Control of Illicit Traffic in Dangerous Drugs

CONTROL OF ILLICIT T R A F F I C IN D A N G E R O U S D R U G S

(ARCHIVED--01/20/84)

ISSUE BRIEF NUMBER IB76061

UPDATED 01/20/84

AUTHOR:

Harry Hogan

Governmect Division

THE L I B R A R Y ' OF CONGRESS

CONGRESSIONAL RESEARCH S E R V I C E

MAJOR I S S U E S SYSTEM

D A T E ORIGINATED 09/01/76

FOR ADDITIONAL INFORMATION C A L L 287-5700

0206

CRS- 1

ISSUE DEFINITION

Suppression of illicit traffic i s only o n e a s p e c t of t h e g e n e r a l F e d e r a l

G o v e r n m e n t effort to prevent t h e a b u s e of

narcotics a n d other d a n g e r o u s

drug;, but in political significance it i s undoubtedly paramount.

Various

a p p r o a c h e s to t h e problem have been

suggested and tried

s i n c e the f i r s t

explicitly anti-opium l a w was enacted i n 1887.

Major c u r r e n t proposals a n d

a r e a s of investigation concern a p p r o p r i a t e penalties

for

trafficking

o f f e n s e s , t h e r e l e a s e of accused and c o n v i c t e a traffickers o n bail a n d

through other r e l e a s e procedures, general sentencing r e f o r m , exclusionary

r u l e r e f o r m , t h e organization and policies of t h e Federal e n f o r c e m e n t e f f o r t ,

the financial a c t i v i t i e s of drug t r a f f i c k e r s , forfeiture of

trafficker

a s s e t s , marihuana e r a d ~ c a t l o n programs -- both foreign and d o m e s t i c , and ways

of

securing maximum

c o o p e r a t ~ o n ln traffic

control m e a s u r e s from t h e

Countries figuring i n either t h e production of dangerous d r u g s or their

transport into t h e United States.

BACKGROUND AND POLICY ANALYSIS

During the more than 1 0 0 y e a r s of Government attempts to c o n t r o l d a n g e r o u s

drug use i n the United States, a number of legislative, a p p r o a c h e s have been

tried.

Until a d e c a d e or so a g o , Federal i n t e r e s t was for t h e most part i n

i n current t e r m i n o l o g y , "supply r e d u c t i o n " , a s opp.osed

t h e regulatory a r e a

The Federal regulatory l a w s have been based both o n

to "demand reduction."

the t a x power and o n the power to regulate i n t e r s t a t e and

f o r e i g n commerce.

In a landmark enactment of 1 9 7 0 , these l a w s w e r e consolidat.ed a n d extensively

revised.

Also i m p o r t a n t to the general effort t o control a b u s e h a s been

the

rapid e x p a n s i o n , during the past 1 5 y e a r s , o f efforts to r e d u c e the d e m a n d

for d r u g s through provision of assistance for t r e a t m e n t , r e s e a r c h , t r a i n i n g ,

and education.

-

As f o r reducing t h e supply of d r u g s , i n particular t h e narcotic d r u g

h e r o i n , several i s s u e s have Continually a t t r a c t e d interest i n Congress i n

(1) a p p r o p r i a t e a n d e f f e c t i v e

r e c e n t years. Among t h e more r-ecurrent are:

o f preventive

detention o f

penalties for t r a f f i c k i n g , (2) t h e possibility

a c c u s e d traffickers awaiting trial o r s e n t e n c e o r pending a p p e a l of s e n t e n c e ,

13) organization of t h e executive branch e f f o r t to enforce t h e regulatory

(4) i d e n t i f i c a t i o n

s t a t u t e s , and t h e specific enforcement p o l i c i e s pursued,

of t h e most e f f e c t i v e measures f o r curbing i l l i c i t international traffic a n d

(5)

ways t o induce cooperation t o w a r d s those e n d s by other c o u n t r i e s , and

methods of penalizing traffickers "through t h e p o c k e t b ~ o k , ~ 'including t h e

strengthening of

criminal f o r f e i t u r e provisions

in both

t h e Controlled

S u b s t a n c e s Act a n d t h e Racketeer Influenced a n d Corrupt O r g a n i z a t i o n s Act.

Although basic F e d e r a l authority over t h e d r u g industry d e r i v e s from t h e

F o o d , Drug and C o s m e t i c Act of 1 9 3 8 , of which t h e earliest provisions w e r e

enacted i n 1 9 0 6 , t h e most important narcotic

controls h a v e been a c h i e v e d

through separate a n d m o r e r e s t r i c t i v e statutes.

T h e Harrison Act of 1 9 1 4 ,

supplemented through t h e years by a number of other

s t a t u t e s , was t h e

principal Federal narcotics law u n t i l the 1 9 7 0 revision.

T h e Harrison A c t

was designed to c u r b access to narcotics t h r o u g h the i m p o s i t i o n of a t a x

a l o n g with strict procedures f o r i t s payment.

Similar c o n t r o l s were a p p l i e d

to marihuana in 1937.

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I n t h e y e a r s f o l l o w i n g World War 1 1 , r e p o r t s of a s u b s t a n t i a l i n c r e a s e i n

heroin u s e were r e s p o n s i b l e for enactment of

several m e a s u r e s intended t o

strengthen anti-narcotics laws. T h e s e l a w s w e r e generally

characterized by

higher penalties, including o n e providing f o r the possibility

of t h e d e a t h

s e n t e n c e for a n a d u l t convicted o f selling o r giving heroin to a minor.

In

1 9 6 5 , t h e D r u g Abuse Control Amendments (to t h e F o o d , D r u g and Cosmetic Act)

brought amphetmines, barbiturates and similar drugs under. special, m o r e

r e s t r i c t i v e control.

D u r i n g the 1 9 6 0 s a n d early 1 9 7 0 ~the

~ emp.hasis on s u p p l y reduction and

heavy penalties w a s

challenged i n Congress with g r o w i n g f r e q u e n c y , a n d

concern with

reduction of

l e g i s l a t i o n in that period reflected a greater

d e m a n d , through t h e provision of treatment a n d rehabilitation

services to

drug users.

The Community Mental

Health

Centers Act

o f 1 9 6 3 ultimately

became the vehicle through which Congress established a

specialized F e d e r a l

g r a n t program for treatment of drug d e p e n d e n c e , and

t h e Narcotic

Addict

of

Rehabilitation Act of 1966 authorized civil - c o m m i t m e n t (for treatment)

justice

a d d i c t s charged with Federal o f f e n s e s , a n e w concept in t h e Federal

system with respect t o disposition of the criminal addict.

-

B u d g e t totals p r o v i d e a good measure of t h e broadening,

during the past

d e c a d e , o f the F e d e r a l commitment to prevention of drug abuse:

spending for

a l l a c t i v i t i e s related to this purpose rose from $ 7 4 million

in F Y 6 9 t o

approximately $1.3 billion in FY83. Drug a b u s e

"law enforcement" s p e n d i n g

w e n t from $ 3 7 million to $1.07 billion during the s a m e period.

In 1 9 7 0 the e n t i r e complex of Federal narcotic a n d dangerous d r u g

regulatory law was consoliaated and rewritten a s the Controlled S u b s t a n c e s

Act (CSA).

In part t h e result of a 1 9 6 8 Government reorganization

that

merged several existing drug c o n t r o l bureaus i n t o a n e w a g e n c y , the n e w a c t

n o t o n l y instituted tighter controls over t h e pharmaceutical

i n d u s t r y , but

a l s o revised the e x i s t i n g penalties f o r n a r c o t i c and

dangerous drug

law

offenses.

T h e penalty r e v i s i o n s i n the CSA included reduction of a l l first-time

s i m p l e possession o f f e n s e s to t h e misdemeanor

level; elimination of a l l

mandatory

penalties except i n c a s e s i n v o l v i n g a

s p e c i a l category

of

professional Criminal; and t h e provision f o r possibility

of p r o b a t i o n ,

suspended sentence, and parole f o r a n y offender except o n e sentenced under a

s p e c i a l provision pertaining to professional criminals.

Within only a f e w y e a r s o f enactment of t h e 1 9 7 0 l a w , t h e r e were c a l l s i n

C o n g r e s s and elsewhere for reinstatement of mandatory p e n a l t i e s , e s p e c i a l l y

f o r t h e narcotic trafficking o f f e n s e s , and i n 1 9 7 3 the Nixon a d m i n i s t r a t i o n

A companion measure

provided

for the

s u b m i t t e d a proposal t o this effect.

preand post-trial

detention of persons charged w i t h

specified d r u g

t r a f f i c k i n g offenses.

T h e Ford administration s e n t u p a

bill with

similar

provisions.

