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Developing a Strategy to Combat Drug Abuse In DEVELOPING A STRATEGY TO COMBAT DRUG ABUSE IN PHILADELPHIA, 1960-1973 A Dissertation Submitted to the Temple University Graduate Board In Partial Fulfillment of the Requirements for the Degree DOCTOR OF PHILOSOPHY by Andrew J. Lippert December, 2015 Examining Committee Members: Petra Goedde, Advisory Chair, Temple University, Department of History Richard H. Immerman, Temple University, Department of History Heather Thompson, University of Michigan, Department of History Paul R. Kan, External Member, U.S. Army War College, Department of National Security Studies ii © Copyright 2015 by Andrew J. Lippert All Rights Reserved iii ABSTRACT How did Philadelphia develop its first drug control strategy between 1960 and 1973? This study argues that Philadelphia's drug control strategy was part of an array of collaborative responses to the composite challenges of urban decay and was influenced by concerns for development, law enforcement, and fiscal survival. In the early 1960s, a focus on development and a combination of overt racism and the more subtle psychological process of racial othering made drug abuse a low-priority, policy issue in Philadelphia. At mid-decade, the growing institutionalization of law enforcement overshadowed additional attention drug abuse might have gained at that point. By 1970, “White involvement,” as Medical Examiner Joseph Spelman termed it, provided the impetus for a more active and institutionalized public response. As the nation progressed from a War on Poverty, to a War on Crime, and then to a War on Drugs, problems of sustainability and fiscal exhaustion became paramount. When Philadelphia’s Coordinating Office for Drug and Alcohol Abuse Programs produced its Comprehensive Plan for Drug and Alcohol Abuse Treatment and Prevention, 1973-1974, it codified a years-long, work-in-progress to address the complex adaptive system that substance abuse represented. Though the strategy did not rectify the larger environmental issues of race, stability, and sustainability with which Philadelphia contended, it did provide a balanced approach and a starting point for future implementation and refinement. iv For Amy v ACKNOWLEDGMENTS If it takes an entire village to raise a child, then it takes at least a platoon to finish a dissertation. I have been blessed every step of the way by those who guided, supported, and encouraged my efforts. I could not have hoped for a better advisor during my studies at Temple University than Dr. Richard Immerman. From the time we first talked in his office before I started the program, until the day he recently said, “Congratulations,” he has truly been a teacher, coach, and mentor. His passion and leadership, and his stewardship of the History Department and the Center for Force and Diplomacy, are a credit to the entire field of historians – past, present, and future. It is said that, “as iron sharpens iron, so one person sharpens another.” This is true of the other members of the Temple History Department and my dissertation committee, who helped me grow throughout my doctoral efforts. During multiple classes and project consultations, Dr. Petra Goedde was instrumental in improving my ability to historicize an issue and clearly communicate an argument. Dr. Heather Thompson (formerly of Temple University and now at the University of Michigan) provided collaborative energy and helped distill my research questions into a manageable project. During doctoral coursework and the writing of my dissertation, Dr. Paul Kan, of the U.S. Army War College, provided secondary sources, keen insight regarding drug vi control, and astute feedback for my drafts. Thanks to each of you for your knowledge, professionalism, and collegiality. Thanks to Commander (Ret) Traci Keegan, Colonel (Ret) Walter Leach, Colonel (Ret) Michael McMahon, and Dr. Richard Sommers, who all supported my application for the U.S. Army War College Professor Program and then offered many words of encouragement once I was underway. My officemate, Colonel (Ret) Joe Diminick, a philosopher and “ORSA-pod” (Operations Research and Systems Analysis specialist), was a tremendous source of assistance, wisdom, and camaraderie. Thanks also to Dr. Andrew Hill for great discussions about complex adaptive systems and all kinds of other cool ideas we mapped out on his white-erase board. Thanks also to Dr. Stephen Gerras who provided sources and insight regarding the psychological processes of defining “other.” Many thanks to all my colleagues who continually supported my efforts in a variety of ways, sometimes as simple as saying, “How's the dissertation going? Hang in there and keep plugging.” I would especially like to thank my seminar teaching-partners at the U.S. Army War College. Dr. William Johnsen, a fellow historian, has