Documenting the Impact of Philippine drug policy, Project Tokhang, 1 July 2016 Frances de la Cuesta Hunt Doctor of Medicine Masters in Cross Cultural Missions and Bible Masters of Health Studies in the Field of Addiction Studies A thesis submitted for the degree of Master of Philosophy at The University of Queensland in 2020 Faculty of Medicine 1 Abstract Introduction Globally, national drug policies vary across a broad spectrum. Some countries decriminalise and treat drug use as a public health issue while other countries criminalise drug use, adopt punitive approaches and compel addiction treatment. National drug policy in Asia is mainly grounded in creating a drug free environment. Punitive approaches have been widely adopted and compulsory detention centres have been used to enforce abstinence. On 1 July 2016, the Philippines implemented a national drug policy termed Project Tokhang with the aim of eradicating the nations’ drug problem. This policy involved the Philippine National Police conducting house visitations of drug suspects to persuade them to surrender and agree to cease their drug misuse. This policy can be considered as an extreme punitive approach and included provision for the execution of those who resisted. Aims This thesis follows the implementation of Project Tokhang from July 2016 to June 2018 using Philippine online newspapers. These newspapers are a primary source of information regarding outcomes and responses to the policy. Philippine online newspapers include pro-government newspapers that tend to endorse the policy as well as non-government newspapers that tend to be critical of the policy. This content analysis of Philippine online newspapers aims to determine a) what we can learn about Project Tokhang from news reports regarding its implementation and b) how the political affiliation of the newspaper influenced the reporting details on Project Tokhang. In analysing and following the trend of a range of news reports, this thesis aims to discuss a) the intended and unintended consequence of an extreme punitive drug policy and b) how the policy is evolving to address the nation’s problem of drug misuse. The research question is to determine the usefulness of threatening drug users with death to compel abstinence. Methods Search using Factiva data base yielded 17,028 Philippine online newspapers. Sequential sampling from Monday to Sunday through the first to the fourth week yielded 500 news articles. A total of 364 articles met the inclusion criteria where 171 were pro-government newspapers and 193 were non-government newspapers. Content analyses was used to capture themes and trends. Coding was done manually, rules were formulated in counting the codes. The codes were grouped into 6 categories namely: a) Statements that endorse Project Tokhang, b) Statements that are negative 2 about Filipinos using drugs and describe drug misuse as a crime, c) Statements that are critical of Project Tokhang, d) Statements that describe Project Tokhang as a policy that is improving, e) Positive statements about Filipinos using drugs and view drug use as a health issue and f) Descriptions that present data, information and statistics but do not endorse nor criticize Philippine drug policy. The categories were analysed and discussed. Findings Pro-government and non-government newspapers placed different emphases on the reporting of Project Tokhang. In one year, the surrender of 1,304,795 million drug suspects, which represent an estimate of 73% of drug users, was endorsed as a positive outcome of the policy. There was little evidence of rehabilitation for most drug suspects who surrendered. The implementation of the policy was accompanied by the killing of an estimated 4,021 drug suspects by February 2018, during what the government considered as legitimate drug operations. Critics of the policy reported drug related killings reached an estimate of 7000 – 14,000 individuals including innocent bystanders, law enforcers and included vigilante killings. Pro-government and non-government newspapers reported approaches to improve the policy such as police accountability, improved reporting of outcomes, and shifting leadership to the Philippine Drug Enforcement Agency to promote adherence to the law in the implementation of the policy. However the various killings continued and were difficult to control. Little attention was given to drug misuse as a public health policy. Various local rehabilitation programs and community based therapies were implemented but were limited in addressing the many drug users who may require rehabilitation services. A national framework for drug rehabilitation was lacking during the implementation of the policy. Conclusion The intended goal to eradicate drugs and crime through an extremely punitive approach was associated with many killings. While it may be too early to evaluate the long term outcome of the policy, initial findings did not provide evidence that threatening drug users with death can deter drug misuse. The cost of lives with no guarantee of reducing drug misuse should promote a change in policy. A national drug policy not solely punitive and supports drug rehabilitation should be considered. 