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ANTI-ILLEGAL DRUGS
CAMPAIGNS:
WHAT WORKS AND
WHAT DOESNT WORK

Ronald U. Mendoza, PhD

Ivyrose S. Baysic
Eunice A. Lalic
 Summary

Since its inception at the Single Convention on Narcotic Drugs of 1961,

the global war on drugs has remained a contentious issue. International
evidence has illustrated that there was no clear link between a punitive
approach or decriminalization and the increase or decrease of drug users.
Despite this, some countries continue to adopt an enforcement-centric
approach on the war on drugs. At the same time, the Philippines welcomed
the new administration under Pres. Rodrigo Duterte this year. The country
also faced the administrations intensified campaign against the use of
illegal drugs.

In aid of the governments campaign against illegal drugs and in support of

coordinated action across different agencies tasked with tackling the illegal
drugs problem, the Ateneo School of Government, the Ateneo School of
Medicine and Public Health, the Ateneo Human Rights Center and the
Ateneo Law School conducted a policy forum on Anti-Drug Campaigns:
What Works and What Doesnt Work last 3 October 2016. The policy
forum brought together international and local experts, policymakers, and
various stakeholders in the anti-illegal drugs campaign in Southeast Asia
and beyond. It offered a unique opportunity to present different views and
learning experiences of other countries. What follows are the main insights
gained from the discussion.

1) Anti-drug campaigns cannot be won over night, and countries like the
US, Colombia, Thailand, and Indonesia have been fighting illegal drugs for
several decades now. Trustworthy and independently generated data and
statistics are critically important to base effective policy strategies on.

2) International evidence and experience suggest that punitive approaches

alone are not necessarily effective. Without harm reduction strategies that
could effectively protect the youth from addiction as well as effectively
integrate addicts back into society, countries could face a rising burden of
addiction.

3) International cooperation is often critically important in order to stem

the tide of illegal drugs manufacture and flow orchestrated by international
drugs and crime syndicates. Even where borders are relatively well secured
(like in the US and in advanced economies for example), drugs smuggling
has proven stubbornly difficult to shut down. In archipelagic countries like
Indonesia (17,000 islands) and the Philippines (2500 islands) which have
also opened its borders to tourism and trade, the challenge of interdiction
is even greater.

1
Consistent with its campaign promise, the Duterte
administration has demonstrated a significant degree of
political will to curb the proliferation of illegal drugs in the
country. According to the Philippine National Police (PNP),
in the short period from July 1 to Oct 3, 2016less than
100 daysthere were a total of 732,149 surrenders and
22,415 arrests. These surrenders and arrests were part of
the governments efforts to reduce the supply of illegal drugs
through PNPs Double Barrel campaign.

The Double Barrel plan, as explained by Police Senior Supt.

Rene P. Pamuspusan, Chief of the Law Enforcement Division,
Directorate for Operations of PNP, is composed of Project
Tokhang (i.e. Toktok-Hangyo or knock and negotiate) for
the lower barrel and Project HVT (high-value target) for the
upper barrel.

Around 27% of the 42,605 barangays all over the country

are affected by drugs, including the National Capital Region
with 93% of its 1,706 barangays. Project Tokhang was
launched by PNP to target these drug-infected barangays
in coordination with the local government units, especially
its anti-drug councils, NGOs, and others. Meanwhile,
Project HVT (high value target) involves focus teams
such as investigators, intelligence operatives, and tactical
personnel. Operations here target illegal drug personalities
and syndicates. The PNP has also moved on to include
a modified Tokhang called Taphang (Tapok Hangyo)
wherein homeowners of subdivisions, condos, business
establishments, and government agencies would be
gathered to discuss and advance the anti-drugs campaign.

Nevertheless, an alarming number of killings have also taken

placesome 722 alleged vigilante killings (classified as
deaths under investigation in PNP data) and 1,566 killings
due to police operations, based on recent reports. These
killings raise serious concerns over the rule of law and the
over-all effectiveness of the anti-drugs campaign.

