INTRODUCTION

Crime and violence are more an issue of national concern in South Africa than ever before. This increasing concern is due to unacceptably high levels of crime and violence in the country. It has, of course, been given added impetus by the fact that other security concerns have drastically diminished. While crime and violence have been in the spotlight for some time, the issue of drugs has been placed on the agenda because of four factors:

the increasing number of reports of alarming levels of addiction among school-going children:



the appearance of vigilante/community action aimed at drug dealers;



the linkages between drug syndicates and other serious crimes such as car hijacking and the trade in small arms; and



the concerns expressed by the international community with regard to drug trafficking through the region.

When looking at regional solutions and the development of regional mechanisms around crime and violence, the trade in illicit drugs is a crucial focal point. Of all criminal industries, it is perhaps the most international. The trade in small arms and the movement of stolen goods, such as motor vehicles, are also important within the subregion, but neither are as dependent on wider international co-operation for effective law enforcement. If regional collaboration cannot make inroads into the drug problem, it is unlikely to have much of an impact on other forms of crime.

THE NATURE OF THE DRUG TRADE AND TRENDS IN DRUG USE

The democratisation of South Africa brought with it a rapid opening up of the country, as well as the region. The increase in international travellers and trade, and the relaxation of security measures have all helped to make Southern Africa an easily accessible region for drug traffickers. The region's porous borders with little effective control of cross-border traffic, and the availability of a sophisticated infrastructure and banking systems necessary to launder the proceeds of illicit drugs, have resulted in a dramatic increase in the trafficking of drugs.

At the same time, this newly found political freedom has emphasised individual freedom and choice. The emphasis on choice and the resultant absence of social consensus on important community values have compounded the problem of failed expectations, particularly among the youth. Strong subcultures, emphasising the need for individual freedom and identity, often coincide with a drug culture, based on false ideas about drugs and their importance as a socially acceptable practice. Among the prison population, contacts and networks for the movement and distribution of drugs are developed.

Over the last few years hard drugs, such as crack cocaine and heroin, have become more readily available and affordable, and are replacing dagga and mandrax as the drugs of choice in many areas. This is partly because Southern Africa has become a key transit point in the trade between the production areas of South America and South-East Asia and the markets of Europe and North America. The increased use of designer drugs, such as ecstasy, among the urban youth has been aided by strong youth subcultures which promote the notion that these drugs are relatively harmless and socially affirming.

Much has been said about the relationship between drugs, general criminality and violence. Although there is little doubt that drugs contribute in no small way to violence in society, this should not be overstated. It is quite likely that alcohol – which is a legal harmful substance – has at least an equally large role to play as a factor leading to socially and physically harmful behaviour.

Drugs and the drug trade are of great importance in relation to their negative association with gangs and organised crime. The potential wealth from the illicit trade in drugs is a powerful motivator for criminal activity and ensures that organised crime has the resources to engage in sophisticated and high risk strategies to frustrate law enforcement efforts. Organised drug syndicates are usually involved in a range of other criminal activities and thus contribute to the recruitment of people into the criminal community, as well as the development of new forms of crime.

Large syndicates with huge resources are a threat to stable government in that they are effectively able to bribe, corrupt and infiltrate government institutions. There is little doubt that drug syndicates are a key factor in understanding levels of corruption in South Africa. Once drug-related social groupings become entrenched, they create a situation where the community is reliant on such groups for protection and even for charity – as has become the case in some parts of the Western Cape.

Before turning to the issue of a strategy to address the drug problem, it is necessary to touch briefly on the National Crime Prevention Strategy (NCPS). Any drug reduction strategy should be developed within the context of the NCPS – the Government's major policy framework for crime prevention.

