officers and medical personnel in the techniques of combating narcotics and

drug-related crimes by creating special educational programs and setting up

special training centers; 3) treatment and rehabilitation of addicts; 4)

collection, analysis, summary, and transmission of information about

narcotics, particularly, about new areas of drug-bearing plants, and

methods of their production, illegal channels for their exportation, as

well as the methods for moving them, using different kinds of transport; 5)

preventing the sowing and the growing of drug-bearing plants by replacing

them with other crops and stimulating the farmers and providing them an all-

round assistance; 6) blocking the channels through which narcotics are

moved along; curbing the smuggling of drugs through the joint efforts of

customs and law-enforcement officers of neighboring countries specializing

in actions against narcotics; 7) supervising the fulfillment of anti-drug

laws regulating the sowing and growing of drug-bearing plants, drug

circulation, etc; 8) reducing the demand for drugs by preventing their

transfer from the legal to the illegal domain, including the use of a

"daily dosage method" which makes it possible to determine the correlation

between the quantity of drugs necessary for medical and research needs and

the volume of sale; 9) introduction of remote control devices to estimate

the scale of illegal cultivation of drug-bearing plants in remote places

and creating obstacles for laundering money and other property acquired as

a result of drug trafficking.

In terms of the time, frame measures against narcotics and drug-related

offenses can be divided into early warning, direct impact and

postpenitentiary prophylactic.

The early warning measures are expected to exert influence on persons,

who are not well-versed in drugs and their danger, and who are informed on

the subject but do not take drugs. The preventive influence on poorly

informed persons is made by disseminating knowledge. In this respect the

experience of the United States is worthy of attention and could be

borrowed by the Russian Federation. For as long as a quarter of a century,

preschool children, especially, the ones who attend day care centers have

been educated that any medicines, including drug-bearing ones are harmful

for their health, if they are taken without a doctor's prescription and the

knowledge of the exact dose. To achieve a more vivid effect an album for

coloring pictures featuring narcotics and health is used.

In Australia, there are centers for preventing drug abuse where school

students between 5 and 12 years old have 7 lessons a year forming a certain

attitude to narcotics, as well as an awareness of the danger of drug

addiction.

The influence on persons who are aware of the harm of narcotics and do

not take drugs can be achieved by "tearing them away," so to speak, from

their surroundings where drugs may be used or are used already. This can be

accomplished by conversation with individuals, their families, and

colleagues living in similar environment.

Direct impact prophylactic measures are expected to influence persons

taking drugs, including drug addicts. This impact brings or may bring

positive results when medical treatment is combined with the social

rehabilitation.

Postpenitentiary measures should influence persons who have served

prison terms for drug-related offenses by continuous treatment of drug

addiction, securing the results of previous treatment, and neutralizing a

possible unfavorable influence of their immediate surroundings, finding

jobs and also forestalling the repetition of drug-related offenses.

International, National and Regional Measures:

In terms of their level, the measures to prevent drug abuse can be

divided into international, national and regional.

International measures are the ones, which are carried out on an

international scale. They include a number of earlier listed special

measures to prevent drug abuse. Apart from that, they also include measures

carried out by the international agencies and organizations, such as 1)

creation of programs to prevent the advancement of narcotics; 2) assistance

to countries in implementation of the conventions provisions; 3) providing

assistance in bringing national legislation in line with the conventions;

4) training officers specializing in actions against narcotics for law-

enforcement and other agencies of different countries; 5) supporting the

scientific development of laboratories in the members countries; 6)

providing financial, technical and other kinds of assistance to raise the

effectiveness of national efforts against drug abuse and ensure access to

the international system of information about narcotics. It should be noted

at this point that the Russian Federation adheres to the international

measures because it has joined the world legal effort aiming to combat

narcotics.

National measures to prevent drug abuse are the ones, which are carried

out on the entire territory of the Russian Federation. Regional measures

cover the territory of a region, city or district. Any of the mentioned

general or special measures against narcotics can be used on a national or

regional scale.

It should be stressed at this point, that the last few years have seen

a sharp decline in the effort of law-enforcement bodies, government

agencies and other organizations to prevent offenses, including drug abuse

and drug-related crimes. This state of affairs cannot help but arouse deep

concern. In this context the approval of the national program for combating

drug addiction in the Russian Federation is a necessary step towards

improving the work of preventing narcotics and drug-related crimes, along

with other offenses.

Chapter V. Organized Measures to Counteract Narcotics

Par. 1. General Provisions for Counteracting Narcotics

The multiplicity of drug abuse necessitates a joint combative effort

involving a large number of participants who have a broad spectrum of

powers and who will act simultaneously in different directions, performing

a variety of functions. The joining of anti-narcotism forces can be

achieved through a flexible system of measures against this deplorable

social phenomenon.

Organizing a System of Measures Against Narcotics:

The multifaceted nature of drug abuse necessitates forming a single

united front with many participants acting simultaneously in different

directions, performing various functions with a wide spectrum of measures.

This can be achieved by the mobile and flexible system of measures and

means. In terms of overcoming drug abuse, organization is a system of

measures to combat drug abuse and means of their implementation with regard

to the division of the spheres of activity, responsibilities and

hierarchical order.

Based on the social and economic reality, actions against narcotics

should comply with the national and international norms of law and with the

scientifically based principles of management. They should take account of

the new developments in medicine, pharmaceutics, psychology, psychiatry,

pedagogy, sociology, instrument building, and have substantial legislative,

material, informational, and research backing. They must have clear

parameters of time and space and, most importantly, professionally trained

personnel.

