Dimensions of Narcotic Substance Abuse and Control: A Perspective From Pakistan

Introduction

Narcotic substance abuse in the form of opium has been a historical phenomenon in the Asian regions, quite often destroying nations’ capacities and resilience. However, in recent times narcotics have transformed into more sophisticated and deadly substances, affecting societies in dangerous ways. World-wide drug addiction or substance abuse, in present times, has emerged as a major threat posing serious problems for the safety and security of states and societies. Given the increased association of criminality with narcotics and the huge economic dividends from narcotics-business, the demand-supply dynamics have disrupted societal stability confronting the security and law enforcement agencies with serious challenges. To arrest the spread of narcotic substances, well targeted strategies are being strengthened at the national level to tackle both the demand and supply sides. Since the drugs related issues have wider dimensions, close coordination within the region and beyond is critical. In the context of Pakistan’s Anti-Narcotics Policy, 2019 three policy objectives have been reemphasized: i) Drug supply reduction; ii) Drug demand reduction; and iii) International cooperation.¹ The paper will briefly look into some of these dynamics with a view to possibly develop understanding of the problem.

Wake up Call for Pakistan

As per the reported figure, the number of drug addicts in the country could be around 7.6 million (78% male and 22%female). An article on the subject indicates that “Pakistan’s drug addicts have increased exponentially from 7 million in 2015 to 9 million in 2021”.² The number of drug addicts is reported to be increasing by 40,000 per year with 700 dying every day. Because of wide availability of and easy access to drugs at cheaper prices, more and more of the younger population and children are becoming susceptible to falling into the trap of narcotic substance abuse. Already, drug addiction is found to be common among children as young as 14 years of age. The danger of these young children becoming targets of drug peddlers and cartels, thus getting warped in criminal activities, remains high. Since drug addiction seriously impairs individual’s behavior and capacity to lead a productive life, it poses multi-facet ted challenges for the country, more importantly, in inter-generational terms. Narcotics have the tendency to manipulate the responses of individuals in different ways. Therefore, prioritized remedial measures are imperative.

The complex picture of narcotics abuse in Pakistan is hostage to the vicious cycle of rapid population growth overstretching the country’s resources and physical capacities and pushing communities into poverty. It is further compounded by rising unemployment, food insecurity and despair, changing societal norms and social status syndrome among the elite circles. The menace of injection-drug-abuse has specially emerged as a serious threat for the safety and well being of the people and state of Pakistan as it has enhanced the risks of AIDS/HIV and other blood borne diseases. Different surveys conducted reveal that the situation in schools and universities is alarming, as drug addiction seems to be growing for various reasons. Also “drug addicts (are seen) freely sitting on…road (sides), greenbelts, parapets, footpaths, bridges and inside the underpasses, injecting themselves with drugs.”³ As the police shoulders multiple responsibilities, their focus is more on dealing with drug peddlers, rings and mafias.

The last survey of drug addicts in Pakistan was done in 2012-13 in collaboration with the United Nations Office of Drugs and Crime (UNODC). It “reveal(ed) that a substantial portion of the country’s population suffers from the devastating consequences of substance abuse” and estimated that “nearly 6.4 million Pakistani adults used drugs in the last 12 months (2012).”⁴ For a realistic appraisal of the current situation related to the prevalence of drug abuse in Pakistan the “National Drug Use Survey Pakistan 2022-2024 – A Key Milestone in Developing Effective Prevention, Treatment and Rehabilitation Programmes” initiative has been launched. Under this initiative, the Survey 2022-24, is to be conducted by the UNODC Country Office in collaboration with the Ministry of Narcotics Control of Pakistan and US State Department Bureau of International Narcotics and Law Enforcement Affairs. The deadline for the first draft is December 2023 and the report is to be finalized by 2024⁵. This survey will be crucial in understanding: i) the extent of substance abuse in Pakistan; ii) the type of substances that are being consumed; iii) control and prevention initiatives of the government; and iv) the regional dimension of the threat.

