10/05/2017 FutureDrugpolicyinthecountriesoftheformerEasternBloc

Cohen,Peter(1993),FuturedrugpolicyinthecountriesoftheformerEasternBloc:Thedifficultchoiceto
benonWestern.PaperpresentedontheEuropeanColloquiumontheCrisisofNormativeSystems,
organisedbythe"GroupeEuropennedeRecherchesurlesNormativits",LaMaisondesSciencesde
l'Homme,Paris,25thFebruary1993.
Copyright1993PeterCohen.Allrightsreserved.
[Russian]

FUTUREDRUGPOLICYINTHECOUNTRIESOFTHEFORMEREASTERNBLOC
ThedifficultchoicetobenonWestern[1]
Dr.P.D.A.Cohen

Introduction

InthispaperIwanttodrawsomeattentiontoaprocessofdrugpolicyformationthatis
nowtakingplaceinthecountriesoftheformerEasternBlocandtodiscussthechoices
thesecountrieshave(ormaybenothave)indevelopingtheirdrugpolicies.Theirchoice
istoconformtothelongestablishedpoliciesthatarethenormintheWest(policiesbased
ondrugprohibition),[2]ortolearnfromtheWest'sexperiencewiththesepoliciesandto
lookfordifferentsolutions.Someofthesedifferentsolutionswillbepresentedhere,not
asblueprints,butasnormativecriteriathatmaygovernhighlydiversifiedpolicyoptions.
[3]

ProblemswithProhibitionaryDrugPolicies

Westernpoliciesrelatingtobotanicpsychotropicsubstancesandtonewlymade
"designerdrugs"havebeenbasedonconstantlyelaboratedandextendedprohibitionism.

InWesternEuropeandNorthAmericawehaveseenmanyyearsofthisapproach.While
therearedifferencesbetweennations'severityinapplyingdruglegislation,these
differencesarenotthatsignificant.TheexceptionsaretheNetherlands,Denmark,and
Spaincountrieswhichhavegainedsomerealexperienceinnonprohibitiveapproaches
tocannabis.Otherwisefullforceprohibitionhasremainedtheestablisheddrugpolicyin
mostoftheworld.

InWesternEurope,prohibitionistapproachesarewellanchored.In1989theFrenchset
upCELAD,(CommissionEuropeennepourlaLutteAntiDrogue)abureaucraticbody
underwhoseauspicesnationalEECmembergovernmentscooperatetoimprove
applicationofprohibitionistdruglegislation.TheGroupePompidou,anearlier(1971)
FrenchinitiativeworkingundertheumbrellaoftheCouncilofEurope,stillassists
governmentalexpertsofpolice,customs,prisonmanagement,andepidemiologymeeting
regularlyforsimilarpurposesasCELAD.[4]

TheWorldHealthOrganizationhascreatedaWHOEuropebranch,withitsseatin
Copenhagen,which,insofarasfarasdrugpolicyisconcerned,showssomemoderationin
relationtothemostsevereorthodoxiesofprohibitionismbuthasshownnointerestin
findingnewwaysforeffectivedrugcontroloutsidethesepaths.[5]TheUnitedNations
maintainstheirlargedrugbureaucraciesinEurope,UNICRIinRome,UNDCPinVienna,
andWHO'snewProgramonSubstanceAbuse(PSA)inGeneva.Interpol,withitsseatin
http://www.cedrouva.org/lib/cohen.future.html 1/9
10/05/2017 FutureDrugpolicyinthecountriesoftheformerEasternBloc

Lyon,alsoproducesaconstantpressureinthedirectionofprohibitionismand,asIwill
discuss,exertsitsinfluenceinEasterndirectionaswell.

TheAmericanDrugEnforcementAdministration(DEA)hasitsagentsconnectedto
mostAmericanEmbassiesinEurope,andis,viaitsdiplomaticstatus,aformidable
pressuregroupsittingveryclosetoeachnationalGovernment.InEasternEuropean
countries,DEAagentsarefrequentlyseenasgenuineandobjectiveexpertsinthefield.

Indeed,whenthenewEasternEuropeancountrieslookforassistanceinthefieldofdrug
control,oneoftheirfewoptionsistogothespecializedbureaucraciesinWesternEurope
andNorthAmerica.Buttheywillfindnothingtherebutpeoplewhoprofessionallydefend
a"religion"ofdrugcontrolthathascausedsomuchdamage,death,anddisadvantage.
Otherthantheselargebureaucracieswhoseveryexistenceisdependentonthesurvival
andspreadofprohibitionistpolicy,EasternEuropeancountriesmaylookforexpertise
withinnationaldrugcontroldepartmentswheretheywillfindasomewhatgreater
variationinpolicyoutlooks.

