Papua New Guinea National Narcotics Bureau

PO Box 3880, Boroko

Papua New Guinea

RAPID SITUATION ASSESSMENT OF DRUG ABUSE IN

PAPUA NEW GUINEA, 1998

Report prepared by

David McDonald, International Consultant to the Project

and

Michael Anis Winmarang, Project Director

July 1999

For further information and copies of the full report, contact:

David McDonald

Social Research & Evaluation Pty Ltd

1004 Norton Road, Wamboin NSW 2620, Australia

Email david.mcdonald@socialresearch.com.au

http://www.socialresearch.com.au

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EXECUTIVE SUMMARY

This is the report of a Rapid Situation Assessment (RSA) of drug abuse and related

matters in the Independent State of Papua New Guinea (PNG). It was conducted

during the second half of 1998 by the PNG National Narcotics Bureau (NNB),

assisted by an International Consultant. Financial support for the RSA was provided

by the United Nations International Drug Control Programme (UNDCP).

Background

The study was undertaken to provide comprehensive, up-to-date information about

drugs in PNG. In accordance with the mandates of the NNB and UNDCP, the primary

focus was on the currently-illegal drugs (especially cannabis and ‘home-brew’

alcohol), although the broader public health context, which includes concerns about

the use of legal drugs such as alcohol, tobacco and betel nut, was taken into account.

The focus of the study was to gain information that could inform policy development

and implementation relating to drugs in PNG, with particular emphasis on demand

reduction rather than controlling the availability of drugs through the criminal law and

its enforcement.

We use the word drug to refer to psychoactive substances regardless of their legal

status. Psychoactive substances are those that change the way we think and feel. Drug

abuse, as we use the term here, means a pattern of psychoactive substance use that is

causing damage to health; this is World Health Organization’s definition. ‘Health’ in

this context refers to physical, mental, social and spiritual well-being.

Papua New Guinea is a Melanesian nation with a 1995 population of 4.2 million. On

most standard indicators of health and development, PNG does not rate highly; it

ranks 129th

among the 174 nations listed in the 1998 Human Development Index. The

nation was colonised by Germany, Britain and Australia from the nineteenth century

to Independence in 1975, and was occupied by Japanese and Allied forces during the

Second World War.

History of PNG drug use

Various types of substances that change how people think or feel were used

traditionally (i.e. prior to European colonisation) including betel nut, tobacco, kava

and many other types of plants. It is possible that some groups used alcohol

traditionally, fermented from fruits and/or vegetables. With colonisation came

commercial (packaged) alcoholic beverages and, particularly during WW2, ‘home

brew’ alcohol, both fermented and distilled alcoholic beverages. Colonial legislation

that was in force until 1962 prohibited Indigenous Papua New Guineans from

drinking alcohol.

Cannabis use was virtually limited to a small proportion of the expatriate population

until the 1980s when its use by Papua New Guineans became more widespread. By

the 1990s, cannabis was found throughout PNG (either grown locally or imported

from other provinces) and use of the drug was commonplace. Cannabis is not

imported from overseas, but is illegally exported to Australia where it has a strong

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following owing to its high quality. Cannabis in PNG is very cheap compared with

commercial alcohol or (sometimes) betel nut.

Prevalence of cannabis use

No reliable research exists which enables us to estimate precisely the prevalence of

cannabis use in PNG. Studies have been conducted by the National Narcotics Bureau

in parts of Port Moresby but they were interviews of cannabis users, not a random

sample of the population, so cannot be used to estimate prevalence. The same point

applies to a study conducted by Iamo of cannabis growers in a number of provinces.

Media commentators and others have seriously misinterpreted the data from these two

studies, giving ridiculously inflated estimates of the prevalence of cannabis use in

PNG and its Kina (financial) value. Studies of Port Moresby university students and

office workers by Johnson, using self-reports, have shown relatively low availability

of cannabis and relatively low prevalences of cannabis use in those populations.

At the present time, cannabis is available ‘almost everywhere’ as key informants put it

and is used by ‘almost everyone’. This should be interpreted as meaning that the drug

is available to virtually anyone who wants it and is used by people from all walks of

life (though prevalence is probably higher among younger people than older, and

among males rather than females). It is available and used in Port Moresby (the

National Capital), and in the towns, villages, educational institutions, plantations, etc.,

throughout the nation. While much of the drug is grown and sold as a small-holder

cash crop, organised crime is also involved (some huge seizures have been made) in

both the domestic and international markets. The criminal gangs known as raskals are

apparently involved in the trade in some locations.

Methodology

Worldwide, Rapid Situation Assessment approaches have been used to contribute to

development planning in many settings, addressing a variety of problems. This

approach involves a combination of qualitative and quantitative research methods,

and accessing pre-existing information, to produce a set of valid conclusions about a

problem. In this RSA, we reviewed the existing research literature, collated statistical

information from various agencies and reviewed the existing range of services

available in the drugs field. Two sub-studies were conducted in five provinces

(Eastern Highlands, East Sepik, Madang, Simbu and West New Britain): a study of

426 current and former drug users and a study of the knowledge and opinions of 357

key informants.

Key findings and conclusions of the study

1. Drug use and trafficking are major problems confronting PNG.

2. The use of mood-altering substances has a long history in PNG.

3. The absence of a comprehensive national drug strategy is problematic.

4. More and better information about the extent and nature of drug-related problems

are needed to inform future policy and program development.

5. Cannabis (marijuana) is the illegal drug which causes most harm in PNG; alcohol

and tobacco have serious impacts on public health and community well-being.

6. Cannabis and home brew are far too widely available.

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7. The prevalence of cannabis use is not well understood; media reporting of this

needs to be more realistic.

8. Cannabis markets are expanding.

9. Cannabis users are not a distinct group in society; different approaches are needed

to assist heavy users compared with infrequent users.

10. Cannabis users are introduced to the drug by their friends, not by ‘pushers’.

11. Cannabis is used for many different reasons.

12. Cannabis is associated with violence and other criminal behaviour.

13. Physical and/or mental illness is sometimes associated with heavy use of cannabis.

14. Drug users are seen primarily as people needing help, not punishment.

15. A study of the potency of PNG cannabis would be useful.

16. The resources available for drug demand reduction and supply control are

inadequate.

17. Prevention programs should be broad in nature, focussing on ‘quality of life’

rather than narrowly on drugs themselves.

18. Treatment and counselling services are inadequate.

19. PNG’s drug legislation is outdated.

20. Drug supply reduction initiatives are inadequate.

21. A new drug masterplan needs to include awareness of emerging drug problems.

The Appendixes to this report contain documents that may be of assistance to others

conducting rapid situation assessments of drug abuse in other nations, or undertaking

further studies of drugs in PNG. They include the training materials and data

collection instruments used in this study.

We hope that this Rapid Situation Assessment report will contribute to the

development of a modern, realistic national drug strategy or masterplan aimed at the

prevention and treatment of drug abuse and the control of drug availability.