In aid of the governments campaign against illegal drugs

and in support of coordinated action across different
agencies tasked with tackling the illegal drugs problem,
the Ateneo School of Government, the Ateneo School of
Medicine and Public Health, the Ateneo Human Rights
Center and the Ateneo Law School conducted a policy
forum on Anti-Drug Campaigns: What Works and What
Doesnt Work last 3 October 2016. The forum was divided
into three sessions and featured lessons from international

2
 experience, multidisciplinary perspectives on anti-drug
policy reform, and the anti-illegal drugs campaign of the
Duterte administration. We noted the main policy messages
that emerged from the forum in this short article.

Punitive A review of international policy experience on combating

drugs suggests how punitive approaches alone have

approaches are produced very mixed results. Various studies have shown
that these have resulted into a range of unintended

only effective to a consequences including: the creation of a huge criminal

market; the displacement of production and transit to new

certain extent; and areas (the balloon effect); the diversion of resources from
health to enforcement; the displacement of use to new

these need to be drugs; and the stigmatization and marginalization of people

who use drugs (UNODC, 2008).

balanced by harm Atty. Ricky Gunawan, Director of the Community Legal

reduction to be Aid in Jakarta, a group that has worked with the advocates
fighting to stop the execution of Mary Jane Veloso among

more effective. others, shared Indonesias challenges. Indonesias policies

are primarily punitive, according to Gunawan; and it
rehabilitates only a small fraction of its addicted citizens.
Based on Gunawans experience, in particular areas in
Indonesia, out of 522 cases wherein the amount of drugs
fell under the threshold, only 8.2% were rehabilitated. On
the one hand, under the effectivity of Article 127 which is a
call to rehabilitate drug users, only 27% of 151 cases were
rehabilitated. There is also the issue on prison overcrowding.
In Indonesia, for example, they have attributed the problem
of overcrowding to the war on drugs with 129,662 prisoners
(almost half were convicted on drug-related cases) and
67, 496 detainees. A total of 197,158 prisoners and detainees
are housed in a prison facility that has a capacity of 118,692.

Furthermore, even with two rounds of executions that took

place in 2015, drug use still increased to 5.9M by November
2015 from 4.2M in June that same year. Gunawan noted that
Indonesias rapidly overcrowding prisons have also produced
unintended consequencesincluding the creation of
markets for drugs in the countrys prison system. He also
noted that anti-drug campaigns target poorer citizens those
who have no access to legal aid and treatment, considering
that the society commonly demonizes drug users.

Gunawan argued how an alternate strategy that respects

human dignity and anchors on evidence-based public health
RICKY GUNAWAN responses could be much more effective in stemming the
Director, Community Legal Aid in Jakarta tide of drugs. Harm reduction, an approach that focuses

3
 on reducing the adverse health, economic, and social
consequences of illegal drug use, could be a complementary
strategy along with prevention and treatment. According to
UNODC, an effective anti-illegal drugs policy should include
supply reduction, community development, preventive
education, treatment, and rehabilitation.

BOX 1 According to UNAIDS (2013), around 3 to 5 million people who inject

drugs are located in Asia. The unsafe injection of drugs is a major driver
HARM REDUCTION of HIV epidemic in many Asian countries like Indonesia, Pakistan, and
the Philippines. Many countries in Asia have adopted harm reduction
PRACTICE AND POLICY
policies. However, the implementation of these policies is a different story.
IN ASIA For example, needle and syringe exchange programs operate to varying
degrees within the region, from the small scale projects in Macau and
Mongolia to higher coverage in Indonesia and Malaysia. In the 2014 report
of Harm Reduction International, policies that facilitate harm reduction
services in the region do not translate to provision of adequate response in
scope and quality. In Cambodia, for example, the law states that a person
who injects drugs or someone who is arrested for a drug-related offense
should be referred to a treatment facility. In practice, the legal provision of
referral to treatment is not widely implemented.

