Opinion on the prevention of drug abuse

(95/C 102/08)

On 25 January 1994, the Economic and Social Committee, acting under the third paragraph of Rule 23 of its Rules of Procedure, decided to draw up an Opinion on the prevention of drug abuse.

The Section for Social, Family, Educational and Cultural Affairs, which was responsible for preparing the Committee's work on the subject, adopted its Opinion on 8 December 1994. The Rapporteur was Mrs Guillaume.

At its 322nd Plenary Session (meeting of 25 January 1995), the Economic and Social Committee adopted the following Opinion by a majority vote in favour and 2 votes against, with 16 abstentions.

1. General comments

1.1. The spread of drugs and drug-related phenomena is an increasing cause for concern.

The number of drug addicts is rising inexorably. Official figures (which are thought to underestimate the problem) put the figure for the EU as a whole at between 1,5 and 2 million people. The number of first-time users is also rising, and most of them are of course young (and, to an increasing extent, very young). Three and a half million of Europe's under-18s (and 500 000 under-16s) have been offered drugs. Drugs-related AIDS cases are also on the increase. Over half of AIDS sufferers are drug addicts. Drug addiction is also a growing problem in prisons; official estimates put the percentage of drug addicts among the prison population at over 30 %.

1.2. Despite all the efforts of European governments, including policies to combat the illegal production, sale and supply of all drugs, and the commitment of massive resources, these policies have not had the desired effect. The problem of drug misuse is a large and growing menace to our society. Due to the covert nature of drug misuse, research into this problem and its extent is difficult, and is illustrated by the absence of reliable statistics. A clear picture is further complicated by variations in national definition and attitudes.

1.2.1. Despite significant seizures of all illicit drugs and despite some success in investigation and addict treatment, there is an increasing supply of illicit drugs available on the streets of Europe.

The devastating effects of the links between drugs and crime are also increasingly clear, in terms both of petty crimes committed by addicts seeking money to buy drugs, and of the close connection between drug trafficking and other forms of organized crime. And society is increasingly undermined as a result.

1.2.2. The main thrust of governmental policies has been focused on the illegal supply side of the drug market. However, it is now recognized that enforcement and supply side measures alone will not solve the problem of drug misuse.

1.2.3. The drug problem is multifaceted, affecting all socio-economic groups. By balancing resources it should be possible to divert addicts into treatment, to reduce the spread of health related problems due to injecting, to remove the incentives of the trafficker and to reduce the level of acquisitive crime. In the context of a risk- and damage-reduction strategy designed to alter user habits and ward off greater risks, thought should be given to the development of schemes involving the controlled administration of hard drugs under the supervision of a regulated medical treatment programme. A coordinated and comprehensive policy which addresses both demand and supply is now recognized as being urgently needed.

1.3. The growing awareness that the misuse of illicit drugs in Europe, especially by the young, has highlighted an increasingly serious social problem. The cost to the individual and society is high, affecting health, environment, social and moral well-being, as well as the increasing burden of drug related crime. The alleviation of these costs is a common challenge to European society requiring coordinated preventive action at both Community and Member State level.

1.4. The debate which is dynamic and evolving is complex, and is complicated by the variety of divergent views. The range of perceived solutions include cultural, educational, socio-psychological, sociological, socio-criminal and medical or legislative proposals. While a flexible approach is essential, the present overwhelming view of the international community is against relaxing control on drugs, a view strongly endorsed by the UN Commission on Narcotic Drugs.

1.5. EC/EU action so far in combating the drug problem in terms of both coordinated enforcement and monitoring policies () has included:

- the creation in 1989 of the European Committee to combat drugs - CELAD - bringing together National Drug Coordinators from each Member State and the Commission;

- EC ratification of the 1988 UN Convention against Illicit Traffic in Narcotic Drugs and Substances;

- the EC Directive on money laundering;

- the Regulation establishing a European Monitoring Centre for Drugs and Drug Addiction ();

- a variety of activities which received Commission support in the field of drug prevention, including a number of pilot programmes;

- the EC North-South cooperation programme supporting alternative development projects and trade preferences in areas of illicit opium, coca and cannabis cultivation;

- EU cooperation with Eastern European (transit) countries on international drug movements.

1.6. While supportive of enforcement policies coordinating the pursuit of those engaged in the production, trafficking and supply of illicit drugs, the Committee considers that equal emphasis should be given to the promotion of 'demand reduction' policies. These should include

- adequately resourced treatment, rehabilitation and education programmes targeted towards those who might be inclined to consume illicit drugs;

- education and preventive programmes towards those groups who are vulnerable to the risk of illicit drug consumption.

