Communication from the Commission to the Council and the European Parliament on the implementation of the EU Action Plan on Drugs (2000-2004)
Date: 2001-06-08
Institutions: European Commission
Subjects: EU aid, action programme, drug addiction, drug traffic, exchange of information, fight against crime, international cooperation, narcotic

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 08.06.2001
COM(2001) 301 final

COMMUNICATION FROM THE COMMISSION
TO THE COUNCIL AND THE EUROPEAN PARLIAMENT

on the implementation of the EU Action Plan on Drugs (2000-2004)

1.

INTRODUCTION

Tackling drugs is a top priority of the European Union in view of the continued high levels of
drug misuse and trafficking and the damage caused to our societies through drug related
crime, health problems and social exclusion. EU citizens also believe that tackling drugs
should be a top priority for the EU.

Significant progress has been made recently with the endorsement of the EU Drug Strategy
2000-2004 at the Helsinki European Council. The Feira European Council translated the EU
Drug Strategy into a detailed EU Action Plan on Drugs (2000-2004) which sets out clearly the
actions to be taken over the next five years by the EU institutions and the Member States. The
measures cover both demand and supply reduction, and emphasise the need for international
cooperation and effective information, evaluation and coordination at all levels. The aims of
the Strategy and the Action Plan are:

- to provide a guide to all actors in the EU when setting their priorities in the area of drugs
over the next five years;

- to ensure that the issue of drugs receives the necessary high level support, despite its
complicated and fragmented nature; and

- to provide a solid base for the evaluations, to be carried out at mid-term (2002) and on
completion by the Commission, of the anti-drugs activity of the EU over this five year period.

The Strategy sets out eleven general aims and six main targets for the EU in this period1, and
examines some of the issues involved. The Action Plan translates the aims and targets set in
the Strategy into roughly one hundred concrete activities that should be implemented over the
period concerned in order to ensure the implementation of the Strategy.

The objective of the Communication, which is based on contributions from the Commission,
the European Monitoring Centre for Drugs and Drug Addiction (EMCDDA) and EUROPOL,
is to ensure that the European Union will be able to meet the ambitious challenges in the
Action Plan on Drugs within the timeframe. In particular the Communication:

1

The eleven general aims of the Strategy are to: (a) ensure that drugs remains a top priority for the EU;
(b) ensure that actions are evaluated; (c) continue the balanced approach to drugs; (d) give greater
priority to drug prevention, demand reduction and the reduction of the adverse consequences of drug
use; (e) reinforce the fight against drug trafficking and to step up police cooperation between Member
States; (f) encourage multi-agency cooperation and the involvement of civil society; (g) use to the full
the possibilities offered by the Amsterdam Treaty, particularly Article 31 e) on minimum rules on drug
trafficking; (h) ensure collection and dissemination of reliable and comparable data on drugs in the EU;
(i) progressively integrate the applicant countries and to intensify international cooperation; (j) promote
international cooperation, based on the UNGASS principles; and (k) emphasise that implementation of
the strategy will require appropriate resources.
The six main targets are to: (a) reduce significantly over five years the prevalence of illicit drug use;
(b) reduce substantially the incidence of drug-related health damage; (c) to increase substantially the
number of successfully treated addicts; (d) to reduce substantially the availability of illicit drugs; (e) to
reduce substantially the number of drug related crimes, and (f) to reduce substantially money laundering
and the illicit trafficking in precursors.

2

(i) proposes a tool in the form of a Follow-up Table for the review of progress in the
implementation of the Action Plan;

(ii) outlines the method by which the Commission intends to carry out the evaluations of the
Drugs Strategy and Action Plan;

(iii) outlines how the Commission intends to ensure that the applicant countries deal as
effectively as possible with the problem of drugs and proposes that the Commission should
maintain a database of all EU activities, funded by the Commission or Member States in
applicant countries;

(iv) suggests that the EU should examine how best to reinforce the exchange of information
on projects in non-applicant countries. This information should form the basis for the annual
discussions on drugs-related international cooperation; and

(v) examines ways of improving coordination at EU level.

2.

REVIEW OF PROGRESS IN THE IMPLEMENTATION OF THE EU-ACTION PLAN ON
DRUGS

The EU Action Plan on Drugs stresses the need for a global, multidisciplinary and integrated
response based on the following four key elements: (i) demand reduction, (ii) supply
reduction and the fight against
international cooperation and
(iv) coordination at national and Union level.

trafficking,

illicit

(iii)

The Commission has drawn up a Follow-up Table (see Annex 1) in order to monitor whether
the activities foreseen in the Action Plan are executed within the deadlines and to keep
progress under review. The EMCDDA and EUROPOL have jointly contributed to this. For
each activity in the Action Plan which requires action by the Commission, the EMCDDA or
EUROPOL, the Follow-up Table records the state of play, the timeframe for action and the
priority accorded to it.

In the Commission´s view the Follow-up Table should be pursued in partnership with all
actors concerned in order to enable monitoring of every action foreseen in the Action Plan.
The Commission therefore encourages the other actors involved in the implementation of the
Action Plan, in particular the Member States, to undertake a similar exercise. Once all the
Follow-up Tables have been produced the Commission will consider how best to draw them
together. The Commission favours presenting a single Follow-up Table based on the
contributions from the Member States which would:

- provide a flexible instrument for the recording and evaluation of progress in implementation
of the EU Action Plan;

- contribute to a better allocation of human and financial resources for an effective
implementation of the Action Plan; and

- help all the actors prepare for the mid term and final evaluations.

3

3.

EVALUATION OF THE EU STRATEGY ON DRUGS

The Drugs Strategy and the Action Plan call on the Commission to organise an evaluation of
the overall drug strategy and its impact. The EU Action Plan on Drugs identifies three stages
to the evaluation:

- Stage 1: assessment of the level of achievement of the activities identified in the Action
Plan;

- Stage 2: assessment of the extent to which achievement of the Action Plan met
objectives of the Drug Strategy; and

the

- Stage 3: assessment of the impact on the drugs situation, particularly in terms of the six main
targets identified in the Strategy, of the actions undertaken under the Action Plan and the
Strategy.

For the first stage, the adoption of common evaluation techniques and Follow-up Tables by
all involved will allow the Commission to assess the progress made in achieving the actions
identified in the Action Plan. The EMCDDA is developing common methodological tools for
monitoring anti-drugs activities. It would be very helpful if all the actors involved used these
EMCDDA tools when evaluating their anti-drugs activities, and when completing their
Follow-Up Tables. This would ensure that the results from different actors within the EU
were comparable. The Follow-Up Tables should be updated at regular intervals and in
particular at mid-term and on completion of the Action Plan.

The second stage will require the Commission to compare the achievement of the actions in
the Action Plan to the objectives of the Drug Strategy. This will allow an assessment of the
extent to which the objectives of the Drugs Strategy have been met.

The third stage will assess the impact of the actions taken on the drugs situation, and in
particular on the main targets identified in the Strategy. In order to consider whether these
targets have been met the Commission will need to have information on drug demand and
supply trends. This should be provided by the EMCDDA and EUROPOL.

The information on which the EMCDDA and its partners will concentrate their work over the
next three years, in particular regarding the first three targets, is summarised in annex 2.
Together the EMCDDA and EUROPOL launched, in line with point 2.2.2 of the Action Plan,
two “impact evaluation criteria” working groups to identify, drawing on the expertise of
Member States, criteria and techniques which could contribute to the final impact evaluation,
and to ensure consistency between the evaluation efforts of the EMCDDA and EUROPOL.
EUROPOL is working on drug-related crime statistics. The EMCDDA focussed its Work
Programme 2001-2003 on monitoring changes in the drug situation through the establishment
of a set of epidemiological indicators and relevant core data. In order to facilitate comparison
at EU level the EMCDDA has already produced guidelines for the implementation in the

4

Member States of the five key epidemiological indicators2 which will be adopted by its
Management Board in September 2001. The implementation of the key indicators will
require strong commitment from the Member States, and should take place as quickly as
possible.

The Commission will try to take into account the views of other parties in this stage, but will
of course assume the ultimate responsibility for the content of the evaluation. The objective
will be to try to assess the impact of the implementation of the Drugs Strategy and the Action
Plan on the drugs situation. On the basis of this assessment the Commission will consider
whether to propose any modifications to future policy on drugs.

