Communication from the Commission to the Council and the European Parliament on the mid-term evaluation of the EU Action Plan on Drugs (2000-2004)
Date: 2002-11-04
Institutions: European Commission
Subjects: European Union, action programme, dissemination of information, drug addiction, drug traffic, fight against crime, international cooperation, narcotic

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 04.11.2002
COM(2002) 599 final

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE
EUROPEAN PARLIAMENT

ON THE MID-TERM EVALUATION OF THE EU ACTION PLAN ON DRUGS
(2000-2004)

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE
EUROPEAN PARLIAMENT

ON THE MID-TERM EVALUATION OF THE EU ACTION PLAN ON DRUGS
(2000-2004)

1.

THE EU DRUG STRATEGY AND THE EU ACTION PLAN ON DRUGS (2000-2004)

Tackling drugs is a top priority for the European Union. Continued high levels of drug
misuse, drugs trafficking and the damage caused to societies through drug related crime,
health problems and social exclusion are evident from the reports of the European Monitoring
Centre for Drugs and Drug Addiction (EMCDDA) and Europol. Therefore, concerted action
is needed.

In 1999, the Commission presented a Communication on a European Union Action Plan to
Combat Drugs (2000 – 2004)1. Based on this Communication the Helsinki European Council
endorsed in December 1999 the EU Strategy on Drugs for 2000-2004 setting out eleven
general aims and six main targets for the EU in this period2. The Strategy calls for a
multidisciplinary and integrated approach to drugs where drug demand and supply reduction
are seen as equally important and mutually reinforcing parts of a balanced strategy. This
approach corresponds to that set out in the political declaration adopted during the UN
General Assembly Special Session on Drugs (UNGASS) in June 1998.

The Feira European Council adopted in June 2000 the EU Action Plan on Drugs 2000-2004
the Action Plan). This Action Plan translated the EU Drug Strategy into
(hereafter
approximately one hundred concrete actions to be taken by the Member States,
the
Commission, the EMCDDA and Europol.

The Action Plan has three aims:

(i)

(ii)

to provide a guide to all actors in the EU when setting priorities in the drugs area;

to ensure that drugs receive the necessary high level support;

(iii)

to provide a solid base for the evaluation of the EU Drugs Strategy.

1 COM (1999) 239 final of 26.05.1999.
2 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 co-operation between Member States; (f) encourage multi-
agency co-operation 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 co-operation; (j) promote international co-operation, 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.

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A global balanced and integrated approach to the drugs phenomenon is called for in the
Action Plan. It reflects the idea that to tackle the drugs issue, it is necessary to address
poverty, unemployment and social exclusion using several tools such as education, research
and development. The Action Plan is divided into five sections:
i) co-ordination,
ii) information and evaluation, iii) drug demand reduction and prevention of drug use and
drug related crime, iv) supply reduction and (v) international co-operation.

2.

OBJECTIVES, SCOPE AND METHODOLOGY FOR THE EVALUATION OF THE EU
ACTION PLAN

2.1.

Objectives and scope

Point 2.2 of the Action Plan provides for the Commission to undertake mid-term and final
assessments of the implementation of the Action Plan and to present the results to the Council
and the European Parliament. The need for the evaluation of drugs policies in the European
Union was also emphasised by the European Parliament in its resolution on the Commission
Communication on the Action Plan3. With a view to giving an impetus to this process the
Danish Presidency initiated a discussion on the EU Action Plan on Drugs and its mid-term
evaluation during an informal Council of Justice and Home Affairs Ministers held in
September 2002.

The Communication presented by the Commission in 2001 on the implementation of the EU
Action Plan on Drugs (2000-2004)4 underlined that the evaluation should be performed in
three stages:

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

- Stage 2: assessment of the extent
objectives of the Drugs Strategy;

to which achievement of the Action Plan met

the

- Stage 3: assessment of the impact on the drug situation.

It is not the purpose of the Commission in either the mid-term or final evaluation to make a
judgement on national drugs policies. Rather the aim of the mid-term evaluation is to assess
the level of achievement of the activities set out in the Action Plan (stage 1). The aim of the
final evaluation is to assess the extent to which achievement of the Action Plan met the
objectives of the Drugs Strategy and to assess the impact of both the Drugs Strategy and the
Action Plan on the drug situation in the European Union (stages 2 and 3).

The mid-term evaluation will be a useful tool for the European Union in the run-up to the
46th session of the UN Commission on Narcotic Drugs to be held in April 2003. This session
will assess the progress made in meeting the goals and targets set out
in the Political
Declaration adopted at the UN General Assembly Special Session on Drugs (UNGASS) held
in June 1998 and examine how the obstacles encountered may be overcome.

The final evaluation of the Action Plan will be completed by the end of 2004. The evaluation
tools already in place for the mid-term evaluation will be used and further tools may need to

3 Doc. A5-0063/1999 of 19.11.1999.
4 COM (2001) 301 final of 08.06.2001.

3

be developed. The final evaluation will provide the basis for the future development of EU
Drugs policy from 2005 onwards.

2.2.

Methodology for the mid-term evaluation

The EU Action Plan comprises actions to be undertaken by the Member States, the European
Commission, the EMCDDA and Europol. To assess the level of achievement of these actors
four main sources of information were used:

i) the replies of the Member States to a questionnaire on progress at national level,

ii) the updated follow-up table of the achievements of the Commission, the EMCDDA and
Europol,

iii) the peer evaluation of law enforcement and its role in the fight against drugs trafficking,
carried out in the framework of the Council,

iv) the initiatives taken at the EU level, either by the Commission or by Member States, and
which have been adopted or which are under examination.

The assessment covered all the five main areas of the Action Plan: co-ordination, information
and evaluation, reduction of demand and prevention of drug use and of drug related crime,
supply reduction and international co-operation.

2.2.1.

Progress at the national level

Most aspects of drug related actions fall within the competence of the Member States and one
of the main aims of the Action Plan is to encourage national action. Therefore, the replies to
the questionnaire sent by the Belgian Presidency, which covered the points of the Action Plan
upon which the Member States were required to take action are of vital importance to the
evaluation.

On the basis of the answers to this questionnaire, the Commission services prepared a
working document (‘the Progress Review’) which presented the contributions thematically
following the order set out in the Action Plan5. The goal was to show the progress made in the
implementation of the Action Plan. It has served as the basis for the assessment of the level of
achievement of the implementation of the Action Plan at national level. A summary of the
answers may be found in Annex 1.

2.2.2.

Progress by the Commission, the EMCDDA and Europol

the EMCDDA and Europol,

Concerning the Commission,
the Commission in its
Communication on the implementation of the EU Action Plan on Drugs published in 20014 a
follow-up table containing every measure in the Action Plan requiring action by them. The
follow-up table prepared in consultation with the EMCDDA and Europol aims to ensure that
the measures are taken within the set time frame and that their implementation is monitored. It
records the progress made, the timetable for implementation and how high a priority they are
considered to be. In view of the mid-term evaluation, the follow-up table has been updated to

5 ‘Mid-term Evaluation of the EU Action Plan on Drugs 2000-2004: Progress Review for the Member States’.
Document in Europa web site (http://europa.eu.int/comm/justice_home/unit/drogue_en.htm).

4

accurately reflect the state of play mid-way through the period of application of the Action
Plan (Annex 2).

2.2.3.

The peer evaluation exercise

A further source of information has been the available national reports compiled as part of the
peer evaluation conducted by the Council of the law enforcement systems in Member States.
They have produced a lot of valuable data. This peer evaluation arises from the adoption by
the Council in December 1997 of a Joint Action establishing a mechanism for evaluating the
application and implementation at national level of international undertakings in the fight
against organised crime6. Law enforcement and its role in the fight against drug trafficking
was chosen as the subject for the second round of peer evaluations provided for by the Joint
Action. This exercise is still ongoing within the Council.

2.2.4. Drug related EU instruments

The evaluation has also taken into account the different drug related EU instruments that have
been decided upon or drafted and presented in the Council during the period 2000 - 2002
(Annex 3).

3.

RESULTS OF THE MID-TERM EVALUATION

The results of the mid-term evaluation are based on the methodology explained in section 2.2.
Achievements at national and EU levels since 2000 as well as areas where further progress is
needed by the completion of the Action Plan are set out for each of the five main areas of the
Plan.

3.1.

Co-ordination

Achievements at national level

• The issue of co-ordination of drug policy across government is clearly recognised as

important by all Member States.

• A variety of co-ordination approaches have been adopted, depending on the priority given

to the drug problem, the country structure and administrative organisation.

• Most Member States have adopted a national plan and/or strategy on drugs.

• Many national action plans have been developed in line with the principles of the EU

Action Plan.

Areas where further progress is needed at national level

• All Member States should consider the adoption of a national drugs strategy and/or action
plan and a co-ordination mechanism to ensure continuity and coherence of drug related
actions at all levels.

6OJ L 344, 15.12.1997, p.7.

5

Achievements at EU level

• Three meetings of the national drug co-ordinators have taken place since the adoption of
the Action Plan. The Commission, the EMCDDA and Europol have also participated in
these meetings organised to exchange information and review opportunities for increased
co-operation.

• The Commission and the EMCDDA will present the results of their study on national
strategies and co-ordination instruments by the end of 2002. The results of this study will
form an important basis to assess if and how the co-ordination arrangements in place could
be improved.

• The Council ensures a global and co-ordinated approach to the drugs issue through the
Horizontal Drugs Group. The role of this group has been strengthened within the last two
years by in particular the inclusion of the activities of the Council Working Party
responsible for political dialogue in relation to the external dimension aspects of the drugs
issue.

• The Commission has a specific unit on drugs co-ordination and established in 1989 an
internal ‘Interservice Group on Drugs’ to prepare the Commission positions on drugs
issues. In 2001, the Commission set up a specific co-ordination mechanism to ensure that
there is a better co-ordination among its external relations services in their co-operation
with third countries and international bodies as regards the drugs issue.

• The European Parliament, the Committee of the Regions and the Economic and Social
Committee have been closely involved with the development of EU drug policies and their
opinion was taken into account when drafting the EU Strategy on Drugs.

• In February 2000 the Commission organised, together with the Council and the European
Parliament, the Committee of the Regions and the Economic and Social Committee, the
second Conference on European Drug Policies7. Many NGOs working in the drugs field
were also involved in this conference. This Conference proved to be useful in the context
of the preparation of the EU Action Plan on Drugs.

Areas where further progress is needed at EU level

• Based on the study on national strategies and co-ordination instruments carried out by the
Commission and the EMCDDA, the Commission intends to present its views on how best
the results of this study may be brought forward.

• Better co-ordination of law enforcement activities at EU level in the field of drugs should

take place.

• Inter-institutional co-ordination should be improved, in particular in relation to the final
evaluation of the Action Plan. The strengthening of the inter-institutional co-ordination is
also important in relation to high level international meetings dealing with the drugs issue,
e.g. the Ministerial Segment of the 46th session of the UN Commission on Narcotic Drugs
to be held in April 2003.

7 The first conference took place in December 1995.

6

• A strategy for strengthening co-operation with civil society in the field of drugs should be

developed.

3.2.

Information and evaluation

3.2.1.

Information

Achievements at national level

• The availability and the quality of data on the drug situation have increased at Member

State level.

• All Member States are working towards providing comparable and reliable data on five
indicators8 mentioned in the Action Plan using the guidelines
key epidemiological
endorsed by the Council in its December 2001 Resolution9. Most of them have adopted a
structured approach with special working groups and participation in the EMCDDA
working groups on these indicators.

• Member States also consider that they provide appropriate funding for the implementation

of the indicators.

Areas where further progress is needed at national level

• Member States should endeavour to improve the availability and quality of information on

the drugs situation, in order to achieve a better comparability of data at EU level.

• There is a need to ensure further high level political support for the provision by Member
States of comparable and reliable data on the five key epidemiological indicators and of
adequate resources.

• Member States are invited to support the evaluation process, in particular by enriching the
1999 baseline data10, by providing similar information in 2004 (for the year 2003), and by
providing in due time for the final evaluation information on their evaluation mechanisms,
methods and results.