InalmostallEuropeancountries,lowerandmiddleleveldrugpolicybureaucratshave
beencriticalofwhatpresentpolicyisdoingtodrugusers,drugaddicts,legalinstitutions,
prisons,prisoners,levelsofcorruption,andorganizedandunorganizedcrime.Thegroup
ofcitiesthatsignedTheFrankfurtResolution(amongothers,Amsterdam,Frankfurt,
Basel,Zurich,Ljublana,Hamburg,AthensKalitheaandRotterdam,andintheFallof
1993,BaltimoreintheUnitedStates),supportaresolutionthatiscriticalof
prohibitionisticformsofdrugcontrolbecauseitincapacitatestheircities.Theresolution
asksfordecriminalizationanddepenalizationofdruguse.Oneofthecentralstatementsin
theresolutionisthat"Criminalizationisnotonlyabarriertoassistanceandtherapy,but
alsoforcesthepoliceandthejudiciarysystemtoperformataskwhichtheycannot
fulfill."Withingovernmentbodiesindividualexpertsaremoreandmorewearyof
prohibitionistformsofdrugcontrol.ButcitiesliketheonesorganizedintheFrankfurt
resolution(orantiprohibitionistindividualsordepartmentalbranchesinnational
governments),arealmostinvisiblevstheGovernmentsofthenewEasterndemocracies.

Iwouldliketopresentthehypothesesthatthedevelopmentofdrugpolicyisafunction
ofother,moreimportantpolicies,onthecurrentagendaofcontemporarypoliticsinthat
region.ForEasternEuropeanpoliticsamaingoalandmotivationistobeunlikethe
formerpartypoliticalsystemofcommunism.Marketeconomies,pluralisticdemocracy,
andparliamentarismaresomeofthebroadmodelsforthesecountries.Druguseand
(certainly)drugaddictionwerevirtuallynonexistentontheagendaoftheformer
communistcountriesor,iftheywerepresent,theyhadlowstatusbecauseofthetaboo
atmospheresurroundingthem.[6]Oneoftheimportantpointsofthepoliticalagendain
thesecountriesisendingthistabooofissuesthatcouldnotbespokenaboutduringthe
pastregime.Butsincethesecountrieshavenotdevelopedtheirownpoliticalinstitutions
ortheoriesofdruguse,theyhavenomodeloftheirownthatcanserveasapointof
departuretoformulatedrugpolicies.

ButthesemightnotbetheonlyreasonsforthesecountriestoeagerlylookforWestern
models.Theneedforallkindsofmaterialandpoliticalassistanceisimportant.Justas
adherencetothecriteriaoftheInternationalMonetaryFundforthereorganizationofthe
economy,isthepricetopaidforeconomicassistancefromtheWest,soistheacceptance
oftheideasofthemainprohibitionistbureaucraciesthepricetopayforassistancefrom
theWestintheareaofdrugcontrol.ManyofthenewEasternEuropeancountrieshave
hadnoCustomsservice.Tosetuptheseservices,theyneedapparatusandmoney,which
Westerncountriesororganizationsmightbewillingtogive,iflocalinstitutionswould
playsomeroleinthecontrolofdrugflowfromthesenewcountriestotheWest.[7]

WesterncountriesmaylookatthenewEasterncountriesasformidablethreats,perhaps
evenlargerthreatsthantheywereduringtheperiodoftheColdWar.Thesenewcountries

http://www.cedrouva.org/lib/cohen.future.html 2/9
10/05/2017 FutureDrugpolicyinthecountriesoftheformerEasternBloc

arefearedassourcesofmassiveimmigrationandasmajoropeningsthroughwhichnew
sourcesofillegaldrugsmightgainentrytoWesternEurope.

Althoughthebasisofthislatterfearisunclear(thereisnoshortageofdrugsonthe
WesternMarketswherepricesarefallingconstantly)suchfearsmotivateWestern
BureaucraciestovisittheEastwithMissionsofDrugControlandtoorganizeconferences
aboutstrengtheningdrugcontrol.Westerninterestindevelopingeffectivebordercontrols
inthenewStatesmightbebasedmoreonthefearsoflargescaleuncontrollablemigration
(aboveallemigrationofcriminals[8])thanonfearsofmassiveinundationwithdrugs,for
whichtheWestactuallyhasnoorlittlemarket.IfthenewEasternRepublicscouldbe
convincedtosetupeffectivebordercontrolsundertheperceivedthreatofdrugs,this
mightberelevanttoamajorwesternconcern:controllingtheoutflowofimmigrantsinto
W.Europe.TheWesternpowersstronginterestsinmakingtheEasternRepublicsadopt
drugcontrolpoliciesarebasednotupontheanalysisandevaluationofoptionsinthefield
ofdrugcontrolalone,butonotherpoliticalpriorities.Accordingly,theireffectivenessas
drugcontrolpersemaybeimmaterial.

