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FOIA Number: 2011-0584-F
FOIA
MARKER
This is not a textual record. This is used as an
administrative marker by the William J. Clinton
Presidential Library Staff.
Collection/Record Group:
Clinton Presidential Records
Subgroup/Office of Origin:
Communications
Series/Staff Member:
Mark Gearan
Subseries:
OA/ID Number:
7548
FolderID:
Folder Title:
Drug Czar
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90
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vo≥2 22 home
of
Drug Control
THE WHITE HOUSE
WASHINGTON
February 8, 1994
Memorandum for Mack McLarty
From:
Mark Gearan
Subject:
Drug Policy Roll-Out
Summary. This memo outlines the plans for unveiling the President's new drug
control strategy. As you know, the President will announce the strategy on
Wednesday, February 9.
Preliminary Briefings. Yesterday, the Office of National Drug Control Policy
("ONDCP") held a pre-briefing on the strategy for reporters who generally cover
drug policy. A New York Times story from that briefing is attached.
Morning Shows. Lee Brown will appear on morning shows Wednesday to
preview the drug strategy.
The Drug Strategy Announcement. The President and Lee Brown will unveil
the plan itself Wednesday morning at a Prince George's County Correctional
Center. Secretaries Reno, Shalala, Bentsen, Riley and Pena are tentatively
scheduled to attend; they will do follow-up events on Thursday, February 10.
Follow-Up White House Briefing. After the announcement on Wednesday,
Lee Brown will brief the White House press corps on details of the strategy.
Congressional Testimony. Lee Brown will testify to Congress on Thursday,
February 10 and do ancillary briefings for the congressional press corps.
Anti-Legalization Op-Ed. The Communications Department has been working
with ONDCP on an op-ed reiterating the administration's opposition to the
legalization of drugs. We will try to place that op-ed later this week.
Talking Points. Talking points and a fact sheet are being finalized and will be
distributed to senior staff and the Cabinet tomorrow morning.
Please let me know if you have any thoughts or suggestions about this plan.
Anti-Drug Effort
President Plans to Raise
Drug Treatment Budget
By JOSEPH B. TREASTER
Specialio The New York Times
WASHINGTON, Feb. 7 - Following
Biden said.
through on a campaign promise, Presi-
The budget for the 1994 fiscal year,
dent Clinton today proposed a sharp
which Mr. Clinton proposed last March,
increase in spending for drug treat-
varied little from the approach taken
ment and programs to prevent drug
by his Republican predecessors;
abuse.
spending was to increase to $13 billion
Despite the spending increases for
from $12.2 billion in the last budget
prevention and treatment, most of the
submitted by President Bush for the
$13.2 billion for anti-drug programs
1993 fiscal year, but Congress ap-
would go toward law enforcement.
proved only $12.1 billion.
Mr. Clinton budgeted $5.4 billion for
This year, the Administration and
drug prevention and treatment, up
some Democratic members of Con-
about 20 percent from the $4.5 billion
gress are more optimistic.
approved by Congress last year. That
"I think this year, with greater em-
increase would give prevention and
phasis on crime and drugs, there is an
treatment 41 percent of the budget.
understanding that while punishment
Mr. Clinton also proposed Increasing
is warranted, treatment has been terri-
the spending for law enforcement to
bly underfunded," said Representative
$7.8 billion, accounting for 59 percent of
Charles E. Schumer, the Brooklyn
the budget.
Democrat who is chairman of the
Over all, the anti-drug budget would
House Subcommittee on Crime and
rise by 9 percent from the $12.1 billion
Criminal Justice. "And I think Con-
approved by Congress for the current
gress will stick with these numbers,"
fiscal year.
he said.
'A Significant Move'
Last October, Mr. Clinton said that
In addition to the proposal for the
he intended to make drug prevention
anti-drug budget made public today,
and treatment programs a hallmark of
the Administration is asking for nearly
his Administration, with emphasis on
$1 billion for drug treatment and edu-
heavy drug users who consume most of
cation programs as part of an anti-
the illegal drugs and are responsible
crime package that would spend $22.3
for a high proportion of drug-related
crime.
billion over five years.
But he was criticized at the time for
"This is a significant move toward
putting resources where the need is
not spelling out how he would divide his
greatest," said Dr. Herbert D. Kleber,
budget to convert his goals into reality.
who resigned as President George
Today, Mr. Brown said Mr. Clinton's
Bush's deputy directory of the National
drug strategy promised "dramatic
Drug Policy Office, where he was the
change, and that is reflected in the
chief aide for health and education,
budget."
after his requests for such Increases
Some experts had been skeptical of
went unheeded
Mr. Clinton's drug plan last fall, partly
Lee P. Brown, Mr. Clinton's principal
because he had followed President
aide on drug policy, said the increase in
Bush so closely in drafting his first
spending for prevention and treatment
anti-drug budget. Moreover, Mr. Bush,
represented a "fundamental change in
like Mr. Clinton, often spoke of the
the way the nation responds to the drug
importance of drug treatment, but con-
problem."
tinued to spend much more for law
But he emphasized that for the Clin-
enforcement
ton Administration, like the Bush and
In his last budget, for example, Mr.
Reagan Administrations, law enforce-
Bush increased law enforcement
ment remained an important part of
spending by 8.6 percent and spending
the country's drug strategy.
on health-related issues by 8.8 percent,
but that still left law enforcement with
"We're providing not only a signifi-
68 percent of the budget. But the split in
cant increase in drug treatment capac-
Mr. Clinton's budget is
ity," Mr. Brown said in an afternoon
about the same split as in the last anti-
briefing, "but also solid support for
drug budget submitted by President
law-enforcement activity."
Jimmy Carter for the 1981 fiscal year.
While Mr. Clinton proposed a 3 per-
Drug treatment experts estimate the
cent increase in spending for enforce-
number of heavy drug users in the
ment, his budget calls for reducing by
country at from four million six mil-
about $100 million the $1.2 billion spent
lion. There are now programs to treat
last year in trying to stop smugglers at
1.4 million of them, but Mr. Clinton's
the borders and on the seas and in-
drug budget would provide treatment
creasing by about the same amount, to
for 74,000 more men and women. In
a total of $400 million the amount spent
addition, the crime bill would enable
on trying to counter drugs in the coun-
66,000 more to enter treatment.
tries in Latin America and Asia that
Peter Reuter, a drug expert who
produce them.
teaches public affairs and criminology
"I think this is a good strategic
at the University of Maryland, said the
move," said Senator Joseph R. Biden
Administration may be expanding in
Jr., the Delaware Democrat who is
these areas "as much as they responsi-
chairman of the Judiciary Committee.
bly can in one year."
"The major thrust toward more em-
"You can't double these programs
phasis on treatment and prevention is
overnight," he said. "You can't pump
what we've been arguing we should be
that much money out efficiently in one
doing for the past four years," Mr.
year."
THE NEW YORK TIMES, TUESDAY, FEBRUARY 8, 1994
hee Brown
file: DRUGS
(I.) I. Dizug Strategy
release by 9/27
(i.)
1.
demand : primary objective
meaningful dung threat healthcare
hard cone drug use; pregrant in lcids
(2.) amy related Wolence must be reduced
(3) promote safe school midrate
(3.) locus on what works. Reject effort to legalize.
make clean Admin statement. Law enf + Intelligen
duplication. Better condination. Research
4 4 hatl cooperation
II) Rearthonization of ONDCP - by Fall
"New looh". H/S hearings End a Sept.
III.) Interagency effats + overlap
Durg timent $ - compaign procrise of t'meat
on demand. Ferer timent slots in Cliuton
first 2yrs than Bush.
- Rec'dtn to my. interdiction
- Intelligence gathering - averlap probs noted I impr
- tad dury enfercement NPR noted need of consolidation
- Criminal pists Dug Timest
POTUS: ABC newsclip an commity policing-Tiftan, GA
Drug Cza 76
MEMORANDUM
Dug
TO:
FROM:
Mark Andre Gearan Oliver Ao.
RE:
Lee Brown Confirmation
DATE:
10 May 1993
Here's an update on Lee Brown's confirmat
1)
Confirmation Team
As you know, Scott Green, a "special government employee,"
will take the lead on preparing Brown for the confirmation
process. Scott will work with Nester Davidson, Tracey
Thornton and Paul Carey on legislative liaison; Bill Kennedy
and Ron Klain from counsel; Steve Hilton on public liaison;
Jose Cerda on policy matters; Jennifer, Ricia and myself as
needed.
The team held an overview meeting with Brown on Friday to
walk him through the confirmation process and begin a
preparation strategy.
2)
Hearing Schedule
There are two likely dates for confirmation hearings: May
25-26 and June 8-9. If the FBI report is completed by next
Monday, the committee could hold hearings and have a floor
vote prior to its Memorial Day recess. Otherwise, we're
looking at a mid-June confirmation.
3) Briefings
Lee returns to Washington on Wednesday to meet with Senator
Biden and pay courtesy calls to other Judiciary Committee
members. He will also receive policy briefings from Carol
Rasco/Jose Cerda, Dick Canas (NSC) and Bernie Arons of the
Health Care Working Group.
EOM.
MEMORANDUM
day (zan yre
TO:
Dee Dee
Arthur
FROM:
Andre
RE:
Drug Use -- Emergency Room Visits
DATE:
22 April 1993
HHS will likely release a quarterly report in the near future --
called the DAWN Survey -- that shows an increase in cocaine and
heroin use in hospital emergency room visits.
Once released, the report will likely receive attention as
further evidence of a pattern of increased drug abuse nationally.
(You should note that the report is already in certain hands in
the Congress). Attached are talking points which I asked Jose
Cerda to prepare in response to these statistics.
Please call Jose or myself with any questions you may have.
attachment
CC: MDG
TO:
Andrea
FR:
Jose
RE:
Suggested DAWN Response
≈:
Today, the quarterly Drug Abuse Warning Network (DAWN) numbers indicated
that cocaine and heroin hospital mentions have increased yet again. Given these
numbers, how can the President justify his inaction on the drug issue -- let alone
his delay in appointing a Drug Czar?
A:
The DAWN numbers show that our hospitals continue to see cocaine and heroine
overdoses in record numbers particularly among older drug users (35 and up) --
and the President is concerned about this trend. But this data confirms what we've
known for more than a year now -- that hardcore drug use is or the rise.
The President knows that hardcore drug use must be addressed if we are to get at the
root of the drug problem. Hardcore users haven't been focused on in the past, and
they have remained a problem. That's why the President requested $2.8 billion for (one
4
(.6rh
drug treatment and treatment research in his budget, an increase of $172 million (7%).
We need to dramatically increase treatment availability -- and then demand that
hardcore addicts get treatment.
Demanding that hardcore addicts get treatment is where the President's policing
initiative comes in. By increasing the number of police in our streets in community
policing roles, we can directly confrout hardcore drug use and drug dealers.
Community policing strategies have been proven to help close down drug markets and
to help identify problem addicts that should get treatment.
Finally, the President's Health Care Task Force is considering drug treatment options
as part of its effort to reform our national health care system. This represents a
completely new direction in drug policy and would do more over the long term to
expand drug treatment to all addicts.
THE WHITE HOUSE
WASHINGTON
Drog
April 14, 1993
Czar
Dr. Lee Brown
Texas Southern University
3100 Cleburne
file
Houston, TX 77004
Dear Lee:
It was a pleasure speaking with you today. I appreciate
your input on the drug policy office, and more importantly, want
you to know that the President would value your stewardship of
this important office.
I'd also like to address a couple of your questions
regarding the authority and "impact" of the office. The specific
statutory functions of the ONDCP are also attached for your
review.
The "Drug Czar" has several operational responsibilities for
anti-drug programs within the ONDCP, as well as those implemented
at the agency level. For example, the two largest accounts in
the ONDCP are the High Intensity Drug Trafficking Areas (HIDTA)
Program and Special Forfeiture Funds. These accounts give the
Director the discretion to direct federal resources to priority
anti-drug efforts on a national, state or local level. We expect
these funds to exceed $110 million in fiscal year '94.
In addition, the Director is charged with coordinating and
overseeing drug policy and programs involving approximately 50
federal agencies and 12 cabinet departments. This includes
certifying agency drug control budgets, to ensure that they are
adequate to accomplish the national drug control objectives
formulated by the Drug Czar.
As we discussed, the President plans to designate the
Director as a member of his cabinet, to give drug policy and its
execution the highest attention in the White House.
Let me say personally that we are anxious to get to work on
the reorganization and policy direction with the leadership of
the Director.
-2-
Lee, thanks again for your consideration. I look forward to
speaking with you again soon, and trust you will not hesitate to
contact me on any matters of concern.
Sincerely Marl D. Graian
Mark D. Gearan
Deputy Chief of Staff
CMD6
TO:
Dee Dee
David Itshio 868
FR:
Jose
RE:
General Drug Budget Talking Points
301 296 2990 Froz(4)
DA: April 7, 1993
Dee Dee, enclosed please find the generic drug funding talking points that DPC has
been using to date. If you think you'll need more specific information about line items in the
drug budget, I'm happy to put something together, run it by Carol Rasco and get it to you.
NB: The Drug Budget represents a compilation of proposed agency expenditures that are
"scored" as "drug-related". In many instances, only partial program expenditures,
salaries, etc., are scored as part of the drug budget. Thus, drug budget totals do not
necessarily match the genera! budget document.
OLIVER
Jo: AMORE
R
CAN you DELIVER No
ANSWER
Dwg Gar
DEE DEE.
@ PRESS.
file
SUGGESTED DRUG BUDGET TALKING POINTS
≈:
President Clinton's Drug Budget ($13.041 billion) Is no different than what was
enacted under the previous administration ($12.210). It basically retains the
current supply/demand ratio (63.7/36.3).
A:
NO -- if drug treatment is incorporated as a basic service in a national health care
plan, we will have dramatically increased -- and helped to de-stigmatize -- drug
treatment availability. In addition, the investment package includes $1.5 billion over
the next four years to help meet the "treatment shortfall". The soon-to-be-appointed
Drug Czar will review our Drug Budget and recommend appropriate changes in our
drug policies and funding levels.
&
President Clinton has given our allies In the "War on Drugs" a signal that drug
policy will not be an International priority for this Administration.
A:
Press reports to the contrary, President Clinton has not proposed slashing international
drug spending; international and interdiction accounts have only been cut by 1%.