Geopolitical Landscape—Narcotic Abuse and Trade

Paradigm shifts in the geopolitical landscape took place in the late 1970s, which had an overall impact on the socio-economic fabric. The Iranian revolution of 1979 together with the Soviet invasion and the intensified proxy war in Afghanistan significantly disturbed the regional equilibrium. In Pakistan the impact, inter alia, manifested in the form of proliferation of narcotic substances in the country. With the passage of time, a drug culture started taking root, especially in Pakistan’s adjacent territories to Afghanistan. Perpetual instability on the western border of Pakistan, particularly with Afghanistan, seems to have posed challenges for continued coordinated strategies to deal with the narcotics issues. The socio-economic compulsions and provision of sustained meaningful alternate livelihoods are major hurdles in weaning people away from narcotics trade and poppy cultivation in the context of Afghanistan.

The current dispensation in Afghanistan is disconnected with the international community. With the Interim Afghan government’s funds frozen and very little outside support, the situation can be characterized as untenable. Underlining the social and economic causes, a Brooking study of 2016 points out that “the significance of opium poppy production for the Afghan economy and crucially for employment, will only grow as Afghanistan will continue to experience serious economic and fiscal crises.”⁶ Moreover, Pakistan’s and Afghanistan’s immediate neighbours’ primary concern is to ensure that the threat of terrorist groups operating against them from Afghan soil are thwarted. Since instability and disorder in the neighbourhood could have a “contagion effect”, providing space to terrorists and other criminal groups to operate with impunity, regional conversations need to focus on the challenges in an integrated manner.

In a recent interview with Voice of America, Pakistan’s Special Representative on Afghanistan, Ambassador Asif Durrani, inter alia, drew attention to the conundrum of combatting terrorism and dealing with narcotics related problems. The priority accorded by neighbouring countries, more importantly Pakistan, is to tackle the question of violence flowing into Pakistan from across the border. He emphasized that “Pakistan has exhausted the dialogue option; for them (TTP) the only way is to surrender and face the law.”⁷ The Afghan Interim Government need to pay serious heed to Pakistan’s urgent concerns about intensified terrorist operations, particularly in the Baluchistan area. The trijunction, where Pakistan, Iran and Afghanistan borders intersect is a tricky area providing space for criminal activities. Therefore, Pakistan’s demand that Afghanistan relocate TTP elements away from the border with Pakistan will be a major step in defusing rising tensions between the two countries. If China and Iran can weigh in on the issue, then there could possibly be some silver lining. Both Pakistan and Iran are victims of instability emanating from Afghanistan and Kabul needs to look at the problem in the regional context and not squander the prospects of connectivity projects, extending of CPEC being an important avenue.

In their recent meeting, the Heads of Counter Narcotics Agencies of the Shanghai Cooperation Organization (SCO) also expressed concern at the “steady increase in the illicit production of narcotic drugs and psychotropic substances in Afghanistan…”⁸ and took notice of its implications on regional and international security. The Uzbek President proposed that a Joint Counter-Narcotics Action Plan covering South and Central Asia be devised. These regions, as he said, were historically close and there was an urgency to expand cooperation within the SCO, including in terms of countering the drug threat from Afghanistan. It remains to be seen how this channel would be beneficial in developing consultative approaches with Kabul on this immediate threat as well as that of terrorism.

Legal Framework and International and Regional Cooperation

Pakistan’s commitment to the control, prevention and eradication of narcotics substances is firm. It has signed core international Conventions and Declarations on Drug Control that are: 1) Single Convention on Narcotic Drugs, 1961 (as amended by the 1972 Protocol amending the Single Convention on Narcotic Drugs, 1961); 2) Convention on Psychotropic Substances, 1971; 3) Convention against Illicit Traffic in Narcotic Drugs and Psychotropic Substances, 1990; and 4) Political Declaration and Plan of Action on International Cooperation towards an Integrated and Balanced Strategy to Counter the World Drug Problem, 2009.

Although the SAARC process has become dormant, it did provide regional thrust on dealing with varied aspects of drugs related matters within the ambit of national programmes and initiatives. SAARC Convention on Narcotics Drugs and Psychotropic Substances of 1990 was meant to be a vehicle to tackle the drug issue through a cooperative approach. There is also a Protocol on Drug Matters with the Economic Cooperation Organization (ECO) countries. Afghanistan is a member of both these regional groupings. However, the current scenario does not provide any opening to invoke these platforms because a) The interim Government of Afghanistan does not enjoy international recognition; and b) SAARC is ineffectual under the prevailing regional geo-political environment.