Finally, the Commission would like to inform its partners that, given the existing lack of
reliable and comparable information on the epidemiological and criminal aspects of the drug
problem in the EU, it intends to limit the evaluation at mid-term (ie in 2002) to the first stage
identified above. EUROPOL and the EMCDDA should be in a position to provide this
information by the end of the period of application of the Strategy and Action Plan, and so all
three stages outlined above will be implemented in 2004.

4.

ENLARGEMENT

The Commission considers stepping up of the fight against drugs in the applicant countries as
a priority.

The Pre-accession Pact on Organised Crime, which noted the importance of information and
operational co-operation, committed the EU and applicant countries (CEECs and Cyprus -
the Pact should be extended to Malta and Turkey) to develop each year a common annual
strategy with the assistance of Europol, in order to identify the most significant threats related
to organised crime, including drugs crime.

The support to the applicant countries includes the integration of the ‘acquis communautaire’,
the development of action plans and participation in the activities of the EMCDDA. Special
attention will be given to co-operation with Turkey.

The EU Drugs strategy 2000-2004 put emphasis on the fight against drug abuse and
trafficking in the applicant countries. The two main aims of the EU are to enable applicant
countries to implement the drugs acquis, and to bring the EU and applicant countries into
closer drugs cooperation. The Commission completely shares this approach.

The joint EU/applicant countries action plan on drugs should cover the full range of demand
and supply issues and should facilitate work with each applicant country in order to monitor
and evaluate
for
anti-drugs programmes. The Commission underlines
complementarity between the action plan and the accession negotiations.

the need

2

The key indicators are:
- the extent and pattern of drug use in the general population;
- the prevalence of problem drug use;
- the demand for treatment by drug users;
- the number of drug-related deaths and the mortality of drug users; and
- the rates of drug-related infectious diseases (HIV, hepatitis).

5

The Council adopted in March 2001 a decision allowing the Commission to negotiate the
participation of the applicant countries in the REITOX network of the EMCDDA. The
Commission considers the participation of the applicant countries in the EMCDDA a very
important step in the integration of the drugs acquis and negotiations on this issue will be
launched in mid-2001.

€

€

In total,
53 million have been committed under PHARE since 1992 in the area of drugs. At
the end of 1999, the European Commission decided to integrate drug control into the PHARE
National Programmes. Within this framework the Commission decided to provide a specific
allocation of
1 million to each applicant country, with the aim of developing a specific drugs
component. The main issues addressed in the 2000 PHARE national drugs projects are the
institutionalisation of the national drugs information focal points in view of the future
the EMCDDA and the
participation of
strengthening of national drugs strategies and inter-ministerial coordination. Most projects are
carried out as twinning projects.

the applicant countries in the activities of

€

A budget of
2 million has been allocated from the 1998 Phare Multi-beneficiary Drugs
Programme to a joint EMCDDA/CEEC project to allow the EMCDDA to assist directly the
applicant countries in preparation of their participation in the tasks of the Centre.

€

Furthermore, the Commission decided to set aside
10 million to implement the 2000 Phare
Multi-beneficary Drugs Programme which is aimed at strengthening the capacities for and
increasing the effectiveness of regional co-operation in the supply reduction area between the
applicant countries and the EU Member States, notably for the fight against synthetic drugs,
strengthening law enforcement cooperation and money laundering. The Commission will also
look for financing for anti-drugs cooperation with the applicant countries not covered by the
PHARE programme (Malta, Cyprus and Turkey). The Commission intends in particular to
strengthen its cooperation with Turkey, and intends to begin soon negotiations on an
agreement between the EU and Turkey to help prevent the diversion of chemical precursors.

In order to avoid duplication and lacunae in drugs assistance to the applicant countries, the
Commission proposes to establish a database of all assistance projects financed by the
Member States or the Commission in the applicant countries, on the basis of information
provided by the Member States on a regular basis.

5.

EXTERNAL ACTION

The Commission regards international co-operation as a key element in the fight against
drugs.
In this area, the Commission will give particular importance to the main trafficking
routes supplying the EU.

€

The Commission currently has drugs-related projects in 100 countries with a total value of
more than
100 million. The projects cover a wide range of activities, including prevention,
treatment, social and professional reinsertion for drug users, epidemiology, alternative
development, controls on chemical precursors, customs and police co-operation, institutional
support for the development of national policies, money laundering, and drafting new
legislation.

6

As indicated in the Action Plan, the Commission will concentrate its efforts on production
and transit countries, and in particular on the two main trafficking routes to the EU: the heroin
route from Afghanistan to the EU via Central Asia, Iran, Caucasus, Turkey, Eastern Europe
and the Balkans; and the cocaine route from Latin America via the Caribbean. As foreseen in
the reform of the external aid, the allocation of resources for drugs-related activities will be
included in the multi-annual programmes. This programming will take into account the need
for a global approach for each trafficking route.

Focusing on the two main trafficking routes in this way will give the Commission a coherent
approach and will allow it to concentrate its efforts in the field of supply reduction on the
main routes supplying more than 80 percent of the illicit drugs in Europe.

€

€

On the cocaine route,
€

20 million for the Barbados Plan and

105 million for this purpose. Out of this amount,

the Commission has already launched important programmes:
60 million for alternative development projects in
Peru and Bolivia. The emphasis on alternative development which involves comprehensive
efforts to facilitate modes of livelihood that are alternative to drug production and trafficking,
makes EU external activity on drugs distinct from those of other partners. As far as Colombia
is concerned, the Commission intends to be a key actor in the support for the peace-process,
and pledged, within the framework of a comprehensive EU aid package, an amount of
€
30 million will be devoted to the support
for alternative development programmes. On a regional basis,
the Commission is also
supporting several initiatives for the benefit of the Andean countries, in the fields of money
laundering, precursor control and harmonisation of legislation. In the last years, nine Latin
American countries received a Commission support for prevention projects for about
€
2 million The latest Community initiative was to assist the Venezuela Government in order
to create a National Monitoring Centre on drugs (
2 million). In addition, one may recall that
to support to their efforts in combating drugs, the Andean and Central American countries
receive special treatment within the framework of the Generalised System of Preferences
(Drugs GSP). Together with the MFN clause, this treatment ensures up to 80% of the Andean
exports duty-free access to the EU market. The EU, the US and the UNDCP co-operate
closely in the implementation of the Barbados Plan of Action which addresses the issue of
drugs in the Caribbean.

€

On the heroin route a series of actions have already started in Central Asia and the Caucasus,
Eastern Europe and Turkey, aiming at achieving a “filter system” between Afghanistan and
Western Europe. They will be developed through additional programmes addressing both
supply reduction and demand reduction. The EU Action Plan on Drugs for Central Asia
should be signed in the near future and will provide a framework for the drugs-related
activities for the whole EU in this region. The EU is also aware of the problems posed to
India by the close proximity to Afghanistan and Myanmar, the two biggest producers of illicit
heroin, Afghanistan and Myanmar, and of the need for further co-operation. Furthermore, the
drugs issue is also discussed within the partnership and co-operation dialogue with Russia,
Ukraine and Moldova, notably in the context of justice and home affairs developments. The
Common Strategies on the Russian Federation and Ukraine as well as the European Union
Action Plan on a Common Action for the Russian Federation on Combating Organised Crime
stress, inter alia, the common interest in promoting co-operation in the fight against drug
trafficking. Currently, the development of a European Union Action Plan on Justice and
Home Affairs for Ukraine is under consideration. Recently, several activities to support the
efforts of Belarus, Moldova and Ukraine to deal with the drugs challenge have been identified
and are in the pipeline for implementation. In Iran, projects are being prepared in partnership
with UNDCP to support the important Iranian efforts in the fight against drug abuse and drug
trafficking. Cooperation with Turkey will take place in the framework of enlargement. In the

7

Balkans, the implementation of the CARDS programme in Justice and Home Affairs matters
will consider drugs, and in particular drug smuggling, as a key priority that will be addressed
first by enhancing the overall crime fighting capacity (legal, investigative, judicial in each
country and regional co-operation) and second by giving specialized training on drugs
including supporting a drug-related regional intelligence network."

As regards the Mediterranean area, one should mention the cannabis route which principally
links Morocco as the main producing country and cannabis exporter, and the EU where
cannabis remains the most widely available and most commonly used drug.

In the field of money laundering, the Commission supports with the US and UK in the
€
framework of the Barbados Plan of Action a
8 million programme in the Caribbean. It has
also recently launched a programme for South East Asia. Finally, preparatory work on a new
programme for Ukraine, Russia, Belarus, Moldova and Kazakhstan is well advanced.