Neither has the President embraced an arbitrary supply/demand ratio in deciding
proper funding levels. Under this budget, demand-side expenditures (treatment and
prevention) will increase 10%, and supply-side expenditures (law enforcement and
interdiction) will increase 5%. These budget numbers offer a good start, and the final
drug strategy/budget will include the new Drug Czar's recommendations.
While the President has clearly decided to increase funding for drug treatment and
prevention, doing more at home to reduce our nation's voracious appetite for illegal
drugs does not preclude us from continuing to work with our allies that have the
political will :0 fight against illegal drugs.
Q:
President Clinton has gutted the Office of National Drug Control Policy (ONDCP)
and demoted the "War on Drugs" as a priority.
A:
NO the President's reorganization will help revitalize the office. First, he has
reformed the office from being a political dumping ground to a more focused policy
and planning office. While ONDCP was meant to give coherence to drug policy, it
has not succeeded in its mission. Second, the new Drug Czar will be elevated to the
Cabinet level; the previous Administration demoted the Drug Czar from his cabinet
status and physically removed the office from the White House complex. And
finally, in a time of budget constraints, the President has increased overall drug
spending.
Q:
Why is it taking so long to fill the Drug Czar position?
A:
The Drug Czar's job is one of the most varied jobs in the federal government,
requiring knowledge in just about every aspect of government -- law enforcement,
treatment and prevention, urban issues, intelligence matters, international relations, and
more. Candidates from all backgrounds must be considered. Interestingly, after Bill
Bennett's resignation, it took George Bush 4 months to appoint a replacement, Bob
Martinez.
2:
Why were funds for High Intensity Drug Trafficking Areas
(HIDTA) and Special Forfeiture Funds (SSF) not scored under
the Office of National Drug Control Policy? Will these
programs no longer be administered by the ONDCP?
A:
Funds for HIDTA and SSF were placed under "Funds
Appropriated to the President," which was an administrative
action by OMB. As the budget indicates, HIDTA and SSF funds
will remain at the discretion of the drug director for drug
control programs.
PRESIDENT WILLIAM JEFFERSON CLINTON
APPOINTING DR. LEE BROWN DIRECTOR OF THE OFFICE OF NATIONAL DRUG
CONTROL POLICY
APRIL 28, 1993
It is with great pleasure that I announce the appointment of
Dr. Lee Brown -- the first police officer to hold this job -- to
serve as Director of the Office of National Drug Control Policy.
A few weeks ago I elevated this office to Cabinet level
status, because I believe drug abuse is as serious a problem as
there is in America. Lee Brown shares that view, and I am proud
that he will join us in this new position.
As Americans who care about our future we cannot let drugs
and drug related crimes continue to ruin our communities,
threaten our children even in school, and fill up our prisons
with wrecked and wasted lives.
We must do a better job of preventing drug use and treating
those who seek treatment, and we must do more to protect law
abiding citizens from those who victimize them in the pursuit of
drugs or profits from drugs.
I am committed to winning this struggle, as all Americans
are, and there is no better person to lead us in this fight than
Lee Brown.
He has been the chief law enforcement officer in Atlanta,
Houston and New York. He's a policeman and a Ph.1 D in Criminology
who brings to this tough job a truly extraordinary record -- of
innovation and crime reduction -- and a sensitivity to the
problems of real people who want to walk home safe at night.
To reduce drug use and drug related crimes we must do many
things at the same time.
It has to start with community policing, with more police at
the local level working with neighbors and friends to prevent
crime and to quickly punish criminals. There must be better
education and prevention efforts starting at the earliest ages.
And there must be treatment for those who want to get better.
Dr. Brown knows a little something about community policing.
It's nearly his invention. He turned the Houston police force
into a model of community policing, and for many serious crimes
the crime rate there dropped. In New York he added thousands of
officers to foot patrols, men and women who he empowered to help
solve problems, not with a federal program but with a commitment
to a better life in the neighborhood. And reports of serious
crime there fell.
1
He's had the vision to see conditions clearly and the
courage to change what isn't working. Most importantly, he gets
results, and this is exactly what we need in the war against
drugs.
I pledge to him and the American people an exceptionally
focused and very carefully executed anti-drug effort from the
federal government.
At the heart of our efforts will be more funds for local
police officers, more for treatment and more for prevention. We
will continue to do all we can to stop drugs at the border, and
to work with countries that have shown the political will to
fight illegal drugs. They will continue to get our full support
and cooperation. But it's time we turned our attention home, and
built a strategy that begins to make our neighborhoods safer.
We want to close the gap between those who want treatment
and available treatment. Treating addiction is good urban policy
and good anti-crime policy and good health policy. We have asked
for a ten per cent increase in treatment funds for 1994, and will
make drug treatment part of our national health care plan. Our
goal is to work towards treatment on demand.
I believe the parents of America want and deserve more help
in educating children about drugs. We can prevent drug abuse.
School programs work. Public service programs work. But they
aren't miracles. They require a commitment. We have asked for a
sixteen per cent increase in drug prevention funding.
Finally, we are determined to put more police on the street
and to expand community policing. It's a local program, it's old
fashioned law enforcement, but it works -- there's less crime. I
think it's time to go back to the basics. I asked for 200
million dollars in the stimulus package for community policing,
and have proposed almost 600 million in policing and similar
initiatives for 1994.
The most basic responsibility of the government is to
protect the American people. It's our sacred duty to do our
best. I believe we have a great program. It's basic. There's
more officers, more education, and more treatment.
And with the leadership of Dr. Brown, it promises to be more
effective. I look forward to working with him to meet, and
master, the challenges ahead.
Thank you very much.
2
Da. William Herris
Pread int
Veen Semily x
(713) 527. 7000
(713) 771.8640
Houston (H)
Bru. 703.684. Gennedy
8772
MEMORANDUM
TO:
FROM:
Andre Ricki Oliver Seidman Ao-
RE:
Drug Czar Announcement
DATE:
27 April 1993
As we discussed, attached is background material in preparation
for the President's announcement of a Drug Czar on Wednesday (we
hope).
-
Bio from Presidential Personnel
-
Press Clips on Brown
-
Feb. 9 press release on the White House reorganization
-
Sen. Biden statement on the Drug Czar
-
Dep. Sec. Rivlin's testimony on the ONDCP (see sections "New
Drug Policy Direction" and "ONDCP's Budget and
Organization")
Let me know if you have any questions.
CC: Mark Gearan (memo only)
attachments
MEMORANDUM
TO:
Mark Gearan
David Watkins
FROM:
Andre Oliver
RE:
Lee Brown
DATE:
3 February 1993
FYI, Lee Brown resigned as NY City Police Commissioner in
September of this year.
He's currently director of the Black Male Initiative Program at
Texas Southern University in Houston. His phone is
(713) 527-7011.
EOM.
(713) 527 4361 (fox)
Drug Czar Announcement Invitees
Cabinet (8) :
-
Reno
-
Cisneros
-
Riley
-
Christopher
-
Shalala
-
Bentsen
-
Aspin
-
J. Brown
Members of Congress/Staff (20) :
-
Biden
-
Moynihan
-
E. Kennedy
-
Hatch
-
DeConcini
-
Kassenbaum
-
Rangel
-
Hoyer
-
Conyers
-
Neil Smith
Law Enforcement Officials (25) :
-
Federal Law Enforcemnent Officers Assoc.
-
Fraternal Order of Police
-
International Association of Chiefs of Police
-
International Brotherhood of Police Officers
-
International Union of Police Associations
-
Major Cities Chiefs
-
National Association of Police Organizations
-
National Organization of Black Law Enforcement Executives
-
National Sheriffs Association
-
National Troopers Coalition
-
Police Executive Research Forum
-
Police Foundation
-
National District Attorneys Association
-
National Association of Attorneys General
ONDCP (7) :
-
TBD Ricia/Bruce
Drug Treatment Representatives (15) :
-
TBD Jose/Ricia
APR 1993
Brown's New Life
PB
SENT BY:NAT'L DRLG POLICY
By Michael H. Cottman
CORRESPONDENT
oustun - For the first time in 15 years, Lee
Brown is driving bimself around town.
He bought himself a 1992 wide-body bur-
gundy Buick, the first car he has owned since
1978. The man who commanded three police depart-
ments around the country is finally on his own.
No bodyguards. No guns. No airens.
"It's a little different for me," concedes Brown,
seated behind the wheel of his car as he drove through
the streets of Houston. "But I'm a good driver. I re-
spect the law."
Six months ago, Lee Brown left New York City to
4-20-93 :12:56PM
teach police courses at Texas Southern University, a
black college here, but he still maintains an unessy
connection with New York.
In his first interview since stepping down as police
commissioner, Brown talked about how the decisions
be made during the first two days of rioting in Crown
Heights continue to dog him
Even now, in between teaching classes on commu-
nity policing, Brown finds himself responding to ques-
tions from state investigators about Crown Heights
and queries from city attorneys defending him and
the mayor against a federal lewsuit, charging that he
purposefully withheld cops for more than 48 hours
while gangs of youths rioted through the streets of the
Brooklyn neighborhood. The suit was brought by
some neighborhood residents, including the Camily of
Yankel Rosenbeum, who was killed in the riots
Brown's position remains the same as he repeated
often here: He says that there were plenty of cops at
the acene but the initial policy was containment rath-
er than confrontation.
"I don't like being sued, but it's a fact of American
life," Brown said, in an exasperated tone. "People
still call me and tell me what's going on with Crown
Heights."
ONDOP-EOP- Wing (1st Firs:# 7/
Newaday File Photo , An Currentes
MOVING ON. Former Police Commissioner Lee Brown now works as a teacher and reporter in Texas.
910F3
These days, Brown, 55, is also responding to ru-
more about his plans beyond Houston. There have
been widespread reports that President Bill Clinton
was considering Brown to head the FBL But, there,
SENT DRLG POLICY
too, his time in New York continues to be a major
factor: A group of Orthodox Jews from New York, still
ingry over Brown's actions in Crown Heights, have
flooded the White House with telephone calls oppos-
ng him.
White House sources said yesterday that Brown is
boards, speaks at churches and high schools and rune
vard, Yale and other colleges in Texas and California
also being considered for a possible appointment as
a university program called the Black Male Initiative,
"Some of the other universities would have been
trug CLIM but no decision has been made.
which counsels black males. And for the past several
good for me personally," Brown said. "But this is
Brown is typically tight-lipped about any Washing-
months he has been a paid reporter for an ABC affili-
good for black students."
on prospecta. He will say be is aware of the feelings
ate.
He added: "It's less crowded and slower paced here,
umong some Jews in the city but shrugs it off as just
Once a week for two minutes of air time, Brown
but anything would be slower than being police com-
more opinionated New Yorkers.
reports on positive aspects of Houston's black com-
missioner."
The desk that Brown sits behind these days is con-
munity - 28 percent of the 1.7 million residents. He's
When he was in New York City, Brown was some-
liderably smaller than his old one, a huge cherry-
done stories about a junior high school where the par-
times called too aloof and academic. Although no one
wood desk that nearly fills the room at One Police
ents come out in the mornings to direct traffic and
ever questioned Brown's integrity, be was also crits-
4-20-93 :12:57PM
Plaza and was originally owned by Teddy Roosevelt.
help kids and a black cowboy in town for a rodeo.
cized by some for failing to 888 signs of the deteriora-
In his new office, just beyond the downtown area in
"I'm not a news reporter, I'm doing positive eto-
tion of the police Internal Affairs Division, whom dis-
south-central Houston where old clapboard shacks al-
riea," Brown said. "Thers is a lot more work that goes
array led to the crestion of a mayoral commission to
nest meet the highway, Brown has one telephone and
into it than I imagined."
probe police corruption.
hree plants. He lives in a two-story bouse, 15 min-
Brown knows the community well and the COMMOU-
He says he is proud of his record, in particular his
ites from the college, with his twin daughters, 22,
nity knows him. He was Houston's police chief from
community policing program.
who are earolled at the university. "They live up-
1982 to 1990 and many residents still call him
Through his program and Mayor David N. Dinkins'
tairs. I have my privacy and they have their prive-
"Chies" when they see him. He was chief when Hous-
"Safe Streets, Safe City" plan, the city increased pe-
y." be said.
ton had few black police officers and race relations in
trol strength by 18 percent since 1990 and put more
During the interview in his office, Brown also spoke
the department were at an all-time low.
than 3,200 additional uniformed cops on the streets.
about his wife's battle with brain cancer and how, just
The Rev. Harvey Clemons Jr., pastor of the 67-
"Community policing is a great program and we
wo months after her death, be is coping with the loss
year-old Pleasant Hill Baptist Church, has had him
wouldn't have had community policing if itwasn't for
if a woman whom he described as his best friend His
speak at his church.
Lee Brown," said Tom Repetto, president of the Citi-
vife, Yvonne, was 55 when she died on Dec. 29. A
"We're impressed with his character and discipline
zens Crime Commission Brown knows, however,
ormer librarian known for her love of singing, she
and the wide range of information he brings to the
that everyone is not on his side.
and cancer for several years and when Brown left
community, especially the African-American commu-
"People are resistant to change," Brown said. "No
New York after 2½ years, he said it was to spend
nity," Clemons said. "He talks about values and eth-
matter what you do there is a natural tendency to
sere time with his wife.
ice and he encourages African-American men to take
have anxiety about the unknown."
Since ber death, he's tried to keep busy.
a very active role in public affaire and stand up for
Brown said that be believes he was successful as
"If I stop for too long, I'll just sit around thinking
injustices." Brown said be came to Texas Southern
police commissioner in New York. despite what his
bout her, Brown said. "I met her when I was 17 in
University, now the largest predominantly black cot
critica say - because of the support of Dinkins who
fresno. She was my first real date. We had a wonder-
lege in the country, with 11,000 students, to help 181-
made it clear public safety was a major priority "It was
ul life together."
prove the quality of life for black asudents. He said be
more than just a mayor-police commissioner relation-
In Houston, Brown serves on several community
received offers to teach at New York University, Har-
ship, I considered him a friend," Brown said.
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FROM: ABCDEFGHIJKLMNOPGRSTUVWX TO: 12024679899
APR 20, 1993 7:34AM #069 P.02
THE DETROIT NEWS AND FREE PRESS
APR 18 1993
Critics say president dragging
his feet in war on drugs
Different priorities? Some contend administration
is doing nothing or little to alleviate the problem.
