HARM MINIMISATION - A MULTI-LEVEL DRUG STRATEGY

This address was given to The 'City of Melbourne - Community Forum on
Illegal Drugs' at the Melbourne Town Hall on Tuesday 31 March, 1998

I am pleased and honored to be here today to contribute to the City of
Melbourne Community Forum on illegal drugs.

Victoria Police offers on-going support for the Drugs Action Plan for
Melbourne, which involves the development of effective partnerships and
networks amongst all parties who are affected by, and are addressing, drug
trafficking and drug use issues.

We are at a very critical time in our development as a community, and a
significant challenge facing police is the interpretation of the
enforcement role in the context of Harm Minimisation for both licit and
illicit drugs. It is also important that we effectively communicate this
role with other groups also tasked with reducing the harm to drug users.

In December 1997, the Interim Report of the Drug Crime Prevention
(Parliamentary) Committtee in relation to an Inquiry into the Victorian
Government's Drug Reform Strategy, Turning the Tide, was released.

Concerning Harm Reduction and the policing role, the Committee's report
notes that...law enforcement is an integral aspect of a harm-reduction
approach to the drug problem. The harms caused by drug abuse are
substantially reduced by the the effective enforcement of laws that both
tackle supply and demand.

Victoria Police recognises this critical harm reduction component which is
aimed strongly at drug traffickers. These people are dealing in a product
which now kills more Victorians every year than deaths related to alcohol
on Victorian roads.

Victoria Police makes no apology for focusing on these illicit drug
cultivators, manufacturers and traffickers. Recent figures show that we
have dealt with thirty per cent more charges in relation to these
trafficking offences, compared with the same time last year.

There has been a great deal of discussion concerning the law enforcement
reponse to drugs, and the Force had often been accused of adopting a Zero
Tolerance approach.

Let me say at the outset, Zero Tolerance is not representative of the
Victoria Police response to drug use. The term Zero Tolerance is
sensationalist and misleading. Victoria Police bases its appoach on problem
solving through partnerships with the community and relevant organisations.

At no stage has there been any intention to remove the ligitimate use of
discretion by members of Victoria Police, although there is a recognition
there are occasions when rigorous enforcement is the appropriate tool in
all the circumstances.

Where intelligence identifies areas where a saturation of police resources
is appropriate, firm action must be taken. This will often be in response
to customer needs, such as shopkeepers and other members of the community,
whose perception of safety is being damaged by drug trafficking activity.
Such a concern was a factor in the initiation of `Operation Laurel`.

`Operation Laural', a program which targeted the Dandenong and Springvale
areas, has often incorrectly been described as an example of Zero Tolerance
policing. This is not a fair representation of the program.

Operation Laurel was established following intelligence probes by the Crime
Department and General Policing units which identified that these
communities were being severely affected by heroin-driven crime.

In order to implement the operation, local police resources were
supplemented with additional mambers from several other areas of the Force
tasked to target specific criminal acts and anti-social behaviour.

The specific aims of `Operation Laurel' were to significantly reduce
illicit drug dealing, associated crime and street offences by proactive
police activity in high crime areas.

The operation adopted a problem oriented policing approach, to identify the
issures that needed to be addressed. This resulted in strategies that
included utilising high visibility and a high level of interaction with the
public. At no stage was the power to use discretion removed from police.

Community satisfaction to date, based on feedback from letters received,
and from representatives of local government and community agencies, has
been high.

While law enforcement is the major focus of Victoria Police, we are acutely
aware that this alone will not adequately address the multi-faceted nature
of drug use activity.

Strategies, which incorporate law enforcement, legislative reviews and
other areas such as education, research, public health and social justice,
are far more effective and long term.

These programs must be aimed at stopping young people wanting to experiment
with drugs, and divert users from the criminal justice system into
assessment and treatment programs to remove them from the drug scene. This
is not lip service-the Cannibis Warning Program Pilot Project, which I will
discuss shortly, is an example of our commitment to exploring alternative
sanctions.

It is important there is a common understanding between agencies regarding
our relative roles in the interpretation of the term Harm Minimisation, and
I welcome this opportunity to explain the police approach.