A comprehensive harm reduction strategy, as recommended by UN

agencies, should include these nine core harm reduction interventions:

1. Needle and syringe programmes

2. Opioid substitution therapy and other drug dependence
treatment
3. HIV testing and counselling
4. Antiretroviral therapy
5. Prevention and treatment of sexually transmitted infections
(STIs)
6. Condom programmes for injecting drug users and their sexual
partners
7. Targeted information, education and communication for
injecting drug users and their sexual partners
8. Vaccination, diagnosis and treatment of viral hepatitis
9. Prevention, diagnosis and treatment of TB

4
 The table shows Country or Explicit Operational Operational Drug
the countries Territory supportive needle exchange opioid consumption
in Asia that reference to programs substitution rooms
have adopted harm reduction programs
harm reduction in national policy
policies. documents

Afghanistan
Source: Harm
Reduction
International, 2014 Bangladesh

Cambodia

China

Hong Kong

India

Indonesia

Laos PDR

Macau

Malaysia

Maldives

Mongolia

Myanmar

Nepal

Pakistan

Philippines

Taiwan

Thailand

Vietnam

5
 which is mainly due to high likelihood of unprotected
intercourse during drug intoxication (Urbina and Jones,
2004). Also, although non-injection is the preference of
most ATS users, injection parenteral use is increasingly
common (Maxwell and Rutkowski, 2008) which could lead
to needle sharing.

Table 1. Most Widely Used Illicit Country or Territory Most Widely Used Drug
Drugs in East and Southeast Asia,
Per Country/Territory Afghanistan Opioid (opium)
Bangladesh Opioid (cough syrup)
Source: UNODC and selected government
websites Cambodia Amphetamine-Type Stimulants
(crystal methamphetamine)
China Amphetamine-Type Stimulants
(crystal methamphetamine and
ecstasy)
Hong Kong Opioid (heroin)
India Opioid (heroin)
Indonesia Amphetamine-Type Stimulants
(crystal methamphetamine)
Laos PDR Opioid (opium)
Macau Opioid (opium and heroin)
Malaysia Opioid (heroin)
Maldives Cannabis
Mongolia Cannabis
Myanmar Opioid (opium)
Nepal Cannabis
Pakistan Cannabis
Philippines Amphetamine-Type Stimulants
(crystal methamphetamine)
Taiwan Opioid (heroin)
Thailand Amphetamine-Type Stimulants
(crystal methamphetamine)
Vietnam Opioid (heroin)

8
 decriminalization of less destructive forms of drugs and their
most affected populations (not only the drug users but also
those engaged in the drug market for survival), support for
innovative policies, resetting of metrics (such as the United
Nations General Assembly Special Session (UNGASS) on
drugs shifted its 1998 goal of drug-free world to society
free of drug abuse on 2015) and the promotion of open
and inclusive debate on drug policies, as mentioned in the
UNGASS on drugs last April 2016.

In terms of evaluating anti-illegal drugs policies, most

governments around the world have focused on reducing the
demand and supply. Indicators include number and volume
of illicit drug seizures, number of drug-related arrests and
incarceration, and prevalence of drug use in the general
population, among others. However, based on a study of
Werb, et al (2016) published in The Lancet, these narrow sets
of indicators do not capture all facets of the problem and the
overall effectiveness of an anti-drug policy. To meaningfully
evaluate an anti-drug policy, indicators that measure
real-world outcomes should be developed. This new set
of indicators could include impacts of drug policies on
community health, safety, development, and human rights.

Lai also underlined the recent adjustment in Thailands

strategy, which also emphasized punitive approaches in
its initial stages. She noted its adoption of harm reduction,
possible drug law amendments to reduce penalties and

Patients attend a
gymnastics session
at the Taipas
rehabilitation clinic
in Lisbon August 10,
2012. Lisbons Taipas
rehabilitation clinic
is one of over 40 such
clinics across the
country, the result of
Portugals 11-year-
old pioneering
drugs policy which
decriminalised drug
use while offering
free treatment and
state-funded street-
work programmes.
REUTERS/Rafael
Marchante

11
 options for alternatives to incarceration, and support for
decriminalization and ending compulsory treatment. She
also acknowledged the experience of Uruguay and some
American states such as Washington and Colorado, which
have made significant inroads in curbing drug use by
decriminalizing some types of drugs (especially the medical
use of cannabis).

