Drug Policy in the Americas.

Most discussions of the policy process give the obligatory mention of the complexities and interconnectedness of policy decisions. This collection of practical essays on the history, problems and challenges of drug policy in North, Central and South America makes the point over and over again. Unlike the wishful promises of politicians, the "war on drugs" cannot be won simply by determination and fighting an external enemy. In addition, policy decisions made in one area of drug policy have reverberating effects in both this country and beyond its boarders.

One theme that runs through the volume is that the concentration on reducing the supply of drugs has not worked. Economists wanting to demonstrate the power of the market can find dramatic examples. The closing of the French connection moved production to other countries (including the closer Mexico). When interdiction efforts to stop the supply of the bulky marijuana crop saw some success, the market responded with an increase in the U.S. production (of a more potent type) and former marijuana smugglers turned to smuggling the easier hidden cocaine. Another example is crack cocaine developed in part as a cheaper and more user friendly way to get cocaine to the consumer. This is not to say that interdiction does not have some success. The essay by Reuter concludes that closing the boarders to certain drugs has resulted in some decrease in consumption. However, as he suggests, one should evaluate the costs and benefits of this approach.

Another problem with a supply control approach is the lack of a successful strategy to reduce supply. The U.S. military was very reluctant to get involved in drug interdiction when asked. As Bagley shows, those opposed to military involvement were unable to see their assistance being any more successful than civilian interdiction and it began to blur the lines between civilian and military law enforcement.

If a supply reduction strategy does not work, how then can we reduce demand? The volume looks at various alternatives including education, prevention and treatment programs. Those that seem most successful are ones based upon family and community. The legalization option is considered in a number of essays but is considered and an unlikely option for political reasons.

The other major and even stronger theme of this work is the interconnectedness of drug policy. Drug policy decisions in the United States have repercussions throughout Central and South America. The economic impact of drug trade is most obvious. Some of the essays assess the economic role of drugs in the leading suppler countries. It is obvious from these analyses that a successful reduction in drug use in the United States will have an enormous impact on these countries. Because Latin American economies are fragile, economic crisis is related to political crisis.

As pointed out often, drug crop eradication programs only politically alienate farmers and crop substitution programs will see limited success until the market makes it profitable to substitute. Likewise, success in reducing drug crop prices without a working substitution program may breed political unrest. An additional problem facing Latin American countries is the lawlessness drug production produces. All an unsuccessful crackdown on drugs demonstrates is the weakness of the government pursuing it.

All of this leads to issue of ways to solve this problem. U.S. insistence that the drug problem is primarily one of foreign supply defines policy making as one of the U.S. telling other nations how to stop supplying drugs. Such activity only reinforces the perception of the U.S. as a neighborhood "bully" unwilling to recognize his own problems. If policy shifts completely to a demand reduction strategy drug policy becomes isolationist and unilateral. If nothing else, these essays show that the drug problem cannot be solved unilaterally. The final essays in the book show the possibility of cooperative strategies to solving this problem. The good news is that U.S. policy may be paying attention to these essays and placing a greater emphasis on demand. The bad news is that unless policy makers pay attention to difficult problems of developing a cooperative strategy on drugs described here, most opportunities the shift in policy can provide will be missed.d

The essays in this volume fit together well and, while each maintains its independence, the interrelation of ideas make a coherent package. Little information is repeated as authors freely refer to other chapters. In addition, each essay has a contribution to make providing a variety of perspectives and examples.

It should be noted that this volume is not a theoretical piece making arguments about the policy process. With the exception of the final chapters which use some theoretical ideas from international relations, no theory is given. What the volume does provide is thoughtful, clearly drawn case studies of drug policy issues. These range from country centered analyses, to descriptions of military involvement, to analyses of existing and possible diplomatic relations. In addition, the themes of the volume recommend certain policy directions.

This well written and organized book is a volume that should be consulted by all interested in drugs, criminal justice policy in general and inter-American relations. In addition, it could serve as a "case study" book for those teaching policy courses who with to show the complexity and interconnectedness of policy making.

Stephen C. Brooks
The University of Akron