COMMISSION STAFF WORKING DOCUMENT Accompanying the document Report from the Commission to the European Parliament and the Council on progress in the EU's 2013-2020 Drugs Strategy and 2013-2016 EU Action Plan on Drugs
Date: 2015-11-27
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU police cooperation, European Monitoring Centre for Drugs and Drug Addiction, action programme, drug addiction, drug traffic, fight against crime, international cooperation, psychotropic substance

EN 

   EN 

   EUROPEAN COMMISSION  Brussels, 27.11.2015  SWD(2015) 257 final   COMMISSION STAFF WORKING DOCUMENT Accompanying the document Report from the Commission to the European Parliament and the Council on progress in the EU's 2013-2020 Drugs Strategy and 2013-2016 EU Action Plan on Drugs {COM(2015) 584 final}  
 
 
Drug demand reduction 

Objective/Action 

Timetable 

Responsible party 

State of Play 

Objective 1: Prevent drug use and, secondly, delay the onset of drug use 

Ongoing 

Member States 

1.  Improve  the  availability  and  effectiveness 
of prevention measures that take account of: 

a) population risk factors such as age; gender; 
cultural and social factors; 

risk 

factors 

situational 

b) 
homelessness;  drug  use 
recreational  settings; 
driving under the influence of drugs; and 

as 
in  nightlife  and 
the  workplace;  and 

such 

c)  individual  risk  factors  such  as  mental 
health;  problem  behaviour  and  psychosocial 
development;  and  other  factors  known  to 
affect individual vulnerability to drug use such 
as genetic influences and family circumstances 

According to EMCDDA, school students with academic and social 
problems  are  one  of  the  groups  most  frequently  targeted  by 
selective  prevention  strategies.  Little  is  reported  about  the  content 
of  these  interventions  and  very  little  is  therefore  known  on  their 
evidence base. There are indications, through the National Reports1, 
that  information,  awareness-raising  and  counselling  remain  the 
most common prevention interventions used, rather than approaches 
with  greater  evidence  of  impact  such  as  those  focusing  on  norm 
setting, environmental restructuring, motivation, skills and decision-
making.  

EMCDDA  reports  that  in  2013,  a  majority  of  Member  States 
reported  full  implementation  of  smoking  bans  in  schools  and  less 
than  half  of  school  drug  policies.  Universal  interventions  within 
schools that are based on the provision of information are reported 
to  be  widely  available,  despite  the  absence  of  evidence,  while 
evidence-based  components  such  as  social  and  personal  skills 
trainings do not clearly prevail. 

EMCDDA  also  reports  that  early  detection  mechanisms  in  school 
are reported to be extensively or fully provided in less than half of 
the Member States. 

All  Member  States  reported  having  implemented  prevention 

1 Commissioned each year by the EMCDDA and produced by the national focal points of the Reitox network, the National reports draw an overall picture of the drug phenomenon at national level in each EU Member 
state. 

2 

 
 
                                                            
in 

the  period  2013-2014.  These 

take  account  of 
measures 
population  risk  factors  such  as  age,  gender,  cultural  and  social 
factors;  of  situational  factors  such  as  homelessness,  drug  use  in 
nightlife and recreational settings; the workplace and driving under 
the influence of drugs; and of individual risk factor such as mental 
health, problem behaviour and psychosocial development.  

the  non-governmental  organisations  (NGOs) 
A  majority  of 
consulted  by  the  Commission  also  confirmed  that  prevention 
measures have been implemented in their countries.  

A majority of the Member States considered that the availability of 
these prevention measures has improved or remained stable over the 
period 2013-2014. Some of the NGOs consider that this was not the 
case.  

More  than  half  of  these  Member  States  also  put  in  place 
mechanisms  to  evaluate  the  prevention  measures  implemented.  In 
most EU countries with such mechanisms, evaluations were or are 
currently being carrying out. 

The prevention measures implemented by Member States that take 
account of population risk factors such as age; gender; cultural and 
social factors included: universal prevention measures that take into 
account  the  age  of  the  target  group  and  some  of  them  offering 
gender specific parts; measures for children with special education 
needs;  implementation  of  selective  interventions  targeting  specific 
vulnerable groups such as socially vulnerable families and children; 
selective  and  indicative  prevention  measures  implemented  in  the 
military  setting;  selective  prevention  programmes  to  support 
vulnerable  groups  such  as  early  school  leavers,  students/soldiers 
that  use  legal  and  illegal  substances;  prisoners'  children;  children 

3 

 
 
whose  parents  face  psychological  problems,  unemployment, 
addiction;  pregnant  women  that  use  legal  or  illegal  substances; 
programmes 
prevention 
implemented  in  schools;  programmes  for  parents  focusing  on 
improving  parenting  and  communication  skills;  prevention 
activities for the Roma population. 

psychoactive 

substance 

use 

for 

The prevention measures implemented by Member States that take 
account  of  the  situational  risk  factors  such  as  homelessness,  drug 
use in night life and recreational settings, the workplace and driving 
under  the  influence  of  drugs  included:  measures  for  partygoers, 
festivalgoers;  anti-drugs  campaign  in  nightlife  settings  such  as 
music  festivals  and  club  venues;  school-based 
interventions 
addressed  to  adolescents  who  experiment  with  drugs  and  students 
who  have  psychosocial  problems;  family  and  community-based 
interventions  offered  to  individuals  with  psychosocial  problems 
possibly  associated  with  drug  use;  measures  for  homeless  youth, 
youth  in  socially  disadvantaged  neighbourhoods;  check-ups  of 
slummy homes, deserted buildings and other places where deprived 
persons are gathering; set up of harm reduction shelters for men and 
women specifically catering for drug users who find themselves in 
crisis  related  to  issues  of  homelessness,  health  related  risks; 
campaigns  and  guidelines  on  the  response  to  drug  use  at  the 
workplace;  accident  avoidance  prevention  for  youth;  programmes 
against  driving  under  the  influence  of  drugs;  awareness  raising  of 
driving  under  the  influence  of  drugs  as  part  of  the  preparation  for 
the driving licence; prevention videos showed in prisons. 

The prevention measures implemented by Member States that take 
account  of  individual  risk  factors  such  as  mental  health;  problem 
included:  measures 
behaviour  and  psychosocial  development 

4 

 
 
2.  In  addition  to  prevention  of  drug  use, 
strengthen  and  better  target  prevention  and 
diversionary measures to delay the age of first 
use of illicit drugs 

Ongoing 

Member States 

focusing  on  behaviour  and  substance  use;  addiction  prevention 
weeks  at  schools  for  children  with  special  needs;  modular 
prevention  aimed  at  children  from  families  affected  by  addiction; 
counselling; multi-dimensional family therapy for 11-19 year olds; 
sports-based programme targeted at at-risk young people with lesser 
opportunities;  parenting  programmes;  projects 
to  develop 
professional  skills  and  competences  for  women  and  in  particular 
female drug users or those at risk of drug use and other vulnerable 
groups  in  order  to  increase  employment  capacity  in  the  labour 
market. 

EMCDDA  reports  that  nearly  one-third  of  the  ESPAD2  students 
(31%)  had  smoked  a  cigarette  at  the  age  of  13  or  younger.  On 
average, nearly six in ten students had consumed at least one glass 
of alcohol at the age of 13 or younger and 12% had been drunk at 
that age. The use of other substances at such young age is rare, with 
on average 3% of the students declaring cannabis use. 

EMCDDA  informs  that  the  selective  measures  with  the  highest 
provision are reported to be those targeting families with substance 
misuse  problems,  the  provision  of  interventions  for  pupils  with 
interventions  for  young 
social  and  academic  problems  and 
offenders. 

A  large  majority  of  Member  States  reported  having  had  specific 
programmes  and/or  measures  aimed  at  delaying  the  first  use  of 
illicit  drugs  in  the  period  2013-2014.  Among  these  measures 
implemented:  universal  prevention 
Member  States  mainly 

2 ESPAD is the European School Survey Project on Alcohol and Other Drugs. The overall aim with the project is to repeatedly collect comparable data on substance use among 15–16 year old students in as many 
European countries as possible. 