been a mentor who continually provided sage counsel and support while I wrote my dissertation, and as I began teaching at the graduate level. Thank you to German Army Colonel Markus Kreitmayr, Colonel Matt Molineux, and Colonel Michael Slojkowski. Your professionalism, commitment, and humor made teaching vii interesting and a lot of fun. Thanks also to Dr. Gabriel Marcella, who introduced me to Latin American studies while I was a student at the War College, and for his guidance and support over many lunches at Issei Noodle. At the Philadelphia City Archives, I would like to thank David Baugh and others, who found and delivered hundreds of pounds of boxes filled with city records, when the idea of finishing was barely a glint in the distance. At the Temple Special Collections Research Center, I extend thanks to Josue’ Hurtado and his staff for flexible and professional support over the course of a couple of weeks of research there. Temple Librarian, David Murray, was a wellspring of information and insight during preparation for my comprehensive exams, prospectus defense, and dissertation research. I also owe a special debt of gratitude to Diane Baumgardner, who procured a ridiculous number of Inter- Library Loans (ILLs) for me over the last four years. She and the rest of the staff at the U.S. Army War College Library helped make research a lot easier. Thanks also to fellow classmates and comrades in the Temple History Department: Jessica Bird, Carly Goodson, Timothy Johnson, Thomas Reinstein, Seth Tannenbaum, John Worsencroft, and others. We logged time on the subway and bantered before class, sharing our ideas, future plans, and present challenges. I was the guy commuting from out-of-town, but you always made me feel like part of the Temple Owl team. viii The “U.S. Army War College Dissertation Commiseration Society” was also a great source of support and friendship. Getting together for pot-lucks, BBQs, and strong drink helped shore up resolve that we would eventually get to the “promised land.” Thanks to Dr. Bob Hamilton, who made it there last year, and has repeatedly provided counsel and perspective. Thanks also to Colonel Dan Cormier, with whom I have done lots of “dissertation war-gaming” (again on a white-erase board), Colonel Michael Hosie, Colonel (Ret) John Mauk, Colonel Andrew Poznick, Colonel Dale Watson, Colonel Douglas Winton, and others; I'm sure you guys will get there soon. Outside the U.S. Army War College and Temple University, and outside the field of history, others helped me bring this project to fruition as well. Thanks to Professor Thomas Place, at the Dickinson School of Law and Lieutenant Colonel Julie Long of the U.S. Army Judge Advocate General Corps for generously providing legal perspectives, which helped me better interpret sources. Thanks also to Jack Carroll, Executive Director of the Cumberland- Perry Drug and Alcohol Commission, and Huntsville Police Captain (Lieutenant Colonel, U.S. Army National Guard) Michael Izzo, who provided valuable insights regarding the rehabilitative and enforcement components of drug control. To my parents, Douglas and Alicia Lippert, your love, prayers, and support in this and earlier endeavors have propelled me through life. To my sister Kristen, thanks for your perspective and unwavering sense of humor throughout ix the journey. For her husband Phil, Amy’s parents, Norma and Arloe Crandall, and her sisters Cheryl, Nan, Becky, and their families, thank you for your thoughts and continual interest. Whether over the phone, or during family get- togethers, it was great to know you were rooting for me. To my kids, Anna, Grace, Nathaniel, and Catherine, muchas gracias for your patience, understanding, and encouragement. This included things like making a giant, colorful, paper-mache’ spider, who served as my muse, and drawing a picture of a Dalek “exterminating” a dissertation. I love you guys and I’m very proud of you. As I bring this odyssey to a close, through the grace of God and the help of so many others, I am profoundly grateful to my wife, Amy, who made it possible. While I spent a year in Afghanistan, she “held down the fort” by herself, and then held it down for four more years after I returned. She has been a consultant, copy editor, sounding board, teammate, and friend. Amy, I could not have done it without you. x TABLE OF CONTENTS ABSTRACT ........................................................................................................... iii DEDICATION ........................................................................................................ iv ACKNOWLEDGMENTS ........................................................................................ v LIST OF TABLES ..............................................................................................
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