White Paper on Crime 2020 - Drug Offenses -[Summary]
The Research and Training Institute is one of the agencies of theMinistry of Justice. The Institute conducts a wide range of work, including(i) research related to criminal justice policies and other Ministry of Justiceaffairs, (ii) various kinds of training for Ministry of Justice officials, and(iii) international cooperation, both in the criminal and civil sectors, fordeveloping countries mainly in the Asian region.
The annual White Papers on Crime published by the Research andTraining Institute of the Ministry of Justice provide statistical data oncrimes and offender treatments as well as current issues in the criminaljustice field. The first volume of the Papers was published in 1960. Sincethen, they have been widely used by politicians, practitioners andacademics and have facilitated major policy changes.
Specifically, the White Paper on Crime 2007 revealed thatapproximately 60% of all crimes were committed by repeat offenders, whoaccounted for approximately 30% of convicted offenders. This finding ledto the development of “Comprehensive Measures for the Prevention of Re-offending 2012” by the Ministerial Meeting Concerning Measures AgainstCrime, which served as the basis of the criminal justice policy of Japanand set numerical targets for the next decade.
All the volumes of the Papers and English version since 2000 areavailable on the website of the Ministry of Justice.
(http://www.moj.go.jp/EN/housouken/houso_hakusho2.html)
Research and Training Institute
IntroductionWhite Paper on Crime
The White Paper on Crime 2020 focuses on drug offenses. The WhitePaper provides various statistical data and information on the trend in drugoffenses and treatment of drug offenders and also analyzes the results of aquestionnaire survey of inmates in penal institutions.
Special Features of White Paper on Crime 2020
White Paper on Crime (Japanese, English and Web version)
The Research and Training Institute, MOJ
1
99.5
0
20
40
60
80
100
0.00.20.40.60.81.01.21.41.6
2000 2005 2010 2015 2019
Clearance rate(thousand cases) (%)
Homicide: reported/cleared cases and clearance rate
945950
■ Reported cases■ Cleared cases
93.3
0
20
40
60
80
100
0.0
0.5
1.0
1.5
2.0
2.5
3.0
1990 1995 2000 2005 2010 2015 2019
Clearance rate(thousand cases) (%)
Rape: reported/cleared cases and clearance rate
1,405
1,311
■ Reported cases■ Cleared cases
0.0
0.5
1.0
1.5
2.0
2.5
3.0
3.5
4.0
0
10
20
30
40
50
60
70
80
90
100
1946 1960 1970 1980 1990 2000 2010 2019
98,463192,607
571,442
39.3
(million cases)(million persons)
Repo
rted
case
sCl
eare
d pe
rson
s
Clea
ranc
e rat
e
(%)
Number of reported cases in 2019Penal Code offenses 748,559■ Theft 532,565■ Penal Code offenses excluding theft 215,994(Reference)■ Dangerous driving causing death or injury, and 369,182
negligent driving offenses causing death or injuryPenal Code offenses, dangerous driving causing death or injury, 1,117,741 and negligent driving offenses causing death or injury
Clearance rate for Penal Code offenses
Cleared persons(Penal Code offenses)
Cleared persons(Penal Code offenses, dangerous driving causing death or injury, and negligent driving offenses causing death or injury)
Cleared persons(Penal Code offenses excluding theft)
Penal Code offenses: reported cases, cleared persons and clearance rate
Crime Trends
34.0
0
20
40
60
80
100
0.0
0.5
1.0
1.5
2.0
2.5
1990 1995 2000 2005 2010 2015 2019
Clearance rate
(million cases) (%)Theft: reported/cleared cases and clearance rate
532,565
180,897
■ Reported cases■ Cleared cases
2
4.40
5
10
15
20
0
5
10
15
20
25
2000 2005 2010 2015 2019
8,445
(%)
Percentage of members of Boryokudan
Num
ber o
f per
sons
cle
ared
Perc
enta
ge o
f mem
bers
of B
oryo
kuda
n
(thousand persons)
Members of Boryokudan[1] Persons cleared for Penal Code offenses
05
101520253035
1989 1995 2000 2005 2010 2015 2019
(thousand cases)(thousand persons)
9,148
5,5634,040
5,641
Foreign nationals
Cleared cases committed by visiting foreign nationals
Cleared cases committed by other foreign nationals
■ Visiting foreign nationals cleared■ Other foreign nationals cleared
[1] Cases/persons cleared for Penal Code offenses
0
5
10
15
20
0
5
10
15
20
25
2000 2005 2010 2015 2019
5,836
9.4
(%)
Percentage of members of Boryokudan
Num
ber o
f per
