ABUSE OF ANABOLIC STEROIDS By Charles Swanson, Ph.D. Faculty Member Vinson Institute of Government University of Georgia Larry Gaines, Ph.D. Chair, Department of Police Administration Eastern Kentucky University and Barbara Gore, M.S. Research Assistant Vinson Institute of Government University of Georgia Substance abuse among police officers is not new. Alcohol abuse has long been recognized as a problem in police work. In fact, a study conducted in 1984 by the National Institute of Occupational Safety and Health revealed that 23 percent of officer respondents had serious drinking problems. (1) Intensifying this problem is the increased use of illegal drugs by police officers. In recent years, drug abuse in law enforcement has garnered a great deal of attention. (2) Numerous individual cases of police officers using or dealing drugs have received nationwide publicity, and police officers in various ranks and assignments have been involved. However, one area of substance abuse that has been ignored, for the most part, is police officer use of steroids. Anabolic steroid abuse by police officers is a serious problem that merits greater awareness by departments across the country. The adverse health conditions, both physical and psychological, that such abuse carries need to be dealt with in an informed manner. Because steroid use was originally tied to athletics and fitness conditioning, the abuse of these drugs can be overlooked by the law enforcement profession, which has always maintained physical fitness as a top priority. By becoming educated about the consequences of steroid abuse, police managers should be better able to prevent the damage steroids can inflict on their officers. BACKGROUND The use of anabolic steroids by amateur and professional athletes to increase performance is well-documented. (3) But, when it was determined that more than one-half of the track and field competitors used steroids to prepare for the 1972 Olympic Games, the International Olympic Committee took steps to ban the use of anabolic drugs in Olympic competition. (4) Now, the top six performers in each Olympic event are tested for non-therapeutic drugs of all types. However, despite such developments, steroid use by athletes at all levels is still widespread. Unfortunately, it is becoming more apparent that the law enforcement community is not exempt from this form of drug abuse. For example, in 1989, while the U.S. Bureau of Customs was investigating the smuggling of anabolic steroids into this country, their investigation led to certain health clubs in North Carolina, where State patrol officers were illegally using anabolic steroids. (5) The North Carolina State Patrol joined the investigation, and subsequently three troopers were terminated. In another case, a physical training sergeant in the Miami Beach, Florida, Police Department noticed that one of his charges was "bulking up" too fast. This female officer also displayed street behavior that led a department supervisor to recommend that she be assigned to administrative duties at the station. It was subsequently established that she had been using anabolic steroids. And, in New York, officers have been convicted of selling anabolic steroids. (6) PHYSICAL HEALTH RISKS While there are recognized medical uses of anabolic steroids that are appropriate only under qualified medical supervision, the abuse of anabolic steroids impacts adversely on an individual's health. These risks are even greater when anabolic steroids are taken under the direction of non-health professionals or when individuals begin self-dosing. This is because the typical usage under these and related circumstances is 10 to 100 times greater than a proper medical dosage. (7) Steroids manufactured outside the United States pose even greater risks. Not only are these preparations illegal, but it is difficult to estimate their dosage equivalency. (8) Conditions like this virtually ensure dosages will be well beyond those recognized as medically appropriate. PSYCHOLOGICAL EFFECTS Unknown, or less well-known, to anabolic steroid abusers are certain detrimental emotional and psychological symptoms. Indeed, it is maintained that "aggressive behavior is almost universal among anabolic steroid users." (9) There are documented case histories of severe depression, visual and auditory hallucinations, sleep disorders, thoughts of suicide, outbursts of anger, anorexia, psychomotor retardation, and irritability. (10) There have also been significant instances of unusual and/or violent police behavior associated with anabolic steroid use, which have the potential to cause serious public relations and other problems for police administrators. For example, the CBS news program "60 Minutes" aired a segment detailing episodes of police violent behavior and abuse of citizens that were attributed to steroid use. The segment highlighted a particular