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    A 32 años de la Ley de Drogas: el legado punitivista de los años noventa

    Updated:1.311 comentariosLectura de 7 min

    Se cumplen 32 años de la sanción de la Ley de Drogas 23.737 (1989), una ley suscitada al calor de los años noventa, pero ya en retroceso desde hace años impactando con graves consecuencias de criminalización, mayor encarcelamiento, aumento de la sobrepoblación y afectación de las familias de las personas encarceladas.

    La ley penaliza la tenencia y comercialización de drogas, que ya se ha declarado su inconstitucionalidad del art.14 (solo tenencia) en el fallo Arriola (2009) en la Corte Suprema de la Nación, por inmiscuirse en la moral privada. El mismo fallo que recomienda al Poder Legislativo legislar para proteger los derechos que otorga el art.19 de la Constitución Nacional, sobre no criminalizar el daño que una persona se produzca a sí mismo. Desde aquel entonces, se presentaron 28 proyectos para modificarla y adecuarse al fallo de la Corte, ninguno prosperó.

    La Ley 23737 se votó el 21 de septiembre de 1989.
    La Ley 23737 se votó el 21 de septiembre de 1989.

    En la actualidad el apoyo de diferentes sectores políticos, organizaciones, poderes judiciales y legislativos sobre el avance en la modificación de la Ley de Drogas, parece aumentar, pero no llega a manos de cuadros políticos con poder de decisión, como sí paso en los noventa con Eduardo A. Duhalde, quien por aquel entonces comandaba la Cámara como Diputado Nacional por la provincia de Buenos Aires. Luego la dejaría para ser vicepresidente de Carlos Menem.

    No solo se le adjudica juntar los consensos para promulgar la Ley de Drogas, sino que a lo largo de la década fue condecorado por su lucha contra las drogas: Orden de Boyacá, por la entrega de tres aviones IA58 Pucará para ser utilizados en la lucha contra el narcotráfico al presidente V. Vargas de Colombia (1989). Doctor Honoris Causa, campaña a favor de la prevención de adicciones y la lucha contra el narcotráfico, Universidad de Génova, Italia (1992). Profesor Honoris Causa del Instituto de Prevención de la Drogadependencia de la Universidad del Salvador (1996). Doctorado Honoris Causa de la Universidad Hebrea Argentina Bar-Ilan por la tarea de prevención de las adicciones (1999).

    Carlos Menem y Eduardo Duhalde ganaron las elecciones presidenciales el 14 de mayo de 1989 con el 47% de los votos
    Carlos Menem y Eduardo Duhalde ganaron las elecciones presidenciales el 14 de mayo de 1989 con el 47% de los votos.

    Después de los tres kirchnerismo, donde la política de drogas siguió siendo de orientación punitivista, en 2019 el ministro de Justicia, Germán Garavano, envió al Congreso un proyecto de reforma del Código Penal, en donde se mantenían los artículos sobre pena de prisión por tenencia simple y la tenencia para uso personal, pero con la novedad del agregado: «la tenencia no hubiera trascendido el ámbito de la privacidad».

    La Defensoría del Pueblo junto a RESET-Política de Drogas y Derechos Humanos, concluyen en el informe «A pesar de los 30 años de la ley 23737 de drogas» que este concepto de “privacidad” no está definido claramente, por lo cual se suma a los de “escasa cantidad” y “demás circunstancias” como zonas grises o expresiones abiertas, laxas e indeterminadas a ser interpretadas por fuerzas de seguridad, fiscales y jueces, lo que podría ocasionar el inicio de causas contra usuarios con parámetros totalmente disimiles entre sí, ya que la norma no explicita de manera cierta y específica ninguno de los preceptos que contiene.

    Números de una ley en retirada

    Un reciente informe, de la investigadora Florencia Corbelle (UBA), La Ley de Drogas en Números indica que el 90% de las causas iniciadas entre 2011-2019 por infracción a la Ley de Drogas, fueron por “tenencia simple” o “uso personal”. Las que categorías que menos aumentaron, alrededor de 7%, fueron por “comercialización”, “financiación” y “contrabando”. La mayoría de las causas se inician en el marco de “tareas de prevención” de las fuerzas de seguridad y luego le siguen denuncias en comisarías.

