Dens of Bureaucracy
The difference between legal and illegal drugs is about history and business, but not science.
Back in grad school, I took my daily SSRI and departed for the archives to write a history of the War on Drugs. I imagined it was going to be a sensational account of Latin American cartels, corrupt DEA officers, and deadly side effects in the highest echelons of foreign policy. Two years later, here’s what I have: a confusing mix of hypochondria and iatrophobia and a story of bureaucracy, businessmen slapping each other on the back, and nationalized morphine production during WWII. I found war, and there were drugs. But instead of the Nixonian counteroffensive, in looking for the origins of the War on Drugs I was led to the birth of the modern pharmaceutical industry.
The current distinction between drugs classes as legal and illegal has little to do with their substance per se and everything to do with a confluence of court rulings, prison expansion, and business interests. It developed side-by-side with the pharmaceutical industry and the federal drug policing apparatus, then known as the Federal Bureau of Narcotics, in the early part of the twentieth century. Each used the other to fortify its own positions of power. But the useful il/legal distinction was nearly destroyed during the Second World War, due to the urgent necessity of opium stockpiling for use by the Army, only to emerge stronger and more politically potent than ever.
In a time of war, the FBN began the first in a long series of collaborations with pharmaceutical conglomerates and drug cartels, which continued in some form throughout the twentieth century. To achieve national security objectives, the drug enforcement agencies that divided cartels from corporations by legal fiat collaborated to produce drugs for which they otherwise threw people in prison. These alliances strengthened the power of these agencies to determine the public understanding of what was legal and what wasn’t. They also allowed the feds to work with drug companies and cartels alike during the Cold War to develop various chemical military technologies and leverage on-the-ground power. But this double-dealing led to schizophrenic outcomes. Most spectacularly, during the Second World War, the U.S. Treasury Department gold vaults held 3,000,000 pounds of raw Macedonian opium, while the military was court-martialing G.I.s for marijuana use.
At the turn of the century, the U.S. had no federal drug-policing agency. Pharmaceutical manufacturers were dispersed into small independent businesses that produced and prescribed as they saw fit. But as a public drug reform movement denouncing the widespread sale and use of opiates gained steam, drug manufacturers were forced to define and defend the realm of “legitimate” production and sale of pharmaceuticals. Scandalous paper headlines related the horrors of drug addiction and adamant reformers began condemning the medical profession as a whole. Previously dispersed drug manufacturers, pharmacists, and medical practitioners were forced to come together and defend their legitimacy in the public eye to ensure continued profits and to preempt undesirable legal or government intervention. This collusion proved good for some and fatal for others — “quacks” were weeded out and, when the dust cleared, a handful of self-proclaimed professional drug producers controlled the market.
Once “legitimate” drugs had been clearly defined for the public, a whole other category of drugs became not only illicit but, for the first time, illegal. The innocuously named Harrison Act of 1914 was the first piece of national anti-narcotic legislation passed in the U.S. Although the Harrison Act only regulated drug sales through a poorly-enforced system of record-keeping, it codified the distinction between “dangerous” drugs and drugs “for medical or scientific purposes.” While the categories of medical or “ethical” drugs and illegal/“criminal” drugs quickly came to acquire a powerful moral currency, both were hasty products of negotiations over laws like the Harrison Act. The two categories were united at birth, only taking on meaning and material power in relationship to one another. In particular, they were expedient agreements between the government and the newly united pharmaceutical industry, as the latter worked to ensure that narcotic regulation (now inevitable thanks to the scandals raised by the reform movements) would take a shape that was convenient to business.