Achievements at EU level

• The availability and quality of data and information on the drug situation at EU level have
increased. An annual report on the drugs situation in the European Union is produced by
the EMCDDA. Europol produces the annual “Situation Report on organised crime in the
European Union” and the “EU situation report on drug production and drug trafficking”.
These reports are available at the web sites of these agencies and through the Office for
Official Publications of the European Communities.

8 The five 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).
9 Cordrogue 67 (not published).
10 EMCDDA and Europol report “Presentation of the first baseline for an evaluation of the European Union
Strategy on Drugs (2000-2004). Cordrogue 72.

7

• The EMCDDA and Europol have produced for the first time baseline data referring to the
year 199911 in the fields of demand for and supply of drugs to be used in the final
evaluation of the Action Plan.

• The EMCDDA has,

together with the Member States, developed guidelines for the
implementation of the five key epidemiological
indicators as well as guidelines for
outreach work and prevention. The guidelines on the implementation of the five key
epidemiological indicators were formally adopted by the EMCDDA Management Board
and were also incorporated in the Council Resolution of December 2001 mentioned above.
At the end of 2001, the Commission and the EMCDDA set up an informal working group
to ensure the concrete implementation of these guidelines and to avoid any overlap with
existing or future Community programmes in this area.

• A lot of useful information has been obtained in the compilation of the Progress Review
prepared by the Commission on the basis of the contributions of the Member States on the
level during 2000 – 2002 (see
implementation of the EU Action Plan at national
section 2.2.1).

• Information on Member States’ drug legislation was also collected by the Commission
during the preparation of the proposal for a Council Framework Decision laying down
minimum provisions on the constituent elements of criminal acts and penalties in the field
of illicit drug trafficking12.

• The Action Plan has also resulted in a number of databases that have been developed or are
under the process of being developed. There is a database on the development projects the
Member States and the Community have in third countries as well as another one for
projects in the candidate countries. These databases contain information on the goals of the
projects, on the partners involved, budgets and timeframes. They have been created and are
managed by the Commission services to help in avoiding duplication and overlapping in
project planning and implementation by the Commission and the Member States.

• More information on emerging trends on drugs will be available as a result of a project
based on Council Conclusions13. This recently started project with eight Member States
participating, is co-financed through the Community Programme on Drug Prevention.

• According to item 2.1.6 of the Action Plan, the Commission in consultation with the
EMCDDA launched in Spring 2002 an Eurobarometer survey on “Youth and Drugs”
covering the population of the 15 EU Member States aged 15-24. The report on this survey
will be available on the Europa web site by the end of 2002.

Areas where further progress is needed at EU level

• Following the Council Resolution of December 2001 on the implementation of the five key
epidemiological indicators, Member States and the Commission, in close co-operation with
the EMCDDA, should continue to examine the best ways and means to support

11 1999 is the last year before the start of the Action Plan. 1999 data will be compared with data for 2003 in order
to measure the impact of the Action Plan.
12 Conclusions of Professor De Courrière, available in the Europa web site:
http://europa.eu.int/comm/justice_home/unit/drogues/rapport_maitre_en.pdf
13 Council Conclusions on networking information on emerging trends and patterns in drug abuse and poly-drug
use and the associated risks (OJ C17, 19.01.2001).

8

implementation of these indicators within the framework of Community public health
indicators, and to take appropriate steps.

• The EMCDDA together with Europol and in co-operation with the Member States should
continue to develop, in particular, supply side indicators as requested in section 2.1.3 of the
Action Plan.

• The EMCDDA and Europol should compare 2003 data with the 1999 baseline data in the

field of drugs in connection with the final evaluation of the Action Plan.

• There are some areas where further comparable information at EU level is needed such as

on drug related budgetary spending and the application of drug laws14.

• More information is required on emerging trends in drug use patterns, as well as on new
drugs coming to the drugs markets. This information is especially needed as regards
synthetic drugs, where new trends may arise and new substances may turn up very fast.

• The possibility of developing an inventory of drug related research projects at national and

EU level should be further explored.

• The Eurobarometer survey on “Youth and Drugs” covering the population of the 15 EU
Member States aged 15-24 should be repeated in 2004 in view of the final evaluation of the
Action Plan.

3.2.2.

Evaluation

Achievements at national level

• Work is in progress in some countries to establish effective monitoring and assessment of
actions. The issue of the difficulty in assessing actions in this area has been raised by
several Member States. However, there are cases where it has been possible to establish
specific indicators for monitoring changes in the field of drugs.

Areas where further progress is needed at national level

• Evaluation of all drug related activities needs to be regularly carried out in all Member

States.

Achievements at EU level

• The Commission has launched the external evaluation of the European Community
legislation on chemical precursors and of the Joint Action on new synthetic drugs. Reports
for both evaluations have been produced and are currently being examined by the
Commission.

• The Commission carried out the mid-term evaluation of the Community Programme on
Drug Prevention. This evaluation was useful for the preparation of the new Public Health
Programme.

14 The EMCDDA has produced a study on drug related budgetary spending and another on the prosecution of
drug users in the EU. More information is available at http://www.emcdda.org.

9

• The Community financial programme ”North-South co-operation in the campaign against
drugs and drug addition” with developing countries has also been evaluated by external
independent consultants. The Commission is examining how best
to address its
conclusions.

• The information network (Reitox) of the European Monitoring Centre for Drugs and Drug
Addiction was the subject of an external evaluation. Proposals for improving efficiency of
the Reitox network will be submitted to the Management Board of the EMCDDA in
January 2003.

• The Council for its part is carrying out a peer evaluation of the drug law enforcement

systems in the Member States (see section 2.2.3).

Areas where further progress is needed at EU level

• Evaluation of all drug related activities should be further promoted and implemented on a
regular basis. Appropriate evaluation tools should also be further developed by the
EMCDDA and Europol in co-operation with the Member States.

3.3.

Demand reduction, prevention of drug use and of drug related crime

3.3.1. Demand reduction and prevention of drug use

Achievements at national level

• Member States have to a large degree given greater priority to prevention and treatment
and followed the lines set out in the Action Plan. The development of comprehensive
in all Member States and
demand reduction programmes is considered important
implementation is often performed locally in collaboration with civil society and NGOs.

• All Member States view the development of comprehensive prevention programmes
covering both licit and illicit drugs as important and school-based prevention is a priority.

• Action to provide adequate leisure-time activities as alternatives to drugs especially target

vulnerable groups in deprived urban areas.

• A wide variety of low threshold facilities, outreach work and mobile units target those drug
users who are most difficult to reach and are seen as an important gateway to reduce drug
related harm such as infectious diseases and overdose.

• Information and awareness rising are part of demand reduction strategies in all Member
is appropriate to complement mass media
it

is generally recognised that

States. It
campaigns with direct contact with target groups.

• A wide range of treatment services is provided by all Member States, including drug-free

and medically assisted treatment.

• Needle exchange and methadone substitution treatment feature particularly prominently
amongst the measures in place in Member States in view of reducing the risks associated
with drug dependence.

10

• Treatment for drug addicts in prisons is also being taken seriously. Drug-free sections in

prisons are becoming more common.

• Member States have also been active in setting up mechanisms for providing alternatives
to prison for drug addicts. Innovative ideas, such as creating specialised drug courts, are
being implemented to tackle the issue more effectively.

• With regards to research, all Member States have studies or research programmes in place

and often specific research institutes have been set up for this purpose.

• Member States are undertaking considerable research into driving under the influence of

illicit drugs.

Areas where further progress is needed at national level

• More effort should be made to develop innovative prevention programmes. The results
should then be disseminated more effectively using European channels like the EMCDDA
database on drug demand reduction programmes (EDDRA).

• The evaluation shows that development of specific drug related training courses and
networks for healthcare, education or youth professionals has been slow. Common
standards for training modules, exchange of personnel and best practices should be more
actively developed using the relevant Community Programmes available such as Leonardo,
Socrates or Youth.

Achievements at EU level

• On the initiative of the Spanish Presidency the Council adopted a Resolution on the
incorporation of drug prevention programmes in school curricula15. The Council and the
Representatives of the Member States adopted also a Resolution on the prevention of the
recreational use of drugs16.

• Many drug prevention projects and networks have been funded through the Community
Programme on Drug Prevention. By 2003 the Public Health Programme (2001– 2006)17
will replace the Community Programme on Drug Prevention and will continue to include
drugs as an issue to be covered.

• In May 2002 the Commission presented a proposal prepared in consultation with the
EMCDDA for a Council Recommendation on the prevention and reduction of risks
associated with drug dependence18. The proposed Recommendation specifically addresses
the second public health target of the EU Drugs Strategy to reduce substantially over five
years the incidence of drug related health damage using risk reduction measures that have
been shown to be successful. The proposal covers information and counselling, outreach-
work, peer involvement, emergency services, networking agencies, integration between
health and social
and training and accreditation of professionals. The
Recommendation is expected to be adopted by the Council before the end of 2002.

care

15 CORDROGUE 4 REV 3 – 08.05.2002.
16 CORDROGUE 2 REV 3 – 15.04.2002.
17 OJ L 271, 09.10.2002, p. 1
18 COM (2002) 201 final of 08.05.2002.

11

• Within the 6th Framework Programme for Research and Technological Development the
Commission is proposing to finance research e.g. on amphetamine type stimulants and
more general research on synthetic drugs. Continued research is also proposed on the
effects of drugs on the brain. Possibilities for further drug related research funded by the
6th Framework Programme also exist in many parts not specifically drug related (e.g. in
Genomics & Biotechnology for Health).

• The EU Working Party on ‘Alcohol, Drugs, Medicine and Driving’ has made a number of
recommendations regarding the issue of driving under the influence of illicit drugs. These
recommendations are notably in relation to the adoption of a harmonised procedure to test
for illicit drugs, supporting research activities to develop roadside testing, and training
programmes.

Areas where further progress is needed at EU level

• It is important that the Commission, as well as Member States, actively inform the various
networks and professionals in the drugs field on the possibilities to contribute towards the
achievement of the objectives of the Public Health Programme. This will enable them to
make full use of its potential for assistance in the drugs field.

• The possibilities of funding under the 6th Framework Programme for Research and
Technological Development should be fully explored by all the actors involved. The
EMCDDA could play an active role in disseminating information on research opportunities
and results.

• The exchange of best practice in relation to all aspects of drug prevention, demand
risks associated with drug dependence should be

reduction and the reduction of
encouraged.

• The recommendations of the EU Working Party on ‘Alcohol, Drugs, Medicine and
Driving’ should be followed up by the Commission and the Council. In this context, the
Commission has proposed to include the issue of driving under the influence of illicit drugs
in the 6th Framework Programme on Research and Development.

3.3.2.

Prevention of drug related crime

Achievements at national level

• The police play an important role in this area in all Member States. Information campaigns

through schools are also carried out in Member States.

Areas where further progress is needed at national level

• There should be more emphasis at national

level by all the relevant actors on the

prevention of drug related crime.

• Increasing the involvement of civil society in the prevention of drug related crime should

be further explored.

• More research in this area should be carried out.

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Achievements at EU level

• The European Crime Prevention Network (ECPN) was officially established by a Council
Decision of 28 May 200119. The aim of this Network is to contribute to developing the
various aspects of crime prevention at Union level and to supporting crime prevention
activities at local and national level. Although covering all types of crime, the Network
pays particular attention to the fields of juvenile, urban and drug-related crime.

Areas where further progress is needed at EU level

• There should be a further exchange of experience and best practices using, in particular,

the ECPN as a tool.

3.4.

Supply Reduction

Achievements at national level

• Member States devote considerable resources to combating the supply of and trafficking in

drugs.

• Co-operation between police, customs and border control authorities takes place through
mechanisms such as local agreements, Memoranda of Understanding and formal joint
teams.

• Co-operation between the law enforcement authorities of different Member States has been
intensified to fight transnational drug trafficking more effectively. Examples of such co-
operation include Hazeldonk20, regional networks to combat maritime drug trafficking,
joint surveillance operations, profiling of drug traffickers at major international airports
and joint teams.