incident where an off-duty police officer got into an argument with a female employee at a business establishment and later returned to abduct her. He subsequently shot her and threw her from his vehicle. The investigation that followed revealed no propensities toward this type of behavior. However, the officer had been using anabolic steroids, and his testosterone level was 50 times higher than normal. (11) DEPENDENCE ON STEROIDS Although steroids are not physically addicting, abusers can develop a psychological dependence on the drug. After initial success with the drug, subjects become psychologically dependent on their improved physique, increased strength, or sexual appeal and continue to use steroids. Exercise becomes easier with steroids, and pain or a lack of strength develops when the drugs are not used. This process may continue until the subject is faced with some difficulty as a result of the drug dependency. Cessation of usage will come only when the subject becomes disinterested or is confronted with the various problems stemming from abuse of the drug. THE LEGAL ENVIRONMENT As the harmful physical and psychological effects of steroid abuse became known, there emerged a need for legal regulation of the drugs. It is the responsibility of the Drug Enforcement Administration (DEA) to enforce the Controlled Substances Act (CSA), which is intended to minimize the quantity of drugs available for illegal use. The CSA places substances into one of five schedules based on such factors as potential for abuse and whether there is a recognized medical use of the substance. Historically, most over-the-counter (OTC) and prescription drugs, including anabolic steroids, have not fallen within one of the CSA schedules, and responsibility for enforcement efforts relating to them has rested with the Food and Drug Administration (FDA) and State agencies. The FDA determines whether a substance falls within the OTC or prescription category; each State then has the legal power to determine who can legally prescribe and dispense OTC and prescription substances. Signed into law on November 18, 1988, the Federal Anti-Drug Act of 1988--also referred to as the Omnibus Drug Abuse Initiative--placed a special category of anabolic steroids within the prescription class, and all violations involving the sale or possession with intent to distribute anabolic steroids became felonies. (12) However, even before the passage of the Anti-Drug Act, it was illegal to possess anabolic steroids without a prescription in all 50 States. (13) Thus, any officer in this country using anabolic steroids without a prescription has committed an illegal act. (14) By November 1, 1989, at least 28 bills focusing on anabolic steroids had been introduced in State legislatures. (15) In general, these proposed laws would make prosecution of anabolic steroid-related crimes easier and would call for more severe penalties. More recently, Congress passed the Anabolic Steroids Control Act of 1990. (16) This act, which placed anabolic steroids into the CSA's Schedule III, gave enforcement power to DEA and created stiffer penalties. For example, simple illegal possession of anabolic steroids without any Federal or State drug conviction is punishable by 1 year in prison and/or a fine of $1,000 to $5,000. If there is an existing drug conviction, illegal possession will result in not less than 15 days and no more than 2 years and/or a fine of no less than $2,500, but not to exceed $10,000. ADMINISTRATIVE CONCERNS As health, behavioral, and other problems have been linked to steroid abuse, police departments have been faced with a need for awareness, education, and departmental policies concerning steroid use among their officers. In the fall of 1989, during personal interviews of administrators at 30 police departments across the country, concerns about steroid abuse were expressed. Members of internal affairs and public information offices were interviewed, as were staff psychologists and command position officers. Initially, with few exceptions, the responses were that steroid abuse had never been a problem in the department. Yet, those who claimed that anabolic steroid use in the department was not a problem often later admitted that some officers had become muscular very quickly. The interviews revealed that steroid use was indeed overlooked and that the abuse of these drugs was beginning to manifest itself. Unfortunately, police administrators are not yet fully aware of the seriousness of steroid abuse and often fail to recognize this problem among their officers. Current information about police officer use of anabolic steroids is fragmented and impressionistic. In addition, general drug tests do not detect the presence of anabolic steroids; a separate test is required. This, combined with the difficulties in implementing drug testing programs and the costs involved, make it questionable