FOREWORD BY THE MINISTER
The scourge of substance abuse continues to ravage our communities, families and particularly our
youth, the more so as it goes hand in hand with poverty, crime, reduced productivity, unemployment,
dysfunctional family life, escalation of chronic diseases and premature death. South Africa needs to
address the problem of substance abuse in partnership with other African countries without regard to
issues of economic class, race, colour, gender and the professional status of an individual. Substance
abuse is a cause of great concern, given the fight to restore Africa to its rightful place in the world. The
ability to implement effectively a coordinated, multi-pronged plan that takes cognisance of legal, health
and socio-economic issues and is supported by all spheres of government and all sectors of society is
key to this process.
The revised National Drug Master Plan 2012-2016 is South Africa‟s answer to this challenge. It has been
designed to serve as the basis for holistic and cost-effective strategies to reduce the demand for and
supply of drugs and the harm associated with their use and abuse. Ultimately the plan is intended to help
realise the vision of a substance-abuse free society where the effect of drugs will be so reduced that more
attention can be focused on raising the quality of life of the poor and vulnerable and of developing the
people to achieve their true potential. In comparison with the second National Drug Master Plan 20062011, the focus in the revised plan is more on the delivery of interventions that not only are informed by
best practices and evidence but are designed to meet the defined needs of the communities in combating
the scourge of substance use, abuse- and dependence in their neighbourhoods.
In defining these needs not only were the communities drawn into the process, but also their bearers of
political office who wholeheartedly endorsed the defined needs. These political office bearers committed
themselves publicly to supporting the Central Drug Authority and its infrastructure in departments,
provinces and in the communities themselves to combat the scourge of drugs and other dependenceforming substances.
MINISTER OF SOCIAL DEVELOPMENT
NDMP 2012-2016 First Draft 2
nd
Revision r
Page 1
National Drug Master Plan 2012 - 2016
EXECUTIVE SUMMARY
The National Drug Master Plan (NDMP) 2012-2016 of South Africa is the plan
formulated by the Central Drug Authority in terms of the Prevention and Treatment of
Drug Dependence Act (Act No. 20 of 1992 as amended), and approved by Parliament
to meet the requirements of these international bodies and at the same time, to meet
the specific needs of the South African communities, needs which at times differ from
those of other countries.
President Zuma, at the 2nd Biennial Summit in Durban pledged his support and the
support of Parliament and the provincial authorities in combating substance abuse in
South Africa.
The NDMP sets out the contribution and role that each department must play in fighting
the scourge of substance abuse. It also recognises the need for a significant
contribution to be made by specified departments, all provinces and several other
stakeholders in the country in so doing.
In carrying out the review of the NDMP 2006-2011 the CDA identified several
challenges and impediments that need to be addressed in the NDMP of 2012-2016 and
incorporated them into the plan.
In the field of substance abuse it is generally accepted that a balanced approach to
dealing with the problem is necessary i.e. no single approach such as criminalising or
decriminalising substances or abusers would provide a complete solution. Rather it is
advocated that a balanced approach be applied, using an integrated combination of
strategies. The commonly recognised strategies applied in the NDMP 2012-2016. Are
Demand Reduction, Supply Reduction and a localised version of Harm Reduction.
In applying the integrated strategy to the NDMP 2012-2016, the impact and key Specific
Outcomes derived from the review of the NDMP 2006-2011 were described in the terms
required by the basic concepts in Monitoring and Evaluation (PSC, 2008). These broad
outcomes are shown in the table below.
1. Reduced bio-,socio-economic impact of substance abuse and related illnesses
on the South African Population
2. All people in South Africa able to deal with problems related to substance abuse
within communities
[Type text]
Page 2
National Drug Master Plan 2012 - 2016
3. Recreational facilities and diversion programmes prevent vulnerable populations
from becoming substance dependents
4. Availability of substance dependence-forming drugs and alcoholic beverages
reduced
5. Multi-disciplinary and multi modal protocols and practices for integrated
diagnosis treatment and funding of substance dependence and co-occurring
disorders developed and implemented
6. Laws and policies to facilitate effective governance of the alcohol and drug
supply chain harmonised and enforced
7. Job opportunities in the field of combating substance abuse created
In the door-to-door rapid participatory assessment community respondents indicated
that in their opinions alcohol and cannabis were the two primary substances of abuse.
This opinion is supported by the available data.
The predominant strategy for dealing with the drug problem had, for years, been that of
„Supply Reduction‟. The UNODC and the WHO have recently advocated a change to a
strategy of „primary prevention‟ i.e. a strategy based on the need to prevent potential
substance dependents from becoming dependents in the first place.
Arising from the review of the NDMP 2006-2011 it became clear that certain key
changes would be required in the new NDMP.
The key changes needed include:
The change from a top-down method of devising solutions to a bottom-up
approach;
A shift from a national approach to devising strategy (one size fits all) to a
community emphasis (different solutions to fit different needs);
A shift from a supply reduction approach to one of primary prevention within an
integrated strategy;
The development and application of evidence-based solutions wherever
possible;
[Type text]
Page 3
National Drug Master Plan 2012 - 2016
The introduction of a monitoring and evaluation (M&E) approach to the
formulation of the results to be achieved i.e. impact, outcomes, outputs and
targets;
The adaptation of the NDMP and departmental and provincial DMP‟s to an M&E
approach;
The application of Research and Development to meeting the predicted needs
and future changes in the field of substance abuse;
Reporting in terms of the M&E needs instead of activities carried out, and
Extending the reporting base outside the CDA and supporting infrastructure to
include non-CDA sources and linked databases.
The CDA in analysing the challenges facing South Africa in the field of substance abuse
determined that, in order to meet these challenges it would be essential to achieve a
state in which the country was in essence free of substance abuse.
The delegates at the 2nd Biennial Anti-Substance Abuse Summit endorsed as part of
their desired outcomes, the vision of a substance-abuse free country. This vision was
also endorsed by all the high-level political figures attending the Summit.
This vision or the „dream‟ to be achieved by the country forms the basis of the NDMP
2012-2016.
The mission of the CDA, or that which it must do in order to achieve the vision, is to
direct, guide, co-ordinate, monitor and evaluate the initiatives and efforts of all relevant
departments, provinces, the provincial substance abuse forums and other stakeholders
in their implementation of the NDMP 2012-2016 and its strivings towards a substanceabuse free country.
The NDMP provides the means by which existing resources may be harnessed to
achieve the Key Outcomes of the NDMP. The NDMP requires national and provincial
departments to plan for and deal with substance abuse problems as part of their normal
planning and budgetary processes. These plans form the Departmental and Provincial
Drug Master Plans (DMP‟s). The D- and PDMPs are the operational plans of
departments and provinces and must be submitted to the CDA at the beginning of each
financial year. The CDA must monitor and evaluate continuously the implementation of
these plans as described in the mission of the CDA.
[Type text]
Page 4
National Drug Master Plan 2012 - 2016
Designated members of the CDA will attend the monthly and quarterly meetings of the
Provincial Substance Abuse Forums in each province to carry out the monitoring and
evaluation as required, and also attend meetings of the LDAC‟s if necessary.
Monitoring will be based on the requirements of the standardised reporting tool, the
Quick Analysis of Substance Abuse Reports (QuASAR). Reports are to be submitted
by the last day of the months of June, September, December and March of each year.
Designated members of the Provincial Substance Abuse Forums will attend the
quarterly General Meetings of the CDA and submit their reports for discussion at those
meetings.
Departmental representatives on the CDA will similarly attend the quarterly General
Meetings of the CDA and submit their departmental reports based on the QuASAR for
discussion at those meetings.
In terms of the legislation governing the CDA that body must submit an Annual Report
to the Minister of Social Development for onward transmission to Parliament by the end
of September each year. That report is based on the monitoring and evaluation process
conducted by the CDA, on the reports submitted by departments and provinces, on the
research conducted by or on behalf of the CDA as well as on other matters of
relevance.
In addition the CDA reports verbally and in writing to the Minster of Social Development
after each General Meeting and on such other occasions as the need demands, in order
to carry out the mandate of advising on matters affecting substance abuse in South
Africa.
The success of this National Drug Master Plan depends on the continued support of the
government and the people, the provision of the necessary resources and, a very big
„and‟ the ability of the CDA and its supporting infrastructure: the departments, provinces,
the Provincial Substance Abuse Forums and the Local Drug Action Committees and the
communities, to deliver the outcomes, outputs and activities needed to meet the needs
of the people.
[Type text]
Page 5
National Drug Master Plan 2012 - 2016
TABLE OF CONTENTS
Foreword
Executive Summary
CHAPTER 1: INTRODUCTION
Background to the CDA and the National Drug Master Plan
Presidential message of support
Community needs and the drug problem
Dealing with the drug problem: the CDA and the National Drug Master Plan
CHAPTER 2: THE CDA AND THE NATIONAL DRUG MASTER PLAN (NDMP)
Role and mandate of the CDA
Developing the National Drug Master Plan
The National Drug Master Plan in outline
CHAPTER 3: COMMUNITY NEEDS AND THE DRUG PROBLEM
Determining community needs
Door-to-door campaign and provincial summits
Extent of the drug problem
Primary substances of abuse: Alcohol and Cannabis
Community needs and priorities for dealing with the drug problem
CHAPTER 4: STRATEGIC APPROACHES TO DEALING WITH THE DRUG PROBLEM
Evaluation of the Implementation of the National Drug Master Plan 2006 – 2011
Public policies on alcohol and drug abuse
[Type text]
Page 6
National Drug Master Plan 2012 - 2016
Evidence-based policies and practice
Demand reduction strategy
Supply reduction strategy
Harm reduction strategy
The cluster concept
The community–needs concept
Need for coordinated, integrated strategy and a balanced approach
CHAPTER 5: THE NATIONAL DRUG MASTER PLAN 2012 – 2016
The Plan of Action and Outcomes approach
The desired impact of the NDMP
Impact related to Community needs and priorities
Priority areas
Government outcomes vis-à-vis NDMP Specific Outcomes
Functional areas related to NDMP Specific Outcomes
National Departmental and Provincial Outputs
National Departmental and Provincial Drug Master Plans
Local Drug Action Committee Activities
NDMP Input requirements
CHAPTER 6: MONITORING, EVALUATION AND REPORTING
Monitoring and evaluation perspectives
Programme performance
Organisational performance
Community needs
[Type text]
Page 7
National Drug Master Plan 2012 - 2016
Financial
The Quick Analysis of Substance Abuse Report (QuASAR) reporting tool
Reporting requirements and timescales
CDA reports to Min SocDev and Parliament
CHAPTER 7: INSTITUTIONAL FRAMEWORK
Central Drug Authority
Departmental Substance Abuse Structures
Provincial Substance Abuse Forums
District/regional and Local Drug Action Committees
CHAPTER 8: RESEARCH AND DEVELOPMENT
Development of baseline data on substance abuse in South Africa
Policies, legislation, protocols and practices on cannabis
Policies, legislation, protocols and practices on drug-affected driving
Achieving zero new infections/incidents of HIV among injecting and other drug users.
Efficient measures to improve the participation of civil society in the CDA.
Predictive analysis of the drug problem and implications.
CHAPTER 9: IMPLEMENTATION OF THE NDMP 2012-2016
Method of implementation
Annual programme for implementation and monitoring
Schedule of reports to CDA by supporting infrastructure
Schedule of reports by CDA to Minister of Social Development
Annual Reports of the CDA to Parliament
APPENDICES
[Type text]
Page 8
National Drug Master Plan 2012 - 2016
Appendix 1: Legislation relevant to substance abuse
Abbreviations
Glossary
References
[Type text]
Page 9
National Drug Master Plan 2012 - 2016
CHAPTER 1
BACKGROUND TO THE CENTRAL DRUG AUTHORITY AND THE
NATIONAL DRUG MASTER PLAN 2012-2016
INTRODUCTION
South Africa as part of the global community is entangled in that community‟s World
Drug Problem. The term „World Drug Problem‟ or „drug problem‟ relates primarily to the
global demand for illicit drugs. In South Africa however the term is expanded to mean
the demand for dependence-forming substances i.e. alcohol and other drugs including
prescription and over-the-counter medication and is referred to as the „substance abuse
problem‟.
As part of the global community, South Africa is required to take the steps necessary to
combat the drug problem, applying policies and practices agreed by the world
community and acceptable to South Africa as an individual country. These policies and
practices are formulated in response to the relevant United Nations Conventions and
those of other relevant international bodies.
The National Drug Master Plan (NDMP) 2012-2016 of South Africa is the plan
formulated by the Central Drug Authority in terms of the Prevention and Treatment of
Drug Dependence Act (Act No. 20 of 1992 as amended), and approved by Parliament
to meet the requirements of these international bodies and at the same time, to meet
the specific needs of the South African communities, needs which at times differ from
those of other countries.
PRESIDENTIAL MESSAGE OF SUPPORT
President Jacob Zuma in opening the 2nd Biennial Anti-substance Abuse Summit in
Durban on 15 March 2011, sponsored jointly by the Central Drug Authority and the
national Department of Social Development, stressed the dire consequences of
substance abuse on South African communities, with special emphasis on the effects of
alcohol and cannabis.
[Type text]
Page 10
National Drug Master Plan 2012 - 2016
He stated that the South African government is concerned with promoting social
cohesion and stable communities. The fight against substance abuse is the key aspect
of that programme. He emphasised that alcohol and drug abuse (or substance abuse)
as well as drug trafficking will receive renewed and more energetic attention from
government, and that collaborative efforts are required to reduce the scourge of
substance abuse.
President Zuma urged the delegates (who included representatives of communities both
urban and rural) to the summit to develop a series of resolutions to combat these effects
and listed a number of suggestions for dealing with the problems of substance abuse.
In closing he pledged his support and the support of Parliament and the provincial
authorities in combating substance abuse in South Africa.
COMMUNITY NEEDS AND THE SUBSTANCE ABUSE PROBLEM
In the months preceding the 2nd Biennial Substance Abuse Summit a rapid participatory
assessment and a series of door-to-door campaigns were carried out. The assessment
and the campaigns used both qualitative and quantitative methods in 7 provinces at
community level to establish from community members what government and others
should do to prevent substance abuse. The results of this process were described to
the delegates at the Summit where they were urged to discuss them and derive from
the results and their discussions a series of resolutions designed to deal with the
problems of substance abuse in such as way as to meet the needs expressed by the
communities. The results submitted by the remaining two provinces were later
incorporated into the findings.
[Type text]
Page 11
National Drug Master Plan 2012 - 2016
Figure 1: Community needs in combating substance abuse
Figure 1 shows those factors which, in the opinion of the communities, need to be dealt
with in order to combat substance abuse. In brief these are:
Employment or lack therof;
Poverty;
Better parenting, or the need for the development and application of parenting
skills and competencies that will enable members of the community to deal with
the problems of substance abuse;
Influence, or the ability to persuade members of the community to become
involved in the process of dealing with substance abuse;
Knowledge, or knowledge of the process of identifying and dealing with the
problems of prevention, treatment, aftercare and re-integration into the
community of those affected by substance abuse;
Healthy mind, or the ability to resist the temptation to abuse substances, coupled
wioth the concept of bipolar problems;
[Type text]
Page 12
National Drug Master Plan 2012 - 2016
Availability or reducing the availability of dependence-forming substances such
as alcohol and cannabis;
Recreation or providing facilities and opportunities for especially the youth to
occupy the time and resources which might otherwise be devoted to substance
abuse;
Spiritual, the provision of facilities and opportunities for spiritual or religious
observance;
Law enforcement the application of policies, laws, protocols and practices
designed to reduce the threat of substance abuse;
Rehabilitation, provision of access to and application of detoxification,
rehabilitation, aftercare and reintegration into society for those suffering from
substance dependency, and
Shut taverns, a plea, related to the availability ofalcohol and drugs, to remove
this source of dependence-forming substances.
DEALING W ITH THE DRUG PROBLEM: THE CDA AND THE NATIONAL
DRUG MASTER PLAN (NDMP) 2012-2016
The CDA is the body authorised in terms of Act 20 of 1992, as amended and the
forthcoming Act 70 of 2008 to develop a National Drug Master Plan (NDMP) and to
direct, guide and oversee its implementation as well as to monitor and evaluate the
success of the NDMP and to make such amendments to the plan as are necessary for
success.
The NDMP is drafted in accordance with stipulations of the existing Prevention and
Treatment of Drug Dependency Act, (Act No 20 of 1992) and the forthcoming
Prevention of and Treatment for Substance Abuse Act, (Act No 70 of 2008. The plan is
designed to bring together government departments and stakeholders in the field of
substance abuse to combat the use, abuse and dependency on dependence-forming
substances and other substance-related problems.
The NDMP sets out the contribution and role that each department must play in fighting
the scourge of substance abuse. It also recognises the need for a significant
[Type text]
Page 13
National Drug Master Plan 2012 - 2016
contribution to be made by specified departments, all provinces and several other
stakeholders in the country in so doing.
The success of the NDMP depends on the efforts of each stakeholder participating in
the NDMP in crafting a national departmental and/or provincial Drug Master Plan (DMP)
in response to the problems defined in the NDMP.
[Type text]
Page 14
National Drug Master Plan 2012 - 2016
CHAPTER 2: THE CDA AND THE NATIONAL DRUG MASTER PLAN
(NDMP) 2012-2016
ROLE AND MANDATE OF THE CENTRAL DRUG AUTHORITY (CDA)
The CDA is a statutory body established and functioning in terms of the Prevention and
Treatment of Drug Dependency Act (20 of 1992) and in terms of the forthcoming Act 70
of 2008 as amended, and serves for a period of five years in the following capacity:
Giving effect to the National Drug Master Plan (NDMP);
Advising the Minister of Social Development, the chairperson of the Inter-Ministerial
Committee on any matter associated with abuse of drugs, and
Reviewing the NDMP every five years.
The NDMP of 2006 – 2011 was the blueprint used to combat substance abuse in South
Africa during that period. Its mission was to: “strive towards a drug free society”. The
CDA was established with its mandate being to give effect to the NDMP.
In pursuing this mandate the CDA is required to:
Direct, guide and oversee the implementation of the NDMP;
Monitor and evaluate the success of the NDMP,
Make such amendments to the NDMP as are necessary for success;
Review the NDMP every five years, and
Produce a new NDMP for the period 2012-2016.
The CDA‟s mandate requires that it:
Coordinate the efforts of all departments (at national and provincial level) to
combat substance abuse;
Facilitate the integration of the work of the different stakeholders (including the
provincial and departmental organisations), and to
[Type text]
Page 15
National Drug Master Plan 2012 - 2016
Report to parliament on achievements related to the outcomes of the NDMP and
the outputs achieved by the institutional framework supporting the CDA (i.e. the
national and provincial supporting structure of Departmental, Provincial
Substance Abuse Forums and Local Drug Action Committees) in achieving that
mission.
MEMBERSHIP OF THE CDA
The CDA membership comprises of 12 appointed members from the private sector
(who are considered experts in the substance abuse field), representatives of fourteen
national departments and three national government entities (29 members in total).
Members of the CDA serve for a five-year period, with meetings of the whole body
(General Meetings) scheduled quarterly, and meetings of the Executive Committee
scheduled monthly.
The departments, entities and other stakeholders represented include:
Department of Arts and Culture
Department of Correctional Services
Departments of Basic and Higher Education
Financial Intelligence Centre
Department of International Relations and Co-operation
Department of Health and Medicines Control Council
Department of Home Affairs
Department of Justice and Constitutional Development
Department of Labour
National Youth Development Agency
Secretariat for Safety and Security
Department of Social Development
South African Police Service
[Type text]
Page 16
National Drug Master Plan 2012 - 2016
South African Revenue Service
Department of Trade and Industry
Department of Transport
12 Experts drawn from:
Research councils and universities
Representatives of civil society
Non-governmental and faith-based organisations
Business and industry
Community-based organisations
Treatment centres (inpatient and outpatient)
Accredited addiction counsellors
Representatives of the provincial substance abuse forums
ROLES OF MEMBERS OF THE CDA
The role of the CDA as a whole is as described in the preceding paragraph where the
CDA functions as a team in executing its mandate. In addition to this role, members of
the CDA are required to serve the CDA in a variety of roles as described below.
The expert members collectively and individually are expected to apply their expertise in
the field of substance abuse in the development and application of the key integrated
strategy of demand, supply and harm reduction and in the development and
implementation of policies, protocols and practices relating to the process of prevention,
treatment, aftercare and re-integration into society of those persons affected by
substance dependence. They are expected, in addition to participate in the clusters of
departmental and provincial organisations involved in the development of departmental
and provincial DMP‟s and in the execution of the CDA‟s mandate.
As an additional function, expert members of the CDA serve as the liaison between the
CDA and the various provincial organisations, specifically the Provincial Substance
Abuse Forums, and in so doing attend the various meetings of those forums.
[Type text]
Page 17
National Drug Master Plan 2012 - 2016
Departmental and provincial representatives collectively and individually are expected
together with the 12 experts to lead the development of their respective Departmental
and Provincial Drug Master Plans by applying their particular expertise in the functioning
of their departments and provinces to the interpretation of the National Drug Master
Plan. They too are expected, in addition to participate in the clusters of departmental
and provincial organisations involved in the execution of the CDA‟s mandate, and to
guide and co-ordinate their activities so as to achieve that mandate.
ROLE OF THE SECRETARIAT OF THE CDA
The CDA is supported by a Secretariat whose role it is to ensure that the day-to-day
work of the CDA is carried out based on the outcomes required by the NDMP and to
provide such administrative support as is required by the CDA and its supporting
infrastructure or institutional framework.
DEVELOPING THE NDMP 2012-2016
REVIEW OF THE NDMP 2006-2011
The mandate of the CDA requires that, in formulating a „new‟ five-year NDMP for the
period 2012-2016, it first review the previous NDMP 2006-2011, analyse achievements
and determine those aspects that require further attention in the „new‟ NDMP. In
addition the CDA is required to incorporate into the new NDMP those aspects of
relevant international policy as well as to address those aspects of substance use,
abuse and dependency of a specifically South African nature.
In addressing these three aspects the CDA, inter alia:
Held a workshop of its stakeholders in September 2010
made on the NDMP 2006-2011;
to review the progress
Attended various local and international conferences and analysed the effects on
the South African situation;
Analysed the reports emanating from the CDA supporting infrastructure,
including those of departments represented on the CDA and the provincial
substance abuse forums;
Conducted research into the problem of substance abuse in South Africa;
[Type text]
Page 18
National Drug Master Plan 2012 - 2016
Carried out a door-to-door survey and an awareness campaign as mentioned
earlier, and
Held the 2nd Biennial Anti-substance Abuse Summit from which arose 34
resolutions representing community needs in combating substance abuse.
KEY CHALLENGES ARISING FROM THE REVIEW OF THE NDMP 20062011
In carrying out the review of the NDMP 2006-2011 the CDA identified several
challenges and impediments that need to be addressed in the NDMP of 2012-2016. The
challenges to be addressed include, but are not limited to those listed below.
Re-align the strategy of the NDMP to meet the changing patterns of drug use,
misuse and abuse in South African communities and their needs, the identified
implications relating to legal aspects of alcohol and dependence-forming
substance use and abuse in South Africa as identified in the 34 resolutions of the
2nd Biennial Summit on Substance Abuse,
Re-align the strategy of the NDMP to meet the changing the changing strategies
of the United Nations Office on Drugs and Crime (UNODC) and the World Health
Organisation (WHO).
Re-align the research and development of the CDA to enable it to become
proactive in its efforts to identify and combat the changing threats posed by
substance abuse in South Africa and in neighbouring territories, especially those
related to the primary substances of abuse i.e. alcohol and cannabis.
Reposition the CDA in accordance with the recommendations of the Final Report
on the Review of the CDA so as to enable it more effectively to strive for the
achievement of the outcomes of the NDMP and to finance its efforts accordingly.
Develop the capacity and ability of the supporting structure of the CDA so as to
ensure the compilation and implementation of the departmental and provincial
Drug Master Plans (DMP‟s) by all departments and provinces using the principle
of clusters as applied at parliamentary level.
Implement the revised legislation on the substance abuse (Act 70 of 2008), its
accompanying regulations and necessary revisions.
[Type text]
Page 19
National Drug Master Plan 2012 - 2016
Provide and implement solutions to the problems of funding the CDA supporting
structure especially as related to the Provincial Substance Abuse Forums, the
Local Drug Action Committees and the Non-governmental Organisations, the
related protocols and the Public Service Financial Management Act.
Create, through capacity-building, research and development and by marketing
and communication, effective partnerships between the CDA, Southern African
and other countries, national and global organisations in striving to achieve the
outcomes of the NDMP.
Develop the National Database on Substance Abuse so as more easily to
monitor and evaluate progress made relating to combating substance abuse in
South Africa.
Develop the capacity and ability of the supporting structure of the CDA so as to
ensure the submission of reports in a format that will enable the accurate
assessment of the outcomes and outputs of the NDMP and enhance the
utilisation of the National Database on Substance Abuse and the accompanying
clearing-house.
THE NATIONAL DRUG MASTER PLAN 2012-2016 IN OUTLINE
NDMP AND „DRUGS‟ DEFINED
The United Nations Drug Control Programme (UNCDP) defines a „drug master plan‟ as
a single document covering all national concerns regarding drug control. It summarises
national policies authoritatively, defines priorities and allocates responsibility for drug
control efforts. In essence, the drug master plan is a national strategy that guides the
operational plans of all departments and government entities involved in the reduction of
demand for, supply of and the reduction of the harm associated with the use, abuse and
dependence on dependence-forming substances.
For purposes of the NDMP the term „drugs‟ refers to illicit drugs as defined in the Drugs
and Drug-trafficking Act (Act No. 140 of 1992), to the commonly abused licit medicines
both prescribed and over-the-counter, to alcohol and tobacco and to volatile solvents
and other as yet undefined substances which are dependence-forming.