Victoria Police uses the definition based on the National and Victorian
Drug Strategies.

As you would all be aware, Harm minimisation has been the official aim of
the Federal and State Governments since the launch of the National Campaign
Against Drug Abuse in 1985.

Harm Minimisation is not about 'going soft on drugs'. Also, it should not
be confused with drug legalisation - and let me take this opportunity to
say that I do not favour legalisation or decriminalisation as being
realistic options in the drug debate.

Health experts are divided as to the likely outcomes of adopting this
course, and to take this aproach would be to play a very dangerous game of
social experimentation where the potential losers are likey to be our
younger generation. The drug situation is serious enough without adoping a
risky, unproven course of action. The drug situation must be tackled in a
logical and strategic way.

Victoria Police recognises that we live in a drug-taking society. Drug use
occurs on a continuum with many levels, from total abstinence to high
levels of misuse which can lead to death. Harm Minimisation involves
applying strategies that keep the undesirable consequences of drug use at
the lower end of the harm scale.

The National Drug Strategy describes three broad activities involved in
Harm Minimisation. The activity at what is often considered to be the law
enforcement end of the continuum is Supply Control-which aims to prevent or
reduce inappropriate access to drugs, primarily through regulation,
legislation and law inforcement.

However, Victoria Police also has a role in the other two areas-Demand
Reduction-which aims at reducing use of drugs through strategies such as
public or specific group education, and Problem Prevention or Risk
Reduction-which aims to directly precent or reduce specific problems
associated with drug use. In relation to illicit drugs, enforcement at the
supply control end of the Harm Minimisation continuum is being addressed by
appropriate strategies, aimed particularly at drug traffickers.

Victoria Police drug enforcement efforts have been most effective in those
areas where the factors are local in nature. For example, the Force has
been very successful in locating and eradicating clandestine laboratories
thereby attacking the amphetamin problem. Heroin, which is mainly
manufactured in South East Asia and comes to Victoria through Sydney,
continues to be readily available and is the illicit drug causing
increasing concern. The quality and quantity of this drug is increasing on
the streets and Victoria can do little to exercise control at the local
level over the importation of this and other drugs.

To address this at the national level, Victoria Police is a contributor to
the development of a National Heroin Supply Reduction Strategy. This
strategy complements the Prime Minister's Tough on Drugs initiative, the
position taken by the Council of Australian Governments at its 7 November
1997 meeting and the Draft National Drug Strategy Framework.

I was pleased to note the announcement by the Prime Minister on 17 March of
the second instalment of the "Tough on Drugs" strategy worth in excess of
$100 million over four years. I particularly welcome those strategiesw
aimed at attacking organised crime links with large scale heroin
trafficking, in addition to other processes aimed at supply and demand
reduction.

Under the same launch, I also note that Associate Profesor Margaret
Hamilton has been nominated a member of the Australian National Council on
Drugs. The Council now has the onerous task of representing a wide range of
non-government organisations and individuals working in the drug field, and
communicating independent stratiegic advice to Ministers in relation to the
drug strategy. I wish the Council and Associate Professor Hamilton well in
this demanding role.

At the local level, the primary police role in this aspect of Harm
Minimisation is to enforce legislation limiting the availability and use of
illicit drugs. From a supply perspective, this involves invcestigating,
detecting, apprehending and prosecuting illicit drug produsers and
traffickers, and removing the incentive for this behaviour through
confiscation of profits. In a similar way, legislative enforcement is
designed to reduce demand by deterring or controlling the circumstances of
drug use.

The Force considers drugs users to be victims rather than promary
offenders, while recognising that often enforcement action has to be taken
for health and welfare reasons.

We have clear policies in relation to needle exchanges, conducting
community drug lectures, alcohol in the workplace, and Operating Procedures
relating to the reporting of drug offences, handling of drugs and procedure
regarding illicit drug laboratories.

The policy in relation to needle exchanges states that members should not
carry out any unwarranted patrols or person checks in the vicinity of
needle exchange centres...(and)...are asked to use discretion and common
sense in relation to police activity around known needle exchange centres.

This policy is currently being expanded to include all types of needle
exchanges, and address broader needle and syringe disposal issues.

