COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Towards a stronger European response to drugs
Date: 2011-10-25
Institutions: European Commission
Subjects: drug addiction, drug traffic, fight against crime, judicial cooperation in criminal matters in the EU, money laundering, organised crime

EUROPEAN COMMISSION 

Brussels, 25.10.2011 
COM(2011) 689 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

Towards a stronger European response to drugs 

 
 
 
 
  
 
1. 

A STRONGER EUROPEAN RESPONSE TO THE CHALLENGES POSED BY DRUGS  

Illicit drugs1 are a major threat to the health and safety of individuals and societies in the 
EU.  Europe’s  drugs  problem  is  evolving  rapidly.  New  and  harmful  psychoactive 
substances2  are  emerging  at  an  unprecedented  rate.  Drug  traffickers  change  routes  and 
methods for smuggling or for laundering the proceeds of illicit trafficking in drugs.  

Drugs  particularly  affect  young  people.  The  use  of  drugs  is  one  of  the  major  causes  of 
health  problems  among  young  people  and  is  one  of  the  most  important  causes  of  avoidable 
death among young Europeans. The 2011 Eurobarometer "Youth attitudes on Drugs"3 shows 
that young people can easily obtain even the most harmful drugs within 24 hours. Statistics 
show  that  one  person  dies  in  Europe  every  hour  because  of  drug  overdose.4  The  use  of  the 
internet  for  selling  new  drugs  and  the  rapid  exchange  of  information  on  new  drugs  through 
social  networks,  present  new  challenges  to  current  drug  control  policies  and  to  traditional 
prevention methods. 

More needs to be done to address the drug problem. Action should take place where it is more 
effective,  in  full  respect  of  subsidiarity.  The  EU  action  should  be  focused  where  it  brings 
more  added  value.  Member  States  are  unable  to  contain  the  spread  of  drugs  without 
effective  cooperation:  in  the  internal  market  goods,  but  also  crime,  move  freely.  If  one 
Member State bans new psychoactive substances, traders open shops in Member States where 
the law is more permissive. Uncoordinated clamp-downs may force traffickers to move drug 
production  sites  to  neighbouring  countries  or  to  shift  trafficking  routes,  but  these  measures 
cannot disrupt trafficking sustainably.  

Over the past 15 years, the European Commission has helped develop a comprehensive and 
balanced  EU  response  to  drugs,  in  the  framework  of  the  EU  Drugs  Strategy  (2005-2012)5. 
The  two  main  EU  legal  instruments  in  anti-drugs  policy,  one  on  drug  trafficking6  and  the 
other on the emergence of new drugs (new psychoactive substances)7, date respectively from 
2004  and  2005.  However,  the  past  few  years  have  brought  fresh  challenges:  new  ways  of 
trafficking  drugs  and  chemicals  used  for  their  manufacture  ("drug  precursors"),  the  rapid 
emergence of new drugs and innovative distribution channels for these new substances.  

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7 

Illicit  drugs  are  those  psychoactive  substances  for  which  the  unlicensed  cultivation,  production,  trade 
and possession - other than for medical and scientific purposes - is prohibited. 
New psychoactive substances are new narcotic or psychotropic drugs which may pose a threat to public 
health comparable to illicit drugs, and which emerged only recently on the market and are not banned. 
The large majority of these substances are synthetic.  
European Commission, Flash Eurobarometer Nr. 330, Youth attitudes on Drugs. 
EMCDDA, 2010 Annual report on the state of the drugs problem in Europe. 
The  Commission  has  launched  an  external  evaluation  of  the  EU  Drugs  Strategy  (2005-2012),  which 
will be completed by the end of 2011. 
Council Framework Decision 2004/757/JHA of 25 October 2004 laying down minimum provisions on 
the constituent elements of criminal acts and penalties in the field of illicit drug trafficking, OJ L 335, 
11.11.2004, pp 8–11. 
Council  Decision  2005/387/JHA  of  10  May  2005  on  the  information  exchange,  risk-assessment  and 
control of new psychoactive substances, OJ L 127, 20.5.2005, pp 32–37. 

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In  the  2010-2014  Stockholm  Action  Plan8  the  European  Commission  committed  itself  to 
measures reinforcing protection against serious and organised crime. With the Lisbon Treaty 
now in place, the European response to drugs needs to be strong and decisive, addressing both 
drug  demand  and  drug  supply.  New  legislation  involving  the  European  Parliament,  and 
implemented  by  the  Member  States,  will  be  subject  to  the  scrutiny  by  the  European 
Commission and ultimately the Court of Justice of the European Union.  