FIRST
in other agencies are Bush administra-
By Richard A. Ryan as
Bon holdovers.
NEWS WASHINGTON BURSAU
The president's proposed annual drug
DAYS
WASHINGTON - Drugs never
spending of $13 billion is minimally
have been a big deal for President Clin-
higher than his predecersor's last pro-
ton. who said he once smoked A morijua-
posal
na cigarette - but didn't inhale.
Moreover, Clinton has suspended
That attitude has carried over into his
drug testing of White House staffers and
A report on
Day 88 of the
presidency, say critics who accuse him of
dramatically starbed staffing at the
presidential
pushing the federal war on drugs far
White House Office of National Drug
term. This
behind economic. health and foreign-
Control Policy from 146 to 25.
continues a
policy issues.
The president is doing absolutely
chronicle of
Nearly three months into bb presi-
nothing in terms of drugs," said Rep.
the Clinton
dency, Clinton has yet 10 name a drug.
Charles Rangel, D.N.Y., head of the
policy chief.
House Caucus on Drug Abuse.
presidency's
At the same time, critics asy, there's
first 100 days.
Many of the key anti-drug strategiate
fresh evidence that America's drug prob-
1/2
BURRELLE'S
NewsExpasse
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TO:12024679899
APR 20, 1993 7:34AM #089 P.03
Iem hasn't gone away.
1988, establishing the Office of National
They point to the annual University
experience As governor of Arkansas. he
Drug Control Policy.
of Michigan student drug survey released
authorized A sting operation that readi-
Bruce Reed, deputy assistant to the
last week, which disclosed A small in-
ed in the arreat of his brother. Roger. 2011
president for domestic allairs, insisted
crease in drug use among eighth-gradors.
cocaine-trafficking charges. The younger
Clinton has not abandoned the drug war.
"As critical as I've been of the whole
Clinton served 18 months in prison.
"The president is very concerned About
drug effort of the Bush administration,"
During the presidential campaigu,
the prevelence of drug abuse," Reed said.
Rangol said, "they did & Int more than
Clinton promised "to offer drug inst-
A drug chief will be named "very
what to being done now."
ment to everyone who needs help." Whin
soon" and have Cabinet-level status, the
Bush came into office declaring war
the 1994 budget he submitted this molth
side continued. Prominent on the list of
on the drug "scourge," AS his inmugural
doesn't contain money for treatment on
possible appointees is Lee Brown, former
address promised. Clinton didn't men-
demand. Reed said the health care pack-
police chief in Houston and New York
tion drugs at his insuguration and barely
age likely is to address such treatment.
City. Joseph Califann, secretary of the
mentioned the issue in his houriong
Peter Reuter, A drug-policy specialint
Department of Health and Human Ser-
State of the Union message Feb. 17.
at the Rand Corporation think tank in
vices in the Carter administration, is
"There is no Clinton drug policy,"
Santa Monica, Calif., Bees no great náme
another prospect.
declared William Bennett, the nation's
from Clinton's pace.
Reed defended the dragtic staff cuts,
first drug-policy chief. "The only thing
"It is not as though there is some privil
claiming the drug agency had become "a
he has done is dismantle the drug office.
crisin with respect to drugs that requires
dumping ground for political hacks."
Bush appointed Bennett after Con-
high level attention," Reutor said. ito
He also pointed out Clinton's concern
Kreas passed the Anti-Drug Abuse Act of
have a berious but endemic problem
for drug abusers stems from personal
not getting
Please
BURRELLE'S
PAGE NewsExemass 2 OF 6
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The 1993 National Summit on U.S. Drug Policy
May 7, 1993
Thurgood Marshall Federal Judiciary Building
Washington, D.C.
Congressman Charles E. Schumer
Chairman
8 E Street, S.E.
Washington, D.C. 20003
April 16, 1993
On Friday, May 7. 1993, I will host the 1993 National Summit on U.S. Drug Policy at the new
participate in the Summit.
Thurgood Marshall Federal Judiciary Building in Washington, D.C. I take great pleasure in inviting you to
The primary purposes of the Summit are to assess the effectiveness of current policies and programs
and to discuss promising new strategies for dealing with the twin scourges of drugs and drug-related crime.
We hopé that a thorough examination of both current and proposed drug policies will result in a more effective
utilization of Federal resources and improved coordination between the private sector, and Federal, state and
local governments.
As the enclosed draft agenda for the Summit indicates, mini-presentations and discussion sessions will
address such issues as: How should our anti-drug effort be organized? Is the present allocation of Federal
resources working? Which existing programs have been successful enough to justify increased Federal
equation? resources? Which new policies should we consider implementing on both the supply and demand sides of the
The program will begin promptly at 8:45 a.m. and will conclude at 4:15 p.m. The only expense
charged participants will be a $20.00 registration fee. A luncheon will be provided. To confirm your
attendance, please contact Kathy Prendergast of the Columbia Institute, the coordinators of the event, at (202)
547-2470 before May I, 1993. Lunchis on me - thanks for participating.
on May 7.
Your attendance and participation in the Summit is critical to its success. I look forward to seeing you
Sincerely,
Chuck Schumer
CHARLES E. SCHUMER
Chairman
Subcommittee on Crime
and Criminal Justice
A Columbia Institute Coordinated Event-
-Stationary Printed at Private Expense
SENT BY:NAT'L DRUG POLICY
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002
DRAFT AGENDA
THE 1993 NATIONAL SUMMIT ON U.S. DRUG POLICY
MAY 7, 1993
THURGOOD MARSHALL FEDERAL JUDICIARY BUILDING
WASHINGTON, D.C.
Congressman Charles E. Schumer, Chairman
Coffee
8:15 - 8:45 a.m.
Welcome and Introductions
8:45 - 9:00 a.m.
I, Are We Winning or Losing the War on Drugs? (How Can We Tell2)
9:00 - 10:00 a.m.
How Do We Define Success in National Drug Policy?
Presentations:
Mr. Joseph Califano, Center on Addiction and Substance Abuse
Dr. Robert DuPont, Institute for Health and Behavior
Professor David Musto, Yale Medical School
Discussion
Break
10:00 - 10:15 a.m.
IL The Domestic Front: Innovative Approaches to Demand Reduction -
10:15 - 11:30 a.m.
Law Enforcement. Prevention and Treatment,
Presentations:
(a) Law Enforcement
Mr. Robert Bonner, Drug Enforcement Agency (invited)
Chief Reuben Greenberg, Chief of Police, Charleston, SC
(b) Treatment
Dr. Mitchell Rosenthal, Phoenix House Foundation
Dr. Herbert Kleber, Center on Addiction and Substance Abuse
(c) Education/Prevention
Dr. Mary Ann Penz, University of Southern California,
Institute for Health Promotion and Disease Prevention
Mr. Vince Lane, Chicago Public Housing Projects (invited)
Discussion
Break
11:30 - 11:45 a.m.
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R
003
;
DRAFT
III. Drug Intervention Strategies in the Criminal Justice System.
11:45 - 12:45 p.m.
Presentations:
(a) Diversion programs
Honorable Jeffrey Tauber, Presiding Judge Oakland Drug Court
Mr. Charles Hynes, District Attorney, Brooklyn, NY
(b) Drug treatment in prisons
Ms. Beth Weinman, Bureau of Prisons (invited)
Dr. James Inclardi, University of Delaware,
Center for Drug and Alcohol Studies (invited)
(c) Drug testing of probationers and parolees with threat
of immediate sanctions
Mr. Mark Kleiman, Harvard University,
John F. Kennedy School of Government
Discussion
Lunch
12:45 - 1:45 p.m.
IV. Beyond the Borders:
International Supuly, Interdiction and Eradication.
1:45 - 2:45 p.m.
Presentations: Mr. John Walters, Center for Individual Rights
Mr. William Olson, Consultant - National Security Policy, and former
Deputy Assistant Secretary of State for International Narcotics Matters
Mr. Rens Lee, Global Advisory Services
Mr. Peter Reuter, The Rand Corporation's Drug Policy Research Center
-
Discussion
Break
2:45 - 3:00 p.m.
2
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DRAFT
Y. Alternative Strategies: Decriminalization and Legalization.
3:0
A Debate:
Pro:
Professor Amold Trebach, American University,
and President, Drug Policy Foundation (invited)
Professor Ethan Nadelman, Princeton University,
Woodrow Wilson School of Public and International Affairs
Honorable Robert Sweet, U.S. District Judge,
Southern District of New York (invited)
Con:
Ms. Mathea Falco, Author,
The Making of a Drug-Free America (invited)
Mr. Peter Benzinger, Benzinger and DuPont Associates
Mr. James Burke, Partnership for a Drug Free America (invited)
Discussion
Closing Remarks
4:00
3
DR. Lee Brown
Same understanding abt position
1.) BC sd a top priority
2) Cabinat Position - -
any differences ? NO
It could work- - it was never
meant to be a full
.
Fasit to be sucessful - P
make it clear - Dwg Director
to point person.
' if make Jense to do analysis
impact
Prepare his strategy
If there are diffnces- - DD wld wall
E Cabinet seiy
-2-
-
Issue off Symbolism:
- office ddn't look good in Bush
- Small office that (Bemnett had
mi OEOB.
LA symbolically-
Bennett had office for his use -
not for his staff -
X
Relocation - anaugements
I've given
I'd be delighted
I appreciate it
Can't usign for 3 weeks
Dr. hee Brown
MAY helpful = claufy
a lot 5) concerns
)
reflecting today
( don't intend to hold you
Timeline - couple days
Major concer
P wants
MDENS
MEMORANDUM
TO:
FROM:
MACK MARK MCLARTY GEARAN wf
RE:
DR. LEE BROWN -- DRUG CZAR
DATE:
14 APRIL 1993
Following my telephone conversation today with Lee Brown, I faxed
and sent federal express the attached letter and outlines of the
Office of Drug Control Policy. In our conversation, Brown
thought that the office had little "operational authority" and I
wanted to forward materials to him.
Schedule: Wednesday - Gearan letter to Brown
Thursday - Gearan/McLarty phone call to Brown
Friday
- President calls Brown
Monday
- Brown in Washington
One additional thought: if he accepts the position the Cabinet
will have three Secretary Browns. And one Browner.
THE WHITE HOUSE
WASHINGTON
April 14, 1993
Dr. Lee Brown
Texas Southern University
3100 Cleburne
Houston, TX 77004
Dear Lee:
It was a pleasure speaking with you today. I appreciate
your input on the drug policy office, and more importantly, want
you to know that the President would value your stewardship of
this important office.
I'd also like to address a couple of your questions
regarding the authority and "impact" of the office. The specific
statutory functions of the ONDCP are also attached for your
review.
The "Drug Czar" has several operational responsibilities for
anti-drug programs within the ONDCP, as well as those implemented
at the agency level. For example, the two largest accounts in
the ONDCP are the High Intensity Drug Trafficking Areas (HIDTA)
Program and Special Forfeiture Funds. These accounts give the
Director the discretion to direct federal resources to priority
anti-drug efforts on a national, state or local level. We expect
these funds to exceed $110 million in fiscal year '94.
In addition, the Director is charged with coordinating and
overseeing drug policy and programs involving approximately 50
federal agencies and 12 cabinet departments. This includes
certifying agency drug control budgets, to ensure that they are
adequate to accomplish the national drug control objectives
formulated by the Drug Czar.
As we discussed, the President plans to designate the
Director as a member of his cabinet, to give drug policy and its
execution the highest attention in the White House.
Let me say personally that we are anxious to get to work on
the reorganization and policy direction with the leadership of
the Director.
-2-
Lee, thanks again for your consideration. I look forward to
speaking with you again soon, and trust you will not hesitate to
contact me on any matters of concern.
Mark Sincerely, Mark D. Gearan D.
Deputy Chief of Staff
0
Trupt pstn - because of problems
@ NYT
8
Concerns- - are ability of Director
to make an impact
fully ndistand- - no operational resp
- -how to make an impact
©
('al dealt 8 probs 7 drugs my whole career
Q
Does it turminate ? / gat statutory
Steve Jolinson
Buadlee Hartford --
Toisla - medicine of colunteer plupicious
concern on security
arone
&
NATO forces - take special faces
MEMORANDUM
TO:
Mark Gearan
FROM:
Andre Oliver
RE:
Drug Office
DATE:
1 April 1993
Here is a brief report on a major issue that will face the
ONDCP in the next 3 weeks.
April 22 and 28 are the scheduled dates for Senate and House
appropriations committees' consideration on the ONDCP budget for
FY'94. Major issues would include the immediate budget for the
office, as well as the $13 billion of drug funds that the office
reviews and coordinates among the agencies (this alone is an
enormous piece to justify and discuss). In addition, the drug
director would be asked to speak on the expected structure and
functions on the new streamlined office.
I have met with Hose Cerda, Jennifer O'Connor and Ricia
McMahon to begin preparing briefing materials for these hearings.
Needless to say, we will face tremendous political difficulties
if we do not have a Drug Czar to testify before these committees
(you should also consider that it will take a minimum of two
weeks to get a drug director confirmed).
EOM.
THE white HOUSE
WASHINGTON
Ao-
Ispoke with
Lee Bron
So Me_
RECOMMENDED TELEPHONE CALL
Dr.
To:
Lee Brown
(713) 639-1992
Date:
April 3, 1993
Recommended by:
Bruce Lindsey
Purpose:
To discuss the drug czar position
X226
Background:
Topic of Discussion:
Contact Person:
Bruce Lindsey, x2668
Date of Submission:
April 7, 1993
Action:
If you can get this guj to say yes
that 12 the desired gual. However, Carol
Rasco Says Mark bearan is the person
you Should refer Brown to 4 he has 777.5
NOTE: The President was going to make
call J now he obviously cannot
Talking Points
Drug Director Appointment
The country needs a drug director with top-notch credentials
in the crime and drug prevention area. Lee Brown possesses
such credentials.
Drug control will be given high-priority in the Clinton
Administration. To assure that, you plan to make the
director a member of your cabinet, so that drug policy is
developed and coordinated at the highest levels of the White
House.
You're looking for a director who is a visionary and a
problem solver. Community policing is a major tenet of your
anti-crime strategy, and much of its success is credited to
Lee Brown's stewardship. You look forward to working with
Lee to develop innovative anti-drug policies and programs on
a national level.
