing what seemed impossible was described by President
Reagan on November 17, 1982 in a speech to the Miami Citizens
Against Crime, "Through a wide range of self-help measures, you
mobilized all the resources of home, neighborhood and community
for the battle against drug smugglers and their criminal associates.
And in doing all this, you tapped the real strength of our political
system - the spirit, energy and will of everyday people who, acting
through their private social institutions as well as their political system,
achieve far more than any government planner or bureaucratic
dreamer could ever hope to achieve."
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V. INTERNATIONAL
COOPERATION
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V. International Cooperation
Introduction
President Reagan has fulfilled his pledge to establish "a foreign
policy that vigorously seeks to interdict and eradicate illicit drugs,
wherever cultivated, processed or transported." Our international
narcotics control program is an integral part of the total effort by the
U.S. Government to stop drug abuse by reducing both availability and
use of illicit drugs in the United States. Fundamental to the overall
supply reduction effort is eliminating illegal drugs as close to their
source as possible.
The international response to our policy of "get tough on drug
criminals" is encouraging. Key source and transit countries have
initiated aggressive efforts to stop drug production and trafficking.
Major law enforcement and eradication initiatives have begun in
Colombia and Peru; Pakistan has taken steps to gain control over
opium production in all jurisdictions, including nominally autonomous
tribal areas; and Burma and Thailand's military forces have attacked
opium traffickers in their border areas. Italy has established laws to
seize and forfeit illegal drug profits; and Canada, Malaysia, Hong
Kong, Singapore and Thailand are pursuing similar legislation. A
mutual assistance treaty between the United States and Switzerland
provides for exchange of banking information; similar treaties are
being negotiated with Colombia and Italy and are under discussion
with Panama, Jamaica and the Netherlands Antilles.
The response by other nations to the efforts of the United States
is evidence of the growing understanding that drug abuse is truly an
international problem, with adverse social, political, and economic
impacts on producer and transit nations, as well as on the consumer
nations.
Achieving control of illicit production is a formidable challenge
because the worldwide supply of marijuana, cocaine, heroin and other
drugs is large and complex. Production sites are widely distributed
and often found in areas which are not policed or effectively
controlled by the central government.
The 1984 Strategy of the United States continues a multi-faceted
approach encompassing the international aspects of drug abuse:
? The cultivation, production and distribution of licit and
illicit drugs;
? The flow of profits associated with illicit drugs, including
the laundering of illicit profits through the legitimate
banking and commerce systems, the use of narcotics
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profits to support political insurgencies, and the use of
such profits to promote other criminal activities; and
? The effects of the drug trade and drug abuse on other
countries as well as the United States.
The U.S. international narcotics control program is based on
convincing foreign governments to control cultivation, production
and refining of illicit drugs, and to assist in narcotics control by
providing aid for crop control and other law enforcement activities,
complemented where appropriate by developmental activities.
The international program is designed to spur mutual concern
and shared responsibility that will provide long-term improvement,
both in the availability of a wider range of resources from a greater
number of donor nations and in diplomatic initiatives which promote
the political will necessary to control drugs.
The Strategy calls for leaders and governments worldwide to
condemn illegal drugs and to take aggressive action to stop
production, transport and use of such drugs. Where it is necessary and
appropriate, the Strategy calls for U.S. decisions on foreign aid and
other matters, such as refinancing of debt, to be tied to the willingness
of the recipient country to execute a vigorous enforcement program
against narcotics traffickers, including the people associated with
producing, transporting or profiting from illegal drugs.
The financial aspects of the illicit drug traffic are as damaging as
the production and smuggling of the illegal drug material. The multi-
billion dollar illicit drug traffic breeds corruption; undermines political
processes, government stability and economies; and plagues societies
with acts of terrorism and other violent crime. The Strategy calls for
the illegal financial activities associated with drug trafficking to
receive a high level of attention and cooperative action by law
enforcement agencies and by the regulators of the banking industry,
nationally and internationally.
Definitions and Basic Principles
The international program is built on the foundation established
early in this Administration:
Drug abuse is a major national and international issue, having
adverse social, political and economic impacts on producer and transit
countries, as well as the consumer nations. The United States rejects
any contention that drug abuse is uniquely an American problem, or
uniquely a problem of Western civilization, or that the United States
has the primary responsibility for eliminating illicit drugs. It is
incumbent on the source and transit countries, in their self-interest, to
undertake narcotics control programs .
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Each country has the responsibility for reducing the supply of
illicit drugs within its own borders. The Single Convention on Narcotic
Drugs and the Convention on Psychotropic Substances provide an
international drug control framework for signatory nations. The
major producer nations are signatories to the Single Convention which
requires them to establish controls limiting the production,
manufacture and distribution of opium, coca, cannabis and their
derivatives. Signatories of the Psychotropic Convention are required
to establish controls on the importation and exportation of
psychotropic substances such as amphetamines, methamphetamines,
methaqualone, and barbiturate substances. All non-signatory nations
have been requested by a United Nations resolution to establish
similar controls.
The international community should assist those nations which
require help. For both political and economic reasons, some countries
need help in solving drug problems. As a concerned member of the
world community and as a nation experiencing the effects of drug
abuse, the United States supports a program of bilateral and
multilateral assistance for crop control, interdiction and demand
reduction programs. The United States will continue to exercise
leadership and to support narcotics control programs throughout the
world. The international community must also exert leadership and
provide greater support for international narcotics programs. We
encourage other governments, especially the governments of other
industrialized nations, to participate fully in international control
efforts.
Illicit drug cultivation and production must be controlled at the
source. The United States Government is applying more emphasis on
crop control at the source in bilateral programs and is encouraging
inclusion of crop control provisions in programs sponsored by other
donors and international organizations.
Objectives
The key objectives of the international strategy are:
? Strengthening United States efforts to assist foreign
governments in stopping the production and
transportation of illicit drugs and improving interdiction
efforts in transit nations;
? Encouraging and assisting governments of producer
countries to undertake crop control programs as the most
effective means of curbing production;
? Developing innovative mutual assistance treaties with
foreign governments, directed at facilitating judicial
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actions against the drug trade, seizing assets derived
from drug trafficking, eliminating banking procedures
which hide illicit drug transactions, and extradition and
other legal arrangements;
? Encouraging other nations to support international
narcotics control programs, financially and with other
resources, including developmental assistance linked
with crop control and cooperative law enforcement
efforts;
? Encouraging international organizations and
development banks to link their assistance with narcotics
control objectives, where appropriate; and
? Curtailing the diversion of pharmaceuticals and chemicals
from legitimate international commerce.
Diplomatic Initiatives
The U.S. diplomatic challenge is to raise international awareness
of the illicit drug problem and encourage increased action by affected
governments -- producer nations, transit nations and consumer
nations. The United States will continue to pursue all avenues to
stopping illegal drugs, including:
? Diplomatic initiatives by the President, the Vice President,
the Secretary of State, other Cabinet officers,
Ambassadors, and by the senior officers of Federal
departments and agencies;
? Crop control, enforcement, demand reduction,
development assistance and information exchange
programs;
? Multilateral efforts through international and regional
organizations, research and intelligence activities; and
? Agreements with producer and transit nations.
Diplomatic initiatives are the essential first step in the
international process, and these efforts are directed toward two broad
objectives: improving and strengthening our relationships with the
primary drug producing and transit countries and encouraging
international participation by other developed nations. A prerequisite
to a successful control capability and a necessary objective in several
countries is building and sustaining the political will and commitments
of their governments to achieve progress in illicit drug control.
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The Strategy emphasizes crop control through bans on illicit
cultivation and containing licit production to remain within legitimate
needs, enforced where appropriate by destruction of illicit crops. The
Strategy also emphasizes the importance of disrupting the
transportation of illicit drugs at every opportunity, within the source
countries, in transit countries along the trafficking routes and at any
border crossing while being transported.
While unilateral initiatives by the United States are necessary and
continuing, there is a continuous diplomatic effort to secure the
cooperation of other governments to undertake parallel bilateral
initiatives, or join together in multilateral approaches. There is an
expanding new community of interest as source countries and other
major donor and industrialized nations become increasingly affected
by internal drug abuse problems and adverse economic, criminal
justice and political problems associated with the drug trade. The
Strategy builds upon that community of interest to create a truly
international approach to narcotics control.
The United States also recognizes the interdependence of the
domestic and international control policies. The credibility of
international diplomacy depends in part on the effectiveness of our
domestic program in fulfilling the same treaty obligations which the
United States urges other nations to meet. The U.S. Government is
bound by treaty to control production and trafficking of illicit
substances within our borders and has begun an aggressive program
to eliminate illegal drug production within the United States.
The United States will encourage and support foreign
government programs to eradicate illicit drug crops by chemical
spraying and other means. The destruction of illicit crops as well as
strong investigative and interdiction measures are key to reducing the
supply of illicit drugs.