FortheEast,parallelinterestsmightbethefearofuncontrollablecriminalgrowth.
Theseeconomiesare,forthetimebeing,unabletoprovideacceptablelevelsofwealthto
theircitizens,solargeblackeconomiesariseandthreatentheestablishmentoflegal
economies.Thedevelopmentofadrugrelatedcriminalcaste,whothroughlargescale
drugdealingsmightbecomemajorearnersofwesterncurrency,mustbearealnightmare
intheeyesofeasternEuropeangovernmentalbodies.InPoland,forinstance,the
existenceofmanyexperiencedI.V.drugusersandablackeconomyofdrug
manufacturingthatgoesbacktotheseventies,hasdevelopedamarketforamphetamine
typedrugs.ThesesubstancesarealsoexportedtotheWest,mainlytoSwedenand
Germany,andgeneratesignificantquantitiesofhardcurrencyinPoland(cf.Meyer1992).
ThepossibilitiesofcriminaldrugtradeinthevastareaoftheformerSovietRepublicsis
alsorecognizedbythelocalauthoritiesthere.[9]

OtherreasonstofavorsuppressivedrugpolicyintheEastarethat,veryoften,heavyand
destructivepatternsofdrugusecoexistwithpoliticalandsocialchaosandpolitical
transition.Onemightassumethatthecurrentandlargelyunsuccessfulpoliciesfor
diminishingalcoholconsumptionwillattractalotofattentiontotheuseofillegaldrugs,
whichcanbegiventhesymbolicfunctionofbeingevenmoreofadangerthanalcohol.
Somecountriesreportariseintheuseofillegaldrugsasaresultofalcoholsuppression,
(e.g.Latvia),[10]and,inPoland,homemadeopiatesarereportedtobecheapernowthan
vodka.[11]Alsosomecountries,notablyHungary,reportveryhighlevelsofuseoflegal
hypnoticsandsedativesamongunderprivilegedgroups,stirringfearsofalargepotential
marketforillegaldrugs.[12]Lastbutnotleast,theEasternEuropeancountrieshavealotof
experiencewithsuppressivepolicies.Althoughthistypeofpolicyisassociatedwiththe
oldregimes,thetechnologyandmindsetforgovernmentagenciestoapplytothenew
fieldofdrugsarereadilyavailable.

AlternativeoptionsinthefieldofdrugcontrolforthenewEasterndemocracieshaveto
takeintoaccountallofthefactorsstatedabove.Butoneofthecertaintiesofthedrug
futureisthattheEastwillcompetefortheWesterndrugconsumer'smarket.Aside
productofthiscompetitionwillbeenlargedavailabilityofstilluncommonpsychotropic
substancesintheinteriordrugmarketsoftheEast.Iwouldliketodetailthisthesisalittle
bitfurtherbeforetryingtosketchdrugcontroloptionsfortheEastthatIbelievewouldbe
farlessdestructivethantheonesadvocatedbyWesterngovernmentsanddrugcontrol
bureaucracies.

Whenwelookatcannabisalone,theformerSovietRepublicscouldbecomea
formidablecompetitorforLebanese,Turkish,MoroccanandSouthAmericancannabis
producers.AccordingtotheUNDCPmissionto7formerSovietRepublics,justthethree
republicsofKazakstan,KyrgyzstanandRussiaoffer1.2millionhectaresofwildgrowing
marihuanathatishardtoeradicateorcontrol.Sincemarihuanaisthemostimportant
http://www.cedrouva.org/lib/cohen.future.html 3/9
10/05/2017 FutureDrugpolicyinthecountriesoftheformerEasternBloc

illegaldrugoftheWest,itoffersattractiveincomegeneratingpossibilitiestopopulations
whohavelittleornoeconomicfuture.

Thesituationregardingopiumissimilar.AlthoughtheWesternmarketforillegalopium
productshasneverservedmorethanafewtenthsofapercentofthedifferentpopulations,
aftertheonsetofProhibition,illegalityprovidedtheseproductswithapricelevelthat
assuresthecreationofintricatecriminalorganizationsaroundtheminthenewRepublics.
AndsincetheformerSovietUnionhadhighlydevelopededucationandallthetechnical
knowhowforcomplicatedchemicalproduction,chemistsandpharmacistswillalmost
certainlyofferthemselvesupfortheproductionofillegalopiumproductslikemorphine,
codeineandheroin,aswellastheillicitmanufactureof"designerdrugs"andprescription
drugs.Polandisalreadyoperatingontheamphetaminemarket,andtheformerEastern
Germanarea'shavebeenreportedtoproduceMDMAfortheWesternmarket.[13]

Butthecannabismarketisbyfarthemostimportant.Accordingly,Ibelievethatthenew
Republicsmustavoidmodellingtheircannabispolicyafterthedominantwestern
example.Acceptingtheirrepressibilityofthismarketwouldleavethecapacitytofocuson
moreimportantcriminalareas.TheNetherlandsoffersanexcellentmodelforthistypeof
policythatcouldbestudiedbygovernmentswhoareseriouslyinterestedinapproaching
cannabispolicyinadifferentway.