You've reorganized the drug office to a size on par with the
NEC and DPC, your primary domestic and economic policy
offices. You expect the drug director to be a close
partner with the heads of those offices and the Attorney
General.
You want to emphacize more and more the areas of
prevention and treatment, and you know he can work
effectively to carry out this message with the general
public as well as the advocacy groups and provider
network involved in these areas.
You are also looking for someone who can see that
effective collaboration is occurring throughout the
federal government on drug and drug related policies and
programs. You know that Lee can carry this out, making
the Director's office a focal point for
coordination, collaboration, innovation so that drug policy
is seen as a systemic whole throughout government.
Lee P. Brown
Professionally and philosophically, Lee Brown's background
is ideal for the position of "drug czar." Brown brings a wealth
of experience in law enforcement and public policy, having served
as Commissioner of the New York City Police (the nation's largest
force) and as the top law enforcement official in Houston and
Atlanta. Brown has three graduate degrees, including a Ph. D in
criminology from the University of California at Berkeley.
Known as a visionary and a problem-solver, Brown also has
the ability to speak thoughtfully to audiences about how to solve
complex societal problems. Better known as a planner rather than
a politician, Brown believes there is no quick fix to many of our
problems, but that we can make progress through hard work and
planning.
For years Brown has described illegal drugs as "America's
number one problem." Brown believes that illegal drugs and
violent crime are interrelated problems. His approach to drug
control is holistic: prevention, rehabilitation and police
officers "walking the beat." Indeed, Brown is perhaps best known
for his philosophy of "community-based" policing, in which police
are assigned to a specific location so they can know the
neighborhood and exchange information with residents.
As Houston's Police Chief, Brown received high marks for
improving the relationship between the community and police
officers. He turned the Houston police force, considered one of
the worst in the country, into a model of modern "community-
based" policing. The crime rate in many crime categories
dropped, and Brown's popularity soared. He developed the same
reputation and record in New York City.
However, while Houston's Police Chief, Brown was nicknamed
"Out-of-Town Brown" for spending too much time traveling to
professional conferences. He spent at least 100 days out of town
in 1984 and 1985. While Commissioner in New York, he was also
criticized for being "out-of-town" following a mini-riot.
In both Houston and New York, Brown was not popular among
some rank-and-file police officers. Police unions in Houston
were unhappy because Brown did not support a measure protecting
the rights of police officers accused of wrongdoing. Others
perceived Brown to be a technocrat enamored of studies and plans
instead of being a "real cop". However, a review of the record
leads one to surmise he may have been criticized because some of
these officers resisted Brown's fundamental reform efforts.
As Atlanta's top law-enforcement official, Brown is best
remembered for his handling of the Wayne Williams child murders
case. While the police department's investigation of the child
murders case was controversial, Brown emerged relatively
unscathed. Commented Hal Guilliver, then-editor of the Atlanta
Constitution: "Lee did a good job under exceedingly difficult
circumstances. " Brown also successfully weathered similar storms
in Houston and New York, proving to be quite adept at press
relations.
Uniformly praised upon his departure from New York, Mayor
Dinkins and Governor Cuomo described him as the best police
commissioner in the country. The public record clearly shows he
resigned as Commissioner because of his wife's serious illness.
Office of National Drug Control Policy
Background:
The ONDCP was created by Congress (specifically, Sen. Biden)
in 1989 to coordinate national drug policy and advise the
President accordingly. Its primary functions are:
1) development of an annual drug control strategy and, 2)
coordination of drug control policy by the various agencies
(Justice, HHS, Treasury, State, etc.) With its current 147
employees, the office is widely perceived as a political
dumping ground (in fact the President has made this
statement on several occasions).
White House Reorganization:
The reorganization plan proposes to refocus the office to a
policymaking and coordination function, on par with the NEC
and DPC. The number of employees will be reduced from 147
to 21. While we are in the process of a review of the
statute creating the office, we anticipate that some "policy
implementation" functions may be shifted to Justice, HHS and
other agencies.
This reorganization does not diminish the administration's
commitment to the war on drugs. The President is committed
to an aggressive drug strategy, with greater emphasis on
drug treatment and "targeted" drug enforcement efforts. The
President will promote community policing, aid for
communities hit hard by drugs, and programs for kids in
trouble.
We are committed to a drug czar with clout, who will be
in the cabinet, and an active partner with cabinet
heads. We believe the policy coordination of the office
requires it. We are considering some very qualified
candidates for drug czar and hope to have an announcement
soon.
THE NEW YORK TIMES, MONDAY, APRIL 12, 1993
Administration Drawing Criticism
for an Unrevised Drug Policy
Al
Continued rom Page AI
said that details would not be forthcom-
than Mr Bush in his last drug budget.
CLINTON IS CHIDED
ing until the President selected the
chief drug policy aide.
'Excellent First Step'
suggests no major change in philoso-
He could not sav when that selection
Among the most criticized aspects of
ON DRUG PROGRAM
phy and offers no hope 01 stanching
might come. And he would not com-
the Reagan-Bush drug policies were
what many regard as the waste of
ment on reports that several people
the expensive and largely unsuccessful
tens of millions of dollars on ineffec-
had declined the nomination since the
efforts to stop overseas farmers from
live law-enforcement measures.
drug office. in an economizing step.
producing the raw material for cocaine
While Mr. Clinton has devoted con-
was hacked to a sixth of its previous
and opium and 10 block the smuggling
Critics See Old Inadequacies
size 10 25 staif members from 147
of the drugs into the United States.
siderable energy 10 the economy and
earlier this year. and the director's
Mr. Clinton cut financing for some
has made general health care a prior-
in $13.04 Billion Package
post was simultaneously elevated to
international operations in South
ity, he has been virtually silent on the
Cabmet rank
America and Asia by 8 percent That
drug problem. He has also not chosen
Cocaine and most other drugs are
will trim $44 million from spending last
the official who would be in charge of
not being talked about as much as they
year of $536 million. But he added $19
By JOSEPH B. TREASTER
developing strategy.
were just a few years ago, when they
million for anti-smuggling efforts.
As a result, drug experts say Mr.
attained a certain chic in some middle-
When President Clinton moved into
bringing spending in that category to
Chnton's handling of the budget has
class circles But crack is still a crip-
$1.765 billion, much of It gomg to the
the White House in January, spec
deepened their concern that the new
pling problem in the inner cities and
Detense Department, which has been
1515 in academia. health centers and
Administration IS neglecting the fight
herom abuse IS on the rise, Federal
widely criticized as meffective against
law enforcement around the country
against drugs.
studies indicate.
drug traffickers.
were expecting big changes in the
While departing little from his prede-
"This IS not a time when we can pull
In his last year in office. Mr. Bush
way the Federal Government dealt
cessor's spending policies. Mr. Clinton
back and say the drug problem IS
cut $336 million from international op
with the national drug problem.
chose not to adopt Mr Bush's tradition
over," said Dr Herbert D Kleber, a
erations and anti-smuggling efforts He
But Mr. Clinton surprised and dis-
of using the annual presentation of the
professor of psychiatry at the Colum-
budget as a means of calling attention
appointed many specialists last week
bia University Medical School who re-
to the drug problem. Instead, Mr. Clin-
increased spending for drug treatment
signed as President Bush's senior aide
by presenting a $13.04 billion anti-
ion's anti-drug program was inconspic-
$168 million while Mr. Chinton IS pro-
drug budget that offered little change
on anti-drug health issues after failing
uously tucked into two pages among
posing a $170 million increase
to win a $1 billion increase in spending
from the widely criticized approach
the more than 1,300 pages of the Fed-
Representative Charles Schumer,
on treatment. research and anti-drug
followed for 12 years by Presidents
eral budget.
the Brooklyn Democrat wr. IS chair-
education.
Besides not vei appointing a director
man of the House Subcommittee on
Ronald Reagan and George Bush
That approach has relied heavily on
of the White House's Office of National
Questions and More Questions
Crime and Crimmal Justice which
Representative Charles B. Rangel,
oversees the Drug Enforcement Ad-
law enforcement instead of empha-
Drug Control Policy 10 serve as his
sizing rehabilitation and prevention
senior anti-drug aide. Mr Clinton has
Democrat of Manhattan. charged that
ministration, said that by increasing
also left most other Federal positions
the Administration. pressed on con-
the total anti-drug budget by 7 percent
"What we have here is a budget
in the field in the hands of acting direc-
cerns like the economy and the turmoil
Mr. Clinton was showing his commit-
that savs business as usual.' said
tors or holdovers from the Bush Ad-
in Russia, was simply ignoring illegal
ment to the issue
Dr LaMond Tullis, a professor of
ministration.
drugs.
Mark A. R. Kleiman, a drug expert at
political science at Brigham Young
During the Presidential campaign,
'There IS absolutely nobody in the
Harvard University. said that with $850
University in Provo. Utah, and a drug
Mr. Clinton raised the hopes of drug
Administration willing to accept any
billion being spent on national health
policy consultant to the United Na-
experts by saying he favored treat-
responsibility on any subject relating
care, the reforms being developed by
tions. "H seems we're going to go on
ment on demand, which would make
to our drug problem. said Mr. Rangel,
Mrs. Clinton could become far more
doing things we know don't work
drug rehabilitation available 10 anyone
who was chairman of the recently
important than the anti-drug budget
who asks for It. costing hundreds of
channated House Select Committee on
TI drug treatment could Ret a small
Health-Care Overhaul Cited
millions of dollars. At present. the na-
Narcotics Abuse and Control and IS
Traction of what the country spends on
tion's drug treatment centers can han-
now a leader of the newly formed
Administration officials said the
health care" he said, "That would be
die only about a third of the estimated
House Caucus on Drug Abuse. "They
budget was prepared before a de-
much better than having a big traction
SIX million heavy drug abusers.
haven't the foggiest idea where the
of the drug budget
tailed drug strategy could be worked
Appointments Praised
Administration is heading I've got a
out. and they added that It was likely
letter on mv desk from the President of
the health-care overhaul being devel-
The drug experts say they have been
Colombia asking me if I can share with
oped under the leadership of Hillary
encouraged by Mr. Clinton appoint-
him as to the direction in which the
Rodham Clinton would include in
ment of Janet Reno as Attorney Gen-
Administration IS going on this."
eral and of Dr Jovcelvn Elders as
creased spending for drug treatment
William S. Smith. a senior official In
Surgeon General. both of whom are
the White House anti-drug office under
Even SO. drug experts pointed out
regarded as understanding the nu-
President Bush. said national drug pol-
that the budget represented a general
ances of the drug problem.
ICV appeared to be on cruise control
statement of the Administration's
The staff at the Office of National
Robert O Boorstin. another White
plans for the coming year. Regard
Drug Control Policy. which was Presi-
House spokesman. card that rather
less of the outcome of the new health
dent Bush's center for anti-drug infor-
than being ignored, drug abuse and
mation, is referring inquiries about the
care measures mey said. the budget
treatment has been part and parcel of
Clinton Administration's drug policy to
one of the working groups on the
the White House. But Arthur L. Jones, a) President's Task Force on National
Continued on Page B10. Column I
deputy White House press secretary,
Health Care. headed by Mrs. Chnton
One possibility being explored. other
Administration tals said. IS extend-
mg Medio and coverage including drugs
treatment to the 50 percent 01 the na-1
tron poor who now nave no such COX
erage.
In his new budget Mr. Clinton desig-
named $8.30 billion 10; Law emoreeme n:
and $4.74 billion for such things as
rehabilitation and anti-drug education
That !! a proportional sphil of 63.66
per em 10 percent. or about one
percent more for he alth and education
Drug Cyan
MEMORANDUM
TO:
DAVID DREYER
BOB BOORSTIN
FROM:
MARK GEARAN vg
RE:
DRUG POLICY OFFICE INTERIM DRUG STRATEGY
I attach a copy of the Drug Office interim strategy report which
Lee Brown would like to issue.
I would value your thoughts on this draft as soon as possible.
attachment
301 937 6018
P.02
DUE TO GO TO PRINT
ANTIME NOW - AND
RELEASED NEXT WEEK.
THE CYCLE
RUG ABUSE
Internal
ional Drug Control Strategy
Office of National
September 1993
THIS the MARK, IN US NO 4 AT
Love
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P.03
BREAKING THE CYCLE
OF DRUG ABUSE
1993 Interim National Drug Control Strategy
Office of National Drug Control Policy
September 1993
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P.04
ii
WEU 20:34 JIM PAGE
301 937 6018
P.05
Preface
The drug issue is about the responsibility of government to its citizens and the
kind of society we aspire to be. There must be a national imperative to reduce
drug use. Surely this is a national goal that can unite us all, across the
boundaries of party, race, region, and income.
Bill Clinton
he President's vision of America is one
due in part to some encouraging news. Drug use
T
where all Americans have a chance of
among our nation's youth has dropped since its
achieving their hopes and dreams. He
peak in 1985 and 1986, prompting some to con-
envisions an America renewed by
clude that the drug problem, if not over, is no
reduced drug use and drug-related
longer a crisis. This conclusion is as dangerous as
crime and violence. He sees an Amer-
it is wrong.
ica where children can play in the park or walk to
school without falling victim to drug turf violence
Although some strides have been made in
or the lure of a street corner sale. He sees drug-
reducing drug abuse, they have been realized
free schools preparing our children for the chal-
largely among young people who were not heavy
lenges of the 21st century and drug-free
users to begin with and who, following natural
workplaces enabling America to prosper.
demographic trends, would likely have stopped
using drugs early in their adult years.
To achieve this vision, we must recognize that
America is still in the midst of a drug epidemic.
The loss of public focus has also allowed the
This 1993 Interim National Drug Control Strategy
voices of those who would promote legalization to
comes at a critical crossroad. Although drug-
ring more loudly and be heard more clearly. The
related violence and abuse continue to be among
declines thus far in the use of drugs are in part
the most profound problems confronting the
because they are illegal. Legalization is a formula
Nation, much of the media and public attention
for self-destruction. The Administration is
that accompanied the drug crisis during the 1980's
unequivocally opposed to any "reform" that is cer-
has begun to fade. The loss of public focus may be
tain to increase drug use.