Roles and Functions
Section 481 of the Foreign Assistance Act established an
international illicit drug control function under the direction of the
President. The President's functions of negotiating, concluding,
amending and terminating international agreements related to illicit
drug control have been delegated through the Secretary of State to
the Assistant Secretary for International Narcotics Matters. Under
Public Law 87-195, the President may suspend economic and/or
military assistance for reasons of non-cooperation on narcotics
control.
As the Federal agency responsible for coordinating the United
States drug control efforts overseas, the State Department's Bureau of
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International Narcotics Matters (INM) works toward enlisting foreign
government cooperation in a variety of ways:
? Diplomatic efforts to develop international support for,
and commitment to, joint illicit drug control activities;
? Bilateral assistance for crop control and interdiction
programs in the form of equipment, training and
technical advisory services to support local efforts;
? Participation in international organizations to increase
drug control efforts in licit and illicit drug producing
countries, especially in those countries where U.S.
bilateral influence is less effective;
? Training programs, funded by INM and conducted by
DEA, Customs and the Coast Guard for foreign personnel
in illicit drug control functions to strengthen interdiction
and enforcement efforts,
? Guidance, coordination, and support of the work aboard
of all United States Government agencies involved in
illicit drug control; and
? International demand reduction technical assistance
efforts.
The Drug Enforcement Administration (DEA) provides
consultation, technical assistance and training to drug law
enforcement officials in foreign countries, participates in the
collection and sharing of international narcotics data, and, where
authorized, assists in investigations. DEA's Foreign Cooperative
Investigations Program also includes coordination of matters
regarding extraditions and supports the prosecution of selected drug
law violators in foreign countries and in the United States. DEA
technical assistance and consultation with foreign governments covers
the broad range of narcotics enforcement activities, including
development of cases and investigative techniques needed for
monitoring financial flow and money laundering. In major program
countries, both DEA and INM representatives are members of the
country team which is under the direction of a narcotics coordinator,
frequently the Deputy Chief of Mission.
The Federal Bureau of Investigation (FBI) also contributes to the
international effort through liaison with foreign counterparts and
exchange of information regarding involvement of organized crime in
drug trafficking and money laundering investigations. The U.S.
Customs Service and the Internal Revenue Service station officers in
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several key drug producing countries and maintain liaison with
foreign counterparts.
The Agency for International Development (AID) works with INM
in designing and implementing foreign assistance programs related
directly and indirectly to drug problems in developing nations. AID
assistance is particularly focused on rural development programs in
traditional growing regions. The alternative agricultural and other
economic pursuits made possible by AID funds are, in many countries,
the key to cooperation on eliminating cultivation of illicit narcotics.
The United States policy is that development assistance will be
provided, where circumstances warrant and where budgetary
limitations permit such assistance, to countries which are major
producers or transit areas for illicit drugs. Agreements on
development assistance should be accompanied by controls on
production and controls to ensure that the funds generated do not
become subsidies for growers or traffickers.
The United States Information Agency (USIA) provides public
affairs support through its posts in U.S. embassies in countries where
illicit drug production and/or trafficking has been identified as a
priority issue. USIA conducts programs on drug-related issues aimed at
a variety of influential audiences in these countries. The programs are
designed to reflect U.S. concern about drug abuse and our
determination to do something about it; U.S. activities which address
the problem; and the need for international attention to drug
problems. USIA uses satellite broadcasting and the full range of its
communications resources, including the Voice of America, a world-
wide press service and television production, to carry its message to
foreign audiences. It also supports local programs by acquiring and
adapting U.S. materials on drug abuse prevention and control for
overseas use; selects key people in the international drug field for
professional exchange programs in the United States; and programs
U.S. specialists in drug-related fields for seminars, conferences and
other activities before selected audiences in key countries.
The National Institute for Drug Abuse (NIDA) is an important
technical resource, sharing information with health service officials
around the world on treatment and prevention practices and
epidemiological methods and findings. The Department of
Agriculture has played key roles in crop substitution programs,
research on agricultural alternatives to narcotics crops, and in advising
on herbicidal eradication programs. Other units within the State,
Treasury and Justice Departments also have drug-related concerns,
including off-shore haven banking. DEA, the FBI and Customs have
conducted successful, long-term investigative actions against illegal
cash flows. State and Justice are actively exploring with various
Caribbean countries the possibility of concluding agreements such as
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mutual legal assistance treaties to strengthen bilateral cooperation on
law enforcement matters, including the sharing of financial
information. These agreements and aggressive follow-up by law
enforcement agencies will receive a high priority during the
implementation of this Strategy.
Finally, U.S. bilateral economic and military assistance, loans
through the multilateral development banks, and assistance in the
form of Export-Import Bank financing, commodity assistance, and the
various loan, insurance and guarantee programs of U.S. agencies have
both directly and indirectly enhanced achievement of international
narcotics control objectives. At a minimum, such assistance and
support have improved bilateral relations and thereby created a more
positive climate for achieving narcotics control objectives.
Crop Control
Crop control can take many forms: chemical eradication, which
has been used by Mexico in its opium and cannabis control programs,
by Colombia and Belize to control cannabis, and by Peru to control
coca cultivation; manual eradication, which has been used to control
opium poppies in Burma, cannabis in Mexico, and coca and cannabis in
Colombia; or government bans on cultivation which are enforced in
Turkey and Pakistan (the latter supported by eradication).
In negotiations with producer countries, the United States
assigns its highest priority to crop control, recognizing that
comprehensive crop control agreements may not be possible in all
areas. The United States is reliant upon agreements with and effective
action by host governments. The current political situation makes it
difficult for the United States to deal directly with Laos, Afghanistan
and Iran, all illicit opium producers.
Illicit drug production generally occurs in remote areas of the
producing countries - areas which are often beyond the effective
control of the central government, populated by people who have
traditionally cultivated these crops and whose basic economic self-
interest outweighs their consideration of the problems created by
their harvests.
The conditions which are considered ideal for achieving control
are:
? An awareness and acceptance by the central government
of the national and international effects of their
domestic cultivation and production; and
? A government which has the political will and capability
to enforce control policies.
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These conditions, which were critical to the success of the control
programs in Turkey and Mexico, are not universally present in other
producer countries.
The United States strategy, therefore, involves several steps. As a
first step, the United States pursues diplomatic means to heighten the
awareness of the governments of producer countries of not only the
international effects of this cultivation and production, but also the
internal effects on their own people. Such efforts are currently being
enhanced by the increasing awareness by some governments of their
domestic drug abuse problems created by this production.
The next step is to encourage the government to demonstrate its
commitment to crop control through scheduled reductions in
cultivation and production. The United States attempts to enhance
this effort by producer countries to meet their international
obligations - and to bolster their political willingness -- through
bilateral programs and through multilateral programs and diplomatic
efforts directed through other governments and/or international
organizations.
These efforts may include developmental and other forms of
economic assistance, such as income replacement programs. However,
the primary responsibility for action rests with the government of the
producer country. Foreign assistance cannot be a substitute for
political will, adequate laws and a concerted effort by such
governments to achieve control of production and distribution.
Development Assistance
Development assistance can be an effective component of a
control program. An illicit drug producing area is usually an
underdeveloped region in a country. Development programs can
produce alternative sources of income for the farmers and also
increase a host government's ability to institute measures against illicit
drugs.
The social, political and economic consequences of change must
be considered in developing a drug control program. Reducing the
economic incentive to grow illicit crops, as part of a long-term goal of
controlling production, has increased in strategic importance during
the past decade. While law enforcement and technological assistance
may greatly improve a nation's ability to destroy illicit crops or
interdict drug shipments, production in some areas is likely to
continue unless the people involved are offered reasonable economic
alternatives. Income replacement programs, including crop
substitution, are useful for farmers whose involvement in illicit crop
production may be their only source of income. In some countries,
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such development assistance is essential to obtaining and
implementing the control agreement.
Drug-related development assistance agreements should be
planned with the full involvement of host governments and
conditioned upon concurrent agreements to reduce illicit drug
production and evidence of the host government's commitment.
Enforcement Assistance
Another major goal in the international program is to encourage
concurrent, strong enforcement and control measures by the host
government in all source and transit countries. The Strategy includes:
? Cooperation with foreign drug control agencies
including collection and sharing of intelligence on illicit
drug production and trafficking,
? Bilateral assistance for equipment, training and technical
services designed to strengthen the foreign drug control
program; and
? Participation in and support for international and
regional organizations concerned with drug control.
Cooperative activity with foreign law enforcement agencies,
including the stationing of U.S. personnel abroad to provide advice,
training and technical assistance, is conducted by the DEA, the U.S.
Customs Service, and the U.S. Coast Guard.
The Strategy supports the law enforcement coordination role of
two international bodies. The International Criminal Police
Organization (INTERPOL) provides coordination and communications
for enforcement agencies with investigative responsibilities abroad
and supports 12S member nations. The Customs Cooperation Council
(CCC) encourages uniformity and cooperation in illicit drug control
among international customs systems.