The political dialogue that the EU maintains with many regional and sub-regional groups
(including Latin America, the Caribbean, the Mediterranean and various Asian partners)
illustrates the firm willingness of the EU to put forth its views on drugs. Particularly
important in this regard are the specialised dialogue on drugs with the Andean countries and
the coordination and cooperation mechanism on drugs between the EU, Latin America and
the Caribbean.

The Commission will continue to mobilise EU expertise to reinforce the European identity of
the EU’s external drug-related action and to support the development of relations between
third countries and the EU.

The Commission is one of the major donors of UNDCP and will continue to cooperate with
all competent UN agencies in the field of drugs, as well as with other donors. A new area of
cooperation with the US concerns synthetic drugs.

Regarding the monitoring of drug addiction, the Commission will regard as a specific priority
the development of indicators and methodologies appropriate to less developed countries.

The implementation of the drug action plan may lead to a better coordination of external
drugs-related activities undertaken by the Commission and the Member States, on the basis of
well-defined and agreed objectives and a clear division of responsibilities between all actors.

6.

STRENGTHENING COORDINATION

Good coordination between the EU institutions and all the actors involved is an essential
requirement in the fight against drugs, given the complicated and fragmented nature of the
drugs issue. Coordination has therefore been a key consideration for the EU since the
adoption of the second EU Action Plan on Drugs in 1995.

Point 1.1.7 of the latest Action Plan asks the Commission, with the assistance of the
EMCDDA, to report on existing coordination arrangements and possible improvements to
them.
In March 2001 the EMCDDA provided the Commission with its contribution to the
report on coordination arrangements within the Member States. The Commission intends to
bring forward its report, on the basis of the work of the EMCDDA, in the near future.

8

For financing drugs-related activities, the Commission does not have a centralised budget
line, but can draw on a large number of different budget lines. The Action Plan itself does not
create any new financial obligations. A summary of the budget lines and amounts available in
November 2000 is attached in annex 3, and the Commission intends to update this
information every year. Point 1.4.1 of the Action Plan calls on the Council and the
Commission to study, on the basis of the current efforts in this field of the EMCDDA and the
Pompidou Group, an approach to establish a list of all public expenditure on drugs. When the
EMCDDA and the Pompidou Group bring forward their recommendations on how to classify
its budgetary information to reflect the
expenditure, the Commisssion will try to adapt
recommendations. The Commission would encourage the Member States to examine this
issue and to share whatever information they can as soon as possible, and in any case in time
for the mid-term evaluation.

The Commission will contribute to the annual debate on all EU assistance drugs projects and
continue to provide appropriate information on its anti-drugs co- operation projects with third
countries and applicant countries.

However, there is a need for enhanced co-ordination of the external action between Member
States and the Commission. Special attention should be given to the co-ordination of the EU
action on the two main trafficking routes, which are fuelling the EU and the applicants
countries. Cooperation with multi-lateral or international organisations should also be subject
to a strengthened co-ordination.

Although the Commission and the Member States have to inform each other of all projects in
third countries, no modalities have been established. As a result, exchange of information
does not really function. The Commission will make proposals at the level of the Horizontal
Drugs Group of the Council for agreeing practical modalities.

7.

CONCLUSION

The Commission

•

•

•

•

encourages all the other actors in the EU Drugs Strategy and the Action Plan on Drugs for
the period 2000-2004, and in particular the Member States, to prepare and regularly
update Follow-up tables similar to the one prepared by the Commission, the EMCDDA
and EUROPOL;

asks the European Parliament and the Council to endorse the principle of a single Follow-
up table covering the whole range of activities mentioned in the Action Plan;

urges the European Parliament and the Council to consider the method by which the
Commission intends to carry out the evaluations of the Drugs Strategy and Action Plan,
and to comment on it;

asks the other actors involved, in particular the Member States, to provide as complete and
accurate information as possible on their implementation of the Strategy and Action Plan,
particularly at mid-term and on completion, so as to allow the Commission to conduct
thorough evaluations;

9

•

•

•

•

recommends that the Member States use the monitoring and evaluation criteria and
techniques prepared by the EMCDDA and its national partners when evaluating their
activities, so as to ensure that the results are comparable;

invites the Parliament and the Council to take note of and support its approach to drugs
and the enlargement of the EU;

requests the Member States to provide it with information on all their assistance projects
with the applicant countries, so that the Commission can maintain an accurate and up to
date matrix; and

suggests that the Parliament and the Council take note of coordination arrangements now
in place at EU level and that all EU institutions take appropriate initiatives to enhance the
current inter-institutional coordination.

10

IMPLEMENTATION OF THE EU ACTION PLAN ON DRUGS (2000-2004):

FOLLOW-UP TABLE FOR THE COMMISSION, THE EMCDDA AND EUROPOL

ANNEX 1

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

1. Co-ordination

1.1 To ensure that the issue of drugs is kept as a major
priority for EU internal and external action (Strategy aim 1)

1.1.1 The European Union institutions to ensure good inter-
institutional co-ordination and,
in particular, each in-coming
Presidency of the Council to forward its work programme in the
field of drugs to the Parliament, Economic and Social Committee
and Committee of Regions.

Continuous
process

Commission services intend
to implement the framework
signed in July
agreement
2000
the European
by
Parliament and Commission.
Active participation of the
Commission services to the
relevant working group of
the Council. Europol and the
EMCDDA co-operate on a
regular basis.

The Commission should play an active role in ensuring such an
inter-institutional coordination.
Europol and the EMCDDA co-operate on a regular basis:
-
-

Through annual co-ordination meetings at directorate level;
In the framework of the Joint Action on new synthetic
drugs;
Through the exchange of
production of synthetic drugs in general;
By making use, on a reciprocal basis, of
relevant
information that is available in either organisation, to be
included in bulletins, situations reports etc.
In developing a harmonised database on drug seizures in
the Member States.

information relating to the

-

-

-

a Co-operation

are underway to conclude

Discussions
Agreement between Europol and the EMCDDA.
Where appropriate, Europol and OLAF co-operate, for instance:
In developing a European Union Training Course for
-
trainers on the combating of
synthetic drug
laboratories.
In the framework of the global (UNINCB) monitoring
initiative on Acetic Anhydride.

illicit

-

1.1.2 When appropriate, and anyhow in 2002 (mid-term review)
and 2004 (final evaluation) the Presidency of the Council to
consider the possibility of organising a high level meeting of
those involved in implementation of present plan.

Europol contributes to the PHARE programme:

2002 and 2004

The Commission should appoint a representative for this high
level meeting.

11

Timeframe/
Priority

Twice a year

Comments

The Commission and the EMCDDA participated in these two
meetings. Europol was present at the meeting in Paris.

Continuous
process

The global and balanced approach to drugs should be taken into
account, where possible, in all external activities.

March 2001

The Commission and the EMCDDA will present the final result
of their study for the end of the year.

Action as agreed in the EU Action Plan

State of play

the Council

1.1.3 The Presidency of
to provide regular
opportunities in principle twice a year for national drugs co-
ordinators or those responsible for the co-ordination of drugs
policies to meet in the framework of the Horizontal Working
on
Party
national
information
developments and to review opportunities for
increased co-
operation.

on Drugs

exchange

to

First meeting held in Paris,
November 2000.

Swedish

The
organised
meeting in March 2001.

Presidency
second

the

1.1.6 The Council and the Commission to integrate the issue of
drugs in the broader objectives of EU external relations, including
development co-operation making full use of
the CFSP
instruments as well as trade policy instruments and technical and
financial assistance.

(Ongoing
discussion
between relevant Cabinets
and services.)

1.1.7 The Commission with the assistance of the EMCDDA to
organise a study to be completed by March 2001 to test whether
the co-ordination arrangements that are in place could be
improved and if so in what way.

A draft contribution from the
EMCDDA was presented at
the meeting of the Drugs
coordinators in March 2001.

1.2 To continue the EU global, multidisciplinary, integrated
and balanced strategy, in which supply and demand reduction
are seen as mutually reinforcing elements, as underlined by
the United Nations General Assembly Special Session on
Drugs (UNGASS) (Strategy aim 3).

12

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

1.2.3 The Council to ensure that full use is made of the EU
agencies, particularly Europol and the European Monitoring
Centre of Drugs and Drug Addiction, in their respective fields of
competence.

process

Several Council Decisions
have been adopted, or are in
the
being
to initiate or
developed,
strengthen
of
role
the
Europol, e.g.

of

-

-

-

-

-

The extension of
Europol mandate;

the

Joint
teams;

investigative

with
Co-operation
Eurojust
the
European Police Chiefs
Task Force;

and

Combating drug-related
crime committed via the
Internet and other forms
of modern technology;

The
synthetic drugs.

profiling

of

and

in cooperation
EMCDDA,
Commission,
with
the
EUROPOL
EMEA,
implements the Decisions of
the
Council
the
framework
Joint
of
action on new synthetic
drugs (art. 3 and 4)

in
the

13

Timeframe/
Priority

Continuous
process

Comments

To be monitored through the Interservice Drugs Group.