P r o p o s a l s for reinstatement of mandatory

penalties

r a i s e the f o l l o w i n g

(1) W h a t a r e the proper and just penalties

for the offense in

questions:

(2) Even i f the o f f e n s e i s seen a s justifying a r e p r e s s i v e

question?

( 3 ) Are

p e n a l t y , would t h e penalty a c t u a l l y s e r v e t h e interests o f society?

R e g a r d l e s s of d e t e r r e n c e

heavy penalties a n effective c r i m e deterrent? ( 4 )

v a l u e , a r e heavy penalties justified o n t h e ground that they remove a d a n g e r .

(5)

I s i t the _ s t r i c t

to t h e community f o r a substantial period of time?

s t a t u t o r y penalty o r t h e certainty of punishment

that a c t s a s a

crime

(6) As l o n g a s a r r e s t and conviction

r a t e s remain l o w , d o

deterrent?

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'statutory penalties have much impact?

(7) I s i t wise

to l i m i t judicial

for t h e

discretion i n t h e sentencing process?

(8).Is there a solid basis

assumption t h a t without mandatory penalties

judges will f a i l to i m p o s e

appropriate sentences?

Proposals f o r preventive detention of certain high risk o f f e n d e r s have i n

t h e past f a c e d strong opposition on constitutional grounds.

However, the

D r u g Enforcement Administration contends t h a t dangerous drug offenders a r e

unusually p r o n e to return to illicit a c t i v i t y while a w a i t i n g trial o r

sentence and k h a t current bail release procedures

a r e badly

hindering

the

Government's narcotics c o n t r o l effort.

O n e answer to this c o m p l a i n t has been

that if the criminal justice process could b e expedited, t h e r e l e a s e periods

f o r such o f f e n d e r s would n o t be so l e n g t h y ; i t was hoped by s o m e that p a s s a g e

of the "Speedy T r i a l Act o f 1 9 7 4 " (P.L. 93-619) would solve t h e problem.

A

p r o v ~ n g to be.

Another

is

central question i s how effective that l a w 2 s

whether t h e r e i s not some alternative to d e t e n t i o n , such a s a pre-trial

version of probation.

The third major theme of t h e debate over how L O stem drug a b u s e c o n c e r n s

t h e actual structure of t h e J'ederal effort.

T h e so-called " l a w e n f o r c e m e n t w

in r e c e n t

side of that effort has undergone a number of reorganizations

y e a r s , but q u e s t i o n s c o n t i n u e to be raised. T h e s e include: (1) D o the D r u g

Enforcement Administration

(DEA) and

t h e 2ustoms

Bureau

still

have

jurisdictional difficulties despite Reorganization P l a n No. 2 of 1 9 7 3 , which

(2) Is tl~ere suff.icient coordination

of

was supposed t o solve t h i s problem?

Federal l a w enforcement efforts in general?

(3) Is there

sufficient

(4) Should a l l F e d e r a l a c t i v i t i e s

commitment a t t h e White H o u s e level?

concerned with drug a b u s e p r o b l e m s be centered in o n e a g e n c y , a s recommended

i n 1973 by

t h e National Commission on

Marihuana

and

Drug

Abuse?

Alternatively,

should a

special "drug czar" office be established

to

formulate policy and t o coordinate a c t i v i t i e s of a l l operating

drug

(5)

What i s t h e appropriate and most d e s i r a b l e

enforcement agencies?

relationship o f D E A to l o c a l l a w e n f o r c e m e n t . a g e n c i e s ?

A continuing concern of both congress and the executive branch i s how b e s t

to secure t h e cooperation of other countries in the drbg c o n t r o l effort.

In

addition t o diplomatic maneuver-s and t h e OperatLon of 3EA a g e n t s o v e r s e a s ,

t h e United S t a t e s presently provides d i r e c t monetary a s s i s t a n c e to a n u m b e r

of countries f o r narcotics control purposes.

T h i s ' " I n t e r n a t i o n a l Narcotics

Control Program" was established by a 1 9 7 1 a m e n d m e n t to the F o r e i g n

Assistance A c t ; i n r e c e n t y e a r s the program's

r e a u t h o r i z a t i o n h a s been

One of the most i m p o r t a n t of t h e

limited to a period of o n e y e a r a t a time.

efforts initiated has been t h e poppy

eradication operation

in Mexico,

involving massive spraying of herbicides during the growing

seasons.

U.S.

officials h a v e f o r the most part been highly enthusiastic a b o u t t h e p r o g r a m ,

generally crediting it with a substantial d e c l i n e i n t h e a m o u n t of Mexican

of

several

heroin coming i n t o the United States. H o w e v e r , after a period

y e a r s grace, t h e vacuum

t h u s created h a s been

filled by

imports from

Southwest Asia.

recipients of a s s i s t a n c e provided

Many drug s o u r c e countries have been

through t h e International Narcotics C o n t r o l program, w h i c h

has

been

(1)

associated with a number of Controversial issues. T h e s e h a v e included

personnel

in

the level 0.f influence of D r u g E n f o r c e m e n t Administration

(2)

d i r e c t participation

of

U.S.

law

shaping t h e efforts a s s i s t e d ;

enforcement o f f i c i a l s i n f o r e i g n drug l a w enforcement a c t i v i t i e s ; ( 3 ) u s e of

U.S.-supplied equipment a n d of U.S.-trained personnel f o r purposes othcr than

d r u g traffic control, particularly i n s u p p o r t of non-democratic

governments,

'

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and (4) u s e of a l l e g e d l y . harmful herbicides i n eradication programs.

A

related i s s u e i s t h e general question of t h e diplomatic

"linkage" of U.S.

concerns over t h e drug problem t o a l l f o r m s of U.S. a s s i s t a n c e t o , o r o t h e r

accommodation o f , drug source countries.

A major review of Federal drug traffic c o n t r o l e f f o r t s , completed by

General Accounting Office' in 1 9 7 9 , acknowledged

" p o s i t i v e results"

characterized the g a i n s a s "fragile" and "requiring constant vigilance"

these reasons:

the

but

for

-- source countries m o v e quickly to f i l l temporary drug

shortages,

-- trafficking patterns s h i f t , and

-- the types of drugs cons,umed readiiy change.

Cited a s inescapable f a c t o r s were t h e enormous profits of drug t r a f f i c k i n g ,

the e a s e of

smuggling drugs i n t o the United

States and of

subsequent

distribution, and t h e s o c i a l , e c o n o m i c , and political

realities of m o s t

drug-producing

countries. - T h e report called for a "much tougher a n d

consistent stance" and the implementation of specific m e a s u r e s , including (1)

changes in Federal bail and

sentencing practices,

(2) S t a t e D e p a r t m e n t

preparation of "realistic" Country Narcotics Action P l a n s , (3) resolution o f

border management " p r o b l e m s " , a n d (4) clarification of t h e r o l e s of v a r i o u s

government levels of drug law e n f o r c e m e n t , with increased reliance on S t a t e

and l o c a l levels.

A m o r e recent study by the same a g e n c y , released i n J u n e

1 9 8 3 , remains c r i t i c a l , citing i n particular t h e a b s e n c e of c o o r d i n a t e d ,

lack

of

general

cooperation

among

Government-wide policies - a n d a

operating-level a g e n c i e s involved i n drug l a w enforcement.

D u r i n g t h e past

several years Congress has been w o r k i n g on v a r i o u s

proposals for the revision and reform of the F e d e r a l C r i m i n a l Code.

Several

versions have been proposed, in s o m e cases involving such substantive c h a n g e s

for c e r t a i n trafficking

in Crug l a w a s (1) a return to mandatory penalties

o f f e n s e s and (2) t h e effective decriminalization

of possession

offenses

involving small a m o u n t s of marihuana.

G r o w i n g o u t o f the y e a r s of work o n c r i m i n a l c o d e reform i s o n e of t h e

l e g i s l a t i v e f o c a l points of the 9 8 t h Congress:

a n o m n i b u s c r i m e control b i l l

reported by the S e n a t e Judiciary Committee on Aug. 8 , 1 9 8 3 (S. 1762).

Much

of t h e bill i s substantially similar t o a m e a s u r e that passed t h e S e n a t e i n

the 9 7 t h Congress (S. 2572).

LEGISLATION

H.R. 1 5 8 0 (Mineta et al.)/ S. 1 1 4 6 (Bentsen, D e C o n c i n i , and Domenici)

(Related bill:

H.R. 53)

Amends the Federal Aviation Act of 1 9 5 8 t o provide f o r (1) t h e revocation

of a i r m a n certificates o f persons convicted o f a violation o f a S t a t e o r

Federal l a w relating to controlled substances a n d

(2) a d d i t i o n a l p e n a l t i e s

for t h e transportation by a i r c r a f t of controlled

substances.