sons
cle
ared
(thousand persons)
Perc
enta
ge o
f mem
bers
of B
oryo
kuda
n
[2] Persons cleared for Special Acts offenses
02468
10121416
1989 1995 2000 2005 2010 2015 2019
8,112
6,092
1,446 1,672
(thousand cases)(thousand persons) ■ Visiting foreign nationals cleared
■ Other foreign nationals clearedCleared cases committed by
visiting foreign nationals Cleared cases committed by other foreign nationals
[2] Cases/persons cleared for Special Acts offenses
0.0
0.4
0.8
1.2
1.6
050
100150200250300
1966 1970 1975 1980 1985 1990 1995 2000 2005 2010 2015 2019
Rate
per
pop
ulat
ion
Num
ber o
f per
sons
cle
ared
Juveniles Adults
(thousand persons)172,693
26,076
Rate per populationof adults
Rate per populationof juveniles
Juvenile delinquents[1] Juveniles cleared for Penal Code offenses
(thousand)
164.3233.4
1.8
05
10152025303540
1956 1965 1970 1975 1980 1985 1990 1995 2000 2005 2010 2019
4,557 967 725 204
(thousand persons) Total
Drug offenses
Poisonous and DeleteriousSubstances Control Act
Firearms andSwords ControlAct
Minor Offenses Act
[2] Juveniles cleared for Special Acts offenses
3
Specific Offenders/Juvenile Delinquents
3
Police, etc.Dispositions as trivial offense
55,764
【New sentenced inmates】 17,464(Imprisonment with partial suspension of execution 1,414)
【Released sentenced inmates】 19,953 (Imprisonment with partial suspension of execution 1,493)
Commencement of probation/parole supervision 15,307
Reception 900,752 Penal Code offenses 202,099Negligent driving offenses causing death or injury 370,600
Disposition 907,273 Special Acts offenses 328,053 (excluding road traffic-related violations 87,868)Prosecuted 282,844
Public trial81,186
Summary order procedure201,658
Not prosecuted 576,677
Suspension of prosecution 513,757
Public Prosecutors Offices
Penal Institutions
Probation Offices
Courts
【Finalized judgments】 245,537
Death penalty
5
Imprisonment (with/without work)
Imprisonment without full suspension of execution18,097 Life
imprisonment16
Penal detention
3
Imprisonment with full suspension of execution31,065
Investigation initiated by public prosecutors, etc.
Women's Guidance Home
Release on parole0
Revocation of parole, etc.
Definite term 49,162
Guidance disposition
Family Courts(Juveniles)
Others295
Release upon completion
of the term of imprisonment8,018
Imprisonment with partial suspension of execution
1,452
Completion of the term of imprisonmentwith partial suspension of execution
295with probation
Release on parole11,640
Imprisonment with partial suspension of execution
1,198
11,640295
Numbers denote persons in 2019
Non-penal fine for traffic offenses
Courts
Fines194,404
Pettyfines1,556
Not guilty96
2,248
Discharge
Completion of the term, etc.
Provisional releasefrom workhouse
Detention in workhousein lieu of payment of fines
Procedure of Criminal Justice
with probation2,248
4
(平成28年)Police, etc.
Family CourtsJuvenile protection cases conclusively disposed 47,969
Measures prescribedin the Child Welfare Act
Children’s Self-relianceSupport Facilities, etc.
Referral 143
Protective measures 13,985
Referral to directorof child consultation
center etc.116
JuvenileTraining Schools
Committed 1,727Released 2,065
JuvenileClassification
HomesCommitted
5,749
ChildConsultation
Centers
Public Prosecutors OfficeReception 50,074Referral to family courts 47,752
Juvenile offenders under 14
Pre-delinquents
Probationary supervision11,823
Revocation, etc.
Juvenile offenders
Dismissalwithout hearing
20,403
Dismissal afterhearing
10,151
Referral topublic prosecutor
3,314
Release on parole2,053
Numbers denote persons in 2019
Penal Institutions(Juvenile Prisons, etc.)
New sentenced inmates 16
Imprisonment with full
suspensionof execution
withprobation
Imprisonmentwithout fullsuspension
of executionwith partial
suspension ofexecution
Release upon completion of the term of imprisonment
Completion of the term of imprisonment with partial suspension of execution
with probation
Release on parolewith partial
suspension ofexecution
Probation OfficesCommencement of probation/parole supervision 13,876
Those younger than 16
Transfer of those sentenced to imprisonment who turn 16
Non-penal fine for traffic offenses
Transfer
Courts
Discharge
Measures prescribedin the Child Welfare Act
Acquittal,fine, etc.
Termination, etc.Discharge, etc.