The  Commission  is  committed  to  lend  fresh  impetus  to  the  EU  anti-drugs  policy.  In  its 
proposed Budget for Europe 20209 the Commission pledges financial support to meet future 
challenges posed by drugs.  The EU budget  should focus on funding those actions that have 
clear  added  value,  which  include:  tackling  new  drugs,  developing  innovative  practices  on 
prevention or treatment and cross-border law enforcement cooperation and training. 

2. 

DRUG TRAFFICKING 

The  illicit  drugs  market  is  constantly  evolving  to  escape  controls  and  seizures10.  New 
technologies facilitate the development of innovative methods for smuggling into and within 
the EU. Traffickers use advanced techniques to conceal drugs, for instance, by mixing liquid 
cocaine into commercial goods (clothes, liquids, plastic), converting it into powder cocaine in 
laboratories in Europe, or making it odourless. They use remote monitoring of production and 
storage sites. To increase resilience, traffickers diversify their business, becoming multi-drug 
(smuggling different drugs or illicit doping substances that have harmful effects on the health 
of athletes) and poly-criminal (carrying out several illicit activities).  

Criminal networks change their trafficking routes frequently in order to circumvent controls. 
The growing importance of the West African route for smuggling cocaine from Latin America 
into Europe is proof that the networks are able to overcome controls along the Atlantic coast 
and points to the need for an effective European Border Surveillance System. 

The European Pact on international drug trafficking adopted by the Council on 3 June 201011, 
and the forthcoming European Pact against synthetic drugs initiated by the Polish Presidency 
seek to improve coordination between the various initiatives launched to clamp down on drug 
trafficking:12 

Drug  trafficking  is  one  of  the  biggest  cross-border  law  enforcement  challenges  in  the  EU. 
Since  2004,  Eurojust  has  dealt  with  more  cases  of  drug  trafficking  than  any  other  type  of 
crime.  The  number  of  drug  trafficking  cases  referred  to  Eurojust  increased  more  than 
threefold  over  this  period,  from  77  to  25413,  and  this  trend  is  continuing  in  2011.  In  2010, 
around  a  third  of  operational  support  provided  by  Europol  to  national  law  enforcement 

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13 

The European Council of 10-11 December 2009 adopted the Stockholm Programme, a comprehensive 
framework on initiatives in justice and home affairs. To translate these political objectives into concrete 
proposals,  the Commission  selected  a  number of key  actions for  adoption  in  2010-2014.  COM(2010) 
171 final.  
COM(2011) 500. 
Europol, EU Organised Crime Threat Assessment OCTA 2011. 
http://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/en/jha/114889.pdf. 
On the agenda of the Justice and Home Affairs Council of 27 and 28 October 2011. 
Eurojust Annual Report 2010. 

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agencies  was  related  to  illicit  drug  trafficking14.  Eurojust  and  Europol  increasingly  help 
coordinate cross border investigations within the EU, and with third countries. 

The Lisbon Treaty defines drug trafficking as one of the "particularly serious crimes with a 
cross border dimension", which justify the adoption of directives establishing minimum rules 
concerning  the  definition  of  criminal  offences  and  sanctions15.  This  is  a  major  step  forward 
that will make it possible for the EU to provide a bolder response, with stronger involvement 
of the European Parliament and of national Parliaments. 

legislation  on  drug 

The  existing  EU 
trafficking,  namely  Framework  Decision 
2004/757/JHA, which provides an EU definition of drug trafficking offences and minimum 
rules on sanctions, is an important first step towards ensuring a European approach, but it has 
its  weaknesses.  The  Commission's  assessment  of  the  implementation  of  the  Framework 
Decision16  has  shown  that  this  instrument  has  scarcely  led  to  any  alignment  of  national 
measures in the fight against drug trafficking. It has not sufficiently contributed to facilitating 
judicial cooperation in drug trafficking cases. 