H.R.

1580

introduced Feb. 2 2 , 1 9 8 3 ; referred to Public W o r k s and Transportation.

S.

1 1 4 6 introduced Apr.

2 6 , 1 9 8 3 ; referred to

Commerce,

Science,

and

Transportation. Reported Sept. 1 5 (S.Rept. 98-228).

Passed Senate, amended,

Sept. 27. Referred to House C o m m i t t e e on P u b l i c Works a n d T r a n s p o r i a t i o n ,

Sept. 2 8 , 1983.

.

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H.R. 2013 (Conyers) (Related bills: S. 829/H.R. 2 1 5 1 , S. 8 3 0 , S. 1762)

Criminal C o d e Revision Act of 1983. Revises title 1 8 of t h e U.S.

Code.

T r a n s f e r s c r i m i n a l penalty provisions of t h e Controlled S u b s t a n c e s Act t o t h e

revised title a n d makes some substantive changes.

Introduced Mar.

9 , 1983;

referred to Judiciary.

H.R. 2282 (McKinney et al.)

Amends t h e Controlled S u b s t a n c e s Act t o provide f o r t h e therapeutic use

of marihuana a n d f o r other purposes.

Introduced Mar. 2 3 , 1 9 8 3 ; referred to

Energy and Commerce.

H.R. 3 2 9 9 ( H u g h e s , F i s h , S a w y e r , and Sensenbrenner) (Related bills:

T i t l e IV of S. 8 2 9 / ~ . R . 2 1 5 1 , Title I1 o f S. 830, S. 948, T i t l e 111 of S.

1762)

Amends the Controlled S u b s t a n c e s Act, t h e Controlled Substances

Import

a n d Export A c t , and the Tariff Act of 1 9 3 0 t o improve f o r f e i t u r e provisions

a n d to strengthen penalties (fines) for controlled s u b s t a n c e o f f e n s e s , and

for other purposes.

1ntrodu;ed

June 1 4 , 1 9 8 3 ; r e f e r r e d jointly to t h e

Committees on t h e Judiciary, Energy and C o m m e r c e , and W a y s and Means.

H.R.

H.R. 4 0 2 8 (Hughes, S a w y e r , Smith of Fla., and Gilman)

3 3 2 6 , S. 17871

e elated

bills:

R e e s t a b l i s h e s a n Office of D r u g Abuse P o l i c y

(ODAP) in t h e Executive

O f f i c e of the President. Amends the D r u g A b u s e P r e v e n t i o n , T r e a t m e n t , and

Rehabilitation Act to revise t h e authority (still contained in t h e statute)

of O D A P , to p r o v i d e for a D e p u t y Director f o r Drug A b u s e P r e v e n t i o n a n d a

Deputy Director

f o r Drug Enforcement.

S e t s forth a u t h o r i t i e s for t h e

d i r e c t o r , which i n c l u d e the establishment of policy and

priorities f o r a l l

Federal drug a b u s e functions a n d the coordination a n d o v e r s i g h t of

such

f u n c t i o n s . , Among specific powers provided i s review o f a l l a n n u a l budgets of

departments a n d agencies engaged i n drug a b u s e functions.

Requires a written

r e p o r t to C o n g r e s s annually o n t h e a c t i v i t i e s conducted

under

t h e statute.

H.R. 3 6 6 4 introduced July 2 6 , 1 9 8 3 ; referred jointly t o t h e C o m m i t t e e s o n t h e

in lieu of

Judiciary and o n Energy and commerce. H.R. 4 0 2 8 , a c l e a n bill

H.R. 3664, introduced Sept. 2 9 ; referred jointly to t h e Committees o n t h e

Judiciary a n d o n Energy and Commerce. O r d e r e d to be reported

(amended) by

Judiciary Oct. 4 , 1983.

H.R.

4 2 0 1 (Rowland et al.)

(Related bill:

H.R.

1055)

Transfers methaqualone from Schedule I1 t o Schedule I under t h e Controlled

S u b s t a n c e s Act.

Introduced Oct. 2 4 , 1 9 8 3 ; referred to Energy a n d Commerce.

P a s s e d H o u s e Nov. 1 6 , 1983.

Reported Nov. 10 ( H - R e p t . 98-534).

H.Res. 49 (Rangel and Gilman)

P r o v i d e s f o r t h e continuance of the S e l e c t Committee o n Narcotics ASuse

7

and Control.

Introduced Jan. 3 1 , 1983; r e f e r r e d to Rules.

Reported March

( H - R e p t . 98-4)

Passed March 8 , 1983.

.

S. 1 1 7 (Chiles and Nunn)

C r i m e Control Act of 1983.

T i t l e I-Organized Crime

Enforcement.

Among

other

things,

(1)

grants

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l i m i t e d F e d e r a l jurisdiction over cases involving c o n t r a c t k i l l i n g s o r murder

f o r hire; (2) a m e n d s t h e obstruction of justice statute t o cover i n f o r m a n t s

and potential w i t n e s s e s a s w e l l a s witnesses who a c t u a l l y a r e under

subpoena

to t e s t i f y ; (3) a m e n d s the Freedom of Information Act to i n c r e a s e protection

of jnformation that would identify confidential i n f o r m a n t s ;

(4) permits

F e d e r a l judges to seal those portions of wiretap d o c u m e n t s t h a t could r e v e a l

o n g o i n g criminal investiga-tions or wire intercepts.

T i t l e 11-Bail Reform.

Specifies that i n setting t h e c o n d i t i o n s of r e l e a s e

of persons charged with trafficking in certain n a r c o t i c s a n d other d a n g e r o u s

d r u g s t h e judicial officer shall consider t h e danger t h e d e f e n d a n t might p o s e

t o t h e community if released.

S e t s forth circumstances i n which a d r u g l a w

offender should be denied release prior to trial.

Increases penalties f o r persons

T i t l e 1 1 1 -- Sentencing.

v i o l e n t crimes with a dangerous weapon or a destructive device.

who

commit

--

H a b e a s Corpus Reform.

Revises Federal h a b e a s corpus s t a t u t e s

Title I V

by eliminating purely technical challenges to c o n v i c t i o n s f a i r l y arrived a t

Jan.. 2 6 , 1 9 8 3 ; referred to Judiciary.

in a S t a t e court.

Introduced

S. 215 (Thurmond, Biden et al.)

(Related bills:

H.R. 1 0 9 8 , T i t l e I1 of

8 3 0 , H.R.

S. 1 1 7 , S. 4 0 6 , T i t l e I of S. 1 7 6 2 and H.R. 2151, T i t l e I1 of S.

30C5)

Amends the Bail R e f o r m . A c t of 1 9 6 6 to permit c o n s i d e r a t i o n of d a n g e r to

t h e community i n setting pretrial release c o n d i t i o n s , t o expand the l i s t of

statutory r e l e a s e c o n d i t i o n s , t o establish a more a p p r o p r i a t e b a s i s f o r

deciding on postconviction r e l e a s e , and f o r other purposes.

Introduced Jan.

2 7 , 1 9 8 3 ; referred to Judiciary.

Reported May 25 (S.Rept. 98-147).

S. 1 0 9 ,

S. 4 2 2 (Jepson and Thurmond)/H.R. 1 2 5 5 (Hyde) (Related bills:

S. 3 8 7 , S. 7 2 1 , H.R. 1661)

Makes it a Federal o f f e n s e to r o b a pharmacy

of a narcotic d r u g ,

a m p h e t a m i n e o r barbiturate t h a t i s listed i n S c h e d u l e s I through IV under t h e

F e d e r a l Controlled Substances Act.

Introduced Jan.

2 6 , 1 9 8 3 ; referred to

Judiciary.

S. 503 (Humphrey e t al.)

Makes i t u n l a w f u l t o manufacture, distribute, o r p o s s e s s With

intent to

d i s t r i b u t e , a drug t h a t i s a n imitation of a Controlled s u b s t a n c e or a d r u g

t h a t purports to a c t l i k e a Controlled substance.

Introduced Feb. 1 6 , 1 9 8 3 ;

referred to Judiciary.

S. 8 3 0 (Biden et al.) (Related bills:

S. 1 1 7 , S. 2 1 5 , S. 6 6 8 , S. 8 2 9 ,

9 4 8 , S. 1 1 8 2 , S. 1 7 6 2 , S. 1 7 8 7 , H.R. 2 0 1 3 , H.R. 3005)

S.

National Security and Violent C r i m e C o n t r o l Act of

1983.

T h e foliowing

a r e t h e more significant titles and provisions in r e l a t i o n to d a n g e r o u s drug

control:

Narcotics Law Enforcement.

S u b t i t l e A.

N a t i o n a l Narcotics

T i t l e I.

of 1983.

