Approaches to Decriminalizing Drug Use & Possession

October 2013

More than 1.5 million people are arrested every year for a drug law violation. Since the 1970s, drug war practices have led to unprecedented levels of incarceration and the marginalization of tens of millions of Americans disproportionately poor people and people of color while utterly failing to reduce problematic drug use and drug-related harms. The severe consequences of a drug arrest are life-long. Drug courts, moreover, have not improved matters. One solution to reducing the number of people swept into the criminal justice system (or deported) for drug law violations is to enact various forms of decriminalization of drug use and possession. Decriminalization is the removal of criminal penalties for drug law violations (usually possession for personal 1 use). Roughly two dozen countries, and dozens of U.S. cities and states, have taken steps toward 2 decriminalization. By decriminalizing possession and investing in treatment and harm reduction services, we can reduce the harms of drug misuse while improving public safety and health. Benefits of Decriminalization Decriminalizing drug possession and investing in treatment and harm reduction services can provide several major benefits for public health, including: reducing the number of people incarcerated; increasing uptake into drug treatment; reducing criminal justice costs and redirecting resources from criminal justice to health systems; redirecting law enforcement resources to prevent serious and violent crime; addressing racial disparities in drug law enforcement, incarceration and related health characteristics and outcomes; minimizing stigma and creating a climate in which people who use drugs are less fearful of seeking and accessing treatment, utilizing harm reduction services and receiving HIV/AIDS services; and protecting people from the

wide-ranging and debilitating consequences of a criminal conviction. Effects of Decriminalization on Drug Use Rates Countries that have adopted less punitive policies toward drug possession have not experienced any significant increases in drug use, drug-related harm or 3 drug-related crime relative to more punitive countries. A World Health Organization (WHO) study of lifetime drug use rates among 17 countries found that the U.S. had the highest drug use rates by a wide margin, despite its punitive drug policies. The WHO researchers concluded that decriminalization has little 4 or no effect on rates of consumption. The US, which has been driving much of the worlds drug research and drug policy agenda, stands out with higher levels of use of alcohol, cocaine, and cannabis, despite [more] punitive illegal drug policiesthan many comparable developed countries. Clearly, by itself, a punitive policy towards possession and use accounts for limited variation in nation-level rates of drug use. Findings from the WHO World Mental Health 5 Surveys." PLOS Medicine, 2008. The Portuguese Decriminalization Model Some countries particularly stand out. In 2001, Portuguese legislators enacted a comprehensive form of decriminalization of low-level possession and consumption of all illicit drugs and reclassified these activities as administrative violations. Alongside its decriminalization law, Portugal significantly expanded its treatment and harm reduction services, including access to sterile syringes as well as methadone maintenance therapy and other medication-assisted treatments. After 10 years, none of the fears of drug war proponents has come to pass. According to the

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United Nations Office on Drugs and Crime, Portugals policy has reportedly not led to an increase in drug tourism. It also appears that a number of drug-related 6 problems have decreased. Experts agree that, on balance, there is ample evidence of a successful 7 reform. The Portuguese evidence suggests that combining the removal of criminal penalties with the use of alternative therapeutic responses to dependent drug users offers several advantages. It can reduce the burden of drug law enforcement on the criminal justice system, while also reducing problematic drug use[and] may offer a model for other nations that wish to provide less punitive, more integrated and effective responses to drug 8 use. British Journal of Criminology, 2010. Other Countries Experiences In recent years, several other countries have taken steps toward drug decriminalization, either through legislation or the courts. The effectiveness of these approaches varies considerably depending on many factors especially the quantities used to define personal possession, and the degree to which decriminalization is part of a larger health-centered agenda. Mexico: Many observers, for instance, consider Mexicos 2009 decriminalization law to be mainly symbolic. The threshold limits defining possession versus trafficking were set very low and penalties for trafficking were increased. Thus, there is evidence that Mexicos law has actually increased the number of people arrested and sanctioned for drug law 9 violations, a phenomenon known as net-widening. Mexico has also not made the same investments in treatment and harm reduction as Portugal. Czech Republic: The Czech Republic, by contrast, has long integrated some elements of harm reduction into its drug policies and in 2010 adopted a decriminalization law with more realistic threshold limits. While data is not yet available, the Czech model 10 seems more likely to produce net societal benefits. Netherlands: The Netherlands has a long-standing policy to instruct prosecutors not to prosecute possession of roughly a single dose of any drug for personal use. Neither civil nor criminal penalties apply to possession of amounts equal to or lesser than this