Pakistan joined the Shanghai Cooperation Organization (SCO) in 2017 and became part of the SCO structures to fight organized crime, terrorism and narcotic substances. The 2004 Agreement on Cooperation between SCO Member States in Combatting Illicit Trafficking of Drugs, Psychotropic Substances and Precursors, is the basic document around which the member countries coordinate their efforts. The SCO Counter Narcotics Agencies have ostensibly been holding regular meetings to exchange views, to take stock of the situation and to address some of the challenges. In their meeting held in April 2022, the Joint Counter Narcotics Action Plan’s timelines and the importance of the initiative were discussed.

In so far as Pakistan’s domestic legislative measures are concerned, as per international obligations, Pakistan has taken action in terms of adopting domestic legislation to move ahead with the implementation of the international conventions on drugs control. In 1996, Pakistan passed an ordinance on the subject which led to the passing of two legislations by the Parliament. These were: The Anti-Narcotics Force (ANF) Act of 1997 and The Control of Narcotic Substances Act (CNSA) of 1997. “These provided the much needed substantive, procedural and administrative law.”⁹ The objectives of CNSA have been stated as:

To consolidate and amend the laws relating to narcotic drugs, psychotropic substances and control the production and trafficking of such drugs and substances.
To regulate treatment and rehabilitation of narcotic addicts…¹⁰

In keeping with the changes in circumstances, this Act has seen several amendments. “Due to introduction of new types of drugs and owing to judicial review of the law related to CNSA, there was need to review laws related to the criminalization of drugs to cater to new forms of synthetic drugs and psychotropic substances.”¹¹The 2022 Amendment Act specified the following:

“Controlled substance” would include all forms known as bhang, siddhi or ganja.
“Illicit traffic” would inter alia include cultivating such plants as coca and cannabis plants.
Engaging in the production, manufacture, possession, sale, purchase, transportation, warehousing, concealment, use or consumption, import into Pakistan, export from Pakistan or transship any narcotic drugs or psychotropic substances or controlled substances.
Dealing in any activities in narcotic drugs or psychotropic or controlled substances.
Handling or letting of any premises, financing directly or indirectly as well as abetting and conspiring and harbouring persons. ¹²

From the point of view of control of narcotic substances within the educational institutions (secondary schools and above, colleges, universities, and other education-imparting-institutions), the Amendment Act adopted in April 2023 (new Section 52A) is pertinent. It fixes responsibility on these institutions to take effective steps to control the menace. The final Statement of Objects and Reasons encapsulates the crux of the Amendment Act of 2023. It states that “synthetic drug is penetrating schools, colleges for the last few years. These drugs are destroying children’s character, discipline, health and their future.”¹³

Narcotics Control Policy

Given the scale and the emerging dimensions of narcotic substance abuse, it became necessary to adopt a structured approach that would provide institutions, strategies and policy. The 1993 Narcotics Policy of Pakistan was a significant step in creating various institutions and supporting legal framework. However, narcotics and psychotropic substance issues are a fast changing phenomenon, the policies, strategies and institutional mechanism have to keep pace with the evolving dynamics. Taking cognizance of the emerging threats and various transformations, specifically related to response and interventions, a need was felt to “develop an effective mechanism to coordinate and integrate these efforts and adopt a cohesive approach”¹⁴ through the formulation of the 2010 Policy. In order to mitigate multiple risks associated with Narcotics, particularly in terms of health, and social and economic costs, it was imperative to deal with both substance abuse and trafficking issues in a comprehensive manner. The strategies outlined, inter alia, targeted three areas: supply reduction, demand reduction and international cooperation; these have been further elaborated in the 2019 National Anti-Narcotics Policy of Pakistan.