5 

 
 
                                                            
 
 
raise  awareness  of 

risks  and 
3. 
consequences associated with the use of illicit 
drugs and other NPS 

the 

programmes  in  schools,  campaigns  against  drug  consumption  at 
music  festivals  and  venues,  programmes  aimed  specifically  at 
preventing the use of cannabis; awareness raising among public of 
the  risks  associated  with  drug  use,  production  and  trafficking; 
awareness  raising  among  young  children;  primary  prevention 
towards  specific  target  groups,  such  as  the  Roma  communities; 
selective  and  indicated  prevention  at  regional  level  carried  out  by 
NGOs;  selective  prevention  for  groups  that  show  higher  levels  of 
rks  factors;    set  up  of  portals  to  inform  parents  of  their  role  in 
prevention of addictive behaviours of children. Just over half of the 
Member  States  put  in  place  mechanisms  to  evaluate  these 
programmes and/or measures and a majority of these conducted or 
are currently conducting evaluations. 

In  the  period  2013-2014,  the  EMCDDA  issued  32  public  health 
alerts and advisories to the Early Warning System Network. Many 
of  these  concerned  serious  adverse  events,  particularly  deaths, 
and/or hazards that had the potential to cause serious harm.  

In this period, the Scientific Committee of the EMCDDA conducted 
seven  risk  assessments  on  new  psychoactive  substances  posing 
health concerns.  

A large majority of Member States ran awareness initiatives on the 
risks and consequences associated  with the use of illicit  drugs and 
other  new  psychoactive  substances.  The  target  groups  of  these 
campaigns  were  mainly  the  general  population,  minors,  young 
people, problem and recreational drug users, children, teachers and 
parents. A few Member States mentioned targeting the members of 
the  Early  Warning  Networks.  Most  of  these  campaigns  were 
continuous.  Their  aim  in  general  was  to  inform,  raise  awareness, 
prevent  health  incidents,  reduce  risks  associated  with  drug  use, 

Ongoing 

Member States 

European 
Commission 

European 
Monitoring  Centre 
for Drugs and Drug 
Addiction 
(EMCDDA) 

6 

 
 
their 
early  detection  of  new  psychoactive  substances  and 
dissemination,  promotion  of  personal  responsibility,  promote  drug 
treatment services and de-stigmatise drug users,. 

in 

enforcement,  police, 

A majority of the NGOs that provided input for this progress review  
ran  awareness  initiatives  on  the  risks  and  consequences  associated 
with the use of illicit drugs and other new psychoactive substances. 
Some also knew of other awareness campaigns run by other bodies. 
The target groups of the campaigns run by the NGOs ranged from 
the  population  at  large  to  drug  users,  health  professionals, 
professionals  working 
and 
law 
governmental  institutions,  youth,  elderly,  parents,  women  using 
drugs,  young  people  in  the  night  environment,  recreational  users. 
The  scope  of  the  initiatives  ranged  from  raising  awareness  in 
schools,  at  the  workplace  and  in  families  about  cannabis,  cocaine 
and  antipsychotics,  to  promotion  of  a  healthy  lifestyle,  safer  sex, 
reduction of HIV infections, information about the risks of drug use 
to reduce harm, to increased knowledge and interactive methods for 
drug  prevention,  to  creating  partnerships  between  the  drug  users 
community and state officials in advancing the rights of people who 
use drugs. Most of these were long-term campaigns, some of which 
are still ongoing.  

4.  Enable  a  more  informed  response  to  the 
challenge of the misuse of prescribed and 'over 
the  counter'  opioids  and  other  psychoactive 
medicines 

2014-2016 

Member States 

Horizontal  Drugs 
Group 

European 
Medicines  Agency 
(EMA) 

7 

The  situation  in  the  EU  as  regards  misuse  of  and  dependence  on 
prescribed  medicines  needs  further  work  and  analysis.  A  majority 
of  Member  States  estimate  that  the  following  categories  of 
medicines  would  be  misused:  opioid  analgesics  and  anaesthetics 
(prescribed  and  over-the-counter, 
if  applicable);  medicines 
primarily  prescribed  for  their  psychoactive  effects;  and  medicines 
used  in  the  substitution  treatment  of  addiction.  However,  there  is 
very  limited  data  available  in  the  Member  States  to  obtain  a 

 
 
EMCDDA 

complete estimate of misuse, happening in various contexts, in the 
whole of the EU. 

Of  those  Member  States  which  provided  examples  of  initiatives 
already implemented  at the national  level  to prevent the misuse  of 
medicines,  a  majority  focused  on  promotion  of  appropriate  use  of 
prescribed  medicines,  primarily  through  awareness  raising  and 
education  of  prescribing  physicians  as  well  as  on  supply  controls, 
such  as  controls  through  e-prescription  systems,  prescription 
guidelines 
restrictions  on 
for  benzodiazepines)  and 
prescription and dispensing of controlled medicines. 

(e.g. 

EMCDDA  reports  that  in  terms  of  misuse  of  prescription  opioids 
(PO)  both  monitoring  and  research  has  focused  on  their  diversion 
and/or  substitution.  The  main  groups  of  interest  have  been 
methadone  and  buprenorphine,  diverted  from  opioid  substitution 
treatments  and  to  lesser  extent  fentanyl,  diverted  from  use  as 
analgesics  or  produced  illicitly.  The  EMCDDA  is  collecting  the 
national  legislation  which  covers  prescribing,  control  of  diversion 
and  enrolment  of  medication  used  for  drugs  substitution  treatment 
(OST).  Substitution  registers  in  each  Member  State  help  to  avoid 
problematic  double  prescriptions 
several 
prescribing doctors in parallel.  

through  visiting 

A  2015  report  of  the  EMCDDA3  shows  that  benzodiazepines4  are 
often  misused  by  high-risk  opioid  users  and  are  associated  with 
morbidity  and  mortality  in  this  group.  Around  11 %  of  the  clients 
entering specialised drug treatment in in Europe in 2013 for opioid 
problems  reported  use  of  benzodiazepines  as  a  secondary  drug.  

3 Perspectives on Drugs: the misuse of benzodiazepines among high-risk opioid users in Europe, EMCDDA 2015 
4 Benzodiazepines are a group of widely prescribed medicines with a range of clinical uses, including treatment of anxiety and  insomnia and the management of alcohol withdrawal. Examples of such medicines are: 
diazepam, clonazepam, alprazolam, oxazepam 

8 

 
 
                                                            
There are particular concerns around the misuse of benzodiazepines 
in  combination  with  opioids.  This  combination  is  associated  with 
elevated risk of drug overdose, in addition to increased risk of HIV 
infections,  psychopathology  (anxiety  and  depression),  poorer 
treatment outcomes and poorer social functioning. 

The EMCDDA is currently developing a conceptual framework for 
monitoring  the  misuse of  medicines. This includes  methodological 
work  linking  different  areas  of  current  EMCDDA  monitoring 
activities, constructing a monitoring definition, identifying existing 
and  new  data  sources  and 
indicators  and  proposing  other 
methodological  developments,  which  may  help  in  monitoring  the 
situation in Europe in the future.  

As of 01.07.2015 there is a common EU logo to identify legitimate 
online retailers of medicine. The use of the logo allows consumers 
to  differentiate  between  legitimate  online  pharmacies  (and  other 
medicines  retailers)    from  illegal  ones,  the  latter  being  the  main 
source  of  prescription-only  medicines  (including  opioids)  sold 
without  a  prescription  and  of  falsified  prescription-only  medicines 
(including opioids). 

Objective 2: Enhance the effectiveness of drug treatment and rehabilitation, including services for people with co-morbidity, to reduce the use of illicit 
drugs; problem drug use; the incidence of drug dependency and drug- related health and social risks and harms and to support the recovery and 
social re/integration of problematic and dependent drug users 

coverage 

5.  Develop  and  expand  the  diversity,  avail-
ability, 
of 
and 
comprehensive 
treatment 
those  which  address 
services 
polydrug  use  (combined  use  of  illicit  and/or 

accessibility 

integrated 

including 

and 

Ongoing 

Member States 

The EMCDDA reports that in 2013 around 460.000 drug users were 
reported to have entered treatment for problems related to their drug 
use  in  the  EU;  around  170.000  of  them  have  entered  for  the  first 
time in their life. 

Most  clients  enter  treatment  for  primary  use  of  opioids,  especially 

9 

 
 
licit substances including alcohol) 

heroin, followed by cannabis, cocaine, stimulants other than cocaine 
and other drugs. Among people entering treatment for the first time 
in  their  life,  the  first  reason  for  entering  treatment  is  cannabis, 
followed  by  opioids,  cocaine,  stimulants  other  than  cocaine  and 
other drugs. 

In  2013-2014  integrated  treatment  services  were  available  in  all 
Member  States  and  the  coverage  was  good.  In  a  majority  of 
Member States treatment services were available both in cities and 
the  country-side  all  over  the  country  or  in  the  main  cities  and  the 
capital.  In  a  few  Member  States  treatment  services  were  available 
only in 2-3 main cities and the capital.   