BOX 2 In 2001, Portugal adopted a health-centered approach in addressing the

issue of illegal drug use. A comprehensive form of decriminalization was
THE PORTUGUESE enacted by eliminating criminal penalties for low level consumption of all
illicit drugs and reclassifying these activities as administrative violations.
DECRIMINALIZATION
When one is found to be in possession of personal-use amount of drugs,
MODEL the person is ordered to appear before a commission comprised of legal
official, a health official, and a social service official. The commission
Source: Drug Policy Alliance, 2015 determines the extent of addiction and recommends the appropriate
sanction which could be in the form of a voluntary program, fine, or
administrative sanctions. The law allows the following substances:

Cannabis, 25 grams
Hashish, 5 grams
Cocaine, 2 grams
Heroin, 1 gram
LSD or ecstasy, 10 pills

This health-centered policy has generated notable outcomes including: 1)

no major increase in drug use, 2) reduced problematic and adolescent drug
use, 3) fewer people arrested and incarcerated for drugs, 4) more people
receiving drug treatment, 5) reduced incidence of HIV/AIDS, 6) reduced
drug-induced deaths, and 7) reduced social costs of drug misuse.

Nonetheless, according to the architect of Portugals drug policy, Dr.

Joo Goulo, these outcomes should be viewed as the result of not just
the decriminalization of drugs but of a larger set of policies that target
reduction of both supply and demand, including measures of prevention,
treatment, harm reduction, and social reinsertion.

12
 Table 2. Congestion Rate of the Jails Region Number of Jails Floor Area (sq. m.)
in the Philippines, September 2015
NCR 39 49,175.07
Source: Bureau of Jail Management and
Penology I 21 4,445.00

II 19 3,847.00

III 33 11,250.00

IV A 52 14,873.22

IV B 18 3,115.00

V 36 5,352.00

VI 35 19,199.00

VII 34 13,513.06

VIII 37 3,934.00

IX 20 5,241.42

X 22 9,424.00

XI 13 11,322.50

XII 14 2,988.00

XIII 26 4,822.00

CAR 26 4,253.00

ARMM 16 3,130.80

TOTAL 461 169,885.07

13
Cell Area (sq. m.) Ideal Capacity (4.7) Jail Population Variance Percent of Congestion

22,318.02 4,749 21,868 17,119 361%

2,481.00 528 3,427 2,899 549%

2,073.00 441 2,221 1,780 404%

5,482.00 1,166 9,047 7,881 676%

8,069.20 1,717 14,083 12,366 720%

1,938.00 412 865 453 110%

3,169.00 674 2,623 1,949 289%

10,727.00 2,282 6,822 4,540 199%

8,835.48 1,880 10,618 8,738 465%

1,953.00 416 1,842 1,426 343%

3,247.64 691 4,595 3,904 565%

4,751.48 1,011 3,706 2,695 267%

3,511.00 747 4,711 3,964 531%

3,817.40 812 4,250 3,438 423%

2,991.00 636 2,029 1,393 219%

2,088.00 444 931 487 110%

1,290.25 275 323 48 18%

88,742.47 18,881 93,961 75,080 398%

14
 Illegal drug use is An exchange of views by a multidisciplinary panel of experts
emphasized the importance of a rights-based approach

a health issue and which also engages different stakeholdersnotably

families and the communitiesin curbing the illegal drugs

promoting human problem. Atty. Ray Paolo Santiago of the Ateneo Human
Rights Center discussed the legal framework of the ongoing

rights should anti-drug campaign in the country. Data from Bureau of

Jail Management and Penology (BJMP) showed that the

anchor the anti- congestion rate inside prisons reached 398%. As shown
in Table 2, the ideal capacity of the 461 jails across the

drugs campaign. Philippines is only 18,881 inmates. However, it is occupied by

93,961 inmates as of September 2015.

Moreover, the constitutional issues related to the Philippines

anti-drug campaign, as discussed by Santiago, include:
1) right against deprivation of life, liberty, and property
without due process of law, 2) right against unreasonable
searches and seizures, 3) right against warrantless arrests,
4) freedom of speech and expression, 5) right to information,
6) right to adequate legal assistance, 7) rights during
custodial interrogation, 8) right to be presumed innocent,
and 9) right against self-incrimination. He mentioned that
the anti-drugs campaign must be recalibrated in ways that
strengthen the rule of law.

Furthermore, Dr. Vilma Diez, Director of the Dangerous

Drug Abuse Prevention and Treatment Program (DDAPTP),
Office of Special Concerns of the Department of Health
(DOH) discussed how the Philippine government is indeed
sharpening its anti-drug campaign with a strong public
health perspective. She discussed the immediate responses
to support the large number of addicts who surrendered,
which primarily include meeting the regional directors and
the chiefs of the drug abuse treatment and rehabilitation
centers monthly for their responses, plans and needs
report. Second, she noted the critical convergence of
work across key agencies, with the Department of Interior
and Local Government (DILG) as the lead, together with
DOH, Ugnayan ng Barangay at Simbahan (UBAS) and the
Department of Social Welfare and Development (DSWD),
the agencies partner with other government offices (i.e.
TESDA, DDB, BJMP, etc.).