For
convenience the terms „drugs‟, substances (of abuse), dependence-forming substances
and, alcohol and other drugs (AOL) are considered interchangeable in the NDMP.
[Type text]
Page 20
National Drug Master Plan 2012 - 2016
THE INTEGRATED AND BALANCED APPROACH TO THE SUBSTANCE
ABUSE PROBLEM APPLIED IN THE NDMP 2012-2016
In the field of substance abuse it is generally accepted that a balanced approach to
dealing with the problem is necessary i.e. no single approach such as criminalising or
decriminalising substances or abusers would provide a complete solution. Rather it is
advocated that a balanced approach be applied, using an integrated combination of
strategies. The commonly recognised strategies listed below are those applied in the
NDMP 2012-2016.
Demand Reduction, or reducing the need for the substances by a variety of means that
include prevention by educating the potential users, by making the use of substances
culturally undesirable (such as was done with tobacco) and by imposing restrictions on
the use of substances for example by increasing the age at which alcohol may be used
legally.
Supply Reduction, by reducing the quantity of the substance available on the market by,
for example destroying crops of cannabis (dagga) in the field.
Harm Reduction, the process of limiting or ameliorating the damage caused to
individuals or communities who have already succumbed to the temptations of
dependence-forming substances. This can be achieved, for example, by treatment,
aftercare and re-integration of substance dependents into society.
Supply
Reductio
n
Demand
Reductio
n
[Type text]
Harm
Reduction
Page 21
National Drug Master Plan 2012 - 2016
Figure 2: Integration and balance in the application of the three elements of the
strategy
APPLICATION OF THE INTEGRATED STRATEGY IN THE NDMP 2012-2016
In applying the integrated strategy to the NDMP 2012-2016, firstly the impact and key
Specific Outcomes derived from the review of the NDMP 2006-2011 were described in
the terms required by the basic concepts in Monitoring and Evaluation (PSC, 2008).
These outcomes are shown in the table below.
8. Reduced bio-,socio-economic impact of substance abuse and related illnesses
on the South African Population
9. All people in South Africa able to deal with problems related to substance abuse
within communities
10. Recreational facilities and diversion programmes prevent vulnerable populations
from becoming substance dependents
11. Availability of substance dependence-forming drugs and alcoholic beverages
reduced
12. Multi-disciplinary and multi modal protocols and practices for integrated
diagnosis treatment and funding of substance dependence and co-occurring
disorders developed and implemented
13. Laws and policies to facilitate effective governance of the alcohol and drug
supply chain harmonised and enforced
14. Job opportunities in the field of combating substance abuse created
Figure 3 : Key outcomes of the NDMP
Secondly, continuing in the format required by the logic model of the monitoring and
evaluation process, the key outcomes were then translated into NDMP, departmental
and provincial DMP-specific outcomes, outputs, activities and targets and responsibility
allocated for their achievement.
Thirdly, in terms of the roles and responsibilities of the members of the CDA, the
departments and provinces in their various clusters were required to translate these
outputs and activities into departmental and provincial DMP‟s for achievement by their
respective organisations and clusters, using the elements of the integrated strategy
[Type text]
Page 22
National Drug Master Plan 2012 - 2016
(Demand, Supply and Harm Reduction) and the interventions associated with these
elements as exemplified in the previous section.
Fourthly, the application of the departmental and provincial DMP‟s through the
Provincial Substance Abuse Forums and the Local Drug Action Committees and other
stakeholders follows thus, hopefully, achieving the impact desired, the outcomes and
the outputs specified and the mandate of the CDA.
Fifthly, for the duration of the implementation phase, standardised reports on the
progress towards the achievement of the targeted outcomes and outputs in the DMP‟s
are generated by those responsible and submitted to the CDA and to the respective
departmental and provincial authorities.
Sixthly, and concurrently with the application of the DMP‟s the CDA executes a planned
cycle of monitoring, evaluation, adjustment and reporting in order to ensure the
achievement of the desired impact, outcomes and outputs, with the CDA providing
annual reports to the Minister of Social Development and Parliament.
This process is illustrated in the figure below.
[Type text]
Page 23
National Drug Master Plan 2012 - 2016
Figure 4 : Application of the NDMP 2012-2016
CHAPTER 3: COMMUNITY NEEDS AND THE DRUG PROBLEM
DETERMINING COMMUNITY NEEDS
As indicated in Chapter 1: Introduction a Rapid Participatory Assessment was
conducted in an effort to determine the communities‟ needs regarding the substance
abuse problems confronting them.
The population surveyed comprised:
Approximately 65% female and 35% male respondents;
The majority of the respondents were aged between 16 and 65, with less than
5% under the age of 16 years.
The respondents were mainly from the African (48.6%) and Coloured (34%)
population groups with the remainder of 18% being of other population groups.
Respondents were drawn from areas corresponding to urban (42.4%); Peri-urban
(20.20%); Rural (33%) and Semi-rural (6.6%).
[Type text]
Page 24
National Drug Master Plan 2012 - 2016
Figure 5 : Employment Status of Respondents
The bulk of respondents were unemployed (63%) while approximately were selfemployed (10%) and approximately 45% reported an income of less than R1000 per
month.
DOOR-TO-DOOR CAMPAIGNS AND PROVINCIAL SUMMITS
As part of the process of determining community needs related to substance abuse, in
both the door-to-door campaigns and provincial anti-substance abuse summits,
respondents were asked a series of standard questions by trained personnel.
In answer to questions relating to their knowledge of the substance abuse problem, the
respondents indicated that:
56% had knowledge of the problem, while 37% did not.
65% had a substance use in their home, while 35% did not.
Only 40% had knowledge of the support services available to substance users
and abusers.
Drugs mostly used are alcohol and cannabis, with others as indicated in the
figure below.
[Type text]
Page 25
National Drug Master Plan 2012 - 2016
Figure 6 : Drugs most used in Communities
EXTENT OF THE DRUG PROBLEM IN SOUTH AFRICA: ALCOHOL USE AND
ABUSE
MEASURES OF EXTENT
In assessing the extent in dealing with the alcohol problem in South Africa, similar
measures are used to those used in assessing the drug problem. Five indicators and
their trends over time are used to measure the extent of and success in combating the
alcohol problem:
Alcohol use as a means of defining the total number of persons engaged in the
activity and the types of alcohol used;
Alcohol production described in terms of production where it is manufactured in a
factory. This can be used to determine the potential supply of types of alcohol,
primarily „recorded alcohol‟ i.e. that made legitimately in a registered production
facility, and „unrecorded alcohol‟ of which some products are known are known
as „concoctions‟ made using other than acceptable ingredients, and others as
[Type text]
Page 26
National Drug Master Plan 2012 - 2016
„home brews‟ many of which use acceptable ingredients, both being made at
other than legitimate production facilities;
Alcohol prices as an indication of the economic impact of alcohol use;
Alcohol seizures, which provide data on underlying changes in unrecorded
alcohol use patterns, and
Treatment demand a term which gives some insight into the magnitude of the
alcohol problem by measuring both the number of people asking for treatment
and those receiving treatment for dependence-related symptoms, as an indicator
of impact on social support systems.
Social and economic cost or the use of additional data giving in financial terms
the social and economic impact of alcohol use on society is finding favour as a
more direct indicator of the cost to society of dealing with the problem. Presently
not one of the WHO indicators, deriving the social and economic cost requires
specific research to obtain the data in a particular country. Where such specific
research is not conducted, extrapolations of findings in similar countries are
advocated and commonly used.
ALCOHOL USE
In terms of recorded alcohol consumption, South Africa ranks 47th out of 189 countries
with a per capita consumption of 8.7 litres. When added to the unrecorded consumption
of illicit alcohol, the total rises to over 10 litres and when that figure is adjusted for the
number of current drinkers in the age group 15-64+ (approximately 11.8 million) in
South Africa, the figure rises to approximately 20.1 litres of pure alcohol per capita. This
places South African alcohol consumption among the highest in the world (CDA, 2010).
Risky drinkers (i.e. those who drink 3-5 standard units of alcohol per day) among the
current drinkers constitute 0.90 million drinkers (7.65%) during the week and 3.6 million
drinkers (31.5%) over weekends.
Problem drinkers (i.e. those whose drinking is considered to constitute dependence or
suffering from substance misuse syndrome), constitute on average 2.15 million drinkers
or 6% of the current drinker population.
Few studies have been done on the consumption of alcohol by the youth, one of the few
indicating that on average nearly 21% of boys in Grade 8 and 46% in Grade 11 stated
[Type text]
Page 27
National Drug Master Plan 2012 - 2016
that they had consumed alcohol within the past month; by contrast, 18% of girls in
Grade 8 and 33% in Grade 11 made the same claim.
Beer is most frequently drunk followed by sorghum or African traditional beer, wine,
brandy, other spirits, alcoholic fruit beverages, whisky, fortified wine and sparkling wine;
although drinking patterns are changing with less lager and more cider being drunk.
ALCOHOL PRODUCTION, CONSUMPTION AND PRICES
While recorded alcoholic drinks continued to see a steady growth in total value of
production, growth in volume stagnated in 2009 (Euromonitor International, 2010). This
was attributed to the current economic crisis which has resulted in consumers curbing
their expenditure on non-essential items and which has affected South African
consumption in the same way.
The high value growth is attributed to increased unit prices as manufacturers looked to
recoup the increased manufacturing and distribution costs.
Specialist retailers continue to be accountable for the vast majority of alcoholic drink
sales. However, while these outlets used to be companies that operated within this
market, several leading supermarkets have introduced their own brands and are setting
up their own specialist liquor outlets.
There is furthermore an increasing tendency in South Africa of the sale of alcohol from
outlets without the necessary licences and therefore an increasing difficulty in
controlling or regulating such sales which include sales to underage purchasers.
TREATMENT DEMAND
Alcohol remains the dominant substance of abuse throughout the country except the
Western Cape and the Mpumalanga/Limpopo region (a combination of the two
provinces as defined by SACENDU). Between 29% (Western Cape) and 69% (Free
State, Northern Cape and North-West) of patients in treatment have alcohol as the
primary substance of abuse.
The proportion of patients reporting alcohol as the primary drug of abuse remained fairly
stable except in KwaZulu-Natal where and increase was noted when compared to the
first half of 2009.
[Type text]
Page 28
National Drug Master Plan 2012 - 2016
Treatment demand for alcohol-related problems for persons under 20 years of age is
generally less common than for the general population (Pludderman, Parry, Bhana, &
Dada, 2009).
SOCIAL AND ECONOMIC COST OF ALCOHOL USE
A conservative estimate of the economic cost to South Africa of alcohol abuse based on
research studies conducted in other countries is 1-2%. Recent research in New
Zealand indicates that the social and economic cost is nearer to being 4.95% of gross
domestic product (GDP) per annum, with a current estimate being R104.8 billion.
Due to the multiplier effect of people functioning in families, risky drinking affects not
only the drinkers themselves, but also the members of their immediate families.
This multiplier effect means that 19.8 million people are affected by risky drinkers.
Problem drinking affects 11.8 million persons in families negatively both emotionally and
financially.
Risky and problem drinking therefore affects 88% of the population of South Africa
between the ages of 15 and 64+.
LINK BETW EEN ALCOHOL AND HIV/TB IN AFRICA
In 2008 an estimated 1.9-million people living in sub-Saharan Africa became newly
infected with HIV bringing the number of people in this area living with HIV to 22.4million.
There was an estimated 9.3-million new cases of tuberculosis (TB) worldwide in 2007,
with some 460 000 cases in South Africa (Donald, 2009).
At a conference in Cape Town in July 2008, 25 international experts from 8 countries
concluded that there are:
Strong and consistent associations between alcohol consumption and worse
disease outcomes (death and re-infection) for both HIV/AIDS and TB;
Well-explained pathways to describe these associations, and
Dose-response relationships clearly indicating that more problematic alcohol
consumption and abuse are linked to worse courses in the progression of these
diseases (Parry, 25 January 2010).
[Type text]
Page 29
National Drug Master Plan 2012 - 2016
EXTENT OF THE DRUG PROBLEM IN SOUTH AFRICA: ILLICIT DRUGS,
PRESCRIPTION AND OVER-THE-COUNTER MEDICATION
MEASURES OF EXTENT
The World Drug Reports 2006, 2008 and 2009 (United Nations Office on Drugs and
Crime, 2009) use five indicators and their trends over time to measure success in
combating the drug problem:
Drug use as a means of defining the total number of persons engaged in the
activity and the types of drug used;
Drug production described in terms of cultivation where the product is grown as a
natural product; and production where it is manufactured in a factory or
laboratory. This can be used to determine the potential supply of drugs;
Drug prices as an indication of the economic impact of drug use;
Drug seizures, which provide data on underlying changes in drug trafficking
patterns, and
Treatment demand a term which gives some insight into the magnitude of the
drug problem by measuring both the number of people asking for treatment and
those receiving treatment for dependence-related symptoms, as an indicator of
impact on social support systems.
Social and economic cost or the use of additional data giving in financial terms
the social and economic impact of drug use on society is finding favour as a
more direct indicator of the cost to society of dealing with the drug problem
(Business and Economic Research Ltd., 2009).
DATA ON SUBSTANCES OF ABUSE
For ease of reference and simplicity drugs are divided into three categories: (Snyder,
1986), (Van Niekerk, 1998).
Depressants, more correctly called „Central Nervous System Depressants‟ are the most
commonly used and abused illicit drugs in society. They work by slowing down the
[Type text]
Page 30
National Drug Master Plan 2012 - 2016
action of the central nervous system which controls the functioning of user‟s body,
ostensibly making the user calmer and more controlled. Downers include: alcohol,
inhalants (such as glue and lacquer thinners), analgesics or painkillers, tranquillisers,
hypnotics and sleeping pills, and narcotics (such as opium, morphine, heroin, codeine
and pethidine).
Stimulants, Central Nervous System stimulants work by speeding-up the way the body
and the mind work. Physically they create an immediate and intense „high‟ of very short
duration, an overpowering feeling of well-being, mental clarity and great energy.
Uppers include: tobacco, appetite suppressants, Ephedrine (found in decongestants
and asthma medication), cocaine and crack cocaine, and amphetamines or
amphetamine type substances (ATS), the most common of which is known as Ecstasy.
Hallucinogens. As the name implies these drugs of which the best known is dagga or
marijuana, cause the individual to see, hear, smell etc things which are not really
there. In addition to dagga, the category includes Lysergic Acid Diethylamide or LSD,
one of the strongest hallucinogens available.
POLY-DRUG USE
Although drugs are categorised by type, it is common practice for users to combine or
use more than one category of drugs at a time. Such multiple drug or poly-drug use is
meant to enhance the effect of the specific drugs on the individual or, in certain cases,
to disguise or conceal the use of a specific drug or drugs.
In addition it is common for drugs, especially combinations of drugs to be given local or
street names. Both the street names and the combinations differ from province to
province and region to region in South Africa from time to time.
Multiple- or poly-drug use remains high with between 30% and 45% of patients
reporting for treatment indicating more than one substance of abuse (Pludderman,
Parry, Bhana, & Dada, 2009).
TYPES OF SUBSTANCES OF ABUSE IN USE
The four types of drugs (on which the WHO reports) concerned are:
Cannabis (dagga), which is usually smoked separately or in combination with other
drugs;
[Type text]
Page 31
National Drug Master Plan 2012 - 2016
Opiates or derivatives of the opium poppy, normally smoked but in refined form may be
injected, with heroin being the form most commonly found in South Africa;
Cocaine, inhaled or „snorted‟ in powder form, and
Amphetamine type Substances (ATS) such as Ecstasy tablets and the local version of
crystal methamphetamine known as „tik‟. These are usually smoked in some form of
special holder.
OTC and Prescription medication involves the abuse of such medication as is
prescribed by medical practitioners or purchased „over-the-counter‟ from a pharmacy or
stockist of such medication.
DATA ON SOUTH AFRICAN DRUG PROBLEM
As stated earlier, accurate data on the nature and extent of the problem of alcohol and
/or other drugs in South Africa is not available as yet since no holistic national study on
the entire problem has been conducted.
The CDA commissioned a national survey of the problem to be completed in 2010.
Unfortunately, for reasons beyond the control of the CDA this survey has not been
completed at the time of writing (June 2011).
PRIMARY SUBSTANCES OF ABUSE
Cannabis is and remains the primary illicit drug of abuse with between 27% and 56% of
all patients reporting it as such. The proportion of persons citing cannabis as the
primary illicit drug of abuse increased slightly or remained stable. In Mpumalanga and
Limpopo cannabis is reported as the primary substance of abuse by patients who are
under 20 years old.
Cocaine use had shown an increase in a number of areas in the early part of 2009 but
seemed to be declining in the second part of the reporting period. Between 5% and
15% of patients reporting for treatment had have cocaine as a primary or secondary
drug of abuse.
Heroin as a primary drug of abuse remained fairly stable except in KZN where it has
declined significantly from 30% to 17% of patients reporting it as such. The high
proportion in this province is seen as the result of the use of „sugars‟ (a low quality
heroin and cocaine mixture) by young Indian males in South Durban. Heroin is mostly
[Type text]
Page 32
National Drug Master Plan 2012 - 2016
smoked but there has been an increase in injection drug use (IDU) with between 9%
and 31% of patients reporting (Pludderman, Parry, Bhana, & Dada, 2009).
ATS Treatment admissions for ATS (including club drugs such as crystal
methamphetamine or „tik‟) as primary drugs of abuse remains low except in Cape Town.
„Tik‟ remained the most commonly used primary drug of abuse in this area and the
proportion declined from 41% 36% in the reporting period. Among patients under 20
years of age its abuse declined slightly to 51% as compared to 55% in the previous
reporting period and 70% in 2006. ATS abuse in other areas remains low at between
1% and 10%.
OTC (Over-the-Counter) and Prescription medication continues to be an issue across
all provinces with between 1% and 12% of patients reporting it as primary or secondary
drug of abuse. Inhalant/solvent use among young people continues to be a problem
although the number reporting it as a primary or secondary drug of abuse is low.
TRENDS IN NUMBER OF USERS
Using available information it can be said that, in general South Africa is experiencing a
slight decline increase in the use of illicit drugs, with the exceptions listed above. As far
as can be calculated:
Cannabis: 8.4% (2.2 million) of the population used cannabis in 2004 as against the
global norm of 4% and 8.9% (2.52 million) in 2005/6 and 3.2 million in 2008, an
increase of nearly 20%, with the figure remaining stable or increasing slightly in 2009;
Opiates were used by 0.3% (0.079 million) of the population in 2004 compared with a
global figure of 0.4% and 0.4% in 2005/6 or 0.12 million, an increase of 25%, with the
2008 figures approximating 0.10 million, a decrease of 20%;
Cocaine was used by 0.8% (0.21 million) of the population in South Africa in 2004
compared with a global norm of 0.4%; in 2005/6 that figure increased to 0.24 million and
in 2008, 0.29 million, an increase of 20% again, but declined in the first half of 2009;
ATS was used by 0.8% (0.21 million) of the population as against the global norm of
0.4% in 2004; and in 2005/6 by 0.9% or 12.5% to 0.27 million, and in 2008 0.32 million
or another 20% and appeared to decline in 2009.
[Type text]
Page 33
National Drug Master Plan 2012 - 2016
The slight downward trend has been ascribed to the global decline in economic activity
and the resulting reduction in disposable income. This is expected to lead to a shift in
drug usage from „traditional‟ narcotic drugs to manufactured drugs such as the ATS
group, a cheaper variety which is usually available in local areas and does not need
importing.
AGE AND POPULATION DISTRIBUTION
The proportion of patients under 20 years of age ranged from 16% in the Free State,
Northern Cape and North-west Province to 28% in KZN.
The proportion of Black/African patients in treatment is still substantially less than would
be expected from population demographics. The proportions have however increased
over time among young patients in Gauteng and Mpumalanga. In Gauteng during the
period under review 66% of patients less than 20 years of age were Black (Pludderman,
Parry, Bhana, & Dada, 2009) and in Mpumalanga/Limpopo 75%.
DRUG PRODUCTION AND CONSUMPTION
Cannabis: Cannabis is one of the two drugs produced in South Africa. Twenty-two
percent of the world‟s harvest of cannabis herb comes from Africa where it is produced
in almost every country. The largest producer is South Africa with about 2 500 metric
tons of the total of 8 900 metric tons produced i.e. 28% of the African production and
7% of the world production.
ATS.: Methamphetamine can be made by using a variety of licit precursor chemicals
and simple processes. Manufacture takes place n mega- and super-laboratories and in
the more common small kitchen-laboratories. This convenience of manufacture makes
ATS the most widespread of illicit drugs and makes the total amount produced
extremely to estimate. Increasingly too, the detection of the ATS laboratories is
becoming more difficult as they are located in hard-to-detect areas. At the last estimate
there were 35 such laboratories still functioning. The number of such laboratories
dismantled increased by 55% between 2005 and 2006, with 17 such laboratories
reported dismantled in that time and another 15 in 2007/8.
[Type text]
Page 34
National Drug Master Plan 2012 - 2016
South Africa is one of the world‟s largest importers of licit ephedrine and
pseudoephedrine, two of the precursor chemicals used in the manufacture of
methamphetamine.
PRECURSOR CONTROL
Precursor control is aimed at controlling the manufacture and supply of chemicals used
in industry and in the production of pharmaceuticals and illicit drugs. Three statutes
govern precursor control in South Africa:
Article 12 of the 1988 United Nations Convention against Illicit Traffic in Narcotic
Drugs and Psychotropic Substances;
Section 3 of the Drugs and Drug Trafficking Act (No. 140 of 1992), and
Section 6 of the International Trade Administration Act (No. 71 of 2002), which
regulates the importation and export of precursor chemicals.
TREATMENT DEMAND
The SACENDU figure of 10 656 problem drug users treated at 65 treatment centres in
the six months ending July 2009 (Pludderman, Parry, Bhana, & Dada, 2009) indicates
that the treatment capacity (using the same sources) is approximately 21 000 per
annum.
SOCIAL AND ECONOMIC COSTS OF DRUG USE
Figures provided by the SA Revenue Service indicate that the known direct cost of drug
use in 2005 was roughly R101 000 million.
The social and economic cost of illicit drug use and alcohol has been calculated using
international data available and approximates 6.4% of GDP or about R136 380 million
per year. In addition up to 17.2 million persons (or roughly 1/3 of the population) in the
families of users are affected negatively both emotionally and financially by the
presence of the user in their midst; in the same way 1.78 million are affected by problem
users.
[Type text]
Page 35
National Drug Master Plan 2012 - 2016
LINK BETW EEN DRUG USE AND HIV/AIDS
The prevalence of Injecting Drug Use (IDU) varies considerably around the world, both
between and within countries. It is estimated that 15.9 million people worldwide are
injecting drugs and that up to 3 million of them are infected with HIV (United Nations
Office on Drugs and Crime :Southern Africa, 2010).
Until recently IDU was sthouight to be a problem only in Aisa, America and Europe, but
data colllected indicate that it is increasingly visible in Africa.
Although South Africa has one of the most severe levels of HIV and Aids infection in the
world, the extent of IDU and its relationship to the epidemic has not been adequately
researeched.
The CDA is presently, in conjunction with UNODC, making preparations to identify the
extent of the link between HIV and IDU in South Africa.
PRIMARY SUBSTANCES OF ABUSE: ALCOHOL AND CANNABIS
In the door-to-door rapid participatory assessment community respondents indicatred
that in their opinions alcohol and cannabis were the two primary substances of abuse.
This opinion is supported by the available data which states that:
Alcohol remains the dominant substance of abuse throughout the country except
the Western Cape and the Mpumalanga/Limpopo region; and
Cannabis is and remains the primary illicit drug of abuse with between 27% and
56% of all patients reporting it as such. The proportion of persons citing
cannabis as the primary illicit drug of abuse increased slightly or remained stable.
In Mpumalanga and Limpopo cannabis is reported as the primary substance of
abuse by patients who are under 20 years old (Sacendu 2009)
COMMUNITY NEEDS AND PRIORITIES IN DEALING WITH THE DRUG PROBLEM
In stating what they required in order to address successfully the drug or substance
abuse problem in communities, respondents in the door-to-door survey indicated that
[Type text]
Page 36
National Drug Master Plan 2012 - 2016
the factors they desired to have addressed by the powers that be, in order of priority
were as illustrated below.
Figure 7: Community needs in order of priority
As indicated in Chapter 1: Introduction and Figure 1 these factors are defined as being,
in order of priority:
Better parenting, or the need for the development and application of parenting
skills and competencies that will enable members of the community to deal with
the problems of substance abuse;
Recreation or providing facilities and opportunities for especially the youth to
occupy the time and resources which might otherwise be devoted to substance
abuse;
Shut taverns, a plea, related to the availability of alcohol and drugs, to remove
this source of dependence-forming substances.
[Type text]
Page 37
National Drug Master Plan 2012 - 2016
Law enforcement the application of policies, laws, protocols and practices
designed to reduce the threat of substance abuse;
Spiritual, the provision of facilities and opportunities for spiritual or religious
observance;
Availability or reducing the availability of dependence-forming substances such
as alcohol and cannabis;
Knowledge, or knowledge of the process of identifying and dealing with the
problems of prevention, treatment, aftercare and re-integration into the
community of those affected by substance abuse;
Rehabilitation, provision of access to and application of detoxification,
rehabilitation, aftercare and reintegration into society for those suffering from
substance dependency
Influence, or the ability to persuade members of the community to become
involved in the process of dealing with substance abuse;
Healthy mind, or the ability to resist the temptation to abuse substances, coupled
with the concept of bipolar problems;
Employment or lack therof, and
Poverty; The lack of an adequate means of support.