• Various initiatives have been implemented to combine forensic and law enforcement data

to tackle the production and trafficking of synthetic drugs.

• With regard to money laundering national co-ordination mechanisms have been reinforced

and new structures have been put in place.

Areas where further progress is needed at national level

• Co-operation between police, customs and border control authorities at national level

should be intensified.

• The creation of joint investigative teams has an important role to play in combating drug
trafficking between Member States. Member States should ratify the EU Convention on
Mutual Assistance in Criminal Matters21, which allows for the creation of these teams and
take the necessary measures to comply with the provisions of the Framework Decision on
joint investigation teams.

19 OJ L 153, 08.06.2001, p. 1.
20 Regional mechanism for consultation, planning and operational co-operation to combat the cross border trade
in illicit drugs and drugs tourism involving France, Belgium, the Netherlands and Luxembourg.
21 OJ C 326, 21.11.2001, p. 1.

13

• Member States should take the necessary measures to comply with the provisions of the
Framework Decision on the European Arrest Warrant22 and the surrender procedures
between Member States, which will contribute to improving judicial co-operation in
combating drug trafficking.

• The establishment of

law
enforcement agencies should be considered where these do not already exist. Mechanisms
for co-operation which do exist must be made to work in practice.

for co-operation between national

formal mechanisms

• Council

legal instruments against money laundering should be fully implemented at
national level, in particular Directive 2001/97/EC on the prevention of the use of the
financial system for the purpose of money laundering 23.

Achievements at EU level

• Community financing Programmes such as OISIN and FALCONE have played an
important role in facilitating co-operation between the Member States’ law enforcement
authorities.

• The Council Decision establishing a framework programme on police and judicial co-
operation in criminal matters including the prevention on drug related crime (AGIS)24 will
contribute to the general objective of providing EU citizens with a high level of protection
in an area of freedom, security and justice. Actions in relation to tackling the drugs issue
65 million has been
form an integral part of this programme. For the period 2003 to 2007
allocated to the programme.

€

• In 2001, the Commission presented a proposal for a Council Framework Decision laying
down minimum provisions on the constituent elements of criminal acts and penalties in the
field of illicit drug trafficking25. The aim of the proposed instrument is to target illicit
trafficking, which is the source of supplies of narcotic drugs and psychotropic substances
in our societies. Illicit drug trafficking often involves several Member States, so action by
the European Union can contribute real added value to national policies. The adoption of
this Framework Decision would represent a step forward in European Union action against
drug trafficking.

• In its 2002 Communication entitled “Towards integrated management of the external
borders of the Member States of the European Union” the Commission recommends
certain short and medium term actions in the development of a common policy for
management of the external borders of the European Union. The implementation of these
actions has the potential to further inhibit drug trafficking into the Union.

• The Joint Action on new synthetic drugs of June 1997 is a useful mechanism for the
exchange of information on synthetic drugs and for the control of such drugs throughout

22 Based on the principle of mutual recognition of court judgements, the Commission had proposed a European
Arrest Warrant designed to replace the current extradition system by requiring each national judicial authority to
recognise, ipso facto, and with the minimum of formalities, requests for the arrest and surrender of a person
made by the judicial authority of another Member State. This proposal has been adopted by the Council in 2002.
23 OJ L 344, 28.12.2001, p. 76.
24 OJ L 203, 01.08.2002, p. 5.
25 COM (2001) 259 final.

14

the EU. Since 2000 five synthetic drugs26 have been examined using its provisions. Two of
them (4-MTA and PMMA) have been made subject to EU wide control measures. Council
conclusions in relation to GHB and Ketamine were also adopted, recommending that
Europol and the EMCDDA closely monitor the misuse of both substances over a period of
one year.

• Various initiatives have been taken to explore the possibility of combining forensic and
law enforcement information with a view to tackling the production and trafficking of
synthetic drugs. For example, the CASE (Comprehensive Action against Synthetic Drugs
in Europe)27 project is an important instrument for co-operation within the Union and its
implementation is viewed as a priority by Member States. Other projects include the SMT
project (Development of a harmonised method for the profiling of amphetamines) and the
CAPE project (Central Analysis Program Ecstasy).

• Europol has evaluated and upgraded its LOGO28 system relating to the collection,
assessment and dissemination of law enforcement and ballistic data on ecstasy seizures,
involving all Member States.

• With regard to preventing the diversion of chemical precursors, co-operation with the
chemical industry has been improved and made more consistent across the Community. A
set of Guidelines for the chemical industry has been produced by the Commission. These
aim at improving their understanding of the legislation, their co-operation with the national
competent authorities and raising their awareness of new trends and chemicals being used
in the illicit manufacture of synthetic drugs. A reference to the Guidelines and the list of
chemicals for voluntary monitoring is made in the Community precursor legislation.

• Commission proposals for the modification of Council Regulation (EEC) No 3677/90
laying down measures to be taken to discourage the diversion of certain substances to the
illicit manufacture of narcotic drugs and psychotropic substances have been adopted. This
legislation has been amended to take account of changes to the 1988 UN Convention
against Illicit Traffic in Narcotic Drugs and Psychotropic Substances (there are presently
23 scheduled precursor chemicals) and to clarify references to mixtures and pre-export
notifications.

• A proposal for a Regulation of the European Parliament and of the Council to replace
current Directive 92/109/EEC on the manufacture and placing on the market of certain
substances used in the illicit manufacture of narcotic drugs and psychotropic substances
has been prepared and adopted by the Commission29. This proposal provides for the
strengthening of the existing rules on a number of substances used in the production of
some illegal drugs. It would also include rules on licensing, customer declarations,
labelling and a monitoring procedure.

• An agreement on precursor control between the Community and Turkey has been
concluded and will be signed shortly. This agreement is aimed at improving co-operation

26 MBDB, 4-MTA, GHB, Ketamine and PMMA.
27 A pilot project launched by Sweden in relation to impurity profiling of amphetamines.
28 Europol’s Ecstasy Logo System allows for non-personal data and photographs of synthetic drugs arising from
drug seizures reported by the Member States to be processed by Europol to facilitate the identification of
matches and links.
29 COM (2002) 494 final.

15

and enhancing the controls on trade between the Member States and Turkey in the
scheduled precursor chemicals.

• An evaluation of the European Community precursor legislation has been undertaken and

the final report has been produced.

• At the UN Commission on Narcotic Drugs in 2001 the European Commission introduced a
Resolution aimed at mobilising the international community to take more action aimed at
preventing the diversion of precursors used in the illicit manufacture of synthetic drugs.
This was followed by a major international meeting on amphetamine-type stimulant
precursors in June 2002 in Washington partly funded by the Commission and where a Task
Force to take the work forward was established.

• A number of Member States and the Commission have been particularly active in two
important ongoing international operations to prevent the diversion of chemical precursors,
namely Operation Purple and Operation Topaz. Operation Purple is a voluntary
initiative to track individual shipments of potassium permanganate in
international
international trade to prevent diversion into illicit
trafficking for the manufacture of
cocaine. Operation Topaz is a comparable initiative for acetic anhydride in order to prevent
diversion into the illicit manufacture of heroin.

• Directive 2001/97/EC on the prevention of the use of the financial system for the purpose
of money laundering was adopted in December 2001. This has enlarged the scope of
Directive 91/308/EEC of the Council on money laundering30 by widening the definition of
money laundering and extending the range of bodies to be designated under anti-money
laundering legislation.

• The Council Decision of 17 October 200031 provides the basis for the exchange of
information between the Financial Intelligence Units of the Member States (FIUs) in
relation to tackling money laundering.

• A pilot project on developing the automatic electronic exchange of information between
Financial Intelligence Units has also been implemented (the FIUNET project) and its
further development is under discussion within the Council and the Commission services.

• The Council Framework Decision of June 2001 on money laundering32 requires Member
States to have in place legislation and procedures so that the proceeds of crime may be
confiscated at the request of another Member State.

• With regard to judicial co-operation, the EU Convention on Mutual Assistance in Criminal
Matters of May 2000 and its 2001 Protocol should be ratified by all EU Member States by
the end of 2002. This Convention allows for the creation of joint investigative teams.
Furthermore, a Framework Decision on joint investigative teams was adopted by the
Council in June last33. A number of other important initiatives have been taken to promote

30 OJ L166, 28.06.1991, p. 77.
31 OJ L 271, 24.10.2000, p. 4.
32 OJ L 182, 05.07.2001, p. 1.
33 OJ L 162, 20.06.2002, p. 1.

16

judicial co-operation and which are relevant to the drugs area: the European Judicial
Network34, Eurojust35 and the European Arrest Warrant.

• The Convention on mutual assistance and co-operation between customs administrations
(Naples II)36 provides the legal basis for the provision of mutual assistance and co-
operation between Member States customs authorities and other authorities with
jurisdiction for implementing its provisions with the aim of (a) preventing and detecting
infringements of national customs provisions and (b) prosecuting and punishing
infringements of Community and national customs provisions. This Convention may also
be used to enable the establishment of joint investigative teams.

Areas where further progress is needed at EU level

• Co-operation between Member States law enforcement agencies dealing with drug
trafficking should be further intensified, both at EU and bilateral levels, including co-
operation with Europol.

• The various initiatives which have been referred to in the Progress Review by the Member
States and which involve more than one Member State should be examined as a basis for
further work in this area.

• All legal instruments which provide for the creation of joint investigative teams should be
fully utilised in order to provide fresh impetus to the establishment of joint teams between
Member States.

• The introduction and use of profiling of drug traffickers at the main international airports
in order to bring about their arrest and to obtain intelligence to assist in dismantling the
organised crime groups involved should be promoted and further developed.

• Joint surveillance operations should focus on priority routes for priority drugs, with an
emphasis on obtaining intelligence on the groups behind the trafficking and with the full
involvement of Europol.

• Co-operation between the drug liaison officers of the Member States should be intensified.
The possibility of having drug liaison officers common to several Member States, both
within the EU and in third countries, should also be explored.

• Following the evaluation of the Joint Action on new synthetic drugs changes to the

legislation will be introduced to enhance action against synthetic drugs.

34 On the basis of the 1997 action plan to combat organised crime the Council adopted in June 1998 a Joint
Action on the creation of a European Judicial Network. This Network was officially inaugurated on
25 September 1998. It provides legal and practical information on mutual legal assistance to practitioners and,
generally, works to improve co-ordination of judicial co-operation between Member States. The work of the
network is carried out by contact points, identified by each Member State.
35 To reinforce the fight against serious organised crime, Eurojust was established in March 2002. It is composed
of national prosecutors and magistrates, detached from each Member State. Eurojust has the task of facilitating
investigations in
the proper co-ordination of national prosecuting authorities and of supporting criminal
organised crime cases. It also co-operates closely with the European Judicial Network, in particular, in order to
simplify the execution of letters rogatory.
36 OJ C 24, 23.01.1998, p. 2.

17

• The feasibility of incorporating into national legislation generic classification of specific
groups of synthetic drugs should be examined in order to facilitate consideration by and
co-ordination between Member States in this regard.

• Following the evaluation of the European Community precursor legislation the Member
States will be consulted in relation to possible changes to the legislation, guidelines and
working practices.

• Further to the major international meeting on amphetamine-type stimulant precursors held
in Washington in June 2002 at which a Task Force on amphetamine-type stimulant
precursors was set up, a meeting is planned for December 2002. At this meeting working
groups will be charged with taking certain actions forward and reporting back to the Task
the diversion of
Force. This should result
amphetamine-type stimulant precursors.

in concrete actions to further prevent

• The possibility of setting up a common database on precursors of synthetic drugs should be

explored.

• Co-operation and the exchange of information between law enforcement agencies engaged

in combating money laundering should be increased.

3.5.

International

3.5.1.

Enlargement

Achievements at national level

• All Member States are active and devote significant resources to co-operation with almost

all the candidate countries.

Areas where further progress is needed at national level

• Member States need to continue and improve their co-operation with the candidate

countries.

