National Amphetamine-Type Stimulant Strategy Background Paper: Monograph Series No. 69
6.8 Multilateral approaches
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In recent years, a focus on policing the supply of precursor chemicals has shifted towards a pluralised approach, whereby the responsibility for chemical diversion is dispersed among many different agencies and community groups (McKetin et al., 2005). Support for partnerships was expressed in the consultations, with a view that states and territories are developing good linkages, and effective strategic and operational initiatives. The National Precursor Working Group was seen as an important body for legislation and strategic planning involving precursors, pill presses and other apparatus, and the application of the model criminal code. Project Stop was recognised as a good example of how coordinating policy across the country and in consultation with the pharmaceutical industry can effect change.
In most discussions at consultations on best practice for ATS precursor diversion, it was noted that there are limitations to intervening on ATS proliferation via precursor strategies alone. Given the resourcefulness of organised crime groups, some research has argued that the effects of interrupting the supply of precursors (such as an escalation of street price, a reduction in violent crime and drug arrests) were only temporary and lacked any lasting deterrence (Cunningham & Liu, 2005).
A key focus of reducing supply is that of the cross-section between criminalising illicit precursors, and regulating the legitimate market of drugs and equipment in which precursors are found (Cherney et al., 2005). This double supply side presents a unique challenge to law enforcement. Increasingly, criminal markets have turned to other outlets, whereby legal drugs and equipment are obtained through pharmacies and other outlets (such as ‘pseudo runs’) (McKetin et al., 2005). There has been a focus on enhancing industry partnership approaches to respond to the threat of precursor chemicals. Such partnerships yield several benefits and advantages in the pursuit of the control of licit and illicit ATS precursor chemicals, including:
- The ongoing monitoring and supervision of licit chemical sales, frees police and law enforcement to undertake investigations into larger illicit operations and known ‘pseudorunners’;
- Police resources can be better targeted to known problem areas, with less time taken to having a street-level presence;
- A more streamlined approach across the private sector (from supermarkets, to pharmacies, to production plants) can be maintained with set industry standards which has legislative backing; and
- Partnerships with local companies and those in the industry are better fostered and involved in the process of regulating precursor chemicals and can also assist in the investigation and prosecution of illicit precursor trade (Ministerial Council on Drug Strategy Joint Communiqué 2007).
- The ACC’s Response to the Production and Distribution of Amphetamines and Other Synthetic Drugs measure will improve illicit drugs information and intelligence, and investigate organised crime drug distribution networks and methodologies to assist in mitigating the risk of emerging illicit drug trends;
- The ACC’s National Illicit Drug Strategy: Enhanced Technical Capability (Additional Funding) measure will enhance capacity for telecommunication and data interception capacity, which will assist the targeting and disruption of serious and organised criminal groups and individuals involved in the manufacture, importation and distribution of illicit drugs;
- The AFP’s Amphetamine-Type Stimulants Enhanced Investigative Capacity measure will enhance the Australian Federal Police’s capacity to pursue amphetamine-type stimulants investigation work by establishing a team with the skills, training, capacity and equipment to be rapidly deployed anywhere in Australia or the Asia Pacific region at short notice to investigate significant amphetamine-type stimulant-related offences;
- The AFP’s Expansion of the International Liaison Officer Network measure will increase the flow of criminal intelligence and the number of joint operations with foreign police agencies concerning the production and trafficking of amphetamine-type stimulants;
- Customs’ Expansion of Reference Spectral Libraries, Upgrade of Spectroscopic Detection Fleet, and Installation of Portable Fumehoods at Container Examination Facilities measure will enhance detection of methamphetamine, other synthetic drugs and their precursors at the Australian border; and
- The Australian Institute of Criminology’s DUMA Expansion measure will add two new sites to collect data from police detainees in Melbourne and Darwin to further improve the Government’s evidence base and understanding of ATS markets, offenders’ use and treatment needs.
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Many of the initiatives identified above address some of the concerns raised during the consultations about the capacity of law enforcement agencies to deal with issues of supply and distribution effectively using proactive and reactive law enforcement strategies. The consultations also emphasised the need for State and Territory law enforcement agencies to know which strategies (or combination of strategies), are likely to be most effective in reducing supply and distribution.
The $18.8 million anti-drug strategy announced by the Premier of New South Wales (NSW) in March 2001 is one of a number of examples of Australian State and Territory jurisdictions tackling drugs and drug related crime that go beyond interdiction and precursor controls at a national level. The strategy was a whole-of- government response incorporating proactive and reactive interventions through legislative change, targeted street and frontline policing and other initiatives around prevention, intervention, enforcement and treatment. Although other areas of the state received funding from the strategy, Cabramatta, within the NSW police statistical division of Fairfield-Liverpool, was the focus for the main thrusts of the strategy.