I have recently approved policy in relation to the police role at drug
overdose situations. As I have said earlier, our important role in supply
reduction is aimed at drug suppliers rather than drug users, so that in
overdose situations the enforcement of possesssion laws is limited to
exceptional cases only.

The policy advises members that before pursuing any investigation for "use
and possess" offences at incidents of non-fatal overdose, members should
consider whether this action is in the best interest of the community. This
action may have the effect of removing fear of prosecution and encourage
people at incidents of overdose to call an ambulance without delay.

Victoria Police has also facilitated a large number of projects form
funding provided by the Victorian Law Enforcement Drug Fund. Significant
projects developed include drug education training for Police Involvement
personnel, and the development of the Victoria Police Drug Guide.

A number of projects have been developed to assist the Crime Department
especially in relation to targeting drug traffickers. Other projects have
had a strong community focus, such as the Warrandyte Youth/Community Drugs
Project, and the Gippsland Anti-Violence Project.

Victoria Police is represented on a wide range of national and state
committees, such as the National Drug Strategy Committee and the Senior
Officers Coordinating Committee, which are directly involved with
developing strategic policy with a Harm Minimisation basis.

Under Turning the Tide, the State Government response to the Report of the
Premier's Drug Advisory Council, Victoria Police obtained funding for a
wide range of proactive and enforcement oriented initiatives.

A Harm Minimisation Liaison project officer has been appointed with tasks
that include undertaking a comprehensive review and planning the future
direction of the Victoria Police Drug Strategy, and developing harm
minimisation approaches within the Force.

A Drugs Trends Researcher and two Drug Education Trainers were appointed in
May 1997. The Drugs Trends Researcher is examining changes at the user,
manufacturing,trafficking and importation levels to enable better targeted
operations by operational areas such as the Drug Squad. This project os
linked with the Department of Justice database project and the Chemical
Drugs Intelligence Preject at the Victoria Forensic Science Centre, and
qualitative and quantitative information collated form a wide range of
sources will provide useful strategic information for all government
departments and the community.

The Drug Education Traineers involved with Harm Minimisation training of
police are aiming to increase the knowledge and awareness of all police
trainers, and subsequently all members, on drug and alcohol isues. The
theme of this project os to ensure all members of Victoria Police have an
understanding of Harm Minimisation as it applies to their role in policing.

Victoria Police had initiated a number of unfunded projects which
complement Turning the Tide. These include the Cannabis Warning Project,
being trialled in Broadmeadows. This project is an example of our
committment to developing best pratice projects and exploring alternative
sanctions. It demonstrates our willingness to embrace change in a
controlled and strategic way.

The project aims to refer adult offenders at the minor end of the drug
using scale to appropriate programs and referrals, and aid Harm
Minimisation by reducing their involvement with the criminal justice system.

It is important to recognise that Victoria Police has had the option of
cautioning children in relation to all offences, including drag matters,
prior to this project. The pilot extends this to adults, in a similar
manner to the Shop Stealing Warning Program, and is being evaluated to
establish whether it should be extended state wide or to other drug types.
When I receive the evaluation, a thorough assessment will be made to
determine issues and options with extending the program.

I strongly believe that enforcement is an important and complementary
component of a Harm Minimisation response to drugs. That is not to say
there will never be conflict between the law enforcement role and those
whose main focus is in regard to the other equally important health
orientated areas such as treatment, particularly in the area of illicit
drugs.

There will be occasions when the two roles seem to be at cross purposes.
When these situations occur, it is important that communication channels
are kept open. Many issues can be resolved at the ground level by adopting
a partnership approach.

There are many departments and agencies involved in dealing with the harms
caused by illicit drugs. Many of you here are involved in referral and
support services: I invite you to communicate with police working in your
area. Police dealing with drug users often have the need for specialised
advice. If you can offer services and provide a contact point, please
liaise with police. There is always scope for a greater co-ordination of
efforts by all stake holders to comprehensively address the illicit drug
problem in all its manifestations.

Where there is a total partnership, where communication channels are kept
open, and where all parties, pursuing the goals of Harm Minimisation
recognise the importance of each other's role, the potential for conflict
can be minimised and ultimately eliminated.