Achievements at EU level

• The importance of the EU Drugs Strategy and Action Plan as a model for national global,
balanced and integrated drug policies in the candidate countries was emphasised in a Joint
Declaration by the Member States, the Commission and the Candidate Countries which
was signed on 28 February 200237. This Declaration emphasised the importance of
developing sufficient administrative capacity and co-ordination between relevant
authorities to tackle the drugs problem.

• The Joint Declaration was followed by a meeting between the members of the Council
Horizontal Working Party on Drugs with the candidate countries in June 2002. After this
meeting an EU - Candidate Countries conference on drugs was held in Madrid.

37 Joint declaration on drugs of the Ministers of the European Union in association with the European
Commission, and the Candidate Countries (Cordrogue 07 REV 2/2002 of 15.02.2002).

18

• The drugs elements of the Justice and Home Affairs Chapter of the EU acquis have been

closed for ten candidate countries in the framework of the accession negotiations.

• The Commission has launched formal negotiations with the candidate countries in view of

their participation in the work of the EMCDDA.

• The founding Regulation of the EMCDDA was amended to enable the transfer of know-

how to the candidate countries38.

• The PHARE programme has been especially useful in progressively familiarising the
candidate countries with the EU acquis on drugs. It has allowed intensified co-operation
with these countries in both supply and demand reduction. The twinning projects, where
experts from a Member State assist the candidate country in a particular area, have played
an important part. In total,
20 million has been made available for drug control activities
under the PHARE 2000 programme. A further
2 million has been allocated to a joint
EMCDDA-PHARE project to prepare the candidate countries for their participation in the
work of the EMCDDA.

€

€

• The pre-accession financial assistance provides financial assistance to Cyprus, Malta, and
Turkey in order to familiarise them with the drugs elements of the Justice and Home
Affairs Chapter of the EU acquis. This pre-accession financial assistance will also provide
funding in view of helping these countries to participate in several Community
programmes and agencies, such as the activities of the EMCDDA or the 6th Framework
Programme for Research and Technological Development.

• The Commission has recently started a project for setting up a Focal Point in Turkey for
the collection of information on the drug situation in view of its participation in the
information network (Reitox) of the EMCDDA.

• There is a database created by the Commission services on the technical assistance projects
the Member States and the Community have in the candidate countries. This database was
created and is managed by the Commission services to help in avoiding duplication and
overlap in project planning and implementation by the Commission and the Member
States.

Areas where further progress is needed at EU level

• There should be close co-operation, at the political and technical levels, with the candidate
countries in the implementation of the Joint Declaration on Drugs and of the drugs
elements of the Justice and Home Affairs Chapter of the EU acquis.

• Negotiations for participation of the candidate countries in the work of the EMCDDA

should be finalised.

• Especially at

the political level the EU should continue to encourage the candidate
countries to give political support to creating stable institutional and legal bases for
operative work in the field of drugs and to establishing effective contacts and co-operation
with the EMCDDA, Europol and other relevant bodies. Candidate countries need to be
encouraged to strengthen their overall capacities, including their administrative capacity

38 OJ L 253, 07.10.2000, p 1.

19

and their multi-agency co-operation, especially in the field of synthetic drugs and
precursors.

• The present Phare and the pre-accession financial assistance drug projects should be
completed. Future assistance should be on a co-financing or other awareness raising basis
to create an effective political commitment in the beneficiary countries in the drugs field.

• The database on the technical assistance projects the Member States and the Community

have in the candidate countries should continue to be updated.

3.5.2.

International co-operation

Achievements at national level

• Member States devote considerable resources to drug projects in third countries,

in

particular in Latin America and the Caribbean and Asia.

• Co-operation with the TACIS countries and with Iran and Afghanistan has been
strengthened by Member States. Furthermore the United Kingdom is taking the lead role in
co-ordinating international efforts to assist the Afghan Government to tackle drugs as
decided at the Geneva donors meeting in April last. Germany is taking the lead role in
developing the capacities of the Afghan law enforcement services. Italy has assumed the
same role in relation to the development of the judicial system.

• The ODCCP39 remains a major international partner of the Member States both as a source
of expertise and as an implementation agency for co-operation projects in third countries.

Areas where further progress is needed at national level

• With regards to action in the international sphere Member States supplied far less
information than for many other areas of the Action Plan. This may indicate that Member
States choose to devote resources to regions on the basis of criteria other than those related
to tackling the drugs issue. The development of co-ordinated international action in the
drugs field may be inhibited as a result.

Achievements at EU level

• As indicated in the Action Plan and in its 2001 Communication, the Commission is
concentrating its efforts on producing and transit countries and regions, 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.

• 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. The Action Plan on drugs between the EU and Central
Asia has been endorsed by the EU and by four Central Asian Republics. Pakistan has been
recently added to the list of countries that benefit from trade preferences linked to the
promotion of export and income-generating activities that provide an alternative to drug
production and trafficking [the Generalised System of Preferences (GSP) Drugs regime].

39 UN Office for Drug Control and Crime Prevention.

20

• The Commission is actively working in Afghanistan to develop an effective rehabilitation
programme, which would provide alternative economic opportunities and credit systems in
rural areas, general improvement and strengthening of infrastructure and social welfare at
thus laying the ground for long term sustainable
the central and provincial
development. It is estimated that in 2002 almost
40 million worth of European Union
projects were located in the poppy dependent areas of Afghanistan and in those areas
providing seasonal labour for the harvesting season.

levels,

€

• In the 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) and second by giving specialised training on drugs including supporting a drug-
related regional intelligence network.

• In Latin America and the Caribbean, the EU and Member States continue to be particularly
active in terms of political dialogue, the financing of co-operation projects and the granting
of trade preferences in the form of the “GSP Drugs regime” for Andean and Central
American countries. A number of consultation mechanisms are being used for
strengthening co-operation and co-ordination, such as the Co-ordination and Co-operation
Mechanism on Drugs between the EU, the Latin American and the Caribbean Countries
and the High Level Dialogue between the EU and the Andean Community on Drugs. The
Commission is programming in 2002 a regional action with the Andean region to prevent
the diversion of precursors. In relation to the Caribbean and in order to give continuity to
the undertakings of the Barbados Plan of Action, drug control will be one of the areas
supported by the 9th EDF Caribbean regional programme (2002-2007).

• As far as the Mediterranean countries are concerned, all the association agreements with
these countries (Israel, Tunisia, Morocco, Jordan, Egypt, Lebanon, Algeria and Syria40)
established in the framework of the Euro Mediterranean Partnership, contain an article on
drugs, covering both supply and demand reduction. The implementation of
these
agreements will contribute to enhancing co-operation with the Mediterranean countries
also in the field of drugs. A regional co-operation programme in justice and home affairs
which was launched at the 2002 Euro-Med Ministerial Conference in Valencia, identifies
the fight against drugs as a top priority for co-operation between both regions. A project on
the training of police officers to improve operational co-operation in police matters,
including drugs trafficking is under consideration.

• EU international efforts should also comprise those third countries that produce drugs or
are transit countries for drugs entering the EU, such as Russia, Ukraine, Moldova and
Belarus. The EU Action Plan on common action for the Russian Federation on combating
organised crime identifies drugs as a priority area for judicial co-operation and law
enforcement co-operation in the fight against organised crime. The EU Action Plan on
Justice and Home Affairs concerning Ukraine foresees assistance against drug trafficking
and drug abuse in particular in the field of prevention and rehabilitation. The Belarus,
Ukraine, Moldova anti-drug programme (BUMAD) aims at strengthening the legal and
administrative structures and to support these countries' efforts to combat drug trafficking.

40 The Association Agreements with these countries have been all signed, apart from the one with Syria which is
currently under negotiation.

21

• The bulk of the Commission’s projects against drugs are financed from geographic budget
lines is complemented by
lines. Expenditure on drugs projects under these budget
expenditure under Budget Line B7-6310 (North-South Co-operation in the campaign
against drugs and drug addiction) which is a global and thematic instrument for developing
pilot projects on a regional level in the field of drugs.

• Approximately half of the number of drug projects (and about 80% of the financing for
these projects) implemented by the EU and its Member States in developing countries
concern Latin America and the Caribbean. The amount involved in these regions is about
€
241 million.The other half concerns projects implemented on the heroin route (which has
received a financing of about
22 million from the EU) and other projects in different
€
Asian and African countries to which the EU has given support in the fight against drugs (
40 million).

€

• There is a database created by the Commission services on the technical assistance projects
the Member States and the Community have in third countries in the field of drugs. This
database was created and is managed by the Commission services to help in avoiding
duplication and overlap in project planning and implementation by the Commission and
the Member States.

• The Commission considers the ODCCP to be a relevant international partner in the context
of drugs related activities. It wishes to examine further fields of co-operation and to
continue its financial co-operation with the UNDCP41. Other UN bodies (e.g. UNESCO
and UNDP) are implementing EU projects that are focused on drugs or where drug
concerns are an important component.

• The EU Member States and the Commission play an active role in the work of the UN

Commission on Narcotic Drugs and in preparing EU positions for its meetings.

• The Dublin Group provides an informal mechanism for the European Union and its
Member States to discuss policy issues regarding drugs with a number of important
international partners. In addition to discussing specific policy issues, this group reviews
the drugs problem in specific regions on the basis of regional reports prepared by the
regional Dublin Group chairs.

Areas where further progress is needed at EU level

• International action could be improved through a more effective co-ordination of action in
third countries at EU level. In this regard, clear geographic priorities for the Union’s
approach to the fight against drugs in third countries must be developed.

• The goals of the European Union, as part of the wider international community, in relation
to Afghanistan should be to assist the Afghan Government to eliminate opium poppy
cultivation and to dismantle networks, to end the economic and social dependence on
opiates and to reduce demand for opiates and other drugs within Afghanistan and
throughout the South West Asia region. In this regard international assistance to the
counter narcotics effort in Afghanistan must be co-ordinated.

41 UN Drug Control Programme.

22

• Budget Line B7-6310 (North-South Co-operation in the campaign against drugs and drug
addiction) has recently undergone an external evaluation. The amount available under this
line has been recently reduced. The Commission is examining the way to address both the
conclusions and recommendations of the evaluation and the decision of the budgetary
authority.

• The EU and its Member States should continue to develop EU positions in international
fora dealing with the drugs issue, in particular the UN Commission on Narcotic Drugs.

• The database on the technical assistance projects the Member States and the Community

have in the third countries should continue to be updated.

4.

CONCLUSIONS AND PROPOSALS

Since the adoption of the EU Drugs Strategy in December 1999 and of the Action Plan in
June 2000, considerable progress has been made in implementing the Action Plan by all the
actors involved and in all areas covered:

• The EU Drugs Strategy and Action Plan on Drugs 2000-2004 have been taken as a central
reference point for action by all those involved in their implementation. They provide a
framework for all drug-related activities and initiatives in the Member States as well as at
EU level.

• The Action Plan is comprehensive and covers the full range of activities in the drugs field.

• Many initiatives have been adopted by the Council on the basis of the EU Drugs Strategy
and Action Plan and a number of important proposals from the Commission or Member
States are under discussion (see Annex 3).

• Balanced national action plans have been developed by many Member States in line with

the principles of the EU Action Plan.

At the same time much work remains to be done as the analysis made in Chapter 3 of this
Communication demonstrates. Certain issues in particular should be noted:

• The issue of synthetic drugs must remain a top priority for the European Union and its
Member States, as emphasised by the Justice and Home Affairs Ministers of the EU
meeting in Denmark in September 2002.

• The evaluation of drug policies and drugs activities at national and EU levels should be
further developed. In this regard research has an important role to play in enabling an
evidence based approach to be taken.

• There should be close co-operation with the candidate countries in the implementation of
the Joint Declaration on Drugs and of the drugs elements of the Justice and Home Affairs
Chapter of the EU acquis.

• A more effective co-ordination of action in third countries at EU level is needed, with a

focus on the main producing and transit countries.