Reducing the Demand for Drugs
The preceding approaches are directed at reducing the supply of
drugs. However, the international community has a unique capability
of influencing the demand for drugs through the deterrent effect of
vigorous law enforcement combined with information exchange
programs, briefings, technical assistance, training, treatment
demonstration projects and conferences. The international demand
reduction strategy includes:
? Encouraging the governments of producing and
transiting countries to recognize that their populations
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can also be victims of drug abuse, and thereby enlisting
their cooperation in international drug control;
? Encouraging recognition of the social and economic
efforts of the immense sums of illegal money that
challenge the legitimate economies of some nations;
? Fostering an increased awareness on the part of other
industrialized nations and their governments of their
domestic drug abuse problems, both to stimulate internal
prevention efforts and to encourage their participation
in international drug control efforts;
? Providing technical assistance in planning and developing
demand reduction programs; and
? Achieving active participation of international
organizations and non-governmental groups, where
appropriate.
Regional Objectives
The United States international illicit drug control program
emphasizes specific objectives for each of the three major production
regions: Latin America, Southeast Asia and Southwest Asia. The U.S.
Government provides bilateral assistance to producer and transit
countries in all three regions -- an effort which is aided by our
multilateral approaches through international organizations and by
the bilateral and multilateral programs of other concerned
governments.
The U. S. Government's strategies for the drug producing regions
of Latin America, Southeast Asia and Southwest Asia include
assistance for crop eradication and development programs,
interdiction and law enforcement support, and the sharing of
information on drug abuse prevention, treatment and research. The
program also includes controls to stop diversion of licit drugs into illicit
distribution channels.
Latin America and Caribbean Regional Strategy
Latin America and Caribbean projects receive the major share of
the INM country program budget because of the large amounts of
marijuana, cocaine and heroin coming from these regions. The U.S.
Government's goals are to reduce coca production to the minimum
level sufficient to meet traditional domestic consumption and licit
needs; to eliminate marijuana before it leaves the country of origin;
to assist other governments in curbing small-scale narcotics production
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 before it assumes major proportions; and to collaborate with Mexico
on continuing the effectiveness of its successful opium poppy
eradication program.
To curtail the international flow of marijuana and cocaine from
Latin America, the U.S. Strategy in negotiating agreements focuses on
reducing coca production through crop control and increased
enforcement assistance; close coordination of rural development
assistance and crop control schemes in the illicit drug cultivation
regions; increased diplomatic initiatives toward gaining serious
commitment and cooperation from governments to eradicate illicit
drug crops; and immobilizing the traffickers and interdicting the
supplies.
Projects for this region include crop eradication efforts,
interdiction programs, developmental assistance, and law
enforcement assistance. There was some progress in this area during
1983, including the start of coca bush eradication efforts in Peru and
the signing of a four-part assistance agreement on coca eradication
with Bolivia. A major expansion is anticipated in the immediate future,
reflecting in large part the decision by the Government of Colombia to
undertake expanded coca and marijuana control programs in 1984
and a pledge of $40 million over five years by the Government of Italy
to the United Nations Fund for Drug Abuse Control for coca control in
South America.
Southeast Asia Regional Strategy
The Golden Triangle, consisting of the common border area
shared by Burma, Thailand and Laos, is a major region of illicit opium
production. Much of the heroin produced in the Golden Triangle
transits Thailand as well as Burma, India and Malaysia enroute to
world markets. These countries have heroin and opium addict
populations which generate a large-scale demand for opium and
heroin.
Burma is the largest producer of illicit opium in East Asia. Since
much of the producing area in Burma is outside full control of that
government and collaboration with Laos is currently difficult for
reasons not related to narcotics, U.S. resources are concentrated on
eradication and interdiction of opium and heroin - with emphasis on
interdiction and suppression of heroin laboratories along the Thai-
Burma border, in the interior of Thailand, and in the Shan State of
Burma. Both the Thailand and Burmese military forces have been
active in attacking the illicit drug production and trafficking.
The United States continues to emphasize that lasting progress in
Southeast Asia is dependent upon eradication in Thailand, Laos and
Burma. There was progress in 1983 on curbing opium poppy
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cultivation in Thai villages receiving assistance under a U.S. supported
civilian police-military program.
United States' efforts for this region focus on country-specific
crop control programs, police and customs interdiction assistance,
education, prevention and treatment technical assistance, and support
of regional projects designed to impede illicit narcotics production,
processing, trafficking and consumption.
Southwest Asia Regional Strategy
Opium production in Pakistan, Afghanistan and Iran now
provides a principal source for heroin in Western Europe and the
United States. This region also produces marijuana and hashish.
The United States is not in a position to engage in productive
bilateral efforts with Afghanistan and Iran. However, the Strategy
supports narcotics control programs in Turkey, which is a conduit for
opiates moving from Southwest Asia to Europe and the United States.
In Pakistan, the program focus is on crop control in the North-West
Frontier Province and on enforcement and interdiction assistance,
particularly on Pakistan's borders. The U.S. agreement with the
Government of Pakistan, which has banned opium production, trade
and consumption, is that it will enforce its ban on opium production in
those underdeveloped areas where development assistance has been
provided. INM and AID have supported the crop control initiative with
rural development projects so that farmers who stop cultivation of
illicit drugs will continue to have a source of income. These efforts will
have further reduced illicit production in the merged areas by 1986-87,
and the United States has pledged to support a special development
and enforcement plan which will apply crop control with development
assistance to the remaining growing areas of Pakistan. Efforts in
Turkey, which brought illicit opium production under control in the
1970s, focus on interdicting illicit opium and heroin traffic.
International Organizations
Support for international organizations is primarily focused on
the United Nations, principally the United Nations Fund for Drug
Abuse Control (UNFDAC). The United Nations programs provide an
important vehicle for participation by countries that do not undertake
drug control programs on a bilateral basis. UNFDAC programs can
improve political acceptability to narcotics control in areas of the
world where an exclusive American presence is not possible. UNFDAC
also demonstrates multilateral concern which underscores the U.S.
position that drug abuse is not exclusively a U.S. problem.
UNFDAC's programs are directed at supply and demand
reduction activities, narcotics-related rural development projects, the
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strengthening of drug controls, and the stimulation and coordination
of research. The Strategy calls for expanding assistance to UNFDAC,
contingent on revitalization of the United Nations Narcotics
Laboratory and its participation in narcotics eradication worldwide.
UNFDAC is supported by voluntary contributions from public and
private sources and the United States is encouraging other nations to
increase their support of this program.
In 1983, UNFDAC obtained a $40 million pledge from the
Government of Italy for coca control projects in South America. In
early 1984, there was an unprecedented agreement among major
donors to UNFDAC that development assistance to narcotics growing
regions should be linked to government commitments to control illicit
narcotics production.
Other United Nations organizations support drug control efforts
in the social and public health areas, including the U.N. Development
Program, the U.N. Educational, Social and Cultural Organization
(UNESCO), and the World Health Organization (WHO). The U.N.
Commission on Narcotic Drugs (CND) functions as the policy-making
intergovernmental body on international narcotics control. Of
particular importance is the CND's function, in concert with WHO, of
identifying and recommending to the U.N. Economic and Social
Council the scheduling of drugs, i.e., the controls over licit narcotics
and psychotropic substances. The Division of Narcotic Drugs (DND), in
addition to supporting the CND, explores and recommends means of
improving control of illicit drug production and abuse. The
International Narcotics Control Board (INCB) performs a valuable
function as monitor and enforcer of the two drug control treaties.
There are also regional organizations which make important
contributions to the international control effort. The Association of
South East Asian Nations (ASEAN) and the Colombo Plan, an economic
and social development association of 27 South and Southeast Asian
nations, are examples. These and other organizations support
multilateral programs of planning, technical assistance and regional
cooperation, in both demand and supply reduction.
Other U.S. Efforts
The United States is a signatory to a wide range of international
treaties and conventions. Enforcement of such agreements continues
to be an important part of our international efforts. The Strategy calls
for encouraging other nations either to support fully the provisions of
agreements already in force, or participate in new initiatives such as
recent efforts to control illicit diversion of methaqualone.
Efforts are underway within the international maritime
community to encourage adoption of measures to prevent false
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registry claims by vessels on the high seas, allow rapid verification of
vessel registry claims, and support criminal sanctions against all those
persons engaged in drug trafficking while aboard vessels.
The Strategy requires a high priority for investigation of the
financial dealings of key traffickers to disrupt international financial
transactions resulting from a sale of illicit drugs. Through Articles 35
and 36 of the 1961 Single Convention on Narcotic Drugs, foreign
governments can exchange the records of financial operations
involved with illegal drug activity. Mutual assistance treaties also
allow exchange of banking and other records, testimony of witnesses,
and information useful in pursuing the illegal profits of international
drug traffickers.
An International Commitment
The Strategy for international cooperation in narcotics control
reflects the President's determination to interdict and eradicate illicit
drugs, wherever cultivated, processed or transported. The Strategy
calls for leaders and governments worldwide to condemn illegal drugs
and to take aggressive action to stop the production, transport and
use of such drugs.
The United States is willing to assist the governments of producer
and transit nations on a priority basis within budget limitations.