1
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BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
We begin this new course by recognizing that
We will target hard-core drug users, both
the principal drug problem today lies with hard
Inside and outside of the criminal justice
core drug use. Past anti-drug policies have focused
system, for treatment to reduce their drug use
on the casual and intermittent user, achieving
and its consequences.
some degree of success. But by focusing on this
less complicated aspect of the drug problem, we
We will work to reduce drug-related violence
have failed to reduce hard-core drug use and its
by expanding community policing, putting
disproportionate impact on society.
more police on the streets. and taking guns
out of the hands of criminals.
This Administration has no illusions about the
tenacity of the drug problem — particularly hard-
We will promote certainty of punishment by
core drug use - and its Impact on the lives of all
ensuring that all drug offenders— partic-
Americans. Drug and alcohol abuse destroy indi-
ularly younger offenders- receive some type
viduals, families, and even communities. Drugs
of sanction when they first encounter the
increase violent crime, overburden the criminal
criminal justice system.
justice and health care systems, hinder learning.
and reduce America's productivity.
We will support research to assist treatment
providers to more effectively treat drug
This Interim Drug Strategy is designed to chart
addicts.
a new, realistic course that captures our national
conscience and fortifies our national resolve.
We will reinvent our drug control programs,
Progress will be made if we commit to preventing
move beyond ideological debates. and build
drug abuse before it starts, to extending a hand to
on proven strategles. This means designing
those who have started, and to punishing those
our anti-drug strategies based on knowledge
who profit on misery and tragedy through drug
gained from research.
trafficking.
We will seek to increase international
This Interim Strategy is intended to give a new
commitment to narcotics control and will
sense of direction and reinvigorate this nation's
work with other nations that demonstrate the
efforts against drug trafficking and abuse. Here is
political will to end illegal drug crafficking.
what we will do differently:
The drug problem is a national one. Drugs are
We will make drug policy a comerstone of
not a problem solely of the poor. or minorities. or
domestic policy in general and social policy
inner-city residents. In fact. the majority of these
in particular, by acknowledging drug abuse as
citizens do not use drugs, but they are victims of
a public health problem and by linking drug
those who do. The problem is neither liberal nor
policy to our efforts to grow the economy, to
conservative, Republican nor Democrat. It affects
empower communities, to curb youth
all Americans. And so leadership at all levels is
violence, to preserve families, and to reform
essential. The President has expressed his com-
health care.
mitment by making the Director of the Office of
National Drug Control Policy a member of his
We will target our prevention programs,
Cabinet. This will ensure that a strong drug poli-
especially among inner-city youth, and reach
cy voice is present at the table when labor, educa-
out to pregnant women, women of child-
tion, housing, health, justice, and international
bearing age, children, and others at-risk for
matters are discussed. Moreover, this elevation
drug use to avoid any increase in levels of
will facilitate more coordinated national drug
first-time drug use.
policies.
2
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301
937
6018
P.07
BREAKING THE CYCLE OF DRUG ABUSE
A NATIONAL IMPERATIVE
Our immediate efforts will include several
and direction will be presented in the comprehen-
straightforward initiatives that are the foundation
sive National Drug Control Strategy that will be
for a new National Drug Control Strategy:
submitted to Congress on February 1, 1994, as
required by law.
I. Reducing Demand: A New Focus
The challenges before us today are as daunting
11. Reducing Drug-Related Violence: A Call
as they were more than four years ago when the
for Common Sense Crime Control
first Strategy was released. Drugs continue to
and Prevention.
threaten to break apart society. No parent addict-
ed to drugs or alcohol can adequately care for a
III. Changing the Way We Do Business:
child. No child so afflicted can adequately learn
Streamlining Government and
in school. No street is safe where drugs predomi-
Empowering Communities.
nate. No effort in housing or employment or edu-
cation or public safety will fully succeed until the
IV. Providing International Leadership:
target populations are free of drug and alcohol
Support for Anti-Drug Policies Around
addiction.
the World.
This Interim Strategy offers an initial response
This Interim Strategy does not represent the
to these challenges, providing the direction for a
Administration's definitive drug control policy. It
safer, stronger. and more secure Nation for out
does not contain detailed and quantifiable goals
children and our children's children.
and objectives, nor does it address every facet of
how national government can and will seek to
Lee P. Brown
reduce the supply of and demand for illegal drugs
Director, Office of National
in America and abroad. Such specific guidance
Drug Control Policy
3
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P.09
Reducing Demand:
A New Focus
Our aim is to cut off the demand for drugs through prevention. That means more
and better education, more treatment, and more rehabilitation.
Bill Clinton
he first step in reducing the demand
ment go beyond drug users and are extended to
for drugs is to prevent drug use before it
the rest of society in the form of reduced criminal-
starts. Accordingly, we must continue
ity, lower health care costs, increased productivity,
to work hard to prevent Americans,
and more.
particularly our youth, from ever trying
drugs. Our drug prevention programs
We should continue to work to ensure that
must send a strong "no use" message and educate
treatment is more effective, but the simple fact is
individuals about the risks and dangers of illegal
that the case for treatment has been repeatedly
drug and alcohol use, including the spread of
made. We must move treatment to the forefront
HIV/AIDS, and teach them how to resist peer
of our drug abuse policy and make it a higher pri-
pressure to use drugs.
ority. If we do not, hard-core drug use with all its
negative consequences will continue unabated.
But when prevention fails — as it will in some
cases- we must get drug users to stop. Drug
For many drug users, drug treatment means out-
dependency is a chronic, relapsing disorder, and
patient drug counseling and/or pharmacotherapy.2
users stand little chance of recovery without
But for some drug users, medically supervised
appropriate intervention and treatment. Treat-
detoxification is a necessary prerequisite. For the
ment must be made available to those who need
most dependent users, more intensive treatment
and want it.
- -such as residential or intensive day programs -
may be required before outpatient community pro-
The time has come for Americans to change
grams can be effective in helping them lead drug-
their thinking about drug treatment. As a society,
free lives. And for those who put the greatest
we continue to have difficulty with accepting the
strain on our health care and criminal justice sys-
merits of drug treatment. Myriad studies have
tems - hard-core users and criminals who are
established over and over again that many differ-
addicts- we must use the carrot and stick of the
ent forms of treatment can be successful in reduc-
criminal justice system to demand that they
ing drug use and increasing a drug user's chances
receive treatment. Recognizing the chronic,
of leading a drug-free, crime-free, and generally
recurring nature of drug addiction, out treatment
more productive life.¹ The benefits of drug treat-
efforts must include rehabilitation, habilitation,
5
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P. 10
BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
and supportive social services, and must be but-
Cocaine Use by Male and
tressed by strong case management and supervi-
Female Booked Arrestees
sion.
Atlanta
58
58
Birmingham
49
STEP ONE
46
Chicago
56
Mount an Aggressive Drug Treatment
Clevelend
53
Strategy with Hard-Core Drug Use as its
66
Primary Target
Dallas
41
48
Today, the principal drug problem lies with
Denver
38
hard-core drug users - those heaviest users who
50
use drugs at least once a week. Hard-core drug use
Detroit
37
62
has not been reduced by past anti-drug efforts,
especially in our inner cities and among the disad-
Ft. Lauderdale
46
47
vantaged. Recent data suggest that problems
Houston
41
resulting from heroin and cocaine use are on the
44
rise. According to the statistics from the Drug
Indianapolis
23
Abuse Warning Network (DAWN). which moni-
26
tors the health consequences associated with drug
Kansas City
41
abuse in terms of drug-related deaths and emer-
62
gency room cases across the country, cocaine and
Los Angeles
52
heroin medical emergencies reached 119,800 and
58
48,000 in 1992, respectively, the highest levels
Manhattan
62
72
since data for this survey were first reported. Fur-
Miami
56
New Orleans
49
DAWN Cocaine and Heroin
44
Mentions, 1988-1992
Omaha
16
Philadelphia
63
1988
102
67
38
Phoenbx
26
49
110
1989
Portland
35
42
54
St. Louis
50
80
62
1990
34
San Antonio
32
25
1991
101
San Diego
45
36
37
8an Jose
28
32
1992
120
48
Washington
44
64
0
25
50
75
100
125
0
20
40
60
80
100
Total Mentions in Thousands
% Positive Cocaine
Males
Females
Cocaine
Heroin
Source: National Institute of Justice/Drug Use Forecasting Program
Source SAMHSA Drug Abuse Waming Network.
6
SEP-29-93 WED 20:38
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P.11
BREAKING THE CYCLE OF DRUG ABUSE
A NATIONAL IMPERATIVE
ther, we continue to see high levels of drug use
among the arrestee population, with cocaine
Estimated Cocaine
being the most commonly abused drug.
Consumption by Type of User
The data also indicate that hard-core users fuel
300
the overall demand for drugs, making them the
most difficult and intractable aspect of the drug
250
problem. One study. for example, found that
although heavy users constitute only about 20 per-
studies estimate that the number of hard-core
cocaine and heroin users is either stable or
Cocaine Consumption Imetric tons)
200
cent of all cocaine users, they account for roughly
Heavy Users
two-thirds of total cocaine consumption.³ Other
150
100
increasing, compared to 1988.4
50
Thus, reducing hard-core drug use is para-
mount to the successful resolution of this Nation's
0
drug problem. This requires that we work aggres-
1972
1977
1982
1987
1992
sively to reduce the disparity between the num-
Source: RAND. "Controlling Cocambe: Supply vs. Demand Program,"
bers of those who seek drug treatment and
Draft Work in Progress for The Office of National Drug Control Policy,
available treatment capacity. Our current esti-
(July 1993).
mates suggest that as many as 1.1 million persons
HIV/AIDS ranges from $85,000 to $150,000 per
do not receive treatment because of inadequate
patient.⁷
treatment capacity. This Administration will
make it a priority to add to our Nation's capacity
Experts estimate that well over 100,000 bables
so that those who need treatment can receive it.
born each year in the U.S. are exposed to illicit
drugs in utero.⁸ These babies have lower weights
Unless we can increase treatment capacity, the
and more health problems at birth and therefore
physical and psychological debilitation often
have longer hospital stays and more health care
caused by substance abuse and a drug-using
expenses than babies born to
lifestyle will overwhelm our health care system
nondrug-using mothers. So-
with increased incidence of emergency room
ciety is just now learning
episodes for overdoses, hepatitis. tuberculosis,
about the extent of behav-
HIV/AIDS, drug-exposed infants and children,
ioral and developmental
and other serious, drug-related problems. Some
problems some of these chil-
estimate that by the end of 1993, addictive dis-
dren face as they mature.
eases will result in health care and related costs
that will reach $140 billion annually.⁵ Of course,
We must be prepared to
It is impossible to put a price tag on the intangible
focus as never before on solu-
Pofte may
costs to the family structure, communities, and
tions to the problems of
society as a whole.
heavy drug use from both the
criminal justice and the public
According to the Department of Health and
health perspectives. We must
TOUAL
Human Services, more than one million persons
begin to focus more directly
Street
are now infected with HIV. At the end of 1992,
on ways to reduce the popula-
an additional 250,000 Americans had developed
tion of heavy users. We need
full-blown AIDS. Injection drug use is directly
to devise a new approach to address the drug-using
responsible for about 33 percent of these cases.
population most resistant to current treatment
The medical cost for treating persons with
and prevention strategies.⁹
7
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P.12
BREAKING THE CYCLE OF DRUB ABUSE A NATIONAL IMPERATIVE
This Administration willingly accepts the diffi-
instance, the courts can either divert criminal
cult challenge of addressing hard-core drug use.
addicts to drug treatment before they enter pleas
We can start by addressing the shortfalls among
or go to trial. or make treatment a condition of
the highest priority populations. For example,
probation, supervised release, or parole. The
about 30,000 pregnant drug abusers are currently
incentive to take treatment seriously and com-
being treated. Depending upon the estimate, this
plete it is enhanced when the alternative is incar-
represents as few as one in 10 pregnant drug
ceration. Coupled with initiatives like Treatment
abusers receiving treatment. And generally,
Alternatives to Street Crime (TASC) that have
women remain underserved by our treatment sys-
proven successful in reducing drug use and allevi-
tem, making up less than 35 percent of admissions
ating prison and jail overcrowding, these efforts
to drug treatment pro-
can help reduce hard-core drug use.
grams. 10 The stigma associ-
ated with being a substance
The President strongly believes that both the
abusing woman, particularly
individual and society benefit when those in the
a substance abusing mother,
criminal justice system in need of treatment can
as well as fear of losing cus-
get it. Accordingly, he has asked the Director of
tody of one's children, lack of
the Office of National Drug Control Policy to
child care, and lack of trans-
work with the Attorney General and the Secre-
portation are foremost
tary of Health and Human Services to assess the
among the obstacles to
current situation and recommend steps the Feder-
entering treatment faced by
al Government can take to promote such treat-
women. Women living in
ment at the Federal, State, and local levels.
public housing can also be
deterred from seeking help for themselves or their
It is also imperative that heavy drug users
children because they fear losing their home.
receive the support and skills they need to prevent
Where the Federal Government is the source of
them from reverting to drug use. Habilitation and
such unintentional disincentives to treatment, we
social services must be linked with treatment ser-
will remove them.
vices, both during and after treatment. By giving
heavy drug users the skills to cope without using
We can also focus on the criminal justice popu-
drugs and alcohol. they will be afforded a chance
lation. Hard-core users are more than likely to
to remove themselves permanently from drug
become involved in the criminal justice system.
addiction.
and we must take this opportunity to demand that
they receive treatment. 11 Effective Institutional
Finally, the role of health care professionals is
programs have demonstrated immediate benefits
critical in helping 10 reduce drug use in general
in prison and jail security. When coupled with
and hard-core drug use in particular. Rehabilita-
effective transitional services, aftercare, and
tion of hard-core users presents a difficult chal-
supervision. such programs provide tangible long-
lenge, and many treatment programs are reluctant
term benefits in reducing drug use, reducing crimi-
to admit them. Hard-core drug users often lack
nal activity, and increased work force
the social support system conducive to treatment
participation. If we do not act, each year about
participation and completion, and they generally
200,000 convicted criminals who entered fail or
lack the resources to pay for their treatment.
prison with drug-related problems will be released
Moreover, if they do enter treatment, they usually
without having received drug treatment.
recycle one or more times from recovery back
through relapse to dependence or abuse.
