Neil Gorsuch called this law a ‘curious animal.’ A new bill would tame it.
One of the nation’s strangest laws is primed for reform in a new bill from Rep. Steve Cohen, D-Tenn., that would bring a dose of logic to federal drug policy.
That unusual law — Supreme Court Justice Neil Gorsuch called it a “curious animal” — is the Controlled Substance Analogue Enforcement Act. Known as the Analogue Act for short, it’s part of the Anti-Drug Abuse Act of 1986, which was rushed into law ahead of that year’s midterm elections by a bipartisan Congress and Republican President Ronald Reagan. Passed in the shadow of high-profile deaths, including that of basketball star Len Bias, the Anti-Drug Abuse Act brought mandatory minimum sentences and a vast disparity in punishment for crack and powder cocaine offenses, respectively.
The Analogue Act separately sought to solve the problem of so-called designer drugs. The problem, as the authorities saw it, was that the law was too specific. Cocaine, heroin and other drugs were illegal because they were listed under the Nixon-era Controlled Substances Act’s drug schedules. But nothing was stopping underground chemists from tinkering with listed substances to produce new ones that the law didn’t capture. Congress could ban novel drugs as they appeared on the illicit market, but that took time and would only apply going forward. Bad actors went unpunished in the meantime, so the government thinking went.
As I laid out in my book, “Bizarro,” on the inside story of the Analogue Act and one of the most peculiar cases it spawned, law enforcement was tired of playing catchup in the cat-and-mouse game. It wanted to go on offense. The result was the Analogue Act, which expanded federal drug law to say that any substances “substantially similar” to already illegal ones like cocaine, heroin and others on the most restricted drug schedules were illegal, too.
‘Curious animal’
In solving one problem, the Analogue Act confronted another: the Constitution.
Due process means that people need notice of what’s legal, so they can live their lives accordingly. Yet the act’s substantial-similarity test outlawed a potentially infinite number of substances with a vague, unscientific standard. Whether that standard is satisfied in a given case depends on whether prosecutors can convince juries that one substance is “substantially similar” to another. The ambiguous test has led to conflicting verdicts in different cases involving the same substance.
Even the Drug Enforcement Administration’s chemists haven’t always agreed among themselves about which substances qualify as analogues. If the government’s own experts can’t agree about what’s legal, how can people subject to the law be expected to know?
Judges appointed by Republican and Democratic presidents alike have questioned the act’s constitutionality. Notable among them is Gorsuch. Before President Donald Trump appointed him to the Supreme Court in 2017, the jurist called the act a “curious animal” in a 2015 ruling when he was on the Denver-based appeals court. Gorsuch deemed the “substantially similar” test’s meaning an “open question,” as he wondered whether it gives citizens fair notice.

But even since he joined the high court, the justices have refused to consider a petition attacking the Analogue Act. The court’s lack of interest effectively has left the matter with Congress.
Taming the animal with an ‘and’
Enter the new bill announced by Cohen, who has criticized the drug war during his nearly two decades in the House. The Democrat isn’t running for re-election this year, after Tennessee Republicans passed a congressional map, backed by recent Supreme Court rulings, that splintered his Memphis base in what was the state’s only majority-Black district.
Cohen’s “Public Health and Research Reforms in Controlled Substances Act” would, as its name suggests, shift drug law from a punitive approach to one centered on public health, with a revamped scheduling system, scientific research promotion and other measures.
Its analogue amendment wouldn’t overturn the constitutionally suspect “substantially similar” test, but it would address one of its ridiculous aspects.
To understand the fix, it’s necessary to know what the act says currently. It has three sections that define what a controlled substance analogue is, according to its 1) structure, 2) effect and 3) represented effect. It defines an analogue as a substance:
i) the chemical structure of which is substantially similar to the chemical structure of a controlled substance in schedule I or II;
ii) which has a stimulant, depressant, or hallucinogenic effect on the central nervous system that is substantially similar to or greater than the stimulant, depressant, or hallucinogenic effect on the central nervous system of a controlled substance in schedule I or II; or
iii) with respect to a particular person, which such person represents or intends to have a stimulant, depressant, or hallucinogenic effect on the central nervous system that is substantially similar to or greater than the stimulant, depressant, or hallucinogenic effect on the central nervous system of a controlled substance in schedule I or II.
Beyond the vagueness at the heart of the term “substantially similar,” a key issue is the language in between each section. There’s an “or” in between the second and third sections on effect and representation, but there’s nothing in between the first and second sections on structure and effect. A draft version of the 1986 law had an “and” in between those first two sections, which would have clearly meant that, to qualify as an analogue, at least a substantially similar chemical structure was required.
It’s unclear why the “and” didn’t make it into the final version of the Analogue Act. But its omission has prompted an outlier legal argument that prosecutors only have to prove one of the three prongs: structure, effect or representation of effect. The consequences of that reading are extreme, because if only representation is required (regardless of what the substance actually is or does), then people can serve decades in prison for selling something that isn’t similar to a scheduled drug at all.
What an appeals court called an “absurd” example of that phenomenon arose in a prosecution against people who sold a mixture of candle wax and flour under the pretense that it was crack/cocaine. “The treatment of candle wax and flour, no matter how it is marketed, as a schedule I controlled substance is an ‘absurd’ result of the kind our canons of construction instruct us to avoid,” the Philadelphia-based court said in a 2003 case, reversing a district court that ruled otherwise.
Yet the concern over that absurdity was not relegated to history. Just a few years ago, a San Francisco-based appeals court suggested that the act could still be used to achieve such an outlandish outcome. Even the government wasn’t pressing for that aggressive interpretation, so the court didn’t feel bound to embrace it in that case.
But if the Analogue Act stays on the books as is, courts could keep reaching “absurd” results in future cases.
‘Open question’
Cohen’s proposed legislation would prevent that absurdity by adding the “and.” Had it been there at the time of the wax-and-flour case, the district court would have had to side with the defense, because even if the mixture was marketed as crack, its chemical structure was not substantially similar to crack by any reasonable measure.

To be sure, the new bill’s analogue amendment wouldn’t solve the due process problem inherent in the “substantially similar” test; that could probably only be done by overturning the act entirely. Still, the bill would bring a dose of logic that has been missing for four decades.
Whether that modest measure has the votes to become law with today’s Congress and White House is, as Gorsuch put it in 2015, an “open question.” But even if this bill doesn’t pass, it’s an important question to keep asking.
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