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The Regulation of Opiates Under the Classic British System, c.1920–c.1945

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White Drug Cultures and Regulation in London, 1916–1960
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Abstract

This chapter traces the early history of the Home Office Drugs Branch, and the network of regulatory agencies that cooperated to try to curtail the activities of those groups and individuals using opiates and cocaine for ‘nontherapeutic’ purposes. These agencies included the Metropolitan Police, the Chemist Inspection Officers and the specialist drugs officers who were the predecessors of the drug squad formed after the Second World War and, finally, the Regional Medical Officers who cooperated with the Home Office Drugs Branch to investigate cases of heavy or extended prescribing identified by the Chemist Inspection Officers. A complex and dense network of forces sought to regulate both drug consumers and the doctors whose prescribing formed their major source of supply, though there were channels of illicit supply that brought opiates to consumers in London, especially from Paris. Other forces also contributed to the suppression of drug use: various members of the public such as cab drivers, messenger boys, hotel managers and so on—the ‘lay culture of surveillance’.

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Notes

  1. 1.

    As previously discussed, the early opiate subculture was centred overwhelmingly on London, and it was the London-based regulators who were its main adversaries.

  2. 2.

    The Pharmaceutical Society of Great Britain, then the professional body for pharmacists, was also involved in regulating chemists’ shops from 1933, following the passage of the Pharmacy and Poisons Act. Its inspectors did not have authority over dangerous drugs, and so had little contact with script doctors or addicts. For this reason, they do not feature largely in this research.

  3. 3.

    G. Edwards, ‘Some years on: evolutions in the “British System”’, in D. J. West (ed) Problems of drug abuse in Britain (Cambridge: Cambridge University Press, 1978), pp. 1–2.

  4. 4.

    W. B. McAllister, Drug Diplomacy in the Twentieth Century: An international history (London and New York: Routledge, 2000).

  5. 5.

    H. B. Spear, Heroin Addiction, Care and Control and ‘Conversation with Bing Spear: Journal Interview 20’, British Journal of Addiction 83, (1988) pp. 473–482.

  6. 6.

    S. G. Mars, The Politics of Addiction: Medical Conflict and Drug Dependence in England since the 1960s (Basingstoke: Palgrave Macmillan, 2012).

  7. 7.

    Ibid., p. 90. Mars appears to claim that her focus on the later operations of the Drugs Branch results from a lack of archive materials; however, there are considerable archive resources dealing with the early years of the Branch available at the National Archives.

  8. 8.

    Ibid., p. 98.

  9. 9.

    Ibid., p. 104.

  10. 10.

    Ibid., p. 105.

  11. 11.

    J. H. Mills, Cannabis Nation: Control and Consumption in Britain, 1928–2008 (Oxford: Oxford University Press 2012) p. 24.

  12. 12.

    See Chap. 8 for discussion.

  13. 13.

    C. Emsley, Crime and Society in Twentieth-Century England (Harlow: Pearson Education, 2011) pp. 119–20.

  14. 14.

    See, for example, R. Fabian, London After Dark: An intimate record of night life in London, and a selection of crime stories from the casebook of Ex-Superintendent Robert Fabian (Kingswood, Surrey: Naldrett, 1954).

  15. 15.

    V. Berridge, ‘War conditions and narcotics control: the passing of the Defence of the Realm Act regulation 40B’ Journal of Social Policy, 7, (1978) pp. 285–304. M. Kohn, Dope Girls, pp. 34–44.

  16. 16.

    V. Berridge, ‘War conditions and narcotics control’, pp. 293–5.

  17. 17.

    TNA HO 45/24948, Annual Report of the Home Office Drugs Branch for 1931.

  18. 18.

    TNA HO 45/24761, passim. See also H. B. Spear Heroin Addiction, Care and Control, p. 35.

  19. 19.

    J. H. Mills, (2012) Cannabis Nation p. 24. Such expectations illustrate the extraordinary faith that some of those working in the early drug control structures placed in the system’s ability to effectively wipe out the nonmedical consumption of drugs.

  20. 20.