We must use all components of the criminal
justice system - enforcement, prosecution, adju-
There is a moral and social obligation for
dication, and corrections, including probation,
physicians and other health care professionals to
parole, and innovative programs such as boot
protect their patients by warning them about the
camps¹² - to promote drug treatment. For
perils of substance abuse and by providing proper
8
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P. 13
BREAKING THE CYCLE OF DRUB ABUSE A NATIONAL IMPERATIVE
guidance to and care for those who are already
recent study.¹ for example, there was a 24 percent
addicted. To ensure that those in the health care
decrease in health care costs for a group of treated
professions are trained to treat substance abusers.
alcoholics when compared with an untreated
professional accrediting organizations and associa-
group. The study also reports that a Fortune 100
tions should ensure that such knowledge is
company looked at the initial savings from their
required as a prerequisite to accreditation or certi-
Employee Assistance Program and found that
fication.
medical costs for each employee for the three
years prior to their beginning substance abuse
treatment averaged $2,068 per year. One year fol-
STEP TWO
lowing the initial treatment, average medical
costs - excluding treatment costs - were $165.
Enact National Health Care Legislation
When the cost of substance abuse treatment is
that Makes Drug Treatment Part of
factored in, the company still saved $500 per
a Basic Health Care Package
employee.
Health care reform provides direct substance
abuse treatment benefits for inparient and resi-
STEP THREE
dential treatment, intensive non-residential treat-
ment, and outpatient treatment. Further, it
Educate Our Children About the Dangers
ensures that all Americans will have access to one
of Illegal Drugs and Alcohol
system of health-care. replacing an old system that
provided one level of care for those with health
Drug use and its attendant violence are symp-
insurance and another very different level of care
toms of a much deeper problem affecting Ameri-
for the uninsured. Our plan focuses on improving
the management of both the public and private
can society - our forgotten and neglected
substance abuse service systems. It establishes
children. The issues most affecting the youth of
America- crime, drugs, violence, teen pregnan-
better linkages between the treatment system and
cy, youth gangs, and home-
primary health care providers and seeks to
lessness — are rooted in our
improve access to needed services for those popu-
neglect of one of our most
lations who have been underserved or hard to
precious resources: children
reach. In addition, public initiatives will further
aged zero to three. We must
complement health care reform by including con-
redouble our efforts to solve
tinued support for substance abuse prevention
this problem.
programs and for programs to meet the special ser-
vice and educational needs of adolescents and
The years zero to three are
school-aged youth in high-risk settings.
the most formative years of a
Our national health plan will reform our
child's life. In the first year, a child will learn
health care system by providing a substantial drug
about half of learned human response. Within the
treatment benefit so that those who need treat-
first three years, a child will learn, among other
ment have the means to get it. All Americans
things, the concept of reward and punishment.
should be able to secure treatment when they
These two factors alone suggest that we must focus
need it, and - In addition to health care reform
our attention on our very youngest citizens.
- this Administration will continue to work to
expand the capacity of the treatment system.
Our institutions must devise appropriate
responses to ensure children have appropriate
Good drug policy is also good economic policy.
medical care that seeks to prevent. not just cure.
Substantial and longer-term savings will accrue
Our agenda must start with assurance that every
from the timely provision of treatment for alcohol
child has good prenatal care.
and drug abuse problems. According to one
We must have appropriate pre-leaming oppor-
9
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P.14
BREAKING THE CYCLE OF DRUG ABUSE
A NATIONAL IMPERATIVE
prehensive community-based drug prevention
8th Graders Use of Cocaine and
programs can help provide our children with these
Marijuana in the Last 30 Days
skills. While the field of drug abuse prevention is
in its infancy, experts agree that successful pro-
grains share three common characteristics: they
are comprehensive in approach, positive in focus,
0.5%
and tailored to the population they intend to
1991
serve.
3.2%
As part of a comprehensive community-based
approach to prevention, drug education programs
are effective in reducing the likelihood that young
people will start using drugs.¹ 14 Or, if children do
0.7%
start, these programs will lessen the chances that
1992
they will use drugs more frequently or progress to
3.7%
more dangerous substances. A challenging cur-
riculum, one that is backed by a comprehensive
drug education program and firm anti-drug poli-
0%
2%
4%
6%
8%
10%
cies, and also faces the challenges of underage
drinking and tobacco use, creates an environment
Cocaine
Marijuana
where drugs are unacceptable. Moreover, dedicat-
Source: University Of Michigan. "Monitoring the Future Survey,
ed teachers, an energetic principal, involved fami-
1975-1992"
lies, and high expectations for students strengthen
prevention efforts.
tunities, like Head Start, that are consistent in
their approaches and available to those that need
Virtually all schools have instituted drug pre-
them. We must also focus
vention programs. Many are doing an excellent
our attention on the mes-
job, but there is cause for concern. According to
sages our children receive
recent data, eighth graders and college students
through the media, and
are reporting higher rates of drug use in 1992 than
direct them away from vio-
they did in 1991. Further, fewer eighth graders in
lence and toward construc-
1992 perceived great risk with using cocaine or
tive, positive messages.
crack than did eighth graders in 1991 15 Schools
and institutions of higher education must
In short, we must create a
strengthen their efforts to ensure that our young-
national agenda for the
sters are able to learn in a drug-free environment.
health, safety, and education
of our children, one to be
Effective school-based programs are compre-
implemented by those closest
hensive and include the following elements. They
to them, their parents and
are conducted by teachers who are thoroughly
their communities. The Fed-
informed about substance abuse. Further, they
eral Government can assist in
begin in early childhood, extend through 12th
the development of partner-
grade, and integrate teaching about drug abuse
ships and alliances, and it can provide direction
into comprehensive courses on health education.
and funding. But, the real work must be done in
They identify skills and techniques to resist drugs
the community, by those who know what is most
and include firm anti-drug policies that include
needed.
strong sanctions and parental involvement. In
addition, schools should provide a student assis-
We must give all our children the skills they
rance program, offer drug-free activities, and vigor-
need to choose a healthy, drug-free lifestyle. Com-
ously address other problems associated with the
10
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BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
drug trade, such as weapons and violence in the
efforts to reduce drug use and will give encourage-
schools. To complement and reinforce school-
ment to other communities to face the challenge
based prevention programs, positive activities for
of drug use head-on.
youth, such as recreational, cultural, mentoring,
tutoring, and community service opportunities
should be made widely available for youth.
STEP FOUR
Volunteers are another important prevention
Reduce Drug Use in the Workplace
resource. Citizens of all ages, from all occupa-
tions, and in every community can become mean-
Drug use in the workplace threatens worker
ingfully involved in the lives of at-risk children —
safety, health. and productivity; it increases health
as tutors, mentors, coaches, companions, group
care costs and has a negative impact on employ-
leaders/advisors, etc.- and thereby help them
ment and training efforts. In certain industries,
avoid drug use and crime. For example, individu-
the very safety of the public may be at greater risk
als from all walks of life can become adult mentors
if drug use is not eliminated. In short, illegal drug
and help steer young people away from drugs and
use endangers the economic recovery and future
crime and toward a productive future.
competitiveness of this country.¹⁶
The President's National Service Plan, which
The workplace provides a unique setting to
was signed into law on September 21. 1993, will
educate young adults and parents about the dan-
play an important role in reaching out to our
gers of drug use. Many of our large corporations,
youth and offering alternatives to drugs. National
faced with new and emerging technologies in a
Service marries educational opportunity and ser-
global environment, are "re-engineering" their
vice - offering opportunities to serve in our
organizations to remain competitive. We encour-
country, meeting its unmet needs. Participants,
age them to continue to develop innovative ap-
age 16 and older, will receive awards to help pay
proaches to maintaining a
for post-secondary education. Those engaged in
drug-free work environment.
National Service will work in one of four priority
areas - public safety, education, human needs,
The Administration will
and the environment — on projects that may
continue to assist businesses
transform participants and provide direct service
in their efforts to ensure that
to our Nation's neighborhoods.
drug use and distribution are
not tolerated in America's
In the drug-related areas, participants might
workplaces. The Adminis-
teach drug awareness to elementary and middle
tration will encourage busi-
school students, or work alongside a police officer
nesses to adopt comprehensive drug-free
engaged with the community in addressing neigh-
workplace programs, similar to those instituted in
borhood crime and disorder problems. National
the transportation sector, that are effective in
Service adds up to alternatives for out Nation's
deterring and detecting drug use. The Federal
youth and holds the possibility of providing a surer
Government will develop a national partnership
sense of citizenship and participation through ser-
with State governments and large and small busi-
vice.
nesses to further the development of drug-free
workplaces throughout the Nation.
Finally, the media has an important role to play
in reducing the demand for drugs. Newspapers,
radio, and television can help keep this important
issue in the public eye by giving higher visibility
to those in our communities who are struggling to
regain control and create a safe environment. By
doing this, the media will showcase the positive
11
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BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
ENDNOTES
impairs the immune response, leading to many
health problems, including AIDS.
1 The number of such studies is extensive. See,
Gerstein, Dean R. and Harwood, Henrick J.
7 U.S. Department of Health and Human
(eds), Treating Drug Problems (Vol. 1) National
Services. Surgeon General's Report to the
Academy Press: Washington. D.C., 1990;
American Public on HIV Infection and AIDS.
Hubbard, Robert L. et al, Drug Abuse
(Washington, D.C.: GPO). 1993.
Treatment: A National Study of Effectiveness,
the University of North Carolina Press: Chapel
8 In fact, a recent study of mothers giving birth
Hill, 1989.
in California estimated that 5.2 percent of
mothers in that State tested positive for illicit
2 Pharmacotherapy involves using
drug use prior to delivery. See William A.
pharmaceutical, licit drugs to control physical
Vega, et al, "Profile of Alcohol and Drug Use
and psychological addictions.
During Pregnancy in California, 1992," sub-
mitted to the State of California, Department
3 RAND work in progress, "Modeling the
of Alcohol and Drug Programs.
Demand for Cocaine," draft report prepared for
the Office of National Drug Control Policy,
9 Many hard-core users have never received
July 1993.
treatment. In fact, over 40 percent of out-of-
treatment injecting users have never been in a
4 See Abt Associates, "What America's Users
treatment program. despite having used drugs
Spend on Illegal Drugs, 1988-1991," prepared
for an average of 11 years.
under contract to the Office of National of
Drug Control Policy (July 1993), and Joseph
10 Many treatment programs are designed for
Gfroerer and Marc Brodsky, "Frequent Cocaine
men and do not allow for special techniques to
Users and Their Use of Treatment," American
address the psychology and problems of
Journal of Public Health (1993).
women.
5 According to the Center on Addiction and
11 Effective institutional programs have
Substance Abuse (CASA), the abuse of
demonstrated immediate benefits in prison and
tobacco, alcohol, and legal and illegal drugs is
jail security and, when coupled with effective
responsible for one out of five dollars Medicaid
transitional services and supervision, long-term
spends on hospital care. According to CASA,
benefits in reduced drug use, reduced
substance abuse will be responsible for more
criminal activity, and increased work force
than $7.4 billion in Medicaid inpatient costs
participation.
in Fiscal Year 1994. (Source: Jeffrey Merrill,
et al., "The Cost of Substance Abuse to
12 Shock incarceration, or boot camps as they are
America's Health Care System." Center on
commonly called, appeared in the early 1980s
Addiction and Substance Abuse, Columbia
as an alternative to traditional corrections
University, 1993).
programs. Offenders in these programs spend a
6 Injection drug use is not the only source of
relatively short period of time in a quasi-
military program involving physical training.
drug-related HIV exposure. Disinhibition and
drill, manual labor. education, and strict
impaired judgment due to drug use, especially
discipline.
alcohol use, increase HIV exposure through
increased sexual activity and unprotected sex.
13 This estimate comes from recommendations
Further, heavy alcohol and other drug use
on substance abuse coverage and health care
12
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P.17
BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
reform, prepared by a working group from
13 Lloyd D. Johnston et al., Monitoring the Future
Columbia University's Center on Addiction
Survey, Survey Research Center, Institute for
and Substance Abuse. in collaboration with
Social Research, University of Michigan, Ann
the Brown University Center for Alcohol
Arbor. Michigan. 1992.
and Addiction Studies. The working group
met in New York City on March 6-7, 1993.
16 According to preliminary estimates from the
1992 National Household Survey on Drug
14 A recent study for the Office of National Drug
Abuse (Advance Report #3), about two-thirds
Control Policy found, among other things,
of current adult users of illicit drugs are
evidence of improved self-esteem, classroom
employed.
conduct among students in school-based
programs. See Abt Associates, "Substance
Abuse Prevention: What Works, and Why"
(August 1993).
13
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P.18
14
PAGE
301 937 6018
P.02
Reducing Drug-Related
Violence: Common Sense Crime
Control and Prevention
[W]e must do more to protect law-abiding citizens from those who victimize
them in the pursuit of drugs or profit from drugs.
Bill Clinton
he tremendous strain that drugs place
health, and developmental effects that are reflect-
I
on our economy, and the health care
ed in the societal damage done by large scale, vio-
and criminal justice systems makes a
lent drug trafficking organizations that disrupt the
clear case for increased treatment and
fundamental institutions of out society.
prevention efforts. Drug use fosters
crime and violence- property crime
to support drug consumption and violent crime to
STEP ONE
support drug trafficking.¹ No reasonable drug pol-
icy can ignore the safety and security of those
Increase Police Presence and Expand
Americans who work hard and play by the rules,
Community Policing
but live in fear because of drug-related crime. A
comprehensive, balanced approach involving law
As a result of the hard work of America's law
enforcement officials, educators, substance abuse
enforcement officers and the heroic efforts of
treatment specialists, and community members, is
many community leaders and members of commu-
essential.
nity coalitions, neighborhood residents have start-
ed to take back their communities - house-
Government's first responsibility to its people is
by-house, block-by-block. But in too many com-
to ensure their security, and this Administration
munities, drug crimes continue to take a terrible
will aggressively pursue this duty. We will strive to
toll, especially — though not exclusively — in the
ensure that our criminal justice system reflects the
inner city and in economically disadvantaged
common sense values of the American people.
communities. Moreover, drug traffickers have
That means putting more police on the street, tak-
proven quite adept at expanding their illegal
ing guns out of the hands of criminals, ensuring
activity beyond the inner city to suburban and
swift and certain punishment for offenders. and
rural areas, where they perceive they can tap new
acting on innovative crime control and prevention
markets and escape the reach of aggressive, short-
measures. We are most concerned about violence,
term drug enforcement efforts.