Half  of  the  Member  States  considered  that  no  major  change 
intervened in the availability of treatment services in 2013 -2014 in 
their country. Most of the rest of the Member States found that the 
availability  of  treatment  services  increased.  Many  NGOs  said  that 
the availability of treatment services in their country declined due to 
budgetary cuts. 

EMCDDA reports that most drug treatment in Europe is provided in 
outpatient  settings,  while  a  sizeable  proportion  (1/10th)  of  drug 
treatment  in  the  EU  is  also  provided  in  inpatient  settings.  The 
relative  importance  of  outpatient  and  inpatient  provision  within 
national  treatment  systems  varies  greatly  between  countries. 
Specialised outpatient centres represent the largest provider in terms 
of  drug  users  reached,  followed  by  general  healthcare  centres. 
These  include  general  practitioners’  surgeries,  reflecting  their  role 
as  prescribers  of  opioid  substitution  treatment  in  half  of  the 
EMCDDA  reporting  countries.  In  addition,  many  Member  States 
have  low-threshold  services,  and  although  many  of  these  do  not 
provide structured treatment, in some countries, these agencies are 

10 

 
 
considered as an integral part of the national treatment system. 

EMCDDA also reports that opioid users represent the largest group 
undergoing treatment in Europe and consume the greatest share of 
available  treatment  resources.  Substitution  treatment  (OST)  is  the 
most common treatment for opioid dependence.  An estimated 700. 
000  opioid  users  received  OST  in  the  European  Union  in  2013. 
Coverage  of  OST  is  estimated  at  more  than  50  %  of  Europe’s 
problem opioid users. At national level, however, large differences 
still  exist  in  coverage  rates.  Although  less  common,  alternative 
treatment options for opioid users are available in all EU countries. 

In 2013-2014 a wide range of services was accessible and provided 
to  drug  users  in  European  treatment  facilities.  Member  States 
reported 
the  following  services:  psychotherapy,  occupational 
therapy,  medical  diagnosis  and  treatment,  voluntary  testing  for 
infectious  diseases,  clinical  psychology 
vaccination  against 
diagnosis,  psychosocial  advice  and 
individual  and/or  group 
counselling, health promotion  services such as nutrition, education 
and  health,  vocational  orientation,  detoxification,  family  therapy, 
alternative  therapy  psycho-education  of  parents  and  adolescents,  
low threshold medical care, antiretroviral treatment (ARV), relapse 
prevention. 

EMCDDA  reports  that  data  from  outpatient  specialised  treatment 
centres  indicate  that  psychosocial  treatment  is  the  most  commonly 
available  service  to  drug  users  in  this  type  of  facility.  24  Member 
States  reported  to  the  EMCDDA  that  this  service  is  available  in 
more than 50% of all outpatient specialised treatment. 

According  to  the  EMCDDA,  targeted  interventions  can  facilitate 
access to treatment and ensure that the needs of specific groups are 

11 

 
 
met.  The available information  suggests that this kind of approach 
is  currently  most  commonly  available  to  young  drug  users,  those 
referred  from  the  criminal  justice  system  and  pregnant  women. 
Targeted programmes for homeless drug users, older drug users and 
lesbian, gay, bisexual and transgender drug users are less frequently 
available, despite many countries reporting that there was a need for 
this kind of provision. 

Based  on  the  new  EMCDDA  Guidelines  on  treatment  demand, 
polydrug use problems is  defined  as problematic use of more than 
one drug at the same time in a way that is very difficult to clearly 
identify one primary drug. According to data from 16 EU Member 
States, around 40% of clients entering drug treatment in 2013 were 
identified  as  polydrug  users. Among  all drug clients  citing  at least 
one  secondary  drug  opioids,  alcohol  and  cannabis  are  the  most 
frequently cited secondary substances.  

Less  than  half  of  the  Member  States  said  that  there  was  no 
expansion  in  the  three  types  of  rehabilitation/recovery  services  in 
the period 2013-2014.   

A few Member States mentioned having experienced some changes 
in rehabilitation/recovery services with an emphasis on services that 
focus on providing  a continuum of care through  case  management 
and  interagency  collaboration  for  individuals  in  2013-2014.  Less 
the 
than  half  of 
rehabilitation/recovery  services  that  focus  on  supporting  social 
re/integration  (including  employability)  of  problem  and  dependent 
drug users. Less than half of the Member States reported changes in 
the  rehabilitation/recovery  services  that  strengthen  the  diagnostic 
process and the treatment of psychiatric and physical co-morbidity 

the  Member  States  reported  changes 

in 

Ongoing 

Member States 

6.  Expand  the  provision  of  rehabilitation/re-
covery  services  with  an  emphasis  on  services 
that: 

a)  focus  on  providing  a  continuum  of  care 
through  case  management  and  interagency 
collaboration for individuals; 

b) focus on supporting the social re/integration 
(including  the  employability)  of  problem  and 
dependent drug users; and 

c)  strengthen  the  diagnostic  process  and  the 
treatment  of  psychiatric  and  physical  co-

12 

 
 
morbidity involving drug use 

involving drug use.  

Many  of  the  NGOs  reported  that  in  2013-2014  there  was  no 
expansion of rehabilitation/recovery services. 

EMCDDA reports that in the EU, Case management (CM) is most 
commonly  available  to  drug  users 
in  specialised  outpatient 
treatment centres.  16 Member States reported to the EMCDDA that 
CM is available in more than 50% of all centres of this type. Within 
the outpatient treatment systems in the EU, the availability of CM is 
generally limited within general and mental health care centres and 
low threshold agencies. Within the inpatient treatment system, CM 
is available in more than 50% of the three main inpatient treatment 
providers in only one third of EU countries.  

EMCDDA  reports  that  the  most  recent  data  available  (2009-2010) 
show that employment support interventions specifically targeted at 
people in drug treatment (or those who have successfully completed 
treatment) to assist with securing and maintaining paid employment 
were  available  in  11  Member  States.  Employability  of  people  in 
drug  treatment  is  a  regular  standard  objective  (e.g.  included  in 
individual treatment care plans) in 15 reporting Member States. Of 
the  22  Member  States  reporting  the  existence  of  general  and/or 
specific employment support interventions to the EMCDDA, 36 % 
stated full or extensive coverage of these services when needed and 
requested by clients in treatment, whereas 64 % reported limited or 
rare coverage. 

According  to  the  EMCDDA,  in  the  EU  the  screening  of  mental 
health  disorders  is  most  commonly  available  to  drug  users  within 
inpatient  treatment  facilities.  A  majority  of  Member  States  report 
that mental health screening is available to drug users in more than 

13 

 
 
Ongoing 

Member States 

50%  of  all  hospital  based  residential  treatment  facilities  (e.g. 
psychiatric hospitals).  Within the EU outpatient treatment systems, 
the  availability  of  this  service  is  most  commonly  available  in 
specialised  outpatient  treatment  centres  and  general  and  mental 
health care centres, with more than half of  the countries reporting 
that this service is available to drug users in more than 50% of all 
facilities of this type.  

2  projects  funded  in  2013-2014  from  the  European  Social  Fund 
support social reintegration of drug addicts: one aiming at complete 
assimilation programme for people on methadone substitution with 
the  aim  of  labour  market  and  social  reintegration  (CZ)5  and  one 
providing  vocational  training  for  former  addicts6  (DE).  The 
contribution  from  the  European  Social  Fund  was  of  approx.  EUR 
1.200.000. 

Drug use is one of the major causes of avoidable mortality among 
young  people  in  Europe,  both  directly  through  overdose  (drug-
induced  deaths)  and  indirectly  through  drug-related  diseases, 
accidents, violence and suicide. It has been estimated that between 
10  000  and  20  000  opioid  users  die  each  year  in  Europe.  Overall, 
opioid users are at least 10 times more likely to die than their peers 
of the same age and gender.  

EMCDDA  reports  that  overall,  drug  overdose  continues  to  be  the 
main  cause  of  death  among  problem  drug  users,  and  over  three-
quarters  of  overdose  victims  are  male  (78  %).  Between  2006  and 
2013, a pattern can be observed of decreasing numbers of overdose 
deaths  among  younger  drug  users  and  increasing  numbers  among 

to 

lessen 

7. Ensure that treatment and outreach services 
incorporate  greater  access  to  risk  and  harm 
the  negative 
reduction  options 
consequences of drug use and to substantially 
reduce the number of direct and indirect drug- 
related  deaths  and  infectious  blood-  borne 
diseases  associated  with  drug  use  but  not 
limited  to  HIV  and  viral  hepatitis,  as  well  as 
sexually 
and 
tuberculosis 

transmittable 

diseases 

5 Project "Šance – complete assimilation programme for people on methadone substitution with the aim of labour market and social reintegration" 
6 Project "Barking up the right tree" 

14 

 
 
                                                            
older users. This reflects the ageing nature of Europe's opioid-using 
population, who are at greatest risk of drug overdose death.  