    TNA HO 45/24761, Crapper to Gaitliff, 1 July 1921.

  21. 21.

    Ibid.

  22. 22.

    TNA HO 45/19983, DANGEROUS DRUGS AND POISONS: Dangerous Drugs Acts 1920 and 1923: application to doctors and dentists; inspection of records and stocks, 1921–1929.

  23. 23.

    TNA HO 45/24948, Annual Report of Drugs Branch for 1930 Memo of 28.03.1930.

  24. 24.

    TNA HO 45/24948, Annual Report of Drugs Branch for 1931.

  25. 25.

    See W. B. McAllister, Drug Diplomacy in the Twentieth Century: An international history (London and New York: Routledge 2000); see also K. Bruun, L. Pan & I. Rexed, The Gentlemen’s Club: International Control of Drugs and Alcohol (Chicago: University of Chicago Press, 1975) and P. Knepper, International Crime in the 20th Century: The League of Nations Era, 1919–1939 (Basingstoke: Palgrave Macmillan, 2011).

  26. 26.

    The international system is often misunderstood as being a separate regime of drug control. In fact, the international conventions are not ‘self-executing’; that is, in order to function, they require signatory states to enact national legislation. The two aspects of the system are therefore indissolubly interwoven.

  27. 27.

    TNA HO 45/24761, Whitelegge to Harris, 14.07.1933.

  28. 28.

    Convention for Limiting the Manufacture and Regulating the Distribution of Narcotic Drugs, Done at Geneva 9th July 1931. Entry into force 9th July 1933.

  29. 29.

    TNA HO 45/24761 ‘Dangerous Drugs: Organisation of Work’, no date.

  30. 30.

    In fact, an arrangement was made whereby Delevingne stayed on to supervise the international work for a further 18 months. See Ibid.

  31. 31.

    Ibid.

  32. 32.

    TNA HO 45/24761, Whitelegge to Harris, 14 July 1933.

  33. 33.

    TNA HO 45/24761, HOME OFFICE – STAFF AND OFFICE MATTERS: Pre-war organisation of departmental drugs branch including transfer of obscene publications function (1921–1939).

  34. 34.

    The staffing arrangements within the interwar Drugs Branch are discussed in: ‘Interview 20: Conversation with H.B. Spear’ British Journal of Addiction 83, (1988), pp. 473–474.

  35. 35.

    Ibid.

  36. 36.

    H. B. Spear, Heroin Addiction, Care and Control p. 41.

  37. 37.

    The data the Drugs Branch deployed were highly uncertain as a result of the destruction of the Addicts Index in the 1990s, and owing to the fact that it relied upon police inspections of retail pharmacies, which were generally of poor quality, particularly in London where the majority of vicious addicts were located.

  38. 38.

    TNA HO 391/1, Burley to Goulding, 08.06.1960.

  39. 39.

    TNA HO 45/ 24,948, Annual Report of Drugs Branch for 1946.

  40. 40.

    TNA HO 45/ 24948, Annual Report of Drugs Branch for 1930.

  41. 41.

    Ibid.

  42. 42.

    TNA MEPO 2/10167, Working Party on C.I.D. work in Divisions, Second Interim Report. Dangerous Drugs: Inspection at Chemists’ Shops pp. 1–2.

  43. 43.

    TNA HO45/ 24948, Annual Report of Drugs Branch for 1940.

  44. 44.

    Shipman Inquiry, ‘Guide to Police in Inspection at Chemist Shop’ Document GA2600017. No date. http://webarchive.nationalarchives.gov.uk/20090808154959/http:/www.the-shipman-inquiry.org.uk/reports.asp.

  45. 45.

    Ibid.

  46. 46.

    TNA MEPO 2/10167, ‘Working Party on CID work in Divisions: Second Interim Report’ p. 1.

  47. 47.

    TNA HO 45/19983, Horwood to Delevingne, 18 July 1922.

  48. 48.

    TNA HO 45/19983, Delevingne to Horwood, 3 November 1922.

  49. 49.

    TNA HO 45/19983, Horwood to Delevingne, 18 July 1922.

  50. 50.