According to the Health Secretary, Dr. Paulyn Ubial, the

SEN. RISA HONTIVEROS gave the Keynote
Speech. She emphasized the importance of
adopting the public health lens and harm
reduction in fighting the war on drugs.
increasing number of drug surrenderers in the country
demonstrates that it is a public health emergency (Rappler,
2016). The DOH will use around PhP145 million of its Quick
Response Fund for treatment and rehabilitation centers.

15
RAY PAOLO
SANTIAGO
Executive Director,
Ateneo Human
Rights Center

MA. VILMA DIEZ

Director III,
Dangerous Drugs
Abuse Prevention and
Treatment Program,
Department of
Health

Likewise, under the proposed 2017 budget, the department

has allotted PhP3 billion for the operation of government-run
treatment and rehabilitation centers in the country.

Diez also elaborated on the standard guideline on the

voluntary surrenders of drug users and dependents. The
immediate responses also include the distribution of
manuals regarding community-based treatments. Another
response is the building of temporary Drug Abuse Treatment
and Rehabilitation Centers or DATRCs in military camps
such as those in Nueva Ecija, Capiz, Bohol, and Saranggani.

The DDAPTP aims to reduce the prevalence of drug abuse

and its health-related effects, as mentioned by Diez.
Furthermore, the goal of DDAPTP is to achieve a more
effective leadership and governance for the prevention of
drug abuse, and the treatment and rehabilitation of drug
users; to provide a comprehensive, integrated health care
services in TRCs as well as in communities, to implement
strategies for health promotion and drug use prevention;
and to strengthen information systems and evidence-
based research. Diez also emphasized the importance of
collaborative effort, notably among the communitys health
care system, schools, workplaces, religious and voluntary
organizations, media, law enforcement and regulatory

16
 agencies, and the family, peers and the community where an
individual belongs to prevent substance or drug abuse.

Participation The social dimensions of drug use should also be recognized

and addressed in order to protect the youth. Dr. Emma

of other social Porio, Professor of Sociology and Anthropology at the

Ateneo de Manila University and Science Research Fellow

institutions is vital at the Manila Observatory shared the key findings of her
study, Children in Drugs in Southeast Asia: Implications for

to eradicate illegal Anti-Drug Campaigns/Reforms in the Philippines. Porio

noted that there are three intervention models to eliminate

drug use. drug use: 1) community-based, 2) school-based, and 3)

street-based approaches. Further, she emphasized the
importance of focusing on the youth as the center of change,
in collaboration with their families and their elders. Porio
explained that the fight against illegal drugs is not solely
the responsibility of the police through the campaigns like
Tokhang Plan, rather, it is the responsibility of everybody.
Recognizing the importance of information education
campaigns to capacitate parents, teachers, community
leaders, etc., she also identified the significance of
communities building a safe environment for everyone. This
underscores the need for child/youth/gender-sensitive drug
policy framework, a supportive bureaucracy, and budget and
other resources to support the fight against illegal drugs.

ELMER SORIANO
Managing Director,
Civika Asian
Development

LUCIANO
FELLONI
Vicar Forane,
Our Lady of Lourdes
Vicariate

EMMA PORIO
Professor of
Sociology, Ateneo de
Manila University
Science Research
Fellow, Manila
Observatory

17
 Health leadership models for academe-LGU-clinic drug
programs were also discussed by Dr. Elmer Soriano,
Managing Director of the Civika Asian Development
Academy. Soriano noted the important role of social labs
for drug rehabilitation and possible social innovation of
universities in the fight against illegal drugs. He further
explained the need to recognize the nature of the challenge
and the type of leadership needed.

