A Baseline Review and Assessment of Cannabis Use and ...

A Baseline Review and Assessment of Cannabis Use and Public Safety

Part 2: 94C Violations and Social Equity: Literature Review and Preliminary Data in Massachusetts

April 2019

Massachusetts Cannabis Control Commission: Steven J. Hoffman, Chairman Kay Doyle, Commissioner Jennifer Flanagan, Commissioner Britte McBride, Commissioner Shaleen Title, Commissioner Shawn Collins, Executive Director Prepared by the Massachusetts Cannabis Control Commission Research Department: Samantha M. Doonan, BA, Research Analyst Julie K. Johnson, PhD, Director of Research

Acknowledgements

Cannabis Control Commission

Chief of Staff Erika Scibelli

Legal Christine Baily, General Counsel Pauline Nguyen, Associate General Counsel Andrew Carter, Legal Assistant

Social Equity Shekia Scott, Director of Community Outreach

Communications Cedric Sinclair, Director of Communications Martine Maingot, Digital Director Maryalice Gill, Press Secretary

Government Affairs David Lakeman, Director of Government Affairs

Investigations and Enforcement Yaw Gyebi, Chief of Investigations Kyle Potvin, Director of Licensing Paul Payer, Enforcement Counsel

External Collaborators

Massachusetts State Police Carol Fitzgerald, Certified Law Enforcement Analyst, Research Analyst III Sergeant Sean Reardon

Massachusetts Drug Recognition Expert Training Coordinator Sergeant Don Decker, DRE

Executive Office of Public Safety and Security (EOPSS) Cliff Goodband, Data Information Manager

High Intensity Drug Trafficking Area (HIDTA) Dale Quigley, Deputy Coordinator, HIDTA National Marijuana Initiative

MORE Advertising Judi Haber Julia Gould

Researchers and Others Daniel Bibel, Statistical Analyst, Massachusetts Fusion Center (Retired) Jack Reed, Statistical Analyst, Office of Research and Statistics, Colorado Division of Criminal Justice Faith English, University of Massachusetts Amherst Nora Maetzener, Tufts University Jeremy Bucci, Northwestern District Attorney's Office

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Suggested bibliographic reference format:

Doonan SM., Johnson JK., (2019, April). A Baseline Review and Assessment of Cannabis Use and Public Safety Part 2: 94C Violations and Social Equity: Literature Review and Preliminary Data in Massachusetts. Boston, MA: Massachusetts Cannabis Control Commission.

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Purpose This report has been prepared in response to the enabling legislation, Chapter 55 section 17a (vii) to assess one item on the Cannabis Control Commissions' research agenda. This legislation section states that: "The commission shall develop a research agenda in order to understand the social and economic trends of marijuana ("cannabis") in the commonwealth, to inform future decisions that would aid in the closure of the illicit marketplace and to inform the commission on the public health impacts of marijuana." One of the research agenda priority items enumerated is:

(1) Compilation of data on the number of civil penalties, arrests, prosecutions, incarcerations and sanctions imposed for violations of chapter 94C for possession, distribution or trafficking of marijuana or marijuana products, including the age, race, gender, country of origin, state geographic region and average sanctions of the persons charged Chapter 55 additionally asserts that the Commission shall incorporate available data, annually report on the results of its research, and make recommendations for further research or policy changes.

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Table of Contents

I. Executive Summary................................................................................................................... 8 II. Brief History of Cannabis Laws ........................................................................................... 10

Part 1: 94C Cannabis-Violations .................................................. 11 III. M.G.L. c. 94C Controlled Substances Act ......................................................................... 11 IV. Commonwealth of Massachusetts: Laws, Cases, Regulations, and Guidance................ 13 V. Data Sources and Limitations ............................................................................................... 14 VI. Baseline Data......................................................................................................................... 17 A. National Incident-Based Reporting System (NIBRS) M.G.L. c. 94C Violations ............. 18

NIBRS Data: General Overview ............................................................................................ 18 NIBRS Data: Aggregate.......................................................................................................... 18

Chart VI.A.1. M.G.L. c. 94C Cannabis Sale/Manufacturing and Possession Violations as a Percentage of All Drug Possession and All Drug Sale/Manufacturing Violations, NIBRS 2000-2017 .............................................................................................................................. 19 Table VI.A.1. M.G.L. c. 94C Cannabis Violations, NIBRS 2000-2017 ............................... 20 NIBRS Data: Individual-Level............................................................................................... 21 Table VI.A.2. M.G.L. c. 94C Cannabis Violations, NIBRS 2000-2013 ............................... 21 Chart VI.A.2. M.G.L. c. 94C Cannabis Violations by Year, (Percent of Total), NIBRS 20002013 ....................................................................................................................................... 22 Table VI.A.3. M.G.L. c. 94C Cannabis Violations by Year (Frequency [%]), NIBRS 20002013 ....................................................................................................................................... 23 Table VI.A.4. M.G.L. c. 94C Cannabis Violations by Race Category (Frequency [%]), NIBRS 2000-2013 ................................................................................................................. 26 Table VI.A.5. M.G.L. c. 94C Cannabis Violations by Ethnicity, Hispanic/Non-Hispanic (Frequency [%]), NIBRS 2000-2013..................................................................................... 27 Table VI.A.6. M.G.L. c. 94C Cannabis Violations by Ethnicity: White-Hispanic, White Non-Hispanic, Black-Hispanic, Black Non-Hispanic (Frequency [%]), NIBRS 2000-2013 27 Chart VI.A.3. M.G.L. c. 94C Cannabis Violation: Cultivating/Manufacturing, by Race Category, NIBRS 2000-2013 ................................................................................................ 28 Chart VI.A.4. M.G.L. c. 94C Cannabis Violation: Cultivating/Manufacturing, by Ethnicity: Hispanic/Non-Hispanic Category, NIBRS 2000-2013.......................................................... 28 Chart VI.A.5. M.G.L. c. 94C Cannabis Violation: Transporting/Transmitting, by Race Category, NIBRS 2000-2013 ................................................................................................ 29 Chart VI.A.6. M.G.L. c. 94C Cannabis Violation: Transporting/Transmitting, by Ethnicity: Hispanic/Non-Hispanic Category, NIBRS 2000-2013.......................................................... 29 Chart VI.A.7. M.G.L. c. 94C Cannabis Violation: Distributing/Selling, by Race Category, NIBRS 2000-2013 ................................................................................................................. 30

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