Drug  injection  continues  to  play  an  important  role  in  the 
transmission of blood-borne infections such as the hepatitis C virus 
(HCV) and, in some countries, the human immunodeficiency virus 
(HIV).  

Among  all  HIV  cases  notified  in  Europe  where  the  route  of 
transmission is known, the percentage attributable to injecting drug 
use  has  remained  low  and  stable  (under  8  %  for  the  last  decade). 
Provisional  figures  for  2013  show  1  458  newly  reported  cases, 
compared with 1 974 in 2012, reversing the upward trend observed 
since 20107. 

In  2013,  the  average  rate  of  newly  reported  HIV  diagnoses 
attributed to injecting drug use was 2.9 per million population in the 
EU, with the three Baltic States showing rates 8 to 22 times higher 
than  the  EU  average8.  In  other  countries  that  have  experienced 
periods  with  high  rates  of  infection  in  the  past,  such  as  Spain  and 
Portugal, rates of newly reported diagnoses continue to decline.  

Early  diagnosis  and  prompt  appropriate  treatment  are  important  in 
preventing progression from HIV infection to AIDS. In 2013, there 
were 769 notifications of new AIDS cases in Europe attributable to 
injecting drug use9.  

HIV-related  mortality  is  one  of  the  most  documented  indirect 
causes of death among drug users.  

7 EMCDDA EU Drugs Report 2015 
8 Idem 
9 Idem 

15 

 
 
                                                            
EMCDDA reports that viral hepatitis, particularly infection caused 
by the hepatitis C virus (HCV), is highly prevalent among injecting 
drug  users  across  Europe.  This  may  have  important  long-term 
consequences, as HCV infection, often worsened by heavy alcohol 
use, is likely to account for increasing numbers of cases of cirrhosis, 
liver cancer and death among injecting drug users.  

A large majority of Member States reported that they took specific 
measures to ensure availability of and access to evidence-based risk 
and  harm  reduction  measures  in  2013-2014.  Member  States  report 
that  they  implement  a  wide  range  of  risk  and  harm  reduction 
measures  including:  low  threshold  testing,  opioid  substitution 
treatment,  outreach  street  work,  counselling,  distribution  of 
condoms  and  kits  with  sterile  material,  naloxone  distribution, 
programmes for reducing fatalities and disabilities linked to driving 
under  drugs  influence,  monitoring  and  treatment  of  blood  born 
infectious  diseases,  set  up  of  mobile  harm  reduction  teams,  HIV 
testing, ARV treatment.  

In  the  EU,  harm  reduction  policies  form  an  integrated  part  of  the 
public  health  response  to  drug  use-related  health  problems  and  all 
countries implement opioid substitution treatment (OST) and needle 
and syringe programmes (NSP) as core measures for the prevention 
and  control  of  infections  among  people  who  inject  drugs  (PWID). 
Data  from  23  Member  States  reporting  syringe  data  to  the 
EMCDDA show  that 46 million  syringes were provided to PWID, 
mostly  by  community-based  agencies  and  local  health  services,  in 
2013. The remaining 5 countries, representing 45% of the total EU 
population, do not have centralised syringe monitoring and did not 
submit  estimates.  The  average  number  of  syringes  distributed  per 
PWID through specialised programmes ranges from less than 50 to 

16 

 
 
8.  Scale  up  the  development,  availability  and 
coverage  of  health  care  measures  for  drug 
users  in  prison  and  after  release  with  the  aim 
of  achieving  a  quality  of  care  equivalent  to 
that provided in the community 

ongoing 

 Member States 

350. 

As part of a comprehensive system of harm reduction responses and 
to address specific harms (e.g. drug-related deaths, public drug use), 
some  EU  member  states  provide  highly  targeted  services  such  as 
supervised  drug  consumption  facilities  and  take-home  naloxone 
programmes.  In  2013,  a  total  of  73  drug  consumption  facilities 
operated  in  five  EU  countries.  In  2013,  six  EU  countries  reported 
the 
take-home  naloxone 
community  based 
programmes, some of them small and time limited.  

existence  of 

EMCDDA  reports  that  substance  use  is  high  amongst  prisoners 
compared to the general population. Prisoners who use drugs suffer 
from high levels of physical and psychiatric disorders, ranging from 
infectious  diseases  (HIV,  hepatitis  B  and  C,  tuberculosis)  to 
psychiatric  co-morbidity.  Rates  of  HIV  or  Hepatitis  C  (HCV) 
infection  for  those  who  had  experienced  prison  are  3  and  7  times 
higher  compared  persons  without  prison  experience.  The  risk  of 
drug  overdose  is  high  among  drug  using  prisoners,  particularly  in 
the  first  period  after  prison  release:  compared  to  the  general 
population the mortality risk is up to 29 times higher for males and 
69 for females in the first two weeks after prison release. 

In  2013  the  European  Commission  published  the  results  of  an 
independent  study10  that  assessed  the  implementation  by  the 
Member  States  of  the  2003  Council  Recommendation  on  the 
prevention  and  reduction  of  health-related  harm  associated  with 
drug  dependence11.  It  showed  that  while  the  coverage  of  opioid 
treatment  and  needle  and  syringe  programmes 
substitutions 

10 Report on the current state of play of the 2003 Council Recommendation on the prevention and reduction of health-related harm, associated with drug dependence, in the EU and candidate countries, Gesundheit 
Oesterreich & Sogeti, 2013 
11 OJ L165, 03.07.2003, pp. 31-33 

17 

 
 
                                                            
increased  considerably,  the  latter  is  far  from  full  coverage  in  all 
countries  and  especially  not  in  prisons.  This  makes  prisons  a  high 
risk environment for infections with HIV or hepatitis C. 

In 2013-2014 most Member States implemented healthcare policies 
for  drug  users  during  their  imprisonment.  More  than  half  of  these 
countries plan to increase existing  measures until the end of 2016. 
Out of the ones that did not implement such policies a majority plan 
to do so by the end of 2016.  

In 2013-2014, in more than half of the Member States prison-based 
services and community-based services provided continuity of care 
for drug users with particular emphasis on avoiding drug overdoses. 
In two countries this was the case only in some prisons. 

EMCDDA  reports  that  in  2013,  opioid  substitution  treatment  is 
reported  to  be  available  in  prisons  in  a  large  majority  of  Member 
States. Two countries reported no cases of treatment, although OST 
is  theoretically  available.  Restrictions  on  eligibility  may  exist 
however,  for  example  in  some  countries  treatment  in  prison  is 
limited to those already having a prescription prior to incarceration. 
The  provision  of  clean  injecting  equipment  is  less  common,  with 
only four countries reporting its availability in prisons.  

Objective 3: Embed coordinated, best practice and quality approaches in drug demand reduction 

9. Agree and commence the implementation of 
EU  minimum  quality  standards,  that  help 
bridge  the  gap  between  science  and  practice, 
for: 

a)  environmental,  universal,  selective  and 

2014-2016 

Council 

Horizontal  Drugs 
Ggroup 

Member States 

18 

In  2013  and  2014  the  Council,  Commission  and  the  EMCDDA 
worked on minimum quality standards for drug demand reduction.   

EMCDDA  provided  technical  assistance  to  the  Greek  and  the 
Italian Presidencies on the implementation of EU minimum quality 
standards.  This  involved  the  collection  of  examples  of  quality 

 
 
indicated prevention measures; 

b) early detection and intervention measures; 

c) risk and harm reduction measures; and 

d)  treatment,  rehabilitation,  social  integration 
and recovery measures 

Drug supply reduction 

European 
Commission 

EMCDDA 

standards  in  Europe  and  beyond  and  providing  a  methodological 
proposal to extract and analyse information from them in line with 
the EU Drug Strategy.  

In  2015  Council  Conclusions  on  minimum  quality  standards  for 
drug demand reduction were adopted. 