At the same time, the anti-narcotics strategy must reflect the irksome

particularities and complicated nature of this phenomenon as it combines

two interrelated sides - that of illness and that of crime. This defines

our approach to drug abuse as a medical, as well as a social problem and it

determines what steps and means must be chosen.

Drug Abuse as an Object of Government Action:

Narcotics-related issues, including organizational ones, cannot be

isolated either from the social, economic, political, historical,

legislative, medical, and biological problems or from other social

pathologies that call for counteraction. The definition of drug abuse as a

phenomenon of multiple factors is not therefore accidental.

Therefore, efficient counteraction requires much organization and

precisely targeted moves.

Such a stance justifies the view of drug abuse as an object for state

action.

This approach makes a broad analysis of the wide-ranging problems and

ways to solve them possible. Besides, drug abuse helps to define who the

subject (subjects) of influence are, its (their) condition and functioning,

the influence its (their) structure projects, as well as choice of goals

and function. These properties also define clear goals and a reasonable

choice of means to attain them as well as to ensure an overall realization.

Observing the fundamental properties of drug abuse, researchers call

upon us to be ready for new and unusual capability of this phenomenon to

adapt to any conditions and manifest itself in new forms in most

undesirable circumstances. On this occasion A. Gabiani writes: "Hardly had

they banished the opium poppy, when the niche was quickly filled by common

poppy. When the entire hemp-growing regions were cut off from black

markets, the pharmaceutics flooded the market. The channels for natural

drugs were blocked, then the far more dangerous chemicals began spreading.»

The specificity of drug abuse, and its forms and degree of

proliferation, stress the need for a regular re-evaluation of its rapidly

changing state in order to promote the methods of counteraction, discard

the outlived methods, bring all techniques of exerting influence in line

with the legislation and day-to-day reality. Experience proves that an

objective assessment of any process demands for corrections to be made

which take due notice of reality.

A system of measures to combat narcotics presupposes that its elements

are mutually compatible and that the system itself can be a part of a

higher order -(law enforcement and crime-prevention systems, and social

administrative systems, as a whole). This means that not one subject or

measure in the counter-narcotics system may contradict the values accepted

by the society. The authority of the subjects must be sufficiently

reflected in their rights and duties.

It is essential that all elements of the anti-narcotics system have

enough potential possibilities to ensure its effective operation. The

utmost goal of the organization is, in this case, to transform the

potential possibilities into the real functions and make them serve as a

system of counteraction measures. For example, the professional duty of

medical institutions and doctors who provide treatment for drug addicts is

manifested as a certain function performed by the elements of the system of

counteraction to drug abuse.

A solution of the problems of drug abuse requires, on the one hand,

considerable efforts by national, international and other organizations and

their numerous divisions that act in different directions and focus on

different target groups of people, and on the other hand, it requires

coordination and accord in their activities.

The interaction of different elements of the system may be indirect,

through the understanding of common objectives. This, however, requires a

link in management. Such a link "is based on a certain program of action

and is, in itself, a method of implementing this program. There is always a

general structure of the process behind a developing operational system.»

General Provisions of Organizing Action Against Drug Abuse:

The above mentioned makes it possible to outline the following

principles of an efficiently organized effort against drug abuse in the

Russian Federation.

As the manifestations of drug abuse continue to grow and diversify, a

real counteraction is possible only in the framework of a well-tested and

scientifically based government policy which defines the forms, tasks and

contents of the government's contribution to this effort. The understanding

of drug abuse phenomenon should be reflected in the Concept of the

government policy towards narcotics. Its principal goal is to secure

legislative and organizational realization of anti-narcotics efforts, bring

harmony and coordination into the activities of different ministries and

departments, draw up a list of priorities and concentrate the available

resources for their synchronized deployment. No other document but such a

Concept can lay the solid foundation for the National Program of

Counteraction against Narcotics. The Program necessarily requires an

approval at the highest level by the President, the government and the

parliament to make all of its provisions mandatory for everyone.

The development of the National Program stands out as one of the most

important tasks among the anti-narcotics measures. It is essential to

invite experts in different fields of research, as well as the

practitioners from the concerned departments to participate in it. The list

of participants, the scope of their duties and the financing are to be

endorsed by the government. The authors of the Program have personal

responsibility for producing a profound analysis of the situation with

drugs, and for the efficiency of the recommended methods for combating drug

abuse. They are also responsible for providing research or organizational

background during the implementation of the steps they have recommended.

The time frame and other specifics of the program must be included in the

resolutions of the government and the parliament.

2. The main goal of the government policy in regard to narcotic

substances should be: a) to prevent their use for other than medical

purposes; b) curb the demand for them; c) and curtail their illegal

manufacturing and turnover. This goal is attainable in practical terms only

through a set of coordinated steps in politics, economy, legislation and

public health. They should be directed at perfecting the laws regulating

narcotics. Methods should be developed of an early identification of the

persons who use drugs for non-medical reasons, of their treatment and

rehabilitation. Policies should be developed counteracting the unlawful

production and sale of drugs at the national and international setting.

3. The mandatory measures of organizational, legislative and material

support of the government policy in the field of drugs fall into two

categories.

The first category implies the establishment of an inter-departmental

anti-narcotics system of measures, which will incorporate the following

elements.

Information support of the program. The departments involved should set

up a data bank to store information about the state of affairs in

narcotics, the proliferation of drugs, the accurate techniques of drug

identification, and other data - national and international - which will

help make decisions and implement measures against narcotics.

Research and technical support. Conducting fundamental research of and

quick response analysis on drugs, the development of advanced techniques

and technologies of halting narcotics should be implemented.

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