The NCPS was launched in May last year. It is the first ever such strategy to involve all security agencies, other relevant departments and all levels of government in a holistic effort to fight crime. The aim of the NCPS is to develop a co-ordinated and focused approach to crime in South Africa and is designed to attack the crime problem from all angles. The NCPS has four main areas of work:

Programmes to increase the efficiency and effectiveness of the criminal justice system: the flagship project, Enterprise Process Information Management (EPIM) integrates information systems between all criminal justice departments to ensure that the criminal justice process is efficient, and that all roleplayers from the police, to prosecutors and prison officials have accurate, accessible information on each suspect or convict. This 'pillar' of the NCPS also ensures greater co-ordination and integration of legislative steps, such as measures designed to prevent money laundering.



Programmes to address crime prevention in a sustainable way through tackling the causal factors leading to high crime levels: these measures include environmental design, public education and awareness, and the promotion of stronger communities.



Programmes to address transnational crime: the most important initiative has been to co-ordinate efforts around border control, which will be aided by the reduction in the number of border posts for commercial traffic.



Short term operational steps to build public confidence and increase high profile action against crime: while the NCPS has been conceived as a longer term sustainable strategy, it is necessary for short term operational efforts to build public confidence. Increased interdepartmental co-operation through the NCPS process has enabled operational strategies, such as the recent 'High Density Operation' which involve a range of departments and levels of government, to be effectively managed.

Perhaps the most important advance of the NCPS, is the improvement of interdepartmental co-operation and co-ordination to ensure that the police, the courts and the prisons work together. Co-operation in the border control arena has also improved.

THE NCPS AND DRUGS

As a broad framework for crime prevention, the NCPS addresses the drug issue as part of a number of different programmes. These include:

prioritising organised crime;



legislative measures to enable confiscation of assets derived from the drug trade;



measures to limit money laundering; and



an education programme providing life skills, as well as essential knowledge about the social and physiological effects of various drugs.

The absence of a comprehensive drug policy clearly limits the ability to prioritise and mobilise government resources in a meaningful way. However, because this approach is fragmented and lacking in clear direction, the process of developing a national strategy around drugs has been spearheaded by the National Drug Advisory Board under the auspices of the Department of Welfare. This board recently released a proposed framework for a National Drug Master Plan.

TOWARDS A NATIONAL DRUG POLICY

Any attempt to develop a national drug policy based on an objective assessment of different strategies and sound research, is enormously difficult. Various reasons underlie this, among them the extensive mythology surrounding the issue, as well as the fact that any debate around drug policy is a highly politicised one. It is therefore simply not feasible to entertain an open discussion about the merits of legalisation of certain drugs, despite a growing body of authoritative research which points to the failure of law enforcement, and the harmful impact of a burgeoning underground drug economy.

Internationally, the need for a uniform approach to drugs places South Africa under pressure to adopt strategies similar to those of developed nations, particularly the United States. However, it has become clear that these approaches, such as the US 'War Against Drugs', have not been particularly effective. Within this context, elements of the proposed National Master Plan, as modified by the Drug Advisory Board recently in their discussion documents, include the following four broad elements.

Supply Reduction Initiatives

Supply reduction through effective law enforcement is integral to the emphasis placed on organised crime and border control by the NCPS complement. These include the introduction of new legislation to allow for the seizure of the proceeds of drug trafficking, and to increase international collaboration support. South Africa will no longer be seen as a 'soft target' and hence a key transit point for narcotics. Recent steps taken to reduce the number of international airports to eight, and to reduce other ports of entry for commercial traffic, will dramatically increase the country's capacity to control what goes through its borders, and is linked to new measures to integrate customs, immigration and law enforcement efforts more effectively.

On the investigative side, crime intelligence focused on crime syndicates is a key point of action. This should be combined with the far closer integration of efforts through the creation of multidisciplinary teams involving all relevant agencies to specialise in the prosecution of major drug cases.