However, these governments must take the initiative and actively
pursue workable strategies to reduce the cultivation, production and
distribution of illicit drugs within their own countries.
The United States will continue to strengthen our own
international program, to pursue a vigorous domestic drug
enforcement program which demonstrates to the world that we are
firm in our intention to stop illicit drugs, and to encourage other
nations to do the same. International cooperation in the international
control program and effective national drug law enforcement world-
wide are key elements in eliminating the destruction that illegal drugs
bring to nations and societies.
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VI. MEDICAL
DETOXIFICATION AND
TREATMENT
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VI. Medical Detoxification and
Treatment
Introduction
The 1984 National Strategy recognizes that detoxification and
treatment of individual drug abusers is an essential element in the
comprehensive strategy to eliminate the effects of drug and alcohol
abuse in the United States.
The 1984 Strategy calls for each local community to support
treatment facilities and approaches appropriate to the special needs
of the local community. These should include responding to
immediate and acute medical needs, with continuing availability of
counseling and medical treatment and of longer-term support in a
non-drug environment.
The 1984 Strategy does not attempt to dictate a national priority
for drug abuse treatment programs. Consistent with the overall
Strategy, each region or locality must determine the relative need for
the various types of treatment and make appropriate decisions
regarding the allocation of available resources.
The Strategy continues to call for the integration of drug and
alcohol abuse treatment into general health care. Much has been
done in providing improved drug abuse treatment, whether the
provider is oriented on drug abuse, alcoholism or mental health.
Since 1968, the Federal government has provided funding to the
states on a matching basis to encourage development of prevention
and treatment programs. The use of matching funds has stimulated a
national treatment capability far beyond that which the Federal
resources alone could have provided. The drug abuse treatment
network in the United States has grown significantly from the 183
programs existing in 1968. A measure of the existing treatment
capacity is that 5,747 drug abuse and alcoholism treatment units
participated in the 1982 National Drug and Alcoholism Treatment
Utilization Survey, described later in this chapter. The various
treatment facilities for alcoholism and mental health also are part of
the total treatment capacity.
It is important to recognize the continually changing treatment
requirements and the need to provide a flexible response which can
adjust to the particular needs within each community. The Federal
block grants, begun in 1982, are intended to provide the states with
the flexibility to decide the most appropriate use of the available
Federal funding.
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Treatment programs have been directed at overcoming the
physical problems of drug addiction and providing psychological and
social counseling to help the individual drug abuser live without
drugs. The treatment strategy is based on:
? Recognizing the existence of a national network of drug
treatment programs and established referral systems;
? Continuing the evolution of successful drug treatment
delivery systems by encouraging the states to allocate an
appropriate level of funding based on local needs and
priorities;
? Seeking less expensive, more effective treatment
alternatives;
? Integrating drug treatment services into the general
health and mental health care system;
? Encouraging private industry, religious groups, private
organizations and state agencies to work together to
support treatment programs; and
? Promoting drug-free treatment programs.
The Federal Role
The major Federal role is providing information and guidance for
drug abuse treatment based on the results of biomedical, clinical and
epidemiological research. The dissemination of research findings and
general information to health professionals and their educators and
to the general public is an important aspect of the Strategy.
The Strategy encourages states to support programs directed at
youngsters who have just started using drugs and alcohol and who
have not yet established a total lifestyle around drug use. Early
intervention efforts can have long-term impact on lifetime drug use
patterns.
The Federal research priorities are directed at improving the
effectiveness of the treatment efforts. A specific research priority is
developing new therapeutic agents which will be of major assistance
in treating narcotic addiction. These therapeutic drugs provide
pharmacologic support for detoxification and abstinence and include
two types: those which ease the physical distress associated with
withdrawal and those which block or nullify the reaction to opiates.
The clinical safety and effectiveness of one such blocking agent,
naltrexone, has been proven. Naltrexone received preliminary
approval by the Food and Drug Administration in July 1984 and is
being introduced into treatment programs.
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Additional studies are underway regarding types of treatment
most effective for different types of drug-abusing individuals. These
advances in both basic and applied research will result in more
effective therapeutic approaches and therefore better quality care at
lower cost.
Principal Federal Agencies
The Alcohol, Drug Abuse and Mental Health Administration
(ADAMHA) and its institutes - the National Institute on Drug Abuse
(NIDA), the National Institute on Alcohol Abuse and Alcoholism
(NIAAA), and the National Institute of Mental Health (NIMH) - will
continue to play a leadership role in development of new knowledge
and disseminating knowledge and technology regarding drug and
alcohol abuse treatment and rehabilitation. ADAMHA is responsible
for coordinating activities of the health institutes to insure that
treatment programs, along with research, education and prevention
programs, are mutually supportive and balanced.
The 1984 Strategy calls for ADAMHA and its institutes to
encourage the increased involvement of the private sector (business,
the health professions, labor, professional organizations and associa-
tions, and private support) in the development and execution of
treatment and rehabilitation initiatives, in addition to the full range
of prevention activities described in the prevention chapter of the
Strategy.
Financing
The financing of the national drug abuse treatment
rehabilitation and prevention programs has been a joint effort of
Federal and state government and the private sector. An April 1984
report prepared for NIDA and NIAAA by the National Association of
State Alcohol and Drug Abuse Directors indicated a total of 2,961 drug
abuse treatment units and 3,909 alcohol treatment units received
some government funding assistance. The report also indicates that
Fiscal Year 1984 funding for these programs exceeds $1.4 billion, with
the Federal government providing $302 million (21 percent), state and
local government providing $802 million (57 percent), and the private
sector providing $308 million (22 percent).
A new Federal effort began in Fiscal Year 1982, implementing
the Omnibus Budget Reconciliation Act of 1981 (PL 97-35),
authorizing the Alcohol and Drug Abuse and Mental Health Services
(ADMS) block grant program. The ADMS block grant program
provides more flexibility for states to determine the use of funding for
alcohol, drug abuse and mental health services. It includes NIDA's
former community treatment programs (specifically, the statewide
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services grant program and the formula grant program) and NIAAA's
former community treatment programs, including project and
uniform act grants and alcohol formula grants. This block grant
program has been implemented nationwide and reflects the
continuing goal of the National Strategy to allow local jurisdictions to
make their own decisions regarding use of resources.
The current ADMS block grant program represents the culmi-
nation of an evolutionary process. The Federal government has parti-
cipated with the states in the development of a nationwide drug
abuse treatment network. As Federal funds for community-based
treatment services were increasingly being channeled through the
states, the states assumed greater management responsibilities and
the Federal role became one of technical support, oversight and
program evaluation. By 1980, over 90 percent of Federal community
drug program assistance funds were given directly to the states and
subcontracted by them to local treatment and prevention programs.
Thus, under the block grant program, states assumed official respon-
sibility for many functions which they were already conducting and
acquired greater flexibility to target funds to specific local needs.
Starting in Fiscal Year 1983, states were provided added flexibility to
consolidate, when appropriate, among alcohol, drug abuse, mental
health and general health care providers. States are also free of the
multiple Federal reporting and contracting requirements which
existed prior to the block grant program.
The Federal government will continue to support treatment and
prevention activities through the block grant program, along with
programs in the Bureau of Prisons and Social Security Administration,
and through continued provision of services in the military establish-
ment and the Veterans Administration. The U.S. Parole Commission
will continue to provide drug and alcohol treatment through the U.S.
Probation System, including early detection of abuse and provision for
a quick return to custody if an individual poses a danger to the
community.
Treatment Approaches
The National Drug and Alcoholism Utilization Survey (NDATUS)
monitors the capacity and use of drug abuse and alcoholism treatment
and prevention resources in the United States and its territories on a
periodic basis. A total of 5,747 drug abuse and alcoholism treatment
units participated in the 1982 NDATUS. About one-quarter of these
treatment programs treated only drug dependencies, one-quarter
were combined units treating both drug and alcohol dependencies,
and about half treated only alcoholism. On the day of the survey,
463,412 persons were enrolled in drug or alcohol abuse treatment, or
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better than 85 percent of the total treatment capacity was in use. The
majority were being treated in an outpatient drug-free modality.
Regardless of the method employed at any given point in a patient's
treatment, the ultimate goal is to enable drug-dependent persons to
remain free of drugs and to function productively in the community.
The successful treatment services that the Federal government
has supported tend to work best for patients who are receptive and
motivated toward a cure. In recognition of the chronic nature of drug
dependencies, community treatment programs should consider
continuity of care in conjunction with other community resources such
as Narcotics Anonymous and Alcoholics Anonymous which stress
individual and community responsibility.
General Health Care
The 1984 Strategy calls for a continuing effort to involve all
sectors of society in eliminating drug and alcohol abuse. Explicit in this
goal is the integration of drug and alcohol treatment services into the
general health care system. Studies on the integration of general
health care and mental health care services indicate the advantages
expected from also integrating drug abuse and alcoholism services:
? Improved accessibility, acceptability and use of both
general and special health care services;
? Improved case finding, referral, coordination, follow-up
and preventive/educational efforts;
? Improved efficiency and reduced costs of the total health
care delivery system;
? Improved citizen participation in, and concern with, the
care of clients; and
? Establishment of a unique training setting in primary
health and mental health care.