1.6.1. Given that the use and abuse of narcotic substances constitutes a serious threat to the youth of Europe, and particularly the secondary school age group, the ESC thinks desirable for long-term demand reduction and prevention policies to be applied within the educational system. It is possible, while respecting the educational policy of each Member State, for there to be a pan-European effort to revive the schools of Europe, which can be the main factor in drug abuse prevention policy. Teacher training programmes are required which would link the schools of Europe and the process of learning with love for knowledge, human beings and life itself.

1.7. Some progress has been made towards coordinating both supply and demand reduction strategies:

- in June 1990, the European Council invited the Commission to present, on a regular basis to the Council and Ministers for Health, a report on drug demand reduction in Member States;

- in November 1990, the Commission transmitted a first report, including the following conclusions by Member States:

'...The approaches to drug demand reduction are continually and often rapidly developing in Member States; furthermore, a large variety of approaches are being explored. Member States consider it important to introduce and improve evaluation programmes. They emphasize the importance of a broader framework of preventive measures in which cultural, health and social problems are addressed and the need for a comprehensive approach to drug abuse problems, covering a range of environments...';

- in December 1990, the European Council adopted the European Plan to Combat Drugs, updated at Edinburgh in 1992;

- from 1991, the European Community has participated in the Council of Europe's 'Pompidou Group' drug control strategy;

- in 1992 the Commission published its second report on drug demand reduction ();

- in November 1993, the Commission identified drug dependence as a priority area for Community public health action within the new opportunities under Article 129 of the Treaty on European Union ();

- in June 1994, the Commission adopted a Communication and action plan on prevention of drug addiction (COM(94) 223 final);

- Title VI, Article K.1 (4) of the Treaty on European Union, which envisages 'cooperation in the fields of justice and home affairs' for 'combating drug addiction', which also opened up new possibilities on the initiatives of either the Commission or Member States;

- in June 1994 the Commission adopted its (1995-1999) 'action plan to combat drugs' ().

1.7.1. This global action plan is a timely and welcome communication, seeking to take full advantage of the possibilities opened up by the Treaty on European Union. As well as coordination within and between Member States, three main European-wide 'actions' are set out:

- Demand reduction;

- Illicit trafficking;

- Action at international level - Common foreign and security policy.

1.8. In the context of demand reduction, preventative measures are envisaged to promote the rehabilitation of addicts socially and economically with specific measures for high risk groups. There is urgent need to encourage the cooperation of all involved agencies - medical, social and enforcement. The Committee also recognizes that environmental, socio-economic and cultural factors all play a crucial role in the fight against drugs.

1.8.1. Despite the fact that the importance of the cultural factor for effectively combating drug abuse has been repeatedly stressed, it has not so far been possible for practical proposals for cultural action to be formulated. This serious lacuna must be rapidly filled.

1.9. The European Council at Corfu of 24/25 June 1994 () noted 'with satisfaction the progress made in implementing its priority action plan drawn up in Brussels in December 1993, including the submission by the Commission of a new drugs plan which proposes an important new framework for the prevention of drug dependency, the reduction of drug trafficking and action on the international level'. This work was accelerated at the Essen European Council with agreement on concrete measures to be taken in all areas covered by the action plan (Europol, global strategy on combating drugs, common list for visas, judicial cooperation, asylum, coordination with the common foreign and security policy).

1.10. While the scale of the problem demands a European-wide prevention policy, there is also a need to change attitudes. Hence the European Union, like all leading nations, must devote the utmost priority to curbing a situation which is approaching emergency proportions and which, by undermining the economic, social, cultural and judicial foundations of our society, represents a growing danger. This is not just a matter of more vigorous Government action. A careful analysis is also needed of whether existing strategies need to be changed, and if so, in what ways. As in any battle, a precondition for success in the fight against drugs is not the rigour of tactics and strategy, but the ability to adjust these to circumstances and experience.

1.10.1. As the inadequacy of a strategy centred on punitive measures has become increasingly clear, the last few years have seen a slight relaxation - in both regulatory and, above all, practical terms - in the severity of the punishments imposed on drug addicts. For the same reason, several countries have begun to introduce schemes to reduce the damages and risks of drug use.

