Argentina - Integrated Drug-Addiction Prevention Pilot Project

Report No. PID7377 Project Name Argentina-Integrated Drug-Addiction... Prevention Pilot Project Region Latin America and Caribbean Region Sector SA - Social Assistance Project ARPE58526 Borrower(s) The Argentine Republic Implementing Agency Secretaria de Programacion para la Prevencion de Drogadiccion y Lucha contra el Narcotrafico (SEDRONAR) Environment Category C Date PID Prepared February 4, 1999 Projected Appraisal Date February 14, 1999 Projected Board Date May 31, 1999 1. Country and Sector Background Drug Prevention: The GoA's first formal actions toward drug abuse addressed legal issues. In 1974, a law was passed regarding drug possession for personal use, which coincided with other legal, law enforcement efforts against activities seen as deviant or subversive. In 1982, Argentina's Federal Penitentiary Service established the Centro de Recuperacion de Toxicomanos in a Buenos Aires prison for the rehabilitation and treatment of those violating drug laws. At the same time, on a national level, the Centro Nacional de Reeducacion Social (CENARESO) was the first public organization responsible for rehabilitation and treatment of drug users. During the mid- 1980s, many governmental and non-governmental organizations were created to address the same issues, and provide similar services. In 1985 the Comision Nacional para el Control del Narcotrafico y el Abuso de Drogas was created, representing the first national organization for the design of prevention strategies and policies. Drug prevention activities were augmented when Argentina became a party to the 1988 UN Convention Against Illicit Traffic in Narcotic Drugs & Psychotropic Substances, joining the international community's efforts against drug abuse. In 1989, major anti- narcotics legislation was passed to enact the commitments of the UN Convention. The legal repercussions of drug use were changed to provide treatment and community-based alternatives to prison. Regarding government organization, the SecretarUa de Programacion para la Prevencion de la Drogadiccion y la Lucha contra el Narcotrafico (SEDRONAR) was formed, which replaced the Comision Nacional. SEDRONAR is responsible for coordinating all counternarcotics activities, including drug prevention and treatment programs, as well as participation in international meetings on global anti-drug efforts. In 1996, the Government published a federal plan to combat illegal drugs, making SEDRONAR responsible for identifying the extent of the narcotics problem, and drafting a plan to address the problems. Activities have taken  place with coordination between the federal and provincial levels. Drug Use: One of the main challenges is the lack of information on the nature and extent of drug abuse in Argentina. Through studies conducted to date, it appears that the rate of drug abuse is not out of control (it is estimated that one percent of the population uses drugs), but that without proper attention the situation may intensify. Using information available, it is possible to recognize some trends in drug abuse in Argentina. Research in 1996 in the Province of Buenos Aires shows that in two poor neighborhoods, 14.4w of the population uses cocaine. If youths fifteen years old and above are included in the sample, the rate of cocaine use rises to 21.7w, or about 6 cases per block. Cocaine is the drug of choice for about 81t of Argentina's drug users, and one study found that about three percent of students in the Province of Buenos Aires had tried cocaine. In Argentina, as in many countries, drug prevention activities should pay close attention to young people. Although national data is scarce, most experts agree that the group with the highest prevalence of drug use is young people from 10-30 years old. According to the 1991 census, 25.3w of the total population is between 14 and 29 years old, indicating that a major portion of the population is a high-risk group. Between 1995 and 1996, the average age of initiating cocaine use dropped from 16 to 14. Prompt and appropriate action is necessary to ensure that this trend does not continue. Drug users in the 15-20 year range often use drugs on an irregular, non-intensive basis; regular, or intensive use is evident in the 20-30 age bracket. Since the average age for beginning treatment is 23 years of age, early intervention is desirable to prevent progression to the stages at which there is more intense use of drugs. It has been shown that there is increased vulnerability for the unemployed and the poor. The unemployment rate for those between 15 and 19 years of age is three times higher than the national average. Intravenous drug use continues to be a problem in Argentina, where the number of registered IV drug users has not decreased substantially (900 to 831 cases) from 1994 to 1996. The association between IV drug use and the spread of HIV/AIDS adds to the urgency. 2. Objectives The primary objective of the proposed LIL Project is to assess and verify the effectiveness of participatory management for drug prevention. The lessons gained from the experience of implementing the LIL would serve as a basis to determine the need for a larger drug-prevention project, and to design such a project. On the other hand, the project is NOT expected to support supply reduction related activities including: (i) the control of production and transportation of illicit drugs; and (ii) investigation and prosecution of drug dealers and users. 3. Rationale for Bank's Involvement The Bank has supported a wide range of projects and analytical work in Argentina and the rest of the world in health, education and social development. Some of them has a small component or lines of actions geared toward drug-prevention. Although this would be the first time for the Bank to finance a comprehensive drug-prevention project, the Bank has strategically -2 -  situated to transfer useful knowledge and experience to Argentina. 4. Description 5. Financing Total ( US$m) Government 2.0 IBRD 5.0 IDA 0.0 Total Project Cost 7.0 6. Implementation The project would be managed by a small project implementation unit (PIU), the Subsecretariat for Prevention and Assistance (SubsecretarUa de Prevencion y Asistencia), under the Secretariat for the Programming for the Prevention of Drug-Addiction and Fight against Drug Trafficking (SEDRONAR - SecretarUa de Programacion para la Prevencion de la Drogadiccion y la Lucha contra el Narcotrafico). 7. Sustainability Per LIL procedures, sustainability of learning would be tracked through the monitoring of performance indicators. Fiscal sustainability would be analyzed during project implementation. 8. Lessons learned from past operations in the country/sector Experience and research on drug-prevention in European countries and the US suggests the following. First, It is essential to include not only illicit drugs but also other substances such as alcohol and tobacco in any discussion of prevention. Second, considering the complexity of the paths that lead towards drug use and abuse indicate the necessity of broad-based prevention strategies towards: (i) increasing knowledge about drugs and their effects; (ii) changing attitudes towards drugs and other deviant behaviors; (iii) decreasing or stopping the use of drugs; (iv) enhancing refusal, social and life skills; and (v) decreasing negative behaviors. Third, different age groups appear to benefit different strategies. Most effective for children aged 12-14 seem to be strategies that stress interpersonal and refusal skills, and allow them to have the necessary time to practice using these skills. Also effective would be the provision of information about the peer/social pressures to use drugs. For older children, successful programs appear to include more structured, drug-focused sessions. Argentina has successfully implemented a number of participatory community based projects in recent years (e.g. FOPAR - Participatory Social Investment Fund; Programa Juvenil; LUSIDA - AIDS/STD Prevention Project, etc.). Many of the design features of those projects, including the establishment of municipal/provincial council, local action plans and funding of small-scale demand-driven community subprojects are incorporated into the proposed project. 9. Program of Targeted Intervention (PTI) No 10. Environment Aspects (including any public consultation) -3 -  Issues No negative environmental impact is expected. There will be no resettlements nor bias against indigenous populations. 11. Contact Point: The InfoShop The World Bank 1818 H Street, N.W. Washington, D.C. 20433 Telephone No. (202)458 5454 Fax No. (202) 522 1500 Task Manager Hideki Mori The World Bank 1818 H Street, NW Washington D.C. 20433 Telephone: 202-458-1571 Fax: 202-522-1202 Note: This is information on an evolving project. Certain activities and/or components may not be included in the final project. Processed by the InfoShop week ending February 26, 1999. - 4 -