threshold. The Netherlands has lower rates of addiction than most of western Europe and the U.S. The Dutch also have much lower heroin overdose rates and prevalence of injection drug use compared to the U.S. The number of young people who use 11 drugs problematically has also decreased. Colombia. A series of court decisions in Colombia has essentially decriminalized small amounts of marijuana and cocaine for personal use. In the summer of 2012, the Colombian Constitutional Court reconfirmed its decriminalization ruling followed by the passage of a new law that makes drug addiction a matter of public health and obliges the state to guarantee comprehensive treatment for those who seek it voluntarily. The law recognizes that the consumption, abuse, and addiction to psychoactive substances licit or illicit are an issue of public health and family, community, and individual well-being. Importantly, Colombia did not stop at decriminalization but is also expanding its voluntary treatment capacity. Argentina. In 2009, Argentinas Supreme Court ruled that legislation criminalizing possession of drugs for personal use is an unconstitutional violation of the right to privacy and personal autonomy. As a consequence, substantial reforms have been drafted and introduced in Congress to formalize the Courts ruling. Paraguay: In 1988, Paraguay formally decriminalized possession of less than 2 grams of cocaine or heroin. However, a judge may mandate a person to residential treatment if he or she is assessed to be drug 12 dependent. After more than two decades of decriminalization, Paraguay has the lowest prevalence of heroin use, and nearly the lowest prevalence of 13 cocaine use, in all of South America. These laws and similar efforts around the world reflect an increasing awareness that prohibitionist policies are counterproductive, at least with respect to 14 drug possession. The decriminalization of drug use needs to be considered as a core element in any public health 15 strategy. -Organization of American States, 2013 Efforts to Reduce Drug Penalties in the U.S. State Efforts to Reduce Penalties. Seventeen states have reduced or eliminated criminal penalties for personal marijuana possession. Some states, such as

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California, have recently considered lessening penalties for possession of other drugs as well a change that nearly three-quarters of Californians 16 support. Thirteen states, as well as Washington, DC, and the federal government, already treat personal 17 drug possession as a misdemeanor. U.S. jurisdictions with reduced penalties do not have higher rates of drug use. In fact, many states that treat possession as a misdemeanor have slightly lower rates of illicit drug use and higher rates of admission to 18 drug treatment than states that consider it a felony.

consequences that accompany a felony conviction. Countries or states that pursue decriminalization using threshold limits should set maximum-quantity thresholds that reflect the realities of drug consumption in their jurisdictions. If threshold limits are set too low, the policy may have no impact, or may increase the number or length of incarcerations. Administrative penalties that unduly interfere with a persons life such as civil asset forfeiture, administrative detention, drivers license suspension, or excessive fines are likely to run counter to the intent of a decriminalization policy and should be avoided. Decriminalization policies should be accompanied by an expansion of harm reduction and treatment programs, including medication-assisted treatment. Local governments unable or unwilling to implement decriminalization can take a step in the right direction by employing pre-arrest diversionary practices to remove drugs from the criminal justice system and treat them as a health issue. The United States and the international community must open a debate about regulatory alternatives to drug prohibition in order to address the harms of illicit drug markets and other problems not alleviated by decriminalization.
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U.S. Drug Arrests, 2012

82% Possession Sales/Manufacturing

Source: Federal Bureau of Investigation, Uniform Crime Report, Crime in the United States, 2012 (2013).