Objective/Action 

Timetable 

Responsible party 

State of Play 

Objective 4: Enhance effective law enforcement coordination and cooperation within the EU to counter illicit drug activity, in coherence, as 
appropriate, with relevant actions determined through the EU policy cycle 

information-sharing 

10.  Utilise  to  best  effect  available  intelligence 
enforcement 
and 
instruments,  channels  and  communication  tools 
used 
to  collate  and  analyse  drug-related 
information 

law 

Ongoing 

Member States 

Europol  

Eurojust  

Standing 
Committee 
Operational 
Cooperation 
Internal 
(COSI) 

on 

on 
Security 

According to Europol, the EMPACT12 projects on synthetic drugs, 
cocaine  and  heroin  provided  the  law  enforcement  services  in  the 
Member  States  with  strategic  and  operational  analytical  support, 
organisation of operational meetings, supporting Joint investigation 
teams,  technical,  tactical  advice,  on  the  spot  support,  financial 
support  etc.  It  also  provided  better  conditions  for  networking  of 
practitioners  working  in  MS  and  third  countries,  exchanging  best 
practises  and  expertise.  It  has  also  increased  the  coordination  of 
actions  and  intelligence  flow  between  the  Member  States  and 
Europol.   

In 2013 drugs remained the most important crime area with 24% of 

12 The Serious and Organised Crime Threat Assessment, developed by Europol, delivered a set of recommendations based on an in-depth analysis of the major crime threats facing the EU. Multi-Annual Strategic 
Action Plans are developed from the priorities in order to define the strategic goals for combating each priority threat. These are translated into EMPACT (European Multidisciplinary Platform against Criminal Threats) 
– these projects will set out operational action plans (OAPs) to combat the priority threats. 

19 

 
 
 
 
                                                            
all  new  cases  initiated  and  27%  of  all  information  flow  within 
Europol's  Secure  Information  Exchange  Network  Application.  In 
2014, the total number of all cases initiated increased by 87% and 
drugs  remained  the  dominating  crime  area  with  18%  of  all 
information flow. More than 1600 new drug related cases targeting 
organised crime groups involved in trafficking of cocaine, heroin, 
synthetic drugs and cannabis were initiated in 2014.  

In 2013, 116 dump sites, 42 storage sites and 41 illegal laboratories 
for  synthetic  drugs  were  dismantled  with  Europol’s  assistance.  In 
addition,  Europol  assistance  has  been  provided  to  94  on-going 
cases.  

In 2014 alone Europol has produced more than 50 cocaine related 
operational  analysis  reports  and  supported  more  than  50  high 
priority cases.  

In  2014  Europol  supported  23  high  profile  operations  targeting 
Turkish and Pakistani Organised Crime Groups heavily involved in 
diverse crime activities including the supply of large quantities of 
heroin to the EU. 

During  2013  –  2014  Europol  provided  support  to  more  than  50 
high  priority 
targeting  criminal  organisations 
involved in unlawful wholesale cannabis trafficking, cultivation or 
production.  

investigations 

The  number  of  cases  of  drug  trafficking  referred  to  Eurojust  has 
increased  during  the  reporting  period,  from  248  cases  in  2013  to 
279  cases  in  2014:  37  of  these  cases  also  addressed  money 
laundering  of  drug-related  proceeds.  A  total  of  111  coordination 
meetings  were  organised,  involving  prosecutors  and  investigators 

20 

 
 
11.  Identify  and  prioritise  the  most  pressing 
threats  associated  with  drug-related  organised 
crime 

12.  Strengthen  CEPOL's 
law 
enforcement  officers  in  relation  to  illicit  drug 
production  and  trafficking,  particularly  training 
methods and techniques: 

training 

for 

a)  to  combat  the  use  of  new  communication 
technologies  in  illicit  drug  production  and  traf-
ficking; 

b) to enhance asset confiscation; 

c) to combat money laundering; and 

d)  to  detect  and  dismantle  illicit  clandestine 
laboratories and cannabis cultivation sites 

in charge of drug trafficking cases, and 21 joint investigation teams 
(JITs) were initiated in this field. 

In  2013,  Europol  produced  the  Serious  Organized  Crime  Threat 
Assessment (SOCTA) report. Based on these findings, the Council 
approved  priority  crime  areas  –  these  included  fighting  organized 
crime  networks  involved  in  trafficking  of  cocaine,  heroin  and 
synthetic  drugs.  Operational  Action  Plans  for  2014  have  been 
approved  and  consequently 
implemented.  Europol  was  a 
participant in a wide range of operational actions, leading in some 
of those areas.   

CEPOL  has  developed,  on  the  basis  of  the  training  needs 
assessment, a training portfolio for law enforcement staff on drug-
related  issues  (including  residential  training  activities,  webinars 
and  exchanges),  as  well  as  a  common  curriculum  on  drug 
trafficking.   

With  regard  to  the  training  assessment  needs,  CEPOL  carried  out 
an  annual  consultation  and  prioritisation  process  with  the  EU 
Member  States,  the  results  of  which  is  reflected  in  the  number  of 
activities  on  the  specific  topics  in  CEPOL's  Annual  Work 
Programme.  

On  the  basis  of  the  outcome,  CEPOL  organised  22  residential 
training activities and webinars on drug and drug-related issues in 
2013  and  2014  for  a  total  of  1.342  participants  from  the  EU  MS, 
associated  countries,  candidate  countries  and  EU  agencies.  15  of 
those activities were on drug-related topics: they concerned issues 
that  have  high  relevance  in  the  fight  against  drug  crimes  such  as 
informant  handling,  undercover  operations  etc.,  or  also  activities 

2014 

Council 

2014-2016 

COSI 

Europol 

Member States 

European 
Commission 

Member States 

European Police 
College (CEPOL)  

Europol  

COSI  

European 
Commission 

21 

 
 
focused  on  specific  regions  like  the  Western  Balkans  and  West 
Africa. 48 law enforcement officers from EU MS and the European 
Neighbourhood Partnership -Western Balkan countries participated 
in  the  context  of  the  fight  against  drugs  in  the  European  Police 
Exchange Programme. 

technologies 

All  activities  aim  at  enhancing  the  knowledge  and  skills  of  law 
enforcement  officers for their daily work in the fight against drug 
production and supply. Topics such as combatting the use of new 
communication 
illicit  drug  production  and 
in 
trafficking  and  enhance  asset  confiscation  were  covered  within 
these  activities,  as  well  as  knowledge  on  precursors  and  new 
psychoactive  substances.  In  2013  CEPOL  and  Europol  jointly 
delivered a 2-week  training  course on  dismantling illicit  synthetic 
training  on 
drug 
dismantling synthetic drug laboratories was delivered. Other topics 
covered  by  the  CEPOL  training  activities  included:  Capacity 
building  in  Western  Africa,  Container  Shipment  Trafficking  and 
Forensics;  Western  Balkans  Organised  Crime  Links;  Money 
laundering;  Fraud  and  Confiscation  of  assets;  fighting  drugs  and 
strategic  perspectives  in  the  fight  against  synthetic  drugs;  cocaine 
smuggling; fight against cannabis exploitation.  

In  2014  another  advanced 

laboratories. 

In  2013  CEPOL  has  updated  its  Common  Curriculum  on  drug 
trafficking13  as  well  as  its  common  curriculum  on  money 
laundering.  In  both,  a  specific  focus  was  put  on  the  cooperation 
between  drug  investigators  and  experts  on  money  flow  in  the 
context of the confiscation of assets. 

13 Includes as main topics: the practice of drug trafficking; the national and EU legal frameworks for the fight against drug crime; drug investigation methods and special investigation techniques; organised crime groups 
in the context of drugs; drug-related crimes; international cooperation in the fight against drug crime 

22 

 
 
                                                            
13.  Improve  counter  narcotic  activities  through 
strengthening  and  monitoring  the  effectiveness 
of  regional  information-sharing  platforms  and 
regional security-sharing platforms with the aim 
of  disrupting  and  suppressing  emerging  threats 
from changing drug trafficking routes 

Ongoing 

Europol reports that there has been a continuous effort to improve 
the  exchange  of  information  with  regional  information  sharing 
platforms  with  regular  involvement  with  entities  such  as  MAOC-
N14,  CeCLAD-M15  and  the  BSTF16.  A  Europol  officer  has  been 
designated  as  the  specific  contact  point  with  MAOC-N  but  issues 
still remain with the reluctance of the participating Member States 
to fully integrate Europol in the intelligence exchange process.  

Outcomes  of  cross-border  cooperation  are  also  reported  under 
Action 10.  