The 2019 National Anti-Narcotics Policy has been crafted in an environment characterized by new types of synthetic drugs, new ways of trafficking of drugs, enhanced coordination among various criminal networks, the use of internet technologies and continued instability in Afghanistan. Money laundering associated with narcotics trafficking and penetration at various societal levels has also had implications for the socio-economic security and stability of Pakistan. Of particular concern is the issue of drugs supply within educational institutions and its effects on the youth of the country. Therefore, the thrust of the policy is also in providing affordable and accessible treatment possibilities as well as the rehabilitation and reintegration of drug abusers. Briefly:

a. Supply Reduction stresses on measures such as maintaining poppy free status of Pakistan, curbing inflow of Afghan origin illicit drugs and trafficking in general, tackling illicit pharmaceuticals and precursors and sale of drugs to school, college and university students and money laundering from drug money.

b. Demand Reduction measures focus on prevention of drug abuse; treatment and rehabilitation and initiatives for the social integration of drug addicts, reliable data collection and statistics and capacity building of all stakeholders.

c. International Cooperation within the framework of UN multilateral Conventions and Resolutions as well as bilateral agreements and cooperation as a means of connecting with the world on dealing with the threat of narcotics related issues.

The 2019 Policy is the first after the 18^th Amendment to the Constitution and devolution of subjects to the provinces. Through inter-Provincial coordination and other mechanisms created at the provincial levels, a system has been created to establish liaison between the Federal and Provincial concerned authorities and attempts have been made to share and harmonize actions.

Conclusion

The socio-economic costs of narcotic substance abuse are enormous. At the social level it destroys family structures and imposes financial suffering with far reaching psychological consequences. The constant fear of the behavior of a delinquent member has serious implications for the immediate family and society at large. Economically, the resources spent on the treatment and rehabilitation of addicts drains limited government funds that could be spent on other urgent health needs and healthcare programmes. Moreover, the creation of a dedicated force and law enforcement apparatus for drug control and related crimes inherently has additional security burdens.

A comprehensive approach to combat narcotic substance abuse must focus more on prevention, which is an arduous and multi-pronged task. The National Anti-Narcotics Policy of 2019 together with The Control of Narcotic Substances Act (CNSA) of 1997 and subsequent Amendments to the Act provide foundations for an effective response to narcotics abuse in Pakistan. Implementation needs to be ensured through strategizing ways and means to protect children from harm. This approach could be centered around i) robust dissemination of public service messages; ii) sensitizing such stakeholders as parents and teachers/faculty; iii) displaying messages at public places (bus stands, airports, railway stations, public transport, restaurants/dhabas, workshops, etc.); iv) coopting NGOs, civil society leaders and activists for involving grassroot leaders, particularly in rural and peri-urban areas; and v) the inclusion of general knowledge on the harmful effects of drug abuse in the curriculum.

References

Policy Document, National Anti-narcotics policy, 2019 www. anf.gov.pk/nap. php
Khan, Palwasha, “Alarming increase in of drugs and narcotics in Pakistan”, Paradigm Shift, 14 December 2021, www. paradigmshift.com.pk
Fatima, Raesa, Drug Abuse: Unstated Challenge to the Progress of Pakistan” Daily Times, 4 December 2021
Gul, Ayaz, UN Survey Finds 6 million Pakistani Drug Users” VOA, 13 March 2013, www. voa.com
National Drug Use Survey Pakistan 2022-2024 Milestone in Developing Effective Prevention, Treatment and Rehabilitation Programmes, UNODC Pakistan, 26 October 2022, www: unodc.org/Pakistan
Felbab-brown, Nanda, No Easy Exit: Drugs and Counter Narcotics Policies in Afghanistan, Foreign Policy at Brookings, 2016
Gul, Ayaz, Pakistan Cautiously Lauds Afghan Taliban’s Moves to Counter Cross-Border Terrorism, Voice of America,8 July 2023, www.voanews.com
Press Release on the Results of the 12^th Meeting of the Heads of SCO Counter Narcotic Agencies, 22.4.2022, www.eng,sectsco.org
Adil, Kamran, Reviewing the legal Framework on Control of Narcotic Substances in Pakistan, Research Society of International Law, 13 October 2023
The Control of Narcotics Substance Act, 1997, www: legislation.pk/browse 11
Ibid
Act No. XX, 2022, Control of Narcotic Substance (Amendment) Act, September 2022, www: pcp.govt.pk
The Control of Narcotic Substances (Amendment) Act, 2023, adopted on 3 April 2023
National Anti-Narcotics Policy, 2010, Ministry of Narcotics Control, Narcotics Control Division, Government of Pakistan