[Type text]
Page 38
National Drug Master Plan 2012 - 2016
In an attempt to identify the key strategies and interventions needed to satisfy the
community needs and priorities, these needs were grouped into common categories
and the results compared to the three elements of the integrated strategy i.e. Demand
Reduction, Supply Reduction and Harm Reduction. The results are shown in the figure
below.
From the figure it can be seen that the 12 priorities of the community can be grouped
into six categories i.e.
Re-education or better parenting, spiritual, knowledge, influence and healthy
mind.
Recreation.
Reduction or shut taverns reduce availability.
Re-enforcement or law enforcement and reduce availability.
Rehabilitation.
Re-employment or increased employment and reduced poverty.
[Type text]
Page 39
National Drug Master Plan 2012 - 2016
Figure 8 : Factors linked to Integrated Strategy
Further analysis shows that these six factors can be grouped into the three elements of
the integrated strategy. Re-education and Recreation form part of the Demand
Reduction strategy; Reduction and Re-enforcement fall into the Supply Reduction
category, and Rehabilitation and Re-employment into the South African interpretation of
Harm Reduction.
It is thus clear that the needs of the community can be dealt with by the application of
the interventions applied in each of the three strategic elements, with the proviso that
they ought to be dealt with in terms of the priorities expressed by the community.
.
[Type text]
Page 40
National Drug Master Plan 2012 - 2016
CHAPTER 4: STRATEGIC APPROACHES TO DEALING WITH THE DRUG
PROBLEM
EVALUATION OF THE IMPLEMENTATION OF THE NDMP 2006-2011
The CDA, together with representatives from the provinces held a review of the NDMP
2006-2011 in September 2010. During the review several factors became evident that
indicated the need for the strategy followed in that NDMP to be adapted in order to meet
the challenges emerging from a changing world drug strategy and associated aspects.
CHANGING WORLD DRUG STRATEGY
The predominant strategy for dealing with the drug problem had, for years, been that of
„Supply Reduction‟. The UNODC and the WHO have recently advocated a change to a
strategy of „primary prevention‟ i.e. a strategy based on the need to prevent potential
substance dependents from becoming in the first place. This strategic shift is linked to
several factors including:
The globalisation of drug use and trafficking;
The trend to decriminalise and legalise illicit drugs in certain countries;
Changing patterns of use among the user population, including the growth in
poly-drug use and in the use of prescription and over-the-counter drugs;
The development of cheaper, more accessible drugs;
The recognition of alternative approaches to dealing with potential substance
dependence, highlighted by developments in research into the nature and
causes of addiction, and
A growing awareness of the need for „localised‟ approaches to the problem, i.e.
solutions specifically applicable to countries and regions where the approaches
are applied.
CHANGES IN PERCEPTIONS IN SOUTH AFRICA
In South Africa similar changes in perceptions were occurring over the period of
currency of the NDMP 2006-2011. These included:
[Type text]
Page 41
National Drug Master Plan 2012 - 2016
A realisation that in many cases substance abuse is a primary underlying cause
of social ills;
A perception that there is a link between culture and the acceptance of
substance use;
A perception of the link between lower Quality of Life and substance abuse;
Acceptance that changes in the patterns of substance use and abuse need a
culture change that takes place over a long period of time (a generation change
cycle);
Realisation of the need to adjust the NDMP strategy to meet the needs of local
substance use and abuse tendencies, usage patterns and cultures,;
The need to shift to community-based and –driven approaches to the substance
use and abuse problem, and
The need for „service delivery‟ where the communities realise that their needs are
being met by the achievement of predetermined targets.
DEMAND FOR MEASURABLE ACHIEVEMENT
A realisation emerged during the lifecycle of the NDMP 2006-2011 that despite the
business plan derived from it having been formulated in terms of results to be achieved
(impact, outcomes and outputs) the interventions applied were viewed by those
responsible in terms of activities (things to do instead of measurable objectives to be
reached and were therefore not measurable.
The emergence in 2008 of a move by the government to change its functional style to
one requiring measurable achievements spurred on an increasing demand for
measurement of achievements and the application of a standardised form of monitoring
and evaluation.
The NDMP 2006-2011 did not make provision for such measures of achievement,
monitoring and evaluation.
IMPLEMENTATION OF THE NDMP
Achievement of NDMP outcomes, outputs and targets requires departments, provinces,
Provincial Substance Abuse Forums and Local Drug Action Committees to implement
[Type text]
Page 42
National Drug Master Plan 2012 - 2016
the integrated strategy of demand reduction, supply reduction and harm reduction as
stipulated in the NDMP. Ideally, all these elements of the strategy should be described
in the relevant Departmental and Provincial DMP‟s with the emphasis in each being on
the mandate of the organisation concerned and the specific problems identified in its
area of responsibility. In the event, the implementation process is continuing to be
carried out in accordance with the mandates of the departments. It has however
become clear that two key weaknesses appear in this approach:
Departments and provinces concentrate on their respective mandates, without
necessarily consulting other relevant departments, and produce DMP‟s which do
not necessarily link with those of other departments i.e. the silo effect applies;
Representatives of departments and provinces serving in the CDA and in the
supporting infrastructure do not always have the necessary expertise in the field
of substance abuse needed to develop effective DMP‟s
A third problem that arises in the preparation of DMP‟s is that, apparently because of
the relatively low rank of certain representatives of the CDA in the various departments
and provinces, the relatively low priority given to the drug problem and the inability of
the CDA to enforce the application of the process, many of the organisations forming
the supporting infrastructure of the CDA, have not yet submitted duly authorised DMP‟s.
IMPACT OF CDA STRUCTURE ON NDMP 2006-2011
During the currency of the NDMP 2006-2011 it became abundantly clear that the
structure of the CDA, the limits placed on its functioning as an Authority as envisaged in
Act 20 of 1992 as amended, as well as its lack of financial independence severely
hampered it in its attempts to achieve the vision and mission of the NDMP.
A separate report on the findings of an independent study into this aspect was provided
by the firm Deloitte and Touche. The report has yet to be implemented.
CHANGES NEEDED IN THE APPROACH TO THE SUBSTANCE ABUSE PROBLEM
IN NDMP 2012-2016
Arising from the review of the NDMP 2006-2011 it became clear that certain key
changes would be required in the new NDMP.
The key changes needed include:
[Type text]
Page 43
National Drug Master Plan 2012 - 2016
The change from a top-down method of devising solutions to a bottoms-up
approach;
A shift from a national approach to devising strategy (one size fits all) to a
community emphasis (different solutions to fit different needs);
A shift from a supply reduction approach to one of primary prevention within an
integrated strategy;
The development and application of evidence-based solutions wherever
possible;
The introduction of a monitoring and evaluation (M&E) approach to the
formulation of the results to be achieved i.e. impact, outcomes, outputs and
targets;
The adaptation of the NDMP and departmental and provincial DMP‟s to an M&E
approach;
The application of Research and Development to meeting the predicted needs
and future changes in the field of substance abuse;
Reporting in terms of the M&E needs instead of activities carried out, and
Extending the reporting base outside the CDA and supporting infrastructure to
include non-CDA sources and linked databases.
PUBLIC POLICY OPTIONS AND STRATEGIC INTERVENTIONS ON ALCOHOL
ABUSE
During the course of the implementation of the NDMP 2006-2011 it became apparent
that a variety of policies had been applied to dealing with the problem of substance
abuse, especially those applied to the alcohol problem and to a lesser extent to the
problem of the abuse of illicit substances.
It also became clear that the application of certain of these policies such as warning
labels on liquor bottles, and prevention programmes such as Ke Moja, little or no
attempt had been made to measure the success of such policies. Lack of measurement
of the achievements of the money and effort put into the application of policies of this
nature not only denies the public and the substance users knowledge of the value of the
policies but can, and in many cases does lead to fruitless expenditure.
[Type text]
Page 44
National Drug Master Plan 2012 - 2016
Regrettable though this may be the greater tragedy is the failure of such policies to
alleviate the problem of substance use, abuse and dependence in the lives of those
who so clearly could benefit by the application of tried and tested policies.
EFFECTIVENESS OF PUBLIC POLICIES ON ALCOHOL
Some forty-two public policies on alcohol have been used as a means to control the
consumption of alcohol in some part of the world (Babor et al: 2010) and the effects of
such policies measured.
Some of the policies used are similar to those proposed for use in the resolutions of the
2nd Biennial Anti-substance Abuse Summit, the contents of which are incorporated into
the NDMP 2012-2016.
Prior to their being included in the DMP‟s and Plans of Action of the departments and
provinces designated, the effectiveness of such policies needs to be considered.
Examples drawn from the work quoted above are included in the figure below.
In reading the descriptors in the table it should be noted that:
Effectiveness of a strategy or intervention is indicated by one to three asterisks
(*) with three being the highest;
Breadth of research support is indicated in the same way, and
Cross-national testing indicates by the number of asterisks whether the results
have been tested in one (0) or many countries (***).
Strategy
intervention
Pricing
taxation
or
Effectiveness
Breadth of
research
support
Crossnational
testing
and
Comments
How
population
consumption is affected
Alcohol taxes
***
***
***
Evaluated on
consumption
Tax on alcopops
or youth-oriented
beverages
*
*
*
Evidence that higher
reduce consumption
Regulating
physical
[Type text]
Effect
on
consumption
level
population-level
prices
population-level
Page 45
National Drug Master Plan 2012 - 2016
availability
Ban on sales
***
***
***
Effectively reduces consumption
but encourages black market
Ban on drinking in
public places
?
*
*
Affects young or marginalized
high-risk drinkers
Strategy
intervention
Effectiveness
Breadth of
research
support
Crossnational
testing
Comments
***
***
**
Effective in reducing traffic
accidents but needs enforcement
Hours and days of
sale restriction
**
**
***
Effective where hours reduce
availability and where problems of
violence late at night occur
Restrictions
on
density of outlets
**
***
**
Evidence for both reduction of
consumption and problems
Minimum
age
or
legal
Modifying
the
drinking
environment
Server liability
Staff training, legal liability
**
**
*
Drink–driving
countermeasures
Effects stronger where efforts
made to publicise liability
Effect on traffic accidents
Sobriety
points
check
**
***
***
Effects typically short-term
Random
testing
breath
***
**
**
Consistent enforcement needed
Lowered
limits
BAC
***
`***
***
The lower the BAC level, the
more effective the policy
Admin
licence
suspension
**
**
**
Effectiveness increased by swift
punishment
Low
BAC
for
young
Drivers
(Zero tolerance)
***
**
**
Clear evidence of effectiveness
for those below legal drinking
purchase age
Restrictions
marketing
Legal
on
restrictions
[Type text]
Effects of
promotion
*/**
***
**
advertising
and
Evidence of small per capita
Page 46
National Drug Master Plan 2012 - 2016
on marketing
reduction
Education
persuasion
and
Education
persuasion
classrooms
and
in
0
***
**
May increase knowledge and
change attitudes but no long-term
effect on drinking
Mass
media
campaigns,
including
drinkdriving campaigns
0
***
**
No evidence of impact
messages on limiting drinking
Warning
and signs
0
*
0
Raise public awareness but do
not change drinking behaviour
labels
Effect on onset and drinking
problems
Treatment
and
early intervention
Evaluation
abstinence
of
period
of
of
Mandatory
treatment of drinkdriving offenders
*
**
0
Punitive and coercive approaches
have time-limited effect
Medical and social
detoxification
***
**
**
Safe and effective for treating
withdrawal aymptomsa
Pharmaceutical
therapies
*
**
**
Consistent evidence of moderate
improvement
Figure 8: Effectiveness of alcohol policy options
EFFECTIVE ALCOHOL POLICY OPTIONS
Arising from the research results on public policies on alcohol as illustrated in the table
above, the strong policies are those that relate to:
Restrictions on affordability;
Availability;
Accessibility, and
Drink-driving deterrence measures (Babor et al, 2010: 242)
Of all the policy options, alcohol taxation is rated as one of the strongest and is
supported by extensive and convincing research findings.
[Type text]
Page 47
National Drug Master Plan 2012 - 2016
In addition to alcohol taxation the evidence is strong for the restriction of physical
availability (e.g. reduction in numbers and placing of outlets such as taverns and stores
supplying liquor), and limits on hours and days of purchase. Availability theory indicates
that consumption increases with the increase of easy access to alcohol.
In addition to alcohol taxation and restricting availability, most drink-driving
countermeasures if constantly enforced are highly effective.
PUBLIC POLICY OPTIONS AND STRATEGIC INTERVENTIONS ON DRUG
ABUSE
Designing and implementing policies to combat the abuse of drugs (dependenceforming substances) other than alcohol) is less straightforward than doing so for alcohol
alone. It is commonly asserted that drug problems will unfortunately always be with us
(Babor et al, 2010 b) in some form no matter what policies are put into practice. Drug
problems (unlike technical problems like water purification) cannot simply be solved and
forgotten) social problems like this will need to be solved again and again as society
changes and as the value system of that society changes.
Drug policy can minimise the damage caused by drugs and influence the type of
problem that continues to exist but does not enable a society to be completely drug-free
(ibid: 252).
As with alcohol policy a range of policy options has been tested and their effectiveness
or otherwise determined. A selection of the policy interventions and the conclusions
reached about them is presented in the figure below.
INTERVENTION
School,
family
community
programmes
EFFECTIVENESS
and
COMMENTS
Target:
non-users,
users, parents and
public
Family/parenting
Some effect
reducing onset
Environmental/Classroom
Some
evidence
supporting Good
Behaviour Game
[Type text]
RESEARCH
SUPPORT AND
CROSSNATIONAL
TESTING
in
USA only
Few studies
USA
casual
general
Some positive findings
in
Some evidence of reduced
lifetime drug abuse up to 50%
Page 48
National Drug Master Plan 2012 - 2016
Social or life skills
Limited evaluation
beyond immediate
and
short-term
effect
USA only
Positive results for cannabis and
other drugs
Information/knowledge
only
None
A few US schoolbased studies
Effect sizes small or neglible
INTERVENTION
EFFECTIVENESS
RESEARCH
SUPPORT AND
CROSSNATIONAL
TESTING
COMMENTS
Drug testing in schools
No evidence
No
research
available
Programmes could have negative
effects on trust levels
Services to
behaviour
change
Target: Drug users
Methadone maintenance
Good evidence for
reduced drug use
Numerous
studies in highincome countries
Dosing level and
treated important
Buprenorphine
maintenance
Good evidence for
reduced drug use
Numerous
studies in highincome countries
May reduce overall drug-related
mortality
Heroin substitution
Recent
limited
evidence
for
effectiveness
Demonstration
programmes
evaluated
in
some countries
Potential positive results
Opiate antagonists e.g.
Naltrexone
Some evidence
Few
studies
outside USA
No evidence
effectiveness
Needle
programmes
May reduce HIVrelated infections
Most
research
done in USA,
Canada, UK and
Australia
May
prevent
HIV-related
infections. No evidence on
Hepatitis C reductions.
Psychosocial treatment
Good evidence for
reducing drug use,
problems
and
criminal activity
Numerous
studies in many
countries
Often combined with
treatment modalities
Peer
self-help./support
organisations
Good evidence for
reducing drug use,
problems,
crime
and infections
Evidence
available
from
several countries
A very cost-effective way
manage chronic drug users
[Type text]
exchange
of
populations
medications‟
other
to
Page 49
National Drug Master Plan 2012 - 2016
Naloxone distribution
Minimal
good
equality evidence
Few studies
Brief interventions
Good evidence for
reducing drug use
Variety
countries
Supply
interventions
May have limited applicability
of
control
Evidence available for a variety of
substances
Target: Producers
market users
or
illicit
INTERVENTION
EFFECTIVENESS
RESEARCH
SUPPORT AND
CROSSNATIONAL
TESTING
COMMENTS
Alternative development
No
known
correlation
with
drug use
Qualitative
available
May be counter-productive
Crop eradication
Sometimes
noticeable
but
short-term effect
Qualitative
evaluation
in
Latin
American
countries
Often results in shift in production
Good evidence for
temporary
disruption in drug
market
Several studies
Low implementation cost but high
enforcement cost
Some evidence of
diminishing returns
Few
investigations
High prison management costs
Precursor
control
chemical
Imprisonment
Criminalisation
decriminalisation
info
and
Target: Drug users, especially
cannabis users
Shifting
between
criminalisation and other
penalties
Modest
or
no
effect on cannabis
users
Several studies
Some benefits to criminal justice
system
Changing the level of
criminal penalties
Moderate or no
effects
on
cannabis users
Contested
literature studies
Some benefits to criminal justice
system
Switching
between
diversion and legalisation
Circumstantial
evidence of effect
of Dutch system
No
controlled
research
Contested results
Regulatory
interventions
[Type text]
Target: Medically inadvisable
use or changing prescribing
behaviour of doctors or selling
by pharmacologist
Page 50
National Drug Master Plan 2012 - 2016
Restrict over-the-counter
sales
Conflicting results
Mostly USA
Some evidence on pain killers
Prescription requirements
Support for some
effect
Only one study
on psychoactive
studies
Varying effects on sales
Prescriptions restrictions,
registers and monitoring
Reduced
prescription
targeted drugs
Many studies
Harmful substitution may result
INTERVENTION
EFFECTIVENESS
RESEARCH
SUPPORT AND
CROSSNATIONAL
TESTING
COMMENTS
Controls
on
opiate
substitution therapy
Some reduction of
overdoses
Several countries
Some evidence
diversion
of
for
reduced
Figure 9: Effectiveness of Drug Policy options
EFFECTIVE DRUG POLICY OPTIONS
Science is unable to forecast confidently the precise effects of many drug policies i.e.
there is no known policy or set of policies that can be advocated as being effective.
There is however some consensus about the following conclusions on drug policy
options (Babor et al: 2010 b) which can be used to guide policymakers.
No single effective drug policy: There is no single drug problem within or across
societies; nether is there a magic bullet (or single policy) that will solve „the drug
problem‟;
Drug policies have unintended consequences: Many policies that affect drug
problems are not considered drug policy, and many specific drug policies have
large (and sometimes unintended) effects outside the drug domain;
Crop destruction does not reduce supply: Efforts by wealthy countries to curtail
cultivation of drug-producing plants in poor countries have not reduced aggregate
drug supply or use in downstream markets, and probably never will;
Increased punishment yields little benefit¨ Once a drug is made illegal, there is a
point beyond which increases in enforcement and incarceration yield little added
benefit;
[Type text]
Page 51
National Drug Master Plan 2012 - 2016
Evidence-based services reduce drug-related problems: Substantial investments
in evidence-based services for opiate-dependent individuals usually reduce drugrelated problems;
Prevention programmes have modest impact: School, family and community
prevention programmes have a collectively modest impact, the value of which will
be appraised differently by different stakeholders;
False assumpstions mislead policymakers: The drug policy debate is dominated
in many countries by four false dichotomies that can mislead policymakers about
the range of legitimate options and their expected impacts; the four false
assumptions are:
Firstly, law enforcement and health services/social development
approaches are not separate and exclusive approaches, but each make
significant contributions to the others‟ allegedly exclusive mission, both are
viable and supportive approaches;
Secondly, the contrast between services that target drug use (prevention,
treatment, aftercare and re-integration into society) as against those that
target the damage or harm caused by drug use is less distinct than
presupposed; a society that offers „harm reduction‟ services will find that
some users become abstainers, and one that supports only abstinenceoriented services will discover that some service users attain nonabstinence outcomes that reduce harm;
Thirdly, the distinction between „good‟ drugs‟ (those legally available or
prescribed) and „bad drugs‟ (those that are neither) is too simplistic, as
can be seen from the effects of tobacco and of cannabis on health and the
increasing abuse of prescribed and over-the-counter drugs, and
Fourthly, the reputed need to compromise between investing in services in
the interests of heavy drug users (detoxification, treatment and aftercare)
and investing in those of the rest of society is often overestimated; for
example treatment centres for substance abuse may benefit not only
those service users but also prevent more HIV infections among nonabusers than they do among substance users, because of the knock-on
effect of stopping the spread of the disease at one of its sources.
[Type text]
Page 52
National Drug Master Plan 2012 - 2016
Uniintended and perverse consequences prevalent: Perverse or unintended
consequences of drug policy are prevalent;
Legal pharmacelutical system affects range of policies available: The legal
pharmaceutical system can affect the shape of a country‟s drug problem and its
range of available policy options, and
Guidance from scientific research limited: There is virtually no scientific research
to guide the improvement of supply control and law enforcement efforts.
EVIDENCE-BASED POLICIES AND PRACTICE
Although most scientific research has policy implications it was not until the 1970‟s that
scientific investigators began to evaluate systematically specific prevention, treatment
and enforcement policies in the field of illicit psychoactive substances (Babor et al,
2010: 8).
The scientific research carried out since then can be categorised as falling into three
broad groupings:
Natural experiments or studies of variations in environmental forces and their
effects on changes in drug use or consequences within a particular population;
Efficacy studies or evaluations of interventions with appropriate comparison
groups to account for natural changes over time, and
Effectivensss research, or the study of the effectiveness of a particular
intervention in natural settings.
In addition to these general research approaches, researchers have also investigated
the effects of drug policies using historical analysis, economics, sociology and
ethnography (ibid).
Given the extent of research into the drug problem evidence-based (or evidenceinformed) approaches to the development of (alcohol and-) drug policy can and should
be the primary basis on which policies and their application are selected and applied.
However other processes can, do and should also affect the choice of policies applied
in any particular case. It is necessary, in addition to considering evidence-based
policies to consider concurrently those democratic processes, religious or spiritual
[Type text]
Page 53
National Drug Master Plan 2012 - 2016
values, cultural norms and social traditions that inform how societies respond to harmful
drug use before selecting a particular policy or policies.
DEMAND REDUCTION STRATEGY
In Chapter 2 the commonly recognised strategies used in combating the drug problem
were mentioned. Those listed below are those applied in the NDMP 2012-2016.
Demand Reduction, or reducing the need for the substances by a variety of means that
include prevention by educating the potential users, by making the use of substances
culturally undesirable (such as was done with tobacco) and by imposing restrictions on
the use of substances for example by increasing the age at which alcohol may be used
legally.
Supply Reduction, by reducing the quantity of the substance available on the market by,
for example destroying crops of cannabis (dagga) in the field.
Harm Reduction, the process of limiting or ameliorating the damage caused to
individuals or communities who have already succumbed to the temptations of
dependence-forming substances. This can be achieved, for example, by treatment,
aftercare and re-integration of substance dependents into society.
Figure 10 : Demand Reduction interventions
[Type text]
Page 54
National Drug Master Plan 2012 - 2016
DEMAND REDUCTION OUTCOMES
The demand reduction strategy is aimed at preventing the onset of substance
dependence, and eliminating or reducing the effect of the conditions conducive to the
use of dependence-forming substances. Demand reduction interventions (the actions
that are used to implement the demand reduction policy are such that changes may
only produce permanent results if applied over a long period of time.
In applying the interventions their effectiveness as indicated in the two previous sections
on alcohol- and drug policies, and on evidence-based policy should be taken into
account.
DEMAND REDUCTION INTERVENTIONS
Demand reduction interventions require the application of one or more of the five
accepted methods contained in the social development approach to social problem
solving (Patel, 2006),(Van Rooyen, 2003). These five methods, their purpose and
examples of their application are:
Poverty reduction: aimed at reducing poverty in identified families and communities.
Interventions could include:
Providing social relief and social assistance to reduce the need for drug-related
crime, violence and employment;
Job creation projects to provide legal, sustainable employment;
Income generation projects with the same purpose.
Development: aimed at developing the competency of individuals, families and
communities to deal with drug-related social problems. Interventions could include:
Prevention programmes encompassing outreach and awareness;
Providing and encouraging role-modelling of individuals who encourage
resistance to drug use (e.g. the Ambassadors programme of the Ké Moja project);
Peer and lay counselling on the prevention, identification and treatment of drugrelated problems;
[Type text]
Page 55
National Drug Master Plan 2012 - 2016
Applying self-help techniques to avoid or to deal with drug-related social
problems;
Creating community and youth services to counter the effects of drug-related
problems;
Creating family and community networks to provide support to individuals and
families with drug-related problems;
Providing early intervention to enable those at risk to stay within the family or
community.
Education and communication: designed to broaden the knowledge base of individuals,
families and communities faced with drug-related problems as a prerequisite for
empowering them to deal with these problems. Interventions could include:
Prevention programmes aimed at specific communities and groups within
communities;
Creating and staffing advice offices or links to the national database, national
clearing-house and call centre helpline;
Educational programmes on the prevention of drug problems such as the Ke-Moja
drug advice programme, the variety of programmes presented by the SA Police
Services (SAPS) and the Life Skills programme presented by the National
Department of Basic Education and provincial educational authorities;
Community theatre and storytelling to combat drug use and abuse.
Social policy application: development and application of social policy to address the
needs of the community in combating drug use and abuse. Interventions could include:
Using action research to develop and apply new ways of dealing with the drug
problem;
Applying existing policy on the early intervention in and prevention and treatment
of drug problems and the reintegration into society of drug users and dependents;
Developing policy to deal with aspects such as prevention and aftercare using, for
example, the models of prevention and aftercare developed by the national
Department of Social Development;
[Type text]
Page 56
National Drug Master Plan 2012 - 2016
Monitoring and evaluating the effectiveness of social development interventions
when dealing with drug-related problems.
Advocacy: using the experiences of families and communities to ensure systematic
changes to policies relevant to the drug problem. Interventions could include:
Increasing the knowledge base of communities to enable them to make
meaningful contributions to drug-related policy and practice;
Organising campaigns against the location of facilities that could negatively affect
the battle against drugs, for example the placing and licensing of taverns close to
schools and the identification of drug dealers and corrupt public officials;
Changing communication patterns to limit the exposure of susceptible persons to
advertisements, programmes and the like that exhort the use of habit-forming
substances.