    División antidrogas requisa violentamente a un grupo de jóvenes (Rosario,2016). Fuente: La Izquierda Diario.
    División antidrogas requisa violentamente a un grupo de jóvenes (Rosario,2016). Fuente: La Izquierda Diario.

    Si bien la información que brinda la Oficina de Estadísticas del Poder Judicial es escasa y fragmentaria, sabemos que en los juzgados federales en lo criminal y correccional de la Ciudad de Buenos Aires entre 2011 y 2012 ingresaron 17.547 causas por infracción a la Ley 23737. De estas el 67% culminaron en sobreseimientos, el 8% en archivo, el 4% en declaraciones de incompetencia o desestimación y únicamente el 2% fueron elevadas a juicio. El restante 19% fueron resueltas de “otras formas”.

    Según datos del Sistema Nacional de Estadísticas sobre Ejecución de la pena, las personas presas aumentaron 147% en el periodo 2010-2019. Diferenciado por género se advierte que los hombres presos, por la Ley de Drogas, aumentó 157%, las mujeres 93% y trans presas se incrementó 445% pero para el periodo 2015-2019. Más del 50% de la población trans es por la Ley de Drogas, al igual que sucede con los extranjeros. En las mujeres que registra que la mayoría de las detenidas es jefa de hogares monoparentales, desempleada o con trabajo informal.

    Presos en la alcaidía del Palacio de Tribunales (Foto: Procuración Penitenciaria de la Nación)
    Presos en la alcaidía del Palacio de Tribunales (Foto: Procuración Penitenciaria de la Nación)

    Para la conmemoración de los 30 años de la ley 23737, el Procurador Penitenciario Adjunto Interino, Ariel Cejas Meliare, señaló ante la Comisión de Seguridad Interior y Narcotráfico, que “el modelo de políticas de drogas en América Latina afecta los Derechos Humanos de la población en general y en particular a las mujeres y al colectivo LGBT+. Sostuvo que estas políticas producen más criminalización, mayor encarcelamiento, aumento de la sobrepoblación y afectación de las familias de las personas encarceladas”.

    Las estadísticas indican claramente los resultados de una dirigencia política, que de forma inconstitucional, penaliza usuarios y no respeta la decisión individual y privada, de quienes deciden utilizar drogas, a pesar de conocer sus daños. Este sentido es contrario a la tendencia mundial donde la tenencia de drogas no se considera delito y se aborda como problema de salud pública, con el doble objetivo de reducir la demanda y combatir eficazmente el narcotráfico.

    Cannabis: Ni el debate legislativo paró la persecución

    A contramano de la reivindicación social, que el debate sobre el uso de cannabis estaba teniendo en el Congreso, las cifras de las causas iniciadas por cultivo fueron en aumento. En los años 2015-2016, previo a la Ley 27.350, las detenciones por «tenencia para comercialización» y «tenencia para consumo» aumentaron en un 30% y 11%, mientras que las detenciones asociadas al cultivo de cannabis lo hicieron en un 58%, según se desprende del reciente informe La Ley de Drogas en Números, de la investigadora Florencia Corbelle (UBA).

    Las fuerzas de seguridad acusan dos artículos de la Ley de Drogas, según cada detención y son caratuladas como infracción. Son el Art.5d «comercie con plantas o sus semillas, utilizables para producir estupefacientes, o las tenga con fines de comercialización, o las distribuya, o las dé en pago, o las almacene o transporte», que creció de 530 causas en 2015 a 914 en 2016, con un leve descenso a 860 en 2017 y volvió a repuntar, post Ley de Uso de Cannabis medicinal, a 978 en 2018. El otro artículo es el 5a «siembre o cultive plantas o guarde semillas, precursores químicos o cualquier otra materia prima para producir o fabricar estupefacientes, o elementos destinados a tales fines», con menos aumento. De 259 causas en 2015, pasó a 330 en 2016, bajando en 2017 a 279 y luego subió a 320 en 2020, año de la nueva reglamentación que permitiría la implantación del ReProCann (Registro Nacional del Programa de Cannabis) para el autocultivo con fines medicinales.

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