Procedure of Criminal Justice for Juvenile Delinquents
5
33.4 24.2 10.4 5.1 4.3
2.3
20.4 Theft
Stimulants Control Act Fraud
Road Traffic ActInjury Others
Robbery
New sentenced inmates: composition by type of offense (male/female)
Males(15,746)
Females(1,718)
(2019)
47.4 33.0 6.8 2.3
1.7 1.3
7.5
Embezzlement/Breach of trustHomicide
0
20
40
60
80
100
120
0
10
20
30
40
50
60
70
80
90
100
1946 1960 1970 1980 1990 2000 2010 2019
Others
Other sentenced inmates
(thousand persons)
Inm
ate
popu
latio
n at
the
end
of th
e yea
r
Rate
per
pop
ulat
ion
at th
e end
of t
he y
ear
38.4
39,588
Rate per populationat the end of the year
48,429
Inmates awaiting judgments
679
5,883
Year-end inmate population of penal institutions and rate per population
Sentenced inmates with partial suspension of execution
2,279
56
331
0
200
400
600
800
1,000
1,200
1,400
1,600
1,800
2000 2005 2010 2015 2019
(persons)
New F-class sentenced inmates (male/female)
Males
Females
387
Note: Foreingn national sentenced inmates who require different treatment from that of Japanese sentenced inmates are categorized as F-class and provided with treatment in accordance with their culture and life style.
24.2
10.4
16.1
0
5
10
15
20
25
30
35
40
1999 2005 2010 2015 2018
(%)
Rate of reimprisonment within 2 years
Note: The rate of reimprisonment means the percentage of inmates reimprisoned to serve sentences for offenses after release among the released sentenced inmates of a given year.
Treatment of Offenders/Re-offending
― Released on completion of the term of imprisonment with/without partial suspension of execution
― Released on parole― Total
6
Country Year ofsurvey Age
Type of drugsCannabis Stimulants Heroin Cocaine MDMA Other drugs
0.04 0.04 0.24 France 2017 18-64 11.0 0.3 … 1.6 Japan 2019 15-64 0.10 0.04 0.04
0.6 11.5 Germany 2015 18-64 6.1 1.0 … 0.6 0.6 6.6 Italy 2017 15-64 10.2 0.1 10.6
2.9 1.6 9.4 0.1 -
… 1.2 0.4
0.9 United Kingdom 2018 16-59 7.6 0.6
15.7 United States of America 2018 12 and over 15.9 0.7 0.3 2.0 0.9 19.4
- 2.5 Canada 2017 15 and over 14.8
0.2 2.5 2.2 15.6 Australia 2016 14 and over 10.4 1.4
4,570
558
2 0500
1,0001,5002,0002,5003,0003,5004,0004,5005,000
1971 1980 1990 2000 2010 2019
(persons)
Cannabis Control Act
Narcotics and PsychotropicsControl ActOpium Control Act
Cannabis and other drug violations: persons cleared
0
10
20
30
40
50
60
1951 1960 1980 2000 2019
Stimulants Control Act
(thousand persons)
8,730
Stimulants Control Act violations: persons cleared
Special Feature: Trend of Drug Offenses
Rate of experience in drug use in the past year by Japan and other countries
Although the prevalence of drug abuse, such as stimulants(methamphetamine, etc.), opioid and cannabis, is relatively low in Japan,prevention of drug offenses remains an important issue.
The number of violations of the Stimulants Control Act has beendeclining, but remains at a high level. The number of violations of the
Cannabis Control Act has been sharply increasing. The rate ofreimprisonment among drug offenders is higher than for other types ofoffenses.
In addition to border control and measures against organized crime toprevent drug offenses, support for drug offenders in withdrawal from drugabuse has been implemented in the public and private sectors includingprosecution, institutional correction and rehabilitation services.
Drug offenses
7
182
17 160 36
346 165
Narcotics and Psychotropics Control Act -
2019Total 11
492 960 758 578
10 6 112 176 840 1,196 2016 2017 2018
126 56 48
920 651 396 2013 2014 2015Applied regulations 2009 2010 2011 2012
148
Pharmaceuticals and Medical Devices Act (Pharmaceutical Affairs Act) 9 9 6 57 37
1 - 26 89 98
10 90 52 Traffic offenses - - - 19 40 Others 2 - - 10 29 16 1 -
1 - 7 1
1.7 9.9
19.7 25.8
31.1
4.5
23.8
40.4 49.0
53.8
0.7 7.8 16.3
22.7 26.8 2.5
16.4
27.9 36.8
42.0
0
10
20
30
40
50
60
Year ofrelease
With in2 years
With in3 years
With in4 years
With in5 years
(%)
Males: first time (1,333 persons)Males: 2 times or more (4,003 persons)Females: first time (410 persons)Females: 2 times or more (438 persons)
Stimulants Control Act violations: rate of reimprisonment
Note: The rate of reimprisonment means the percentage of inmates reimprisoned to serve sentences for offenses after release among the released sentenced inmates of a given year.