For instance, in most Member States the trafficking of chemical precursors is directly covered 
by  the  criminal  law  of  the  respective  state.  However,  in  some  Member  States  it  only  falls 
under  the  offence  of  aiding  and  abetting  drug  trafficking.  Consequently  the  judiciary  might 
face  obstacles  in  effectively  prosecuting  this  crime.  Similarly,  the  provisions  related  to 
aggravating  circumstances  (justifying  high  criminal  punishments)  set  out  in  the  Framework 
Decision  are  insufficient:  they  do  not  include  all  aggravating  circumstances17  listed  in 
previous EU or UN instruments. 

Common  minimum  rules  are  essential  in  order  to  establish  the  level  of  trust  necessary  to 
enhance cooperation among Member States' judiciaries. The entry into force of the Lisbon 
Treaty now enables a legal and political strengthening of this important legal instrument. 

The  Commission  will  bring  forward  new  EU  legislation,  to  ensure  a  more  effective 
approximation  of  drug  trafficking  offences  and  sanctions  across  the  EU.  The  new  proposal 
would:  

Target  major  cross-border  drug  trafficking  and  the  organised  criminal  networks, 

(1) 
by exploring minimum common aggravating or mitigating circumstances.  

Improve  the  definition  of  offences  and  sanctions,  possibly  with  a  more  detailed 

(2) 
breakdown of sanctions. 

Introduce stronger reporting obligations for Member States on the implementation 

(3) 
and impacts of legislation. 

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15 
16 
17 

Europol, General Report on Europol Activities 2010. 
Article 83(1), Treaty on the Functioning of the European Union. 
COM(2009) 669 and SEC(2009) 1661. 
For  instance  on  the  victimisation  or  the  use  of  minors,  as  foreseen  by  Art.  3.5.(f)  of  the  1988  UN 
Convention  against  illicit  traffic  in  narcotic  drugs  and  psychotropic  substances,  and  the  Council 
Resolution of 20 December 1996 on sentencing for serious illicit drug-trafficking, OJ C 10, 11.1.1997, 
p. 3–4. 

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In  addition  to  strong  capabilities  in  gathering  demand  side  data,  the  improvement  of  data 
collection  in  the  field  of  drug  supply  is  essential  for  assessing  developments  in  the  drugs 
market.  The  lack  of  indicators  makes  it  difficult  to  evaluate  such  developments,  to  estimate 
the burden of drug-related crime on society and to assess the impact and effectiveness of drug 
supply reduction.  

Building on the technical expertise developed at the European Monitoring Centre for Drugs 
and Drug Addiction (EMCDDA), the Commission, with the support of Europol, will present 
key  indicators  for  the  monitoring  of  drug  markets,  drug-related  crime  and  drug  supply 
reduction.  These  should  help  to  improve  the  effectiveness  of  responses  in  the  area  of  drug 
supply.  

3. 

DRUG PRECURSORS 

The trafficking of chemicals used for manufacturing drugs is a matter of major concern. 
Transforming  raw  opium  into  heroin,  for  instance,  requires  significant  quantities  of  drug 
precursors. These chemical substances have various legitimate industrial uses, but they may 
be  diverted  from  legitimate  trade  into  the  production  of  illicit  drugs.  They  are  smuggled 
within the EU and between the EU and different regions of the world. Bilateral agreements 
between  the  EU  and  trading  partners  on  the  control  of  drug  precursors  provide  a  strong 
platform  for  coordinating  policies  and  exchanging  information  on  the  trafficking  of  drug 
precursors. The EU has already signed such agreements with Turkey, Mexico, Chile, United 
States, China and the countries of the Andean region. 

To  evade  control,  traffickers  change  production  methods,  transform  drug  precursors  into 
different substances (pre-precursors) from which they are recovered at a later stage, or extract 
them from pharmaceutical preparations.  

Any  measures  to  prevent  the  diversion  of  drug  precursors  must  strike  a  balance  between 
ensuring  an  effective  control  of  diversion  without  disrupting  lawful  trade  in  such 
substances.  Good  cooperation  between  authorities  –  including  the  European  Medicines 
Agency, national health/medicines authorities, and economic players – is key in this respect. 

The Commission's assessment18 of the implementation of EU legislation on monitoring and 
control of trade in drug precursors19 made several recommendations, including: strengthening 
the  implementation  of  existing  rules  and  possibly  introducing  a  tougher  regime  for  certain 
chemicals  (such  as  the  key  precursor  for  heroin  production,  acetic  anhydride)  and  ensuring 
appropriate  control  of  pharmaceutical  preparations  containing  substances  used  for  the 
production of methamphetamine.  