Further,thenewEasternRepublicswouldalsohavetoacceptthattherewillbesome
demandforothernewpsychotropicsubstanceswithintheirborders,e.g.MDMA,and
thatsuchdemandisjustasirrepressibleasithasbeenintheWesterndemocracies.A
humaneanddecentpolicywouldnotprosecutetheusersofsuchproducts,unlessthey
commitcrimes,inwhichcasetheywouldbetreatedascriminalsandnot(mainly)asdrug
usersorabusers.ManyofthelegalsystemsofthenewEasternRepublicsalreadyleave
individualconsumptionunpunished.InKazakstan,drugabusewasexcludedfromthenew
PenalCodeaslateas1990,somethingtheUNDCPmissioncovertlyregretsinitsreport.
[14]
Thispermitsthedevelopmentofadrugpolicygearedtowardsharmreduction.

SuccessPotentialofProhibitionistDrugControl

IwouldlikenowtodiscusssomeoftheideasWesternmodesofdrugcontrolhavetooffer
theEast,byquotingandcommentingupontheremarksofBrjesson,anofficeratthe
LyonHeadquartersofInterpol,whospokeatthe"BalticCitiesExpertMeetingonDrug
SupplyandDemandReduction"inAlaLemu,FinlandinJune1992,[15]wherehespokeof
theneedforclosercooperationbetweenlawenforcementauthorities.ThereasonI
highlighthisspeechisthatitdemonstratesthekindofthinkingthatemanatesfromdrug
lawenforcementagenciesinEuropetoday.Hisconclusionsaboutthepresentsituationin
EuropealmostmirrortheconclusionsoftheyearlyINCBreportsabouttheworlddrug
situation.AccordingtoBrjessondrugtraffickingandabuseis"themajorsocialissuethe
worldhastofacetoday..."Itgoeswithoutsayingthatthesituationisalarmingandthe
problemwillcontinuetorise."Seizuresareincreasing,alldrugsareeasilyavailableand
pricesarefalling..."Itcanclearlybestatedthatwhilstademandexiststherewillcontinue
tobeproductionandsupply...Despitealleffortsfromlawenforcementauthoritiesthe
availabilityofdrugsincreases."

Interpolneatlysummarizestheeffectsofprohibitionistdrugpolicysinceearlythis
century:nomatterhowmuchWesternEuropeanandNorthAmericannationsinvestina
lawenforcementapproachtodrugcontrol,thegoalsofprohibitionremainoutofreach,
and,whatisworse,producehealth,social,andcriminogenicconsequencesofdrugusefar
morenegativethantheyhavetobe.

TheInterpolofficerstatedthat:"Insteadofconcentratingalloureffortstostoptheflow
ofalreadyproduceddrugs,wemusttrytostopthedrugsbeingmanufactured".

http://www.cedrouva.org/lib/cohen.future.html 4/9
10/05/2017 FutureDrugpolicyinthecountriesoftheformerEasternBloc

ThisphraseillustratesthestrategybehindthelatestoftheU.N.Conventions(1988).It
envisagesstretchingProhibitiononestepfurther,fromthedomainofdrugstothedomain
ofchemicalsneededtoproducethem,thesocalledprecursorsandessentialchemicals.

Theproblem,however,isthatexceptforlittleused,complicateddesignerdrugslike
MDMAandLSD,theessentialchemicalstomanufacturethemoreclassicdrugslike
heroinandcocainearenotdifficulttoproduce.Theycanbebought,eveninlarge
quantities,ifnotinthelegalmarket,thaninthegrayorblackareasofthemarket.
Complicatednuclearandmissilesystemstechnologycanchangehandsoutsidethelegal
armstrade,andsocancommonchemicals.

Anotherproblemisthatmanydrugproducingcountriesdonotneedchemicalsorneed
verylittleofthemtoproducepotentdrugs.InPolandproductionofhomemade"kompott"
(aliquidopiateusedfori.v.routesofingestion)iscompletelybasedonwidelyavailable
poppystrawandnormalkitchenutensils.[16]AndinthevastareasoftheCISRepublics
availableformarihuanagrowing,onlylaborisneededforharvesting,withoutany
additionofchemicals.Thismeansthatforthemostimportantwesterndrugsforillicit
consumption,cannabis,theU.N.Conventionof1988offersonlyitsantimoney
launderingstatutes.AndmoneylaunderingisnotgoingtobetheproblemoftheCIS
RepublicsandotherEasternRepublics,wherehardcurrency(illegalornot),isbadly
neededtostarta'freemarket'bankingsystemfromscratch.