Given the scarcity of resources and the dubious value of focusing law enforcement efforts on users themselves, decriminalisation of the use of certain drugs needs serious consideration. Decriminalisation does not mean legalising drug use, but rather that minor drug users will be treated in a different way than hardened criminals. This approach is in line with public health advocates who argue that drug abuse is a health issue, rather than primarily a legal and law enforcement one. The arrest of thousands of dagga smokers every month is not addressing the real drug problem. Instead, the criminal justice system is clogged up and resources are wasted which could be far better used to target organised drug syndicates and drug peddlers – never mind educating the youth in a way which limits abuse at schools. For most drug users, imprisonment is no solution, as it simply exposes the person to harder drugs and other forms of criminality.

Decriminalisation of certain drugs would enable law enforcement officials to focus on the health issues surrounding drug abuse, as well as freeing up resources to focus on crimes with more obvious victims.

Reduction in Drug Demand

The economy of drugs dictates that if people are habitual drug users, effective supply reduction simply increases the price, or leads to a change in user patterns towards substances which are more readily available. Supply reduction therefore needs to be complemented by efforts to reduce the demand for drugs. An increasing number of people are becoming habitual drug users at a very early age, largely as a result of social pressures and widespread myths about the effects of drugs, particularly 'designer' drugs such as ecstasy. Efforts to educate schoolchildren to resist drugs are fragmented and often misguided. A well-planned and researched programme in all schools, involving the Department of Education, is urgently required. This can only be successful if it is based on sound research, examining reasons why drug use has become so popular. The other element of prevention, or demand reduction, depends on effective, non-punitive services for habitual users, which are aimed at helping people to stop the habit. The Department of Health is looking closely at this issue as part of a wider public health thrust.

Reducing the Harm From the Use of and Trade in Narcotics

Concern about drugs focuses on the harm that the narcotics trade causes for individual users, as well as the wider effects of the drug trade. More information on the nature of abuse and its real effects is needed to underpin national policies. This public health approach treats the user not as an enemy, but rather someone in need of help and support. The proposed plan emphasises the need for accessible and effective advice at an early stage in the abuse cycle. This approach can only work meaningfully within the context of the decriminalisation of minor drugs, as the present approach ensures that drug users fear seeking help to kick the habit, because of the risk of prosecution.

Co-ordination, Strategic Resource Deployment and Management

A comprehensive and focused approach towards drugs requires a far higher level of co-ordination and co-operation between departments and non-government agencies than is currently the case. Perspectives from within the welfare and health sector remain poles apart – even at a senior level – from those of law enforcement and justice. A review of all drug-related expenditure is necessary and a set of priorities must be agreed to by all roleplayers. The proposed National Drug Authority will be tasked with the development of national policy and its implementation. From the experience of the NCPS, the proposal for an executive structure reporting to the Deputy President is problematic. In relation to the NCPS, this kind of structure has been rejected, because it takes the responsibility away from the individual ministers who head operational departments. Many of the components of a National Drug Strategy should rather be integrated with other important policy objectives. Most importantly, there is a substantial overlap between the proposed drug master plan and the NCPS itself. In order to use resources most effectively, the National Drug Authority should work under the auspices of the NCPS which has already forged real interdepartmental co-operation.

TOWARDS AN AFRICAN DRUG STRATEGY?

In South Africa, attempts are being made to develop a focused policy around drugs. Ideally, this should lead to the development of a wider policy framework shared by South Africa's neighbours. While international responsibilities require looking at ways of reducing the region's role as a conduit for trafficking to Europe and North America, the focus must primarily be on our own communities. Ironically, far more is known about drug abuse patterns and effects in Amsterdam and New York than the drug problem in Africa.

There is a need for caution in slavishly adopting approaches followed by other countries. We rather have to develop our own approach, based on an understanding of the drug problem in our own countries. This is no easy matter, and requires a great deal of work. The challenge is to develop a regional approach, while simultaneously supporting wider international collaboration to limit the drug trade.

This is perhaps the single most important issue, around which current regional security dialogue needs to be structured.