Continuous
process.

A very comprehensive and complex task. Involves all kinds of
services. Both demand reduction and supply reduction
approaches. To be elaborated.

This
process
will be useful
for the mid-term
final
and
evaluation of the
EU Action Plan.

It would be useful
follow up from the
to have regular
EMCDDA and Pompidou Group on the drug expenditure of
Member States. Information on public expenditure on drugs in
Member States shall be collected regularly in a comparable
format prepared by the EMCDDA.

Action as agreed in the EU Action Plan

State of play

1.2.4 The Commission, the Council and the Member States to
ensure that the balanced and multidisciplinary approach is taken
into account and implemented in their drugs programmes and
policies.

1.3 To encourage multi-agency co-operation and the
involvement of civil society (Strategy aim 6)

1.3.2 All Member States and the Commission to establish a
strategy for the co-operation with civil society and community
and voluntary groups from areas most affected by the problem of
drug abuse.

1.4 To provide appropriate resources for drugs related
actions (Strategy aim 11) and social consequences of drug
abuse.

1.4.1 The Council and the Commission to study, in the light of
current efforts in this field of the EMCDDA and Pompidou group,
an approach to establish a list of all public expenditure on drugs.

2000

In November
the
Commission put forward an
the drug-
overview of all
the
related budget
Horizontal Drugs Group of
the Council.

lines at

14

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

Continuous
process

This is a major concern also of the European Parliament and the
Council.

1.4.2 Member States and the Commission to encourage the
provision of appropriate funding for proactive measures,
including the prevention of drug use, the prevention of drug
related crime, and the reduction of the negative health and social
consequences of drugs.

and

Drug

2001.

Council
Parliament
approved the extension of
Prevention
the
in
programme(2001-2002)
January
The
Commission put forward a
proposal for the creation of a
new program on
crime
(Hippokrates).
prevention
on
Two Eurobarometers
in
Urban
linked
Safety
particular
drugs
dependence were carried out
by the Commission in 1996
and in 2000. The results of
the
2000 Eurobarometer
have been made available in
March 2001.

to

2. Information and evaluation

2.1 To ensure collection, analysis and dissemination of
objective, reliable and comparable data on the drugs
phenomenon in the EU with the support of EMCDDA and
Europol (Strategy aim 8)

EMCDDA 2001
report is being finalised;

annual

EMCDDA 2001-2003 work
programme adopted;

for
EMCDDA guidelines
data collection in Member
States have been provided to
REITOX Focal Points

15

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

2.1.1. The Member States according to technical
tools and
guidelines provided by EMCDDA to give reliable information on
the five key epidemiological indicators in a comparable form
drawn up by the EMCDDA and adopted by the Council:

1.

2.

3.

4.

5.

extent and pattern of drug use in the general population

prevalence of problem drug use

demand for treatment by drug users

drug-related deaths and mortality of drug users

drug-related infectious diseases (HIV, hepatitis)

2.1.3. The EMCDDA to develop indicators on drugs related
crime, the availability of illicit drugs (including at street level)
and drug related social exclusion.

2.1.4. The Member States and the EMCDDA, within existing
financial limits, to ensure that the National Focal Points have the
necessary political and financial support to implement the five
harmonised key indicators.

EMCDDA
guidelines
finalised and transmitted to
its
the
in
Management
Member States.

of
Board

members

The Commission is considering the best way to support the
implementation of the five key indicators.

adoption

Formal
guidelines
Management
September 2001.

the
of
by EMCDDA
by
Board

Questionnaire
from the
President of Management
Board to Member States on
national situations regarding
support
implementing
the 5 key indicators

for

Conceptualisation
and
definition process launched
under EMCDDA 2001 Work
Programme

Annual
financial
contribution from EMCDDA
to REITOX Focal Points;

evaluation

External
REITOX to be
(2001).

of
achieved

in co-operation with the Monitoring
2.1.6 The Commission,
Centre,
to launch a Eurobarometre study on attitudes of the
public, especially youth, to drugs throughout the EU every two
years.

A meeting on this issue will
be organised by the first
semester 2001 between the
concerned
and
EMCDDA.

services

End of 2002 and
2004

16

Timeframe/
Priority

End 2004

Comments

Such a system will need a regular follow up and this implies the
necessity of adequate human and financial resources.

Action as agreed in the EU Action Plan

State of play

2.1.7 The Commission to promote the establishment of a
European system to assess and to encourage Member States to
develop a network of national expert centres in the field of
and
toxicological
experimental, clinical or epidemiological studies.

clinical database

as well

analysis

as

2.1.8
Europol and the EMCDDA to develop a standardised
database on drug seizures, to be introduced in all Member States
and based upon harmonised criteria and indicators.

promotion

Continuous
of
European networks through
Community
relevant
in particular
programmes,
prevention
the
drug
and Research
programme
and
Development
Framework Programme

of

parameters

In co-operation with experts
of
volunteering Member
States and the EMCDDA,
a
the
harmonised database system
on drug seizure statistics
have been developed and
agreed upon. An inventory
takes place with a view to
identifying the appropriate
system for handling data in
accordance with the agreed
parameters.

17

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

End 2002 and
2004

This is a major concern also of the European Parliament and the
Council.

2.2 To ensure that actions against drugs are evaluated
(strategy aim 2).

2.2.1 The Commission to organise appropriate evaluations at mid-
term and completion of the Drugs Strategy (2000-2004) on the
basis of the present Action Plan, and to present the reports to the
Council and the Parliament.

Commission,
The
EMCDDA and Europol as
well
States
as Member
should carry out their own
evaluations, on the basis of a
list of criteria prepared by
the Commission with the
help
of EMCDDA and
approved by the Council.
The Commission to draft a
global
evaluation at mid
term and completion of the
Action Plan.

2.2.2 Work should be taken forward by EMCDDA/Europol
drawing on expertise from Member States to underpin the EU
drugs strategy with measurable targets so that assessments can be
made of progress in achieving objectives. This work could be
completed, if possible by the end of 2000.

produced

EMCDDA
a
preliminary set of bench
marks applicable on the
its data analysis
basis of
process.

Preliminary contacts have
been made with Europol and
selection of Member States
(REITOX Focal Points and
Europol National Units)
with a view to draw a
complete list of potential
bench marks covering the
EU Action Plan.

18

Timeframe/
Priority

End 2003

Comments

The Commission to be assisted by the EMCDDA in identifying
best practices in the field of demand reduction (EDDRA
database)

End 2001

Action as agreed in the EU Action Plan

State of play

2.2.3 The Council, on the basis of the work done by the
Horizontal Working Party on Drugs to identify best practices of
the Member States and the Commission in the field of drugs in
the
co-operation notably with the Drug Trafficking group,
Multidisciplinary group on organised crime and the Health group.

2.2.5 The Commission to organise an appropriate assessment of :

- the effectiveness of the Joint Action on synthetic drugs of June
1997 taking into account the evaluation by the EMCDDA of the
early warning system.

- community legislation and its implementation in the field of
control of the trade in chemical precursors.

2.2.6 Member States and Europol, assisted by scientists, to
assess the effectiveness of preventing and combating organised
drug-related crime and to develop crime and policy indicators.

A peer evaluation on drugs
trafficking will be completed
by the end 2001.

A final evaluation of
the
Drug Prevention Programme
is expected to be completed
in 2003

The
will
Commission
launch in the first semester
of 2001 with the help of
EMCDDA and Europol a
the
global assessment of
effectiveness of
the Joint
Action on synthetic drugs.

Europol and the Commision
have carried out a study on
the prevention of organised
including organised
crime,
drug-related
The
crime.
study contains proposals for
a
strategy on preventive
measures against organised
crime.

19

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

2.2.7 Member States and Europol, assisted by scientists, to
draft an annual assessment on the role of organised crime groups
involved in drug trafficking.