Establishes a cabinet-level o f f i c e of D i r e c t o r of National

International D r u g Operations and Policy t o plan a n d

c o o r d i n a t e drug

enforcement efforts of the F e d e r a l Government.

-

S u b t i t l e B.

I l l e g a l use of aircraft.

Amends t h e

Federal

Aviation

Act

and

law

Act:

CRS- 7

to provide for the revocation of a n a i r m a n certifica.te, i s s u e d under t h e A c t ,

upon t h e conviction i n a n y court of the holder f o r a n y v i o l a t i o n of Sfate

or

Federal l a w relating t o the transportation or distribution

of a controlled

substance; t o i n c r e a s e penalties for t h e manufacture,' s a l e or u s e of a

fraudulent a i r m a n certif'icate or f o r t h e display o n any a i r c r a f t of m a r k s

that a r e f a l s e or misleading a s t o t h e nationality or registration

of t h e

a i r c r a f t ; and to make it a:Federal o f f e n s e to o p e r a t e a n a i r c r a f t t o c o m m i t

or a b e t a n a c t that violates Federal or S t a t e l a w relating t u t h e r e g u l a t i o n

of controlled substances, subject to penalties of up t o 5 y e a r s i n prison a n d

u p to $ 2 5 , 0 0 0 for a f i r s t offense and d o u b l e for a second.

S u b t i t l e C.

Mutual assistance treaties.

C a l l s upon t h e Attorney G e n e r a l

to n e g o t i a t e a g r e e m e n t s to secure t h e cooperation of f o r e i g n l a w enforcement

authorities to prevent the use of foreign banking f a c i l i t i e s a s havens f o r

the proceeds of crime.

--

Title 11. Bail, S e n t e n c i n g , and Criminal P r o c e d u r e Reform.

Subtitle A

Bail reform.

Amends t h e Bail Reform Act of

1 9 6 6 to

(1) permit potential

danger t o th-e community to be considered i n determining w h e t h e r t o r e l e a s e a n

accused

individual pendin$

trial o r , if release i s

appropriate,

in

determining conditions f o r r e l e a s e (creates a rebuttable presumption t h a t a n

individual i s a potential danger to t h e community if he f a l l s i n t o o n e of 6

Specified c a t e g o r i e s , which include persons who have committed a serious d r u g

trafficking offense), (2) tighten t h e criterla f o r post-conviction

release

pending sentencing and a p p e a l , (3) establish procedures

for revocation of

on

release, a n d contempt-of-court prosecution, for committing a c r i m e while

sentences for persons

convicted of

release; (4) provide for consecutive

crimes committed o n pretrial r e l e a s e ; a n d (5) i n c r e a s e p e n a l t i e s for

jumping

bail.

S u b t i t l e B -- Sentencing reform. Creates a d e t e r m i n a t e sentencing s y s t e m ,

with n o parole and limited good t i m e credits.

Establishes a sentencing

c o m m i s s i o n , to be responsible for formulating guidelines t o b e used by

the

courts i n determining appropriate sentences. Requires maximum penalties f o r

repeat o f f e n d e r s charged with a c r i m e of violence o r a d r u g trafficking

offense.

--

Violent Juvenile Reform Act of 1983.

A m e n d s the

juvenileSubtitle D

delinquency chapter of T i t l e 18, U.S. C o d e , to lower t h e a g e a t which a n a c t

would be considered a crime if committed by a n a d u l t and generally m o d i f i e s

provisions that a l l o w f o r special handling o f j u v e n i l e s , to encourage a d u l t

treatment of offenders charged with c r i m e s of violence o r drug t r a f f i c k i n g

offenses.

--

F e d e r a l Diversion Act.

Establishes a n e w program

of

Subtitle E

offender diversion f o r persons charged with non-violent c r i m e s -- emphasizing

rehabilitative services provided under supervision.

Organized Crime.

S u b t i t l e A -- Narcotics

law enforcement

Title 1 1 1 .

policy g o a l s and report requires t h e Attorney General to submit (1) within 90

d a y s a n d thereafter a n n u a l l y , a r e p o r t explaining h o w

any

proposed

reorganization of t h e Drug Enforcement Administration a n d J u s t i c e D e p a r t m e n t

narcotics control policy and organized crime c o n t r o l policy generally w i l l

60 d a y s ,

"a c o m p l e t e

accomplish certain specified g o a l s , and

(2) within

report o n t h e status o f organized c r i m e " i n t h e Nation.

--

-

Subtitle C

Criminal forfeiture.

Amends both

1 8 U.S.C.

1963

(a

provision of t h e Racketeer Influenced and C o r r u p t O r g a n i z a t i o n s Act) and t h e

CRS- 8

Controlled S u b s t a n c e s Act to (1) provide f o r t h e criminal f o r f e i t u r e of t h e

proceeds of racketeering o r d r u g trafficking a c t i v i t y ,

(2) establish

the

sanction Of criminal f o r f e i t u r e f o r a l l f e l o n y drug o f f e n s e s , (3) i n g e n e r a l

f a c i l i t a t e f o r f e i t u r e s in drug-related a n d racketeering c a s e s , and (4) r a i s e

t h e ceiling on t h e . v a l u e of property subject t o a d m i n i s t r a t i v e f o r f e i t u r e

from $ 1 0 , 0 0 0 t o $100,000. Introduced Mar. 1 6 , 1 9 8 3 ; referred to Judiciary.

--

S. 9 0 2 ( R o t h , R u d m a n , et al.)

(Related bill:

Title IX of S. 1762)

Amends the Currency and Foreign T r a n s a c t i o n s Reporting Act

to

(1) r a i s e

t h e dollar a m o u n t in connection with which a report must be f i l e d w i t h

the

G o v e r n m e n t prior to t h e transport of money or monetary instruments o u t o f t h e

U.S.

from $ 5 , 0 0 0 to $ 1 0 , 0 0 0 , (2) make i t illegal to a t t e m p t to c a r r y o u t

a n a m o u n t in excess of $ 1 0 , 0 0 0 a b s e n t the required r e p o r t , (3) a l l o w Treasury

D e p a r t m e n t officials to pay a reward to informants for information which

l e a d s to a recovery of a f i n e , civil penalty

o r f o r f e i t u r e under

the act

whenever t h e a m o u n t of recovery exceeds $ 5 0 , 0 0 0 a n d

(4) i n c r e a s e the

penalties a n d f i n e s f o r failing to f i l e t h e necessary currency reports.

--

Amends t h e Racketeer I n f L u e n c e d ' a n d C o r r u p t Organizations Act to (1) make

criminal violations of the Currency and F o r e i g n Transactions R e p o r t i n g Act

o n e of t h e categories of

criminal a c t s covered by

the definition

of

"racketeering activities."

Adds major violations of t h e CFTR Act

to the

enumerate6 statutes under t h e Federal wiretapping statute.

Introduced Mar.

2 3 , 1 9 8 3 ; referred to Judiciary.

S. 813)

S. 1 1 4 3 (Hawkins) (Related bill:

Conditions U.S. assist-ance to any country t h a t i s a major

producer

of

o p i u m , c o c a , o r marihuana on reductions by t h a t country i n t h e l e v e l s of such

1.ntroduCed Apr. 2 6 , 1 9 8 3 ; referred to Foreign Relations.

production.

S. 1 1 9 2 (Thurmond and Biden)/H.R.

(Rodino) )

2 8 9 4 (Fish) (Related bill:

H.R.

2912

Department o f Justice Appropriation Authorization A c t , FY84.

F o r the

D r u g Enforcement Administration, the Senate b i l l a s passed a u t h o r i z e s $275.6

million.

For Organized C r i m e D r u g E n f o r c e m e n t , a u t h o r i z e s $121.9

million.

H.R. 2 9 1 2 a s reported a u t h o r i z e s $284.5 million for the D E A and $89.9 million

f o r OCDE.

S. I 1 9 2 introduced May 2, 1 9 8 3 ; referred to Judiciary.

'Reported

4.

H.R.

2912

May 1 6 , 1 9 8 3 (without written report).

P a s s e d Senate Aug.

introduced May 4 , 1 9 8 3 ; referred to Judiciary.

Reported May

16

(H.Rept.

98-181).

S. 1 3 4 7 (Percy)/H.R. 2 9 9 2 (Zablocki a n d Broomfield)

International Security a n d Development Cooperation Act

of 1983.

With

respect t o the international narcotics program under t h e Foreign A s s i s t a n c e

AS

r e p o r t e d , both

A c t , authorizes appropriations of $ 5 3 , 0 3 0 , 0 0 0 f o r FY84.

t h e House a n d S e n a t e bills

require t h e President

to suspend a l l U.S.

a s s i s t a n c e t o a n y country when he d e t e r m i n e s that t h e government o f the

country has failed to take a d e q u a t e measures t o prevent

narcotic o r other

d a n g e r o u s d r u g s , produced or processed i l l i c i t l y in such c o u n t r y , from being

smuggled i n t o t h e U.S.

