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Major Studies of Drugs and Drug Policy
Cannabis Control Policy

 Cannabis Control Policy: A Discussion Paper

 Health Protection Branch

Department of National Health and Welfare

January 1979

Contents

 

Part 1 General Introduction...........................................................................

Part 2 The Global Objectives

Part 3 The Empirical Bases of Cannabis Control Policy

  1. Empirical Evidence Regarding Cannabis Use............................................................ 3
  2. Health Concerns.............................................................................................. . 3

    Safety Concerns................................................................................................ 8

    The Cannabis Market........................................................................................ 10

    Extent of Use.................................................................................................... 12

    Patterns of Use.................................................................................................. 14

  3. Empirical Evidence Relating to the Current Legislative Response to Cannabis...........16
  4. Special Powers of Arrest, Search and Seizure in Drug Enforcement................... 16

    The Processing of a Cannabis Suspect through the Criminal Justice System........ 18

    Police.......................................................................................................... 18

    Crown Prosecutors...................................................................................... 21

    Judges......................................................................................................... 22

    The Processing of Information Concerning a Cannabis Suspect......................... . 22

    Discharges................................................................................................. . 24

    Pardons....................................................................................................... 24

    Problems Inherent in Drug Enforcement: Irregular Methods of Enforcement........ 26

    A Statistical Review of Arrest, Conviction and Sentencing Patterns..................... 26

    Arrest statistics............................................................................................ 26

    Conviction statistics..................................................................................... 26

    Sentencing statistics..................................................................................... 27

    The Financial Cost of Cannabis Enforcement..................................................... 29

    The Sociolegal Consequences of Enforcement................................................... 30

    Public and Professional Attitudes....................................................................... 33

    Part 4 Legal Issues and Options.................................................................. 34

  5. Introduction.............................................................................................................34
  6. Factors to be Considered in Framing a Legislative Response....................................35
  7. Normative and Design Concerns........................................................................ 35

    International Considerations............................................................................... 37

    Constitutional Considerations............................................................................. 38

    Jurisdiction................................................................................................... 39

    Non-criminal, or "civil," offences.................................................................. 40

    Criminal records.......................................................................................... 40

    Defining Offences............................................................................................... 41

    Importation.................................................................................................. 42

    Constructive trafficking................................................................................. 43

    Functional equivalence................................................................................. 46

     

    Contents (continued) Page

  8. The Legislative Options..........................................................................................47
  9. An Ordering of Terms and Concepts................................................................ 47

    The Cannabis Control Options: A Description.................................................. 48

    (1) Prohibition........................................................................................... 49

    (2) Bill S-19............................................................................................... 50

    (3) 83-77RD.............................................................................................. 51

    (4) Full "deeming provisions"...................................................................... 51

    (5) Semi-Prohibition................................................................................... 52

    (6) Transfer to Schedule G......................................................................... 54

    (7) Legalization (regulation)........................................................................ 55

    (8) Federal Withdrawal.............................................................................. 56

    The Cannabis Control Options: An Analysis...................................................... 56

    Notes.................................................................................................................... 59

     

    Appendices

    Appendix A: The Single Convention and Its Implications for Canadian Cannabis Policy................................................... 60

    The penal obligations: Article 36 and the meaning of "possession"................. 61

    "Possession" and other consumption-related conduct................................... 63

    Article 36 and the 1972 Protocol................................................................ 63

    "Possession" and the confiscatory obligation................................................ 64

    Amendment and withdrawal........................................................................ 65

    Summary.................................................................................................... 65

    Appendix B: The Constitutional Bases of Cannabis Policy................. 66

  10. Introduction............................................................................................................66
  11. A Brief Introduction to Basic Principles of Canadian Constitutional Law..................66
  12. Federal and Provincial Bases for Cannabis Control..................................................68
  13. Federal Jurisdiction............................................................................................ 68

    Provincial Jurisdiction........................................................................................ 71

    The Doctrine of Paramountcy and Concurrency................................................. 73

    Joint Federal-Provincial Control of Cannabis..................................................... 76

  14. Specific Constitutional Issues Related to Federal Cannabis Legislation.....................76
  15. Parliament’s Power to Create Non-Criminal Offences....................................... 76

    Parliament’s Power to Control Criminal Records in the Possession of

    Provincial Enforcement Agencies....................................................................... 77

    Parliament’s Power to Authorize Confiscation of Cannabis in the Absence

    of a Possessional Offence.................................................................................. 78

    Notes to Appendix B.............................................................................................. 81

     

    Contents (continued) Page

    Appendix C: The Narcotic Control Act – An Elaboration.................... 87

    Appendix D: Extent and Patterns of Cannabis Use Among Adult Canadians, 1970-1978.......................................................... 90

    Appendix E: Offences, Procedures and Maximum Penalties Under Eight Alternative Models for the Control of Cannabis............................................................................. 95

    References and Selected Bibliography....................................................... 99

     

    Figures and Tables

    Figure 1. Police Duties Relating to Processing a Routine Cannabis Case............... 20

    Figure 2. "Buffer Zone" Model............................................................................ 44

    Table D-1. Adult Canadians – Incidence of Cannabis Use....................................... 91

    Table D-2. Adult Canadians – Current Cannabis Use Patterns, (Gallup 1978)......... 92

    Table D-3. Adult Canadians – Frequency of Cannabis Use..................................... 93

    Table D-4. Adult Canadians – Cannabis Use by Region (Gallup, 1978)................... 94

    Table E-1. Offences, Procedures and Maximum Penalties under the Narcotic

    Control Act, Bill S-19 and 83-77RD..................................................... 96

    Table E-2. Offences, Procedures and Maximum Penalties under "Full 'Deeming

    Provisions'" and "Semi-Prohibition"........................................................ 97

    Table E-3. Offences, Procedures and Maximum Penalties under "Transfer to

    Schedule G," "Regulation" and "Federal Withdrawal".............................. 98

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