The most significant accomplishment in the effort to integrate
drug and alcohol services into the general health care system is their
inclusion under the ADMS block grant program. It is now possible for
totally integrated alcohol, drug abuse and mental health services to be
provided according to each state's need, instead of the previous
practice of using separate Federal categorical grant requirements.
Technical assistance has been made available to those states
requesting help in the integrating process. The extent to which drug
and alcohol abuse services are being integrated will become even
more apparent in future years as the ADMS block grant legislation
allows states to transfer funds within ADMS categories.
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The Strategy continues to call for efforts to educate health care
professionals about drug and alcohol problems. NIDA and NIAAA
have worked with health professionals and educators to integrate
drug and alcohol abuse topics into the pre-clinical and clinical
curricula for training of physicians, nurses, psychologists, pharmacists
and social workers. The National Board of Medical Examiners, medical
specialty boards, and the boards of the other health professions have
been developing examinations that require knowledge of drug and
alcohol problems as a prerequisite for receiving a license to practice
medicine or to work as a health professional in the primary health care
system. NIDA and NIAAA disseminate medical monographs through
the various medical associations, physicians' offices and the institutes'
clearinghouses. In addition, NIDA is collaborating with the American
Medical Association (AMA) on issues regarding prescribing practices
and on the use of drug abuse data for AMA's computerized General
Telephone and Electronic Physician Information Network.
The Strategy calls for NIMH and mental health specialists to seek
active involvement in alcohol and drug issues, recognizing that alcohol
and drugs are reported to be the number one and number two causes
of mental health problems. NIMH should also sponsor research to
study mechanisms by which alcohol and drug abuse create mental
health problems.
Drugs in the Workplace
Drug and alcohol abuse exists throughout the workforce: in all
age groups, in all types of industries and in all levels of white collar
and blue collar workers. A 1981 report by the General Accounting
Office estimates that more than 5 percent of the workforce suffers
from alcoholism. While a firm estimate is not available, the use of
marijuana appears to be second only to alcohol. Marijuana, heroin,
cocaine, PCP and misuse of prescription drugs also contribute to lost
productivity, higher accident rates, health problems, poor quality
products and other costs.
Many industries have established employee assistance programs
to help employees with a range of problems, including alcohol and
drug abuse, which affect job performance. Such programs are
designed to identify troubled employees through impaired job
performance and to encourage and assist them in obtaining help. Such
programs exist in 57 percent of Fortune 500 companies. These
programs are the product of labor-management cooperation after
recognition of the extraordinary costs of related absenteeism,
accidents, sick pay and lost productivity at every level of corporate
activity. Employers report that after employee assistance programs are
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established, significant reductions in lost work hours, disability
payments and accidents have resulted.
Public safety considerations require prompt action to identify,
remove and treat individuals who are in jobs where their drug abuse
endangers the public safety. Air traffic controllers and operators of
public conveyances, including airline pilots and crew, bus drivers,
railroad train crews, and others in such positions of public trust should
be subject to high standards of professional and personal behavior.
Employers must establish a clear policy, ensure that the policy is
understood and applied, and include specific rules, procedures for
identifying violators and uncompromising discipline consistent with
the public trust. Recent train accidents caused by intoxicated
employees have focused attention on the critical need for a clear
policy in this area. Private companies and government agencies are
acknowledging their responsibilities and are responding to this need.
For example, a major bus company has established strict requirements
for its drivers to be free of drugs and alcohol; the Federal Aviation
Administration is planning a testing program for employees with
critical air safety duties; and the U.S. Coast Guard has begun a "Safe
Boating" program which seeks to reduce accidents associated with
drinking and boating. Other examples are described in the chaper on
prevention.
As the nation's largest single employer, the Federal government
should serve as a model for dealing constructively with drug and
alcohol abuse in the workplace. The Office of Personnel Management
(OPM) has issued regulations effective August 9, 1984 to assign
Federal program responsibility for returning employees to full
individual and organizational performance.
The Strategy sets a high priority for the establishment and
operation of employee assistance programs in both the private and
public sectors to save lives and reduce the health and economic costs
of alcohol and drug-related problems. Field offices of the Occupa-
tional Safety and Health Administration (OSHA) have materials
available for employers on where to seek assistance and how to deal
with drug alcohol abuse problems.
Private Sector Support
The Strategy encourages the expansion of alcohol and drug
abuse treatment services throughout the private sector. A specific goal
is the expansion of third-party payments for the treatment of alcohol-
ism and drug abuse. Thirty-five States have now adopted laws
requiring health insurance coverage of alcoholism treatment on a
mandatory or optional basis; 26 States have similar laws for drug
abuse treatment coverage. Insurance plans and carriers are increas-
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ingly aware that, in the absence of such coverage, they pay for more
expensive hospital-based care under subterfuge diagnoses and/or for
accidents and illnesses that could have been avoided. The Blue Cross/
Blue Shield Association, after a three-year demonstration project
funded by NIDA and NIAAA, has announced that each of its plans will
make available a rehabilitation-oriented drug and alcohol treatment
option to national accounts beginning in 1984. Implementation of this
model benefit, along with increasing employee assistance and health
promotion programs, is a major accomplishment in expanding the
private sector role in drug and alcohol abuse treatment.
Special Considerations
Heroin While heroin use continues to be a major concern in
several large urban areas, estimates indicate that the total number of
addicts has been reduced since the early 1970s. During the past eight
years, the number of addicts has held relatively constant at around
half a million, or less than one-half of one percent of the total
population.
The average age for the general population of heroin addicts is
older than ten years ago. The average age of heroin addicts seeking
treatment has risen from 28.8 in 1978 to 30.5 in 1982, and the
increasing age trend appears stable. This trend reflects the extensive
prevention and containment efforts that have made young people
more aware of the consequences of heroin use. Over a three-year
period ending in June 1983, there has been an increase at some loca-
tions in DAWN emergency room mentions of heroin. These increases
could reflect changes in the supply, use patterns, or user population or
some combination of these factors. Consistent with the Strategy, local
authorities have the flexibility to respond to their specific drug
problems and adjust local treatment priorities as needed.
Nonopiate drug use is now creating significant drug treatment
needs nationwide. More than 65 percent of those admitted to
treatment have a problem with more than one drug. The trend
toward multiple drug use is also being observed with heroin emer-
gency room mentions. In 1976, only 20 percent of heroin emergency
room mentions were in combination with other drugs; in 1982, 42 per-
cent of the heroin mentions were in combination with other drugs,
primarily with alcohol and cocaine.
Cocaine The increasing consequences of intense use patterns, as
indicated by increasing numbers of hospital emergency room epi-
sodes, create concern and increased emphasis on cocaine treatment.
Researchers and clinicians are issuing new warnings regarding the
dangers of cocaine and the dangers inadvertently caused by the erro-
neous low danger ratings previously given to cocaine use. Little doubt
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now exists that cocaine is a potent addictive drug and potentially as
dangerous to health as opiate addiction, including heroin. The Federal
government is expanding its research in cocaine abuse treatment.
States are urged to carefully assess their treatment capabilities for
cocaine users in light of the increase in demand for treatment.
Treatment for Youthful Abusers
It is encouraging to note that alcohol and marijuana use by
children ages 12-17 has decreased, however use rates remain high.
Alcohol use in this category during a given month has decreased from
37 percent in 1979 to 27 percent in 1981; marijuana use during the
month prior to the interview decreased from 17 percent to 12 percent.
Also, treatment data involving young people and marijuana con-
tinued to reflect a significant secondary involvement with alcohol. Use
of multiple drugs in combination is particularly dangerous. A recent
study indicates that among patients 19 years of age or younger
entering a hospital-based alcoholism program, over 80 percent used
several drugs in combination. This is compared to one-third among
the total patients entering the program.
It is important to recognize that young people with drug abuse
problems create special considerations in designing effective treat-
ment programs. Immaturity, parental consent, concerns about confi-
dentiality, inability to pay and lack of specialized services are often
barriers to their seeking treatment. Even though there were more
than 13,000 young people ages 18 and under receiving alcoholism
treatment in facilities across the country on September 30, 1982,
treatment services for young people are scarce and often inappro-
priate. In addition, many young people deny their alcohol problems,
are unaware of available services or are uncertain how to use them.
State and private treatment programs should make a special
effort to contact and work closely with school-based alcohol and drug
abuse education programs and parent groups. States and localities, in
assessing their needs and resources, should make use of community
mental health centers in the identification and treatment of drug and
alcohol abuse.
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VII. RESEARCH
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VII. Research
Introduction
Drug abuse in the United States is a widespread, destructive
problem, rooted in the potent mood-altering properties of drugs,
including alcohol, and in the social, psychological and physiological
vulnerability of individuals. To approach our goal of eliminating drug
abuse, we must continue to expand our knowledge of the causes and
treatments of drug abuse as well as ways of minimizing the resultant
disability to the individual and to society.