An end of t h e s u s p e n s i o n would r e q u i r e a presidential

determination t h a t the country's government had taken certain

specified

T h e S e n a t e bill

s t e p s , a l o n g with a report t o Congress o n t h e matter.

provides f u r t h e r that C o n g r e s s , through a c o n c u r r e n t r e s o l u t i o n , may

direct

t h e President to suspend a s s i s t a n c e under t h e section.

S.

637 intgoduced

Mar. 1 , 1 9 8 3 ; referred to F o r e i g n Relations.

S. 1 3 4 7 , a c l e a n bill, r e p o r t e d

H.R.

i n lieu of S. 6 3 7 , S. 6 3 8 , S. 7 0 1 , and S. 7 1 4 May 23 (s.Rept. 98-146).

CRS- 9

IB76061

UPDATE-01/20/84

1 8 5 0 introduced Mar. 2 , 1983; r e f e r r e d to F o r e i g n Affairs.

,H.R.

2992, a

Clean bill, introduced in lieu of H.R. 1 8 5 0 May 1 2 , 1983.

R e p o r t e d May

17

(H.Rept. 98-192).

S. 1 7 6 2 (Thurmond and Laxalt)/H.R.

2 0 1 3 , S. 830)

2151

(Fish)

(Related

bills:

H.R.

Comprehensive C r i m e Control Act of 1983. T h e f o l l o w i n g a r e t h e

significant t i t l e s or provisions i n relation to d a n g e r o u s d r u g control:

more

Bail Reform.

(Related bills:

T i t l e I1 of S.

1 1 7 , S.

215,

Title I.

1966 to

(1)

T i t l e I1 of S. 8 3 0 , H.R. 3005).

A m e n d s the B a i l Reform Act of

permit danger t o the community to be considered i n d e t e r m i n i n g whether

to

release a n accused individual pending trial, o r , if r e l e a s e i s a p p r o p r i a t e ,

i n determining conditions for release (2) establish procedures for revocation

of release, a n d contempt-of-court prosecution, for committing a c r i m e while

on release; (3) tighten the criteria for postconviction

r e l e a s e pending

s e n t e n c e s for persons

sentencing a n d a p p e a l ; (4) provide f o r Consecutive

convicted of crimes committed on pretrial r e l e a s e ; and (5) i n c r e a s e penalties

for jumping bail.

Title 11.

Sentencing Reform.

(Related bills:

S. 6 6 6 , T i t l e 11 of

S.

8 3 0 , S. 1182).

Creates a determinate sentencing s y s t e m , with n o parole a n d

limited good time credits.

Establishes a sentencing c o m m i s s i o n , to b e

responsible f o r formulating g u i d e l i n e s t o be used by

t h e courts

in

determining a p p r o p r i a t e sentences.

T i t l e 111.

Exclusion-ary R u l e Reform.

[ R e l a t e d bill:

S. 1 0 1 , S.

17641

Narrows t h e application of the court-made rule requiring

Suppression o f

improperly seized evidence by a l l o w i n g admission where

the Officers making

t h e seizure w e r e proceeding upon a "reasonable, good faith b e l i e f w that they

were acting properly.

n ' c l

e

1

Forfeiture Reform.

(Related bill:

Title I11 o f S.

8 3 0 , S.

9 4 8 , H.R. 3299) Amends both 18 U.S.C. 1963

(a provision

of

t h e Racketeer

Influenced a n d Corrupt Organizations Act) and t h e Controlled

Substances Act

to (1) provide for the criminal- f o r f e i t u r e of t h e proceeds of racketeering o r

drug trafficking a c t i v i t y , (2) establish the sanction o f c r i m i n a l f o r f e i t u r e (3)

i n general f a c i l i t a t e f o r f e i t u r e s i n

f o r all f e l o n y ' d r u g offenses,

drug-related and racketeering c a s e s , and (4) r a i s e t h e Ceiling o n t h e value

fr0.m $ 1 0 , 0 0 0 to $100,000.

of property subject t o administrative forfeiture

--

T i t l e VII.

D r u g Enforcement Amendments.

P a r t A.

Controlled

substance

penalties.

Amends both the Controlled

Substances Act and

t h e Controlled

Substances Import and Export Act t o (1) increase t h e maximum p r i s o n penalties

f o r trafficking in large

(specified) a m o u n t s of a n o p i a t e ,

cocaine,

phencyclidine (PCP), o r LSD; (2) i n c r e a s e the f i n e level for trafficking

in

(3)

i n c r e a s e prison penalt.ies a n d

fines for

a n y controlled substance;

trafficking i n any a m o u n t of most non-narcotic substances in S c h e d u l e s I o r

(4) increase penalties

f o r trafficking i n

I1 (includes LSD and PCP);

permit S t a t e

marihuana i n a m o u n t s ranging from 5 0 to 4 5 4 k i l o g r a m s ; and ( 5 )

and foreign f e l o n y drug convictions to be considered under

t h e enhanced

sentencing provisions for repeat drug offenders.

Part B.

Diversion control amendments.

Among other t h i n g s , (1) provides

for new emergency authority t o bring an uncontrolled

substance, under

temporary c o n t r o l ; (2) increases regulatory a u t h o r i t y of t h e D r u g Enforcement

(e.g.,

e x p a n d s a u t h o r i t y t o revoke o r

Administration over practitioners

'

suspend registrations) ; (3) simplifies practitioner registration r e q u i r e m e n t s

(allowing a 3-year life-span if determined appropriate);

(4)

expands

reporting requirements for drug d i s t r i b u t o r s ; (5) clarifies t h e control of

(6) authorizes

a program

of g r a n t s to S t a t e and l o c a l

i s o m e r s ; and

g o v e r n m e n t s to a s s i s t them i n the suppression o f diversion of controlled

substances from l e g i t i m a t e m e d i c a l , - s c i e n t i f i c , a n d commercial channels.

T i t l e XII.

F o r e i g n Currency TransGztion Amendments.

(Related bill:

S.

902) Amends t h e C u r r e n c y and Foreign Transaction Reporting A c t

to m a k e i t

more difficult to t r a n s f e r o r transport o u t of t h e country

currency derived

from d r u g trafficking.

Specifically, provides f o r payment o f rewards f o r

i n f o r m a t i o n leading t o conviction of money l a u n d e r e r s , establishes

sanctions

f o r "attempted" i l l e g a l currency t r a n s a c t i o n s , and a u t h o r i z e s border s e a r c h e s

related to currency transaction offenses.

T i t l e XIV.

Violent Crime Amendments.

P a r t A.

Extends existing Federal

jurisdiction over c o n t r a c t killings a n d violence

related to racketeering

where travel a c r o s s S t a t e lines i s involved.

Creates sanctions for t h e o f f e n s e of soliciting t h e

P a r t B.

of a c r i m e of violence.

commission

P a r t M.

(Related bill:

H.R. 2643) Amends F e d e r a l extradition

l a w s to

f a c i l i t a t e extradition of t e r r o r i s t s , n a r c o t i c s t r a f f i c k e r s , and o t h e r

international c r i m i n a l s to foreign countries with which

t h e U.S.

has an

extradition treaty.

T i t l e XV.

to warn a n y o n e

authorities.

S e r i o u s Nonviolent Offenses.

P a r t C.

that his property

i s a b o u t t o be

Makes i t

searched

an

by

offense

Federal

T i t l e XVI.

(Related bill:

T i t l e I1 of S. 830) P r o c e d u r a l Amendments.

P a r t A.

Prosecution of certain juveniles a s adults.

Amends

the

juvenile

delinquency chapter of title 1 8 , U.S. C o d e , to lower the a g e a t which certain

violent o r o t h e r w i s e illegal acts would be considered crimes i f committed by

a n a d u l t , and generally modifies provisions t h a t a l l o w for special h a n d l i n g

of juveniles, to e n c o u r a g e adul-t t r e a t m e n t of o f f e n d e r s charged with

crimes

of v i o l e n c e or drug trafficking offenses.

Explicitly a u t h o r i z e s

P a r t F. Witness Security Program improvements.

w i t n e s s relocation a n d protection a n d provides a procedure for handling c i v i l

claims filed a g a i n s t protected witnesses.

S E N A T E BILL A S REPORTED OMITS EXCLUSIONARY R U L E P R O V I S I O N S A S WELL A S

TITLES ARE RENUMBERED

OTHERS T H A T ARE N O T INCLUDED IN T H E ABOVE DIGEST.

ACCORDINGLY.