MEASURES OF SUCCESS OR ACHIEVEMENT IN DEMAND REDUCTION
Success in Demand Reduction is measured by the success achieved obtained in
reducing the demand for and therefore the consumption of illicit drugs, licit and illicit
alcohol and selected other drugs with emphasis on the particular individuals, groups
and areas targeted by the programmes developed to implement the primary
interventions. Demand reduction data is required to quantify:
Trends in consumption of specified drugs
Measured resistance of defined population groups to starting to take specified
drugs
Trends in the growth and success of community interventions to counter drug
use.
Trends in the effectiveness of social policies developed to combat drug use.
[Type text]
Page 57
National Drug Master Plan 2012 - 2016
Trends in the effectiveness of the application of social policy to combat drug use.
It is as well to note that the number and spread of the activities or interventions used is
not a measure of the success of the interventions. For example; „reaching 5000 pupils
in 250 schools‟ is not a measure of the success of an intervention or programme aimed
at increasing the resistance of pupils to experiment with drugs. Rather the success of
the programme should be measured by the number of pupils in a given population who
do not take drugs, compared with a population who had not experienced the
programme.
SUPPLY REDUCTION STRATEGY
SUPPLY REDUCTION INTERVENTIONS
As the name implies, the supply reduction strategy interventions entails reducing the
supply of drugs (e.g. illicit drugs and alcohol) by inter alia:
Controlling the distribution of and access to raw drugs and precursor materials;
Controlling the production, manufacture, sale, distribution and trafficking of drugs,
precursor materials and manufacturing facilities;
Seizing and destroying precursor materials, raw materials and products, refined
drugs, production, manufacturing and distribution facilities and resources;
Taking legal action on the use, abuse, production, manufacture, marketing,
distribution and trafficking of precursor materials, raw materials and products,
refined drugs, manufacturing and distribution, and facilities and resources.
[Type text]
Page 58
National Drug Master Plan 2012 - 2016
Figure 11 : Supply Reduction outcomes
SUPPLY REDUCTION OUTCOMES
Supply reduction outcomes include the following:
Improved control over distribution of and access to raw drugs and precursor
materials;
Improved control over production, manufacture, sale, distribution and trafficking of
drugs, precursor materials and manufacturing facilities;
Increased seizure and destruction of precursor materials, raw materials and
products, refined drugs, production-, manufacturing- and distribution facilities and
resources;
Reduced drug-related crime; especially with respect to the use (e.g. driving under
the influence; use in prohibited areas such as prisons, schools etc) abuse,
production, manufacture and distribution (dealers, factories etc).
[Type text]
Page 59
National Drug Master Plan 2012 - 2016
Increased successful prosecutions for offences relating to use, abuse etc .in
contravention of existing legislation.
MEASURES OF SUCCESS OR ACHIEVEMENT IN SUPPLY REDUCTION
Attempting to achieve these results requires measures of success, achievement or
„impact‟ against which the CDA can assess performance using quantitative and
statistical data such as those listed below. In order to produce visible outcomes and
successes in the short-term (essential for acceptance and long-term viability) supply
reduction should measure the effects or impact of:
Trends in world drug markets and the South African market in specified illicit
drugs, licit and illicit alcohol and selected other drugs.
Production and sources of specified illicit drugs, licit and illicit alcohol and selected
other drugs in the same markets.
Seizures of specified illicit drugs, licit and illicit alcohol, selected other drugs,
precursor materials and production/manufacturing facilities in the same markets.
Prices of the specified illicit drugs, licit and illicit alcohol, selected other drugs and
precursor materials in the same markets.
Purity data on the specified illicit drugs, illicit alcohol and selected other drugs in
the same markets.
Consumption of the specified illicit drugs, licit and illicit alcohol and selected other
drugs in the same markets with emphasis on the South African markets both
provincial and regional.
Trafficking in the specified illicit drugs and selected other drugs with emphasis on
the South African markets both provincial and regional.
Control of the distribution and sale of and access to the specified illicit drugs, licit
and illicit alcohol, selected other drugs and precursor materials with emphasis on
the South African markets both provincial and regional.
Legal action taken to curb production, consumption and distribution of the
specified illicit drugs, licit and illicit alcohol, selected other drugs and precursor
materials with emphasis on the South African markets both provincial and
regional.
[Type text]
Page 60
National Drug Master Plan 2012 - 2016
HARM REDUCTION STRATEGY
HARM REDUCTION VERSUS HARM PREVENTION AND OTHER TERMS
In the South African context there have been suggestions that the term „harm reduction‟
should be replaced by the term ‟harm prevention‟ or another similar term. Whilst no
public debate has been entered into in this regard or formal written submission
received, the concept has been debated at CDA meetings. It would appear that the
reasoning arises both from the ethical view that harm reduction practices appear to
condone drug use, and that in medical terms the action taken should be seen to be
preventative.
In the light of the UNODC discussion in this regard, and the use by the UNODC of the
term „harm reduction‟ the CDA has accepted this term in the interim to describe the
variation of that process used in South Africa.
The term and its meaning are still under discussion, and will form part of the research of
the CDA in the 2012-2016 term of office.
HARM REDUCTION INTERVENTIONS
As the name implies, the concept of harm reduction accepts that despite efforts to
reduce the supply of and demand for drugs, some harm will accrue to the inevitable
users of such drugs and to their families and friends, the so-called „co-dependents‟ and
to society at large. Harm reduction, as practised in the more than 160 countries
embracing it, bases its interventions on three premises:
The human rights and the responsibilities of individuals and countries involved in
the drug problem;
The proven relationship between intravenous drug use and the spread of
HIV/AIDS and TB, and
The significant harm done to dependents, co-dependents and society at large by
the use, abuse and dependence on drugs.
In the South African context, many of the harm reduction interventions practised in other
countries are as yet unacceptable for reasons associated with the particular cultural and
religious beliefs of South Africans. Consequently, harm reduction interventions practised
in and applicable to South Africa have been selected for inclusion in this category and
[Type text]
Page 61
National Drug Master Plan 2012 - 2016
for application in the NDMP. Harm Reduction interventions endorsed by the WHO )
include those listed in the following paragraphs.
(UNODC, 2008)
Prevention and Early Intervention: programmes aimed at testing and advising
persons susceptible to addiction before they become problem users and if
necessary referring them for reduced-intensity detoxification and rehabilitation.
Detoxification and rehabilitation: treatment at selected medical facilities to wean
problem users from their drug(s) of choice and the undergoing of approved
rehabilitation programmes at registered treatment centres.
Aftercare and reintegration: both therapeutic and non-therapeutic care of
recovering dependents and associated co-dependents over a long period of time
is needed together with support for their reintegration into society. Aftercare and
reintegration are provided by treatment centres in conjunction with aftercare or
care-and-support organisations.
Medical treatment: the almost inevitable physical and mental harm to substance
dependents requires pre- and post-rehabilitation medical (and psychiatric and
psychological) treatment for recovering dependents and co-dependents.
Education and communication: interventions similar to those required for the
demand reduction strategy are required for harm reduction with the difference that
the primary purpose is to enable recovering substance dependents and codependents to deal with the post-initial treatment situations. These situations
include changes of lifestyle, dealing with a sober lifestyle, relapses, family and
work problems, and so on.
Substitution therapy/Controlled drug use: situations exist where substance
dependents are unable to become and remain sober (or remain clean of drugs
and alcohol). Under such circumstances, the practice is to provide medication that
acts as a substitute for the forbidden drug or that reduces or eliminates the
craving for such forbidden drugs. The use of substitutes such as methadone and
buprenorphine under medical control is a form of such therapy (24). In some Nordic
countries and Holland, the controlled use of drugs such as heroin and cannabis is
practised.
Control of legal distribution of and access to drugs: similarly, rather than legalising
presently illicit drugs, in some countries the practice of controlling the distribution
of selected drugs has been adopted as in the permitted (controlled) consumption
of cannabis in Holland.
[Type text]
Page 62
National Drug Master Plan 2012 - 2016
Limiting spread of IDU infection: in countries where the spread of HIV/AIDS,
tuberculosis and other blood-borne diseases has been linked to injecting drug use
(IDU), the practice has increasingly become to provide drug users with clean
syringes and needles on an exchange basis. This latter practice is not yet
endorsed by the WHO (ibid)..
HARM REDUCTION OUTCOMES
In the concept of Harm Reduction as advocated by the CDA and as suited to the South
African culture the outcomes to be achieved include:
Rate of success in early detection of susceptibility to addiction;
Success of detoxification and rehabilitation programmes;
Success of aftercare and reintegration programmes;
Success of medical treatment for recovering dependents;
Success and trends in substitution therapy;
Success of measures to control distribution and access to drugs,
Reduction in the socio-economic effects of substance abuse on the communities.
MEASURES OF SUCCESS AND ACHIEVEMENT IN HARM REDUCTION
As with the other elements of the integrated strategy, in order to produce visible results
and successes in the short-term (essential for acceptance and long-term viability) harm
reduction should target those high-visibility aspects using the so-called „broken window
theory‟ (Single, 2001) and measure:
Rate of success in early detection of susceptibility to addiction;
Success of detoxification and rehabilitation programmes in terms of aspects such as:
Ratio of patients completing programmes successfully;
Costs of successful programmes;
Duration of sobriety of successful patients
Number of patients remaining sober after a given period of time etc:
Success of aftercare and reintegration programmes in terms of:
[Type text]
Page 63
National Drug Master Plan 2012 - 2016
Ratio of recovering dependents entering aftercare;
Costs of aftercare;
Duration of sobriety of recovering dependents;
Ratio of recovering dependents reintegrating successfully into society.
Trends in provision in of medical treatment for recovering dependents
Success and trends in substitution therapy
Success of measures to control distribution and access to drugs.
Success of programmes for the limitation of the spread of HIV/AIDS and TB through
intravenous and other methods of drug use
Quantification of these key result areas poses a challenge in itself in the sense that the
components of the implementing structure (i.e. the departments, the Provincial Drug
Abuse Forums and the Local Drug Action Committees) are required to identify baselines
of measurement (e.g. reduction of cocaine supply by three tons in 2012) and set targets
that are both challenging and achievable. This, in turn, demands accurate measures of
achievement.
[Type text]
Page 64
National Drug Master Plan 2012 - 2016
DETOX
LIMITING
SPREAD OF
AFTER-
REHAB
CARE
IDU
&
DISEASES
REINTEGRATION
HARM
CONTROL OF
REDUCTION
MEDICAL
DISTRIBUTION
outcomes
TREATMENT
AND
RESULTS
ACCESS
SUBSTITUTION
EDUCATION
THERAPY
&COMMUNICATION
Figure 12 : Measures of success in harm reduction
Striving for the achievement of results
structures implementing the NDMP to
measures of achievement.
These
departmental, provincial or local area
provincial DMP‟s.
and measuring such achievement requires the
identify, in conjunction with the CDA, suitable
measures should be included in their own
versions of the NDMP, the departmental and
THE CLUSTER CONCEPT
In the legislation governing the formation and functioning of the CDA it assumed that by
appointing representatives of certain key departments, and by their serving together
with the 12 experts appointed in terms of that same legislation, the outcomes, outputs
and activities of those members will result in the co-ordination of the achievements of
the whole. In practice this has not occurred except in the case of the provinces where
such support is available. For a variety of reasons, not the least being that the
[Type text]
Page 65
National Drug Master Plan 2012 - 2016
departmental representatives as well as reporting to the CDA report also to the heads of
their department. In practice this has resulted in several failings which include:
Departmental and provincial DMP‟s not being completed and approved in
accordance with the timetable;
Departmental and Provincial DMP‟s not being integrated one with the other, and
reflecting the parochial opinion of a single entity, and
With the CDA structure reflecting this silo mentality, a series of actions that
reinforce the „department-„or „province-first‟ approach to the detriment of the
achievement of the outcomes of the NDMP.
At the instigation of the CDA an Inter-ministerial Committee (IMC) was formed to
overcome this problem if possible.. However, to some extent the problem still exists. In
order to overcome it the CDA has adopted the „cluster concept‟ by which departmental
representatives on the CDA act in concert with one another in a manner and grouping
similar to that of the „clusters‟ utilised by government in the overall management of its
programmes.
The seven technical clusters concerned are:
Infrastructure and Development
Economy and Employment
Human Development
Social Protection and Community Development
Justice, Crime Prevention and Security
Governance and Administration
International Co-operation and Security
THE COMMUNITY-NEEDS CONCEPT
As indicated in the section dealing with „Evidence-based interventions”, it is usual to
develop policies for dealing with substance abuse based on scientific evidence of their
effectiveness and it is not unusual to temper these evidence based policies with other
[Type text]
Page 66
National Drug Master Plan 2012 - 2016
more democratically-suited policies. In pursuance of this, the needs of the community
were identified as indicated earlier.
To do this, the CDA:
Held a workshop of its stakeholders in September 2010 to review the progress
made on the NDMP 2006-2011;
Attended various local and international conferences and analysed the effects on
the South African situation;
Analysed the reports emanating from the CDA supporting infrastructure,
including those of departments represented on the CDA and the provincial
substance abuse forums;
Conducted research into the problem of substance abuse in South Africa;
Carried out a door-to-door survey and an awareness campaign as mentioned
earlier, and
Held the 2nd Biennial Anti-substance Abuse Summit, from which arose 34
resolutions representing community needs in combating substance abuse.
These needs were than combined into a series of outcomes to be achieved during the
term of the NDMP 2012-2016 and linked to the 12 selected by government for priority
attention by departments and provinces.
[Type text]
Page 67
National Drug Master Plan 2012 - 2016
CHAPTER 5: THE NATIONAL DRUG MASTER PLAN 2012-2016
THE SOUTH AFRICAN VISION OF A SUBSTANCE-ABUSE FREE COUNTRY
The CDA is the body authorised in terms of Act 20 of 1992, as amended and the
forthcoming Act 70 of 2008 to develop a NDMP and to direct, guide, co-ordinate and
oversee its implementation as well as to monitor and evaluate the achievements of the
NDMP and to make such amendments to the plan as are necessary for success.
The CDA in analysing the challenges facing South Africa in the field of substance abuse
determined that, in order to meet these challenges it would be essential to achieve a
state in which the country was in essence free of substance abuse.
The delegates at the 2nd Biennial Anti-Substance Abuse Summit endorsed as part of
their desired outcomes, the vision of a substance-abuse free country. This vision was
also endorsed by all the high-level political figures attending the Summit.
This vision or the „dream‟ to be achieved by the country forms the basis of the NDMP
2012-2016.
The vision that the NDMP, under the guidance of the CDA, strives to achieve is:
„A substance-abuse free South Africa.‟
THE MISSION OF THE CDA
The mission of the CDA, or that which it must do in order to achieve the vision, is to
direct, guide, co-ordinate, monitor and evaluate the initiatives and efforts of all relevant
departments, provinces, the provincial substance abuse forums and other stakeholders
in their implementation of the NDMP 2012-2016 and its strivings towards a substanceabuse free country.
This means that the CDA must:
Lead the development of holistic and cost-effective strategies to predict the
effects of the substance abuse problems in South Africa;
[Type text]
Page 68
National Drug Master Plan 2012 - 2016
Direct and co-ordinate the implementation of holistic and cost effective strategies
to combat the substance abuse problems in South Africa;
Monitor and evaluate the implementation of holistic and cost effective strategies
to combat the substance abuse problems, as implemented by the supporting
infrastructure of the CDA and other stakeholders;
Lead the amendment or adjustment of the holistic and cost effective strategies as
evaluated, in order more effectively to combat the identified substance abuse
problems, and
Report progress in dealing with the substance abuse problems to the appropriate
authorities and stakeholders.
THE PLAN OF ACTION (POA) AND OUTCOMES APPROACH
As part of the process of planning and decision-making process of cabinet, a new
planning cycle has been introduced. This process is based on the Basic Concepts of
Monitoring and Evaluation guide produced by the Public Service Commission in
February 2008 (PSC, 2008). The process requires that all planning take into account
the logic model that requires planners to apply an analytical method to break down a
programme into logical components to facilitate its evaluation.
To quote the reference above (ibid:43):
„The logic model helps to clarify the objectives of any project, program(me) or policy. It
aids in the identification of the expected causal links - the „program logic‟ – in the
following results chain: inputs, process, outputs (including coverage or „reach‟ across
beneficiary groups) outcomes and impact.‟
The model depicted below defines the various aspects in the program logic as being:
[Type text]
Page 69
National Drug Master Plan 2012 - 2016
Inputs: All the resources that contribute to production and delivery of outpouts.
Inputs are what we use to do the work. They include finances, personnel,
equipment and buildings.
Activities: The processes or actions that use a range of inputs to produce the
desired outputs and ultimately outcomes. In essence activities describe what we
do.
Objectives: The measurable descriptions of the aim or purpose of an activity.
Outputs: The final products or goods and services produced for delivery.
Outputs may be defined as what we produce or deliver.
Outcomes: The medium-term results for specific beneficiaries that are a logical
consequence of achieving specific outputs. Outcomes should relate clearly to an
institution‟s strategic goals and objectives set out in its plans. Outcomes are what
we wish to achieve.
Impact: The results of achieving specific outcomes, such as becoming a
substance-abuse free country.
Figure 13: The components of the Logic Model
THE DESIRED IMPACT OF THE NDMP 2012-2016
The desired impact of the NDMP 2012-2016 is a „substance-abuse free South Africa‟.
[Type text]
Page 70
National Drug Master Plan 2012 - 2016
By a „substance abuse free South Africa‟ is meant that:
The population of South Africa have the knowledge, skills and attitudes needed
to combat the substance abuse problems.
The value system of the population of South Africa is such that they reject out of
hand the temptation of dependence-forming substances.
The strategic approach to substance abuse involves prevention, treatment,
aftercare and re-integration into society as a means of enabling the population to
deal with the problem.
The strategic approach involves the integration of demand reduction, supply
reduction and harm reduction in a balanced approach, and
The measured level of substance abuse in the country is less than that of
generally accepted international norms, and tends to decrease on an annual
basis until a substance-abuse free state is reached.
IMPACT RELATED TO COMMUNITY NEEDS AND RESOLUTIONS
Arising from the 2nd Biennial Anti-abuse Summit were 34 resolutions which collectively
reflect the needs expressed by the communities who took part in the prior survey.
These resolutions were compared with the 12 needs expressed by the communities
discussed earlier and together linked to the three elements of the integrated strategy
(demand-, supply- and harm reduction). The results of these comparisons appear in the
figure below and indicate the impact and outcomes required of the NDMP in this
respect.
Resolution
[Type text]
Content
Community
Strategic
Page 71
National Drug Master Plan 2012 - 2016
Need
Element
1
Laws and policies on alcohol
Re-enforcement
Demand
Reduction
2
Structure and mandate of CDA
Re-enforcement
Integration
3
Reducing accessibility of alcohol
Reduction
Supply Reduction
4
Reduction on sales of alcohol
Reduction
Supply Reduction
5
Reduce liquor outlets
Reduction
Supply Reduction
6
Control of home brews and concoctions
Reduction
Supply Reduction
7
H & S on premises selling liquor
Reduction
Supply Reduction
8
Alcohol containers
Reduction
Supply Reduction
Resolution
Content
Community
Strategic
Need
Element
9
Alcohol containers
Reduction
Supply Reduction
10
Increasing criminal liability
Re-enforcement
Supply Reduction
11
Mandatory contribution by industry
Reduction
Harm Reduction
12
Information campaigns
Re-education
Demand
Reduction
13
Equal access to resources
Recreation
Demand
reduction/Harm
Reduction
14
Stem drug problem
Re-enforcement
Demand
reduction
15
Effective deterrent for offenders
Re-enforcement
Demand
Reduction
16
Trafficking in persons
Re-enforcement
Demand
Reduction/Supply
Reduction
17
Smuggling of migrants
Re-enforcement
Demand/Supply
Reduction
18
Drug trafficking legislation
Re-enforcement
Demand/Supply
[Type text]
Page 72
National Drug Master Plan 2012 - 2016
Reduction
19
Seiaing procxeeds of crime
Re-enforcement
Supply Reduction
20
Role definitions SAPS,SARS, NPA and
Justice
Re-enforcement
Demand/Supply
Reduction
21
Advertising alcohol etc
Reduction
Demand
Reduction
22
Banning sponsorships
Reduction
Demand
Reduction
23
Continuum of Care
Reduction
Demand/Harm
Reduction
24
Prevention programmes
Reduction
Demand
Reduction
25
Strengthening aftercare services
Reduction
Harm Reduction
26
Cross-disciplinary prevention
Re-education
Demand
Reduction
27
Public advocacy
Re-education
Demand
Reduction/Harm
Rduction
Resolution
Content
Community
Strategic
Need
Element
28
Integrated diagnosis, treatment and funding
of co-occurring disorders
Rehabilitation
Harm Reduction
29
SA definition of harm reduction
Re-education
Harm Reduction
30
Provision of rehab and aftercare
Rehabilitation
Harm Reduction
31
Reducing legal alcohol driving limit
Reduction
Demand
Reduction
32
Novice drivers zero alcohol limit
Reduction
Demand/Harm
reduction
33
Prevention and address substance abuse in
public service
Reduction/Reeducation
Demand/Harm
Reduction
34
Alcohol-free public service functions
Reeducation/Reduction
Demand/Harm
Redeuction
Figure 14: Resolutions linked to Integrated Strategy
[Type text]
Page 73
National Drug Master Plan 2012 - 2016
PRIORITY AREAS AND APPROACHES
The substance abuse problems identified in the NDMP reflect the following priorities for
attention and action by national departments and provinces and should be incorporated
into and appear in their respective DMPs.
Target populations:
Youth
Vulnerable groups, including women and children
Communities and families
Defined key populations (for example, MSM, WSW, Sex Workers)
Occupational groups at risk
Priority areas
Crime and violence related to substance abuse.
Substance use, abuse and dependence
departmental and provincial mandates
problems related to
national
Providing access to the target populations to prevention, treatment, aftercare and
re-integration into society.
.
Legislation, policies and protocols across the entire alcohol and drug supply
chain.
Monitoring and evaluation.
[Type text]
Page 74
National Drug Master Plan 2012 - 2016
Community Development.
Futures research and predictions in the alcohol and drug field.
Research and information dissemination.
Professional education and training in the substance abuse field (capacity
building).
International policy issues and networking.
Strategic approaches
Integrated approach (demand, supply and harm reduction)
Working in defined organisational
implementation of strategies
clusters
in
order
to
integrate
the
Delivering measurable outcomes at the levels of the local communities, regions,
provinces and at national levels
Delivering measurable outcomes in the short, medium and long term as required
by the NDMP
GOVERNMENT OUTCOMES VIS-À-VIS NDMP SPECIFIC OUTCOMES
The twelve outcomes of government as expressed in the Programme of Action are:
[Type text]
Page 75
National Drug Master Plan 2012 - 2016
Quality basic education
A long and healthy life for all South Africans
All people in South Africa are and feel safe
Decent employment through inclusive economic growth
Skilled and capable workforce to support an inclusive growth path
An efficient, competitive and responsive economic structure network
Vibrant, equitable, sustainable rural communities contributing towards food
security for all
Sustainable human settlements and improved quality of household life
Responsive, accountable, effective and efficient Local Government system
Protect and enhance our environmental assets and natural resources
Create a better South Africa, a better Africa and a better world
An efficient, effective and development-oriented public service and an
empowered, fair and inclusive citizenship.
Derived and selected from the above government outcomes those considered relevant
to the NDMP 2012-2016 and therefore to be striven towards are:
A long and healthy life for all South Africans;
All people in South Africa are and feel safe;
Suitable human settlement and improved quality of household life,
Therefore:
The key outcomes of the NDMP aligned to the government outcomes are as listed
below, and include those derived from a review of the NDMP 2006-2011, the
resolutions of the 2nd Biennial Anti-substance Abuse Summit and related
international resolutions.
[Type text]
Page 76
National Drug Master Plan 2012 - 2016
1. Reduced bio-,socio-economic impact of substance abuse and related illnesses
on the South African Population
2. All people in South Africa able to deal with problems related to substance abuse
within communities
3. Recreational facilities and diversion programmes prevent vulnerable populations
from becoming substance dependents
4. Availability of substance dependence-forming drugs and alcoholic beverages
reduced
5. Multi-disciplinary and multi modal protocols and practices for integrated
diagnosis treatment and funding of substance dependence and co-occurring
disorders developed and implemented
6. Laws and policies to facilitate effective governance of the alcohol and drug
supply chain harmonised and enforced
7. Job opportunities in the field of combating substance abuse created
Figure 15 : Key outcomes of the NDMP 2012-2016
The NDMP provides the means by which existing resources may be harnessed to
achieve the Key Outcomes of the NDMP. The NDMP requires national and provincial
departments to plan for and deal with substance abuse problems as part of their normal
planning and budgetary processes. These plans form the Departmental and Provincial
Drug Master Plans (DMP‟s). The D- and PDMPs are the operational plans of
departments and provinces and must be submitted to the CDA at the beginning of each
financial year. The CDA must continuously monitor and evaluate the implementation of
these plans as described in the mission of the CDA.
At quarterly intervals and at the end of each financial year, departmental and provincial
reports on the outcomes achieved by these organisations must be submitted to the
CDA. These reports are incorporated into the CDA‟s annual report to parliament.