Report

account

Europol produces the annual
on
‘Situation
in the
Organised Crime
This
European Union’.
on
based
report
is
contributions
the
by
Member States, also taking
into
reports
from countries
received
outside the European Union.
the report
One aspect of
covers
of
groups
organised
involved in drug trafficking.
A Contact
and Support
Network of Member States’
of
representatives,
some
whom have
scientific
background, assists in the
drafting of the report.

activities

crime

the

a

3. Reduction of Demand, Prevention of Drug use and of Drug
Related Crime

3.1 To give greater priority to drug prevention and demand
reduction, particularly new recruitment to drug use, as well
as the reduction of the adverse consequences of drug use
(Strategy aim 4)

3.1.1 to reduce significantly over five years the prevalence of
drug use, as well as new recruitment to it, particularly among
young people under 18 years of age (Strategy target 1)

20

Action as agreed in the EU Action Plan

State of play

3.1.1.1 Member States
and the Commission to develop
comprehensive prevention programmes for both licit and illicit
drugs and also covering poly-drug use.

Drug

The
Prevention
Programme (2001-2002) has
been
the
adoption of the new Public
Health Programme

extended

until

Timeframe/
Priority

Continuous
process

Comments

The Commission will support comprehensive programmes and
disseminate the best practices and results with the support of the
EMCDDA (EDDRA Database).

3.1.1.2 The Commission to ensure that full use is made of the
existing Community programmes to counter social exclusion and
urban delinquency, and foster social reintegration.

Continuous
process

The European Social Fund and the URBAN programme are
used for these purposes.

3.1.1.4 Member States and the Commission further to develop
innovative approaches to the prevention of the abuse of synthetic
drugs, taking into account the specificities of synthetic drug users.

among

Included
the
activities undertaken in the
Drug Prevention Programme

Continuous
process

Selection of projects of innovative character in this area

3.1.2 to reduce substantially over five years the incidence of drug-
related health damage (HIV, hepatitis, TBC, etc.) and the number
of drug-related deaths (Strategy target 2)

3.1.2.2 Member States and the Commission to plan and
implement
innovative awareness raising campaigns on the
dangers related to drug use and programmes on the reduction of
risks and adverse consequences related to drug use. These
campaigns must be well
targeted and implemented in co-
operation with the target groups.

Among the actions in the
framework
the Drug
of
Prevention Programme.

End 2002

Internet could also be used for such campaigns.

3.1.2.3 Member States and the Commission to make use of new
means of communication (eg the internet) to provide objective,
reliable and accessible information on drugs and the dangers
associated with them.

Among the activities in the
framework
the Drug
of
Prevention Programme

Continuous
process

3.1.2.5 The Commission and Member States to undertake
research into the effects of driving under the influence of illicit
drugs and pharmaceuticals.

Continuous
process

The Commission should continue to study this issue and if
appropriate to bring forward proposals. The recommendations
of the Working Party on ‘Alcohol, Drugs, Medicine and
Driving’ should be taken into account. It is proposed to include
this issue in the Research and Development Framework
Programme for 2002-2006.

21

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

3.1.3 to increase substantially the number of successfully treated
addicts (Strategy target 3)

3.2. To make full use of the new possibilities offered by the
Treaty, particularly the articles on health protection and
research (Strategy aim 7)

3.2.1 The Commission to ensure that drug prevention is identified
as a key component of the future public health programme.

2002

future

The Commission adopted on
16th May 2000 a proposal on
the
health
programme. This proposal is
currently under discussion in
the Council and the EP.

public

3.2.2 Member States and the Commission to provide adequate
resources for research into the biomedical and social causes of
and
addiction,
behavioural patterns of drug consumption. The Commission to
support the inclusion of this area of research as a priority in the
Community Programme for Research and Development.

the prevention and origins of

addiction,

Continuous
process

Three projects were funded
under the current Research
Development
and
Programme. The
second
round of application is now
under evaluation.

3.2.3. The Commission and Member States to identify new areas,
such as the spread of best practice, training and networking,
where action at the European level could help reduce drug related
harm.

3.3 To adopt a comprehensive approach

Continuous
process

To be elaborated on the basis of existing Community
programmes on training and drug prevention and on
contribution from the EMCDDA

3.3.1 The Commission and the Member States to develop and
implement preventive actions and strategies for all age groups,
particularly children and young people.

Drug

The
Prevention
Programme aims at all age
groups, in particular young
people.

Continuous
process

22

Action as agreed in the EU Action Plan

State of play

3.3.2 The Commission and Member States within their respective
competences to address in this connection and when appropriate,
risk behaviour and addiction in general,
including aspects of
alcohol, medicine, substances used for doping in sport, and
tobacco use.

Recommendation
on
prevention and reduction of
drug related risks is under
preparation. Parliament and
Council have agreed on a
Joint Text
tobacco
directive.

for

Timeframe/
Priority

2002/2003

Comments

3.4 To prevent crime linked to drugs, notably juvenile and
urban delinquency

3.4.1 to reduce substantially over five years the number of drug
related crimes (Strategy target 5)

3.4.1.1 The Commission and Member States
to set up
programmes to promote best practice in the prevention of
criminal activities linked among other issues to drugs, juvenile
and urban delinquency.

The
put
Commission
forward a proposal for the
creation of a new program
prevention
on
crime
(Hippokrates)
on
29.11.2000. Currently under
discussion in the Council
and the EP,
a French-
Swedish initiative to create a
Crime Prevention Network,
whose priorities are urban,
drug-related
juvenile
crime.

and

Continuous
process

This is also one of the priority of the Tampere European
Council (Conclusion 42).

3.4.1.2 The Council and the Commission to develop a common
comparable definition of the term drug related crimes on the basis
of work by Europol and EMCDDA in order to enable a serious
comparison of the number of drug related crimes.

Contribution of EMCDDA
foreseen in the framework of
its
working
programme.

2001

2002

Crime and policy indicators should be defined in order to assess
progress in the prevention and control of crime.

23

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

The EMCDDA has finalised
the study in March 2001.

End of 2001

The Commission to consider follow-up to the EMCDDA study.

Several European networks
of
are
professionals
established in Europe, co-
financed
the Drug
Prevention Programme.

by

Continuous
process

The Leonardo da Vinci Programme could be used for this
purpose on the basis of projects presented by Member States.

To further encourage a closer co-operation between the
networks set up in this field .

Continuous
process

EDDRA Database

3.4.4 The Commission and Member States to consider the results
of a study by the EMCDDA into the law and practice in the EU
Member States on the handling of drug addicts in the justice
system, including issues such as identification of drug addicts
following arrest, alternatives to prison, and treatment facilities
within the penal system. On this basis,
the Commission and
Member States to consider how to share best practice in the area
of handling of drug addicts in the justice system.

3.5 Training and Interchange of experience in the prevention
of drug use

3.5.2 Member States and the Commission to develop and
implement a network of trainers and professionals in the health
and social sector who work with drug users.

3.5.3 Member States to promote the exchange of best practice in
the area of prevention and to ensure that all
successful
programmes are brought to the attention of other Member States
and the Commission.

4. Supply Reduction

4.1 To reinforce the fight against organised crime, illicit drug
trafficking and related organised crime as well as other drug-
related crime, and to step up police, customs and judicial co-
operation between Member States (Strategy aim 5)

4.1.1 To reduce substantially over five years the availability of
illicit drugs (Strategy target 4)

24

Timeframe/
Priority

2002

Comments

Continuous
process

Action as agreed in the EU Action Plan

State of play

4.1.1.2 The Council and the Commission, with the assistance of
Europol, to prepare EU guidelines for combating illicit drugs
activities via new technologies and in particular the internet.

4.1.1.3 Member States, with the assistance of Europol, taking into
account the existing EU systems for exchange of information, to
work together in the relevant Council bodies, to reinforce their
efforts against maritime drug trafficking, including the provision
of training on the identification and surveillance of suspicious
vessels and establishing procedures for boarding and searching
vessels where appropriate. Member States should recognise the
importance of
laid down in
implementing the principles
Article 17 of the UN Convention against Illicit Traffic in Narcotic
Drugs and Psychotropic substances.

The
put
Commission
forward a Communication
on Cybercrime. The Council
Working Party on Drug
Trafficking has developed
proposals to enhance actions
against drug-related offences
of
through
the
and
Information
Communication
Technology,
including the
Internet. The Council has
the
been invited to adopt
proposals, which give a co-
ordinating role to Europol.

use

In June 2000, the Portuguese
organised
authorities
a
conference
on maritime
trafficking, which resulted in
recommendations.
several
An action plan for
their
implementation should be
drafted, with emphasis on
operational activities.