'

T h e Senate b i l l , S.

8 2 9 , introduced Mar.

1 6 , 1 9 8 3 ; referred t o

Judiciary. S. 1 7 6 2 (clean bill in l i e u of S.

829) reported Aug.

4

(no

written

report).

W r i t t e n report filed by

J u d i c i a r y , Sept.

1 4 , 1983.

(S.Rept. 98-225.)

R e f e r r e d to t h e C o m m i t t e e on F o r e i g n R e l a t i o n s u n t i l Sept.

20, 1 9 8 3 , for t h e p u r p o s e only of considering c e r t a i n a s p e c t s o f part M

of

T i t l e X (relating t o extradition).

Reported to S e n a t e by S e n a t o r P e r c y with

a m e n d m e n t s Sept. 2 0

(no written

report).

P l a c e d on S e n a t e L e g i s l a t i v e

Calendar under G e n e r a l Orders Sept. 20.

Committee on Foreign Relations filed

H.R. 2151 i n t r o d u c e d Maf.

16,

written report Sept. 2 6 , 1 9 8 3 (Rept. 98-241).

1 9 8 3 ; referred to Judiciary.

S. 1 7 6 4 (Thurmond, L a x a l t et al.)

S. 829/H.R. 2151)

(Related bills:

S. 1 0 1 , T i t l e I11 of

Narrows t h e application of t h e court-made r u l e r e q u i r i n g suppression of

improperly seized evidence by allowing a d m i s s i o n where

t h e officers making

t h e seizure were proceeding upon a " r e a s o n a b l e , good f a i t h belief" that t h e y

w e r e a c t i n g properly.

Iri'troduced Aug.

4 , 1 9 8 3 ; r e f e r r e d to Judiciary.

Reported Without amendment Aug. 4 (no written report a s of t h e time of t h i s

update).

S. 1 7 8 7 (Biden et al.)

National Narcotics Act of 1983.

C r e a t e s a n "Office of t h e Director

of

National and International D r u g Operations a n d P o l i c y " , to b e headed

by a

Director and a Deputy Director who a r e appointed by

t h e P r e s i d e n t , by a n d

with the COI?Sent of the Senate. Provides that t h e Director i s authorized

to

(1) d e v e l o p , r e v i e w , i m p l e m e n t , and enforce U.S.

G o v e r n m e n t policy

with

r e s p e c t to illegal d r u g s ; (2) direct and

coordinate a l l U.S.

Government

e f f o r t s to halt the f l o w i n t o , and sale and u s e of i l l e g a l d r u g s within

the

U.S.;

( 3 ) d e v e l o p , i n concert with

the a p p r o p r i a t e g o v e r n m e n t a l e n t i t i e s ,

budgetary priorities and albocatio'ns relating t o control of

illegal d r u g s ;

and (4) coordinate t h e collection and dissemination of information necessary

to i m p l e m e n t government policy With respect to illegal drugs.

Authorizes

a p p r o p r i a t i o n s of $ 5 0 0 , 0 0 0 for F Y 8 4 for carrying o u t t h e act.

Introduced

4.

hug. 4 , 1 9 8 3 ; referred to Judiciary. R e p o r t e d , without a m e n d m e n t , August

Written report filed Oct. 25 ( S - R e p t . 98-278).

(Contents of bill added

by

f l o o r a m e n d m e n t o n Oct. 2 6 , 1 9 8 3 , to H.R. 3 9 5 9 , a supplemental a p p r o p r i a t i o n

bill t h a t passed t h e Senate Oct. 2 7 , 1983. Amendment dropped i n conference.)

HEARINGS

U.S.

Congress.

Control.

House.

S e l e c t Committee on Narcotics A b u s e and

----- Bail reform and narcotics cases.

session.

----- Cocaine:

Wa,shington, U.S.

Hearing, 97th Congress, 1st

Govt. Print. Off., 1981. 1 1 7 p.

a major drug i s s u e of t h e seventies.

Hearings, 9 6 t h C o n g r e s s , 1 s t session.

U.S. Govt. Print. Off., 1980. 1 4 2

6.

Washington,

----- DEA/FBI reorganization.

Washington, U.S.

Hearing, 9 7 t h C o n g r e s s , 2d session.

Govt. Print. Off., 1982.

3 7 p.

----- Federal drug strategy:

C o n g r e s s , 2 6 session.

1 6 4 p.

prospects f o r t h e 1980's. H e a r i n g , 96th

Washington, U.S. Govt. Print. Off., 1980.

----- Federal drug strategy-1981.

session.

W a s h i n g t o n , U.S.

Hearing, 97th Congress, 1st

Govt. Print. Off., 1982.

5 4 p.

----- F i n a n c i a l investigation of drug

trafficking.

1 s t session.

Hearing, 9 7 t h C o n g r e s s ,

W a s h i n g t o n , U.S. Govt. Print. Off.,

1981.

1 5 0 p.

----- Impact of Federal budget c u t s on l o c a l narcotics l a w enforcement.

H e a r i n g , 97th C o n g r e s s , 1 s t session.

99 p.

Off., 1981.

Washington, U.S.

Govt. Print.

----- Investigation of narcotics trafficking proceeds

(Chicago, Ill.).

Washington, U.S.

Hearings, 95th Congress, 1st session.

Govt. Print. Off., 1978. 289 p.

----- Sentencing practices and alternatives in narcotics cases.

97th Congress, 1st' session.

1981. 1 0 8 p.

Washington, U.S.

Hearing,

Govt. Print. Off.,

U.S.

Congress.

Senate.

Committee on Appropriations.

Subcommittee

on S t a t e , Justice, Commerce, the Judiciary, and Related

Agencies.

Federal drug enforcement and supply control efforts.

Hearing, 9 6 t h Congress, 1st session.

Washington, U.S. Govt.

Print. Off., 1980. 325 p.

U.S.

Congress.

Senate. Committee on Government Operations.

Permanent Subcommittee on Investigations.

Illegal narcotics profits.

Hearings, 96th Congress, 1st

session.

December 1979. Washington, U.S. Govt. Print. Off.,

1980. 5 0 7 p.

Hearings . . . 97th C o n g r e s s ,

Washington, U.S. Govt. Print. Off.,

----- International narcotics trafficking.

1st session. November 1981.

1981.

6 3 0 p.

U.S.

Congress.

Senate. Committee on Government Operations.

Subcommittee on Reorganization., Research, and International

Organizations.

He-arings, 9 3 6 C o n g r e s s , 1st session.

April 1973.

2 parts.

Reorganization Plan No. 2 of 1973. Washington,

U.S. Govt. Print. Off., 1973.

U.S.

Congress.

Senate. Committee on the Judiciary.

Subcommittee on Constitutional Rights.

Preventive detention.

Hearings, 9 1 s t Congress, 2d session.

May and June 1970. Washington, U.S. Govt. Print. Off.,

1970. 1 3 5 6 p.

----- Speedy trial.

April 1973.

.-

Hearings, 93d C o n g r e s s , 1st session.

Washington, U.S. Govt. Print. Off., 1973.

U.S.

Congress.

Senate.

Committee o n t h e Judiciary.

Subcommittee on Criminal Justice.

Forfeiture of narcotics

proceeds.

Hearings, 96th Congress, 2d session. W a s h i n g t o n ,

U.S. Govt. Print. Off., 1981. 1 6 5 p.

U.S.

Congress.

Senate.

Committee on t h e Judiciary.

Subcommittee

On Criminal Laws and Procedures. Reform of the Federal

criminal laws.

Hearings; 93d Congress, 2d s e s s i o n , o n S. 1

and S. 1400. Washington, U.S. Govt. Print. Off., 1974.

6805-7672 p.

Part 10--Provisions relating t o complicity, conspiracy,

drugs, government operations, Indians, insanity, intoxication,

jurisdiction, national security, obscenity, and offenses

against the person.

----- Subcommittee on Security and Terrorism.

The Cuban government:^

involvement i n facilitating international drug traffic.

Joint

hearing before the Subcommittee and t h e Subcommittee on Western

Hemisphere Affairs... and t h e Senate Drug Enforcement Caucus,

98th Congress, 1st session. Washington, U.S. Govt. Print. Off.,

1983. 6 8 7 p.

U.S.

Congress.

Senate.

Committee on the Judiciary.

Subcommittee

to Investigate Juvenile Delinquency.

Stopping "mother ships" -- a loophole i n drug enforcement.

Hearing, 95th Congress, 2d s e s s i o n , on S. 3437. Aug. 2 2 , 1978.

Washington, U.S. Govt. Print. Off., 1978.

1 1 8 p.

REPORTS AND CONGRESSIONAL DOCUMENTS

U.S.

Congress. House. Committee on Government Operations.