23

In order to take work forward on the implementation of the EU Action Plan on Drugs and in
preparation for the final evaluation the Commission proposes that:

(a) Specific priorities among the activities set out in the Action Plan should be established in
order to focus on key activities in the Action Plan. Deadlines where appropriate to achieve
these priorities should also be set. A mechanism should be put in place to monitor progress in
achieving them.

to include representatives from the Commission,

the Council
(b) A steering group,
Presidency, Europol and the EMCDDA, should be established in 2003 by the Presidency and
the Commission. The European Parliament is invited to appoint its representative to this
group. This steering group could oversee and provide guidance in relation to the preparation
of the final evaluation to be carried out by the Commission. It could in particular provide
guidance on the methodology and the evaluation tools to be used for this evaluation. This
steering group could also ensure continuity among the Council Presidencies that will be
involved in the evaluation process.

(c) Initiatives in the field of drugs brought forward during the remaining lifespan of the
Action Plan should be primarily focused on achieving the actions set out in this Plan. The
steering group could assist in ensuring that there is continuity in these initiatives.

(d) The EMCDDA and Europol should compare 2003 data in the field of drugs to be provided
by the Member States with the 1999 baseline data in connection with the final evaluation of
the Action Plan.

(e) A conference could be organised in 2004 to involve civil society in the future development
of EU Drugs policy.

(f) On the basis of contributions from the Member States, the EMCDDA, Europol and the
Commission itself, the Commission will prepare a Communication on the final evaluation of
the Action Plan by the end of 2004.

(g) The European Council of Copenhagen endorses this mid-term evaluation and its
conclusions and proposals.

24

ANNEX 1

Summary of Member States responses to the questionnaire on the
implementation of the EU Action Plan on Drugs (2000-2004)

Introduction

As part of the process of the mid-term evaluation of the Action Plan Member States replied to
a questionnaire covering the points of the Action Plan on which they were required to take
action. The Commission Services prepared a working document (‘the Progress Review’)
which presented the contributions of the Member States thematically following the order set
out in the Action Plan. The reply of each Member State is set out for each of the relevant
action points contained in the Plan. This annex contains a summary of the replies under each
action point. A copy of the full Progress Review is available on Europa Website.

1. Coordination

1.2.2 To ensure coordination/appointment of a coordinator

The issue of coordination of drug policy across government is clearly recognised as important
by all Member States. A variety of approaches have been adopted, depending on the country
structure. In certain cases, such as in France, Portugal, Sweden, Luxembourg, Italy, Spain and
UK an individual national coordinator has been appointed. In other cases a ministry plays the
role of the national coordinator (Ireland). Also in several countries an inter-ministerial
committee has been established in order to coordinate the drugs issue (Austria, Greece).

1.2.4 Ensure a balanced/coordinated approach

Most of the countries adopted a national plan or strategy on drugs, such as, for example,
Denmark, Finland, Greece, Ireland, Luxembourg, the Netherlands, Portugal, Spain and the
UK. Encouragingly certain Member States have developed balanced national action plans that
mirror the EU Action Plan. However this is not the case for all Member States.

1.3.2 Community/local engagement

Member States’ action plans include provisions for involving local communities in the fight
against drugs, particularly in urban areas. As such there seems to be a general recent trend of
decentralisation with responsibility for drugs often being devolved to the local level, mainly
regarding prevention issues. Within this framework residents/parents/community or solidarity
groups have been very involved in various fields of activity on a voluntary basis.

1.4.2 Providing appropriate funding for prevention

the allocation of resources, depending on the national
There are different ways for
administrative organisation (national,
level). Some countries, such as
federal or
Luxembourg, Greece and the UK, mention a recent increase of the resources allocated,
sometimes due to the implementation of the respective national drugs action plans.

local

1.5 Information sharing

Member States focus their activities in this area on the use of the EMCDDA and the Falcone
and OISIN programmes. Certain countries have engaged in bilateral initiatives with each
other and third countries. Occasional operational cooperation has taken place.

25

2. Information/Evaluation

2.1.1 Information on the 5 key indicators

All Member States are working towards providing comparable and reliable data on the five
key indicators. A structured approach is in place in most cases featuring specialised working
groups.

2.1.4 Appropriate political and financial support

Member States consider that they are providing appropriate funding for the delivery of
information on the 5 key indicators.

2.2.6 Evaluation of actions against drug-related crime

Work is in progress in some countries to establish effective monitoring and assessment of
these actions. Evaluation is not yet systematically carried out in all countries. Some countries
(Belgium and France for example) raised the issue of the difficulty of assessing actions in this
area due to the complexity and number of different aspects that should be taken into account.
Greece and Ireland have however been able to establish specific indicators. Italy makes an
interesting comment concerning the need to improve indicators, making them comparable at
Community and international level.

2.2.7 Studies on the role of organised crime groups in drug trafficking

A variety of projects are in place involving police forces and universities.

3. Reduction of Demand

3.1 Give greater priority to prevention/demand reduction

3.1.1. Reduce prevalence of drug use

3.1.1.1. Develop prevention programmes (including schools)

All Member States view the development of such programmes as important. In general, the
implementation of these programmes is undertaken in a decentralised way and local
communities, in collaboration with actors from civil society (teachers, parents, etc.), are
heavily involved, such as in Denmark. Alcohol and tobacco are often covered as well as illicit
drugs. The UK and Germany give details of interesting specific projects being undertaken.

3.1.1.3. Provide resources for alternatives to drugs

Action in this area is usually implemented at local level and Member States tend to target
vulnerable groups in deprived urban areas, often with the help of volunteers. Sports is one
commonly used alternative. The Netherlands give details of the exact budget allocated to
providing alternatives to drugs.

3.1.1.4. Develop innovative approaches to preventing the use of synthetic drugs

In general Member States see the problem of synthetic drugs as a growing one. Specific
programmes are often in place involving information campaigns through the Internet and in
night-clubs, education through schools, and research.

26

3.1.2 Reduce drug related health damage and deaths

3.1.2.1. Outreach work and other services for drug users

A wide variety of treatment programmes are in place in the Member States, including needle
exchange and substitution treatment, counselling, and outreach work. NGOs are often
involved in the implementation of such programmes. Efforts are on the whole being made to
target those who are more difficult to reach, and certain countries such as Sweden, Portugal
and the UK have recently increased efforts or resources dedicated to this area. Several
countries have noted that more services need to be provided in this area.

3.1.2.2. Innovative awareness raising campaigns

Programmes are in place in all Member States for specific target groups such as young people
in deprived areas, nightclubbers or alcohol addicts. It is recognised that the mass media is
often not the best tool for these campaigns and that it is appropriate to complement them with
direct contact with target groups.

3.1.2.3. Make use of new means of communication for information campaigns

In all Member States both telephone helplines and the Internet are used. In some cases such as
in the UK several websites may co-exist, targeting different issues (health aspects, prevention)
or target groups (youth, clubbers…).

3.1.2.4. Due attention is paid to drug issues in the training of doctors, social workers,
health professionals

Training is considered a priority in all countries, for generalist doctors, prison doctors, nurses
and pharmacists amongst others. In Ireland specific university courses have been developed.
In some cases new training on substitution treatment is being implemented although this is
still in the planning stages in many Member States. In some countries, training programmes
are regularly and systematically reviewed and improved.

3.1.2.5. Undertake research into the impact of driving under the influence of illicit drugs

A lot of work is being carried out in this area (universities as well as government agencies
participate), for example in Germany and the UK, although not all Member States are
involved. In some cases legislation on driving under the influence of illicit drugs already
exists. Checks for illicit drugs in those killed in road accidents are commonly carried out
across the EU.

3.1.2.6. Strategies to increase access to treatment of hard to reach drug abusers

This is considered important by all countries. Approaches tend to include outreach and low-
threshold programmes, drop-in centres
(including needle exchange and methadone
substitution treatment), all of which are coordinated at local level.

3.1.2.7. Vaccination against Hepatitis A and B

Another area viewed as important by Member States for harm reduction. The implementation
of such ideas however varies greatly from one country to another and in some cases practical
problems persist (for example treatment is not always free of charge, prisoners moving
prisons often do not finish their vaccinations). Hepatitis B seems to be the priority.

27

3.1.3 To increase substantially the number of successfully treated addicts

3.1.3.1 To provide a wide variety of treatment services for drug users

A wide range of treatment services is provided by all Member States. Some feature across all
Member States such as methadone substitution treatment. The treatment offered depends on
the target group (children, pregnant women). NGOs are often involved in the implementation
phase of the treatment. Greece’s response is particularly informative.

3.1.3.2 To allocate adequate resources to treatment

Funding for treatment programmes is locally managed in most Member States. This funding
is often being recently increased with the aims of reducing existing waiting lists and further
diversifying the types of treatment available.

3.1.3.3 To define guidelines for standards of treatment and for treatment programmes to
be evaluated (scientifically). Use of Community programmes.

Evaluation is carried out systematically only in some Member States (Denmark, Greece,
Ireland, Luxembourg, Netherlands, United Kingdom) even if
sometimes without a
coordinated approach of evaluation. Substantial monitoring of drug abusers undergoing
treatment does however exist in all Member States and efforts are being developed to improve
the assessment of treatments. Guidelines also exist in some, but not all countries.

3.1.3.4 Adequate attention to social and professional rehabilitation and reintegration of
addicts

This is considered to be very important by all Member States. Rehabilitation often takes place
both during and after treatment with vocational training (particularly in prisons) as well as
mentoring programs playing central roles. Funds from the European Social Fund (for
example, programmes like Urban, Integra, Equal, etc.) are frequently used for this purpose.

3.2 Make use of the possibilities of the Amsterdam Treaty, particularly in the areas of
health protection and research.

3.2.2 Provide adequate resources for research into addiction and its prevention

All Member States have studies or research programs in place and often organisations have
been specifically set up for this purpose. National Focal Points are often involved.

3.2.3 To identify new areas for action at EU level to reduce drug related harm

There is widespread use of the EMCDDA networks for the exchanging of information,
particularly with regards to training and best practice. In Scandinavia regional networks have
also been established.

3.3 To adopt a comprehensive approach

3.3.1 To develop and implement preventive actions for all age groups, particularly
children and young people

Children and young people are a priority for all EU. Initiatives in this area often involve
action through peer groups, parents
approach to
implementation is also common. Special mention can be made of Ireland’s establishment of a
specialised working group in this area as well as France’s dedication to this area of 30% of
MILDT budget.

and teachers. A regional/local

28

3.3.2 To address risk behaviour and addiction in general (licit and illicit substances)

All countries provide for action against both licit and illicit drugs.

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

3.4.1.1 To set up programmes to promote best practice in the prevention of criminal
activities in these areas

The police plays a central role in this area in all EU, although information campaigns through
schools are also important. NGOs are sometimes involved, as in Luxembourg. Denmark has
put
in place a research programme which has been promised support by the OISIN
programme. Universities carry out studies/research on juvenile urban crime.

3.4.2 To set up concrete mechanisms to provide alternatives to prison, especially for
young drug offenders

Many alternatives have been developed in the Member States and these are usually
conditional on the acceptance of treatment by the drug users. Community service is
commonly used. Cooperation between ministries (i.e. Ministry of Health and Ministry of
Interior) within Member States seems to be effective. In Finland research is currently being
undertaken into finding new alternative measures to prison. In Ireland, a pilot Drug Court has
been set up aiming to tackle this issue in a more effective way. This pilot-project will be
evaluated.

3.4.3 To intensify efforts to provide drug prevention and treatment services and
measures to reduce health related damage in prisons and on release from prison.

This is taken seriously by all countries. There are different approaches used all aimed at
getting more users into treatment. One common approach is that of establishing ‘drug-free’
sections in prisons, where methadone substitution treatment as well as counselling are
frequently used.

3.4.4 To consider the results of the EMCDDA study on handling drug addicts in the
justice system and to consider how to share best practice in this area.

Few countries refer directly to the EMCDDA study. Ireland has put in place an innovative
approach involving specialised ‘Drug Courts’. The UK suggests the use of the European
Crime Prevention Network as a forum for the exchange of best practice.