15
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P.03
BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
The effects of drug-related crimes and violence
Bridging the Gap Between Police and the
are similar in almost all communities. Social
Community: Community policing can help
activity is reduced because of fear. Once peaceful
bridge the gap that exists between many com-
neighborhoods can quickly become 30 violence-
munities and their police departments. Com-
ridden and drug-infested that residents become
munity policing is about working in
prisoners in their own homes.
partnership to solve crime and drug problems.
By working together, neighborhood residents
To halt this cycle of community decay, many
and police officers can ensure that our drug
cities have turned to increased police presence
policies have an impact at the community
and community policing. Although community
level, where success and failure is best mea-
policing alone cannot undo
sured.
the problems of drug-infested
neighborhoods. it is a neces-
Coordinating Drug Control Programs: By
sary first step. When police
learning the specifics about local crime and
officers join with community
drug problems, police officers engaged in com-
residents to help resurrect
munity policing can work with other govern-
neighborhoods, they lay the
ment agencies, treatment providers, or any
foundation for representa-
ocher appropriate social service agency, as well
tives from other government
as members of the community, to ensure that
agencies, private sector
our drug programs are properly coordinated
groups, and others to come
from the start. For instance, police officers
in and work with local resi-
learn who on their beats are the drug users and
dents.
who are the drug traffickers. They also learn
who needs help and who needs to be closely
This Administration is strongly committed to
watched. And they can assist neighborhood
putting more police on the street and expanding
residents and city officials to close "crack
the use of community policing throughout the
houses" and open-air drug markets.
country. By promoting and supporting communi-
ty policing across the country, we can impact local
As a first-step in promoting community polic-
drug problems in a series of different ways. These
ing, the Administration announced in August the
include:
availability of $150 million to hire additional
sworn officers who will engage in community
Reducing Fear of Crime: Los Angeles Police
policing activities. These monies will be awarded
Chief Willie Williams recently stated that: "If
to applicant communities based on their need for
you put new officers in uniform and on the
increased police resources, as well as on the
street, in cars, on foot beats, on bicycles,
strength of their community-based policing plans.
wherever they are necessary, you can make a
community safe. It can reduce crime. It can
We will build on this Initial investment by
reduce the fear of crime." The President and
enacting a crime bill to help communities put even
members of his Cabinet strongly agree.
more police on the street, by enacting legislation
that allows local education and housing authorities
Preventing Drug Crime: By increasing the
to use Federal monies to implement community
number of police officers who are working
policing in our schools and public housing, and by
with neighborhood residents to solve crime
giving educational benefits to students willing to
and drug problems, community policing helps
serve their communities as police officers and pub-
to prevent drug crime.
lic safety volunteers.
16
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P.04
BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
STEP TWO
This Administration has submitted to Con-
gress the Safe Schools Act of 1993, emergency
Responding to Gun Violence
legislation to help schools combat violence. This
Act would establish the first Federal program
The ready availability of and easy access to
specifically designed to direct funds to local school
guns plays a significant role in drug-related vio-
districts that are experiencing high rates of crime,
lence and the tragic loss of life in our communi-
violence, and disciplinary problems. Our chil-
ties. In fact, crimes committed with guns,
dren's safety is not a political option or a policy
especially those incidents involving young people,
question. It is a moral imperative.
are on the rise.²
Among our major concerns is the devastating
This Administration strongly supports the
impact that drugs and associated violence have on
Brady Bill that would create a five-day waiting
high-risk youth, particularly African Americans.
period for handgun purchases. We urge the Con-
Consider that during their lifetimes, 40 percent of
gress to pass this legislation immediately. And.
African American males will be a victim of a vio-
while we have taken a step forward by banning
lent crime three or more times. Further, homicide is
the future importation of assault pistols and
the leading cause of death for all African Ameri-
reforming Federal firearms licensing procedures as
can males and females between the ages of 15 and
best we can under current law, we need to do
34.
more. We need to enact a ban on the domestic
manufacture of all assault weapons and pass legis-
Because of the perceived hopelessness of their
lation to increase basic fees for Federal firearms
situation, many of these youth have "dropped
licenses and ensure that recipients of Federal
out," thereby adding to the interrelated problems
firearms licenses are complying with all State and
of unemployment, welfare, health. and crime. To
local laws - not circumventing them.
counter this problem. we will develop initiatives
to address the impact of drugs and violence on
high-risk youth.
STEP THREE
Juvenile Violent Crime Arrest
Curb Youth Violence
Rates, United States, 1995-1990
Violence against students and teachers in our
500
Nation's schools has now reached epidemic pro-
portions. If any place in our community is gun-
free and drug-free, it must be our schools.
400
We must continue to explore the interrelation-
ships between drugs, violence, and the ability to
learn. If out public schools must first concern
themselves with security, learning takes a back
seat. Only when our children are free from the
Arrest Rate (per 100,000)
300
200
threat of violence will they be able to learn the
100
skills they will need for their future and ours. The
entire community, including parents, law enforce-
ment. health professionals, and the schools must
o
1966
1970
1975
1980
1986
1990
work together to resolve the multitude of prob-
lems spawned by drug use and drug trafficking.
Source: FBI Uniform Crime Reports.
17
301 937 6018
P.05
BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
The criminal justice system must work with the
juvenile justice system. We need to develop com-
Arrests for Drug Offenses
prehensive, humane, rational policies that recog-
as a Percent of Total State
nize the need to ensure swift and appropriate
and Local Arrests
punishment for these juvenile offenders. yet bal-
10
ance our long-term vision of setting these youth
on the right track back to productivity.
Ensure Swift and Certain Punishment
Percent of Total State and Local Arrests
8
Drug Offenses
STEP FOUR
6
4
There is no better arena in which to begin the
discussion of intergovernmental partnerships than
with prosecution and sentencing strategies. We
2
must rethink our options and devise the best
approach to using our limited resources.
0
1980
1982
1984
1986
1988
1990
Our bottom line must be a sentencing policy
that gives credibility to out criminal justice system
Source: FBL Crime in the United States.
at all levels of government. We need to have
appropriate punishments that are fair, objective,
ity and many States were under court order to
and carried out. In short, we need truth in sen-
reduce their prison overcrowding.
tencing. Punishments that are threatened, but
not carried out, undermine the credibility of the
Part of this problem is that in making drug-
entire criminal justice system. Clearly, as we
related penalties more severe during the past
rethink the structure of appropriate sanctions, we
decade, we have inadvertently made punishment
must evaluate the role of minimum mandatory
less certain. We need to make sure that criminals
sentences.
receive swift and certain punishment when they
first encounter the criminal justice system, not
The Nation's criminal justice system. especial-
after it is too late. To deter crime, we must
ly the courts and prisons, is overburdened by the
increase the risk to criminals by making the
high level of drug arrests. 3
prospect of punishment more certain. The choice
For the period 1986-90 the
for those who would break the law must not be
number of Federal drug
between prison or no punishment at all; it must be
offenders sentenced to prison
between the different forms of punishment.
rose 48 percent, while the
number of persons sentenced
The goal of this Administration is that every
to prison for all other types of
convicted criminal should receive an appropriate
crimes grew only 14 percent.
punishment for his crime. Many will require
Drug offenders as a percent-
incarceration, and there must be sufficient space
age of the State- sentenced
to house them. Others - particularly first-time.
prison population increased
non-violent offenders - would be served better
from 7 percent in 1981 to
by alternative sanctions, including assignment to
approximately 33 percent by
work programs, boot camps, day reporting centers,
1990, nearly a five-fold
electronic monitoring programs, and diversion
jump. As of September 1993, the Federal prison
into treatment.
system was estimated to be 41 percent over capac-
18
301 937 6018
P.06
BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
ENDNOTES
"Uniform Crime Reports for the United States
1991," August 30, 1992).
1 Violence is used to protect or expand markets,
intimidate competitors, and retaliate against
3 Drug users report greater involvement in crime
sellers or buyers who are suspected of cheating.
and are more likely than nonusers to have
To avoid being arrested and punished, drug
criminal records. Persons with criminal
dealers commit violent crimes against police
records are much more likely than ones
and threaten informants or witnesses.
without records to report being drug users.
2
Crimes rise in number as drug use increases.
Nationally, there were 151 arrests per 100,000
(Source: Chaiken, Jan M., and Chaiken,
juveniles for weapons law violations in 1990.
Marcia R. in Crime and Justice. Ed. James Q.
This was the highest rate ever recorded.
Wilson and Michael Tonry. University of
(Source: Federal Bureau of Investigation,
Chicago Press, 1990, 203-239. Vol. 5).
19
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20
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P.08
Changing the Way We Do
Business: Streamlining Government
and Empowering Communities
Drug policy must focus on those programs that have proven to be successful
and cost-effective. It is time to end our philosophical discussion of goals and
evaluations, and get down to the business of identifying and funding those
programs that show results — and dropping those that do not.
Lee Brown
any new and innovative pro-
tion is committed to moving drug policy beyond
M
grams have been implemented
the criminal justice and public health context,
to help reduce the supply and
and into the greater arena of domestic policy.
demand for drugs, both overseas
and at home. In the past, we
have talked about the need to
STEP ONE
evaluate these programs to determine which of
them succeed in preventing or reducing drug use.
Focus Federal Efforts
It is now time to move beyond philosophical dis-
cussions and identify and fund those anti-drug
This Administration will set a new tone in
programs that work.
reducing illegal drug use by "reinventing" Federal
drug control programs. Duplicative and uncoordi-
But identifying successful programs is not
nated drug control efforts abound in the Federal
enough. We must broaden our perspective of drug
Government, and we can start by streamlining
policy and realize that unless successful programs
drug control responsibilities. Currently, consider-
are properly coordinated at the local level, we will
able overlap exists in the areas of Federal drug
not be able to truly pursue a national drug control
enforcement, interdiction and intelligence sys-
policy. Community coalitions comprised of the
tems, as well as prevention and education. We
many public and private agencies involved in
intend to fully review the overlap in these and
shaping local drug policy have taken drug prob-
other drug control programs.
leins into their own hands. By getting everyone in
the community working together, these coalitions
The goal of drug law enforcement is to protect
have been successful in coordinating drug pro-
Americans from drug abuse, by making drugs more
grams and - equally important - in raising the
expensive and harder to obtain, and to reduce the
public's awareness of drug abuse issues and in gain-
violence attendant within Illicit markets, while
ing their support. Accordingly, this Administra-
protecting Americans and their communities.
21
BREAKING THE CYCLE OF DAUG ABUSE
A NATIONAL IMPERATIVE
The best national drug law enforcement effort is
In 8 country with borders as vast and as open 23
not one that results in ever-increasing numbers of
our own,³ however, interdiction is a costly under-
arrests and convictions, drug removals, and asset
taking that requires the cooperation of numerous
seizures, but rather one that effectively reduces
Federal agencies and the source and transit
drug abuse and its harmful effects, including vio-
nations. We will review existing interdiction
lence. A clear, rational. and comprehensive sup-
organization, resources, and methods, to ensure
ply reduction strategy must focus its investigative
they are operating in the most effective and effi-
resources, interdiction assets, intelligence opera-
cient manner. Programs that are proven effective
tions, and other resources on the international
will be continued.
and domestic trafflcking
organizations that are the
Intelligence support is a particularly critical ele-
most significant and danger-
ment of interdiction. Effective interdiction
ous. Our law enforcement
requires that Federal agencies be provided with the
agencies will attack criminal
best possible intelligence information. Therefore.
enterprises engaged in the
we will aggressively pursue improvements to those
production, transportation,
intelligence systems that are the most capable of
and wholesale and retail dis-
meeting this need.
tribution of our most danger-
ous drugs, e.g., heroin, and cocaine, without
And finally, to determine which programs and
diminishing efforts against the other drugs of
strategies are the most effective, we will improve
abuse: clandestinely manufactured dangerous
our data and research efforts to help Federal. State
drugs, legal pharmaceuticals diverted to the illegal
and local governments, and private organizations
market, and marijuana.
obtain the best information possible about the
nature and extent of the drug problem. We will
However, to achieve these goals, we must have
work with Federal agencies to improve the quality,
an integrated strategy that effectively distributes
timeliness, and policy relevance of drug data col-
responsibilities among Federal, State, and local
lection systems and to develop new methods for
institutions. We must rethink what are appropri-
capturing information about emerging trends. We
ate roles for the Federal Government, State gov-
will also undertake a new data collection effort to
emments, and local governments. We must think
measure the number, location, and characteristics
through the multiple, cross-cutting issues, applying
of the hard-core user population, and sponsor and
principles of Federalism mixed with the realities of
conduct research and evaluation projects to deter-
modern life and current local conditions. Our goal
mine which strategies and programs are working.
must be to facilitate a real partnership among Fed-
eral, State, and local governments, one in which
We will measure the success of our effort by the
the Federal Government is not telling the States
reduction in drug use and other social harms, such
what to do, but one where we are true partners.
as illness, unemployment, and crime. We will
look for concrete results from specific programs.
Interdiction,¹ a uniquely Federal responsibility,
We will establish performance standards for drug
keeps many tons of cocaine, heroin. and other
treatment providers. This will enable local com-
dangerous drugs from crossing our borders. It
munities to assess the effectiveness of their treat-
attacks the trafficker's critical transportation net-
ment providers and will facilitate more informed
works to deny them easy access to this country as
funding decisions.
well as the use of their preferred routes.² Success
in keeping the traffickers from significantly
increasing drug availability supports the treat-
ment, prevention, and local law enforcement ele-
ments of our strategy.
22
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BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL
IMPERATIVE
STEP TWO
To highlight the importance of community
empowerment, on September 9, 1993, the Presi-
Empower Communities
dent signed an Executive Order creating the
Community Enterprise Board. Headed by the
Some of the best solutions to the drug problem
Vice President. the Board will take the lead on
have resulted from successful community coali-
working with the Empowerment Zones and Enter-
tions. Formed out of citizens' frustration with
prise Communities. The Board will be co-chaired
government's bureaucratic response to a multifac-
by the President's Assistants for Domestic and
eted issue such as the drug problem, these coali-
Economic Policy and includes the Director of the
tions took their fate into their own hands. Instead
Office of National Drug Control Policy and other
of government, at all levels, telling them how to
Members of the Cabinet.
solve their problems, community coalitions put
together comprehensive plans of their own and
told government what resources and support they
STEP THREE
needed to rid their neighborhoods of drug traffick-
ers and drug abuse.