(2015)
0
20
40
60
80
100
0
1
2
3
4
5
6
2000 2005 2010 2015 2019
50.6
35.7
1,208 5,658
(thousand persons) (%)
Rate of prosecutionRate of suspension of prosecution
[2] Cannabis Control Act
1,587
2,863
9.10
20
40
60
80
100
0
5
10
15
20
25
30
2000 2005 2010 2015 2019
9,942
75.7
2,207
993
(%)(thousand persons)
Rate of prosecution
[1] Stimulants Control Act
Rate of suspension of prosecution 13,142
Drug offenders: prosecuted/not prosecuted
Special Feature: Trend of Drug Offenses
576
137
0
20
40
60
80
100
0
300
600
900
1,200
1,500
2000 2005 2010 2015 2019
59.9
19.2
249
962
(persons) (%)
Rate of prosecutionRate of suspension of prosecution
[3] Narcotics and Psychotropics Control Act
New psychoactive substances: persons cleared, by type of regulation
■ Prosecution ■ Suspension of prosecution ■ Other non-prosecution
8
Juvenile delinquents cleared for drug offenses Foreign nationals cleared for drug offenses
92 0
500
1,000
1,500
2,000
2,500
3,000
1975 1980 1985 1990 1995 2000 2005 2010 2015 2019
Stimulants Control Act
(persons)[1] Stimulants Control Act
595
35 0
100
200
300
400
500
600
1975 1980 1985 1990 1995 2000 2005 2010 2015 2019
Narcotics and Psychotropics Control Act Cannabis Control Act
(persons)[2] Cannabis Control Act/Narcotics and Psychotropics Control Act
8.90
10
20
30
40
50
0
200
400
600
800
1,000
2010 2015 2019
761
Percentage of foreign nationals
(persons) (%)[1] Stimulants Control Act
0
10
20
30
40
50
0
100
200
300
400
2010 2015 2019
279
6.5
(persons) (%)
Percentage of foreign nationals
[2] Cannabis Control Act
0
10
20
30
40
50
0
20
40
60
80
100
120
140
2010 2015 2019
123
26.9
(persons) (%)
Percentage of foreign nationals
[3] Narcotics and Psychotropics Control Act
0.7
7.9
4.6
7.9
20.3
50.6
61.9
27.01.1
5.5
2.2
7.1
3.4Stimulants Control Act
Cannabis Control Act/Narcotics and Psychotropics Control Act
■ Referral to public prosecutor (criminal procedure) ■ Referral to public prosecutor (exceeded age (20))■ Juvenile training schools ■ Probation ■ Referral to children's self-reliance support facilities, etc.■ Dismissal after hearing ■ Dismissal without hearing
Juvenile drug delinquents: final decision by family court for protection cases
(438)
(89)
(2019)
Special Feature: Trend of Drug Offenses
9
Special Feature: Questionnaire Survey of Drug Offenders in Penal Institutions
61.0
52.7
29.0
22.5
22.3
19.9
11.0
8.0
7.1
58.6
52.7
44.2
34.4
24.3
23.9
12.8
12.3
6.4
0 10 20 30 40 50 60 70
Organic solvents
Cannabis
Prescription drugs
New psychoactive substances
Cocaine
MDMA
Gases
OTC drugs
Heroin
Males Females
(401)
(351)
(226)
(174)
(152)
(140)
(76)
(62)
(45)
Life-time experience of drug abuse(%)
19.9
21.3
17.0
35.5
37.3
31.6
37.3
36.7
38.7
7.3
4.8
12.7
Total
Males
Females(212)
(654)
(442)
Drug abuse screening test scoreLow(1–5)
Intermediate(6–10)
Substantial(11–15)
Severe(16 and over)
The questionnaire survey was conducted during the period from July toAugust 2017 (extended to November for females), targeting new sentencedinmates of penal institutions across Japan who were sentenced toimprisonment with work for violations of the Stimulants Control Act.
The survey results were analyzed in combination with otherinformation on these inmates identified by the penal institutions.
Inmates subject to analysis were limited to respondents who hadexperience of self-use of stimulants.