Thephilosophybehindthisnewphaseofinternationalprohibitionismseemsnomore
soundthantheoriginalone.Inspiteoftheimpossibilityofevenaslightguaranteethat
increasedWesternstyledrugprohibitionism,willdecreaseoncomingdrugproblemsinthe
newRepublics,thislineofdrugcontrolisstillexportedwithgreatemphasis.Agood
exampleofthisisthemissionsentbytheUnitedNationsInternationalDrugControl
Program(UNDCP)tosomeformerSovietRepublics[17]inearly1992.Thismissionwas
aimedat,amongotherthings,strengthening"linksofcooperationinthefieldofdrug
control,"atassessing"theexistingantidruglegislation"and"CompliancewiththeUnited
Nationsdrugcontrolconventions."[18]

AccordingtothefourmembersoftheinvestigatingcommitteeinthenewRepublics
therewas"anurgentneedtodrawtheirattentiontotheU.N.internationalconventions
andencouragethemtoadopttheprovisionsoftheseconventions."

"Thedesireoftheauthoritiestodayistoestablishlinkswiththeinternationaldrug
controlbodiesortostrengthensuchlinks"(p.5)

TheMissionoffereddirectsupporttothenewrepublicsinthespheresoftechnical
laboratoryassistanceandlegalassistance.InitsreporttheUNDCPMissionmentions
providinga"modeldruglaw"toeachofthenewRepublicsitvisited,modelsthat,of
course,donotreflectanyoftherealexperiencetheWesthashadwithfullProhibition.

ButtheUnitedNations'bureaucraticorthodoxyisnotthesoleinfluenceonthenew
Easterndemocracies.Hungary,forinstance,isabouttosignthe1988U.N.Convention,
participatesinthePompidouAirportGroup,acceptsaidintrainingCustomsofficersfrom
theUSAandpoliceofficersfromtheGerman'Bundeskriminalamt'."TheHungarian
PoliceforcesareinactiveworkingrelationshipswiththeDEAEuropeanliaisonofficers"
(cf.NationalReportofHungary).[19]Furthermore,theBudapestPolicehasaprogramof
cooperationunderthenameof"DADA"withtheLosAngelesPolice(wellknownforits
violenttechniquesoflawenforcement).

ManyoftheseobservationsthatshowcooperationwithWesterndrugcontrolagencies
arealsotrueofRomania[20]Bulgaria[21]theCISRepublics[22]and,inalesserdegree,for
thenewBalticStates.[23]

Butcollaborationandimportationofprohibitionistthinkingdoesnotonlytakeplacein
therealmoflawenforcementanddruglegislationbutextendstotreatmentphilosophies.
http://www.cedrouva.org/lib/cohen.future.html 5/9
10/05/2017 FutureDrugpolicyinthecountriesoftheformerEasternBloc

Latvia,forinstance,hasaDaytopTherapeuticCommunitywithinitsbordersandthe
RussianMinistryofHealthisreportedtohavenegotiatedacooperationagreementwith
thecultlike"LePatriarche"that(forunknownreasons)wasendedbythisFrenchcenter
ofultraprohibitionism.[24]

AnotherrecentinitiativecomesfromtheEuropeanCommissionandconsistsoftheso
calledPHAREProgramforHungary,theCzechandSlovakRepublics,Poland,Bulgaria
andRomania.With2millionECUtheCommissionwantstohelpthesecountriesagainst
"increasingdrugproblems"statingthat"75%ofallheroinreachingdemandmarketsin
ECmemberStatescomesthroughCentralandEasternEuropeandthereisgrowing
evidenceofdrugtraffickingandsupplyfromtheSouthernRepublicsoftheformerSoviet
Union."

ThePHAREprogramtakesintoaccounttheinputofdrugrelatedassistancetothe
countriesmentioned,particularlyinthecustomsarea.[25]Still,45%ofthebudgethasbeen
earmarkedtosupportdemandreductionprogramsinthetargetcountries.

DrugPolicyasSeenFromtheInterestsoftheNewRepublics

ThedevelopmentofnormativesystemsfornewdrugcontrolpoliciesintheEastshould
notbebasedondifferentprinciplesthanthoseoftheestablisheddemocraciesoftheWest.

Themaincoreofsuchsystemsshouldbeharmreduction,bywhichismeantfocusing
drugcontrolonminimimizationofharmthatmightresultfromdruguse,inplaceof
simplyoutlawingaparticularclassofdrugs.

But,forthenewEasternRepublics,suchanapproachisevenmoreessentialandurgent
thanfortheWesternnations.Illegaldrugswillbeincreasinginuseinthesenew
democraciesandbeattractivetosomeasasignofmodernityandbelongingtonew
subcultures,andtootherstohelpthemdealwiththelargeandhighlythreateningsocial
changesthataretakingplace.Stillotherswillusethesedrugsasasideeffectofthe
economicpossibilitiesthedrugtradeoffers.Illicitdruguseisarelativelynew
phenomenoninmostEasterncountriesandthereforehasthepotential(ifhandled
improperly)tobecomeadestabilizingsocialforceinitself.Conversely,thereisnoreason
tofearthatalackofsuppressionwillcreatehigherlevelsofdruguseprevalencethan
withoutsuchsuppression.