The abuse of drugs can be defined as a disease which produces
chemical and physical abnormality, injury and even death. A major
complicating factor is that this disease is self-induced. Therefore, the
search for a cure must take into consideration the complex interactions
among a combination of biological, psychological, environmental and
social factors which lead people to use drugs for non-medical purposes.
Each hypothesis developed in the laboratory or the clinic may offer some
insight into certain aspects of the problem. None, standing alone, is likely
to provide the universal solution which will eliminate drug abuse.
Therefore, we are pursuing research into the various aspects of the
numerous drug abuse problems. Our research goal is reducing the cumu-
lative effect of drug abuse by eliminating the pieces which contribute to
the total problem.
Research, carefully planned and widely undertaken, can reinforce
all efforts to prevent, treat and control drug problems. Continuing the
direction of the previous Strategy, the 1984 Strategy supports the
development of new knowledge about drug use patterns, risk factors and
the long-term effects of drugs, including interdisciplinary research inte-
grating data from the criminal justice system, social sciences, biochemistry,
etc. The 1984 Strategy encourages the pharmaceutical community,
colleges, universities and professional health care organizations to
undertake extensive drug research.
The 1984 Strategy supports the expansion of research directed at
basic knowledge and the associated applications of the findings in drug
and alcohol abuse prevention, treatment and rehabilitation. A high
priority will be assigned to basic work on the interrelationships between
marijuana and alcohol and between alcohol and other drugs. The Strategy
also supports the recognition by the mental health community of the
destructive role that drug and alcohol abuse play in mental health and
calls for full recognition of the interrelationship and increasingly close
cooperation between the three related Federal health institutes,
particularly in the area of research.
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The Strategy recognizes the Federal responsibility for overseeing
the development of new knowledge through basic and applied research
and epidemiological studies. It is also the Federal responsibility to provide
the necessary planning, management and support to ensure that such
information is widely disseminated to health care professionals, educa-
tors, law enforcement officials and the general public.
The 1984 Strategy's objectives for research are:
? Producing accurate and clearly written information
about drugs and alcohol and making this information
widely available in an understandable form for use in
education and prevention efforts,
? Developing an effective system to monitor the
composition and potency of illicit drugs including the
development of new assay technologies;
? Continuing to support longitudinal and other
epidemiological research to expand knowledge of
alcohol and drug use patterns, risk factors and the long-
term health effects of alcohol and drug abuse,
? Emphasizing basic research into the biological and
psychological determinants of drug and alcohol abuse;
? Giving priority to research into the development of
chemical agents that will block or change the expected
physiological effects of a drug or provide pharmacologic
support during treatment;
? Studying the effectiveness of prevention and treatment
approaches,
? Enhancing the effectiveness of scientists and research
projects by regularly reviewing, aggregating and
assessing new information and knowledge and by
ensuring that the results are widely available within the
research community; and
? Developing a balanced program between basic and
applied research.
A specific area of interest is the continuing development and
general availability of comprehensive annotated bibliographic sources
designed to provide practitioners, researchers and the general public with
readily available subject-indexed information on principal drugs of abuse.
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Data Collection and Analysis
Fundamental to the credibility of information on drug abuse, and
to much of the National Strategy, is the availability of accurate, current
data on drug abuse, use trends and effects. Collecting national informa-
tion and reporting on nationwide trends in alcohol and drug abuse
continues to be the responsibility of the Federal government. The Alcohol,
Drug Abuse and Mental Health Administration (ADAMHA) is responsible
for gathering information to answer questions concerning the extent of
drug and alcohol use, the consequences of drug and alcohol abuse, the
population groups most at risk, changing patterns and trends, and the
geographic distributions of drug and alcohol problems.
Information regarding the sources, availability, prices and other
relevant data in the criminal justice system is collected by the Federal law
enforcement agencies under the auspices of the National Narcotics
Intelligence Consumers Committee (NNICC). This aspect of data collection
is described in the Law Enforcement Chapter. The National Institute on
Drug Abuse (NIDA) is a member of the NNICC and provides the
coordinating link between the law enforcement information and the
health-related research and data.
The epidemiologic program necessary to achieve the goals of the
research program requires the analysis and integration of information
from several sources. Included among these sources are the Drug Abuse
Warning Network (DAWN); the National Household Survey on Drug
Abuse; the High School Seniors Survey; the Community Epidemiology
Work Group; and the State Epidemiology Network. Also, a program of
extramural epidemiological research of special studies complement the
national data systems. While these components of the epidemiology
program contribute valuable information to our knowledge of the inci-
dence and prevalence of drug and alcohol problems, each will be critically
reviewed to maintain the quality and credibility of the methods and
findings and to determine if there are more efficient and economical
approaches which would increase their utility.
Other national data systems operated by various government
agencies will be used to augment the information needed for answering
questions about alcohol and drug abuse. One of the most significant
accomplishments of the past two years is the inclusion of drug and alcohol
abuse questions in surveys conducted by the National Center for Health
Statistics - such as the Health and Nutrition Examination Survey and the
National Death Index. Inclusion of drug-related questions in the National
Health Interview Survey is being explored.
Since the change to Federal block grants, the collection of
information on the treatment services provided, client characteristics and
effectiveness of treatment is no longer mandatory. Gathering information
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on individuals whose drug use brings them into treatment provides critical
information on negative health consequences and populations at greatest
risk. Collection of these data, previously acquired through the Client
Oriented Data Acquisition Process (CODAP) and the National Alcohol
Program Information System (NAPIS), is now dependent on the voluntary
cooperation of states and localities. NIDA and the National Institute on
Alcohol Abuse and Alcoholism (NIAAA) are maintaining a treatment data
base through the voluntary partnership of 17 states. NIDA is providing
data processing and analytical support to these states for developing or
operating their own CODAP-compatible system. In exchange for pro-
viding the data, the states will receive periodic reports and annual sum-
maries. NIDA and NIAAA have contracted with the National Association of
State Alcohol and Drug Abuse Directors to consider various options for the
sharing of client and facility data between the states and the Federal
government.
Twenty epidemiologists from across the Nation meet semiannually
as the Community Epidemiology Work Group (CEWG) to exchange infor-
mation on drug abuse trends. In the recent past, the CEWG has assessed
usage trends of such substances as heroin, cocaine and methaqualone and
identified combinations such as "T's and Blues" (pentazocine and
tripelennamine).
Potency Monitoring
The Federal government must develop a system to monitor the
composition and potency of illicit drugs. Fluctuations in potency levels of
street drugs provide indicators of availability and use patterns. The
Strategy calls for full use of laboratory facilities and availability of the
findings to both law enforcement and health-related agencies.
An expanded potency monitoring system will be designed to
provide:
? Better understanding of the composition of the various
types of drugs available on the illicit market; and
? Monitoring of the probable source of illicit drugs with
special attention to the level of domestic production.
The system for drug monitoring is based on forensic laboratory
analysis of drug evidence from the Drug Enforcement Administration
(DEA), Federal Bureau of Investigation (FBI), and DEA cooperative
operations with other law enforcement agencies. Information is entered
into DEA's System to Retrieve information from Drug Evidence (STRIDE). A
planned expansion of STRIDE is intended to capture state and local data
on heroin and cocaine retail purchases. Full use will be made of the
NIDA-sponsored marijuana potency monitoring system at the University
of Mississippi to ensure standardized testing and comparable data.
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DEA also conducts research to improve tecnniques of drug analysis
and to enhance its ability to determine sources of drugs. The Ballistics
Program determines the source of evidence in tablet and capsule form;
the Heroin Signature Program classifies and determines the origin of
heroin by identifying the manufacturing process; and preliminary work
has been conducted on source determination analysis for cocaine, amphe-
tamine, methamphetamine and methaqualone.
Basic and Applied Research
ADAMHA has the primary Federal responsibility for drug and
alcohol abuse research. The goals are to gain new knowledge of the basic
mechanisms underlying drug and alcohol abuse and to develop new
biomedical. behavioral and pharmacological methodologies for the
prevention, diagnosis and treatment of drug and alcohol abuse. The
development of basic knowledge is fundamental to applied work on
techniques for treatment and prevention. Basic research provides an
understanding of the mechanisms of drug actions, effects and sites of
action.
Specific research activities in support of the Strategy include:
? Investigating the biological interactions between the
combination of alcohol and marijuana, between alcohol
and other drugs, and in the development of alcoholism;
? Continuing the study of brain receptor mechanisms such
as those identified for naturally occurring opiate-like
peptides and those associated with reward sensations
related to cocaine and heroin;
? Investigating the effects of alcohol consumption on
neurotransmitters and their receptors;
? Continuing to investigate the basic biological and
behavioral processes affected by alcohol, marijuana,
cocaine, heroin and other psychoactive drugs;
? Studying the efficacy and cost effectiveness of different
drug and alcohol abuse treatment approaches;
? Studying the adverse medical consequences of alcohol
abuse and alcoholism and the genetic factors that may
help explain why individuals seem to differ in their
vulnerabilities to the medical problems associated with
alcohol and drug consumption,
? Continuing efforts to determine the abuse and addiction
potential of drugs;
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? Developing testing methods which will identify persons
under the influence of various drugs with at least the
same degree of accuracy as present methods of testing to
identify persons under the influence of alcohol,
? Developing techniques for effectively preventing
alcohol-related and drug-related problems within
various age groups; and
? Continuing to examine the biological and behavioral
factors which may predispose some individuals to drug
and alcohol addiction and tend to make others resistant.