    H. N. Linstead, Poisons Law (London: Pharmaceutical Press, 1936) pp. 204–211.

  51. 51.

    ‘Viator’, ‘When the D. D. A. Licence is Withdrawn’ Chemist and Druggist 122, 2883 (1935) p. 572.

  52. 52.

    For example, D. Ascoli, The Queen’s Peace: The Origins and Development of the Metropolitan Police 1829–1979 (London: Hamish Hamilton, 1979).

  53. 53.

    V. Berridge, (1999) Opium and the People: Opiate Use and Drug Control Policy in Nineteenth and Early Twentieth Century England (London: Free Association Books, 1999); T. M. Parssinen, Secret Passions, Secret Remedies: Narcotic drugs in British Society 1820–1930. (Philadelphia: Institute for the Study of Human Issues, 1983).

  54. 54.

    A. Lai; Little, R. & P. Little, ‘Chinatown Annie: The East End Opium Trade 1920–35: The Story of a Woman Opium Dealer’ Oral History 14, 1 (1986) pp. 18–30.

  55. 55.

    V. Berridge, ‘East End Opium Dens and Narcotic Use in Britain’ The London Journal, 4, 1 (1978) pp. 3–20.

  56. 56.

    M. Kohn, Dope Girls, pp. 154–158.

  57. 57.

    Times 11 November 1922, p. 7.

  58. 58.

    Times 8 January 1923, p. 7.

  59. 59.

    Times 27 August 1924, p. 7.

  60. 60.

    Times 2 August 1929, p. 14.

  61. 61.

    J. Walkowitz (2012) Nights Out: Life in Cosmopolitan London Yale University Press (Chap. 7).

  62. 62.

    TNA HO 144/22433 DANGEROUS DRUGS AND POISONS: Trafficking: first case of joint police action with other countries effecting simultaneous arrests in London, Montreal and Antwerp, 1932–1943.

  63. 63.

    Daily Mail 31 August 1932, p. 5; Times 31 August 1932, p. 7.

  64. 64.

    See TNA MEPO 3/2579.

  65. 65.

    See TNA MEPO 2/9631 Dangerous Drugs: Trafficking, Prosecution, Inspection, Lectures, 1954–1955.

  66. 66.

    J. H. Mills, Cannabis Nation p. 129. See also TNA MEPO 2/10167 CID to Home Office 11 February 1972. The file makes clear that 1954 was the point at which two or more police officers were first assigned to full-time drugs work.

  67. 67.

    TNA HO 45/24948, Annual Report of the Home Office Drugs Branch for 1947.

  68. 68.

    Daily Record 31 July 2012, http://www.dailyrecord.co.uk/news/real-life/special-drugs-unit-became-standard-1196680. Accessed 60.09.2012.

  69. 69.

    See Chap. 3 of this book.

  70. 70.

    N. Schoenberger Dangerous Muse: The Life of Lady Caroline Blackwood (New York: Da Capo Press, 2001).

  71. 71.

    Daily Record 31 July 2012.

  72. 72.

    This group is discussed in detail in Chap. 5.

  73. 73.

    ‘Conversation with Bing Spear: Journal Interview 20’, British Journal of Addiction 83 (1988) p. 475.

  74. 74.

    The others were ‘A’ Division, which included Westminster and Whitehall and in which the original Met headquarters at Scotland Yard was located; ‘B’ Division, Chelsea; ‘D’ Division, Marylebone; ‘E’ Division, Holborn; and ‘F’ division, Paddington.

  75. 75.

    West End Central Station in Savile Row was opened in 1940 to replace these two stations. See M. Fido and K. Skinner, The Official Encyclopaedia of Scotland Yard (London: Virgin Books, 1999) p. 283.

  76. 76.

    Times 3 December 1927, p. 4.

  77. 77.

    C. Emsley, ‘Sergeant Goddard: the story of a rotten apple or a diseased orchard?’ in A. G. Srebnik & R. Levy, (eds) Crime and culture: an historical perspective (Advances in Criminology. Aldershot: Ashgate, 2005) pp. 85–104.