The Commission is examining ways to strengthen EU rules on the control of production 
and trade in drug precursors which comprise different categories of substances and reaction 
agents frequently used in the manufacture of narcotic drugs or psyochactive substances, and 
to ensure an effective and uniform implementation of these rules. It is currently assessing the 
impacts of several policy options, with the aim of presenting legislative proposals to increase 

18 
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COM(2009) 709. 
Council Regulation (EC) No 111/2005 of 22 December 2004, OJ L 22, 26.1.2005, p. 1–10; Regulation 
(EC)  No  273/2004  of  the  European  Parliament  and  of  the  Council  of  11  February  2004, OJ  L  47, 
18.2.2004, p. 1–10. 

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the  efficiency  of  rules  preventing  illicit  diversion,  while  allowing  legitimate  trade  in 
precursors  without  excessive  administrative  burden.  Particular  attention  will  be  given  to  the 
heroin  precursor,  acetic  anhydride,  and  to  pharmaceutical  preparations  containing  ephedrine 
and pseudoephedrine, used for the production of methamphetamine. 

The  Commission  will  take  action  to  enhance  international  cooperation  against  the 
diversion of drug precursors. It is negotiating an agreement with Russia on drug precursors, 
with  the  aim  of  signing  it  in  the  coming  months  as  a  matter  of  urgency.  Together  with  the 
Member States, the Commission will reinforce cooperation with the Latin American countries 
and will pursue cooperation with China, with which the EU already has such agreements.  

4. 

CONFISCATION AND RECOVERY OF CRIMINAL ASSETS 

The main motive for cross-border organised crime is financial gain. In order to be effective, 
any attempt to prevent and combat organised crime, including drug trafficking, must focus on 
tracing,  freezing,  seizing  and  confiscating  the  proceeds  from  crime.  Organised  criminal 
groups  increasingly  exploit  the  advantages  of  a  Europe  without  internal  borders  to  acquire 
assets in various EU Member States, and often hide them in third countries. They also change 
techniques for laundering money. 

The tracking, freezing and confiscating the assets of criminal networks is a major challenge. 
The EU has adopted five legislative instruments (Framework Decisions) designed to deprive 
traffickers of their gains20. These instruments have not been effective enough. In particular, 
they have not enabled public authorities to confiscate large amounts of goods. A functioning 
network of asset recovery offices in Europe is crucial in order to weaken the financial power 
of criminal networks and target effectively their illicit proceeds and assets. 

The  Commission  will  propose  new,  stronger  EU  legislation  on  confiscation,  recovery  of 
criminal assets and mutual recognition of freezing and confiscation orders. The aim is to 
ensure  more  efficient  seizure  of  the  proceeds  of  crime  and  to  prevent  them  from  being  re-
invested in the licit economy or used to commit other crimes. The planned legislative package 
on  confiscation  and  asset  recovery  will  also  cover  drug  trafficking.  Its  aim  is  to  achieve 
harmonised minimum rules and to reinforce mutual trust between judicial authorities. 

The Commission will review the third anti-money laundering directive, in order to further 
strengthen the EU's defences against the laundering of money generated by organised crime, 
including drug trafficking. 

5. 

NEW PSYCHOACTIVE SUBSTANCES  

During  past  years  new  psychoactive  substances,  which  imitate  illicit  drugs,  have  frequently 
emerged  in  the  EU.  Since  2005,  Member  States  have  reported  115  new  psychoactive 
substances through the EU Early Warning System21. They are sold in "specialised" shops or 
over  the  internet,  but  some  are  available  from  illicit  drug  sellers.  To  circumvent  national 

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Three  Framework  Decisions  aim  at  harmonising  national  measures  for  freezing  and  confiscating 
criminal  assets  (2001/500,  2005/212,  2007/845)  and  two  relate  to  mutual  recognition  of  decisions  of 
Member States to freeze and confiscate criminal assets (2003/577, 2006/783).  
SEC(2011) 912. 

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legislation, these drugs are frequently labelled "not for human consumption". The speed with 
which  they  are  launched  on  the  market  challenges  the  capacity  of  the  authorities  to 
respond.  