Duetotheextentofeconomicunderandretrodevelopment,ifdrugsarerepressed
massively,druguseanddrugtradewillassistinthecreationofalargeanddifficultto
controlclassoforganizedcriminalswhowillexertseriouspowerbothfinanciallyand
politically.Thismeansthatitisintheinterestofthenewdemocraciestoatleasttolerate
individualdruguseandallowthedevelopmentofanonmonopolizedsystemofsmall
scaleandcompetitivedistributors.

Insteadofinvestingenormoussumsingeneraldruglawenforcement(bymeansof
whichtheywillworsentheirsituationconsiderably)thenewrepublicsshouldconsider
investingininformationcampaignsthatteachpeoplewhichmistakesnottomakewiththe
differentdrugswhichrealdangersandrealpleasuresthesedrugsmayyieldandwhich
modes/routesofingestionaresafewhenbasicrulesarefollowed.[26]Inthiswaynatural
resistanceagainstabusiveformsofdrugusewillbestrengthened.Further,thesestates
shouldinvestinhighlyaccessibleandvariedassistanceoptionsforthosewhodevelop
problemsinrelationtotheuseofdrugs,perhapsalongthelinesofassistancewith
individualalcoholproblems.

Ofcoursethebestinvestmentingooddrugandalcoholpolicyareprogramsthatprevent
massunemploymentormarginalizationduringtheperiodofadaptationtonewmarketand
politicalmechanisms.ThisistheareawhereWesterninvestmentswillbemostfruitful.

http://www.cedrouva.org/lib/cohen.future.html 6/9
10/05/2017 FutureDrugpolicyinthecountriesoftheformerEasternBloc

Themainadvantagesofallowingdruguseunderconditionsofminimalcriminalization
arethat:

1.bydoingsoonemightpreventthecreationoflargeanduncontrollableoligopolies
ofdrugtradeandproduction,asseeninNorthandSouthAmerica
2.topreventhypermarginalizationofgroupsthatalreadyareendangeredbybeing
underprivileged.Thedangersofsuchhypermarginalizationandtheimpactofdrug
suppressioncanbeseeninNorthAmericanandsomeEuropeanmetropolitanghetto
areas
3.Cannabisuseandsomeformsofopiumuseare,atthemoment,notculturallyalien
tomanygroupsintheareaofthenewEasternrepublics.Thismeansthatculturally
acceptedrulesfortheircontrolledusedoexistandcanbebuiltupon.Suchrule
systemsareessentialandshouldberespected.Minimalornocriminalizationwould
leavesuchmodelsfordrugusecontrolvisibletoothersforwhomadoptiontothese
drugsisnew.Also,byleavingroomforestablished(illicit)drugs,onemayprevent
orslowdowntheintroductionofnewdrugsandnewformsofingestionthatalways
needsometimetobecomeincorporatedintoandtoshapesystemsofindividual
control
4.Forsomeproportionofthosewhouse(illicit)drugsinheavyamounts,the
difficultiesthiscreatesintheirownsocialsphereisquiteenoughtodealwith.To
addtothesedifficultiesthestrainsofcriminalizationcouldnotonlybeconsidered
unwise,butalsoasimmoral.[27]Moreover,criminalizationwillpreventproblem
drugusersfromseekingassistanceintheearlystagesoftheirproblemswhenthey
canbemoreeasilyhelped.
5.Lawenforcementcouldbefocusedoncriminalgroupsandindividualsthatengage
inhighlyorganizedcrime.Forinstance,whendrugdistributionisorganizedona
monopolisticscale,possiblycoupledtootherlargescalecriminalactivities,the
economicpowerofsuchcriminalityismoreharmful.Thismeansthatlaw
enforcementshouldbeusedintelligently,todiminishmonopolizationofthedrug
marketandanyotherareasofpotentialcriminalactivity.Lawenforcementinthe
fieldofdrugspracticedinotherwaysisboundtofail,asillustratedsoclearlybythe
abovequotedInterpolofficer.

Unfortunately,thesearguments,althoughavailabletoanyone,arerarelyseeninofficial
drugpolicydocumentsfromthenewEasternRepublics.Theonlyconspicuousexception
isCzechoslovakia,withacontributionofthePragueCenterforDrugAddictionthat
criticizesconventionaldrugpolicies.[28]Ofcourse,itwouldbemoreeleganttotransform
thePenalCodesofthenewRepublicsinsuchamannerastoallowlegalandfullytaxable
distributionsystemsforalldrugstobeestablished.Butsuchadrasticchangewillbe
politicallyimpossibleinthenearfuture.Itiswithinthecapacityoftheinternationaldrug
conventions,however,togiveveryhighprioritytoattackingorganizedformsofthedrug
tradeandtogiveamuchlowerprioritytosmallscaleproductionanddistributionandto
notprosecuteindividualuse.