Questionnaire survey
The analysis revealed that many stimulants offenders had abusedorganic solvent (male 61.0%, female 58.6%), cannabis (male 52.7%,female 52.7%) and prescription drugs (male 29.0%, female 44.2%) intheir life-time. A significant number of stimulants offenders had starteddrug use under the age of 20 and had repeatedly committed drug offenses.
Around 50% of respondents had a score of “substantial” or “severe” onthe Drug Abuse Screening Test (DAST-20), and were thus deemed torequire intensive treatment.
Among stimulants offenders, 23.5% had committed a crime to obtaindrugs and 6.5% had committed a crime under the influence of drugs.
Conditions of drug abuse
The number of inmates subject to analysis was 699 (462 males and 237females). Their average age was 43.5, and 74.1% were reimprisoned.
57.3% were unemployed, 73.4% were unmarried, divorced or bereaved,and 7.2% were members of organized crime groups.
Basic information
10
60.6
52.2
46.3
39.4
11.7
3.5
53.2
48.5
25.3
25.3
29.1
31.2
0 10 20 30 40 50 60 70
Meeting withdrug companions
Getting contactedby drug companions
Having sex
Having cash on hand
After a quarrel
Being concernedabout body shape
Males (462)Females (237)
(123)
(242)
(274)
(356)
(406)
(90)
(%)Situations inducing stimulants use
47.4
31.8
30.1
31.8
25.5
33.1
55.3
42.2
39.7
28.7
37.6
17.3
0 10 20 30 40 50 60 70
Feeling irritated
Feeling depressed
Feeling isolated
Feeling bored
Feeling lonely
Feeling frustratedMales (462)Females (237)
(%)
(194)
(207)
(215)
(233)
(247)
(350)
Emotions inducing stimulants use
19.7
1.8
42.2
19.4
0 10 20 30 40 50 60 70 80 90 100
Binge-eating
Purging after eating Males (446)Females (232)
(%)
(186)
(53)
8.1 41.2
0 10 20 30 40 50 60 70 80 90 100
Self-injury Males (431)Females (228)
(%)
(129)
21.0 46.3
0 10 20 30 40 50 60 70 80 90 100
Suicidal thought Males (433)Females (229)
(%)
(197)
3.5 72.6
0 10 20 30 40 50 60 70 80 90 100
DV from partner
Males (432)Females (230)
(%)
(182)
The questionnaire revealed internal and external triggers and thebackground of drug use.
Contact with drug companions and negative feelings induce stimulantsuse and gender differences were observed in some inducements.
A higher percentage of females have mental problems such as eatingdisorders, self-injury and suicidal thoughts. The percentages of personswith an alcohol problem and those with a gambling problem were 39.3%and 45.0% respectively.
Mental problems of stimulants offenders
Special Feature: Questionnaire Survey of Drug Offenders in Penal InstitutionsTrigger and background of drug use
11
Special Feature: Questionnaire Survey of Drug Offenders in Penal Institutions
As negative aspects of the use of stimulants, the stimulants offendersfelt the deterioration of relationships with people around them or the lossof trust of such people.
Most stimulants offenders had experienced quitting drugs or trying toquit, and the analysis results suggest that stability of jobs and humanrelationships encouraged them to quit drugs.
Only a limited number of the stimulants offenders had experiencedreceiving support from specialized hospitals, health institutions, recoverysupport facilities, or self-help groups.
Support from relevant organizations, etc.
The data and information presented in this special feature suggest thefollowing policy implications:
・ To reduce drug supply through border control and measures againstorganized crime
・ To publicize the harm of drugs and provide information onorganizations providing support for withdrawal from drugs
・ To enhance the treatment of drug offenders through improved andindividualized programs during imprisonment and probation/parole andmulti-agency cooperation
・ To provide intervention for drug addicts at an early stage of the criminaljustice process
Reasons to quit stimulants
23.9 60.4 15.7 Total(568)
[1] Specialized hospital
5.8 55.6 38.6 Total(500)
[2] Health institutions
12.9 77.4 9.7 Total(566)
[3] Recovery support facilities
16.5 61.6 21.8 Total(550)
[4] Self-help groups
55.6
55.1
43.3
46.9
40.4
41.6
30.6
53.7
48.6
47.4
36.0
41.1
36.6
31.4
0 10 20 30 40 50 60 70
I didn’t want to betraymy loved ones
I didn’t want to bearrested or imprisoned
Person soliciting me to usedrug was not around me
I was doing well at work
Family/partner supported me
I was Leading a stable life
I had a future goal Males (356)Females (175)
(%)
(292)
(216)
(212)
(164)
(230)
(237)
(281)
■ have received its support■ have heard of it, but have not received its support ■ have not heard of it
Withdrawal from stimulants
Policy Implications
12