A  record  number  of  new  substances  (41)  were  reported  in  2010,  accounting  for  about  one 
third of all substances since 2005. Two substances, BZP and mephedrone22, were subjected to 
risk  assessment  at  EU  level,  following  which  the  Council,  based  on  a  proposal  from  the 
Commission,  subjected  them  to  control  measures  and  criminal  sanctions.  On  this  basis, 
Member  States  must  classify  these  substances  as  illicit  drugs,  introducing  control  measures 
and criminal sanctions under their legislation in compliance with the UN Conventions.  

According to the 2011 Eurobarometer23 survey, 5% of young people interviewed across the 
EU  have  used  such  substances.  The  price  of  these  substances  (which  is  lower  than  illicit 
drugs) and the fact that they are "not illegal" – and therefore very easily  accessible  –  could 
explain  their  rapid  spread  in  many  Member  States.  However,  their  toxicity  and  potential  for 
dependence may pose health threats comparable to illicit drugs.  

The  Commission  continues  working  closely  with  EU  agencies  to  improve  understanding  of 
this  problem  and  identify  more  effective  answers,  including  in  the  field  of  prevention.  The 
current  EU  legislation  is  inadequate  for  tackling  this  challenge.  The  Commission's 
assessment  of  the  functioning  of  Council  Decision  2005/387/JHA24  on  new  psychoactive 
substances concluded that it has three major shortcomings:  

• 

• 

• 

It  is  unable  to  tackle  the  large  increase  in  the  number  of  new  psychoactive 
substances, because it addresses substances one by one, via a lengthy process.  

It is reactive: substances subjected to control measures are quickly replaced with new 
ones with similar effects.  

It lacks options for regulatory and control measures. 

The  Commission  will  propose  stronger  EU  legislation  on  new  psychoactive  substances. 
Taking  into  account  the  rapid  developments  in  this  field  and  scientific  evidence  about  the 
risks posed by these substances, the new proposal would:  

Enhance the monitoring and risk assessment of substances, by extending support 

(1) 
for forensic analysis, toxicological, pharmacological and epidemiological studies.  

Provide  swifter  and  more  sustainable  answers  to  the  emergence  of  these 
(2) 
substances, possibly by exploring ways to address groups of substances, notwithstanding the 
need to determine scientifically the harmfulness to health of the individual substance. 

Enable  a  faster  response  to  the  emergence  of  substances,  including,  possibly, 

(3) 
through temporary bans on substances that pose immediate risks. 

Better  align  laws  in  the  field  of  drug  control,  product  and  food  safety,  consumer 

(4) 
protection and medicines to cover the wide variety of substances that emerge.  

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BZP in 2008 (OJ L 63, 7.3.2008, p. 45–46) and mephedrone in 2010 (OJ L 322, 8.12.2010, p. 44–45). 
European Commission, Flash Eurobarometer Nr. 330, Youth attitudes on Drugs. 
COM(2011) 430. 

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6. 

REDUCTION OF DEMAND 

Various measures are in place across the EU to reduce the demand for drugs. These aim 
to  prevent  people  from  starting  to  use  drugs,  to  avoid  them  becoming  addicted,  to  reduce 
harmful health and social consequences of drug use, and to provide treatment, rehabilitation 
and  social  reintegration  services.  However,  the  changing  patterns  of  drug  use  and  the 
increased 'poly-consumption' of substances, such as illicit drugs in combination with alcohol 
or prescription medicines, is challenging current prevention and treatment methods.  

While the provision of treatment has expanded in recent years, major differences persist in 
the  coverage  and  quality  of  drug-related  services  across  the  EU.  Around  670  000 
Europeans receive substitution treatment for heroin addiction – i.e. only about half of those in 
need  of  treatment.  The  availability  of  treatment  is  limited  in  some  EU  countries.  In  certain 
Member States, the effectiveness of many education, prevention and treatment programmes is 
still not evaluated. 

Measures such as needle and syringe exchange programmes which provide people who inject 
drugs with access to needles and syringes to prevent them from sharing injecting equipment 
have  helped  reduce  the  spread  of  HIV  and  other  blood-borne  infections  among  drug  users. 
However, the success of these measures calls for sustainable and integrated strategies across 
the EU to prevent the spread of drug-related blood-borne infections25.  

There is a clear need to extend and improve drug-related services, in order to make sure 
that prevention works, and that those in treatment recover and reintegrate into society.  

The Commission will also promote improved implementation of the key indicators in the field 
of drug demand reduction, to enable Member States to provide more effective services. 