Agonists and Antagonists
One of the highest priorities for research efforts is the development
of substances that will nullify, render unpleasant or otherwise change the
expected action of drugs of abuse. Effective agonist/antagonist or
antagonist drugs have the potential for reducing patient treatment costs
and improving the success of rehabilitation efforts. Preliminary research
indicates that such drugs are acceptable to addicts and may also ease the
discomfort of opiate withdrawal.
Several such drugs have already undergone significant research and
development. For example, preliminary data indicate that LAAM, a
maintenance drug, could improve program and client management in
treatment. The patient would take the drug only three times each week
rather than daily, thus reducing the need for frequent clinic visits.
Naltrexone is an antagonist that blocks the effects of opiates and was
given preliminary approval in July 1984 for use in treatment. Buprenor-
phine, a new narcotic agonist/antagonist, has unusual promise since it not
only blocks the effects of opiates but is also useful in easing withdrawal.
The Strategy emphasizes the need for continuing attention and develop-
ment of agonist/antagonist type drugs, supporting the goal of drug-free
treatment and rehabilitation. More work should be done on determining
the clinical significance of LAAM, including an evaluation of' its potential
benefit to clinicians and its potential as a tool to reduce opiate addiction.
For a variety of reasons, these drugs and others that are used to
treat chronic drug addiction have not been attractive development
prospects for the private sector. Thus, they are referred to as "orphan"
drugs. The Strategy continues to encourage the pharmaceutical manu-
facturers, colleges and universities, and professional health care organiza-
tions to sponsor more research on orphan drugs. The Food and Drug
Administration now has an Office of Orphan Products Development which
is assisting in this area.
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Identification and Assessment
Substantial progress is now being made in the development of
diagnostic techniques that can aid in the early identification of alcohol-
related problems. Initiatives also include efforts to develop standard
measures to assess the level of physiological, cognitive and psychomotor
impairment of persons who are under the influence of a variety of drugs.
Standard methods of assessment for impairment would be useful in
estimating the effects of drug and alcohol abuse, especially marijuana, in
the workplace, on the roads and in schools.
Recent Developments
Thus far in the 1980s, significant progress has been made in under-
standing biological factors which influence the effects of drug and alcohol
abuse on individuals. Opiate receptors within the central nervous system
have been identified and isolated, and endogenous opiate-like substances
have been discovered. In the area of alcohol research, recent tests on
young males with alcoholic parents have revealed alcohol effects on the
central nervous system which distinguishes them from others of the same
age with no family history of alcoholism. These findings may provide new
methods for the prevention and treatment of drug and alcohol abuse and
other health problems.
NIDA is investigating family therapy approaches to drug abuse
treatment and family-oriented prevention approaches such as enhancing
the family's ability to promote healthy maturation and prevent drug
abuse. Also, NIDA is studying prevention approaches which are effective
with specific age and cultural groups, such as rebellious versus conforming
youth, and developing and evaluating approaches which utilize
skill-building techniques to enhance resistance to peer pressure and to
provide positive examples.
The National Institute of Mental Health (NIMH) has several projects
underway which will add important new knowledge concerning the
relationship of drug and alcohol use with overall mental health and
should provide an improved basis for prevention and intervention
programs. The research topics include the basic mechanisms for behavioral
change, the influence of risk factors, the characteristics of individuals who
are having severe abuse consequences, and the prevalence of deviant
behavior with respect to alcohol, drug abuse and criminality.
The Office of Juvenile Justice and Delinquency Prevention (OJJDP)
in the Department of Justice has completed a study on Dynamics of
Delinquency and Drug Use which provides insights into the relationship of
drug and alcohol use to other criminal offenses and to treatment and
prevention approaches.
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Social factors often play a major role in determining the conditions
under which youthful drinking and drug abuse begins and is maintained.
NIDA continues to support research on the developmental progression of
drug use in adolescents. NIAAA is conducting studies of drinking practices
and patterns of alcohol abuse among teenagers. A significant finding in
NIAAA research suggests that attempts to develop commitments to both
short-term and long-term goals, as well as changing attitudes towards
the law, may be effective in promoting a reduction in the use of alcohol by
adolescents.
The question of the contribution of marijuana use to a destructive
progression of expanding drug use, sometimes known as the "stepping
stone" theory of progressive drug abuse, has been debated for several
years. The Strategy acknowledges common agreement associated with the
central findings:
? There are distinct stages of drug use and the use of drugs
at one stage increases the probability of use at a
subsequent stage.
? The more extensive the involvement with a drug at a
lower stage of development, the greater the likelihood
that one will experiment with drugs at the next or
subsequent stages of development.
? Two factors which contribute to individuals moving
through advancing stages of drug use are continuing
association with friends and acquaintances who are drug
users and involvement in selling and distributing drugs.
These findings should be incorporated in prevention and interven-
tion strategies, with particular emphasis on parental education regarding
marijuana and alcohol.
NIAAA has placed a high priority on the development of
prevention, intervention and treatment strategies for reducing the level
and consequences of teenage alcohol use, focusing on the issues and
problems most meaningful to teenagers. Studies supported by NIAAA
indicate that prime time television exerts a powerful influence over youth
and their attitudes about alcohol use and drinking behavior. NIAAA has
implemented a major Teenage Alcohol Abuse Prevention Initiative which
increases research on the prevention, intervention and treatment of
alcohol problems among school-age youth, with special emphasis on
drinking and driving.
NIDA is also studying methods to enhance the treatment services
available to young people within the existing health care system. One
project is planned to determine how existing community mental health
center programs can be used to provide effective treatment to drug abuse
clients. Special emphasis will be given to chronic marijuana users and
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persons who have become dependent on sedative-hypnotic agents. A
second study will investigate the approaches in use around the country for
conducting outreach and for providing efficacious and cost-effective
treatment services for adolescent drug users.
The Pathway to Progress
Research sponsored by NIDA has achieved a breakthrough in
identifying and isolating opiate receptors within the central nervous
system and discovering the presence of endogenous opiate-like
substances. This finding fundamentally alters the understanding of the
human brain and has triggered major research in other scientific fields
such as mental health and cardiology.
Research into similarities of the brain's response to heroin and
cocaine has brought into question the established view that heroin is a
relatively more dangerous drug than cocaine. The conclusion is not that
heroin is less dangerous, but that cocaine is much more dangerous than
previously believed.
These important findings serve to demonstrate the importance of
research in providing the tool of understanding to support all areas of the
Strategy.
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VIII. DRUG AND ALCOHOL
ABUSE
IN THE ARMED FORCES
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VIII. Drug and Alcohol Abuse in the
Armed Forces
Introduction
Drug and alcohol abuse by members of the Armed Forces is a
continuing problem of great concern because of the potential impact
on military readiness. This chapter focuses on the drug and alcohol
abuse prevention programs of the military services in the Department
of Defense (DOD). The U.S. Coast Guard, in the Department of
Transportation, is also a member of the Armed Forces and has similar
programs for drug abuse prevention and treatment. The drug law
enforcement activities of the Coast Guard and military assistance
provided to drug law enforcement by the military forces are described
in the chapter on law enforcement.
Department of Defense
The patterns of drug abuse in the military are similar to patterns
among the same age groups in the general population. The majority
of military drug abusers are male, single and under 25 years of age.
Alcohol and marijuana are the substances most often used. In the 1982
survey, slightly more than 50 percent of those in the enlisted grades
E1-ES report having used marijuana at least once in their lives; 22.5
percent report marijuana use in the past month. This represents a
dramatic decline in marijuana use in the previous two years. A similar
reduction was seen in the use of other illicit drugs. However, the
abuse of alcohol increased, with 40 percent of the E1-E5 group and
34.4 percent of the total DOD population reporting diminished
productivity due to alcohol abuse.
Evidence indicates that addiction, although present in a small
percentage of abusers, is not a major aspect of the military's illicit drug
problem. Alcohol dependence, however, is high among some groups.
The concerns and approaches to prevent drug and alcohol abuse
and treat the abusers among the population at large have a special
urgency in the Armed Forces. In the military, even a low level of drug
abuse has great potential for harm and national hazard. The 1984
Strategy recognizes the special responsibilities of the Armed Forces for
ensuring that the United States has a military force free of the effects
of drug abuse and alcohol abuse. Maintaining a high state of
readiness in the military requires a reliable and sensitive system of
detection, monitoring and assessment, incentives for Service members
to enter treatment and rehabilitation programs, clear policies
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regarding penalties for illicit drug use, and the discharge of military
personnel who no longer have the potential for further useful service.