Table 6.7: Examples of State and Territory law enforcement initiatives
NSW
The NSW Government’s dedicated Drug Budget for 2003/04-2006/07 includes specific funding for the Bureau of Crime Statistics and Research to conduct special research into drug crime trends including those emerging such as crystal methamphetamine and methamphetamines.
Illicit Drug Monitoring Group – an expert group established to monitor and advise the NSW Government on emerging drug trends.
South Australia
Designer Drug Early Warning System (D2EWS) - The system monitors the incidence and clinical effects of intoxicating substances at Royal Adelaide Hospital Emergency Departments. The primary objective of the D2EWS is to determine the range of drug use patterns that result in admission to Emergency Departments.
The initiative is used to inform operational police of local illicit drug trends and will enable the development and implementation of timely prevention and intervention strategies in line with the changing picture of substance misuse that have potentially fatal consequences. This is a collaborative project between the Royal Adelaide Hospital Emergency Department, the Drug and Alcohol Service of South Australia and Forensic Science South Australia.
In 2005, DUMA’s Amphetamine Bulletin was disseminated across Adelaide POL and government. The Bulletin highlighted the prevalence of methamphetamine use amongst detainees in the two South Australian DUMA sites. DUMA information is also used for policy development.
QLD
The joint Crime and Misconduct Commission and Queensland Health Amphetamines in Queensland Research Project is being replicated. The first research study was undertaken in 2002. The study details findings about amphetamine users and their health problems and will guide the development and delivery of Queensland Health programs.
NT
The Northern Territory Police facilitated the Drug Use Monitoring Australia (DUMA) data collection conducted by the Australian Institute of Criminology during 2006. The Data will be used to assist in policy development and a possible change in legislation to reschedule amphetamines.
Tasmania
Tasmania Police has established partnerships with transport operators to raise awareness, detect and disrupt the importation of precursors and controlled drugs into Tasmania.
Source: Ministerial Council on Drug Strategy Joint Communiqué 16th May 2007 ‘NATIONAL LEADERSHIP FORUM ON ICE – COMPENDIUM OF JURISDICTIONAL ACHIEVEMENTS’ http://www.nationaldrugstrategy.gov.au/internet/drugstrategy/publishing.nsf/Content/mcds-16may07-communique
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Frontline reactive strategies concurrent with the development of inter-agency partnerships and legislative change included the establishment of strike forces to tackle gang crime; boosting police numbers to increase detection and the visible presence of police on the streets; coordinating frontline intelligence; improving recruitment strategies and training opportunities; strengthening information technology, including data base capacity and activities; and implementing initiatives to strengthen relationships with community groups and young people. Early reports were encouraging. According to the NSW Bureau of Crime Statistics and Research (Chilvers et al., 2002), there was a reduction in the following crimes thought to be drug related in Cabramatta between January 2000 and December 2001:
- Motor vehicle theft decreased by 37%;
- Stealing from motor vehicle decreased by 24.8%;
- Robbery with a weapon other than a firearm decreased by 7.1%;
- Robbery without a weapon decreased by 4.9%; and,
- Weapons offences in general decreased by 19.2%.
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International collaborations
The AFP has an extensive network of out-posted AFP Liaison Officers in 28 countries and collaborates with international partners through a range of mechanisms. This includes the activities of the Law Enforcement Co-operation Program (LECP), which focuses on building partnerships with overseas law enforcement agencies and the provision of precursor and clandestine laboratory investigative assistance to international police agencies. The AFP has also signed Memoranda of Understanding (MoUs) on Combating Transnational Crime and Enhancing Cooperation with various international law enforcement agencies.Australian Customs uses its network of international representatives to progress policy and operational initiatives in relation to ATS and their precursors. Australia has bilateral agreements with a number of overseas Customs administrations to enhance the exchange of information related to Customs activities including ATS-related matters. Customs provided illicit drug and explosive precursor detection and handling training to Indonesia Customs in 2005 and other law enforcement agencies in Malaysia and Philippines during 2006.
Project PRISM is an international project aimed at preventing the diversion of chemical precursors used in the manufacture of ATS. The International Narcotics Control Board of the United Nations coordinates the project and Customs is the central national authority for Australia’s participation. Customs is also a member of the Project PRISM Task Force, the governing body of the Project. In this capacity, Customs acts as the regional focal point for Oceania.
The South Pacific Precursor Control Forum (SPPCF) was initiated by Australia in 2007. It aims to contribute to preventing the manufacture of ATS and the diversion of precursor chemicals into illicit drug manufacture in the Pacific region. An agreement was reached between members to examine their existing precursor regulations as well as investigate their capacity for information sharing, forensic capability, technical assistance, public awareness and education. In the long term, it was agreed that the SPPCF should develop a Regional Strategic Plan to respond to ATS and precursor control. The Asian Collaborative Group on Local Precursor Control (ACoG) was established in 2006. It aims to complement existing law enforcement initiatives in the region by focusing on best practice regulatory, administrative and legislative policies to prevent precursor diversion within national borders.
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