1.10.2. Debates on drugs are always particularly heated, and positions are particularly entrenched. Many people do not seem to realize that this is an area in which there are few certainties, and that the exceptional gravity of the problem makes it all the more necessary to eschew hackneyed truisms and preconceptions. Despite countless studies and research projects, the drugs field remains a grey area. There are various reasons for this, but the main one is that the illicit nature of drug use makes it very difficult to obtain reliable statistics. Also, important aspects of the problem are constantly changing.

1.10.3. This is a further reason for making a detailed, systematic, regular check on strategies, and for taking measures on a strictly pragmatic basis.

1.10.4. No Member State should have to run the risk of being considered as a drug haven because of innovative action. No single region, city, local community or local school should have to worry about its reputation because it wishes to promote a pro-active drug abuse prevention policy. A coordinated preventive approach would help bring the problem out into the open, help citizens in each community to recognize their individual and collective responsibilities. An open, coordinated approach would help European society as a whole acknowledge and understand the reasons why people, especially young people, turn to drugs. It would facilitate an honest, factual and informative prevention policy which potential drug users and vulnerable target groups could identify with.

2. Specific comments

2.1.

The need for a coordinated strategy

The Committee applauds the considerable efforts being made throughout Europe in terms of awareness campaigns, harm reduction activities, treatment and rehabilitation services. It is apparent, however, that many of these efforts are being made in isolation of one another, without a comprehensive and systematic policy strategy, and often on a piecemeal and spontaneous basis:

- awareness campaigns, for example, tend to be national, mass-media campaigns with no systematic follow-through at local level in terms of structures and monitoring and with no proper evaluation of their effectiveness;

- information packs for primary schools do not appear to be linked with specific parental and support group schemes, such as 'help lines';

- coordination between public authorities, medical bodies and NGOs seem to be largely unstructured;

- workplace programmes are under used; greater attention must be focused on social and vocational rehabilitation, including trial use of new instruments to assist social sectors at a disadvantage on the employment market;

- police drug prevention units appear to be under-resourced and uncoordinated;

- central government and local government coordination on drug abuse prevention is often limited to specialized services and would benefit from an overall social strategy.

2.1.1. Any social awareness or sensitization campaigns, said to be the key factor in combating the use and abuse of drugs, must not end up as indirect negative promotion and advertising of narcotics. Many campaigns end up as publicity for the 'forbidden fruit', with all the attendant negative consequences. It is essential to define, at all the necessary levels (European, national and local), the substantial difference between raising social awareness, information, and the indirect promotion or negative advertising of drugs.

2.2.

Coordination groups

The Committee considers that the European Union needs a much clearer policy which would bring it closer to the many citizens and agencies attempting to prevent drug abuse. While respecting subsidiarity, it would urge Member States to promote comparable coordination groups to help tackle this common and urgent problem.

2.2.1. An effort is needed to ensure cost-effective use of the funds allocated to tackling the problem of drugs. Rather than create new pan-European mechanisms involving anti-narcotic professions, the ESC proposes coordinating the work of existing bodies which have pan-European networks.

2.2.2. At local and regional levels, integrated networks need to be established, based on coordination groups involving:

- local and municipal authorities;

- staff adequately trained in drug abuse prevention (social workers, teachers, youth leaders, etc.);

- medical and paramedical staff involved in treatment and rehabilitation centres;

- police officers from adequately resourced drug abuse prevention units addressing demand reduction;

- teachers and head-teachers who must be helped to feel responsible not just through the dissemination of education packs and occasional seminars, but through proper training and support from governing authorities and parents, aware that they are in the front line where children are being targeted;

- employers, employment agencies and all those active in job promotion and training;

- parents who must be alerted by local and school authorities of drug problems at school and of their role in helping to spot and combat it;

- family associations, community support groups and voluntary agencies and other specialized non-governmental bodies e.g. therapeutic communities and operators of non-residential schemes which are potentially or already active in drug abuse prevention;

- local press, television and radio networks which should be systematically involved in on-going awareness campaigns;

- coordination of health services, local authorities, employment agencies, the social partners and voluntary associations to monitor the phenomenon and affect social and vocational rehabilitation.

2.2.3. At national level, governments might consider setting up coordination centres responsible for overviewing local and regional coordination groups, providing specific support where necessary and ensuring cross-referencing and a structured response to drug abuse. In particular, these centres could:

- help coordinate awareness campaigns;

- promote nation-wide networking;

- monitor and assess innovative projects (methadone dispensing centres, referral schemes, needle exchange programmes and medically regulated mobile drug teams and psychological support centres).

