背景:2015年,牙买加成为第一个将个人拥有大麻合法化的加勒比海国家,通过《危险药物修正案》(DDAA),使家庭种植合法化,并建立商业治疗性大麻市场。
目的:严格分析DDAA下合法治疗性大麻市场的实施情况。
方法:对来自政府的22名关键线人(KIs)的半结构化面对面访谈的结果进行综合,工业,学术界和非政府组织,对非法种植者的非结构化采访,以及对持牌和非法经营者的实地观察。
结果:KIs确定了在DDAA下实施治疗市场条款的许多挑战,包括主要政府机构的有限支持;延迟制定质量保证框架;以及无法获得银行服务。公共部门行为者强调了联合国毒品公约带来的挑战,需要与美国联邦政府保持良好的外交关系,其结果是优先执行以防止转移和倒置。替代发展方案在两个传统的大麻种植社区的实施经历了土地所有权和当地社区摩擦的挑战。高昂的合规成本和满足设想的医疗标准的技能有限,这给传统农民带来了障碍。许多KIs将从受监管的市场购买大麻概念化为“娱乐性”,而不是医疗,反映销售点医疗应用的营销和有限信息。持牌人对外国投资的依赖使当地行业面临掠夺性股东协议的风险,还提供所需的投资和专业知识。
结论:外部国际因素(例如联合国条约,与美国的代理银行业务)和相互矛盾的国内政府机构改革愿景在DDAA实施中发挥了重要作用。随着大麻法改革蔓延到西方司法管辖区之外,考虑预先存在的社会,发展中国家的文化和经济条件将是重要的。
BACKGROUND: In 2015, Jamaica became the first Caribbean country to decriminalise personal cannabis possession, legalise home cultivation and establish a commercial therapeutic cannabis market via the passage of the Dangerous Drugs Amendment Act (DDAA).
OBJECTIVE: To critically analyse implementation of the legal therapeutic cannabis market under the DDAA.
METHODS: Synthesis of findings from semi-structured face-to-face interviews with 22 key informants (KIs) from the government, industry, academia and NGO sector, unstructured interviews with illegal growers, and field observations of licensed and illegal operators.
RESULTS: KIs identified a number of challenges in implementing therapeutic market provisions under DDAA, including a limited buy-in from key government agencies; delays in developing a framework for quality assurance; and lack of access to banking services. Public sector actors stressed the challenges imposed by the UN drug conventions and need to maintain favourable diplomatic relationship with the US federal government, with the consequence of prioritising enforcement to prevent diversion and inversion. Implementation of the Alternative Development Programme in two traditional cannabis-growing communities experienced challenges with land titles and frictions in local communities. High compliance costs and limited skills to meet the envisioned medical standards presented barriers for traditional farmers. Many KIs conceptualised the purchasing of cannabis from the regulated market as \"recreational\" rather than medical, reflecting the marketing and limited information on medical applications at point of sale. Licensees\' reliance on foreign investment puts local industry at risk of predatory shareholder agreements, but also provides needed investment and expertise.
CONCLUSIONS: External international factors (e.g. UN treaties, correspondent banking with the US) and conflicting domestic government agency visions for the reform played a significant role in the DDAA implementation. As cannabis law reform spreads beyond Western jurisdictions, consideration of pre-existing social, cultural and economic conditions of developing countries will be important.