ItwouldalsobeintheinterestofthenewRepublicsnottosigntheU.N.Conventionof
1988.ApartfromthefactthatthisConvention(iftakenseriously)willcreatealarge,
costly,andineffectivebureaucracytryingtocontrolavastrangeofpsychotropic
substancesandotherchemicals,itwilljustaddanotherlimitationtorationalityofaction
inthefieldofdrugpolicy.OfcoursealiberaldrugpolicythatdoesnotfollowU.N.
orthodoxywillbeproclaimedasagainsttheinterestsoftheWest.Thehiddenthemes
behindsuchexclamationsmightbexenophobiaandfearofuncontrollableemigration.
Overtly,EasternrepublicswillbeaccusedofworseningthedrugsituationintheWest,of
allowingcheapdrugstocrosstheWesternborders,etc.[29]Oneshouldnotbesurprisedifa
liberaldrugpolicy,howeverprofitableforthepreventionofdrugmiseryinthenew
Republics,willbeusedbyWesternpowersasareaofblackmailinrelationtoeconomicor
technicalassistanceinotherfields.SouthAmericancountrieshavebeensubjectedtosuch
blackmailforyears.WecanexpecttheUSA,France,(andpossiblytheUK)totakealead
inthistypeofconfrontation.[30]However,oneshouldjustlookatwhatthesecountries
http://www.cedrouva.org/lib/cohen.future.html 7/9
10/05/2017 FutureDrugpolicyinthecountriesoftheformerEasternBloc

havetoshowforwithintheirownbordersinthefieldof(succesful)drugcontrolinorder
toask:"Whoareyou?"

Notes

1.IwouldliketothankHansJrgenAlbrecht(Freiburg),DagmarHedrich(Strassbourg),Andr
Seidenberg(Zrich)andHelenaValkova(Prague)fortheircommentsonanearlierversionofthis
paper.ErnestDrucker(NewYork)waskindenoughtoeditthetext.
2.Thesepoliciesarealreadypartlyestablished(albeitatverydifferentlevelsofseverity)intheformer
EasternBloccountries.MostofthemsignedtheU.N./NewYorkConventionof1961but,for
variousreasons,nationallegislationderivingfromthisConventionseemsnottohaveoccurred.
3.SeeforanextensiveoverviewofnonProhibitionpolicyoptionsandsomeoftheirdifficultiesEthan
Nadelmann:"ThinkingseriouslyaboutalternativestoDrugProhibition."DeadalusPolitical
Pharmacology:Thinkingaboutdrugs.Summer1992.
4.InitsbodiesandcommitteescountriesmeetandcooperatewhodonotbelongtotheEECand,in
somecases,maynotevenbelongtotheCouncilofEurope.Cooperationisorganizedonanon
committalbasissincetheCouncilofEuropehasnolegislativebodiesthatbindmembers,unlikethe
EEC.
5.WHOEuropeissupportiveofsyringeexchange,whichisanathematothemainprohibitionistic
forceinEurope(especiallyFrance)andhasbeenanathemaformanyyearstotheU.S.A.
6.Seee.g.O.Meyer:"ActualpolicyinthefieldofpreventionofaddictionandspreadoftheHIVvirus
inPoland",DemosthenesMission,CouncilofEurope.sept1992p.1.
SeealsoMartinBojar,M.D.:"PrioritiesoftheCzecholslovakHealthCaresystem"In:National
ReportofCzechoslovakia,page1.CouncilofEuropepaperPPG/min(91)#32.
7.TheUNDCP/WHOMissiontoLatviapublishedadetailedlistofitemsrequestedbythealmostnon
existentLatviaCustoms.Undertheumbrellaofdrugcontrol,acompletetechnicaloutfitwas
requested:Itemsonthelistnotonlyrelatetodrugs,buttotechnicalequipmentenablingthe
Customstodoallitsotherfunctions,e.g.freightcontrol,luggagecontrol,equipmenttodetect
arms,radiation,preciousstones,metalsandexplosives.Evenbasiccommunicationequipmentison
thelistofrequesteditems.ReportonajointUNDCP/WHOMissiontoLatvia,13June1992,
UNDCP1992.annexIII.
8.FinnishprisonsalreadyhaveahighproportionofRussiancriminals(Brjesson,1992cfnote14).In
TheNetherlandsandGermanyYugaslaviancriminalsareassociatedtoviolentcriminality.
9."Narcobusiness,havingbecomeoneofthebranchesofthe'shadoweconomy',constitutesa
destabilizingthreattotheeconomyofthecountryandaggravatesthecriminogeneoussituation".
CfNationalReportoftheUnionofSovietSocialistRepublics,page1.CouncilofEurope,PPG/Min
(91)#31.
10.Oneoftheallegedreasonsforariseinthenumberof"drugaddicts"istheantialcoholcampaign
since1985whichmadealcoholbeveragesdifficulttoobtain.ReportonajointUNDCP/WHO
MissiontoLatvia,13June1992,UNDCP1992.page3.
11.MarekStaniaszek,M.D."DrugabuseinPolandin1990"MinistryofHealthandSocialWelfare,
Warsaw1990.page13.
12.Cf.NationalReportofHungary,p.5,preparedforthe1stPanEuropeanMinisterialConferenceon
Cooperationonillicitdrugabuseproblems,Oslomay1991.CouncilofEurope,PPG/Min(91)#19.
13.ASwissMDMAdistributoranduserwhowantstoremainanonymoustoldmein1990abouthis
"excellent"EasternGermanMDMAsources.Andaccordingtoseveralpressmentioningsinthe
Netherlandsinjanuary1993LatviaseemsalsotobeproducingMDMAfortheWesternmarketsin
staterunchemicalplants.
14.SpecialUNDCPFactfindingMissioninSevenRepublicsoftheCommonwealthofIndependent
States(CIS)2aprilto2may1992.UNDCPVienna1992,page45.
15.Cf.thetextofhisspeechinthereportofthismeeting,MinistryofSocialAffairsandHealth,
Finland,1992.
16.ManekStaniaszek,M.D."DrugabuseinPolandin1990"MinistryofHealthandSocialWelfare,
Warsaw1990.
17.TheRepublicsthespecialmissionvisitedwereUzbekistan,Ukraine,Belarus,Russia,Kazakstan,
TajikistanandKyrgystan.
18.SpecialUNDCPFactfindingMissioninSevenRepublicsoftheCommonwealthofIndependent
States(CIS)2aprilto2may1992.UNDCPVienna1992,page168.
19.Itseemstorecognizehoweversomeofthemeritsofharmreductionapproachesbyallowing
syringestobesoldwithoutprescriptionandatverylowprices.Cfpage21"Drugabusesituation
anddemandreductionpoliciesinHungary"InternationalDrugCommitteeofHungary,Budapest
1992.
20.CfNationalReportofRomania,CouncilofEuropePPG/Min(91)#29