  78. 78.

    Report of the Commissioner of the Metropolitan Police for the Year 1931 London: HMSO p. 7.

  79. 79.

    C. Emsley, The Great British Bobby: A History of British Policing from the 18th Century to the Present (London: Quercus, 2009) p. 206.

  80. 80.

    S. Petrow, Policing Morals: The Metropolitan Police and the Home Office, 1870–1914 (Oxford: Clarendon Press, 1994) p. 57.

  81. 81.

    M. Kohn, Dope Girls, p. 32, passim.

  82. 82.

    M. Sweet, Shepperton Babylon: The Lost Worlds of British Cinema (London: Faber and Faber, 2006) pp. 47–50.

  83. 83.

    ‘Conversation with Bing Spear: Journal Interview 20’, British Journal of Addiction 83, (1988) p. 473.

  84. 84.

    H. B. Spear, Heroin Addiction, Care and Control p. 59.

  85. 85.

    ‘Conversation with Bing Spear: Journal Interview 20’, British Journal of Addiction (1988) 83, p. 474.

  86. 86.

    S. Mars, Politics of Addiction, p. 92.

  87. 87.

    C. Emsley, Crime and Society pp. 131–136.

  88. 88.

    M. Kohn, ‘Life and Times: Grains of Truth’ The Guardian, September 1st 1990.

  89. 89.

    J. Laite, Common Prostitutes and Ordinary Citizens: Commercial Sex in London, 1885–1960 (Basingstoke: Palgrave Macmillan, 2011) p. 141; see also H. Daley, (1986) This Small Cloud: A Personal Memoir (London: Weidenfeld & Nicholson, 1986) pp. 148,159,164.

  90. 90.

    TNA HO45/ 24948, Annual Report of Drugs Branch for 1930; Memo of 28.03.1930.

  91. 91.

    S. Mars, The Politics of Addiction p. 91.

  92. 92.

    TNA HO 45/19983, Ministry of Health to Home Office 10 November 1922.

  93. 93.

    TNA HO 45/19983, Ministry of Health to Home Office 18 October 1921.

  94. 94.

    TNA HO 45/19983, Kirwan to McCleary, 7 September 1922.

  95. 95.

    TNA HO 45/19983, McCleary to Kirwan, 23 September 1922.

  96. 96.

    TNA HO 45/19983, Cox to Delevingne, 1 February 1923.

  97. 97.

    TNA HO 45/19983, McCleary to Delevingne, 4 February 1923.

  98. 98.

    See TNA HO 144/11969 Dangerous Drugs and Poisons: Interpretation of Regulation 4 of Dangerous Drugs Regulations, 1921: the case stated against Dr George Chadwick Kingsbury.

  99. 99.

    Times 2 March 1926, p. 6; Times 11 November 1926, p. 5.

  100. 100.

    In the months preceding the war while the Emergency Medical Service was being established, the Home Office reported that ‘the Ministry of Health have completely dropped their routines visits of inspection, and even special visits of inspection at our request’. TNA HO 45/24948, Annual Report of the Drugs Branch for 1939.

  101. 101.

    TNA HO 45/24948, Annual Report of the Drugs Branch for 1940.

  102. 102.

    Ibid.

  103. 103.

    Ibid.

  104. 104.

    British Medical Journal 2, 2971, (1917) pp. 113–115.

  105. 105.

    Ibid.

  106. 106.

    S. Mars, The Politics of Addiction p. 67.

  107. 107.

    P. Bean, ‘Policing the Medical Profession: The Use of Tribunals’ in D. K. Whynes & P. Bean (eds) Policing and Prescribing: The British System of Drug Control (Basingstoke, Hampshire: Macmillan, 1991) pp. 60–70.

  108. 108.

    H. B. Spear, Heroin Addiction, Care and Control pp. 45–48.

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Hallam, C. (2018). The Regulation of Opiates Under the Classic British System, c.1920–c.1945. In: White Drug Cultures and Regulation in London, 1916–1960. Palgrave Macmillan, Cham. https://doi.org/10.1007/978-3-319-94770-9_5

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