SPECIFIC NDMP OUTCOMES AND DEPARTMENTAL CLUSTERS
[Type text]
Page 77
National Drug Master Plan 2012 - 2016
Arising from the key substance abuse outcomes and priority areas is a set of specific
NDMP outcomes which are to be achieved by the CDA and its supporting infrastructure
(national departments and provinces together with the respective substance abuse
forums and Local Drug Action Committees and other stakeholders)
Implicit in the interpretation, planning for and implementation of the specific NDMP
outcomes is the need for the various role players to integrate their planning and
implementation in terms of effective clusters of national departments and provinces,
emulating the clusters used by government in executing its policies. For example: The
departments can be clustered in terms of:
Economic sectors and employment:
Department of Trade and Industry
Department of Labour
Financial Intelligence Centre
Department of Transport
Business and industrial representatives
South African Revenue Service
Human Development:
Department of Arts and Culture
Departments of Basic and Higher Education
Department of Health
Medicines Control Council
National Youth Development Agency
Department of Sport and Recreation South Africa
Research institute and Universities
Civil Society
Non-Governmental Organisations
[Type text]
Page 78
National Drug Master Plan 2012 - 2016
Treatment Centres
Accredited addiction counsellors
Provincial Substance Abuse Forums
Social protection and community development:
Department of Social Development,
Department of Home Affairs
Justice, crime prevention and security
Department of Justice and Constitutional Development
Department of Correctional Service
South African Revenue Service
South African Police Service
Department of Social Development
Department of Home Affairs
International coordination and security:
Department of International Relations and Co-operation
Department of Justice and Constitutional Development
South African Police Service
South African Revenue Service
Department of Home Affairs
NDMP SPECIFIC OUTCOMES AND DEPARTMENTAL OUTPUTS
The tables below contain the outcomes of the NDMP showing the link between them
and those of the government, together with indicators of achievement, baseline data
(including the resolutions of the aforementioned summit), suggested targets and
[Type text]
Page 79
National Drug Master Plan 2012 - 2016
functional areas i.e. those departments and other stakeholders who would be expected
to achieve them.
[Type text]
Page 80
Government
Outcomes
NDMP Outcomes
Outcome Indicators
Baseline
Target by
2016
Functional Areas
10%
reduction
Departments and
provinces
represented on the
CDA
10%
increase in
relevant
knowledge
and skills.
Departments
and
provinces,
PSAF‟s
and LDAC‟s, NGOs
and communities
A long and
healthy life for
all South
Africans
1. Reduced bio-,socio-economic
impact of substance abuse
and related illnesses on the
S A Population
Percentage reduction of the bio,socio-economic impact of substance
abuse on the South African
population
CDA Annual
Report
All people in
South Africa
are and feel
safe
2. All people in South Africa
able to deal with problems
related to substance abuse
within communities
Percentage increase in members of
communities able to apply parenting
skills, knowledge of substance abuse
and life-skills to influence reductions
in problems resulting from substance
abuse
2 Biennial
Summit Report
Sustainable
human
settlement and
improved
quality of
household life
3. Recreational facilities and
diversion programmes
prevent vulnerable
populations from becoming
substance dependents
NDMP 2012-2016 First Draft 2
nd
Revision r
Number of vulnerable people
frequenting outlets for dependenceforming substances
Research
Report on Drug
Situation in
South Africa
nd
(Re-education
category)
Resolutions
numbers: 12,
24, 26, 27, 29,
33, 34
10%
reduction in
problems
resulting
from
substance
abuse
Reports (CDA
and supporting
infrastructure)
10%
reduction of
vulnerable
populations
becoming
substance
dependent
Resolution
Numbers: 13
Page 81
Departments and
provinces, PSAF‟s,
LDAC‟s, NGOs and
communities,
particularly Sport and
Recreation SA.
National Drug Master Plan 2012 - 2016
Sustainable
human
settlement and
improved
quality of
household life
4. Availability of alcoholic
beverages and other
dependence forming
substances reduced
Sustainable
human
settlement and
improved
quality of
household life
All people in
South Africa
are and feel
safe
Reduction in the number of sources
of alcohol beverages and other
dependence forming substances,
the frequency of use and
consumption by defined population
(e.g. under-aged persons, drivers,
public servants etc)
Reports of dti,
SAPs, SARS,
DJ and CD t.
5. Development and
implementation of multidisciplinary and multi modal
protocols and practices for
integrated diagnosis
treatment and funding of
substance dependence and
co-occurring disorders
Percentage of prevention, treatment
and aftercare policies practices and
protocols applying an integrated
approach to substance dependence
treatment
SACENDU
Surveillance
data and
Ministry of
Health Data
6. Laws and policies to facilitate
effective governance of the
alcohol and drug supply
chain harmonised and
enforced
Regulatory framework is national and
applicable across all provinces and
municipalities i.a.w. Summit
Resolutions
Resolution
numbers: 3, 4,
5, 6, 7, 8, 9, 11,
21, 22,31,32
Resolution
numbers: 23,
25, 28, 30
Available
legislation and
enforcement as
agreed upon by
IMC & CDA.
Resolutions:1,
2, 10, 14,
15,16,17,18,19,
20
[Type text]
Page 82
10%
reduction of
availability
of alcohol
beverages
Departments and
provinces, PSAF‟s,
LDAC‟s, NGOs and
communities,
10%
increase in
the
application
of and
integrated
approach to
substance
abuse
dependence
treatment
DSD, DOH and
registered treatment
centres
75% of
legislation
harmonised
and
enforced
SAPS, SARS,
Justice, DTI, DSD
National Drug Master Plan 2012 - 2016
Sustainable
human
settlement and
improved
house hold life
7. Create job opportunities in
field of combating substance
abuse
Percentage increase in persons
employed in the substance abuse
field
Employment
data from the
report provided
by DoL: Door to
door report
10%
increase of
jobs
created
Department of
Labour
Figure 16: NDMP outcomes and Departmental/Provincial outputs
NATIONAL DEPARTMENTAL AND PROVINCIAL SPECIFIC OUTPUTS AND DMP‟S
As can be seen from the above table, the NDMP specific outcomes each contain a number of resolutions as well as other data.
These resolutions as they are grouped become the specific outputs which form the nucleus of their respective national department
and provincial drug master plans.
It is essential that these national departments and provinces jointly include in their drug master plans those groups of outcomes that
fall within their mandate. It will then occur that certain national departments and provinces will be required jointly to achieve those
groups of outcomes and resulting outputs, as indicated in Figure 17 below..
[Type text]
Page 83
National Drug Master Plan 2012 - 2016
NDMP SPECIFIC OUTCOME 1: R EDUCED BIO-,SOCIO-ECONOMIC IMPACT OF S UBSTANCE ABUSE AND R ELATED ILLNESSES
ON THE SOUTH AFRICA N POPULATION
NATIONAL DEPARTMENTS AND PROVINCES SPECIFIC OUTPUT 1: REDUCED BIO-, SOCIO-ECONOMIC IMPACT OF
SUBSTANCE ABUSE AND RELATED ILLNESSES IN DEPARTMENTS AND PROV INCES
Activities
Indicators
Baseline
Targets
Functional area
Implementation
of
the
nd
resolutions of the 2 Biennial
Anti-Substance
Abuse
Summit
Percentage reduction of the
bio-,socio-economic impact
of substance abuse on the
South African population by
province/region/district
National Departmental and
provincial
quarterly
and
Annual reports
Not less that 10% per
province / region/ districts
All national departments and
provinces
Research report on nature,
extent
and
impact
of
substance abuse in South
Africa
[Type text]
Page 84
National Drug Master Plan 2012 - 2016
NATIONAL DEPARTMENTS AND PROVINCES SPECIFIC OUTPUT 2: ALL PEOPLE IN PROVINCES/ REGIONS/DISTRICTS
ABLE TO DEAL WITH PROBLEMS RELATED TO SUBSTANCE ABUSE WITHIN COMMUNITIES
Activities
Indicators
Baseline
Targets
Functional area
Resolution12: Intensified campaigns to educate people
about substance abuse
Resolution 12: Numbers
of awareness campaigns:
numbers reached; results
of random testing of
dealing with problems of
substance abuse
National Departmental
and provincial quarterly
and Annual reports
Not less that 10%
per
province
/
region/ districts
All
national
departments
and provinces
Not less than 10%
reduction
All
national
departments
and provinces
Educational campaigns to inform and educate people, in
particular young people about the dangers of alcohol
and drug abuse
Research report on
nature,
extent
and
impact of substance
abuse in South Africa
Research report on
nature,
extent
and
impact of substance
abuse in South Africa
Impact report on Ke
Moja required
Resolution 24: Comprehensive prevention programmes.
Implementation of universal and targeted programmes
covering e.g. life-skills; Ke Moja; peer education and
similar programmes.
Numbers of awareness
campaigns:
numbers
reached;
results
of
random testing of dealing
with
problems
of
substance abuse
Research report on
nature,
extent
and
impact of substance
abuse in South Africa
Resolution 26: Multiple approaches to prevention across
Numbers of awareness
campaigns:
numbers
Research report on
nature,
extent
and
[Type text]
Page 85
National Drug Master Plan 2012 - 2016
different
disciplines
e.g.
youth
development
programmes, sport and skills development
reached;
results
of
random testing of dealing
with
problems
of
substance abuse
impact of substance
abuse in South Africa
Resolution 27: Public advocacy and messaging e.g.
advertising,
t-shirt
distribution,
road
shows,
entertainment programmes.
Numbers of awareness
campaigns:
numbers
reached;
results
of
random testing of dealing
with
problems
of
substance abuse
CDA Annual Report and
Minute
Not less than 10%
reduction
Definition
of
Harm
Reduction accepted by
CDA and Cabinet
Baseline study to be
commissioned
Acceptance
of
definition by the
CDA and Cabinet
by April 2013
Baseline study to be
commissioned
At
least
reduction
75%
Baseline study to be
commissioned
At
least
reduction
75%
Resolution 29: Definition and Protocols for Harm
Reduction e.g. Research into alternative approaches to
Harm Reduction; consultation with policy makers,
communities and stakeholders in the field of substance
abuse regarding an acceptable definition
Resolution 33: Adopting policy to prevent and address
substance abuse in the Public Service e.g.
Development of policies, legislation, protocols and
practices regarding substance abuse in the Public
Service; training and development to adapt public
service culture
Percentage reduction of
the bio-,socio-economic
impact
of
substance
abuse
on the Public
Service of South Africa by
province/region/
All
national
departments
and provinces
CDA
All
national
departments
and provinces
district
Resolution 34: Setting an example to the public by
[Type text]
Percentage reduction of
the bio-,socio-economic
Page 86
All
national
departments
and provinces
National Drug Master Plan 2012 - 2016
ensuring that all public service functions are alcohol free
.g. Development of policies, legislation, protocols and
practices regarding substance abuse in the Public
Service; training and development to adapt public
service culture
impact
of
substance
abuse
on the public
service of South Africa by
province/region/
At least 75%
function free
alcohol
district
of
of
NATIONAL DEPARTMENTAL AND PROVINCIAL SPECIFIC OUTPUT NO. 3: RECREATIONAL FACILITIES AND DIVERSION
PROGRAMMES IN NATIONAL DEPARTMENTS AND PROVINCES PREVENT VULNERABLE POPULATIONS FROM
BECOMING SUBSTANCE DEPENDENTS
Activities
Indicators
Baseline
Targets
Functional area
Resolution 13: Ensure equal access to resources,
especially for civil society and organisations in rural
areas e.g. recreational facilities, sport facilities, diversion
programmes, intellectual development programmes,
skills development
Number of vulnerable
people frequenting outlets
for dependence-forming
substances
Reports (CDA and
supporting
infrastructure)
10% reduction of
vulnerable
populations
becoming
substance
dependent
Departments
and provinces,
substance
abuse Forums
and Local Drug
Action
Committees,
NGOs and
communities,
particularly
Sport and
Recreation
South Africa
Resolution Numbers: 13
Number of facilities
created and percentage
utilisation by vulnerable
populations
[Type text]
Page 87
National Drug Master Plan 2012 - 2016
DEPARTMENTAL AND PROVINCIAL OUTPUT NO. 4: AVAILABILITY OF ALCOHOLIC BEVERAGES AND OTHER
DEPENDENCE FORMING SUBSTANCES REDUCED IN DEPARTMENTS AND PROVINCES
Activities
Indicators
Baseline
Targets
Functional
area
Resolution 3: Reducing accessibility of alcohol through
raising the legal age for the purchasing and public
consumption of alcohol from the age of 18 to the age of
21 e.g. changing policy, legislation, protocols and
practice in a harmonized national manner;
Developmental programmes relating to changes;
assessing effects of changes
Reduction in the number
of sources of alcohol
beverages and other
dependence forming
substances, the
frequency of use and
consumption by defined
population (e.g. underaged persons, drivers,
public servants etc)
Reports of Department of
Trade and Industry, South
African Police Services
and South African
Revenue Service,
Department of Justice and
Constitutional
Development.
10% reduction
of availability of
alcohol
beverages and
other
dependents
forming
substances
Departments
and provinces,
substance
abuse Forums
and Local
Drug Action
Committees,
NGOs and
communities
Reduction in the number
of sources of alcohol
beverages and other
dependence forming
substances, the
frequency of use and
consumption by defined
population (e.g. underaged persons, drivers,
public servants etc)
Reports of Department of
Trade and Industry, South
African Police Services
and South African
Revenue Service,
Department of Justice and
Constitutional
Development.
Reduction in the number
Reports of Department of
Resolution 4: Imposing restrictions on the times and
days of the week that alcohol can legally be sold e.g.
changing policy, legislation, protocols and practice in a
harmonised national manner; Developmental
programmes relating to changes; assessing effects of
changes
Resolution 5: Implementing laws and regulations that
will reduce the number of liquor outlets including
[Type text]
Resolution numbers: 3, 4,
5, 6, 7, 8, 9, 11, 21,
22,31,32
10% reduction
of availability of
alcohol
beverages and
other
dependents
forming
substances
Departments
and provinces,
substance
abuse Forums
and Local
Drug Action
Committees,
NGOs and
communities
10% reduction
Departments
Resolution numbers: 3, 4,
5, 6, 7, 8, 9, 11, 21,
22,31,32
Page 88
National Drug Master Plan 2012 - 2016
shebeens e.g. changing policy, legislation, protocols
and practice in a harmonized national manner;
Developmental programmes relating to changes;
assessing effects of changes
Resolution 6: Regulation and control of home brews and
concoctions informed by research that includes
traditional utilisation in rural areas e.g. changing policy,
legislation, protocols and practice in a harmonized
national manner; Developmental programmes relating to
changes; assessing effects of changes
Resolution 7: Raising of duties and taxes on alcohol
product to deter the purchasing of alcohol e.g. changing
policy, legislation, protocols and practice in a
harmonized national manner; Developmental
programmes relating to changes; assessing effects of
changes; tariffs implemented on a sliding scale
commensurate with the alcoholic content.
Resolution 8: Imposing health and safety requirements
[Type text]
of sources of alcohol
beverages and other
dependence forming
substances, the
frequency of use and
consumption by defined
population (e.g. underaged persons, drivers,
public servants etc)
Trade and Industry, South
African Police Services
and South African
Revenue Service,
Department of Justice and
Constitutional
Development. Resolution
numbers: 3, 4, 5, 6, 7, 8,
9, 11, 21, 22,31,32
Reduction in the number
of sources of alcohol
beverages and other
dependence forming
substances, the
frequency of use and
consumption by defined
population (e.g. underaged persons, drivers,
public servants etc)
Reports of Department of
Trade and Industry, South
African Police Services
and South African
Revenue Service,
Department of Justice and
Constitutional
Development.
Reduction in the number
of sources of alcohol
beverages and other
dependence forming
substances, the
frequency of use and
consumption by defined
population (e.g. underaged persons, drivers,
public servants etc)
Reports of Department of
Trade and Industry, South
African Police Services
and South African
Revenue Service,
Department of Justice and
Constitutional
Development. Resolution
numbers: 3, 4, 5, 6, 7, 8,
9, 11, 21, 22,31,32
Reduction in the number
of sources of alcohol
Reports of Department of
Trade and Industry, South
Resolution numbers: 3, 4,
5, 6, 7, 8, 9, 11, 21,
22,31,32
Page 89
of availability of
alcohol
beverages and
other
dependents
forming
substances
10% reduction
of availability of
alcohol
beverages and
other
dependents
forming
substances
10% reduction
of availability of
alcohol
beverages and
other
dependents
forming
substances
and provinces,
substance
abuse Forums
and Local
Drug Action
Committees,
NGOs and
communities
Departments
and provinces,
substance
abuse Forums
and Local
Drug Action
Committees,
NGOs and
communities
Departments
and provinces,
substance
abuse Forums
and Local
Drug Action
Committees,
NGOs and
communities
Departments
National Drug Master Plan 2012 - 2016
for premises where liquor will be consumed e.g.
changing policy, legislation, protocols and practice in a
harmonized national manner; Developmental
programmes relating to changes; assessing effects of
changes; avoiding overcrowding providing adequate
lighting, food and water and taking into account access
to public transport and toilet facilities.
Resolution 9: prescribing measures for alcohol
containers e.g. changing policy, legislation, protocols
and practice in a harmonized national manner;
Developmental programmes relating to changes;
assessing effects of changes; form of containers,
warning labels and percentage of alcohol content
Resolution 11: Imposing a mandatory contribution by
the liquor industry (and pharmaceutical and related
industries producing dependence- forming substances
to a fund that will be dedicated to work to prevent and
treat alcohol -and other substances of abuse e.g.
changing policy, legislation, protocols and practice in a
harmonized national manner; Developmental
programmes relating to changes; assessing effects of
changes
Resolution 21: Immediate implementation of current
laws and regulations that permit the restriction of the
time, local and content of advertising related to alcohol
[Type text]
beverages and other
dependence forming
substances, the
frequency of use and
consumption by defined
population (e.g. underaged persons, drivers,
public servants etc)
African Police Services
and South African
Revenue Service,
Department of Justice and
Constitutional
Development. Resolution
numbers: 3, 4, 5, 6, 7, 8,
9, 11, 21, 22,31,32
Reduction in the number
of sources of alcohol
beverages and other
dependence forming
substances, the
frequency of use and
consumption by defined
population (e.g. underaged persons, drivers,
public servants etc)
Reports of Department of
Trade and Industry, South
African Police Services
and South African
Revenue Service,
Department of Justice and
Constitutional
Development. Resolution
numbers: 3, 4, 5, 6, 7, 8,
9, 11, 21, 22,31,32
10% reduction
of availability of
alcohol
beverages and
other
dependents
forming
substances
Reduction in the number
of sources of alcohol
beverages and other
dependence forming
substances, the
frequency of use and
consumption by defined
population (e.g. underaged persons, drivers,
public servants etc)
Reports of Department of
Trade and Industry, South
African Police Services
and South African
Revenue Service,
Department of Justice and
Constitutional
Development. Resolution
numbers: 3, 4, 5, 6, 7, 8,
9, 11, 21, 22,31,32
10% reduction
of availability of
alcohol
beverages and
other
dependents
forming
substances
Reduction in the number
of sources of alcohol
beverages and other
dependence forming
substances, the
Reports of Department of
Trade and Industry, South
African Police Services
and South African
Revenue Service,
Page 90
10% reduction
of availability of
alcohol
beverages and
other
dependents
forming
substances
10% reduction
of availability of
and provinces,
substance
abuse Forums
and Local
Drug Action
Committees,
NGOs and
communities
Departments
and provinces,
substance
abuse Forums
and Local
Drug Action
Committees,
NGOs and
communities
Departments
and provinces,
substance
abuse Forums
and Local
Drug Action
Committees,
NGOs and
communities
Departments
and provinces,
substance
National Drug Master Plan 2012 - 2016
and other dependence-forming substances e.g.
changing policy, legislation, protocols and practice in a
harmonized national manner; Developmental
programmes relating to changes; assessing effects of
changes; banning the advertising of such products in
public and private media; not portraying such products
as being associated with sport, social and economic
status
Resolution 22: Banning all sponsorship by the alcohol
industry for sport, recreation, arts, cultural and related
events e.g. changing policy, legislation, protocols and
practice in a harmonized national manner;
Developmental programmes relating to changes;
assessing effects of changes
Resolution 31: Reducing the current legal alcohol limit
for drivers e.g. changing policy, legislation, protocols
and practice in a harmonized national manner;
Developmental programmes relating to changes;
assessing effects of changes.
Resolution 32: Disallowing novice drivers (0 -3 years
after obtaining a driving license) from consuming any
alcohol before driving e.g. changing policy, legislation,
protocols and practice in a harmonized national manner;
Developmental programmes relating to changes;
assessing effects of changes
[Type text]
frequency of use and
consumption by defined
population (e.g. underaged persons, drivers,
public servants etc)
Department of Justice and
Constitutional
Development. Resolution
numbers: 3, 4, 5, 6, 7, 8,
9, 11, 21, 22,31,32
Reduction in the number
of sources of alcohol
beverages and other
dependence forming
substances, the
frequency of use and
consumption by defined
population (e.g. underaged persons, drivers,
public servants etc)
Reports of Department of
Trade and Industry, South
African Police Services
and South African
Revenue Service,
Department of Justice and
Constitutional
Development. Resolution
numbers: 3, 4, 5, 6, 7, 8,
9, 11, 21, 22,31,32
Reduction in the number
of sources of alcohol
beverages and other
dependence forming
substances, the
frequency of use and
consumption by defined
population (e.g. underaged persons, drivers,
public servants etc)
Reduction in the number
of sources of alcohol
beverages and other
dependence forming
substances, the
frequency of use and
Page 91
alcohol
beverages and
other
dependents
forming
substances
10% reduction
of availability of
alcohol
beverages and
other
dependents
forming
substances
abuse Forums
and Local
Drug Action
Committees,
NGOs and
communities
Departments
and provinces,
substance
abuse Forums
and Local
Drug Action
Committees,
NGOs and
communities
10% reduction
of availability of
alcohol
beverages and
other
dependents
forming
substances
Departments
and provinces,
substance
abuse Forums
and Local
Drug Action
Committees,
NGOs and
communities
10% reduction
of availability of
alcohol
beverages and
other
Departments
and provinces,
substance
abuse Forums
and Local
Drug Action
Committees,
National Drug Master Plan 2012 - 2016
consumption by defined
population
[Type text]
dependents
forming
substances
Page 92
NGOs and
communities
National Drug Master Plan 2012 - 2016
NATIONAL DEPARTMENTAL AND PROVINCIAL SPECIFIC OUTPUT NO. 5: DEVELOPMENT AND IMPLEMENTATION OF
MULTI-DISCIPLINARY AND MULTI MODAL PROTOCOLS AND PRACTICES FOR INTEGRATED DIAGNOSIS TREATMENT
AND FUNDING OF SUBSTANCE DEPENDENCE AND CO-OCCURRING DISORDERS IN OCCURRING DISORDERS IN EACH
PROVINCE
Activities
Indicators
Baseline
Targets
Functional area
Resolution 23: Implementing a continuum of care and
public health approach
Percentage of
prevention, treatment
and aftercare policies
practices and
protocols applying an
integrated approach to
substance
dependence treatment
SACENDU Surveillance data
and Ministry of Health Data
10% increase in
the application
of and
integrated
approach to
substance
abuse
dependence
10% increase in
the application
of and
integrated
approach to
substance
abuse
dependence
Percentage of
prevention, treatment
and aftercare policies
practices and
protocols applying an
integrated approach to
substance
dependence treatment
SACENDU Surveillance data
and Ministry of Health Data
10% increase in
the number of
facilities, and
the application
of and
integrated
approach to
substance
abuse
dependence
treatment
DSD, DOH and
registered
treatment
centres
Resolution 24: Implement comprehensive prevention
programmes
including
universal
and
targeted
programmes covering e.g. life-skills; Ke Moja; peer
education and similar programmes.
[Type text]
Resolution numbers: 23, 25,
28, 30
Resolution numbers: 23, 25,
28, 30
Page 93
National Drug Master Plan 2012 - 2016
Resolution 25:Strengthening of aftercare services e.g.
providing for prevention, early detection, treatment,
aftercare services and reintegration into society
requisite changes to policy, legislation, protocols and
practices, with emphasis on children, young people and
learners
Increase in the
percentage of
aftercare facilities, and
facilities applying
policies practices and
protocols, and
applying an integrated
approach to substance
dependence treatment
SACENDU Surveillance data
and Ministry of Health Data
10% increase in
the number of
facilities, and
the application
of and
integrated
approach to
substance
abuse
dependence
treatment
DSD, DOH and
registered
treatment
centres
Resolution 28:Developing and implementing
multidisciplinary and multi modal protocols and practices
for the integrated diagnosis treatment and funding of cooccurring disorders for both adults, youth and children
e.g. providing for prevention, early detection, treatment,
aftercare services and reintegration into society
requisite changes to policy, legislation, protocols and
practices
Increase in the
percentage of
multidisciplinary and
multi modal protocols
and practices for the
integrated diagnosis
treatment and funding
of co-occurring
disorders for both
adults, youth and
children in place and
applied in practice in
treatment facilities.
SACENDU Surveillance data
and Ministry of Health Data
10% increase in
the number of
facilities, and
the application
of and
integrated, multi
modal approach
to substance
abuse
dependence
treatment
DSD, DOH and
registered
treatment
centres
Resolution 30; Increasing the provision of rehabilitation,
aftercare and reintegration to society e.g. providing for
prevention, early detection, treatment, aftercare services
and reintegration into society requisite changes to
policy, legislation, protocols and practices with special
Increase in the
percentage of
aftercare facilities, and
facilities applying
policies practices and
SACENDU Surveillance data
and Ministry of Health Data
10% increase in
the number of
facilities, and
the application
of and
DSD, DOH and
registered
treatment
centres
[Type text]
Resolution numbers: 23, 25,
28, 30
Resolution numbers: 23, 25,
28, 30
Page 94
National Drug Master Plan 2012 - 2016
provision for access by all communities
protocols, and
applying an integrated
approach to substance
dependence
treatment, and
increase in the
treatment offered and
accepted by patients,
and success rate of
treatment in treatment
and aftercare
integrated, multi
modal approach
to substance
abuse
dependence
treatment, and
numbers of
successful
patients
NATIONAL DEPARTMENTAL AND PROVINCIAL OUTPUT NO.6: LAWS AND POLICIES TO FACILITATE EFFECTIVE
GOVERNANCE OF THE ALCOHOL AND DRUG SUPPLY CHAIN HARMONISED AND ENFORCED AT NATIONAL LEVEL,
NATIONAL DEPARTMENT AND PROVINCIAL LEVELS
Activities
Indicators
Baseline
Targets
Functional
Areas
Resolution 1:Harmonising laws and policies to facilitate
effective governance across the alcohol and other
dependence- forming substances supply chain e.g.
including production, sales, distribution, marketing and
consumption and taxation; national applicability or
regulation guided by principles and proposals accepted
in the prevention, treatment, rehabilitation, aftercare
and reintegration into society
Regulatory framework
is national and
applicable across all
provinces and
municipalities i.a.w.