25

Action as agreed in the EU Action Plan

State of play

4.1.1.4 Member States, with the assistance of Europol, to further
the possibilities of combining forensic and law
consider
enforcement
information, with a view to identifying the
production and trafficking of synthetic drugs, the composition of
such drugs, and those involved in their production and trafficking.
To that extent, Member States'
forensic laboratories should
exchange information on the analysis of samples taken from
synthetic drugs seizures. If appropriate the results should be made
available to relevant health authorities in the Member States.

a

a

on

Parliament

establishing
the

Swedish
Based
the Council and
proposal,
are
the
Council
considering
a
Decision
system for
special
forensic profiling analysis of
synthetic
The
outcome should result in an
EU-wide co-ordination by
Europol of law enforcement
and forensic information.

drugs.

Timeframe/
Priority

2001

Comments

A second Swedish proposal is currently under discussion at
Parliament and Council level concerning the transmission of
samples of illegal narcotic substances.

4.1.1.5 The Commission to support, as appropriate, efforts by
Member States to improve police, customs and judicial co-
operation, notably through exchange and training programmes,
taking advantage of the experience and results of the existing
third pillar programmes.

A proposal for the extension
until 2002 of the existing
programmes has been put
forward by the Commission.
A discussion on the Third
from
Programmes
Pillar
2002
taking
is
onwards
place.

End 2002

The creation of the European Judicial Network creates a new
framework for action. The possibility to link it to Europol
should be further analysed.

4.1.1.6 Member States and Europol to implement the project-
based EU law enforcement
transnational
organised crime to combat drug trafficking.

strategy against

is

strategy

The
being
implemented by Europol and
the Member States in the
Analysis
of
framework
Work Files as provided for
by the Europol Convention.
Further implementation may
take place in other forms of
international
law
enforcement and judicial co-
operation,
joint
e.g.
investigative teams.

26

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

4.1.2.To reduce substantially over five years money-laundering
and illicit trafficking of precursors (Strategy target 6)

4.1.2.1 The Commission to report regularly to the Council on the
control of money laundering in the EU, actions undertaken in the
previous year, and proposed action in the year to come.

The Commission proposed
on 14.07.1999 an extension
and
the
update
’91 Directive.

of

The mandate of Europol has
been recently extended to
money laundering.

Continuous
process

Money laundering is also one of the priorities set up by the
Tampere European Council (Conclusions 51-58).

4.1.2.4 The Commission to report regularly to the Council on the
control of the diversion of illicit chemical precursors, actions
undertaken in the previous year, and proposed action in the year
to come.

Continuous
process

Commission should study the possibility to enhance the
cooperation with industry and the conclusion of precursor
control agreement with more risk countries.

27

Comments

Guidelines have been produced to assist chemical industry.
These have been disseminated to Member States and will sent
out to the chemical industry shortly. They have also been made
available to the candidate countries through the Phare Program.

Timeframe/
Priority

By the end of
the
2001
proposals
for
the modification
of
the
Regulation and
Directive
the
should
be
approved by the
Parliament
and
the Council.

Action as agreed in the EU Action Plan

State of play

4.1.2.5 The Commission to establish, in co-operation with the
Member States, a procedure for the voluntary monitoring of the
non-scheduled chemical precursors of synthetic drugs in co-
operation with the chemical industry.

of

The Commission has put
forward: 1. A proposal for
the modification
the
Council Regulation (EEC)
No 3677/90 of 13 December
1990 laying down measures
to be taken to discourage the
certain
diversion
of
illicit
substances
of
manufacture
narcotic
drugs
psychotropic
and
substances.

the

to

for

the
2. A new draft of
proposal
the
modification of the Council
Directive 92/109/EEC of 14
December
the
1992
manufacture and the placing
on the market of certain
substances used in the illicit
narcotic
of
manufacture
drugs
psychotropic
and
substances

on

28

Timeframe/
Priority

Continuous
process

Comments

Action as agreed in the EU Action Plan

State of play

4.1.2.6 Member States, with the assistance of the Commission
and Europol where appropriate, to provide training for customs
and police in combating the diversion of chemical precursors.

4.2 To make full use of the new possibilities offered by the
Treaty of Amsterdam, particularly the articles on drug
control, police co-operation and judicial co-operation as well
as the common minimum standards in legislation (Strategy
aim 7)

to reinforce

4.2.2 Member States, with the assistance of Europol where
appropriate,
co-operation against drug
their
trafficking and in particular to establish, within the appropriate
legal framework, joint teams when dealing with drug trafficking
between Member States.

in

Europol,
co-operation
with Member States’ experts
and the Commission, has
developed and organised a
European Union Training
Course for trainers on the
combating of illicit synthetic
a
drug
trainers
result,
in two
organised courses
(with the
Member States,
for
assistance of Europol)
officers,
police,
forensic
and
members of the fire brigade.

laboratories. As

customs

experts

trained

The Council has adopted
two Recommendations
to
the Member States in respect
of:

- requests made by Europol
criminal
to
initiate
specific
investigations
cases;

in

- Europol’s assistance to
joint investigative teams set
up by the Member States.

29

Timeframe/
Priority

1st semester of
2001.

Comments

This is also one of the Tampere Conclusions (n° 48)

Action as agreed in the EU Action Plan

State of play

4.2.4 The Commission, having consulted the EMCDDA and
taken account of existing, relevant sources of information, to
launch a study into the definitions, penalties and practical
implementation of laws by the courts and law enforcement
agencies for drug trafficking within the Member States. On the
basis of
the Commission to propose measures
establishing minimum rules relating to the constituent elements
and penalties for illicit drug trafficking in accordance with the
relevant provisions of the TEU. The study should be completed
by the end of 2000 and proposals should be brought forward by
31 March 2001.

that study,

4.2.5 Member States and Europol to promote new investigation
techniques and research and documentation of drug-related crime.

The study was completed in
The
March 2001.
put
Commission
by
a
forward
April/May 2001.

will
proposal

a Centres

information

created and
Europol has
maintains
of
Excellence Directory, which
contains
on
expertise and best practises.
The system contains sources
information relating to
of
new
investigative
techniques. In addition, the
Group
Drugs
Europol
stores
collects
and
drug-
documentation
related
Relevant
being
information
disseminated through regular
Drug Intelligence Bulletins.

crime.

on

is

5. International

5.1 To progressively integrate the candidate countries and to
intensify international co-operation with other countries and
international organisations (Strategy aim 9)

30

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

2001

Comments

The Commission proposes to discuss the idea of an Action Plan
on drugs for Candidate Countries with the Member States
during the Swedish Presidency.

5.1.1 The Commission and the Council
the
candidate countries adopt the Community acquis and best practice
in the field of drugs, and that their implementation is satisfactory.
The Member States and the Commission to draw up an action
plan on drugs with the candidate countries which set out the
ground they need to cover to meet the acquis as soon as possible.

to ensure that

5.1.2 The Commission to negotiate with the candidate countries
to allow them to participate in the work of the European
Monitoring Centre
and Drug Addiction. The
Commission to propose to the Council a draft mandate for these
negotiations as soon as possible.

for Drugs

5.1.3 The Commission and the Member States to continue to
support, with technical assistance and finance where necessary,
the candidate countries in their to counter drug abuse and drug
trafficking. Particular attention should be given, including under
PHARE, towards the development of national strategies, national
drugs units, focal points for the EMCDDA and effective controls
on drugs entering the EU and candidate countries. For countries
not covered by PHARE, assistance mechanisms should include
provision for counter-drugs work. The Commission should seek
out, within existing ceilings, new sources of funding for co-
operation with Turkey and include co-operation on drugs issues in
the
the Accession Partnership.
of
Consideration should also be given to targeted drugs twinning,
and making available specialist pre-accession drugs advisers.

forthcoming

drafting

The Council adopted the
negotiating mandate
in
March 2001.

1st
2001

semester

Negotiations should start as soon as possible.

€
has been made
In total 20M
available for drug control
activities within the Phare
Program for 2000.

Financed from the Phare
Multi-beneficiary
Drugs
€
Programme 1998 a 2 M
have also been allocated to a
joint
EMCDDA-Phare
project.

Continuous
process

The commitment of the Phare Program should be maintained.

€
has been
Phare Regional Drugs Programme 2000 of 10M
adopted by the Phare Management Committee in October 2000.

Attention will be paid to synthetic drugs, money laundering, and
diversion of precursors.

Resources for the non-Phare candidate countries will be made
available.

Activities
point 5.2.1.

to be

closely coordinated with those under

5.1.4 The Council to have an annual debate on all EU assistance
projects in the candidate countries in the field of drugs.

