In the 19th century, public concern focused on opium and morphine. Little was known about addiction or the potential for abuse of these substances. Concern over the addictive potential of opiates and over physicians' eagerness to prescribe them mounted in the 1870's and 1880's. Addicts were viewed generally as victims and received little criticism initially, although racist attitudes toward blacks and Chinese became intertwined with concern about drug use. The public's association of cocaine and nonmedical opiate use with blacks, Chinese, and criminals provided an easy justification for expanded controls. Concerns culminated in the passage in 1914 of the Harrison Act, followed by a brief effort to provide treatment through the establishment of clinics around the country. Fading optimism regarding the clinic approach led to a period from 1922 to 1961 in which the primary characterization of addicts was one of antisocial or even psychopathic persons who chose addiction. The Federal Government became committed to an enforcement approach in this period. By the early 1960's, prohibitive controls had become as much a cause for concern as were the addicts they were to control. A transition period was beginning that would see the incorporation once again of medical intervention but not the elimination of enforcement activities. An uneasy alliance of medical and legal personnel was created. Nevertheless, addicts were to remain criminal victims and the center of a legal-medical controversy that has never been resolved. It is concluded that total elimination of nonmedical drug usage is not a realistic goal, particularly when society has begun to realize the potential hazards of the drugs it still chooses to allow. The best solution may be a more tolerant approach, such as one in which some substances are controlled as alcohol is now, while others are controlled by prescription. Seventy-five references are listed.