The 1984 Strategy supports the policies of the Department of
Defense to:
? Prevent those who are drug or alcohol dependent from
entering the military;
? Deter and detect drug and alcohol abuse within the
defense community, and deter and detect drug
trafficking on installations and facilities under the control
of the Department of Defense;
? Ensure that all Department of Defense personnel
understand DOD policy on drug and alcohol abuse;
? Assess the drug and alcohol abuse and drug trafficking
situation in or influencing the Department of Defense;
? Reduce the incidence of intoxicated driving by DOD
personnel through education, screening and strict law
enforcement;
? Treat or counsel drug and alcohol abusers and
rehabilitate those with potential for further useful
service,
? Develop an effective employee assistance program for
DOD civilian employees for the early identification and
referral for treatment of employees with alcohol or drug
abuse problems,
? Discipline and/or discharge drug traffickers and those
drug and alcohol abusers who cannot, or will not, be
rehabilitated;
? Work with national drug and alcohol abuse prevention
programs, maintaining appropriate relationships with
government and private agencies; and
? Prohibit members of the Armed Forces, and Department
of Defense civilians while on the job, to possess, sell or
use drug paraphernalia and prohibit the sale of drug
abuse paraphernalia by Department of Defense resale
outlets and private organizations and concessions located
on Department of Defense installations.
The Assistant Secretary of Defense for Health Affairs develops
policies designed to ensure that the Department of Defense drug and
alcohol abuse prevention programs reach the military members and
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their families. The Assistant Secretary for Health Affairs also issues
instructions to implement the drug and alcohol abuse prevention
programs, with specific attention to identification, deterrence,
education, assessment, treatment, rehabilitation, training and
program evaluation. The Service Secretaries establish and operate
programs to carry out these policies and instructions..
The 1984 Defense Department strategy includes:
? Increased emphasis on the early identification of drug
and alcohol abusers through urinalysis and breath tests;
? Use of urinalysis in disciplinary proceedings and
characterization of discharges;
? Tough regulations to reduce the incidence of intoxicated
driving;
? Improving the quality of treatment and rehabilitation
programs;
? Encouraging healthy lifestyles so that alcohol and drug
abuse is viewed as unacceptable behavior; and
? The formation of additional parent groups at military
installations to reduce alcohol and drug abuse among the
children of servicemembers.
The Department of Defense also makes use of drug and alcohol
abuse prevention literature and electronic media messages developed
by civilian agencies to supplement its own prevention materials.
The Defense Department will continue to seek ways to develop
and refine drug monitoring and assessment efforts, with particular
emphasis on improved measures for drug abuse identification and
treatment and for data on intoxicated driving. Each military service
will continue to carry out its responsibilities in these areas. The
Department of Defense will coordinate military alcohol and drug
abuse control activities with other Federal and civilian agencies at
home and overseas.
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APPENDIX A
Federal Departments and Agencies
with Drug Abuse Program
Responsibilities
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APPENDIX A
Federal Departments and Agencies with Drug
Abuse Program Responsibilities
Summary
11 Cabinet Departments
32 Departmental Agencies
5 Independent Agencies
Executive Office of the President
? Office of Policy Development, Drug Abuse Policy Office - Policy
development, oversight of Federal drug activities.
? Office of Science and Technology Policy - Advice on drug abuse
research issues.
? Office of Management and Budget -- Budget management,
clearance of proposed legislation and Congressional testimony,
monitoring management and budget execution.
Office of the Vice President
? National Narcotics Border Interdiction System - Coordination
and oversight of the national narcotics border interdiction
effort.
Department of Justice
? Drug Enforcement Administration - Drug trafficking
investigations, drug intelligence, and regulatory control.
? Federal Bureau of Investigation - Concurrent jurisdiction in
drug investigations, investigation of other criminal activities
associated with drug trafficking.
? Immigration and Naturalization Service - Border patrol.
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Department of Justice continued
? El Paso Intelligence Center - National intelligence clearing-
house, operational communications, analysis.
? U.S. Marshals Service -Apprehending fugitives, witness
protection, custody of evidence, assist seizures.
? Office of Justice Assistance, Research & Statistics (previously
LEAA) - Juvenile justice, grants.
? Office of Juvenile Justice and Delinquency Prevention -
Related research and programs.
? Bureau of Prisons - Incarceration and rehabilitation.
? Criminal Division/U.S. Attorneys - Prosecution (25% of total
Federal caseload involves drugs).
? U.S. Courts-Trials, bail, sentencing.
? U.S. Parole Commission - Parole determinations and probation
system.
Department of Treasury
? U.S. Customs Service -- Border control, air and marine
interdiction, currency investigations.
? Internal Revenue Service - Intelligence, income tax and money
laundering investigations.
? Bureau of Alcohol, Tobacco and Firearms - Associated investi-
gations and intelligence.
? Secret Service - Associated investigations.
Department of Transportation
? U.S. Coast Guard - Border control and interdiction on the high
seas.
? Federal Aviation Administration - Border control.
? National Highway Traffic Safety Administration - Research and
technical support for drunk and drugged driving programs.
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Department of State
? Bureau of International Narcotics Matters - International drug
control policy development, program direction and funding.
? Agency for International Development - Foreign assistance
programs.
Department of Defense
? Office of Assistant Secretary of Defense for Health Affairs --
Coordination of department drug abuse programs and policy.
? Office of Assistant Secretary of Defense for Manpower,
Installation and Logistics -- DOD Task Force on Drug
Enforcement.
? Military Departments - Programs to eliminate supply of illegal
drugs, prevent and treat drug and alcohol abuse; military
support to civilian law enforcement.
? National Security Agency - Intelligence support.
Department of Health and Human Services
? Alcohol, Drug Abuse and Mental Health Administration -
Coordinate the activities of the subordinate Institutes.
? National Institute on Drug Abuse - Primary agency for drug
abuse health issues including treatment technology,
biomedical, applied and epidemiological research; and
development and dissemination of drug abuse prevention
information.
? National Institute on Alcohol Abuse and Alcoholism - Related
health activities.
? National Institute on Mental Health - Related health activities.
? Food and Drug Administration - Regulation of licit drugs,
coordination with NIDA.
? Health Care Financing Administration - Medicare and
Medicaid programs.
? Social Security Administration -Benefits for disabled.
? Office of Human Development Services - Administer
rehabilitation services.
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Department of Agriculture
? Agricultural Research Service - Research on plant sciences and
herbicides.
? Forest Service - Management of the national forests.
Department of Interior
? Bureau of Land Management - Management of national
public lands.
Department of Labor
? Occupational Safety and Health Administration - Information
for employers.
Department of Education
? Drug and alcohol abuse education in public elementary and
secondary schools.
Department of Commerce
? National Oceanic and Atmospheric Administration - Detection
assistance to interdiction.
Independent Federal Agencies
? Central Intelligence Agency - Intelligence support.
? Veteran's Administration - Treatment, rehabilitation.
? ACTION - Encourage volunteer efforts, coordinate selected
prevention activities-
? U.S. Information Agency - Communicate U.S. programs to
foreign audiences-
? Office of Personnel Management - Employee assistance
programs.
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APPENDIX B
Federal Budgets
For Drug Abuse Programs
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 Approved For Release 2008/11/18: CIA-RDP86M00886R000700210002-3
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Approved For Release 2008/11/18: CIA-RDP86M00886R000700210002-3
 Approved For Release 2008/11/18: CIA-RDP86M00886R000700210002-3
AID
BA
BATF
BOP
Crim Div
Customs
DAPO
DEA
Dept of Ed
DOD
DOJ
DOL
ETA
FAA
FBI
FDA
FRA
FY
HHS
INM
INS
IRS
NHTSA
NIAAA
NIDA
NIMH
OCDE TF
OHD
OJARS
OPD
Outlay
Prisons (CAP)
Rsch
SSA
Tax Div
US Atty
USCG
USDA
US Forest Svc
US Marshals
VA
INDEX OF ABBREVIATIONS
Agency for International Development
Budget Authority
Bureau of Alcohol, Tobacco and Firearms
Bureau of Prisons
Criminal Division, Department of Justice
US Customs Service
Drug Abuse Policy Office
Drug Enforcement Administration
Department of Education
Department of Defense
Department of Justice
Department of Labor
Employment and Training Administration
Federal Aviation Administration
Federal Bureau of Investigation
Food and Drug Administration
Federal Railroad Administration
Fiscal Year
Department of Health and Human Resources
Bureau of International Narcotics Matters
Immigration and Naturalization Service
Internal Revenue Service
National Highway Traffic Safety Administration
National Institute on Alcohol Abuse and Alcoholism
National Institute on Drug Abuse
National Institute of Mental Health
Organized Crime Drug Enforcement Task Forces
Office of Human Development
Office of Justice Assistance, Research and Statistics
Office of Policy Development
Expenditures for all available BA
Special program for construction assistance
Research
Social Security Administration
Tax Division, Department of Justice
US Attorneys
US Coast Guard
US Department of Agriculture
US Forest Service
US Marshals Service
Veterans Administration
Approved For Release 2008/11/18: CIA-RDP86M00886R000700210002-3