[ ~ i s ] a ~ ~ r o v iReorganization

ng

Plan No. 2 of 1973 (Drug

Enforcement Administration); report to accompany H.Res. 382.

Washington, U.S. Govt. Print. Off., 1973.

3 0 p.

(93d Congress,

1 s t session.

House.

Report no. 93-228)

----- Military a s s i s t a n c e to civilian narcotics law enforcement:

a n interim report. Washington, U.S. Govt. Print. Off.,

1982. 23 p.

(97th Congress, 2d session. House.

Report

no. 97-921)

U.S.

Congress. House.

Committee on Interstate and Foreign

Commerce.

Comprehensive Drug Abuse Prevention and Control

Act of 1970; report to accompany H.R. 18583. Washington,

U.S. Govt. Print. Off., 1970.

(91st Congress, 2d session.

House.

Report no. 91-1444) 2 parts.

House.

Committee on the Judiciary. Criminal Code Revision Act of

1980. Report t o accompany H.R. 6915. Washington, U.S. Govt.

Print. Off., 1980. 7 5 8 p.

(96th Congress, 2d session. House.

Report no. 96-1396)

U.S.

Congress.

House.

Select Committee on Narcotics Abuse

and Control.

Investigation of narcotics trafficking and

money laundering in Chicago.

Washington, U.S. Govt. Print.

Off., February 1978. 4 3 p.

At head of title:

95th C o n g r e s s , 1 s t session.

Committee

print.

"Serial no. SCNAC-95-1-16"

----- Problems of l a w enforcement and its effort to reduce the

level of drug trafficking i n South Florida. Washington,

U.S. Govt. Print. Off., August 1978. 1 9 p.

At head of title:

95th C o n g r e s s , 2d session.

Committee

print.

"Serial no. SCNAC-95-2-5"

-----

Summary of testimony a n d findings and conclusions

resulting from oversight hearings on narcotic a b u s e and

control; interim report. Washington, U.S. Govt. Print.

(95th Congress, 1st session.

Off., Mar. 1, 1977. 8 7 p.

House.

Report no. 95-32)

U.S.

Congress.

Senate. Committee on Government Operations.

Permanent Subcommittee on Investigations.

Federal narcotics

e n f o r c e m e n t ; interim report.

Washington, U.S. Govt. Print. Off.,

1976. 1 9 1 p.

(94th C o n g r e s s , 2d session. Senate.

Report no.

94-1039)

----- I l l e g a l narcotics profits.

Off., 1 9 8 0 1 4 4 p.

Report no. 96-887):'

Washington, U.S. Govt. P r i n t

(96th C o n g r e s s , 2d session.

Senate

U.S.

Congress.

Senate. C o m m i t t e e on Government Operations.

S u b c o m m i t t e e o n Reorganization, R e s e a r c h , and International

Organizations. Reorganization Plan No. 2 , establishing a

D r u g Enforcement Administration i n t h e D e p a r t m e n t ' o f Justice.

W a s h i n g t o n , U.S. Govt. Print. Off., 1973.

5 8 p.

(93d C o n g r e s s ,

1 s t session.

Senate.

R e p o r t no. 93-469)

U.S.

Congress.

Senate. C o m m i t t e e on the Judiciary.

Controlled

D a n g e r o u s Substances Act of 1 9 6 9 ; r e p o r t to a c c o m p a n y S. 3246.

(91st C o n g r e s s ,

W a s h i n g t o n , U.S. Govt. Print. Off., 1969. 1 6 5 p.

1st session. Senate. R e p o r t no. 91-613)

-

U.S.

Congress.

Senate.

C o m m i t t e e o n the Judiciary.

Criminal

Code Reform Act of 1 9 7 9 ; report to accompany S. 1722.

Washington, U.S. Govt. Print.. Off., 1980. 1 5 0 7 p.

(96th C o n g r e s s , 2d session. Senate. Report no. 96-553)

----- C r i m i n a l C o d e Reform Act of 1 9 8 1 ; report to a c c o m p a n y S. 1630.

Washington, U.S. Govt. Print. Off., 1982. 1 5 6 9 p.

(97th C o n g r e s s , 1st session.

Senate. Report no. 97-307)

----- National Narcotics Act of 1 9 8 3 ; report

Washington, U.S. Govt. Print. Off., 1983.

1 s t session. Senate R e p o r t no. 98-278)

to a c c o m p a n y S. 1787.

6 3 p.

(98th C o n g r e s s ,

CHRONOLOGY OF E V E N T S

09/15/83

-- T h e House Subcommittee o n C r i m e approved a clean bill

to amend Title I1 of the D r u g Abuse O f f i c e a n d

T r e a t m e n t Act for t h e purpose of recreating t h e

O f f i c e of Drug A b u s e Policy i n the

E x e c u t i v e O f f i c e of t h e P r e s i d e n t (subsequently introduced

a s H.R. 4028).

Deputy D i r e c t o r s both f o r D r u g

Enforcement and f o r Drug Abuse P r e v e n t i o n would be

appointed under t h e bill's provisions.

An a m e n d m e n t a c c e p t e d

i n subcommittee mark-up would a l l o w t h e P r e s i d e n t to name

t h e vice President a s Director.

08/04/83

-- An altered version of t h e Administration o m n i b u s c r i m e

c o n t r o l bill w a s reported b y the S e n a t e J u d i c i a r y C o m m i t t e e

( S . 1762).

T h e clean bill o m i t s some of t h e more

controversial t i t l e s of the original p r o p o s a l , such a s t h o s e

dealing with the Exclusionary r u l e and H a b e a s Corpus.

Separate

bills concerning t h e ommitted matter, a s w e l l a s one t h a t

would establish a "drug czar" o f f i c e , w e r e a l s o reported.

03/23/83

-- T h e White House announced t h e creation of a n e w drug

interdiction g r o u p headed by Vice-president

George

Bush.

T o be known a s t h e National Narcotics Border

Interdiction System (NNBIS) , i t will c o o r d i n a t e

t h e work of F e d e r a l a g e n c i e s with responsibilities

f o r interdiction of sea-borne, air-borne and

a ~ r ~ s s - b ~ r dimportation

er

of narcotics and o t h e r

principally t h e Customs S e r v i c e , the

dangerous drugs

Coast Guard:, and t h e armed services.

--

03/16/83

- - T h e Administration's omnibus c r i m e control b i l l w a s

introduced i n both S e n a t e and H o u s e (S. 829/H.R. 2151).

An alternative bill w a s introduced by a g r o u p of

Senate D e m o c r a t s , led by members of the J u d i c i a r y

Committee (S. 830).

01/14/83

-- President Reagan withheld his a p p r o v a i of H.R.

12/20/82

-- A scaled-down version of t h e Violent C r i m e and D r u g

3963,

thus exercising a pocket veto.

H e was especially critical

of a provision establishing a " d r u g czar" o f f i c e t o

coordinate Federal drug law enforcement, and of t h e

a b s e n c e of provisions dealing with certain major

crime and drug control problems.

Enforcement Improvement Act

for the President.

i0/14/82

(H.R. 3963) was cleared

-- President Reagan announced a major new drive a g a i n s t

illicit drug trafficking. . T h e program i n v o l v e s

creation o f - 1 2 regional task f o r c e s and will reportedly

require the hiring of 1 , 2 0 0 n e w investigators and

prosecutors.

09/30/82

-- T h e Senate passed S. 2 5 7 2 , the Violent Crime a n d

D r u g Enforcement Improvement Act a n d added t h e bill's

contents to H.R. 3 9 6 3 , which was a l s o passed a n d

returned to the House.

09/03/82

-- T h e President approved the T a x Equity and F i s c a l

Responsibility A c t , which contains provisions designed

. t o remove impediments to Internal Revenue S e r v i c e

cooperation with other Federal l a w enforcement agencies.

T h e changes a r e considered to be of special s i g n i f i c a n c e

i n relation to F e d e r a l efforts t o c u r b illicit drug

traffic.

05/26/82

-- An omnibus c r i m e and drug c o n t r o l bill (S. 2572/H.R.

6497) was introduced in both t h e S e n a t e and t h e

House.

Sponsored by a number of committee c h a i r m e n and

ranking minority Members, t h e S e n a t e bill w a s placed

directly o n t h e calendar.

05/21/82

-- T h e National Narcotics I n t e l l i g e n c e Consumers C o m m i t t e e

(NNICC) released i t s r e p o r t on d r u g trafficking i n

1980.

T h e r e t a i l v a l u e of drugs supplied to t h e

illicit U.S. market i n 1 9 8 0 w a s in the r a n g e of $ 7 9

billion, according t o t h e r e p o r t , u p from $ 6 5 billion

i n 1979.