Using Research For Results
This Administration wholeheartedly believes
that where Federal, State, and local governments
Research is an investment in our future, and
share a role in addressing drug abuse and traffick-
this Administration will continue to support
ing, the Federal approach must be one that
efforts that add to our knowledge base about the
empowers communities. Empowering communities
nature and extent of the drug
means supporting local efforts that are based on
problem, and about what
comprehensive, strategic plans and that involve
works in reducing drug avail-
the private sector, build on existing community
ability and use. In particular,
institutions, and coordinate government efforts
we need to know more about
across program and jurisdiction lines. Despite all
the causes and consequences
the rhetoric about Federal anti-drug programs to
of drug use, where and among
reduce drug abuse and drug crime, we simply have
whom it is the most threaten-
not done enough to support community efforts.
ing, what options are avail-
able to us to control
To help do so, the President's economic plan
initiation, and to reduce drug
targets anti-drug monies — along with growth
use. Our objective is the
incentives and other Federal investments- into
explicit application of research. studies, and eval-
nine Empowerment Zones and 95 Enterprise
uations by all involved in the drug effort to
Communities. This is an important step toward
improve the efficiency and effectiveness of drug
revitalizing our cities and rural areas. It will pro-
control programs.
vide a starting point for ensuring that our drug
policy is integrated and community-based. Com-
With respect to demand-related research,
munities must look at the spectrum of domestic
emphasis will be placed on behavioral and biomed-
initiatives— from substance abuse and preven-
ical research, which forms the knowledge base for
tion programs, to community policing grants, and
new and improved prevention and treatment
from growth incentives to create jobs, to Commu-
strategies. The Federal government supports
nity Development Banks to help finance future
almost 90 percent of all drug abuse research, which
growth - in developing their plans and ask for
what makes the most sense for them. In essence,
focuses on the incidence and prevalence of drug
use, and its causes and effects. Federally-funded
these communities will become laboratories of
Domestic and Economic Policy.
research is developing new therapeutic approach-
es, evaluating their efficacy, and designing ways to
23
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P.11
BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
optimize their outcome. Improved diagnostic
enforcement agencies. Accordingly, we will
strategies and instruments, and outreach ap-
establish an Advisory Group on State and Local
proaches for drug users not in treatment (especially
Technology Needs, which will be comprised of
injection drug users at risk for HIV/AIDS) are also
senior State and local law enforcement executives
under development. Research on the human
and technology experts, to help CTAC identify,
brain's drug receptors and their sites of action, drug
define, and develop new technologies specifically
detection technologies, and behavioral and biolog-
in support of State and local law enforcement.
ical techniques will continue. Priority areas for
CTAC will also sponsor research to identify and
research efforts will focus on evaluation of behav-
address gaps in technology to improve our ability
ioral therapies for drug treat-
to counter drug trafficking and its associated crim-
ment and the effects of drugs
inal activity.
on the brain and nervous sys-
tem.
CTAC will continue outreach programs to
facilitate the sharing of technology throughout
Practical requirements
the law enforcement community, internationally
dictate that the bulk of
and domestically, by sponsoring technical sym-
demand reduction studies
posia and workshops on state-of-the-art and
focus on the quality, cost,
advanced technology.
access, organization, financ-
ing, management, and effec-
Historically Black Colleges and Universities
tiveness of drug treatment,
(HBCU) can make a significant contribution to
prevention, and other de-
both supply reduction and demand-side research
mand reduction activities.
and development initiatives. With unique ties to
Priority areas for research
both academia and the African-American com-
include the evaluation of
munity, HBCUs offer an opportunity to target
new medications for the treatment of drug abuse,
sophisticated prevention and treatment modali-
the effects of drugs on the pregnant addict and her
ties for drug use, as well as technical contributions
child, and the development and testing of new pre-
to technology development.
vention strategies. Research will also focus on
populations at particular risk, such as children,
We will identify those schools with graduate
minorities, and underserved populations.
degrees in technologies applicable to CTAC re-
quirements. We will then work with HBCU's with
With respect to supply-related research, we will
the most promising mix of technologies for coun-
provide a community-wide infrastructure support
terdrug research proposals, emphasizing proposals
program of technology testbeds or "laboratories in
that feature joint academic-community partner-
the field" to test and evaluate prototype technolo-
ships. Additionally, CTAC will include HBCU's in
gy for counterdrug enforcement in realistic opera-
areas of particular relevance, such as technical sem-
tional settings. Testbeds will derive better designs
inars and technology review meetings.
for fielded equipment and provide a sound basis
for bringing new equipment into the law enforce-
We will also work with the Hispanic Associa-
ment inventory. Furthermore, we will continue to
tion of Colleges and Universities (HACU) to
support development of illicit drug and precursor
identify those colleges and universities that have
chemical signature detectability standards for use
strong links with Hispanic populations in order to
in designing and evaluating detecrion equipment
target prevention and treatment programs to the
in the field.
fastest growing and youngest minority population
in the United States. These institutions provide
The Office of National Drug Control Policy's
an effective vehicle to reach large numbers of His-
Counter-Drug Technology Assessment Center
panic youths living in poverty and at high risk for
(CTAC)⁵ will expand its technology develop-
using drugs and alcohol.
ment and sharing efforts with State and local law
24
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P. 12
BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
Research support to the Office of National
Drug Control Policy will be expanded to provide a
are that 70 percent of the cocaine entering this
country does so across this section of our
more comprehensive look at drug control policy
border.
and strategy development and implementation.
Specifically, the research will develop methodolo-
3 The United States has 88,633 miles of
gles, models for identifying trends in drug industry
coastline and more than 7,500 miles of borders
operations and for assessing the suitability of exist-
with Canada and Mexico. There are also 300
ing policies and strategies to counter these trends.
ports of entry to the United States.
The research will also explore the relationship
between international trafficking, production,
4 Research in other areas are also critical:
and smuggling operations and fluctuations in mar-
findings from basic research. which are used
ket supply, purity, and price.
toward building blocks toward the
development of new medications; research on
ENDNOTES
drug abuse and HIV/AIDS, which is of critical
importance because of the link between drug
1 The goal of interdiction is to prevent illegal
use and AIDS cases; and research on the
drugs from entering the United States by
maternal. paternal, and fetal effects of drug use.
intercepting and seizing such shipments.
5 CTAC, established in 1991, is the Office of
2
Interdiction efforts that contribute to
National Drug Control Policy's central
counterdrug enforcement research and
decreasing the flow of drugs across the
Southwest Border are crucial since estimates
development organization of the U.S.
government.
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P.14
Providing International
Leadership: Support for Anti-Drug
Policies Around The World
Although much remains for the United States to do at home, we will not neglect
our close partnership with 8 growing number of countries around the world that
share our commitment to combatting drug trafficking.
Lee Brown
nternational narcotics control is a major
demand and supply reduction efforts to curb drug
U.S. foreign policy objective, particularly in
availability and use will be undermined. To
the leading drug source, transit, and money
ensure progress, U.S. foreign policy will pursue
laundering countries. Left unchecked, the
short- and long-term initiatives at bilateral and
illegal drug trade's corrupting influences will
multilateral levels.
undermine the goals we seek to achieve in
the fields of democracy and economic stability
and growth, as well as efforts to promote human
Total Potential Cocaine
rights, the rule of law, and a clean environment.
Production, 1988-1992
The unabated flow of drugs also undercuts the
(range estimate)
effectiveness of our domestic supply and demand
reduction efforts. We must, therefore, continue to
1988
840
1,040
work with, and offer our full support and coopera-
tion to other nations. especially the major source
and transit countries, that demonstrate the politi-
1989
845
1,050
cal will and program commitment to combat the
drug trade. We will urge other nations to under-
1990
880
1,090
take more action on their own by reinforcing the
concept that it is in their best interests to do so.
Strong diplomatic leadership will help deliver this
1991
955
1,170
message and spark foreign governments to take
action.
1992
955
1,165
The great majority of illicit drugs found on the
0
200
400
600
800
1,000
1,200
1,400
streets of the United States are produced overseas,
Metric Tons
and the major criminal organizations that produce
and smuggle them are located in foreign coun-
Source: Bureau of International Narcotics Matters. U.S. Department of
tries.¹ Without international cooperation, our
State, "International Narcotics Control Strategy Report."
27
WED
21:45
JIM
PAGE
301
937
6018
a)
BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
enforcement and judicial institutions. We will
Total Worldwide Oplum
selectively back alternative development and crop
Cultivation
control programs when there is a strong prospect
or record of success. We will emphasize assistance
to international and regional institutions, such as
1989
the United Nations and Organization of American
230
States, that conduct counternarcotics programs in
support of democratic governments in such areas
as legal and judicial reform, strengthening of law
1990
221
enforcement capabilities, and promotion of
demand reduction and alternative development
efforts.
1991
239
Furthermore, we will sponsor projects that
have regional applicability, such as law enforce-
ment training, detection and monitoring activi-
1992
257
ties, and communications systems. We will seek
to involve more deeply multinational develop-
0
50
100
150
200
250
300
ment banks and other international financial
Thousands of Hectares
institutions in support of counternarcotics pro-
grams directed toward alternative development
Source: Bureau of International Narcotics Matters, U.S. Department of
and judicial reform. And we will develop, where
State, "Loternational Narcotice Control Strategy Report."
appropriate and with host country participation,
integrated regional technical systems to support
STEP ONE
their own interdiction efforts.
Prioritize International Efforts
We will concentrate drug control assistance in
major producer and transit countries that have
We will continue to treat the flow of drugs to
demonstrated their political will to reduce drug
this country and the operations of foreign drug
trafficking. Assistance programs will focus on
trafficking organizations as a threat to U.S. nation-
improving judicial and policy systems, interdic-
al security. Cocaine remains
tion efforts, and other programs to attack the
our primary threat, although
drug-trafficking infrastructure. Our goal is to
heroin warrants serious con-
improve their ability to arrest or incapacitate the
cern. To counter this threat.
leaders of drug organizations and to control money
we will ensure a coordinated
laundering and the flow of essential and precursor
response by U.S. supply
chemicals. 2 Further, we will monitor shifts in
reduction agencies and the
illicit production and trafficking and institute the
strongest cooperation be-
planning required to counter these shifts.
countries
tween the United States and
commitment
other countries to stem the
We will continue diplomatic, public awareness,
international drug trade.
demand reduction, and other efforts with key
countries whose political commitment to coun-
To improve our national
ternarcotics is weak. Our objective is to convince
responses to organized inter-
them that, as members of the global community,
national drug trafficking, the United States will
their full participation in the international cam-
support counternarcotics programs within source
paign against drugs is their responsibility and is in
countries (i.e., Bolivia, Peru, and Colombia),
their own national interest.
focusing on democratic institution-building of law
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P.16
BREAKING THE CYCLE OF DRUG ABUSE A NATIONAL IMPERATIVE
STEP TWO
Drug Enforcement Conference, and various Unit-
ed Nations and European Community efforts that
Build A Global Alliance
have been useful in coordinating multi-national
activities and in developing controls and regula-
tions to address such problems as maritime smug-
The urgent need to strengthen and broaden
gling, money laundering, and the flow and
International cooperation against the global drug
diversion of essential and precursor chemicals to
trade cannot be overstated. The cultivation, pro-
source countries. We will continue efforts to
duction, trafficking, and use of illicit drugs is an
strengthen the United Nations Drug Control Pro-
increasingly global problem. The drug trade poses
gram that currently provides drug control assis-
new trafficking challenges and threats to political
tance to 97 countries and, as coordinator of the
and economic stability that the United States
U.N. anti-drug effort, is getting more U.N. agen-
cannot confront alone. For example. criminal
cies to include drug control objectives in their
syndicates are taking advantage of the political
activities.
turmoil in Eastern Europe and other parts of the
world to expand narcotics trafficking, a move that
is undermining regional progress towards democ-
ENDNOTES
ratic. social, and economic reform.
1
For example, the Cali cartel in Colombia is an
The United States will continue to lead the
organized crime group that, by some estimates,
effort to develop an international coalition
controls over 70 percent of the world's cocaine
against drug cultivation, production, trafficking,
business.
and use, through multilateral organizations and
initiatives, using the full range of traditional and
2 The production of illicit drugs requires
public diplomacy tools at our disposal. Past "drug
precursor and essential chemicals (e.g., cocaine
summits" created cooperative frameworks for
producing chemicals include acetone, ethyl
action in the form of international treaties,
ether, methyl ethyl ketone, potassium
regional working groups, and model legislation.
permanganate, and toluene). Since most of
Some of these efforts continue to bear fruit, but
these chemicals are not manufactured in the
some agreements have languished. We will use
established consultative groups such as the Orga-
cocaine and heroin source countries, drug
trafficking organizations must usually obtain
nization of American States, the Financial Action
them through international commerce.
Task Force, the Dublin Group, the International
29
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P.18
Conclusion
T
he National Drug Control Strategy will give
We will ensure fairness- yet emphasize certainty
a new direction and focus to our drug control
of punishment - for those who violate drug laws.
efforts. The Administration is committed to
We will also encourage innovative alternatives to
reducing the demand for drugs through effective
and aggressive prevention and treatment initia-
incarceration, expand drug treatment capacity,
promote referrals into treatment for those in the
tives, with particular focus on the difficult prob-
lem of hard-core drug use and seriously at-risk
criminal justice system, and support community
policing to make our communities safe once
populations. The economic and social revitaliza-
again. We will work with the international coin-
tion of those communities ravaged by drug use will
munity to combat the transnational syndicates
efforts. be central to the Administration's anti-drug
that control the drug trade.
At the same time, the Administration will
Our anti-drug effort will not just be a Federal
undertaking, but will be a collaborative one that
continue to work aggressively to suppress the traf-
fic in illicit drugs in and directed at the United
includes State and local governments, the private
States. The Administration remains committed
sector, schools, religious institutions, community
groups, and the efforts of individual Americans.
to using the full force of the investigative and
Our task is a challenging one, but one that must
prosecutive tools at our disposal to ensure that
drug traffickers and their organizations are disrupt-
be done for the future growth, security, and pros-
perity of all Americans.
ed. dismantled. and destroyed.
31