European 
Commission 

Member States 

Europol 

COSI 

Regional 
information 
sharing platforms 

Regional security- 
sharing platforms 

14.  Strengthen  actions  to  prevent  the  diversion 
of drug precursors and pre- precursors for use in 
the illicit manufacture of drugs 

Ongoing 

Member States 

Europol  

European 
Commission 

Customs Union 
Group (CUG)  

COSI 

In  2013  there  were  a  total  of  846  cases  of  seizures  and  stopped 
shipments of drug precursors intended for illicit  use. Out  of these 
342  concerned  scheduled  substances  and  504  non-scheduled 
substances.  In  2014  the  total  number  of  cases  was  628  of  which 
461 scheduled substances and 167 non-scheduled substances.  

Europol has worked closely with law enforcement agencies in the 
Member States providing both analytical and forensic  expertise to 
investigations involving the smuggling and diversion of pre-cursor 
used in the manufacture of synthetic. FP Heroin has also provided 
support  to  a  Joint  Investigation  Team  established  to  target  a 

14 The Maritime Analysis and Operations Centre – Narcotics (MAOC-N) was established in 2007 to create a dynamic operational platform with the co-location of experienced investigators and military attachés from 7 
EU Countries and the United States of America. It brigades the naval and military assets of partners to intercept vessels trafficking bulk shipments of cocaine across the Atlantic Ocean. The initiative is funded by the 
European Commission http://www.maoc.eu/  
15 The Mediterranean area anti-drug enforcement coordination centre (CeCLAD-M) is an international anti-drug trafficking agency based in Toulon (France) set up in 2008 to coordinate anti-drug trafficking operations 
and intelligence in the Mediterranean. 
16 The Baltic Sea Task Force on Organised Crime (TF-OC) in the Baltic Sea Region was established following a decision of the heads of government of the CBSS Member States at the 1st Baltic Sea States Summit in 
1996 in Visby. The aim of the TF-OC is to strengthen member-state capacities to prevent and combat organised crime by facilitating close cooperation among member-state law enforcement agencies. The main fields of 
activity of the TF-OC are as follows: improved and increased exchange of information; joint concrete and operative measures; judicial cooperation; special surveys, training and other cooperation. 

23 

 
 
                                                            
trafficking  organisation  involved  in  the  diversion  of  acetic 
anhydride  assisting  in  order  to  map  and  dismantle  the  criminal 
network. 

Eurojust run a strategic project on drug trafficking, whose goal was 
to identify the main challenges and related solutions in Eurojust’s 
coordination meetings involving drug trafficking. The results of the 
Project,  concluded  in  2014,  show  that  in  several  Member  States, 
the  possibility  to  open  an  investigation  into  the  trafficking  of 
(pre)precursors  is  linked  to  the  presence  of  these  substances  in 
European  legal  tools  or  national  lists  of  proscribed  substances. 
Failing this requisite, prosecution is still possible in some Member 
States  if  the  production  of  these  substances  is  considered  as  a 
‘preparatory  act’  to  the  commission  of  drug  offences.  As  to  new 
psychoactive substances, in some Member States, their prosecution 
is based on laws (or administrative Acts) regulating medicines.  

The  Commission  is  a  member  of  the  International  Narcotics 
Control  Board’s  (INCB)  International  Task  Force  on  drug 
precursors. It actively participated in 2 meetings in 2013 and 2 in 
2014.  The  European  Anti-Fraud  Office  (OLAF)  facilitated  an  EU 
coordinated  approach  in  the  operations  launched  by  the  Task 
Force. 

In  2013there  have  been  5  joint  follow-up  meetings  linked  to  the 
prevention  of  the  diversion  of  precursors  and  pre-precursors:  two 
with  the  ANDEAN17  countries,  with  China,  Mexico  and  US.  In 
2014  3  such  meetings  took  place:  with  the  ANDEAN  countries, 
with China and the US.  

17 The Andean Community is a customs union comprising the South American countries of Bolivia, Colombia, Ecuador, and Peru. 

24 

 
 
                                                            
15.  Counter  cross-border  drug  trafficking  and 
improve border security notably at EU seaports, 
airports and land border crossing points through 
intensified  efforts,  including  information  and 
intelligence 
law 
enforcement agencies 

relevant 

sharing, 

by 

The International Narcotics Control Board (INCB) reports that the 
number  of  Pre-Export  Notifications  (PEN)  Online  System 
increased in 2014 compared to 2013 both regarding the number of 
PENs received  and submitted  by EU Member States. In 2013 EU 
Member  States  received  1432  PENs  and  submitted  4502.  In  2014 
they received 1836 and submitted 6374. 

The use of the Precursors Incident Communication System (PICS) 
has  also  increased  in  the  reporting  period.  In  2013  there  were  41 
incidents  reported  in  PICS  where  EU  Member  States  were 
countries of incident and there were 72 incidents reported in 2014. 

Less  than  half  of  the  Member  States  had  Memoranda  of 
Understanding (MoUs) in force between law enforcement agencies 
and/or Customs Authorities and relevant bodies such as airlines, air 
express  couriers,  shipping  companies,  harbour  authorities, 
chemical  companies  and  third  countries  to  fight  against  cross-
border trafficking in 2013-2014.  

Some  of  those  Member  States  that  said  they  did  not  have  such 
MoUs  in  place  mentioned  that  there  is  good  cooperation  between 
law enforcement units and relevant bodies on permanent basis.  

Where  MoUs  exist,  the  countries  find  them  very  effective  in 
achieving: accurate and immediate information sharing; prevention 
of diversion of chemicals and detection of many illicit laboratories; 
better use of resources, working methods and an improved level of 
protection; effective control of post and express courier parcels.  

In  2013-2014  a  majority  of  the  Member  States  set  in  place 
initiatives to counter cross-border trafficking and improve security 

Ongoing 

Member States 

Europol 

Customs 
Cooperation 
Working Party 
(CCWP) 

COSI 

25 

 
 
with other Member States.  

The  initiatives  carried  out  by  the  Member  States  included: 
participation  in  the  EMPACT  projects,  in  the  Joint  Action  Days 
and  other  initiatives  organised  with  Europol;  bilateral  cooperation 
with  immediate  neighbours;  cross-border  regional  operations 
targeting  drugs  smuggling;  cooperation  with  neighbouring 
countries  aimed  at  enhancement  of  exchange  of  information  and 
operation actions; joint actions with the financial intelligence units 
of the national banks regarding money laundering; patrolling along 
the coastline, passenger controls at the national airport, controls of 
ships  and  cargo  in  the  harbours;  exchange  of  information  and 
cooperation  with  international  organisations;  joint  training  actions 
and  exchanges  of  customs  officers  between  different  Member 
States'  customs  administrations  to  exchange  and  implement  best 
practices;  capacity  building,  in  the  framework  of  TAIEX18,  in  the 
neighbouring 
in  World  Customs 
Organisation  and  United  Nations  Office  on  Drugs  and  Crime 
(UNODC) programmes. 

countries;  participation 

Europol  has  regularly  participated  in  Action  Days  aimed  at 
discouraging  the  phenomenon  of  cross  border  drug  trafficking, 
to 
deploying  Mobile  Offices  and  other 
operations.  

technical  support 

16.  Develop  and  progressively  implement  key 
indicators  on  drug  supply  by  standardising, 
improving  and  streamlining  data  collection  in 
this field, building on currently available data 

2014-2016 

European 
Commission 

Member States 

In  October  2013  the  Council  of  the  EU  adopted  Conclusions  on 
improving the monitoring of drug supply in the European Union. 
It  was  agreed  that,  in  order  to  help  assess  the  drug  situation,  the 
dynamics  of  the  illicit  drug  market,  the  burden  of  drug-related 

18 TAIEX is the Technical Assistance and Information Exchange instrument of the European Commission. TAIEX supports public administrations with regard to the approximation, application and enforcement of EU 
legislation as well as facilitating the sharing of EU best practices. 

26 

 
 
                                                            
Council  

Horizontal  Drugs 
Group  

EMCDDA  

Europol 

crime  and  the  effectiveness  of  supply-orientated  policies,  it  was 
necessary that accurate, reliable, comparable and high-quality data 
on supply would be necessary.  

The  EMCDDA  reports  that  the  conceptual  framework  for  the 
indicators  established  with  the  agreement  of  the  Member  States 
involves  monitoring  in  three  areas:  drug  markets,  drug  supply 
reduction and drug-related crime, with sub-indicators contributing 
to one or more of the areas.  