I n c r e a s e s i n estimated c o c a i n e a n d marihuana

imports accounted for most of t h e d i f f e r e n c e i n t h e

totals for the two years.

_

President Reagan announced the establishment of a

special task f o r c e to combat illicit drug t r a f f i c i n

South Florida.

Composed of o f f i c i a l s from a n u m b e r

of Federal a.gencies, t o work with S t a t e and

local a u t h o r i t i e s , the task f o r c e w a s placed under

the directi-on of Vice President Bush.

T h e Attorney General announced that t h e FBI had been

given concurrent jurisdiction with t h e D r u g Enforcement

Agency (DEA) over t h e investigation of violations of

Federal dangerous drug laws.

T h e D E A Administrator will

report to the Attorney General through t h e F B I Director.

The President signed P.L. 9 7 - 8 6 , which contains a provision

authorizing certain k i n d s of cooperation by the Armed S e r v i c e s

with civilian law enforcement a u t h o r i t i e s for specific

purposes, including drug l a w enforcement.

T h e f i n a l r e p o r t o f - t h e Attorney G e n e r a l ' s Task F o r c e

on Violent Crime was released.

The report

emphasizes t h e seriousness of i l l i c i t drug traffic and

the i m p o r t a n c e of a clear and c o n s i s t e n t enforcement

policy.

Recommendations included support of t h e use

of herbicides for drug crop e r a d i c a t i o n , support for

the u s e of military resources f o r drug i n t e r d i c t i o n ,

and c a l l s f o r changes in l a w and practice with respect

to bail, s e n t e n c i n g , and exclusion of evidence.

The J u s t i c e Department announced chat t h e FBI's chief

investigator of organized c r i m e , F r a n c i s M. (Bud)

Mullen Jr., would b e named a c t i n g administrator of t h e

Drug Enforcement Admi-nistration.

DEA Administrator Peter B. Bensinger confirmed t h a t

he would l e a v e office July 1 0 a t t h e r e q u e s t of t h e

Administration.

House Judiciary Committee reported H.R.

the criminal c o d e revision bill.

01/17/80

6915,

-- T h e S e n a t e Judiciary committee reported

S. 1 7 2 2 , a bill f o r reform of t h e F e d e r a l Criminal

Code.

01/30/78

-- Senate passed S. 1 4 3 7 , a m e n d e d , a bill for reform

of t h e Federal Criminal Code.

08/02/77

-- Congress received Presidential m e s s a g e o n drug

abuse announcing general policy e m p h a s e s , the

outline of a forthcoming Administration narcotics

trafficking control bill, and s u p p o r t for t h e

concept of Federal "decriminalization" o f possession

of small a m o u n t s of marihuana ( H - D o c . 95-200).

07/29/76

-- House voted t o establish t h e S e l e c t C o m m i t t e e o n

Narcotics Abuse a n d C o n t r o l , charged with conducting

a general investigation of F e d e r a l drug a b u s e

c o n t r o l efforts and with making r e c o m m e n d a t i o n s for

a p p r o p r i a t e a c t i o n t o the standing c o m m i t t e e s with

r e l e v a n t jurisdiction.

07/01/73

-- T h e Bureau of Narcotics and D a n g e r o u s D r u g s and several

o t h e r agenc-ies w e r e merged i n t o t h e D r u g Enforcement

Administration, by Reorganization P l a n No.. 2 of 1973.

T h e n e w agency absorbed a number of C u s t o m s Bureau

officials.

02/07/72

-- P r e s i d e n t signed t h e Foreign A s s i s t a n c e Act of 1 9 7 1

(P.L. 92-22,6), which contained a provision establishing

a program of a s s i s t a n c e designed to e n c o u r a g e

international narcotics control.

10/27/70

-- P r e s i d e n t signed t h e Comprehensive Drug Abuse Prevention

a n d Control Act of 1 9 7 0 , a n o m n i b u s bill containing

t h e Controlled Substances Act, which consolidated and

r e v i s e d the Federal narcotics a n d d a n g e r o u s drug c o n t r o l

laws.

04/08/68

-- T h e Federal Bureau of Narcotics (Treasury Department)

a n d the Bureau of D r u g Abuse Control (HEW) w e r e merged

i n t o a new agency i n the J u s t i c e D e p a r t m e n t , t h e

B u r e a u . o f Narcotics and D a n g e r o u s Drugs.

ADDITIONAL R E F E R E N C E SOURCES

Bonnie, R i c h a r d J. Marijuana u s e and criminal sanctions.

C h a r l o t t e s v i l l e , the Michie C o m p a n y , 1980.

2 6 4 p.

Drug.s i n America.

A social history:

1800-1980.

M o r g a n , H. Wayne.

S y r a c u s e , N.Y., Syracuse University p r e s s , 1981.

233 p.

National Task F o r c e on Cannabis Regulation.

The regulation and

taxation o f cannabis commerce.

[?] D e c e m b e r 1982. 64 p.

Research T r i a n g l e Institute.

D r u g u s e and crime:

r e p o r t of t h e panel o n

drug u s e and criminal behavior.

Washington, U.S. D e p a r t m e n t of

C o m m e r c e , September 1976.

5 6 1 p.

(Prepared f o r t h e National

Institute o n Drug Abuse; reproduced by t h e National Technical

Information Service under series number P B - 2 5 9 1 6 7 ) (LRS76-17535)

U.S.

D e p a r t m e n t of Justice.

Attorney G e n e r a l l s Task F o r c e o n

Violent Crime. Final report.

Washington, U.S. Govt. Print.

Off., A u ~ . 1 7 , 1981. 94 p.

U.S.

General Accounting Office.

Drug c o n t r o l i n South America

having l i m i t e d success--some progress but problems a r e

f o r m i d a b l e ; report to t h e Congress by t h e Comptroller

General o f t h e United States.

[ W a s h i n g t o n ] 1978.

3 7 p.

"GGD-78-45, Mar. 2 9 , 1 9 7 8 " (LRS78-5366)

----- Federal d r u g interdiction efforts need strong c e n t r a l o v e r s i g h t ;

report t o t h e Congress by t h e Comptroller G e n e r a l of the

United States.

[ w a s h i n g t o n ] 1983.

1 3 6 p.

"GGD-83-52"

----- Gains m a d e i n controlling i l l e g a l drugs, y e t t h e drug t r a d e

f l o u r i s h e s ; report to the Congress by the C o m p t r o l l e r General

of t h e United States.

[ W a s h i n g t o n ] 1979.

(GGD-80-4).

2 1 4 p.

U.S.

Library of Congress.

Congressional Research Service.

Asian drug trade:

implications f o r

U.S. f o r e i g n policy [ b y ] Marjorie Niehaus.

[Washington]

Aug. 1 1 , 1983. 1 6 p.

IB83138

----- Coordination of Federal Efforts t o Control I l l i c i t D r u g T r a f f i c

[ b y ] Harry Hogan.

[ W a s h i n g t o n ] Oct. 2 4 , 1983.

IB83168

Federal laws relating to the c o n t r o l of narcotics

and o t h e r dangerous d r u g s , enacted

1961-1981; brief summaries [ b y ] Harry Hogan.

[Washington]

Sept. 9 , 1982.

2 9 p.

C R S Report 8 2 - 1 4 8 Gov

-

----- F e d e r a l Controlled Substances Act (Titles I1 a n d 1 1 1 , P.L.

91-513):

summary a n d legislative history [ b y ] Harry Hogan.

[ ~ a s h i n g t o n ]April 9 , 1980.

7 6 p.

C R S Report 9 0 - 7 4 EPW

U.S.

U.S.

-

National Narcotics Intelligence Consumers Committee.

Narcotics intelligence estimate.

T h e supply o f d r u g s to

the U.S. i l l i c i t market from f o r e i g n a n d d o m e s t i c sources.

Washington w rug Enforcement Administration] 1978 + (annually)

O f f i c e of Drug Abuse Policy.

Border management and

interdiction:

a n interagency review.

[Washington]

Sept. 7 , 1977.

5 9 p. plus appendices.

----- International narcotics control policy.

March 1978.

[Washington]

9 5 p.

----- Supply control:

d r u g l a w enforcement; a n interagency review.

[ w a s h i n g t o n ] December 1977.

6 1 p. + appendices.

U.S.

P r e s i d e n t ' s D o m e s t i c Council.

D r u g Abuse Task Force.

W h i t e paper on drug abuse. R e p o r t to the President...

Washington, U.S. Govt. Print. Off., September 1975.

1 1 6 p.

U.S.

President. O f f i c e of Policy Development.

D r u g Abuse Policy Office.

F e d e r a l strategy f o r prevention o f drug

a b u s e a n d drug trafficking, 1982.

Washington, U.S.

Govt. Print. Off., 1982.

7 5 p.