Seattles LEAD Program. Seattle recently instituted a pilot program known as Law Enforcement Assisted Diversion, or LEAD, that aims to bypass the criminal justice system entirely. Instead of arresting and booking people for certain drug law violations, including drug possession and low-level sales, police in two Seattle neighborhoods will immediately direct 19 them to drug treatment or other supportive services. LEAD is a promising step in the direction of decriminalization though to be most successful, programs like LEAD must empower health professionals to assess and deliver services to each individual. Ultimately, full decriminalization of possession offers more promise in achieving a healthcentered approach to drug misuse. Recommendations The Drug Policy Alliance supports eliminating criminal penalties for personal drug possession and use. In the absence of decriminalization, states should treat possession of illicit drugs as a misdemeanor or an infraction to lessen the lifelong stigma and substantial

Legalization is defined as the complete removal of sanctions, making a certain

behavior legal and applying no criminal or administrative penalties. Caitlin Elizabeth Hughes and Alex Stevens, What Can We Learn from the Portuguese Decriminalization of Illicit Drugs? British Journal of Criminology 50 (2010): 999.
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Ari Rosmarin and Niamh Eastwood, A Quiet Revolution: Drug Decriminalisation Robin Room et al., Cannabis Policy: Moving Beyond Stalemate: Report of the

Policies in Practice across the Globe (Release, 2012),

Global Cannabis Commission, (Oxford: Oxford University Press, 2010); Peter Reuter & Rob MacCoun, Drug War Heresies (Cambridge: Cambridge University Press, 2001); Eric Single, The Impact of Marijuana Decriminalization. Journal of Public Health Policy 1989, 456-466; Lloyd Johnson, Jerald Bachman and Patrick OMalley. Marijuana Decriminalization: The Impact on Youth 1975 -1980. Monitoring the Future Occasional Paper #13 . (Ann Arbor, University of Michigan: 1981).
4

Louisa Degenhardt et al., "Toward a Global View of Alcohol, Tobacco, Cannabis

and Cocaine Use: Findings from the WHO, World Mental Health Surveys." PLOS Medicine 5, no. 7 (2008): 1053-56.
5 6

Ibid. United Nations Office on Drugs and Crime, World Drug Report, 2009, Caitlin Elizabeth Hughes and Alex Stevens, A resounding success or a

http://www.unodc.org/documents/wdr/WDR_2009/WDR2009_eng_web.pdf.
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disastrous failure: Re-examining the interpretation of evidence on the Portuguese decriminalisation of illicit drugs, Drug and Alcohol Review 31 (2012): 101113.

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Caitlin Elizabeth Hughes and Alex Stevens, "What Can We Learn from the

Portuguese Decriminalization of Illicit Drugs?," British Journal of Criminology 50, no. 6 (2010): 1018.
9

Jorge Hernndez Tinajero and Carlos Zamudio Angles, Mexico: The Law

Against Small-Scale Drug Dealing: A Doubtful Venture, (Transnational Institute, 2009), http://www.tni.org/sites/www.tni.org/files/download/dlr3.pdf; and Ana Paula Hernandez, Drug Legislation and the Prison Situation in Mexico, in System Overload: Drug Laws and Prisons in Latin America (Transnational Institute and Washington Office on Latin America: 2011).
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Rosmarin and Eastwood 23. Alex Stevens, Drugs, Crime and Public Health: the political economy of drug Martin Jelsma, Drug Law Reform Trends in Latin America, Transnational Office on Drugs and Crime United Nations, "World Drug Report 2013," (United Transnational Institute, Drug Law Reform in Latin America, General Secretariat Organization of American States, "The Drug Problem in the Tulchin Research, New California Statewide Poll Finds Voters Support

policy. Abingdon: Routledge, 2010: 122-23.

Institute, 2009: 2
13

Nations, 2013).
14

http://www.druglawreform.info/.
15

Americas: Analytical Report," (2013).

Reducing Penalties for Personal Drug Possession to a Misdemeanor to Reduce Jail Overcrowding and Save Money, May 21, 2012 .
17

Delaware, Iowa, Maine, Massachusetts, Mississippi, New York, Pennsylvania, Substance Abuse and Mental Health Services Administration, Table B. State

South Carolina, Tennessee, Vermont, West Virginia, Wisconsin and Wyoming.

Estimates of Substance Use and Mental Disorders from the 2008-2009 National Surveys on Drug Use and Health (2011).
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The Defender Association, Law Enforcement Assisted Diversion (LEAD): A

Pre-Booking Diversion Model for Low-Level Drug Offenses. (2010); and LFA Group, LEAD Program & Evaluation Plan Narrative, 2012.

Drug Policy Alliance | 131 West 33rd Street, 15th Floor, New York, NY 10001 [email protected] | 212.613.8020 voice | 212.613.8021 fax

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