http://www.cedrouva.org/lib/cohen.future.html 8/9
10/05/2017 FutureDrugpolicyinthecountriesoftheformerEasternBloc

21.CfNationalReportofBulgaria,CouncilofEurope,PPG/Min(91)#25.
22.SpecialUNDCPFactfindingMissioninSevenRepublicsoftheCommonwealthofIndependent
States(CIS)2aprilto2may1992.UNDCPVienna1992.
23.CfthejointUNDCP/WHOreportsonLatvia,LithuaniaandEstonia,Vienna1992.
24.The1992UNDCPMissionwritesinitsreport:"Thecooperationlastedforoneyearafterwhich,for
unclearreasons,theAssociation[LePatriarche]stoppedallcollaboration."page32.
25.EECCommission1992PHAREBudget,Brusselsnov1992,AVHei400.
26.Suchcampaignsshouldnotbeblindlyletlooseonthegeneralpopulation,buttargetedonspecific
groupsoragecohortsaftercarefulmarketanalysisasdonebysuccessfulpublicitycompanies.
27.Mostheavydruguseisperiodicand/oragerelated.Manypasssuchperiodsunscathedwhenleftto
theirownresources.Onemightconcludethatchancestosurviveperiodsofheavydruguseinthe
physicalsenseandinthepsychologicalsenseareenhancedwhensuchusersdonothavetoalso
compensatefortheeffectsofcriminalizationandbadqualitydrugs.
Chronicheavyuse,althoughsociallyunacceptedandthereforepidemiologicallyrare,isinevitable
inanysystemofdrugcontrol.AlthoughIdonotknowofcomparativeresearchinthisarea,quite
probablytheepidemiologicalmagnitude(orprevalence)ofchronicheavyuseismoredetermined
byqualityofsocialconditionsthanbysystemofdrugcontrol.
28.JiriPresl,M.D.:"PsychoactiveDrugs...ProhibitionorLegalization?"In:NationalReportof
Czechoslovakia,CouncilofEuropepaperPPG/min(91)#32.
29.Thegameofshiftingtheresponsibilityofone'sowndrugmiserytoaliencountries,tribesorother
minoritieshasalwaysbeenverypopularamongdrugwarringnations.American,FrenchorSwedish,
drugauthoritieswillneverevensuspecttheirowndrugandsocialpoliciesasresponsiblefortheir
owndrugproblems.
30.OnthetopicofdrugsandEasternandCentralEuropeancountriesasearlyasthe1990confidential
reportofCELADtotheEuropeanCouncilMeeting(HeadsofStateofEECcountries)bluntlystates
that"theCommunitywillendeavortointroduce,asalreadyoccursinadifferentcontextforthe
ACP,MediterraneananddevelopingcountriesofLatinAmericaandAsia,the"drugs"priorityinto
itsnewbilateralcooperationinstrumentswiththesecountries."CELAD126.EuropeanPlanto
CombatDrugs,10234/1/90page23.

Lastupdate:May25,2016

http://www.cedrouva.org/lib/cohen.future.html 9/9