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

3.5.1 To promote the creation of a coordinated qualification in the area of drug
prevention.

Action in this area is considered important by Member States, although in some cases a
formal qualification does not yet exist and efforts still need to be made. The development of
specific training tools or centres, particularly for teachers, has been noted (for example in
France).

3.5.2 To develop and implement a network of trainers in the health and social sectors
who work with drug users.

In several countries networks have been developed in the health sector although these have
not always been specifically developed for combating illicit drug use. Finland and
Luxembourg, for example, have operationnal networks in this area.

29

3.5.3 To promote exchange of best practice in prevention and to bring projects to the
attention of other MS and the Commission.

The EDDRA network of the EMCDDA is being utilised as the tool for the exchange of
information and the national focal points play a leading role within this. Certain countries also
mention the Pompidou Group and the Horizontal Drugs Group as important forums for
information sharing in this area. The Internet is also noted as a useful tool.

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 cooperation between MS

4.1.1 To reduce substantially over five years the availability of illicit drugs

4.1.1.1 To ensure a high and uniform level of security at the external borders of the EU,
including joint control teams

Efforts have been made to enhance both national and international cooperation. Within
Member States joint
teams (multi-service units) have been established between police,
customs and border control authorities. France has also engaged in bilateral agreements to
combat maritime drug trafficking and several Member States have initiated projects with the
candidate countries funded by the PHARE programme.

4.1.1.3 To reinforce efforts against maritime drug trafficking.

Training of staff is well developed in the Member States. This is frequently supplemented by
exchanges of operational staff. The European MARINFO system as well as the RALPH
network (linking the harbours of Rotterdam, Antwerp, Le Havre, Felixstowe and Hamburg)
are important tools for action. Cooperation between the Scandinavian countries is also well
established. Article 17 of the UN Convention of 1988 is often cited by Member States as the
basis for action in this area.

4.1.1.4 To consider the possibilities of combining forensic and law enforcement
information with a view to identifying the production and trafficking of synthetic drug.
MS should exchange information on the analysis of samples taken from synthetic drugs
seizures.

All countries consider the implementation of the CASE project to be a priority. Projects on
ecstasy are being developed in Germany, Belgium, Denmark and Finland, and France is
putting in place measures to harmonise the analysis methods of synthetic drugs, making the
results more comparable and improving the exchange of information. In the Nordic countries
a network has been established to exchange samples. Ireland and Greece mention the
importance of the Early Warning System in this field.

4.1.1.5 To improve police, customs and judicial co-operation, notably through exchange
and training programmes.

Member States mention the PHARE, OISIN, TACIS, FALCONE Community programmes as
being useful. The UK and Netherlands have developed a bilateral co-operation initiative (the
Anglo-Dutch Forum) as have France, Germany and the Netherlands (Action Mercure).

30

4.1.1.6 To implement
transnational organised crime to combat drug trafficking.

the project based EU law enforcement

strategy against

Several countries have made use of funding from the OISIN programme in order to establish
co-operation with neighbouring countries. Europol is also mentioned several times.

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

4.1.2.2 To take concrete steps against money-laundering.

Implementation of Directive 2001/97/EC (on the prevention of the use of the financial system
for the purpose of money-laundering) is a priority in all EU countries. Coordination between
authorities at national level has been reinforced in some cases (France) and in others new
structures have been put in place (Ireland). Some international co-operation between Financial
Intelligence Units (FIU) is being developed. The FATF is also mentioned by several countries
as a reference.

4.1.2.3 To improve the system for analysing and exchanging information between
Financial Intelligence Units.

The Council Framework Decision of 17 October 2000 forms the basis for action in the
Member States and has led to the formulation of specific plans of action in many countries.
Bilateral initiatives are being developed (for example between the Netherlands, UK, France,
Luxembourg and Italy) as pilot projects for the FIU-network. Spain plays an important role in
co-operating with new FIUs from Latin American countries.

4.1.2.6 Training for customs and police in combating the diversion of precursors.

Training in this area exists in most Member States for customs and police staff although is
still limited in others. Many countries do not refer the pharmaceutical or chemical industries,
although Ireland and Finland have put in place measures in view of promoting co-operation
between these sectors in order to provide more effective controls. In Germany training
seminars have been organised in collaboration with Europol.

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

4.2.1 To establish as soon as possible joint investigative units between police, customs
and other law enforcement authorities.

Joint investigative units are still to be fully implemented in most countries. Often ad hoc co-
operation exists when needed but this is not yet a formal, institutionalised form of co-
operation. In general, Member States seem satisfied with the co-operation between their law
enforcement authorities, police and customs.

4.2.2 With the assistance of Europol where appropriate to reinforce co-operation against
drug-trafficking and to establish joint teams when dealing with drug trafficking between
Member States

Member States have underlined the role of Europol when dealing with drug trafficking
involving more than one country. Regional co-operation (for example the Hazeldonk group of
Benelux plus France and in the Nordic countries) is well developed although full joint teams
are not often used. France and Belgium are currently establishing a ‘Police and customs co-
operation centre’ in Tournai.

31

4.2.3 To promote regional co-operation where affected by similar drugs problems.

Regional co-operation exists and progress is being made in this area. The exchange of
information and of liaison officers is the most common form of co-operation.

4.2.5 To promote new investigation techniques and research and documentation of drug-
related crime.

New technologies are being used by all EU (such as the Internet) and new investigation
techniques are continually and increasingly developed. Spain is implementing a project
funded by the OISIN programme.

5. International

5.1 To progressively integrate the candidate countries and to intensify international co-
operation with other countries and international organisations

5.1.3 To continue to support the candidate countries in their efforts to combat drug
abuse and drug trafficking.

All countries are active and devote significant resources to co-operation with the candidate
countries. The PHARE programme is the main instrument for action in this area and
Twinning is an important component of this. Initiatives such as the Extraordinary meeting of
the Horizontal Drugs Group which included the candidate countries as well as the EU-
Candidate Countries Conference (both in June 2002) are mentioned amongst others. Several
countries have established co-operation agreements with neighbouring countries such as the
Baltic Sea Task Force. No mention is made of co-operation with Turkey.

5.1.5 To implement the Pre-accession pact on organised crime and extend it to all
applicant countries.

PHARE is the main instrument for the intensification of co-operation with the candidate
countries. Bilateral initiatives have been developed by some Member States such as Ireland,
Austria and Luxembourg.

5.2 To promote international co-operation, integrate drug control into EU development
co-operation and to support the efforts of the UN and UNDCP

5.2.2 To coordinate projects in third countries.

This is viewed as important by all countries. The UNDCP is the main channel of action,
although projects in third countries are also coordinated through the Dublin and Mini-Dublin
groups. Other regional projects, such as those in the Baltic States coordinated by the Nordic
Council of Ministers, are being established.

5.2.3 To strengthen co-operation with multilateral and international institutions.

All Member States co-operate with the UNDCP, and several are part of the UNDCP major
donors group which Finland is chairing during 2002. UNDCP’s strategic interventions in
target regions (eg Afghanistan) seem to be particularly important. Other forums such as the
Dublin Group, the Pompidou Group, and CICAD are also mentioned as being useful.

32

5.2.4 To continue to make available adequate resources for the implementation of
programmes.

The UNDCP is the key organisation in this area and received substantial funding from the
Member States; Italy provided particularly detailed information of its financial contributions
to UNDCP programmes. In some cases (UK, Portugal) spending has been significantly
increased. Bilateral cooperation agreements with neighbouring countries have also been
developed in some cases. Several countries refer that data are regularly supplied to the
Horizontal Drugs Group.

5.2.5 To ensure that in relations with non-candidate and non-European countries all
relevant CFSP instruments take full account of and give appropriate effect to the aims
of the EU Drug Strategy.

Many Member States did not provide information on this point. The Horizontal Drugs Group
is said to be a good forum for the coordination of international drugs policy. The UNDCP also
has an important role in this area.

5.2.6 To draw up an action plan with North Africa and implement the plans with Latin
America, the Caribbean and Central Asia.

Some Member States did not provide information on this point. A number of countries give
interesting information in this area, in particular France, Germany, the Netherlands and the
UK.

5.2.7 To help non-EU countries develop anti-money-laundering systems.

The FATF and its regional subgroups are mentioned by Member States as vital
in
encouraging the development of anti-money laundering systems. The role of EGMONT group
is also stressed and France gives details on this. In Scandinavia some regional co-operation
exists also.

5.2.8 To support the development of common international indicators

Many Member States did not provide information on this point. Some countries mention the
co-operation with the EMCDDA, the UNDCP and within the Pompidou Group in order to
develop common indicators. This co-operation though is still at a very early stage.

5.2.9 To integrate drugs as a cross-sectoral
schemes (particularly with the developing countries)

issue into supranational co-operation

Many Member States did not provide information on this point. Drugs issues are integrated
into broader foreign policy.

33

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

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

ANNEX 2

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,
and
Economic
Committee of Regions.

Social Committee

and

intend

services

to
Commission
the framework agreement
implement
signed in July 2000 by the European
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.

Continuous
process

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

-

-

-

In November 2001 Europol and the EMCDDA concluded a Co-
operation Agreement.
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

-

Europol contributes to the PHARE programme.
-
-

As a member of the UNDCP/PHARE Steering Committee;
to the PHARE Synthetic Drugs
As
Programme.
By providing training.

a participant

-

34

Action as agreed in the EU Action Plan

State of play

The management board of the EMCDDA
discussed in January and July 2002 the
possible participation of the EMCDDA
in a conference on this.

Timeframe/
Priority

2002 and 2004

Comments

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

First meeting held in Paris, November
2000.

Twice a year

The Commission, the EMCDDA and Europol participated in
these meetings.

The Swedish Presidency organised the
second meeting in March 2001.

The Spanish Presidency organised the
third meeting in May 2002.

Ongoing discussion between relevant
Cabinets and services.

Continuous
process

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

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.

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

on

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
financial
assistance.

and technical

and

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.

March 2001

Commission and EMCDDA will present the final results of
their study on national strategies and coordination instruments
by the end of 2002.

35

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

To

the

continue

1.2
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).

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

-

-

-

-

-

The extension of the Europol mandate;

Joint investigative teams;

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

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

The profiling of synthetic drugs.

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.

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

-

-
-

-

-

of

extension

the Europol

The
mandate;
Joint investigative teams;
Co-operation with Eurojust and the
European Police Chiefs Task Force;
Combating
crime
committed via the Internet and other
forms of modern technology;
The profiling of synthetic drugs.

drug-related

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

2001,

to which

A risk assessment was made of PMMA
a
further
in
recommendation was issued that
it be
placed under control at Union level.
Control measures set up by Council
Decision of 28 February 2002 (OJ L 63,
6 March 2002).

36

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.

Timeframe/
Priority

Continuous
process

Comments

To be monitored through the Interservice Drugs Group.

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

involvement

civil

of

1.3.2 All Member States and the Commission
to establish a strategy for the co-operation
society and community and
with civil
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.

Continuous
process.

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

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.

In November 2000 the Commission put
the drug-
forward an overview of all
related budget
the Horizontal
Drugs Group of the Council.

lines at

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

follow up from the
to have regular
It would be useful
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.

EMCDDA has produced a report examining the situation
regarding the monitoring of public expenditure in the Member
States, which is to be published during the first half of 2002. To
to provide appropriate information on public
enable it
expenditure in the drugs field, EMCDDA commissioned a
broadly-based study in 2002 to ensure that
information is
collected regularly in a comparable format. A specific chapter
of EMCDDA 2003 Annual Report will be consecrated to public
expenditure on reducing demand.

37

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

of

the

1.4.2 Member States and the Commission to
encourage
appropriate
provision
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.

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)

Continuous
process

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

of

Council and Parliament approved the
extension
the Drug Prevention
programme(2001-2002) in January 2001.
The Commission put forward a proposal
for the creation of a new program on
crime prevention (Hippokrates). Two
Eurobarometers on Urban Safety linked
in particular to 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.