Annual debate

Commission should be able to provide global
information.
Commission will organise a Conference focusing on drugs issue
with the candidate countries in April 2001.

5.1.5 The Commission and Member States to implement the Pre-
accession pact on organised crime and extend it to all applicant
countries.

Ongoing discussion within
Pact
Pre-accession
the
Expert Group.

31

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

integration of
5.2 To promote international co-operation,
drug control
into EU development co-operation and to
support the efforts of the United Nations and of UNDCP in
particular to develop international co-operation, based on the
principles adopted at the UNGASS in June 1998 (Strategy
aim 10)

5.2.1 The Commission and the Council to give priority in the
international efforts to counter the drug problem to the candidate
countries and those regions of the world that either produce drugs
or through which drugs transit on their way to the EU.

5.2.2 Member States and the Commission to co-ordinate their
projects in third countries and regions to enable joint assessment
and implementation of their action.

are

and

Actions already undertaken
on
in
the heroin route
Central Asia, Caucasus, Iran,
under
Balkans,
Belarus,
preparation
and
Moldova,
Ukraine.
action
undertaken in the Caribbean
to
cocaine
trafficking

for
Russia
Important

counter

Coordination is ongoing for
some
the
Caribbean

actions

in

5.2.3 Member States and the Commission to strengthen co-
operation with multilateral and international organisations, where
this would increase the effectiveness of their actions.

and

Member States
the
Commission are considering
how best to co-operate with
these organisations

32

Continuous
process

Commission to develop an overall strategy covering the two
main trafficking routes
fuelling EU (heroin route from
Afghanistan to Europe via Central Asia, Iran, Caucasus, Turkey,
Balkans; cocaine route from Latin America via the Caribbean).

Activities to be closely co-ordinated with above point 5.1.3.

Continuous
process

Continuous
process

The Commission and Member States to consider extension of
certain aspects of
the
trafficking routes.

this co-ordination model

to cover

Effectiveness of EU co-operation with multilateral
and
international organisations to be increased by better co-
ordination and earlier involvement
in programme and projects
design.

Action as agreed in the EU Action Plan

State of play

and

drug

trafficking

supporting

5.2.4 The Commission and the Member States to continue to
make available adequate resources for the implementation of
programmes and projects for supply reduction (for example
alternative
combating
development) and demand reduction. Member States and the
Commission to report annually to the Council
(Horizontal
Working Party on Drugs) on all assistance projects undertaken in
third countries in the field of drugs, and for a matrix to be kept up
to date. The Commission and the Member States to inform each
other of all assistance projects for third countries in the field of
drugs, whenever possible and necessary already in the preparatory
process.

5.2.6 The Member States and the Commission to draw up action
plan on drugs co-operation with North Africa, and to implement
fully the action plans on Latin America and the Caribbean and
Central Asia.

5.2.7 The Commission and Member States to help non-EU
countries and regions to develop their anti-money laundering
systems.

Implementation
the
Caribbean part of the LAC
action plan well advanced.

of

countries of

EU Central Asia Action Plan
should be formally adopted
by the
the
the Swedish
region under
Presidency. Commission has
appointed an EU Drugs-
Coordinator for the region.

are
Activities
Iran. Support
ordination is strengthening.

starting in
to ECO co-

in the
Ongoing activities
and ASEAN
Caribbean
under
and
countries,
Russia,
for
preparation
and Moldova.
Ukraine
Activities
under
preparation for Belarus and
Kazakhstan

are

33

Timeframe/
Priority

Continuous
process

Comments

Resources: Drugs to be incorporated in the multi-annual
programming,
inter-regional characteristic of the trafficking
routes will be taken into account.

Mutual information: The Commission and the Member States
should consider how best to collect information on planned and
ongoing projects and present EU action in an operational,
synthetic and analytic form so as to provide an overall vision of
EU international action against drugs.

Central Asia Action Plan should be extended to cover
neighbouring regions.

Co-ordination of the actions implemented in the framework of
the regional action plans should be strengthened (see 5.2.2).

Continuous
process

Countries should be assisted in developing their anti-money-
laundering activities through budget lines EDF, North-South
cooperation in the fight against drugs and TACIS.

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

5.2.8 Member States and the Commission to support
the
development of a common international set of indicators in the
field of demand reduction, and to promote a common standard for
national reporting to international organisations.

EMCDDA and UNDCP
reached an agreement on the
indicators to be used in third
countries.

Continuous
process

Commission to develop methodologies adapted to less advanced
countries through the pilot project in Venezuela

5.2.9 The Commission and the Member States to integrate drugs
as a cross-sectional issue into their supranational co-operation
schemes (particularly with the developing countries).

Continuous
process

Drugs to be incorporated in the multi-annual programming
process and inter-regional coordination to be ensure.

5.2.10 The EU will continue its support for national efforts to
eliminate illicit cultivation of drug crops, according to the
principle of shared responsibility.

Alternative
Ongoing
development
in
Morocco and Latin America.

project

Continuous
process

To strengthen complementarity of these projects with action on
the main trafficking routes.

34

ANNEX 2

EMCDDA Indicators and core data and their links to the evaluation of the
EU Drug Strategy (2000-2004)

EU strategy Target(s)
of reference

EMCDDA Indicator (ki) or core data
(cd)

Potential performance or impact bench
marker

Drug use in general population (ki)

1.
To
reduce
five
significantly over
years the prevalence of
illicit drug use, as well
as new recruitment to it,
among
particularly
young
under
people
18 years of age.

1. Prevalence in general population and

school surveys:

– Recent use (Last Year, Last Month )
– Cannabis and (less precision) cocaine,

amphetamines
1999-2004 comparison possible only
in some countries

2.

Initiation to drug use (incidence):

– Age first use of cannabis (very limited

data on other substances)

In a few countries only. Planned but
others.
not

available

yet

in

Prevalence of problematic drug use (ki)

Primary prevention in schools (cd)

-

Age ranges to be monitored
General
15-24 years
School surveys: 15-16 years

Population

-

surveys:

1. Prevalence estimates of numbers of
‘problematic drug users’ per 1000
population aged 15-64

2. Changes over

the time in other
indirect indicators that may reflect the
prevalence or incidence of problem
drug use (will vary between MS
depending on the availability and
quality of existing data).

countries

where
included in school

1. Number

of
prevention is
curricula
2. Number

schools
of
prevention programmes

covered

by

Primary
communities (cd)

prevention

3. Number and degree of detail of

available programme material

4. Number

of minimally

evaluated

programmes with their outcomes

in

local

1. Number

of minimally

evaluated

programmes with their outcomes
conceptualisation

2. Degree

of

of

Drug related infectious diseases (ki)

reduce
2.
To
substantially over
five
years the incidence of
drug-related
health
damage (HIV, hepatitis
B and C, TBC, etc.) and
the number of drug-
related deaths.

35

“community programme”

1. Prevalence rates (% infected) of HIV
and hepatitis C among injecting drug
users (IDUs) from different sources
(e.g. IDUs in drugs treatment, prisons,
low-threshold
street-
recruited samples)
2. AIDS incidence

related to
injecting drug use in the general
population

services,

rates

Drug related deaths and mortality (ki)

Outreach Work (cd)

Needle exchange (cd)

Early health responses (cd)

Demand for treatment (ki)

To

3.
increase
substantially the number
successfully treated
of
addicts.

Availability of treatment facilities (cd)

36

1. Acute Drug-related Deaths (numbers,
rates, proportional change relative to
index year) in
-
-
In some MS by substance and age
In general with 1-3 years delay in
reporting

General Mortality Registries
Special Registries

2. Mortality rate (all causes, and by
cause of death) among groups of drug
users.
In some cities or countries

1. Concepts and approaches existing in

2.

pill

testing

MS
typology
of
interventions
estimations of syringes distributed

on-site

typology

1.
2. mode of distribution
and
1. Availability
secondary prevention interventions.
provide

Key
a
does
straightforward performance indicator for
this target. Conceptual work on definition
of successful treatment is at starting point
partners.
with

REITOX

Indicator

not

of

Some useful sub indicators (not readily
available) could be:

-

-
-

Proportion of problem drug users
admitted to treatment.
Retention of clients in treatment
Compliance of clients with some
treatment outcomes
(decreased
illicit drug use, reduced criminal
labour
behaviour,
etc.)
status,

improved

Sub indicators based on the Key indicator:
• Annual number of admissions to drug

• Annual number of new admissions
drug
treatments”)

to

treatment

(“first
treatment

• Profile of clients starting treatment
injection)

gender,

drug,

(age,

Annual numbers are based on variable
treatment centres. Careful
coverage of
monitoring of changes is needed.
and
1. Services

offered

their

characteristics,

2. Objectives,
3. Admission criteria,
4. Co-ordination between services.
5. Evaluation of treatment services
6. EDDRA and QED entries

4.
To
reduce
five
substantially over
years the availability of
illicit drugs.

reduce
5.
To
substantially over
five
years the number of drug
related crime.