Summit Resolutions
Available legislation and
enforcement as agreed upon
by inter-Ministerial
Committee and CDA
75% of legislation
harmonised and
enforced
SAPS, SARS,
Justice, DTI,
DSD
[Type text]
Resolution numbers:
1, 2, 10, 14,
15,16,17,18,19,20
Page 95
National Drug Master Plan 2012 - 2016
Resolution 2:Review the structure and mandate of CDA
to allow for proper coordination and oversight by it as an
independent body e.g. Harmonising laws and policies to
facilitate effective governance across the spectrum of
government and nongovernment organisations involved
in combating substance abuse; revision of the mandate
and structure of the CDA to enable it to give effect to the
NDMP; provision of adequate financing to meet the
requirements of CDA and NDMP
Structure and mandate
of CDA, as revised in
place and functioning
to the satisfaction of
the Minister of Social
Development
CDA annual report 2009/10
and Deloitte and Touche
review of structure of CDA
2010
100% of
approved
structure in place
and staffed to the
satisfaction on
Minister of Social
Development
Minister of
Social
Development
Resolution 10:Increasing the criminal and administrative
liability of individuals and institutions that sell alcohol
and other dependence forming substances e.g.
Harmonising laws and policies to facilitate effective
governance across the alcohol and other dependenceforming substances supply chain with special reference
to under age users intoxicated patrons, vehicle
operators and vulnerable persons
Regulatory framework
is national and
applicable across all
provinces and
municipalities i.a.w.
Summit Resolutions
Social crime prevention
report (including prescribes
by parliament)
100% of
regulatory
framework in
place.
SAPS, SARS,
Justice, DTI,
DSD
Number of individuals
held legally liable for
transgressions of the
law
Percentage drop in
[Type text]
Page 96
National Drug Master Plan 2012 - 2016
transgressions per
year
Resolution 14:Set up a cross departmental operational
unit in conjunction with the CDA to implement measures
to stem the drug problem e.g. implement CDA cluster
structure; analyse drug problems, ensure
implementation of harmonised policies, legislation,
protocols and practices developed in terms of resolution
1. Revise CDA Gazette Regulation No 30….
accordingly.
Structure and mandate
of CDA (incorporating
cross departmental
operating unit), as
revised in place and
functioning to the
satisfaction of the
Minister of Social
Development
CDA annual report 2009/10
and Deloitte and Touche
review of structure of CDA
2010
CDA annual
report 2009/10
and Deloitte and
Touche review of
structure of CDA
2010
Minister of
Social
Development
Resolution 15: Ensure that the Criminal Justice System
becomes an effective deterrent for offenders e.g.
Harmonising laws and policies to facilitate creation of
effective deterrence such as harsher punishment and
asset seizure
Regulatory framework
is national and
applicable across all
provinces and
municipalities i.a.w.
Summit Resolutions
Available legislation and
enforcement as agreed upon
by Inter-Ministerial
Committee and CDA
10% increase in
successful
prosecutions
SAPS, SARS,,
Justice, DTI and
DSD
Resolution 16: Speedy finalisation and implementation
of legislation pertaining to the trafficking in persons e.g.
Harmonising laws, policies, protocols and practices to
facilitate creation of effective deterrents to human
trafficking such as harsher punishment and asset
seizure
Regulatory framework
is national and
applicable across all
provinces and
municipalities i.a.w.
Summit Resolutions
Resolution numbers:1, 2, 10,
14, 15,16,17,18,19,20
[Type text]
10% drop in
transgressions
Page 97
100% of
legislation in
place and
functioning to
satisfaction of
IMC. 10%
SAPS, SARS,
Justice, DTI,
DSD
National Drug Master Plan 2012 - 2016
increase in
prosecutions.
10% drop in
transgressions
Resolution 17:Assessment of the threat such as
application harsher punishment and asset seizure to the
smuggling of migrants and an appropriate legislative
response e.g. Harmonising laws, policies, protocols and
practices to facilitate creation of effective deterrents to
migrant smuggling such as harsher punishment and
asset seizure
Regulatory framework
is national and
applicable across all
provinces and
municipalities i.a.w.
Summit Resolutions
Resolution numbers:
1, 2, 10, 14,
15,16,17,18,19,20
100% of
legislation in
place and
functioning to
satisfaction of
IMC. 10%
increase in
prosecutions.
SAPS, SARS,
Justice, DTI,
DSD
10% drop in
transgressions
Resolution 18:Consideration of extra-territorial
jurisdiction to allow for effective interdiction of drug
smuggling e.g. Harmonising laws, policies, protocols
and practices extra-territorially to facilitate creation of
effective deterrents to drug smuggling such as harsher
punishment and asset seizure e.g. Increased
international cooperation and an integrated,
multidisciplinary, mutually reinforcing and balanced
approach in demand- and supply reduction strategies.
including:
Regulatory framework
is extraterritorial,
national and applicable
across all provinces
and municipalities
i.a.w. Summit
Resolutions
Resolution numbers:
1, 2, 10, 14,
15,16,17,18,19,20
Trafficking in illicit drugs, psychotropic substances, drug
abuse, prevention of diversion of precursors and
availability of controlled substances for medical and
scientific purposes.
Exchange of information and mutual legal assistance.
[Type text]
Page 98
75% of legislation
harmonised and
enforced
SAPS, SARS,
Justice, DTI,
DSD, DIRCO
and Home
Affairs
National Drug Master Plan 2012 - 2016
Enhancing the provision of technical assistance and
capacity building aimed at improving efficiency of AU
Action Plan, regional and national plans, programmes
and strategies in defined areas of endeavour.
Resolution 19:Allowing for obtaining of a preservation
order in terms of prevention of organised crime Act
(………) e.g. Harmonising laws, policies, protocols and
practices to facilitate creation of effective deterrents,
with special reference to Act (….) and the temporary
seizure of the proceeds of crime
Regulatory framework
is extraterritorial,
national and applicable
across all provinces
and municipalities
i.a.w. Summit
Resolutions
Resolution numbers:
Resolution 20:Review of review of the international
assistance in criminal matters Act (….) e.g. Define
respective roles of South African Police Service,
National Prosecuting Authority, and the Dept of Justice
and Constitutional Development; Engagement in
effective cooperation and practical action in addressing
world drug problem on the basis of common and shared
responsibility including:
Regulatory framework
is extraterritorial,
national and applicable
across all provinces
and municipalities
i.a.w. Summit
Resolutions
Resolution numbers:
1, 2, 10, 14,
15,16,17,18,19,20
1, 2, 10, 14,
15,16,17,18,19,20
Increased international cooperation and an integrated,
multidisciplinary, mutually reinforcing and balanced
approach in demand- and supply reduction strategies.
Strengthening mechanisms for cooperation and
coordination.
[Type text]
Page 99
75% of legislation
harmonised and
enforced
SAPS, SARS,
Justice, DTI,
DSD
75% of legislation
harmonised and
enforced
SAPS, SARS,
Justice, DTI,
DSD
National Drug Master Plan 2012 - 2016
Developing methods to facilitate the exchange of
experiences and good practices
NATIONAL DEPARTMENTAL AND PROVINCIAL OUTPUT NO. 7: CREATE JOB OPPORTUNITIES IN FIELD OF COMBATING
SUBSTANCE ABUSE IN DEPARTMENTS AND PROVI NCES
Activities
Indicators
Baseline
Targets
Functional
Areas
Analyse job opportunities emerging from the
implementation of CDA, departmental-and provincial
specific outputs and activities required in terms of
potential job creation and employment e.g. staff required
to deal with prevention, treatment, aftercare and
rehabilitation, and enforcement of harmonised
legislation
Percentage increase in
persons employed in the
substance abuse field
Employment data from the
report provided by the
Department of Labour:
Door to door report
10% increase
of jobs created
Department of
Labour
[Type text]
Page 100
NATIONAL DEPARTMENTAL AND PROVINCIAL DRUG MASTER PLANS
(DMP‟S)
National Departmental and Provincial DMP‟s are derived from the NDMP using the
outcomes, outputs and activities described in Figure 16 and the tables that follow.
The activities described for departments and provinces are turned into objectives
and inserted in the appropriate places in the format of the MP described on the
web page of the CDA.
The format of the DMP contains a table in which the outputs and activities to be
achieved are expressed in terms of:
Activities;
Indicators;
Baseline; Targets, and
Responsibilities
In the same way that the outcomes etc of the NDMP are described.
The DMP‟s, before activation must be approved by the appropriate head of
department at national or provincial level and by the MEC concerned.
LOCAL DRUG ACTION COMMITTEE ACTIVITIES
The action plans of LDAC‟s are in their turn derived from those of the relevant
PSAF‟s (with provincial departmental inputs) and similarly expressed in terms of a
plan of action containing the same information as that in the DMP‟s but limited to
that which the LDAC‟s individually are able to handle.
NDMP INPUT REQUIREMENTS
(TO BE INSERTED ON COMPLETION OF COSTING OF DRAFT NDMP
BY SERVICE PROVIDERS)
NDMP 2012-2016 First Draft 2
nd
Revision r
Page 101
National Drug Master Plan 2012 - 2016
CHAPTER 6: MONITORING, EVALUATION AND REPORTING
MONITORING AND EVALUATION PERSPECTIVES
The basis of monitoring and evaluation as applied by the CDA to the NDMP and
the departmental and provincial DMP‟s is contained in the PSC monitoring and
evaluation guidelines (PSC, 2008).
For the sake of convenience, certain key concepts of monitoring and evaluation
are repeated here.
In the national sphere of government each department must produce a five-year
strategic plan which is aligned with that of government as contained in the
Government Programme of Action. The NDMP is a five-year strategic plan the
impact, outcomes and outputs of which are aligned to the 12 outcomes of
government.
Departments and provinces need to align their DMP‟s not only to the NDMP but to
the departmental and provincial and sectoral plans of action.
Based on the strategic plan (the NDMP and the DMP‟s) the CDA, the departments
and the provinces prepare their budgets (including the Input aspect) called the
Estimates of Expenditure/Medium Term Expenditure Framework which are
submitted to the departments and provinces; in the case of the CDA
to the national Department of Social Development) the treasury and eventual
approval by Parliament.
Based on the NDMP and the DMP‟s the CDA, departmental and provincial annual
performance plans are developed. These plans – the NDMP, the DMP‟s and the
annual performance plan, which are normally included in the NDMP and the
DMP‟s, contain statements of impact, outcomes, outputs, indicators and targets.
Once these plans are implemented, monitoring commences and measures
progress against the outcomes etc which is reported monthly, quarterly and
annually, using a version of the QuASAR (Quick Analysis of Substance Abuse
Reporting) to the CDA.
The process culminates in an annual report and a cumulative five-yearly evaluation
of and report on the NDMP and the DMP‟s, which feed into the planning cycles for
[Type text]
Page 102
National Drug Master Plan 2012 - 2016
each year and for the year following on the five-year cycle of the NDMP 20122016.
In terms of the NDMP, there are essentially four aspects that require monitoring
and evaluating:
Programme performance
Organisational performance
Financial performance
Community needs (PSC, 2008)
PROGRAMME PERFORMANCE
Monitoring and evaluation from the prospective of Programme Performance
consists of monitoring the pre-set performance indicators contained in the NDMP.
This entails the routine collection of data on the performance indicators, and
reporting the analysis of that data as prescribed to indicate the success of the
programmes, the impact of that done and the method (service delivery model) in
which it is done.
ORGANISATIONAL PERFORMANCE
Reviews of organisational performance cover the structures (e.g.‟ CDA, PSAF and
LDAC), their systems and management and operational processes. Reports on
this process would deal with aspects such as organisational structdures,
organisational performance reviews, management audits, organisational
development or capacity-building and so on.
FINANCIAL PERFORMANCE
Monitoring is executed via monthly and annual financial statements to answer
questions such as: was the money spent as appropriated, were assets protected
and has the organisation adhered to sound financial controls.
In the case of the CDA these questions need to be asked through the Accounting
Officer. In the case of the departments and provinces, this is done through their
[Type text]
Page 103
National Drug Master Plan 2012 - 2016
respective accounting officers with the CDA reporting the execution of the
procedure in its annual report to Parliament.
COMMUNITY NEEDS ASSESSMENT
Since the NDMP is based, among other needs, on the needs of the communities, it
is essential that the degree of satisfaction of these needs be assessed through
monitoring. In essence this requires that the CDA and the national Department of
Social Development repeat annually the Rapid Participative Assessment process
that prefaced the 2nd Biennial Anti-substance Abuse Summit or use some other
form of evaluation to determine the degree of success of the interventions applied
to the identified needs of the community.
THE QUASAR REPORTING TOOL
A quasar is a massive and remote (celestial) object, emitting exceptionally large
amounts of energy, which is considered to contain large black holes and to
represent a stage of evolution (of a galaxy). The QuASAR questionnaire is
designed to evaluate the results of the massive amounts of energy being emitted
by Departments, Entities and Provincial Substance Abuse Forums (PSAF), in
combating substance abuse and to identify the black holes or gaps in these reports
in an attempt to assist them in their evolution as part of the supporting structure of
the Central Drug Authority (CDA).
The QuASAR questionnaire is a tool designed to analyse the contents of the
quarterly and annual reports of the supporting structure of the CDA in an attempt to
make reporting easier and to standardise the format and content of the reports.
The questionnaire is not meant to replace the detailed research and analysis
schedule of the CDA‟s Research and Development Committee but merely to guide
the reporting process at departmental, entity and provincial level, and to assist the
CDA in its compiling of its quarterly reports and the CDA Annual Report to
parliament. In this way the QuASAR questionnaire indicates the minimum data set
needed by the CDA to compile its annual report to parliament, and indicates the
areas being given or needing attention.
The QuASAR, the format of which is reviewed annually is designed around the
outcomes, outputs and activities of the NDMP and the objectives derived from the
[Type text]
Page 104
National Drug Master Plan 2012 - 2016
activities. It requires the reporting of the measurable results of these processes
quarterly and annually to the CDA.
A copy of the QuASAR reporting tool version 1.2 appears on the wesite of the CDA
(www.cda@socdev.gov.org).
APPROVAL, MONITORING AND EVALUATION OF THE NDMP
The NDMP once compiled by a task team of the CDA and approved by that body,
is submitted to the Minister of Social Development for processing and eventual
approval by Cabinet. The departmental and provincial DMP‟s derived from the
NDMP follow a similar process for approval of the DMP‟s by the respective
departmental Ministers and provincial Premiers.
In monitoring the implementation of the NDMP the CDA will:
Carry out monthly and quarterly evaluations on site of the reports submitted
by departmental and provincial representations using the QuASAR
evaluation tool.
Advise the Minister of Social Development (verbally and in writing) of
progress made in implementation.
Advise the Inter-Ministerial Committee on Substance Abuse (verbally and in
writing) and attend discussions of the same body on a quarterly basis and
when so required.
Report three-monthly and annually to the Minister of Social Development
using the same tool and the required Annual Report
Report to the Portfolio Committee on Social Services as and when
requested, and submit copies of the quarterly and annual reports made to
the Minister of Social Development.
Report to Cabinet annually and as required in addition to submitting an
Annual Report as required as provided for in Act 20 of 1992.
MONITORING STRUCTURES
The monitoring structures at national level are:
[Type text]
Page 105
National Drug Master Plan 2012 - 2016
Cabinet and cabinet committees
Cabinet is responsible for approving and implementing legislation. The portfolio
committees of the core departments stipulated in the Act make
recommendations to Cabinet and also monitor these departments
National Council of Provinces. This structure represents provincial interests and
is responsible for monitoring the relevant national departments and their
effectiveness in addressing the prevention and combating of substance abuse
in terms of the NDMP.
National Assembly: The National Assembly is the lower house of the Parliament
of South Africa, located in Cape Town in the Western Cape. The government
departments and their entities are monitored by the National Assembly in
terms of the achievement of their mandates.
Inter-Ministerial Committee on Substance Abuse (IMC): A committee formally
established by the President chaired by the Minister of Social Development to
co-ordinate the roles of selected Ministers whose portfolios include dealing
with the problem of substance abuse.
Ministers and Members of Executive Councils (MINMEC): The council of the
Minister of Social Development with members the Members of the Executive
Committee of the departments of Social Development of the provinces,
formed to monitor and evaluate progress on the implementation of the NDMP.
Other councils may monitor the role of their departments in the
implementation of the NDMP.
Director-General: The Director-General of the Department of Social Development
as the accounting officer of the national Department of Social Development
provides the finances necessary for the achievement of the outcomes of the
NDMP and the administration of the CDA, and monitors such expenditure.
Central Drug Authority: The CDA is responsible for the oversight of (direct, coordinate, monitor and evaluate) the activities of national and provincial
departments as set out in the NDMP and their respective DMP‟s in combating
substance abuse in South Africa. The CDA also advises the Minister of Social
Development and through that Minister other relevant Ministers on matters
affecting the combating of substance abuse.
[Type text]
Page 106
National Drug Master Plan 2012 - 2016
The Portfolio Committee on Social Development and the Select Committee on
Social Services of the Parliament of South Africa carry out an oversight role and
include in their mandate the activities of the CDA.
MONITORING OF GOVERNMENT DEPARTMENTS AND PROVINCES BY THE
CDA
The CDA as part of its role monitors the core departments represented on the CDA
in terms of the NDMP and their respective DMP‟s. and does the same for ther
Provincial Substance Abuse Forums and requires the related reports
demonstrating the achievement of the outcomes contained in these plans.
MONITORING BY GOVERNMENT DEPARTMENTS AND PROVINCIAL
SUBSTANCE ABUSE FORUMS
Government departments have DMP‟s that require them to monitor and evaluate
their provincial equivalents (where applicable) in their implementation of the DMP.
The provincial substance abuse forums are responsible for the monitoring and
evaluation of the implementation of the DMP through the Local Drug Action
Committees. Each province has an operational plan derived from the Provincial
DMP that details how it addresses substance-related issues in the province.
MONITORING BY LOCAL DRUG ACTION COMMITTEES
Local government has to take a lead in the establishment and functioning of the
LDAC by providing a secretariat for the LDAC, which will liaise with the provincial
forum The LDACs are responsible for combating substance abuse at the local level
in terms of the provincial DMP‟s.
Each municipal area has to develop operational plans at local level that detail how
the drug problem is managed at municipal level. LDACs are composed of
departments operational in the municipal area, NGOs, CBOs, FBOs and any other
individual structure concerned about the problem of substance abuse, such as
community policing forums. LDACs should liaise with the provincial coordinator
and be represented in the provincial forums. The plans and reports of the LDACs
should be sent to the coordinator, who in turn will include information on LDAC
activities in the provincial reports.
[Type text]
Page 107
National Drug Master Plan 2012 - 2016
REPORTING REQUIREMENTS AND TIMESCALES
NDMP AND SUBMISSION OF DMP‟S
The NDMP 2012-2016 is current from 1 April 2012 until 31 March 2016.
Departments, entities and Provinces are required to produce their approved
Departmental and Provincial DMP‟s covering the same period by July 2012, using
the cluster concept in doing so. The format of the DMP is standardised and an
example appears in the appendices to this NDMP
MONITORING AND EVALUATION TIMESCALES
Designated members of the CDA will attend the monthly and quarterly meetings of
the Provincial Substance Abuse Forums in each province to carry out the
monitoring and evaluation as required, and also attend meetings of the LDAC‟s if
necessary.
Monitoring will be based on the requirements of the QuASAR. Reports are to be
submitted by the last day of the months of June, September, December and March
of each year.
Designated members of the Provincial Substance Abuse Forums will attend the
quarterly General Meetings of the CDA and submit their reports for discussion at
those meetings.
Departmental representatives on the CDA will similarly attend the quarterly
General Meetings of the CDA and submit their departmental reports based on the
QuASAR for discussion at those meetings.
CDA REPORTS TO MINISTER AND PARLIAMENT
In terms of the legislation governing the CDA that body must submit an Annual
Report to the Minister of Social Development for onward transmission to
Parliament by the end of September each year. That report is based on the
monitoring and evaluation process conducted by the CDA, on the reports
submitted by departments and provinces, on the research conducted by or on
behalf of the CDA as well as on other matters of relevance.
[Type text]
Page 108
National Drug Master Plan 2012 - 2016
In addition the CDA reports verbally and in writing to the Minster of Social
Development after each General Meeting and on such other occasions as the
need demands, in order to carry out the man date of advising on matters affecting
substance abuse in South Africa.
[Type text]
Page 109
National Drug Master Plan 2012 - 2016
CHAPTER 7: INSTITUTIONAL FRAMEWORK ROLES AND
RESPONSIBILITIES
THE CDA AND THE SUPPORTING INFRASTRUCTURE
Given the extent of the drug problem, an institution, organisation or combination of
organisations is required to plan, organise, direct, co-ordinate and control the
struggle against the drug problem across South Africa in terms of the integrated
strategy of demand-, supply- and harm reduction.
Action to combat trade in, use and abuse of dependence-forming substances
involves broad activities in all spheres of government, and in organisations in the
business sector and civil society. This must be complemented by action to broaden
regional co-operation between governments to apply similar concepts across the
Southern African region. Such an institution exists in the form of the Central Drug
Authority (CDA) and its supporting infrastructure.
In pursuing this mandate the CDA is required to:
Direct, guide and oversee the implementation of the NDMP;
Monitor and evaluate the success of the NDMP,
Make such amendments to the NDMP as are necessary for success;
Review the NDMP every five years, and
Produce a new NDMP for the period 2012-2016.
The CDA‟s mandate requires that it:
Coordinate the efforts of all departments (at national and provincial level) to
combat substance abuse;
Facilitate the integration of the work of the different stakeholders (including
the provincial and departmental organisations), and to
Report to parliament on achievements related to the outcomes of the NDMP
and the outputs achieved by the institutional framework supporting the CDA
[Type text]
Page 110
National Drug Master Plan 2012 - 2016
(i.e. the national and provincial supporting structure of Departmental,
Provincial Substance Abuse Forums and Local Drug Action Committees) in
achieving that mission.
The supporting infrastructure required to do so is shown in the figure below.
Figure 18: CDA supporting infrastructure
DEPARTMENTAL SUBSTANCE ABUSE FUNCTIONS
In terms of the Prevention of and Treatment for Substance Abuse Act (70 of 2008),
as amended, and in accordance with the NDMP, particular national government
departments form part of the CDA and are charged with drawing up Departmental
Drug Master Plans (DMPs) in line with their core functions to carry out those
aspects of the NDMP which fall within their mandate, and which are compiled using
the cluster concept. These DMP‟s are submitted to the CDA for approval and then
used as a basis for monitoring, evaluating and reporting to the CDA their progress
with the achievement of outcomes, outputs and the objectives derived from the
activities contained in the DMP‟s.. These reports help the CDA to compile quarterly
and annual reports for Cabinet on the management of the drug problem across
South Africa, as well as to maintain a National Data Base on combating substance
abuse.
[Type text]
Page 111
National Drug Master Plan 2012 - 2016
Particular departments have been identified as pivotal in the fight against drugs.
Below is a brief discussion of these departments and their functions in respect of
dealing with the drug problem.
ARTS AND CULTURE
This Department is responsible for supporting occupational groups at risk such as
artists, musicians and others. It is required to draw up a strategy on preventing and
combating substance abuse among these groups with particular emphasis on the
risks associated with the environment within which they operate. It also has a
particularly important role to play in using the arts to provide alternative
development among the youth and learners, as part of the prevention of substance
use and abuse.
CORRECTIONAL SERVICES
This department provides corporate services to facilitate compliance with the drug
policy in the workplace.
In terms of offenders it engages in security strategies that contribute to the
prevention of drugs entering the correctional centres, reducing demand by means
of educational programmes and implementing harm reduction strategies and
rehabilitation programmes for those offenders suffering from substance abuse, in
line with protocols from the Department of Health. The Department forms
partnerships with external stakeholders from civil society as well as with other
government departments in dealing with its fight against substance abuse.
Embedded in this approach is the department‟s objective to correct the offending
behaviour of sentenced persons and to promote corrections as a societal
responsibility.
EDUCATION
As an extension of the National Drug Master Plan the Departments of Basic and
Higher Education have developed a Policy Framework on the Management of
Drug Abuse in all Public Schools and Further Education and Training Institutions.
The Policy Framework encapsulates all recommendations made in the National
Drug Master Plan. This document was distributed to all schools in Provinces.
[Type text]
Page 112
National Drug Master Plan 2012 - 2016
The policy framework focuses on prevention and early intervention based on a
restorative justice approach.
Issues related to substance abuse form part of the curriculum, specifically within
the learning area of Life Orientation. The departments ensure that Life Orientation
programmes provide learners with the relevant knowledge on the abuse of drugs,
to influence change of attitudes and skills to make appropriate choices when
confronted with dependence-forming substances.
Guidelines for the Prevention and management of Drug Abuse in all Public
Schools and Further Education and Training Institutions have been developed and
distributed to all schools in Provinces. The Guidelines are underpinned by
principles that are inherent in the Constitution and have been developed taking into
consideration the legal and other requirements pertaining to drug abuse. The
Guidelines are to be used as the basis for developing a drug management strategy
for each school. The training of master trainers in all provinces precedes the
implementation of the Policy Framework and the Guidelines.
