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By 1980 half of all drug arrests were of minors. That black market would persist with legalization.

The more candid of the legalization proponents concede that these advantages would be purchased at the cost of increased drug abuse. Widespread availability, lower prices, and the elimination of the criminal sanction would result in more users, some of whom would inevitably become addicts. But how many more? Herbert Kleber, a treatment specialist and former deputy director of the Office of National Drug Control Policy, has argued that there would be between twelve and fifty-five million addicted users if cocaine and heroin were legally available. While it is impossible to anticipate the exact magnitude of the increase, history does support Kleber’s argument. In countries like Iran or Thailand, where narcotics have long been cheap, potent, and readily available, the prevalence of addiction has been and continues to be quite high. Large quantities of opium sold by British and American merchants created a social disaster in nineteenth-century China; that Chinese sailors and immigrants subsequently introduced opium smoking to Britain and America is a kind of ironic justice. Doctors, who constantly work with and around narcotics, have historically had a very serious addiction problem: estimates of the extent of morphine addiction among American physicians at the turn of the century ran from 6 percent to an astonishing 23 percent. In a word, exposure matters.

Kleber has also attacked the crime-reduction rationale by pointing out that addicts will generally use much more of an illicit substance if the cost is low. They would spend most of their time using drugs and little of it working, thus continuing to resort to crime to acquire money. If the total number of addicts rose sharply as availability increased, total crime would also increase. There would be less crime committed by any single addict but more crime in the aggregate.

The debate over decriminalization is, in essence, an argument about a high-stakes gamble, and so far the opponents represent the majority view. At the close of the 1980s, four out of every five Americans were against the legalization of marijuana, let alone cocaine. But if the drug war produces another decade of indifferent results, growing disillusionment could conceivably prompt experiments in controlled legalization.

The controlled-legalization argument rests on the assumption that legal sales would largely eliminate the illicit traffic and its attendant evils. The history of drug use, regulation, and taxation in the United States suggests otherwise. The very phrase controlled legalization implies denying certain groups access to drugs. Minors are the most obvious example. No one advocates supplying narcotics to children, so presumably selling drugs to anyone under twenty-one would remain a criminal offense, since that is the cutoff point for sales of beverage alcohol. Unfortunately, illicit drug abuse in this century has become concentrated among the young—that is, among the very ones most likely to be made exceptions to the rule of legal sales.

Until about 1900 the most common pattern of drug dependence in the United States was opium or morphine addiction, brought about by the treatment of chronic diseases and painful symptoms. Addicts were mainly female, middle-class, and middle-aged or older; Eugene O’Neill’s mother, fictionalized as Mary Tyrone in Long Day’s Journey into Night , was one. Habitual users of morphine, laudanum, and other medicinal opiates in their adolescence were extremely rare, even in big cities like Chicago.

Another pattern of drug use was nonmedical and had its roots in marginal, deviant, and criminal subcultures. The “pleasure users,” as they were sometimes called, smoked opium, sniffed cocaine, injected morphine and cocaine in combination, or, after 1910, sniffed or injected heroin. Non-medical addicts began much younger than their medical counterparts. The average age of addiction (not first use, which would have been lower still) for urban heroin addicts studied in the 1910s was only nineteen or twenty years. They were also more likely to be male than those whose addiction was of medical origin, and more likely to have been involved in crime.

Initially the pleasure users were the smaller group, but during the first two decades of this century—the same period when the police approach to national drug control was formulated—the number of older, docile medical addicts steadily diminished. There were several reasons: doctors became better educated and more conservative in their use of narcotics; the population grew healthier; patent-medicine manufacturers were forced to reveal the contents of their products; and the numerous morphine addicts who had been created in the nineteenth century began to age and die off. Drug use and addiction became increasingly concentrated among young men in their teens and twenties, a pattern that continues to this day.

In 1980, 44 percent of drug arrests nationwide were of persons under the age of twenty-one. There were more arrests among teen-agers than among the entire population over the age of twenty-five; eighteen-year-olds had the highest arrest rate of any age group. By 1987 the proportion of those arrested under twenty-one had declined to 25 percent. This was partly due to the aging of the population and to the effects of drug education on students. But when large numbers of “echo boomers”—the children of the baby boomers—become adolescents during the 1990s, the percentage of under-twenty-one drug arrests will likely increase.