A key element supporting the development of these indicators has 
been  the  Reference  Group  on  Drug  Supply  Indicators  set  up  in 
2013. The Group  assists EMCDDA with  the development of the 
drug supply reduction indicators. In 2014, the Seizures and Drug 
Law  Offences  data  collections  were  reviewed,  the  list  of 
substances extended, wholesale and retail levels introduced, drug 
precursors and the misuse of medicines incorporated, harmonised 
with  the  International  Classification  of  Crimes,  and  information 
on  methodology  increased.    Pilot  data  collection  takes  place  in 
2015.   

In 2013, the EMCDDA published a report on specialist drug law 
enforcement in the EU, quantitatively describing the drug supply 
reduction  activities  of  the  Member  States.  Work  also  progressed 
on  the  sub-indicators  on  drug  seizures,  drug  prices,  drug  law 
offences,  dismantled  synthetic  drug  production  sites  and 
dismantled  cannabis  production  sites  as  well  as  drug  purity.  In 
2014,  a  feasibility  study  on  drug  seizures  was  finalised  and  a 
mapping  exercise  was  launched.  Meanwhile,  in  2014,  a  data 
collection tool for monitoring synthetic drug production sites was 
developed  in  partnership  with  Europol  and  piloted  successfully 
with  the  Member  States  providing  data  for  2013.  The  data 

27 

 
 
collection  tool  for  monitoring  cannabis  sites  will  be  finalised  in 
2015  and  one  for  so-called  secondary  cocaine  extraction  sites 
where  cocaine  is  chemically  recovered  from  other  materials  will 
also be developed.  

The  EMCDDA  reported  in  2015  on  the  implementation  of  the 
above-mentioned Council conclusions. Data collection tools were 
developed  and  guidelines  were  produced  for  a  number  of  drug 
supply  sub-indicators,  including  "drug  seizures",  "drug  law 
offences",  "synthetic  drug  production  facilities  dismantled"  and 
that  data  collection  already  was  taking  place  or  pilot  projects 
being  launched.  In  2015  the  EMCDDA  would  develop  market 
size estimates for the main drugs, using a demand-side approach 
to estimate the size of the EU illicit drug market. These would be 
published in the Second EU Drug Markets Report in early 2016. 

Objective 5: Enhance effective judicial cooperation and legislation within the EU 

judicial  cooperation 

17.  Strengthen  EU 
in 
targeting  cross-border  drug  trafficking,  money 
laundering,  and  in  the  confiscation  of  the 
proceeds of drug-related organised crime 

2013-2016 

Council 

European 
Commission 

Member States 

Eurojust 

28 

Eurojust ran a strategic project on drug trafficking, whose goal was 
to identify the main challenges and related solutions in Eurojust’s 
coordination meetings involving drug trafficking. The results of the 
Project,  concluded  in  2014,  show  that  differences  in  both 
substantive and procedural rules in the Member States constitute a 
major  obstacle  in  investigations  of  drug  trafficking  and  in  the 
identification, tracing and recovery of assets stemming from cross-
border organised criminal activities. Among the obstacles foreseen 
in the execution of the cross-border operation, the following have 
been  mentioned:  (i)  the  complexity  of  the  case,  involving  many 
jurisdictions;  (ii)  reluctance  to  execute  requests  for  placing  a 
vehicle  tracking  device  and,  in  some  Member  States,  even  the 

 
 
 
absence  of  legislation  for  using  such  devices  in  controlled 
deliveries; (iii) difficulties related to the deployment of undercover 
officers,  including  the  need,  in  some  Member  States,  for  their 
testimony  in  court  and  the  differences  among  the  Member  States 
with  regard  to  their  status;  and  (iv)  cooperation  with  third  States 
could be problematic. 

The  results  of  the  project  show  a  very  limited  use  in  drug 
trafficking  cases  of  freezing  and  confiscation  orders  based  on 
Council  Framework  Decision  2006/783/JHA  of  6  October  2006 
and Council Framework Decision 2003/577/JHA of 22 July 2003. 
Further,  the  identification  and  tracing  of  assets  require  the 
execution  of  mutual  legal  assistance  (MLA)  requests  that  often 
touch  upon  sensitive 
to  banking  data, 
interception of communications). Moreover, assets are often hidden 
in  countries  outside  the  European  Union  that  might  not  share  the 
same level of focus and commitment to retrieving such assets  and 
might not be responsive to requests for legal assistance. 

issues  (e.g.  access 

The Directive 2014/42/EU on the freezing and confiscation of the 
instrumentalities and proceeds of crime was adopted in April 2014 
and should be transposed by the Member States by 4 October 2016. 

In September 2013 the Commission adopted a legislative package 
made of the Proposal for a Regulation of the European Parliament 
and  of  the  Council  on  new  psychoactive  substances  and  the 
Proposal  for  a  Directive  of  the  European  Parliament  and  of  the 
Council amending Council Framework Decision 2001/757/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, as regards the definition of drugs. The aim 
was to enable the EU to act swifter and more effectively to address 

18.  Introduce  and  adopt  new  EU  legislative 
measures  to  address  the  emergence,  use  and 
rapid spread of new psychoactive substances 

2013-2016 

European 
Commission 

Council  

Horizontal Drugs 
Group  

29 

 
 
Member States 

new psychoactive substances.  

19. Strengthen EU legislation on drug precursors 
to  prevent  their  diversion  without  disrupting 
lawful trade 

Ongoing 

Council 

European 
Commission 

Member States 

The European Parliament endorsed the new legislative package in 
plenary on 17 April 2015 with 507 votes in favour. 

The  Council  of  the  EU  has  not  yet  adopted  a  position  on  this 
legislative package that is being discussed in the Horizontal Group 
on Drugs, a Council Working Party in charge of drug issues. 

The  EU  legislation  on  trade  in  drug  precursors  was  amended  in 
2013  to  strengthen  controls,  on  the  one  hand,  over  ephedrine  and 
pseudoephedrine contained in medicinal products in trade between 
the  EU  and  third  countries  and,  on  the  other  hand,  over  acetic 
anhydride in trade within the EU. Not only do these measures help 
block  access  to  the  necessary  chemicals  for  narcotics  producers, 
but  they  also  create  greater  legal  security  for  legitimate  EU 
businesses.  Additionally,  the  powers  of  the  competent  authorities 
to  tackle  the  diversion  of  non-scheduled  substances  have  been 
strengthened. 

The  legislation  also  established  a  European  Database  on  Drug 
Precursors, to ensure more efficient data collection on seizures, and 
to  keep  a  list  of  EU  licensed  and  registered  businesses,  and 
introduced  a  quicker  reaction  mechanism  to  allow  authorities  to 
react to new diversion trends of non-scheduled substances. 

These amendments entered into force on 30 December 201319. 

20. Combat the use of certain pharmacologically 
in  Directive 
active  substances  (as  defined 

Ongoing 

Member States 

Only a few Member States reported on the number and quantity of 
seizures of active substances used as cutting agents for illicit drugs 

19 Regulation (EC) No 273/2004 of the European Parliament and of the Council of 11 February 2004 on drug precursors amended by Regulation (EU) No 1258/2013 of the European Parliament and of the Council of 20 
November 2013; Council Regulation (EC) No 111/2005 of 22 December 2004 laying down rules for the monitoring of trade between the Community and third countries in drug precursors (managed by the European 
Commission’s Directorate General for Taxation and Customs Union), amended by  Regulation (EU) No 1259/2013 of the European Parliament and of the Council of 20 November 2013 

30 

 
 
                                                            
2011/62/EU) as cutting agents for illicit drugs 

European 
Commission 

EMA 

EMCDDA  

Europol 

in  2013-2014.  Many  of  the  other  countries  reported  that  they  did 
not have such figures. One Member State explained cutting agents 
are  not  seized  because  their  importation  is  not  illegal.  Another, 
which  provided  figures  for  2013,  explained  that  it  stopped 
collecting such data. 

EMCDDA  reports  that  no  data  collection  exists  at  EU  level  for 
systematically  monitoring  the  use  of  pharmacologically  active 
substances as cutting agents for illicit drugs. However, from 2015 
Member  States  have  the  ability  to  report  seizure  information 
related  to  other  significant  substances  causing  concern  at  national 
level,  including  pharmacologically  active  cutting  agents  in  the 
revised  drug  seizures  sub-indicator.  Furthermore,  the  EMCDDA 
uses  the  existing  mechanism  established  by  Council  Decision 
2005/387/JHA of 10 May 2005 on the information exchange, risk-
assessment and control of new psychoactive substances to monitor 
the situation. The Early warning system established by this Council 
Decision  is  coordinated  by  the  EMCDDA  and  Europol  and  it 
comprises an expert network, of which many are forensic scientists 
engaged  in  the  analysis  of  illicit  drugs.  Hence,  this  mechanism  is 
used  to  identify  unusual  cutting  agents  and  where  risks  are 
identified, these are communicated to the network.    