In addition, Fr. Luciano Felloni, Vicar Forane of the Our Lady

of Lourdes Vicariate in Caloocan City shared their churchs
Healing and Protecting campaign. Fr. Felloni shared their
experience working with the local barangay thru Ugnayan ng
Barangay at Simbahan or UBAS to address the drug problem
in their community. The rehabilitation program focuses on
1) health by implementing medical checkups, detoxification,
feeding program, and exercise; 2) family, including the
surrenderers co-dependents, parenting, marriage encounter,
etc.; 3) livelihood such as their pay for work, TESDA
trainings, product marketing etc.; 4) psychosocial support
that includes counseling, therapy with psychologists and
psychiatrists and Narcotics Anonymous; 5) spirituality by
engaging the surrenderers in recollections, catechesis, and
other similar activities.

Openness of The Dangerous Drugs Board (DDB) as the drug policy-

making body when it comes to illegal drugs is tasked to

government to adopt a comprehensive, integrated, unified, and balanced

national drug policy. Under the National Anti-Drug Plan of

partner and adjust Action, DDB operates with its five pillars of action which
serves as their strategy to eliminate drug use namely drug

its strategies supply reduction, drug demand reduction, alternative

development, civic awareness, and regional and local

based on evidence cooperation.

is key. Mr. Benjamin Reyes, Chairman of DDB, noted how drug

supply and demand reduction are being accomplished
through enforcement of activities and at the same time,
providing for prevention, treatment, and promoting advocacy
activities. The Board also promotes an alternative source
of income for marijuana planters by providing different
livelihood projects for planters in several marijuana
plantation sites. Furthermore, attaining civic awareness and
response is made through promoting advocacies on the local
and international level. Meanwhile, regional and international
cooperation is being managed by maintaining the
connections with other countries via actively participating
and hosting conferences, seminars and trainings.

18
 HILARIO DAVIDE III
Governor,
Province of Cebu

BENJAMIN REYES
Chairman,
Dangerous Drugs
Board

RENE
PAMUSPUSAN
Chief,
Law Enforecement
Division of the
Directorate for
Operations,
Philippine National
Police

Starting 2010 up until 2015, the number of drug-related

arrests and cases filed by PDEA kept on increasing. (See
Figure 6). In 2015, 19,432 drug-related arrests were made,
as recalled by Reyes wherein 9.38% of these arrests were
high value targets. Among DDBs accomplishments are
the success of conducting several advocacy activities,
implementing 24 capacity-building and prevention programs
such as Barkada Kontra Droga which focuses on the youth,
interfaith-based programs and various research works.

Moreover, as of December 2015, there is a total of 44

DOH-accredited treatment and rehabilitation centers, both
government and private-owned (see Table 3).

Reyes emphasized that the DDB adheres to international

treaties and conventions as well as human rights policies.
Thus, the Board does not condone the current issues on
killings associated with the ongoing anti-drug campaign.
Furthermore, DDB is already processing the publication of
the guidelines for the standard implementation of Tokhang.

19
 Finally, the important role of leadership at the local level
was reiterated by participants in the forum. On his part,
Gov. Hilario P. Davide III of Cebu shared his provinces
experience in addressing illegal drugs, under the leadership
of Cebu Provincial Anti-Drug Abuse Council (CPADAC). He
recognized their strong partnership with different agencies,
the private sector, civil society, and non-government and
government organizations for Cebus anti-drug abuse
programs. Furthermore, the province of Cebu focuses
and addresses their problems in accordance with their
capabilities and resources, as Davide III mentioned. They
also support the strengthening of local and barangay-
based institutions, and they embraced the participation
of community and church-based organizations, as well
as other organizations. This allowed them to reach more
communities more effectively, as partnerships amplified the
scale and scope of their efforts.

Davide III acknowledged that the current drug problem

of the country will not be solved through government
polices alone. He emphasized the importance of the shared
responsibility of the government and the community, as well
as coherent and sustained policy approaches. In addition,
Davide III noted that policy strategies should target the
causes rather than the symptoms of the problem, putting an
emphasis on reaching the youth and lowering their risks from
taking up drugs in the first place.

HILARIO DAVIDE III

Governor,
Province of Cebu

21
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Feb2015.pdf
Geronimo, Jee. (2016, October 18). Ubial: PH
drug problem a public health emergency.
Rappler. Retrieved from http://www.rappler.com/
nation/149537-paulyn-ubial-drugs-public-health-
emergency.
Global SMART Programme. (2013). Patterns
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