The  Commission  will  help  develop  minimum  quality  standards,  to  improve  the 
effectiveness of drug prevention, treatment and harm reduction in the EU. The aim is to set 
standards  for  quality  in  the  delivery  of  drug-related  services,  for  example  prescribing  a 
thorough  planning  of  treatment  in  line  with  the  patient's  individual  needs  or  on  staff 
qualification  requirements.  These  standards  will  be  developed  together  with  the  EMCDDA, 
Member States and practitioners involved in drug-related services, and will take into account 
the different health systems and capacities across the EU.  

The  Commission  will  further  support  and  promote  measures  to  reduce  health  and  social 
harms  associated  with  drug  dependence,  including  strengthening  educational  prevention 
and early stage support in avoiding addiction, interventions to prevent and control infections 
among  people  who  inject  drugs,  and  to  prevent  drug-related  deaths26.  It  will  continue  to 
support  measures  to  help  rehabilitate  and  reintegrate  drug-dependent  users  in  society.27  It 
intends  to  submit  a  second  report  on  the  implementation  of  the  2003  Recommendation  on 
harm reduction28, designed to assess the effectiveness of prevention and reduction of health-
related harm associated with drug dependence. 

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EMCDDA, 2010 Annual report on the state of the drugs problem in Europe. 
As outlined in the Commission communication on combating HIV/AIDS in the EU and neighbouring 
countries, COM(2009) 569. 
Such initiatives will continue to be funded by EU financial programmes, including the Drug Prevention 
and Information Programme, the Health Programme, as well as the European Social Fund. 
OJ L165, 03.07.2003, p. 31 – 33. 

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7. 

DRUGGED DRIVING  

Many road accidents in the EU are caused by drivers under the influence of psychoactive 
substances. Studies show that driving under the influence of illicit drugs increases the risk of 
causing a fatal road accident. However, because data are not collected  systematically  at EU 
level,  the  adverse  effects  of  drug-driving  on  road  safety  needs  further  study.  Developing 
effective and proportionate responses to tackle drugged driving presents a major challenge as 
highlighted in the Roadmap to a Single European Transport Area29. 

The Commission is exploring possible actions at EU level to address drugged driving, with 
the aim of increasing road safety. Based on the results of the EU-financed DRUID30 project, 
which  has  assessed  the  impact  of  illicit  drugs  on  road  safety,  the  effectiveness  of  testing 
devices  and  possible  responses,  the  Commission  will  propose  measures  to  help  tackle  this 
problem  effectively.  These  responses  could  include  ways  of  improving  the  reliability  of 
devices  used  for  road-side  testing  or  providing  appropriate  training  support  for  traffic 
officials.  

8. 

INTERNATIONAL COOPERATION  

The EU plays a leading role in international cooperation on illicit drugs. It is engaged in an 
active dialogue with the production and transit countries and provides political, financial and 
technical  support.  A  stronger  response  to  illicit  drugs  will  require  the  EU  to  step  up  its 
engagement  with  neighbouring  countries,  with  strategic  partners  and  along  the  drugs  routes 
into  the  EU  on  the  basis  of  a  balanced  and  comprehensive  approach  with  full  respect  for 
human rights. 

Apart from illicit drugs originating in the EU, there are two main drug routes through which 
drugs enter the EU. These are the "cocaine route" (from Latin America via West Africa into 
the  EU)  and  the  "heroin  route"  (from  Afghanistan  through  either  the  Western  Balkans  or 
Central Asia into the EU). The EU approach to tackling illicit drugs internationally is three-
fold:  

Comprehensive – the Lisbon Treaty provides an opportunity for the EU to strengthen its law 
enforcement  cooperation  with  third  countries,  to  help  them  improve  the  capacity  of  judicial 
systems and to promote the rule of law, in full respect of human rights. The EU focuses on 
seeking long-term solutions, for example, through promoting alternative livelihoods for drug 
crop  farmers  in  rural  areas,  in  countries  such  as  Afghanistan,  and  reducing  demand  in 
countries  of  origin  and  transit.  The  EU  is  committed  to  work  closely  both  with  transit  and 
with producing countries, as both suffer from increasing drug use in their populations, related 
public health challenges as well as from weak institutional capacity to tackle the problem.  