Reduction in the supply and demand for drugs can only be combated through the
collaboration of all the relevant stakeholders, e.g. Departments of Safety and
Security, Social Development, Health, Sports and Recreation, Arts and Culture,
Justice, etc. The programmes of the different departments are to be integrated with
uninhibited access for children, whether it is after care programmes in schools or
multi-purpose centres for the unemployed youth. In addition communities should
be deliberately targeted with educational programmes on the abuse of drugs.
FINANCIAL INTELLIGENCE CENTRE (FIC)
The Financial Intelligence Centre is responsible for passing on any drug and crime
related information it receives from banks and other institutions to the relevant law
enforcement authorities, intelligence agencies and SARS who in turn pass this
information to the CDA as part of their reporting procedure. These government
departments and agencies are in turn responsible for providing information to the
FIC and the CDA in relation to enforcement targets and drug distribution typologies
in South Africa in order that the FIC may properly carry out its responsibilities.
INTERNATIONAL RELATIONS AND CO-OPERATION (DIRCO)
This department has the following responsibilities:
[Type text]
Page 113
National Drug Master Plan 2012 - 2016
To enter into bi-lateral and multi-lateral agreements with other countries and
international agencies for the effective management of substance abuse;
To ensure South Africa‟s compliance‟s compliance with its international
obligations as a State Party to the following instruments:
Single Convention on Narcotic Drugs of 1961, as amended by the 1972
Protocol
Convention on Psychotic Substances of 1971, and
United Nations Convention Against Illicit Traffic in Narcotic Drugs and
Psychotropic Substances of 1988;
To ensure South Africa‟s adherence to the general rules of international law with
respect to combating substance abuse;
To promote enhanced regional and international co-operation in the combating of
substance abuse, illicit trafficking in drugs and transnational organised crime; and
To advise all the national stakeholders on South Africa‟s international obligation
with respect to international instruments on drugs.
HEALTH
This department is responsible for the reduction of drug demand and harm caused
by psychoactive drugs, including alcohol and tobacco, through the development of
legislation and policy guidelines for early identification and treatment. It
collaborates with the Departments of Basic and Higher Education and Social
Development in respect of national awareness and also supports treatment centres
through advising on detoxification programmes, the appointment and support of
medical personnel, capacity building and supervision.
The database of this department provides important bio-, socio-psycho data to the
CDA.
HOME AFFAIRS
This department is responsible for the determination of status of persons (citizens
and foreigners) and the issuing of appropriate enabling and/or identification
documents to such persons. The Department also reports on the movement of
[Type text]
Page 114
National Drug Master Plan 2012 - 2016
persons into and out of South Africa through various ports of entry. It is also
responsible for the detection, detention and deportation of illegal foreigners – some
of whom are involved in criminal activities including drug abuse. The Department
chairs the Border Control Operational Coordinating Committee (BCOCC) and is
charged with ensuring that the various stakeholders‟ (including Port Health, SARS,
Agriculture, SAPS, NIA, Defence, DEAT etc.) operations are coordinated and
effective.
The Department of Home Affairs administers a deportation facility. The facility is
also used as a holding centre for deportees. Like many detention facilities the
deportation facility faces the risk of drug abuse by deportees. The deportation
facility also has a small medical facility on site, which needs to be managed
according to set standards and risk management measures.
The database is linked with that of the CDA.
JUSTICE AND CONSTITUTIONAL DEVELOPMENT
This Department has a role both in assisting with reducing the demand for illicit
drugs and reducing the supply of such drugs on the street.
In terms of demand reduction the Department, through the criminal justice system
refers offenders that require drug related treatment where required into treatment
through a variety of mechanisms, such as diverting young and non-violent
offenders to treatment programmes instead of them having to go through the court
system, stipulating treatment as a condition of suspension of sentence, pre-trial
release, or correctional supervision, and focusing on the expedition of cases. The
Department also ensures that the role players within the courts are educated about
substance abuse in order to be able to identify offenders that require treatment.
Through education and training the Department ensures that the prosecution, and
the magistracy are trained in the use and understanding of the laws aimed at
prosecuting offenders.
The role of the Department to reduce the supply of drugs is through dealing with
organised crime where drugs are involved through asset forfeiture of the
gains/property that came about as a result of crime as well as through deterrent
sentences in the courts.
[Type text]
Page 115
National Drug Master Plan 2012 - 2016
This department furthermore has a role as part of the integrated justice system, the
Justice Crime Prevention and Security (JCPS) Cluster and the Social Cluster in the
fight against drugs.
In terms of its involvement with the JCPS Cluster, the department contributes to
the formulation of inter-sectoral strategies relating to combating drug related
offences.
In terms of its involvement with the Social Cluster, the department contributes to
the formulation of inter-sectoral strategies relating to social cohesion and moral
regeneration – focusing in particular on drug related aspects in crime
prevention/combating, if that cluster identifies it as a priority.
LABOUR
This department establishes the conditions of employment and protects the rights
of employees in the workplace. It is expected to develop workplace policies on
substance abuse and to measure and combat substance abuse at the workplace
through the monitoring and evaluation of the implementation of these policies
MEDICINES CONTROL COUNCIL
The Medicines Control Council (MCC) is a statutory body appointed by the Minister
of Health in terms of the Medicines and Related Substances Control Act, 101 of
1965, to oversee the regulation of medicines in South Africa. Its main purpose is to
safeguard and protect the public through ensuring that all medicines that are sold
and used in South Africa are safe, therapeutically effective and consistently meet
acceptable standards of quality.
The Medicines Control Council applies standards laid down by the Medicines and
Related Substances Control Act, (Act 101 of 1965) which governs the
manufacture, distribution, sale, and marketing of medicines. The prescribing and
dispensing of medicines is controlled through the determination of schedules for
various medicines and substances.
The monitoring and evaluation of the misuse of regulated medicines forms part of
the information passed to the CDA to combat the abuse of dependence-forming
substances.
[Type text]
Page 116
National Drug Master Plan 2012 - 2016
NATIONAL YOUTH DEVELOPMENT AGENCY
The National Youth Development Agency (NYDA) was established by the Youth
Act, 1996, and is based in the Office of the Deputy President. The NYDA‟s primary
aim is to assist the government in planning a comprehensive youth development
policy with reference, inter alia, to substance abuse and related issues. The NYDA
focuses on all youth in and outside school.
SAFETY AND SECURITY
The Department of Safety and Security includes the South African Police Service
(SAPS), Independent Complaints Directorate (ICD) and Secretariat for Safety and
Security.
The Secretariat for Safety and Security was established in terms of Chapter 2 of
the SAPS Act, No. 10 of 1995, with the following functions:
Advise the Minister of Safety and Security in the exercise of his or her powers
and the performance of his or her duties and functions
Perform such functions as the Minister may consider necessary or expedient
to ensure civilian oversight of the South African Police Service
Provide the Minister with legal services and advice on constitutional matters
The ICD was established in terms of chapter 10 of the SAPS Act, No. 1995, to
investigate complaints of brutality, criminality and misconduct against members of
the South African Police Service (SAPS), and the Municipal Police Service (MPS).
The ICD operates independently from the SAPS in the effective and efficient
investigation of alleged misconduct and criminality by SAPS members. Its mission
is to promote proper police conduct.
SOCIAL DEVELOPMENT
This department is the lead department in the action against substance abuse and
provides technical and financial support to the CDA and its Secretariat. It is
responsible for developing generic policy on substance abuse. Its strategic
objectives are listed below:
[Type text]
Page 117
National Drug Master Plan 2012 - 2016
To develop a comprehensive legal and policy framework for service delivery
on substance abuse;
To develop and transform programmes related to prevention, early
intervention and treatment for substance abuse;
To facilitate capacity building and training of provincial stakeholders;
To monitor and evaluate the implementation of policies and programmes on
substance abuse; and
To develop minimum norms and standards for service delivery in the field of
substance abuse.
In collaboration with the Department of Health to provide treatment centres at
community and tertiary levels.
SOUTH AFRICAN POLICE SERVICE
The objective of policing, in terms of the Constitution Act, No. 108 of 1996 is to:
Prevent, combat and investigate crime
Maintain public order
Protect and secure the inhabitants of the Republic and their property; and to
Uphold the law
The SAPS budget includes five key Departmental Programmes, i.e. Administration,
Visible Policing, Detective Services, Crime Intelligence and Protection and Security
Services. All five programmes provide for drug demand and supply reduction
strategies. Some of the priorities, which cut across the programme structure, and
impact on the functions in the different programmes are:
Employee Assistance Services provides for pro-active and reactive social
work to members and their families;
Crime Prevention ensures visible crime deterrence by pro-active and
response policing on drug crimes, supporting supply reduction programmes;
[Type text]
Page 118
National Drug Master Plan 2012 - 2016
Crime intelligence conducts intelligence operations relating to criminal groups
involved in drugs and gathers, collate and analyse related intelligence
information;
Crime intelligence also provides intelligence and information on precursor
chemical movements nationally and internationally; and
Provides for the international co-operation between South African Police
Services (SAPS) and foreign Law Enforcement Agencies to address drug
trafficking.
Protection and Security Services provides policing and security at Ports of
Entry and railways, thereby minimizing drug trafficking into and out of the
country and ensures arrests and seizures at ports of entry; and
Detective Service investigates and gathers all related evidence on serious
and organised crime and addresses transnational and domestic narcotics
trafficking by way of intelligence driven operations i.e.
Project driven operations e.g. under cover operations, controlled
deliveries, entrapment, surveillance, interception, monitoring etc, and
Disruption operations – Search and seizure including ports of entry,
nightclubs, drug outlets etc.
SAPS promotes international cooperation and acts as competent authority under
the United Nations Conventions on the law of the sea (FFG) and the following, UN
Conventions:
The Single Convention of Narcotics Drugs 1961
The Convention of Psychotropic Substances of 1971
The Convention of Illicit Traffic in Narcotic Drugs and Psychotropic
Substances of 1988; including Control Deliveries (Article 11) and Precursor
Control (Article 12) which obligates them to control the import and export of
precursors and investigate any illicit uses through the Chemical Monitoring
programme which they have adopted
[Type text]
Page 119
National Drug Master Plan 2012 - 2016
SOUTH AFRICAN REVENUE SERVICE
SARS is mandated with controlling the cross border movement of goods; one of
the functions being, preventing the movement of prohibited and restricted goods,
e.g. Narcotics. Currently SARS participates in joint SARS/ SAPS teams at certain
ports of entry to interdict drugs and fulfils this function independently at the other
ports of entry.
SPORTS AND RECREATION
The Department of Sport and Recreation through its entity, the South African
Institute for Drug Free Sport (SAIDS) is required to develop and implement
prevention programmes against substance abuse from the 57 sporting disciplines
at regional, national and international levels.
SAIDS was established in terms of the Drug Free Sport Act No 14 of 1997 to
promote the participation in sport free from the use of prohibited substances or
methods intended to enhance performance artificially. The Act therefore rendered
impermissible doping practices, which are contrary to the principles of fair play and
medical ethics, in the interest of the health and well being of sportspersons, and to
provide for matters connected therewith.
The Drug-Free Sport Act vests the Institute with the statutory power to conduct a
national drug testing programme which may subject any sportsperson to drug
testing, at short notice or without notice, both in- and out-of-competition. SAIDS is
the only recognised body in the country permitted to authorise and enforce national
anti-doping policy. It is funded by Sport and Recreation South Africa and its
Executive Authority is the Minister of Sport and Recreation.
The Act has now been amended to comply with the requirements of the World
Anti-Doping Code, and SAIDS‟ Amendment Act 2006 extends and increases the
effectiveness and powers of the Institute in implementing its mandate.
The South African Institute for Drug-Free Sport is recognised globally as a world
leader in the fight against drugs in sport and is one of a handful of national antidoping organisations which has been awarded the international benchmark of
excellence, ISO 9001/2000 Certification in compliance with the World Anti-Doping
Programme.
[Type text]
Page 120
National Drug Master Plan 2012 - 2016
TRADE AND INDUSTRY
For the purpose of the NDMP, this department is responsible for the regulation of
the liquor industry. In particular, the department administers and enforces the
Liquor Act, 2003 (Act No. 59 of 2003) through the National Liquor Authority (NLA).
The regulation of the liquor industry is a concurrent national and provincial
legislative competence. In summary, the Liquor Act, 2003, provides for the
establishment of norms and standards, minimum standards, and measures for cooperative government in the regulation of liquor within the Republic. The Act also
provides for the establishment of the National Liquor Policy Council (NLPC), which
is constituted by the Minister of Trade and Industry, as Chairperson, and all MECs
responsible for the administration of liquor matters in each province. The objects of
the Act are to reduce the socio-economic and other costs associated with alcohol
abuse, and to promote the development of a responsible and sustainable liquor
industry. It also provides for public participation in the liquor licensing process.
TRANSPORT
This department has the responsibility for ensuring coordination in enforcement
activities (actually implemented by provinces and local authorities) through the
Road Traffic Management Corporation.
The Department of Transport has several areas of activity, which are related to the
implementation of this substance abuse policy.
Training of Traffic Officers (managed by the Road Traffic Management
Coordination RTMC), the officer training includes an element on recognition
of drug users by officers. This course also trains officers to prosecute alcohol
related crimes on the road by three methods: breath tests through an
alchometer, blood tests carried out by a registered nurse or medical doctor, or
recognition of behaviour which would indicate that the person is under the
influence of alcohol or drubs.
The responsibility for standards for enforcement equipment lies within the
Technical Committee for Standards and Procedures. This includes all
matters related to alcoholmeters and breathalysers, their acceptance as
evidentiary equipment, and further developments.
It also includes
acceptance of equipment related to identification of illegal drug usage. Both
[Type text]
Page 121
National Drug Master Plan 2012 - 2016
of these elements include screening equipment and evidentiary equipment as
separate issues.
The new Road Safety strategy, consulted with all the provinces, includes
plans to increase enforcement, particularly in the form of mini-road blocks as
well as multi-disciplinary road blocks. These events will not only identify
drivers under the influence of drugs or alcohol, but will also find people
carrying drugs on the roads. Drugs need to be transported from their area of
manufacture or import to the customers, and most of this is via the road.
Road blocks are a very important tool in curtailing drug activity.
Legislation and Regulation is often concerned with introduction of new alcohol
and drug related issues e.g. The reduction of alcohol levels from .08 to .05,
which was done during 2004 in terms of the Road to Safety Strategy. They
will continue to take drug related issues into account when developing
legislation and regulations.
Public transport. The alcohol limit for Professional Drivers (PrDP) drivers is
.02 and this is enforced through the road blocks, designed as part of the Road
Safety campaign. Also part of the campaign is a training program and
practical test for PrDP drivers. Use and abuse of alcohol and drugs will be
part of this training, so that all drivers of public transport vehicles will be made
aware of the dangers of combining alcohol or any other illegal drug, and
driving.
CIVIL SOCIETY
The CDA has amongst its membership representatives of NGOs that deal with
substance abuse. Included among these are the South African National Council of
Drug Abuse and Drug Addiction (SANCA); Faith-based organisations (FBOs) and
community-based organisations (CBOs). Most of these organisations are
subsidised and monitored by the Department of Social Development. Their work is
complemented by research councils/institutions, Business Against Crime,
treatment centres and accredited addiction counsellors, all of whom have in-depth
knowledge and experience of substance abuse and are therefore able to advise
the CDA on strategies and interventions.
PROVINCIAL SUBSTANCE ABUSE FORUMS
[Type text]
Page 122
National Drug Master Plan 2012 - 2016
Act 70 of 2008 (Prevention and Treatment for Substance Abuse) makes provision
for the establishment a substance abuse forum for each of the nine provinces in
South Africa. These provincial substance abuse forums, appointed by the MEC of
the province involve all stakeholders in the fields of education, community action,
legislation, law enforcement, policy making, research and treatment; and in
addition, the business community and any other body interested in addressing
substance abuse can be involved.
Adequate and sustained funding for these forums must be provided by the
Provincial Department responsible for Social Development.
A Provincial Substance Abuse Forum must:
Strengthen member organisations to carry out functions related directly or
indirectly to addressing the problem of substance abuse;
Encourage networking and the effective flow of information between members
of the Forum in question;
Assist Local Drug Action Committees established in terms of section 60 in the
performance of their functions;
Compile and submit an integrated Provincial Drug Master Plan for the
province for which it has been established;
Submit reports and inputs, in accordance with the programme and
timescales stipulated by the CDA, to the Central Drug Authority for the
purposes of the quarterly and annual reports of the Central Drug Authority;
and
Assist the Central Drug Authority in carrying out its functions at a provincial
level.
[Type text]
Page 123
National Drug Master Plan 2012 - 2016
It is recommended that such forums set up an Executive Committee and assign
the following portfolios to particular members:
Demand Reduction
Supply Reduction
Harm Reduction
Research and Development
Communication
Monitoring and Evaluation
LOCAL DRUG ACTION COMMITTEES
The Mayor of each municipality, of which there are at present 238 must establish a
Local Drug Action Committee (LDAC) consisting of interested persons and
stakeholders who are involved in organisations dealing with the combating of
substance abuse in the municipality in question and appoint those selected
persons. In cases where there are grounds for doing so e.g. geographical
distribution over large areas, it may be moiré feasible to appoint in addition District
Drug Action Committees to co-ordinate the activities of a number of LDAC‟s. This
is done at the discretion of the MEC concerned.
The municipality in which a LDAC is situated must, from the moneys appropriated
by the municipality for that purpose, provide financial support to the LDAC.
An LDAC, in its turn, must:
Ensure that effect is given to the National Drug Master Plan in the relevant
Municipality;
Compile an action plan to combat substance abuse in the relevant municipality
in cooperation with provincial and local governments;
[Type text]
Page 124
National Drug Master Plan 2012 - 2016
Ensure that its action plan is in line with the priorities and the objectives of the
integrated Mini Drug Master Plan and that it is aligned with the strategies of
government departments;
Implement its action plans;
Provide reports to the relevant Provincial Substance Abuse Forum concerning
actions, progress, problems and other related events in its area, and
Provide such information as may from time to time be required by the CDA.
CHAPTER 8: RESEARCH AND DEVELOPMENT
RESEARCH AND DISSEMINATION OF INFORMATION
As indicated in Chapter 4: Strategic Approaches to Dealing with the Drug Problem,
rational policy-making about drugs, whether at the international, national or
community level, requires a detailed knowledge of the profiles of problems of the
user of particular substances, the substances themselves and the ability to predict
to some extent the nature of future problems in the field . The profiles will vary from
place to place, as well as over time, and a programme of epidemiological
monitoring of the patterns of harm and the patterns of use will be important, as will
profiles of problems relating to demand and supply. Research in South Africa has
mostly addressed commercial/prescription substances and has overlooked the
impact of indigenous substances and combinations of substances, which have
affected a much larger number of people, notably those in rural and previously
disadvantaged communities.
Constant monitoring is needed, not only to establish the extent of the need for
services and prevention programmes, but also to identify ways in which particular
kinds of drug-related harm can be reduced and to determine trends, patterns and
types of drugs used by different communities.
[Type text]
Page 125
National Drug Master Plan 2012 - 2016
This has to be complemented by evaluation of existing services and
recommendations for policy change where necessary, which in turn will impact on
planning. In order to optimise the use of such a body of research knowledge, a
national clearinghouse and database must be established.
Extensive research is required to fill the gaps in information on the prevalence of
drug use among different groups in different parts of the country; the economic
costs of substance abuse to the country; the relationship between substance
abuse and national issues (HIV and AIDS, TB, crime, youth development and
poverty); effective community-based intervention approaches; and the impact of
current policies.
In all of this though, the ultimate requirement of the NDMP and the country is
research that will contribute to the combating of substance abuse i.e. not academic
research only but research that can be applied to the solving of present and
predicted problems in the field of substance abuse. The areas listed below have
been selected as being of great value to the solutions of such problems.
DEVELOPMENT OF BASELINE DATA ON SUBSTANCE ABUSE IN SOUTH
AFRICA
There is a dearth of accurate information on the use and abuse of dependenceforming substances in South Africa. This is situation which makes accurate
monitoring and evaluation of the progress made in implementing the NDMP
extremely difficult. To this end there is a need for research to provide accurate
baseline data for that purpose.
The objectives of this proposed research are to:
Determine the nature, prevalence, extent and impact substance abuse has
in communities in defined districts;
Determine the demographic characteristics of those persons in communities
in defined districts who are affected by substance abuse;
Supplement the data collected with data from other primary/secondary
South African sources to ensure the validity and reliability of the data; and
[Type text]
Page 126
National Drug Master Plan 2012 - 2016
Provide comparisons between data collected in this survey and the data
collected in the South African national substance abuse survey that was
carried out in 1995.
In order to provide as comprehensive a set of baseline data as possible for the
planning of interventions to combat substance abuse the survey should cover all
the communities in South Africa. For this reason a comprehensive list of districts
in which the communities reside has been compiled.
It is important to note that each of the provinces (and therefore the communities
residing therein) has different trends in substance abuse. This research seeks to
investigate the nature, prevalence, extent and impact of substance abuse in each
province and community, as well as the trends related to substance abuse in a
range of age groups and demographic contexts.
POLICIES, LEGISLATION, PROTOCOLS AND PRACTICES ON CANNABIS
It is well-known that cannabis (dagga) is the second most-abused dependenceforming substance used in South Africa. The preparation of a position paper on
cannabis commenced in 2004 and the contents of the draft paper were presented
to a variety of communities and interested parties for consultation in 2010. Since
that date however a drastic change has been seen in the approach to cannabis in
a number of countries including South Africa and further research has now become
necessary.
In addition, at the 54th session of the Commission for Narcotic Drugs (CND) in
Vienna a resolution was passed that requested „the creation of an infrastructure
appropriate to address the challenges faced by African countries…….where
cannabis is increasingly abused.‟
The research required entails not only determining the demand for, supply of and
harm resulting form the abuse of cannabis, but also one of proposing the requisite
policies, legislation and practices to be applied by the government and bodies
involved in the combating its abuse, as part of the overall strategy for dealing with
cannabis. In addition, attention needs to be given to the concept prevalent in
certain countries of the legalisation and/or decriminalisation of the use of the drug.
POLICIES, LEGISLATION, PROTOCOLS AND PRACTICES ON DRUGAFFECTED DRIVING
[Type text]
Page 127
National Drug Master Plan 2012 - 2016
Prominent among the resolutions generated at the 2 nd Biennial Anti-Substance
Abuse Summit are those devoted to dealing with the most-abused substance in
South Africa i.e. alcohol. Special attention has been paid to the dangers of driving
whilst under the influence of alcohol, while little attention has been given to the
known phenomenon of driving under the influence of other substances, especially
cannabis.
Recognising this, at the 54th session of the Commission for Narcotic Drugs (CND)
in Vienna a resolution was passed that requested member nations to develop
appropriate responses to drug-affected driving by assessing and monitoring the
magnitude of the problem.
The research would entail:
Collecting data reflecting the prevalence of drug-affected driving in South
Africa;
Developing effective roadside-testing or other appropriate methods to assess
drug-affected driving;
Developing, testing and applying appropriate strategies to address the
problem through collaborative methods that include academia, the private
sector, professional organisations, NGO‟s, civil society, responsible
government organisations, roadside assistance or similar organisations, youth
organisations and the media
Proposing the requisite policies, legislation and practices to be applied by the
government and bodies involved in the combating the problem of drugaffected driving, as part of the overall strategy for dealing with road safety.
POLICIES, LEGISLATION, PROTOCOLS AND PRACTICES ON THE
SOCIO-ECONOMIC COSTS OF SUBSTANCE ABUSE
Figures provided by the SA Revenue Service indicate that the known direct cost of
drug use in 2005 was roughly R101 000 million.
Social and economic cost or the use of additional data giving in financial terms the
social and economic impact of drug use on society is finding favour as a more
direct indicator of the cost to society of dealing with the drug problem (Business
and Economic Research Ltd., 2009). Presently not one of the WHO indicators,
[Type text]
Page 128
National Drug Master Plan 2012 - 2016
deriving the social and economic cost requires specific research to obtain the data
in a particular country.
Where such specific research is not conducted,
extrapolations of findings in similar countries are advocated and commonly used.
The social and economic cost of illicit drug use and alcohol has been calculated
using international data available and approximates 6.4% of GDP or about R136
380 million per year. In addition up to 17.2 million persons (or roughly 1/3 of the
population) in the families of users are affected negatively both emotionally and
financially by the presence of the user in their midst; in the same way 1.78 million
are affected by problem users.
In order for South Africa more accurately to calculate
ACHIEVING ZERO NEW INFECTIONS OF HIV AMONG INJECTING AND
OTHER DRUG USERS
For the past two years the CDA has been involved in a pilot project with the
UNODC on determining the extent of Injecting Drug Use (IDU) and the link to
HIV/AIDS among drug users in South Africa in order to determine appropriate
protocols and practices to deal with the problem.
Contrary to popular belief, indications are that the extent of IDU in South Africa is
far greater than was first supposed and that the dangers of users spreading HIV
infections are also higher than was first perceived.
Dealing with the problem in a way that would result in zero new infections of HIV
among IDU entails research to determine the extent of and methods for dealing
with the problem.
The research would entail:
Collecting data reflecting the prevalence of IDU and HIV infections in South
Africa;
Developing, testing and applying appropriate evidence-based strategies to
address the problem through collaborative methods that include academia,
the private sector, professional organisations, NGO‟s, civil society,
responsible government organisations, roadside assistance or similar
organisations, youth organisations and the media
[Type text]
Page 129
National Drug Master Plan 2012 - 2016
Proposing the requisite policies, legislation, protocols andd practices to be
applied by the government and bodies involved in the combating the problem
of IDU and HIV infections, as part of the overall strategy for dealing with
HIV/AIDS.