Global availability of illicit drugs (cd)

Availability of illicit drugs at street
level (cd)

Potential measures to be defined on basis
of conceptualisation and definition of core
data (in conjunction with NFPs)

Interdiction measures (cd)

Drug-related petty crime (cd)

Drug-related social exclusion (cd))

Prevention of drug related crime (cd)

Social rehabilitation and reintegration
(cd)

Pending on future discussions with EU
and international partners
Potential measures to be defined on basis
of conceptualisation and definition of core
data (in conjunction with NFPs)

Potential measures to be defined on basis
of conceptualisation and definition of core
data (in conjunction with NFPs)

1. Characteristics
policies.

of

urban

security

2 Availability and characteristics of
alternatives to prison interventions.

3. Availability and characteristics of
prevention, treatment and harm reduction
interventions in prison.
1. Organisation,
2. Accessibility,
3. Education,
4. Employment,
5. Housing, and,
6. Evaluation of Social Rehab services
Pending on future discussions with EU
and international partners

Drug related financial flows (cd)

6.
To
reduce
five
substantially over
years money-laundering
and illicit trafficking of
precursors.

Flow of diverted chemical precursors
(cd)

Pending on future discussions with EU
and international partners

Anti money laundering measures (cd)

Measures against
chemical precursors (cd)

the diversion of

Pending on future discussions with EU
and international partners
Pending on future discussions with EU
and international partners

Complementary bench marks

National Strategies and Co-ordination
arrangements in Member States.
Legislation and practice

Public expenditure on drugs.

37

and

description

of National

State
Strategies and Coordination systems
State and description of drug-related laws
and judicial practices
Overview and
expenditure on drugs.

breakdown

public

of

Overview of the programmes and actions in the fight against drugs and the budget lines which can be drawn upon

Type of action

Budget Line

Amount / Financial Year

Remarks

ANNEX 3

November 2000

Internal activities

European Monitoring Centre
for Drugs and Drug Addiction
(EMCDDA)

B5-830N

Health aspects of drug abuse

B3-4302 (pour 2000)

B3-4308 (pour 2001)

exchange

and
Training,
cooperation programmes in the
fields of JHA

B5-820

€
8,25 M
€
8,75 M

in 2000

in 2001

€
5,6 M
€
5,7 M

in 2000

in 2001

€
The 0.5 M
placed in reserve
at the request of the Parliament
the
will be unblocked after
by
implementation
the
EMCDDA of a
convincing
plan for internal reform

A proposal
to extend this
programme was adopted by the
to the
Commission and sent
Parliament and the Council for
consideration.

law

In the framework of the OISIN
(cooperation
programme
between
enforcement
authorities) and the FALCONE
(cooperation
programme
against
crime)
organised
€
13 drugs projects worth 0,8 M
were financed in 1999.

38

Preparatory Actions in the fight
against drug trafficking

B5-831

Commitment

€
1M

in 2001

New budget line for actions to
possible
prepare
programme
drug
trafficking.

a
against

for

5th
research
programme (1999/2002):

framework

- quality of life and management
of living resources

B6-6111

- competitive and sustainable
growth

B6-6131

The sub-rubrik health / drugs has a
€
budget of roughly 2,5 M

per year

€
– 10M
in the period 1999/2002 for
projects concerning development
of methods of measurement and the
detection of prohibited substances.

The amounts actually allocated
depend on the quality of
the
projects presented in response to
calls for tender.

In 1999 three projects with a
total budget of 2,5M
were
selected.

€

been

€
on the
A first project of 1M
development of methods
to
measure endogenous hormones
has
financed.
Negotiations are underway for
support to the accreditation of
€
)
laboratories of the CIO (1M
and for the financing of the
the world anti-
activities of
€
doping agency (0,84M
)

39

External activities

The projects selected in the framework of cooperation with third countries do not in general reflect a sectoral choice but instead depend on the
priorities of the beneficiary countries. As a result it is not possible to predict the amounts that will be available for any given sector and
country and so the information concerning 2001 is purely indicative.

Assistance to partner countries
in Eastern Europe and Central
Asia

B7-520

Central Asia :
€
- Drugs coordinator (1M
from the 1997 and 1998 budgets)

financed

€
- control of ports and airports (1M
financed from the 1997 and 1998
budgets)

€
- drugs information network (1M
financed from the 2000 budget)

Implementation 2000-2002

Implementation 2000-2002

Implementation 2001-2003

- projects still to be identified
€
(– 1,5 M

from the 2001 budget)

Implementation 2002-2003

financed

Implementation 2001-2002

Implementation 2001-2003

Implementation 2002-2003

Implementation 2002-2003

Southern Caucasus:
€
- supply reduction (1,5M
from the 1998 budget)

€
- demand reduction (0,5M
financed from the 2000 budget)

- judicial assistance and a police
€
information system (1,5M
from
the 2001 budget)

Ukraine, Moldova, Belorussia:
€
- 1,5M
2001 budget

under preparation from the

40

Economic aid to the associated
countries of central and eastern
Europe

B7-030

Preaccession strategy for Malta B7-040

Preaccession
Cyprus

Preaccession
Turkey

strategy

for

B7-041

strategy

for

B7-050

Latin America

B7-310 and B7-311

€
- drug information system (2M
from the 1998 budget)

drugs
from the 2000

PHARE
-
regional
€
programme (10M
budget)
national
-
PHARE
drugs
€
/ beneficiary
programmes (1M
€
country with a total of 10M
from
the 2000 budget)

Implementation 2000-2001 /
implementation of the project
passed to the EMCDDA

Implementation 2000-2004

Implementation 2001-2002 (or
2001-2003) according to the
beneficiary countries.

New budget line

New budget line

New budget line with just a pm

Bolivia
Alternative development project of
€
30M
Andean Region
Assistance project in the area of
precursors, legislation and money
€
laundering with a total of 0,65M
Peru
Alternative development project of
€
28M
Colombia
Alternative development project of
€
8M

Projet signed in 1997, with a
duration of 6 years

Projet signed in 1998, with a
duration of 3 years

Projet signed in 1999, with a
duration of 6 years

Projet signed in 1999, with a
duration of 4 years

41

Africa

7th EDF

7th EDF

- West Africa (PAAD)
€
5,1M

- Nigeria
€
5M

B7-320 (EPRD) and 7th EDF
(regional indicative programme)

- Southern Africa
SADC regional programme on
€
drug control: – 4M

Caribbean

7th EDF

Mediterranean

B7-410 (MEDA)

€

- demand reduction programmes:
5,5

- fight against money laundering
€
4M

€
- forensic laboratoires 1,2M

42

This programme
countries
Financing will stop in 2001.

covers 16
in West Africa.

control

programme
Drug
which is under preparation and
which should be completed by
Spring 2001.

Financed more or less equally
line B7-320
through budget
and the
indicative
programme

regional

national

indicative
The
programmes of the Caribbean
countries
10
foresee
percent of the budget available
should be used for projects to
reduce drug addiction.

that

be

on

commentary

this
The
budget line states that amongst
other things the funds allocated
can
for
preparatory actions and pilot
projects
improve
to
information and training in
particular in the field of drugs.

used

pay

ot

Iran

B7-432

€
These two projects, of 0,5M
each, are foreseen for 2001

being

2 projects in cooperation with the
UNDCP are
considered
(assistance to establish a drugs
coordination unit in the Economic
Cooperation Organisation
and
support for the development of a
programme on drug control)

43

North / South Cooperation in
the fight against drugs

B7-6210

Projects underway:

- Venezuela:
€
observatory (2M

)

national

drugs

- Caribbean:

€
. PMO (1,3 M

)

€
. epidemiological survey 1M

€
. prison reform 1M

. EC Drugs Control Office
€
(ECDCO) 1M

signed
under

2000,
Project
financed
1999
budget, with a duration of three
years.

in
the

system of

customs
.
€
cooperation (CCCLEC) O,7 M

regional

treatment

.
€
O,7M

and

rehabilitation

Programming for 2000

€
5,2M

are available in 2000

44