3 Declaration by author This thesis is composed of my original work, and contains no material previously published or written by another person except where due reference has been made in the text. I have clearly stated the contribution by others to jointly-authored works that I have included in my thesis. I have clearly stated the contribution of others to my thesis as a whole, including statistical assistance, survey design, data analysis, significant technical procedures, professional editorial advice, financial support and any other original research work used or reported in my thesis. The content of my thesis is the result of work I have carried out since the commencement of my higher degree by research candidature and does not include a substantial part of work that has been submitted to qualify for the award of any other degree or diploma in any university or other tertiary institution. I have clearly stated which parts of my thesis, if any, have been submitted to qualify for another award. I acknowledge that an electronic copy of my thesis must be lodged with the University Library and, subject to the policy and procedures of The University of Queensland, the thesis be made available for research and study in accordance with the Copyright Act 1968 unless a period of embargo has been approved by the Dean of the Graduate School. I acknowledge that copyright of all material contained in my thesis resides with the copyright holder(s) of that material. Where appropriate I have obtained copyright permission from the copyright holder to reproduce material in this thesis and have sought permission from co-authors for any jointly authored works included in the thesis. 4 Publications included in this thesis “No publications included”. Submitted manuscripts included in this thesis “No manuscripts submitted for publication”. Other publications during candidature “No other publications”. Contributions by others to the thesis “No contributions by others.” Statement of parts of the thesis submitted to qualify for the award of another degree “No works submitted towards another degree have been included in this thesis”. Research Involving Human or Animal Subjects “No animal or human subjects were involved in this research”. 5 Acknowledgements My Heavenly Father for His inspiration Supervisors: Emeritus Professor Jake Najman PhD and Dr Andrew Smirnov Panel of Reviewers: Dr Lisa Buckley Dr Lisa Fitzgerald Dr Allyson Mutch Dr Chi-Wai Lui Dr Ellen Leslie Wessel Examiners: Dr Pranee Liamputtong Dr Marguerite Sendall Scott Macintyre – Librarian at Herston campus Fellow Higher Degree Research Students (Public School Building 2017-2019) for the encouragement Dr David Hunt, my husband, and Naomi, Abraham, Esther and Lucas my children for the love and prayers Dedicated to the Filipinos who have been affected by this policy 6 Financial support ‘This research was supported by an Australian Government Research Training Program Scholarship’ Keywords Philippines, drug policy, punitive, compulsory addiction treatment, “war on drugs” Australian and New Zealand Standard Research Classifications (ANZSRC) ANZSRC Code: 160510 Public Policy, 70% ANZSRC Code: 160508 Health Policy 20% ANZSRC code: 111799 Public Health and Health Services not elsewhere classified 10% Fields of Research (FoR) Classification FoR code: 1605, Policy and Administration, 90% FoR code: 1117 Public Health and Health Services, 10% 7 Table of Contents: Chapter 1 – Introduction: Punitive Drug Policy 11 Philippine Drug Policy: Project Tokhang, 1 July 2016 11 Why a content analysis of Philippine online newspapers on Project Tokhang 12 Chapter 2 – Context to Research Inquiry: Compulsory Drug Detention in Asia 14 China 15 Malaysia 18 Thailand 20 Chapter 3 – Methodology: Content Analysis of Philippine Online Newspapers 26 Chapter 4 – Findings 37 Category A: Endorsement of Project Tokhang 37 Category B: Drug Misuse and Crime 43 Category C: Critical of Project Tokhang 49 Category D: Improvements 62 Category E: Project Tokhang as a Health Policy 70 Category F: Descriptions of Project Tokhang 82 Chapter 5 – Discussion 92 Chapter 6 – Conclusion 117 References 123 Appendix A – Philippine on-line newspapers used in the context analysis 127 Appendix B – Table 6: Number of articles for each newspaper 132 for a given date per month 8 List of Figures and Tables