EFFICIENT MEASURES TO IMPROVE THE PARTICIPATION OF CIVIL
SOCIETY IN THE NDMP AND THE CDA
The implementation of the NDMP 2012-2016 requires the effective participation of
civil society (NGO‟s and other such organisations) in the activities of the CDA and
the supporting infrastructure (PSAF‟s and LDAC‟s) as well. There at present in
South Africa several thousand such organisations involved in the substance abuse
field, but very few (if any) that can be considered to be representative of and able
to speak authoritatively for the whole. In addition, the existence or otherwise of
such a body able to speak authoritatively for the whole at national and international
level is doubtful.
In order for the NDMP 2012-2016 to be implemented effectively, it is essential that
such an authoritative body be formed to support and actively participate in the
activities of the CDA, its supporting infrastructure and similar bodies at Southern
African and international level.
The research required would entail:
Determining the identify and functions of civil society organisations affected
by and involved in combating substance abuse;
Determining the need for and functions of an authoritative and representative
body to implement a series of functions for and on behalf of such
organisations at national, regional and international level in the field of
substance abuse policy, protocol and practice;
Facilitating the creation of such a body, its constitution, functions and funding
and advocating the legislation needed for its effective functioning if
considered necessary.
PREDICTIVE ANALYSIS OF SUBSTANCE ABUSE TRENDS IN SOUTH
AFRICA AND IMPLICATIONS FOR POLICY
[Type text]
Page 130
National Drug Master Plan 2012 - 2016
It is accepted that when drug policies target specific problems and populations and
when they are informed by sound scientific evidence, they can alter the course of
drug use and even drug epidemics (Babor T. e., 2010).
In South Africa there is very little concrete evidence of the problem and its effect on
populations, hence the need for research to provide baseline data of the problem.
Given this as a starting point it would then become possible to identify and target
problems so as to deal more scientifically with the identified problems. This
approach based as it is on historical data is generally accepted as a means of
informing policy approaches to deal with the identified problems. Again, given the
South African scene and the slow pace at which government policy is developed
and solutions delivered places the implementers of such policy at a distinct
disadvantage i.e. they are usually totally reactive in their development and
application of policy are must continually play „catch-up‟.
A prime requirement in any business (and the drug trade is the second biggest
business in the world) is to be able to predict the future through an analysis of the
environment in which it is expected that the business will function in the mediumterm future. The technique of environmental scanning is considered a normal part
of strategic planning, and this area of research calls for its application to enable
policy makers to become pro-active in their functioning and so, hopefully, change
from a „catch-up‟ approach to one of forward-thinking and planning.
The research requirement is for the application of an environmental scan of the
PESTEL type to be applied to the drug problems. The scan attempts to predict the
strategies necessary to deal with known and predicted changes in the environment
in six areas: Political, economic, social, technological, environmental and
legislative.
In this case the scan would be required to predict the potential policy, practice,
protocols and legislative implications of the six areas or factors on inter alia:
Drugs in use, new drugs and patterns of use;
Populations using drugs, new drugs and the bio-, psycho-social effects of
such use;
Causative factors and indicators (bio-, psycho-social) underlying drug use and
implications for users and populations;
[Type text]
Page 131
National Drug Master Plan 2012 - 2016
Prevention, treatment, aftercare and re-integration of potential users, users,
abusers and dependents, and
Existing policy, protocols, practices and legislation for combating substance
abuse.
[Type text]
Page 132
National Drug Master Plan 2012 - 2016
CHAPTER 9: IMPLEMENTATION OF THE NDMP 2012-2016
As indicated earlier the development of the NMP 2012-2016 differs from that of the
previous NDMP 2006-2011 in that in developing the NDMP the CDA, inter alia:
Held a workshop of its stakeholders in September 2010
progress made on the NDMP 2006-2011;
to review the
Attended various local and international conferences and analysed the
effects on the South African situation;
Analysed the reports emanating from the CDA supporting infrastructure,
including those of departments represented on the CDA and the provincial
substance abuse forums;
Conducted research into the problem of substance abuse in South Africa;
Carried out a door-to-door survey and an awareness campaign as
mentioned earlier, and
Held the 2nd Biennial Anti-substance Abuse Summit from which arose 34
resolutions representing community needs in combating substance abuse.
These aspects were then combined into the NDMP 2012-2016.
The NDMP Specific outcomes (seven in all) were divided into a series of
Departmental and Provincial Specific Outputs and activities which require the
respective departments and provinces to produce from them the Departmental and
Provincial DMP‟s containing the activities and objectives for implementation by the
CDA supporting infrastructure, the PSAF‟s and the LDAC‟s.
The table below indicates the activities to be carried out by the CDA in the five
financial years commencing 1 April 2012 and ending 31 March 2016 in
implementing the NDMP2012-2016.
[Type text]
Page 133
National Drug Master Plan 2012 - 2016
Figure 19: CDA action plan 2012-2016
Financial
Year/Time
Frame
One –
2013
2012-

[Type text]
Activities/Steps
Responsibility
Appoint CDA members
Minister of Social Development
Approve the NDMP 2012-2016
Cabinet
Conduct induction and capacity development
of CDA members,
CDA and consultants
Select, conduct induction and capacity
building of members of Provincial Substance
Abuse Forums and Local Drug Action
Committees
CDA and consultants
Increase numbers and capacity of Provincial
Substance Abuse Forums and Local Drug
Action Committees in all provinces to
optimum level.
CDA and provincial
representatives
Develop and obtain Ministerial approval of
the five-year business plan for the CDA,
including
the
database,
governance,
communication and marketing, research and
development
strategies
and
projects,
capacity-building of supporting infrastructure
and input requirements.
CDA
Commence implementation of business plan
CDA Committees
Revise the Departmental and Provincial
Drug Master Plan framework and conduct
workshops for Departments and Provinces
CDA
Page 134
National Drug Master Plan 2012 - 2016
for DMP development
Two – 2013/14
[Type text]
Develop, submit and gain approval for
Departmental and Provincial Drug Master
plans
CDA, National government
departments, entities and
provincial departments.
Provide for and obtain resources to
implement the NDMP within the current
Medium Term Expenditure Framework
period
All government departments,
entities and provinces.
National government
departments, entities and
provincial departments
Select, attend and participate in local,
national and international conferences on
substance abuse and related matters;
analyse and include relevant aspects in
Business Plan
CDA
Develop Monitoring and Evaluation
schedules for the implementation of the
NDMP and advising Minister on regular basis
CDA and supporting
infrastructure
Commence ongoing monitoring and
evaluation of progress on outcomes of
NDMP 2102-2016
CDA and supporting
infrastructure
Report to Parliament on achievements of
NDMP outcomes.
CDA, government departments
and provincial structures.
Review and adjust NDMP 2012-2016 in the
light of results of monitoring and evaluation,
outcomes
achieved,
research
and
development findings and international
trends..
CDA, government departments
and provincial representatives
Review and update capacity development of
CDA members.
CDA and consultants
Review and update capacity building of
CDA and consultants
Page 135
National Drug Master Plan 2012 - 2016
members of Provincial Substance Abuse
Forums and Local Drug Action Committees

[Type text]
Review and adjust Departmental and
Provincial DMP‟s 2012-2016 in the light of
results of monitoring and evaluation
CDA, government departments
and provincial representatives
Increase numbers and capacity of Provincial
Substance Abuse Forums and Local Drug
Action Committees in all provinces to
optimum level.
CDA and provincial
representatives
Obtain approval for continuance of the fiveyear business plan for the CDA, including the
database, governance, communication and
marketing, research and development
strategies and projects, capacity-building of
supporting
infrastructure
and
input
requirements for the current year.
CDA
Continue implementation of business plan
CDA Committees
Revise the Departmental and Provincial Drug
Master Plans and conduct workshops as
necessary
for
continued
DMP
implementation
CDA, departments and
provinces
Provide for and obtain resources
implement the NDMP and MTEF period
CDA, departments and
provinces
to
Select, attend and participate in local,
national and international conferences on
substance abuse and related matters;
analyse and include relevant aspects in
Business Plan
CDA
Continue ongoing monitoring and evaluation
of progress on achievement of outcomes of
NDMP 2012-2016
CDA and supporting
infrastructure
Page 136
National Drug Master Plan 2012 - 2016
Organise, hold and report on 3
Anti-substance Abuse Summit
Three -2014/15

[Type text]
rd
Biennial
CDA and Department of Social
Development
Report to Parliament on achievement of
NDMP 2012-2016 outcomes
CDA and supporting
infrastructure
Review and adjust NDMP 2012-2016 in the
light of results of monitoring and evaluation
outcomes
achieved,
research
and
development findings and international
trends.
CDA
Review and update capacity development of
CDA members.
CDA and consultants
Review and update capacity building of
members of Provincial Substance Abuse
Forums and Local Drug Action Committees
CDA and consultants
Review and adjust Departmental and
Provincial DMP‟s 2012-2016 in the light of
results of monitoring and evaluation
CDA, government departments
and provincial representatives
Increase numbers and capacity of Provincial
Substance Abuse Forums and Local Drug
Action Committees in all provinces to
optimum level.
CDA and provincial
representatives
Obtain approval for continuance of the fiveyear business plan for the CDA, including the
database, governance, communication and
marketing, research and development
strategies and projects, capacity-building of
supporting
infrastructure
and
input
requirements for the current year.
CDA
Continue implementation of business plan
CDA Committees
Page 137
National Drug Master Plan 2012 - 2016
Four-2014-2015
[Type text]
Revise the Departmental and Provincial Drug
Master Plans and conduct workshops as
necessary
for
continued
DMP
implementation
CDA, departments and
provinces
Provide for and obtain resources
implement the NDMP and MTEF period
CDA, departments and
provinces
to
Select, attend and participate in local,
national and international conferences on
substance abuse and related matters;
analyse and include relevant aspects in
Business Plan
CDA
Continue ongoing monitoring and evaluation
of progress on achievement of outcomes of
NDMP 2012-2016
CDA and supporting
infrastructure
Report to Parliament on achievement of
NDMP 2012-2016 outcomes
CDA
Review and adjust NDMP 2012-2016 in the
light of results of monitoring and evaluation
outcomes
achieved,
research
and
development findings and international
trends.
CDA
Review and update capacity development of
CDA members.
CDA and consultants
Review and update capacity building of
members of Provincial Substance Abuse
Forums and Local Drug Action Committees
CDA and consultants
Review and adjust Departmental and
Provincial DMP‟s 2012-2016 in the light of
results of monitoring and evaluation
CDA, government departments
and provincial representatives
Page 138
National Drug Master Plan 2012 - 2016

Increase numbers and capacity of Provincial
Substance Abuse Forums and Local Drug
Action Committees in all provinces to
optimum level.
CDA and provincial
representatives
Obtain approval for continuance of the fiveyear business plan for the CDA, including the
database, governance, communication and
marketing, research and development
strategies and projects, capacity-building of
supporting
infrastructure
and
input
requirements for the current year.
CDA
Continue implementation of business plan
CDA Committees
Revise the Departmental and Provincial Drug
Master Plans and conduct workshops as
necessary
for
continued
DMP
implementation
CDA, departments and
provinces
Provide for and obtain resources
implement the NDMP and MTEF period
CDA, departments and
provinces
Organise, hold and report on 3
Anti-substance Abuse Summit
[Type text]
rd
to
Biennial
CDA and Department of Social
Development
Continue ongoing monitoring and evaluation
of progress on achievement of outcomes of
NDMP 2012-2016
CDA and supporting
infrastructure
Report to Parliament on achievement of
NDMP 2012-2016 outcomes
CDA
Review and adjust NDMP 2012-2016 in the
light of results of monitoring and evaluation
outcomes
achieved,
research
and
development findings and international
trends.
CDA
Page 139
National Drug Master Plan 2012 - 2016
Five-2016-2017

Review and update capacity development of
CDA members.
CDA
Review and update capacity building of
members of Provincial Substance Abuse
Forums and Local Drug Action Committees
CDA, departments and
provinces
Review and adjust Departmental and
Provincial DMP‟s 2012-2016 in the light of
results of monitoring and evaluation
CDA, departments and
provinces
Increase numbers and capacity of Provincial
Substance Abuse Forums and Local Drug
Action Committees in all provinces to
optimum level.
CDA and supporting
infrastructure
Obtain approval for continuance of the fiveyear business plan for the CDA, including the
database, governance, communication and
marketing, research and development
strategies and projects, capacity-building of
supporting
infrastructure
and
input
requirements for the current year.
CDA and Department of Social
Development
Revise the Departmental and Provincial Drug
Master Plans and conduct workshops as
necessary
for
continued
DMP
implementation
CDA and supporting
infrastructure
Provide for and obtain resources
implement the NDMP and MTEF period
CDA
Select, attend and participate in local,
national and international conferences on
substance abuse and related matters;
analyse and include relevant aspects in
Business Plan
[Type text]
to
CDA
Page 140
National Drug Master Plan 2012 - 2016
[Type text]
Continue ongoing monitoring and evaluation
of progress on achievement of outcomes of
NDMP 2012-2016
CDA and consultants
Report to Parliament on achievement of
NDMP 2012-2016 outcomes
CDA and consultants
Review NDMP 2012-2016 in the light of
results of monitoring and evaluation
outcomes
achieved,
research
and
development findings and international
trends, and development NDMP 2017-2021
CDA, government departments
and provincial representatives
Commence process of recruiting, and
selection of CDA members for the period
2017-2021
Secretariat of the CDA
Page 141
National Drug Master Plan 2012 - 2016
CHAPTER 10: CONCLUSION
The compilation of this the third in the series of National Drug Master Plans for
South Africa covering the period 1st April 2012 to 31st March 2016 was made
somewhat easier than the task that faced the Central Drug Authority who
developed the previous one.
The prime difficulty that faces all planners is the availability or otherwise of
information applicable to the problems in question, and the support necessary to
implement the plans on their acceptance.
In that sense the planners have been blessed with the information necessary to
develop the plans, based primarily on the experience of the previous five years,
local, national and international support in determining the needs to be satisfied,
not the least being those of the communities in South Africa, and the burgeoning
support of the government of this nation.
Nevertheless the success of this National Drug Master Plan depends on the
continued support of the government and the people, the provision of the
necessary resources and, a very big „and‟ the ability of the CDA and its supporting
infrastructure: the departments, provinces, the Provincial Substance Abuse
Forums and the Local Drug Action Committees and the communities, to deliver the
outcomes, outputs and activities needed to meet the needs of the people.
An awesome responsibility indeed!
[Type text]
Page 142
National Drug Master Plan 2012 - 2016
APPENDICES
Appendix 1: Legislation applicable to substance abuse
REFERENCES
Babor, T. e. (2010). Alcohol: no ordinary commodity. Oxford, England: Oxford University Press.
Babor, T. e. (2010). Drug Policy and the Public Good. Oxford, England: Oxford University Press.
Business and Economic Research Ltd. (2009). Costs of harmful alcohol and other drugs use. New
Zealand: Business and Economic Research Ltd.
CDA. (2010). Annual Report of the Central Drug Authoirity 2009/10. Pretoria: Department of Social
Development.
Donald, P. a. (2009). The global burden of tuberculosis - combating drug resistance in difficult
times. New England Journal of Medicine Vol 360 , 2393-2395.
Euromonitor International. (2010, July 7). Alcoholic drinks in South Africa. Retrieved July 07, 2010,
from www.euromonitor.com/.
Parry, C. (25 January 2010). Alcohol and HIV/TB in Africa - Notes for WHO Africa Rport.
Patel, L. (2006). Social Welfare andSocial Development in South Africa. Oxford, England: Oxford
University Press.
Pludderman, A., Parry, C., Bhana, A., & Dada, S. a. (2009). SACENDU update:26 November 2009.
Cape Twon: SACENDU.
PSC. (2008). Basic Concepts in Monitoring and Evaluation. Pretoria, South Africa: Publisc Service
Commission of South Africa.
Single, E. (2001). International Guidelines for estimating the costs of substance abuse. Quebec,
Canada: Canadian Centre for Substance Abuse.
Snyder, S. (. (1986). The Encyclopedia of Psychoactive Drugs. New York: Chelseas House
Publishers.
United Nations Office on Drugs and Crime. (2009). 2009 World Drug Report. Vienna: United
Nations Office on Drugs and Crime.
UNODC. (2008). Global ATS Assessment 2008. Geneva, Switzerland: United Nations Office on
Drugs and Cime.
[Type text]
Page 143
National Drug Master Plan 2012 - 2016
Van Niekerk, A. (1998). Drugs, what you and your child must know! Mmabatho: Peoples Press and
Publications.
Van Rooyen, O. a. (2003). Banking on the poor. Occasional Paper No.8. Housing/Finance
Resrouce Programme .
GLOSSARY
Abuse: Persistent or periodic excessive drug use inconsistent with or unrelated to acceptable
medical practice.
Chemical precursors: Substances frequently used in the illicit manufacturing of narcotic drugs or
psychotropic substances as defined in Article 12 of the 1988 UN Convention against Illicit Drugs
and Psychotropic Substances mentioned in Table I and Table II annexed to the Convention.
Community-based treatment: Community-based treatment refers to programmes or initiatives that
arise out of the needs of a particular community (through a needs assessment) and programmes
that identify and utilise existing infrastructure to provide for these needs.
Demand reduction: A general term used to describe policies or programmes directed at reducing
the consumer demand for psychoactive drugs. It is applied primarily to illicit drugs, particularly with
reference to education, treatment and rehabilitation strategies, as opposed to law enforcement
strategies that aim to bar the production and distribution of drugs.
Dependence: A person is dependent on a drug or alcohol when it becomes very difficult or even
impossible for him/her to refrain from taking the drug/alcohol without help, after having taken it
regularly for a period of time. The dependence may be physical or psychological or both.
Designer drug: A novel chemical substance with psychoactive properties, synthesised specifically
to be sold on the illicit market and to circumvent regulations on controlled substances. These
regulations now commonly cover novel and possible analogues of existing psychoactive
substances.
Drug: A term of varied usage. In medicine, it refers to any substance with the potential to prevent or
cure disease or enhance physical or mental welfare, and in pharmacology to any chemical agent
that alters the biochemical or physiological processes of tissues or organisms. In common usage,
the term refers to psychoactive drugs and often, more specifically, to illicit drugs.
Drug control: The regulation, by a system of laws and agencies, of the production, distribution,
sale and use of specific psychoactive drugs (controlled substances) locally, nationally or
internationally; alternatively, as an equivalent to drug policy in the context of psychoactive drugs,
the aggregate of policies designed to affect the supply of and/or the demand for illicit drugs, locally
or nationally, including education, treatment, control and other programmes and policies.
[Type text]
Page 144
National Drug Master Plan 2012 - 2016
Drug master plan: A master plan is a single document, adopted by government, outlining all
national concerns regarding drug control.
Drugs or substances of abuse: Encompasses drugs, alcohol, chemical or psychoactive
substances.
Drug testing: The analysis of body fluids (such as blood, urine or saliva), hair or other tissue for the
presence of one or more psychoactive substances.
Early intervention: A therapeutic strategy that combines early detection of hazardous or harmful
substance use and treatment of those involved. Treatment is offered or provided prior to patients
presenting of their own volition and in many cases before they become aware that their substance
use may cause problems. It is directed particularly at individuals who have not developed a physical
dependency or major psychosocial complications.
Harm reduction: A harm reduction philosophy emphasises the development of policies and
programmes that focus directly on reducing the social, economic and health-related harm resulting
from the use of alcohol or drugs.
Illicit drug: A psychoactive substance, the production, sale or use of which is prohibited.
Licit drug: A drug that is legally available by medical prescription in the jurisdiction in question or,
sometimes, a drug legally available without medical prescription.
Money laundering: Engaging directly or indirectly in a transaction that involves money or property
obtained through crime, or receiving, processing, conceiving, disguising, transforming, converting,
disposing of, removing from and bringing into any territory, money or property obtained through
crime.
Prevention: Prevention is a proactive process that empowers individuals and systems to meet the
challenges of life‟s events and transitions by creating and reinforcing conditions that promote
healthy behaviour and lifestyles. It generally requires three levels of action: primary prevention
(focuses on altering the individual and the environment in such a way as to reduce the initial risk of
substance abuse); secondary prevention (focuses on early identification of persons who are at risk
of substance abuse and intervening in such a way as to arrest progress); and tertiary prevention
(focuses on treatment of the person who has developed a drug dependency).
Street children: The term often used to describe both market children (who work in the streets and
markets of cities selling or begging, and live with their families) and homeless children (who work,
live and sleep on the street, often lacking any contact with their families).
Substance abuse: The term refers to the misuse and abuse of legal substances such as nicotine,
alcohol, over-the-counter drugs, prescribed drugs, alcohol concoctions, indigenous plants, solvents
and inhalants, as well as the use of illicit drugs.
[Type text]
Page 145
National Drug Master Plan 2012 - 2016
Supply reduction: A general term used to refer to policies or programmes aiming to stop the
production and distribution of drugs, particularly law enforcement strategies for reducing the supply
of illicit drugs.
Treatment: A process aimed at promoting the quality of life of the drug dependant and his/her
system (husband/wife, family members and other significant persons in his/her life) with the help of
a multi-professional team.
[Type text]
Page 146
National Drug Master Plan 2012 - 2016
APPENDIX 1: LEGISLATION RELATING TO SUBSTANCE ABUSE
The control of illicit drugs in South Africa is organised and managed through legislation. The
following Acts are of special concern:
The Medicines and Related Substances Control Act, No. 101 of 1965. This Act provides for the
registration of medicines and other medicinal products to ensure their safety for human and animal
use, the establishment of a Medicines Control Council for the control of medicines and the
scheduling of substances and medical devices. It provides transparency in the pricing of medicines.
The Drugs and Drug Trafficking Act, No. 140 of 1992. This Act provides for the prohibition of the
use or possession of, or the dealing in, drugs and of certain acts relating to the manufacture or
supply of certain substances. It further provides for the obligation to report certain information to the
police, for the exercise of the powers of entry, search, seizure and detention in specified
circumstances.
Prevention of Organised Crime Act, No. 121 of 1998. This Act provides for the recovery of the
proceeds of crime (irrespective of the source thereof) as well as money laundering.
The Prevention and Treatment of Drug Dependency Act, No 20 of 1992. This Act was amended to
establish the Central Drug Authority in 1999. It makes provision for the development of programmes
and regulates the establishment and management of treatment facilities.
The Prevention of and Treatment for Substance Abuse Act, No 70 of 2008. This Act will replace ,
the abovementioned Act 20 of 1992 once the regulations are developed and approved.
Road Traffic Amendment Act (21 of 1998). This Act makes provision for the mandatory testing of
vehicle drivers for drugs, in order to protect the public from dangers of drug abuse. The legally
acceptable blood alcohol level has been reduced from 80 mg to 50 mg per 100 ml of blood alcohol
content.
The Tobacco Products Control Amendment Act, 12 of 1999, provides for the control of tobacco
products, prohibition of smoking in public places, advertisements of tobacco products as well as
sponsoring of events by the tobacco industry
Other relevant Acts include:
●
Child Care Act, No. 74 of 1983
●
Domestic Violence Act, No.116 of 1998
●
Health Act, No. 63 of 1977
●
Liquor Act, No. 53 of 1989
●
Medicine and Related Substance Control Act, No.59 of 2002
[Type text]
Page 147
National Drug Master Plan 2012 - 2016
●
Mental Health Care Act, No.17 of 2002
●
Occupational Health and Safety Act, No. 85 of 1993
●
Pharmacy Act, No. 53 of 1974
●
Promotion of Equality and Prevention of Unfair Discrimination Act, No. 52 of 2002
●
Road Transportation Act, No. 74 of 1977
●
Road Traffic Act, No. 93 of 1996
●
Sexual Offences Act, No. 23 of 1957
●
South African Constitution Act, No. 108 of 1996
●
South African Schools Act, No. 84 of 1996
●
Extradition Act, No. 67 of 1962
●
Witness Protection Programme Act, No. 112 of 1990
●
Extradition Act, No. 77 of 1996

Financial Intelligence Centre Act, No.38 of 2001
●
International Co-operation in Criminal Matters Act, No. 75 of 1996
●
Institute for Drug-Free Sport Act, No. 14 of 1997
Bills:
●
Child Justice Bill, 2003
●
Criminal Law (Sexual Offences and Related Matters) Amendment Bill, 2006
International Conventions
South Africa is a signatory to the 1961 UN Single Convention on Narcotic Drugs, the 1972 Protocol
(which amended the Single Convention), the 1971 Convention on Psychotropic Substances and the
1988 UN Convention Against Illicit Traffic in Narcotic Drugs and Psychotropic Substances. The
country is a signatory to both the African Union and Southern African Development Community
(SADC) Drug Control Protocol. South Africa is also a signatory and ratified the United Nations
Convention on Transnational Organised Crime.
The South African drug enforcement agencies co-operate and collaborate with similar agencies in
the United Kingdom and the United States, notably the Defence Logistics Organisation (DLO), Drug
Enforcement Administration (DEA), Central Intelligence Agency (CIA) and Federal Bureau of
Investigation (FBI). Regionally they co-operate and collaborate with similar agencies in SADC
[Type text]
Page 148
National Drug Master Plan 2012 - 2016
countries, specifically the South African Regional Police Chiefs Co-operation Organisation
(SARPCCO). Nationally the South African Police Service (SAPS) is involved in the following
committees to combat drug trafficking: Joints Operation and Intelligence Committee (Joints),
Provincial joints Operational and Intelligence Committee (Provincial JOINTS), Provincial Crime
Combating Forum (PCCF), Station Crime Combating Forum (SCCF).
[Type text]
Page 149