as to the extent of organizational attention that will be given to police officer use of steroids in the near future. RESPONSE TO ANABOLIC STEROIDS Though departments may find steroid abuse issues difficult to deal with now, they must become aware that developments in the legal environment (17) signal strong social apprehension about the use of anabolic steroids. Administrators should share this concern, given the consequences that may result from police anabolic steroid abuse. Increased citizen complaints against officers, unprovoked off-and on-duty violence, a negative impact on abusers bodies, increased damage to police-community relations, officer involvement in illegal activity, civil litigation, and adverse media coverage are problems that may likely arise from officer abuse of steroids. The first step toward confronting steroid abuse must be a desire on the police department's part to know more about police anabolic steroid use. The reasons why officers become involved in taking steroids and to what extent they use them is unclear. Is it a matter of ignorance or lack of information that officers simply don't know the risks they are taking? Is it because they believe that not only are they "out-gunned," but also "out-muscled" by criminals? Does it have little to do with work and more to do with a narcissistic involvement with one's own body? These questions and many others must be addressed as departments cope with steroid issues. MEASURES TO TAKE Most police departments do not have a blanket policy of anabolic steroid screening for recruits. Also, the extent of anabolic steroid use by police officers is presently unclear. However, departments should begin to train supervisors, background investigators, and internal affairs personnel on how to identify the physical and behavioral signs associated with anabolic steroid abuse. In addition to the physical and psychological symptoms previously noted, other possible indicators to begin looking for are sleep disorders, marked increases in irritability, depression, unusual nervous tension, trouble in concentrating on cognitive tasks, increased officer-to-officer conflicts, and complaints from the officer about the department, its policies and procedures, or working conditions. If members of police departments are made aware of these symptoms, they will be more readily equipped to confront a possible abuse situation. CONCLUSION There are sufficient independent indicators to warrant attention from police administrators about officer use of anabolic steroids. The risks to officers' physical and mental health are real and significant, and officer anabolic steroid abuse places the public they are sworn to protect at risk. Because of such abuse, police families are exposed to additional stresses, potential liabilities may be created, and important interdepartmental relationships can become endangered. It is a time for thoughtful, measured assessment and prudent action concerning all of the harmful effects steroid abuse creates. Departments must become aware of this very real problem, educate their officers about steroids, and design effective policies concerning steroid abuse. FOOTNOTES (1) J.J. Hurrell and R. Kliesmet, Stress Among Police Officers (Cincinnati: National Institute of Occupational Safety and Health, 1984). (2) See, Mary Niederberger, "Random Drug Test for Police Opposed," Pittsburgh Press, April 6, 1989; Rob Zeiger, "14 Fired Officers Returned to Duty," Detroit News, July 22, 1988; Shelly Murphy "Court Upholds Drug Tests for Hub Cops," Boston Herald, May 13, 1989; Marilyn Robinson, "Drug Use Cuts Police Recruits by Nearly 50%," Denver Post, July 15, 1983; David Schwab, "Supreme Court Backs Drug Tests for South Jersey Police Officers," Newark Star-Ledger, April 4, 1989. (3) Wilson and Gisvolds Textbook of Organic Medicinal and Pharmaceutical Chemistry, ed. R.F. Doerge (Philadelphia: J.B. Lippincott Co., 1982). (4) Ibid. (5) Telephone conversation with the Director of Administrative Services of the North Carolina State Police, August 30, 1989. (6) CBS, "60 Minutes," segment aired November 5, 1989. (7) Harrison G. Pope and David L. Katz, "Affective and Psychotic Symptoms Associated with Anabolic Steroid Use," American Journal of Psychiatry, April 1988, vol. 145, No. 4. (8) Ibid. (9) Marj Charlier, "For Teens, Steroids may be Bigger Issues than Cocaine Use," Wall Street Journal, October 4, 1988. (10) Supra note 7. (11) Supra note 6. (12) 29 U.S.C. 333(e). (13) Food, Drug and Cosmetic Act of 1938, as amended 21 U.S.C. 301 et. seq. This is true whether the steroids were intended for use by humans or animals. (14) 21 U.S.C. 333a, 2403. (15) The States are Alaska, California, Connecticut, Georgia, Hawaii, Idaho, Illinois, New York, North Dakota, Oklahoma, Oregon, Pennsylvania, Rhode Island, and Washington. (16) Anabolic Steroids Control Act of 1990, Pub. L. 101, sec. 647. (17) Ibid.