2.2.3.1. The Committee agrees with the Commission on the useful role which the promotion of positive role models can play in drug prevention. The all-pervasive media promotion of lifestyles founded on the achievement of success by any means and over-consumption is one of the main factors which makes people - and young people in particular - psychologically receptive to drug use as a means of diversion.

2.2.3.2. While the Committee realizes how difficult it is to counter this type of message, it would stress the need to develop policies that put greater emphasis on the affirmation of individuality. This will mean action at a number of levels, ranging from appropriate guidance at school to systematic, hard-hitting public campaigns (including intelligent use of advertising) to promote alternative values, behaviour patterns, needs and lifestyles.

2.2.3.3. National and European bodies responsible for research, collation and dissemination of information, and assessment of programmes must operate as support mechanisms for the activity of the social agencies. Coordination groups at national level must on the one hand coordinate the work of the social agencies and on the other expedite the collation and dissemination of information from European Union to Member State level.

2.2.4. At European level, the following actions could be envisaged:

- national drug coordinators group to be supplemented by a multi-disciplinary team representing all 'three pillars' of the European Union;

- the setting up of an EU Standing Committee on Drug Abuse Prevention, composed of professional advisors (to include representatives of health, education, police and academic interests) to the Social Affairs Commissioner as regards all aspects of drug misuse in Europe and best preventive practice;

- the active implementation of Article 129 encouraging 'cooperation' and 'coordination' between the Member States on public health matters 'including drug dependence' and supporting the Commission's right of initiative in this area;

- the extension by 1996 of 'cooperation' and 'coordination', as well as the Commission's right of initiative, in the field of social policy in order to prevent and combat drug abuse and addiction;

- support for efforts by the Commission to take a more pro-active role under the Treaty on European Union in order, at European level, to promote, publish and circulate best practice educational material and support for statutory and voluntary agencies in the field;

- the organization of more Drugs Prevention Weeks in conjunction with a major European seminar with the view to establishing a Commission fund in order to consider grants for initiatives on a permanent basis;

- EC-sponsored training and education initiatives in drug abuse prevention (teacher training, training and involvement of police, training programmes and job-profiles for drug prevention professions and coordinators);

- the rapid implementation of the specific Commission action plan proposals for the training and exchanges of professionals, supplementing and updating current training programmes and facilitating training measures selected for their potential multiplier effect;

- EU awareness campaigns and networking based on transnational partnerships, building on the interdisciplinary exchanges and the European Forum for exchanges and multi-city cooperation proposed in the Commission action plan;

- the promotion of a selection of EC-funded transnational pilot projects in target areas, helping to establish a pan-European coordination network (as set out in point 2.1 above), aiming to identify and compare best practices in medical and psychological treatment, primary prevention and harm reduction, and involving exchanges between the active participants in each group.

2.3. There is now general recognition that the problem of illicit drug abuse and dependency is common to all Member States. It requires a dynamic European prevention policy framework, backed up by the concrete measures envisaged by the European Council. The new Treaty provisions permit a coordinated and comprehensive policy approach, necessary to reduce both supply and demand. The Committee welcomes this approach and urges the Commission to continue in its efforts to help initiate Community proposals and to lend support to actions by the Member States.

Done at Brussels, 25 January 1995.

The Chairman

of the Economic and Social Committee

Carlos FERRER

() See address by Commissioner Flynn to the United Nations General Assembly Special Session on Drugs, New York, 26. 10. 1993.

() Council Regulation (EEC) No 302/93, 8. 2. 1993; OJ No L 36, 12. 2. 1993; ESC Opinion OJ No C 223, 31. 8. 1992.

() SEC(92) 75 final.

() COM(93) 559 final, OJ No C 388, 31. 12. 1994.

() COM(94) 234 final.

() Presidency Conclusions SN 150/94 point III, 2.

APPENDIX I to the Opinion of the Economic and Social Committee

The following amendment, which received at least one quarter of the votes cast, was defeated during the discussion:

Paragraph 1.9

Replace the first sentence ('While the scale ... change attitudes') by the following:

'As the fight against drugs has been signally unsuccessful, it might be useful to rethink existing policies and consider the case for alternative regulatory systems calculated to bring the drugs phenomenon under control and minimize the health damage to addicts, as well as the economic and societal costs and political risks. In particular, thought should be given to the pros and cons of gradually separating the soft and hard drugs markets. The Committee emphasizes the need for a European-wide prevention policy, which must be accompanied by a change in attitude.'

(Rest of 1.9 unchanged - continues with 'No Member State ...').

Voting

For: 24, Against: 51, Abstentions: 14.