Geographical – the EU will further consolidate its "drug route" approach, which enables it to 
tackle the problem comprehensively from drug crops cultivation to the entry of drugs onto the 
EU  market.  European  Neighbourhood  countries  (ENP)  will  remain  a  priority.  Continued 
support will be provided to the enlargement countries on capacity-building to enable them to 
tackle  drug  trafficking  and  abuse,  notably  through  the  Instrument  for  Pre-Accession 

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COM(2011) 144. 
Driving under the Influence of Drugs, Alcohol and Medicines. http://www.druid-project.eu. 

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Assistance (IPA). The EU will reinforce its engagement with Latin American31, Caribbean 
and  African  countries,  as  well  as  with  relevant  regional  organisations,  building  on  the 
success of the cooperation platforms of liaison officers in West Africa, to coordinate capacity 
building. 

Cooperation with strategic partners – the EU will build on our engagement with strategic 
partners with a shared interest in tackling illicit drugs. Cooperation with the United States on 
Passenger Name Record (PNR) data has been particularly valuable in the fight against drug 
trafficking.  The  EU  and  the  United  States  are  exploring  ways  to  establish  a  joint  law 
enforcement  network  on  drug  trafficking  and  coordinate  capacity-building  projects  in  West 
Africa,  Latin  America  and  the  Caribbean.  The  EU  is  intensifying  efforts  with  the  United 
States and Russia to reduce drug trafficking and prevent drug abuse in Central Asia. It is also 
working  with  international  partners  to  improve  international cooperation  to  tackle  the  drugs 
economy in Afghanistan, which supplies up to 90% of the world's heroin.  

Further measures to strengthen international cooperation in the drug field will be considered 
in the context of the ongoing evaluation of the current EU Drugs Strategy and Action Plans.  

9. 

CONCLUSIONS 

The European drugs policy aims to protect and improve the well-being of society and of the 
individual, to protect public health, to offer a high level of security for the general public and 
to  take  a  balanced,  integrated  approach  to  the  drugs  problem.  The  entry  into  force  of  the 
Lisbon Treaty and the dismantling of the pillar structure in EU policy making, provides new 
opportunities for the integration of all policy areas relevant to the drugs problem. The scale of 
Europe's  drugs  problem  and  its  changing  nature  require  swift,  strong  and  effective  EU 
action.  The  Commission  is  determined  to  scale  up  its  response  to  illicit  drugs  and  to  new 
psychoactive  substances  that  imitate  their  effects  (mainly  new  synthetic  drugs)32,  using  the 
new opportunities provided by the Lisbon Treaty. 

The Commission will present; as legislative proposals: 

(1) 

(2) 

(3) 

A  legislative  package  on  drugs,  proposing  the  revision  of  the  Council  Framework 
Decision  on  drug  trafficking  and  the  Council  Decision  on  new  psychoactive 
substances; 

Legislative proposals on drug precursors;  

Legislative  proposals  on  the  confiscation  and  recovery  of  criminal  assets  and  on 
strengthening mutual recognition of freezing and confiscation orders; 

(4) 

New legislative measures to combat money laundering.  

31 

32 

The COPOLAD programme provides a solid framework to continue our efforts with the Latin America 
countries in addressing all aspects of drug policies. Furthermore, in Latin America and the Caribbean, 
drug-related security issues will be addressed, in light of the growing concern in this area. 
The first EU initiative on new psychoactive substances was a Joint Action 97/396/JHA of 16 June 1997 
on the information exchange, risk assessment and the control of new synthetic drugs. New psychoactive 
substances are mostly new synthetic drugs but they also include organic substances. The Joint Action 
has been replaced by Council Decision 2005/387/JHA of 10 May 2005 on the information exchange, 
risk-assessment and control of new psychoactive substances. 

EN 

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In addition, the Commission will present: 

(5) 

(6) 

Indicators  to  monitor  drug  supply,  drug-related  crime  and  drug-supply  reduction  to 
help improve the effectiveness of supply-reduction measures; 

Minimum  quality  standards  to  improve  drug  prevention,  treatment  and  harm-
reduction services.  

The  Commission  invites  the  European  Parliament  and  the  Council,  civil  society  and  other 
important stakeholders, to take part in a debate on effective responses to illicit drugs and new 
psychoactive substances. To enable all interested stakeholders to contribute to this debate, the 
Commission will launch an online public consultation on how best to tackle illicit drugs and 
the emergence of new substances that imitate them. 

EN 

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