EMCDDA 2001 annual report is being
finalised;

EMCDDA 2001-2003 work programme
adopted;

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

The 2001 Annual Report was published
in hard-copy form and electronically on
2001
the EMCDDA website. The
national reports were also published on
the website. EMCDDA's 2002 Annual
Report is currently being finalised.

38

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

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

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

indicators

1.
general population

extent and pattern of drug use in the

2.

3.

prevalence of problem drug use

demand for treatment by drug users

4.
drug users

drug-related deaths and mortality of

5.
(HIV, hepatitis)

drug-related

infectious

diseases

EMCDDA guidelines
transmitted to the members of
Management Board in Member States.

finalised

and
its

Formal adoption of the guidelines by
EMCDDA Management Board
by
September 2001.

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

EMCDDA guidelines were
formally
adopted by EMCDDA Management
Board (and incorporated into a Council
resolution in December 2001).

At the end of 2001 the Commission and
EMCDDA set up a working party to
identify the best ways of ensuring
harmonious data collection for the five
key indicators. The first meeting took
place in January 2002.

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.

In 2001 conceptualisation and definition
process launched by EMCDDA, working
closely with
and
national
EUROPOL.

experts

39

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

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 annual financial contribution
to REITOX focal points was indexed in
2002.

The results of the external evaluation of
REITOX (2001) are being examined by
EMCDDA Management Board with a
view to amending the REITOX system
where necessary,
including from a
financial resources perspective, to make
it even more efficient.

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

to

A meeting on this issue will be organised
during the first half of 2002 between the
relevant departments and EMCDDA.

End of 2002 and
2004

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 toxicological analysis as well as clinical
database
or
and
epidemiological studies.

experimental,

clinical

promotion

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

in particular

and

Europol

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

the

parameters

experts
States

In
cooperation with
of
volunteering Member
and
a
EMCDDA,
harmonised database system on drug
seizure statistics have been produced and
agreed upon. An inventory is being
drawn up with a view to working out an
appropriate system for handling data in
accordance with the agreed parameters.

of

40

End 2004

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

Regular Calls for Proposals under FIFTH FRAMEWORK
Integrated
PROGRAMME and Expressions of Interest
Projects
SIXTH
Excellence
FRAMEWORK PROGRAMME promote
such networks,
studies and databases.

and Networks

for
for

of

Europol, in co-operation with volunteering Member States and
the EMCDDA, developed the Collection Model
a
harmonised database system on law enforcement drug seizure
statistics. This has resulted in a Council Recommendation, in
which Member States and, within their respective mandate the
Commission, Europol and the EMCDDA are recommended to
use the Model.

for

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

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.

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

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 co-operation notably with the Drug
Trafficking group, the Multidisciplinary group
on organised crime and the Health group.

End 2002 and
2004

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

The work has been completed. The assessment criteria have
been adopted by the Horizontal Working Party on Drugs and
will be used by the Commission for the assessment.

EMCDDA and
The Commission,
Europol as well as Member States 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.

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

In 2001 EMCDDA and EUROPOL,
working closely with their national
partners, produced a report designed to
to help underpin the
identify criteria,
Commission's evaluation of the Union's
2000-04 drugs strategy.

A peer evaluation on drugs trafficking
will be completed by the end 2002.

End 2003

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

evaluation

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

of

41

Action as agreed in the EU Action Plan

State of play

2.2.5 The Commission
appropriate assessment of :

to organise

an

- 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

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

legislation

and

help

The Commission launched in 2002 with
the
global
assessment of the effectiveness of the
Joint Action on synthetic drugs.

of EMCDDA a

the

evaluation

The
precursors
on
legislation is underway. The draft report
from the Consultant is expected by the
end 2002.

Timeframe/
Priority

End 2001

Comments

All Member States, the EMCDDA, Europol and EMEA invited
to provide their contributions to the evaluation on the basis of
the questionnaire.

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.

Time setting not met

Methodology to
be
on
agreed
second semester
of 2001

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

to launch discussion in the
Proposal
Trafficking Group/Horizontal
Drug
Drugs Group
for
about
evaluation of European drug project and
to draw up an agreed methodology.

criteria

42

Timeframe/
Priority

Continues
process

Comments

Action as agreed in the EU Action Plan

State of play

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.

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

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

and

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

demand

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)

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

comprehensive

Continuous
process

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

The Drug Prevention Programme (2001-
2002) has been extended until
the
the new Public Health
adoption of
Health
Programme.
Public
in
Programme
June 2002.

adopted

been

The

has

43

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

of

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

delinquency,

foster

and

the

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
specificities of
synthetic drug users.

the

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.

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.

Continuous
process

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

Included among the activities undertaken
in the Drug Prevention Programme

Continuous
process

Selection of projects of innovative character in this area

Suitable projects have been selected under Fifth Framework
Programme and appropriate possibilities now exist in proposals
of Sixth Framework Programme.

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

End 2002

Internet could also be used for such campaigns.

Among the activities in the framework of
the Drug Prevention Programme

Continuous
process

44

Action as agreed in the EU Action Plan

State of play

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.

Timeframe/
Priority

Continuous
process

Comments

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.

The issue is under discussion for Sixth Framework Programme.

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.

3.2.2 Member States and the Commission to
provide adequate resources for research into
the biomedical and social causes of addiction,
the prevention and origins of addiction, and
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.

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

The new Public Health Programme has
been adopted in June 2002.

2002

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

Continuous
process

this research exist

Possibilities for
in the chapters 1.1.1
"Genomics & Biotechnology for Health", as well as under 3.
"Strengthening the Foundations of the European Research
Area", both of Sixth Framework Programme.

Continuous
process

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

45

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

3.3 To adopt a comprehensive approach

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.

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

Continuous
process

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 has been
proposed by the Commission, on the
basis of Article 152 TCE. Parliament and
Council have agreed on a Joint Text for
tobacco directive.

2002/2003

The proposal for a tobacco directive is
now under discussion in the Council and
Parliament.

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.

A new program on crime prevention has
been adopted (Hippokrates). A Crime
Prevention Network, whose priorities are
urban, juvenile and drug-related crime,
has been created.

Continuous
process

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

46

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

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.

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.

Conceptualisation and definition process
launched by EMCDDA, in 2001.

2002

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

The EMCDDA convened an expert meeting, in January 2002, to
which Europol also participated, with a view to developing the
required definition. Further deliberations are still needed.

The EMCDDA has finalised the study in
March 2001.

End of 2001

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

The EMCDDA study on criminal proceedings linked to drug
use will be published in 2002. A summary in the twelve
languages will also be produced.

networks

European

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

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.

EMCDDA should assist here.

47

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

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
(Strategy
target 4).

illicit drugs

4.1.1.1 Member States to ensure a high an
uniform level of security at
the external
borders of theEU, and where appropriate, to
including for
establish joint control
example, police, customs immigration and
border guards

teams,

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.

Vienna conclusions 11/12 December
1998 (point 91).

Ongoing

Indicators and baseline data could be developed to evaluate
supply reduction.

The proposals for a manual for external border controls for
drugs (STUP 20 of 1999) should be examined in the light of the
recent Commission Communication on an integrated approach
for External Borders of 7 May 2002, where the issue of fight
against drugs has been mentioned.

2002

put

Party

forward

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

Communication

48

Timeframe/
Priority

Possibly starting
end 2002

Comments

Action as agreed in the EU Action Plan

State of play

4.1.1.3 Member States, with the assistance of
Europol, taking into account the existing EU
systems for exchange of information, to work
to
together in the relevant Council bodies,
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 implementing the principles
laid down in Article 17 of the UN Convention
against Illicit Traffic in Narcotic Drugs and
Psychotropic substances.

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

The programme was elaborated further
under Spanish Presidency.

49

Timeframe/
Priority

Comments

2001

Work to be continued on taking of samples.

Action as agreed in the EU Action Plan

State of play

4.1.1.4 Member States, with the assistance of
Europol, to further consider the possibilities of
combining forensic and law 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
If appropriate the results
should be made available to relevant health
authorities in the Member States.

seizures.

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

the

and

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

enforcement

and

the

initiative

of Sweden,

On
an
operational project was developed (the
involving 14 Member
CASE Project),
States and Europol, in which both law
and
enforcement
on
seizures of
are being
amphetamine
collected, analysed and disseminated at a
European Union level.

forensic

data

Liase with ENFSI (European Network
for Foresic Science Network) work on
taking of samples based on the square
root-method.

Europol has evaluated and upgraded its
LOGO system relating to the collection,
assessment and dissemination of
law
enforcement and ballistic data on ecstasy
seizures, involving all Member States.

On the basis of an initiative from the
Commission, the Council has adopted a
Decision
framework
programme on police and judicial co-
operation in criminal matters (AGIS)

establishing

a

50

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

4.1.1.6 Member States
implement
enforcement
organised crime to combat drug trafficking.

the
strategy against

to
EU law
transnational

and Europol

project-based

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

international

forms of

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.

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.

A second
laundering
anti-money
Directive, extending and updating the
1991 Directive, was
in
December 2001.

adopted

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).

Non EU-countries should be assisted in developing their anti-
money-laundering
(through TACIS and Phare
programs). An appropriate mechanism for improving precursor
control should be set up, involving the associate countries.

systems

Co-operation with industry has been
enhanced through the production and
circulation of the Guidelines.

Continuous
process

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

Initiative of the Belgian Presidency for
tracing of precursors
and essential
chemicals to be continued; resolution of
the Council.

Negotiations on a precursor agreement
with Turkey are well advanced.

51

Comments

Guidelines and a list of non-controlled chemicals subject to
voluntary monitoring measures have been produced to assist
chemical industry. These have been disseminated to Member
States and have been sent out to the chemical industry. They
have also been made available to the candidate countries
through the Phare Program.

Timeframe/
Priority

Council
Regulation
No 3677/90 has
amended
been
by
Council
Regulation No
1116/2001
which came into
on
force
28 June 2001
and by Council
Regulation (EC)
No 988/2002 of
3 June 2002.

The
proposal
has been sent to
the
Parliament
and the Council
for adoption by
co-decision
procedure.

Continuous
process

The 'Collège européen de Police' (CEPOL) could play a role on
this issue.

Action as agreed in the EU Action Plan

State of play

the voluntary monitoring of

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

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

for

Commission
the
proposals
modification of the Council Regulation
(EEC) No 3677/90 of 13 December 1990
laying down measures to be taken to
discourage
certain
substances to the illicit manufacture of
psychotropic
narcotic
adopted.
substances

the diversion of

drugs

have

been

and

A draft Commission proposal for the
current
substitution
Directive 92/109/EEC by a Regulation
has been adopted by the Commission on
10 September 2002..

of

Europol,
in 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 drug
laboratories. As a result, trained trainers
organised courses in two Member States,
(with the assistance of Europol)
for
police, customs officers, forensic experts
and members of the fire brigade.

52

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

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

co-operation

judicial

and

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

joint

4.2.3 Promote regional co-operation where
MS are effected by similar drug problems

Council

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

adopted

requests made by Europol

-
to
initiate criminal investigations in specific
cases;

-
investigative
Member States.

Europol’s assistance to joint
set up by the

teams

Information exchange on good practices to be promoted

-
process of initiating joint
Europol participation.

Some Member States are in the
teams with

framework

In
the
of
the OISIN
programme
(Law enforcement
co-
been
co-financing
operation)
requested to run regional co-operation
projects

has

53

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

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 that study, 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
forward by
31 March 2001.

should be brought

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

The Commission study was completed in
March 2001.

1st semester of
2001.

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

has

presented

for
laying

a Council
down

a
The Commission
framework
proposal
decision
minimum
provisions on the constituent elements of
criminal acts and penalties in the field of
illicit drug trafficking.

Continuous
process

The European Parliament has delivered
its opinion in April 2002.

Work is still under way at the level of the
Council.

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

information
through

is

Strength/weakness analysis proposed by
the French presidency can be further
explored to better match the investigation
techniques

54

Action as agreed in the EU Action Plan

State of play

Examination started end 2002

Timeframe/
Priority

Continuous
process

Comments

4.2.6
The Chief Police Officers Task Force
to consider to include drug trafficking among
its priority areas of work,
in particular
examining how police co-operation on drug
trafficking could be improved and what
policing priorities should be in this area.

5. International

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

countries

5.1.1 The Commission and the Council
to
ensure that 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

countries

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

The Council adopted (28.02.2002) a joint
declaration on drugs of the Ministers of
the European Union in association with
the European Commission,
and the
Candidate Countries.

2001

On the basis of the Council negotiation
mandate, the Commission has launched
the
the
formal
candidate countries.

negotiations with

1st semester
2001

55

Timeframe/
Priority

Continuous
process

Comments

The Phare programme commitment should be maintained after
30 September 2002 as regards the instrument for pre-accession
to EMCDDA of the candidate countries.

Action as agreed in the EU Action Plan

State of play

€

20 million has been made
In total,
available for drug control activities under
the Phare programme for 2000.

allocated

Under the Phare multi-beneficiary drugs
€
2 million has also
programme (1998),
been
joint
a
to
EMCDDA-Phare project. The EMCDDA
basic Regulation was
by
Council Regulation (EC) No 2220/2000
of 28 September 2000 to enable it
to
transfer its know-how to the candidate
countries.

amended

the

to support, with

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

and making

twinning,

of

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

5.1.5 The Commission and Member States to
implement
on
organised crime and extend it to all applicant
countries.

Pre-accession

pact

the

Ongoing discussion within the Pre-
accession Pact Expert Group.

56

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

control

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

in

to

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.

Co-operation with Candidate Countries,
as well as with the Andean, Caribbean
and TACIS countries and with Iran and
Afghanistan, has been strengthened.
Building of closer co-operation is under
way with Balkan countries. The notion of
devoting a priority to actions on the two
main trafficking routes (cocaine and
heroine)
the
in
Commission
Communication
COM(2001)301, of 08.06.2001.

addressed

was

Continuous
process

Continuous
process

The Commission and Member States have a regular dialogue on
the actions undertaken within the Horizontal Drugs Group of
the Council.

the creation of

two sub-groups within the
Question of
Horizontal Drugs Group to deal respectively with the cocaine
and the heroine route.

57

Timeframe/
Priority

Continuous
process

Comments

Co-operation with UNDCP in particular is under discussion.

Continuous
process

The Commission services have launched (July 2002) a new
exercise to collect data on EU drug projects and present it in an
operational, synthetic and analytic form.

The future of North-South Cooperation in the fight against
drugs is under discussion.

Action as agreed in the EU Action Plan

State of play

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.

for

the

alternative

development)

implementation

5.2.4 The Commission and the Member States
to continue to make available adequate
resources
of
programmes and projects for supply reduction
(for example combating drug trafficking and
and
supporting
demand reduction. Member States and the
Commission to report annually to the Council
(Horizontal Working Party on Drugs) on all
assistance
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
and
field of drugs, whenever
necessary already in the preparatory process.

undertaken

possible

projects

in

Co-operation with UN ODCCP has
continued. New contracts have been
the UN ODCCP to
signed with
Iran,
in Russia,
implement projects
Central Asia
South Africa.
and
Verification of EC-UN ODCCP ongoing
contracts is under examination by the
relevant Commission services.

Other UN bodies (such as UNESCO or
the UNDP in Central Asia) or regional
bodies (such as OAS – CICAD or
Eurocustoms, also in Central Asia) are
also implementing EU projects.

The Commission collected the data and
in November 2001 presented to the
Horizontal Drugs Group a matrix of all
ongoing drug projects carried out by the
Commission and Member States. An
update for this matrix is underway and its
results are foreseen for October 2002.

To give continuity to the undertakings of
the Barbados Plan of Action, drug
control will be one of the areas supported
by the 9th EDF Caribbean regional
programme (2002-2007).

The operational credits for budget line
B7-6310 (North-South co-operation for
the fight against drugs) were reduced in
from
2002
€
5.5 million) by the budgetary authority.

1.6 million

(down

to

€

58

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

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.

To the extent that both the heroine and
the cocaine routes have taken the highest
priority as regards the Community’s drug
policy, an Action Plan for North Africa
has not been on the
agenda yet.
However, the Commission will examine
this matter again in the light of the
co-operation
EuroMed
in
program adopted
Spring 2002.

in Valencia

regional

JAI

As for the Action Plan on Latin America
and the Caribbean (LAC), the EU has
continued its annual meetings of the
LAC-EU Mechanism, as well as its
support for co-operation projects with the
region in the fight against drugs.

The EU Central Asia Action Plan has
been adopted by the countries of the
region (except for Turkmenistan) and the
Commission has appointed an EU Drugs-
Coordinator for the region.

is

laundering

An EC project
the Caribbean is
for
currently under implementation and anti-
to
money
expected
continue being supported under
the
9th EDF Caribbean regional programme.
New contracts were signed in 2001 to
assist Asia ASEM partner countries. A
project
for Latin America is under
consideration for 2003-2004.

Continuous
process

59

Action as agreed in the EU Action Plan

State of play

Timeframe/
Priority

Comments

the development of

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

a

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).

Drug-fighting concerns are now included
in the Commission’s Country Strategy
Papers for those countries and regions
which consider this matter a priority in
its
co-operation with the EU. The
CARDS regional program in Justice and
Home Affairs has identified drug as its
second priority.

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.

and Afghanistan

Projects are under way in Colombia,
Bolivia, Peru
to
encourage alternative developments and
alternative livelihood in areas where
illegal drugs cultivation is significant.
Pakistan has now joint Central America
and
a
the Andean Countries
beneficiary of the drugs scheme within
the EC’s Generalised System of Trade
Preferences.

as

Continuous
process

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

60

ANNEX 3

EU Drug related instruments (2000-2002)

A. EU Instruments adopted during the period 2000-2002 (by chronological order)

- Decision of the European Parliament and of the Council of adopting a programme of
Community action in the field of public health (2001-2006). OJ L 271, 09.10.2002 – P. 1

- Council Decision of 22 July 2002 establishing a framework programme on police and
judicial cooperation in criminal matters (AGIS). OJ L 203, 01.08.2002 – P. 5

- Commission Regulation (EC) No 1232/2002 of 9 July 2002 replacing the Annex to
Council Regulation (EEC) No 3677/90 laying down measures to be taken to discourage
the diversion of certain substances to the illicit manufacture of narcotic drugs and
psychotropic substances and amending Regulation (EEC) No 3769/92. OJ L 180,
10.07.2002 – P. 5

- Council Framework Decision of 13 June 2002 on joint investigation teams. OJ L 162,
20.6.2002 - P. 1

- Council Regulation (EC) No 988/2002 of 3 June 2002 amending Regulation (EEC) No
3677/90 laying down measures to be taken to discourage the diversion of certain
substances to the illicit manufacture of narcotic drugs and psychotropic substances.
OJ L 151, 11.06.2002 – P. 1

- Council Resolution on the incorporation of drug prevention programmes in school
curricula. CORDROGUE 4 REV 3 – 08.05.2002

- Council Recommendation of 25 April 2002 on improving investigation methods in the
fight against organised crime linked to organised drug trafficking: simultaneous
investigations into drug trafficking by criminal organisations and their finances/assets.
OJ C 114, 15.05.2002 - P. 1

- Council Recommendation of 25 April 2002 on the need to enhance cooperation and
exchanges of information between the various operational units specialising in combating
trafficking in precursors in the Member States of the European Union. OJ C 114,
15.05.2002 - P. 3

- Resolution of the Council and of the Representatives of the Member States on the
prevention of the recreational use of drugs. CORDROGUE 2 REV 3 – 15.04.2002

- Council Decision of 28 February 2002 concerning control measures and criminal
sanctions in respect of the new synthetic drug PMMA. OJ L 63, 06.03.2002 – P. 14

- Joint declaration of the Ministers of the European Union in association with the
European Commission and the candidate countries on drugs. CORDROGUE 7 REV 2 –
15.02.2002

- Council Regulation (EC) No 2501/2001 of 10 December 2001 applying a scheme of
generalised tariff preferences for the period from 1 January 2002 to 31 December 2004 –
OJ L 346, 31.12.2001 – P. 1

61

- Directive 2001/97/EC of
the Council of
the European Parliament
4 December 2001 amending Council Directive 91/308/EEC on prevention of the use of
the financial system for the purpose of money laundering – Commission Declaration.
OJ L 344, 28.12.2001 - P. 76

and of

- Council Resolution on the implementation of the five key epidemiological indicators on
drugs, developed by the European Monitoring Centre for Drugs and Drug Addiction
(EMCDDA). CORDROGUE 67 – 15.11.2001

- Council Act of 16 October 2001 establishing, in accordance with Article 34 of the
Treaty on European Union, the Protocol to the Convention on Mutual Assistance in
Criminal Matters between the Member States of the European Union. OJ C 326,
21.11.2001 – P. 1

- Council Decision of 28 June 2001 establishing a programme of
incentives and
exchanges, training and cooperation for the prevention of crime (Hippokrates). OJ L 186,
07.07.2001 – P. 11

- Council Framework Decision of 26 June 2001 on money laundering, the identification,
tracing, freezing, seizing and confiscation of instrumentalities and the proceeds of crime.
OJ L 182, 05.07.2001 – P. 1

- Council Regulation (EC) No 1116/2001 of 5 June 2001 amending Regulation (EEC)
No 3677/90 laying down measures to be taken to discourage the diversion of certain
substances to the illicit manufacture of narcotic drugs and psychotropic substances.
OJ L 153, 08.06.2001 – P. 4

- Council Decision of 28 May 2001 setting up a European crime prevention network.
OJ L 153, 08.06.2001 – P. 1

- Council Decision of 28 May 2001 on the transmission of samples of controlled
substances. OJ L 150, 06.06.2001 – P. 1

- Action plan on drugs between EU and Central Asia. CORDROGUE 25 – 13.03.2001

- Council recommendation on the alignment of law enforcement drug and diverted
precursors seizure statistics. STUP 29/2001, STUP 26/2001

- Council conclusions on networking information on emerging trends and patterns in
drug abuse and poly-drug use and associated risks. OJ C 17, 19.01.2001 - P. 2

- Initiative of the Kingdom of Sweden with a view to adopting a JHA Council Decision
establishing a system of special forensic profiling analysis of synthetic drugs. OJ C 10,
12.01.2001 - P. 1

- Council Decision of 17 October 2000 concerning arrangements for cooperation between
financial intelligence units of the Member States in respect of exchanging information.
OJ L 271, 24.10.2000 – P. 4

- Council Regulation (EC) No 2220/2000 of 28 September 2000 amending Regulation
(EEC) No 302/93 on the establishment of a European Monitoring Centre for Drugs and
Drug Addiction. OJ L 253, 07.10.2000 - P. 1

62

- Council Decision of 28 September 2000 on the conclusion of an agreement between the
European Community and the Kingdom of Norway on the participation of Norway in the
work of the European Monitoring Centre for Drugs and Drug Addiction. OJ L 257,
11.10.2000 - P. 23

- Commission Regulation (EC) No 1610/2000 of 24 July 2000 amending Regulation
(EEC) No 3677/92 implementing and amending Council Regulation (EEC) No 3677/90
laying down measures to be taken to discourage the diversion of certain substances to the
illicit manufacture of narcotic drugs and psychotropic substances. OJ L 185, 25.07.2000
– P. 30

B. EU Instruments under discussion

- Proposal for a Council framework Decision laying down minimum provisions on the
constituent elements of criminal acts and penalties in the field of drug trafficking.

- Proposal for a Council Recommendation on the prevention and reduction of risks
associated with drug dependence.

- Initiative by the Kingdom of Spain for the conclusion of a Convention on the
suppression by customs administrations of illicit drug trafficking on the high seas.

- Draft Council Recommendation on treatment of criminal drug abusers as part of service
of sentence.

- Draft Council Resolution on generic classification of new synthetic drugs.

- Draft Council Recommendation drawing up an implementing protocol on taking
samples of seized drugs.

63