As  of  July  2013  new  rules  on  importation  of  active  substances 
(active  pharmaceutical  ingredients  or  APIs))  are  applicable.  The 
delegated  Regulation  on  good  manufacturing  practice  (GMP)  for 
APIs  was  published  in  November  201420  and  the  guidelines  of 

20  Commission  Delegated  Reguation  (EU)  No  1252/2014  of  28  May  2014  supplementing  Directive  2001/83/EC  of  the  European  Parliament  and  of  the  Council  with  regard  to  principles  and  guidelines  of  good 
manufacturing practice for active substances for medicinal products for human use OJ L337/1 of 25/11/2014 

31 

 
 
                                                            
21.  Members  States 
to  provide,  where 
appropriate  and  in  accordance  with  their  legal 
frameworks,  alternatives  to  coercive  sanctions 
(such  as  education,  treatment,  rehabilitation, 
aftercare  and  social  integration)  for  drug-using 
offenders 

2015 

Member States 

good distribution practice (GDP) for APIs were published in March 
201521. The new rules on importation of active substances are part 
of  the  implementation  for  the  Falsified  Medicines  Directive22 
(FMD). The act and guidelines mentioned are also deliverables of 
the FMD. They reinforce the regulatory framework for APIs in the 
EU by, inter alia, (1) ensuring the quality of APIs manufactured in 
the  EU  or  imported  into  the  EU  and  (2)  securing  the  API 
distribution  and  supply  chain  and  improving  traceability,  hence 
making more difficult the diversion of APIs for illicit use.  

In 2013-2014 the legal system in most Member States provided for 
alternatives to coercive sanctions for drug-using offenders. Almost 
all  Member  states  where  alternatives  for  coercive  sanctions  were 
possible  provided  for  treatment  and  rehabilitation;  half  provided 
for education, aftercare and social integration. 

The  conditions  for  applying  alternatives  to  coercive  sanctions  to 
drug-using  offenders  range  from  a  decision  of  the  judge  to  the 
decriminalisation  of  drug  use.  Many  countries  mention  that  the 
alternatives  are  only  possible  when  there  is  no  suspicion  of  drug 
trafficking and mainly for minor offences. A few countries mention 
special  provisions  for  young  users/minors/juveniles.  In  most 
countries that mentioned a possible suspension of the sentence, this 
must  be  accompanied  by  an  agreement  of  the  person  to  undergo 
treatment. 

Objective 6: Respond effectively to current and emerging trends in illicit drug activity 

21 Guidelines of 19 March 2015 on principles of Good Distribution Practice of active substances for medicinal products for human use OJ C95/1 of 21/03/2015 
22 Directive 2011/62/EU of the European Parliament and of the Council of 8 June 2011 amending Directive 2001/83/EC on the Community code relating to medicinal products for human use, as regards the prevention 
of the entry into the legal supply chain of falsified medicinal products OJ L174/74 of 01/07/2011 

32 

 
 
                                                            
22.  Identify  strategic  responses  to  address  the 
role of new communication technologies and the 
the 
hosting  of 
production,  marketing, 
and 
distribution  of  illicit  drugs,  including  controlled 
new psycho- active substances 

associated  websites, 

purchasing 

in 

Ongoing 

More  than  half  of  the  Member  States  reported  that  in  the  period 
2013-2014  their  law  enforcement  authorities  targeted  specifically 
drug-related  crime  via  Internet.  A  few  Member  States  mentioned 
specifically the target of websites where synthetic drugs are being 
sold.  

In  2014  Europol  produced  the  Internet  Organised  Crime  Threat 
Assessment  (iOCTA).  This  document  was  aimed  at  informing 
decision  makers  about  on-going  developments  and  emerging 
threats  together  with  recommendations  on  how  law  enforcement 
targeted actions can be better deployed to address emerging threats 
as well as those associated with the internet as a facilitating factor 
for drug trafficking and distribution.   

In November 2014, law enforcement and judicial agencies around 
the globe undertook a joint action against dark markets running as 
hidden services on Tor network. The joint operational efforts of 16 
European  countries  together  with  the  USA  brought  down  several 
marketplaces  as  part  of  a  unified  international  action  spearheaded 
from  Europol’s  operational  coordination  centre  in  The  Hague. 
Eurojust and the Joint Cybercrime Action Taskforce (J-CAT) also 
supported  the  operation.  The  action  aimed  to  stop  the  sale, 
distribution and promotion of illegal and harmful items, including 
weapons  and  drugs,  which  were  being  sold  through  online  dark 
marketplaces. As a result, 17 arrests of vendors and administrators 
running  these  online  marketplaces  and  more  than  410  hidden 
services  were  successfully  taken  down.  13  search  warrants  were 
also  served.  Additionally,  bitcoins  worth  approximately  USD  1 
million, EUR 180 000 in cash, drugs, gold and silver were seized, 
alongside hardware and digital media devices.  

The  dark  market  Silk  Road  2.0  was  also  taken  down  by  US 

Council  

European 
Commission 

Horizontal Drugs 
Group  

Member States 

Europol  

COSI 

33 

 
 
authorities  and  the  operator  arrested.  As  a  consequence,  a 
considerable  amount  of  actionable  intelligence  was  analysed  at 
Europol  and  subsequently  investigation  packages  delivered  to 
MS’s across Europe. 

Eurojust  supported  some  actions  targeting  drug-related  crimes  via 
the  internet.  A  particularly  successful  operation  (‘Operation 
Onymous’) was concluded in November 2014 and targeted online 
marketplaces operating in the Tor network23.  

In  2014,  Eurojust  held  a  strategic  seminar  on  cybercrime  with 
practitioners, which highlighted the need to improve cooperation in 
these cases. The meeting will be followed up in 2015 by concrete 
initiatives,  such  as  the  creation  of  a  network  of  prosecutors 
specialised in these matters. 

Coordination 

Objective/Action 

Timeline 

Responsible 
party 

State of Play 

Objective 7: Ensure effective EU coordination in the drugs field 

23.  Enhance  information  sharing  between  the 
HDG  and  other  relevant  Council  Working 

Ongoing 

Council 
Presidency  

Presidencies  of  the  Council's  Horizontal  Drugs  Group  (HDG) 
reported  that  they  put  efforts  to  establish  closer  links  and 
information  sharing  between  the  HDG  and  other  Council  working 

23 Tor, an acronym for The Onion Router, is a free network designed to anonymise your real Internet Protocol (IP) address by routing your traffic through many servers of the Tor network. Tor is used by a variety  of 
people for both illicit and licit purposes. 

34 

 
 
 
 
 
                                                            
Groups 

Council  

EEAS  

Horizontal Drugs 
Group 

groups,  including  with  the  Standing  Committee  on  Operational 
Cooperation  on  Internal  Security  (COSI),  Customs  Cooperation 
Working  Party  (as  regards  the  initiative  of  CCWP  to  conduct  a 
survey on improving capacities of law enforcement agencies in the 
fight  against  new  psychoactive  substances),    Working  party  on 
Customs  Union  (as  regards  the    Proposals  for  Regulations  of  the 
European  Parliament  and  of  the  Council  on  Drug  Precursors  and 
CND  resolution  on  Raising  awareness  on  the  diversion  of  non-
scheduled  substances  as  substitutes  for  scheduled  substances  in 
international trade for the illicit  manufacture of narcotic drugs and 
psychotropic  substances),  the  Working  Party  on  Substantive 
Criminal  Law  (DROIPEN,  as  regards  the  NPS  Directive24),  the 
United Nations Working Pary (CONUN, as regards the preparation 
for  UNGASS  2016),  the  Working  Party  on  Pharmaceutics  and 
Medical  Devices  (as  regards  misuse  of  and  dependence  on 
prescribed medicines) and the Working Party on Latin America and 
the Caribbean (COLAC, as regards the High Level meetings of the 
EU-CELAC Cooperation and Coordination Mechanism on Drugs).  

took 

forms, 

various 

cooperation 

This 
including 
presentations/participation  of  HDG  representatives  at  the  meetings 
of  other  Working  Parties,  as  well  as  presentations/participation  of 
the representatives of other Working Parties at the HDG meetings. 
Possibilities were explored to organise joint sessions between HDG 
and COLAC. 

24.  Each  presidency  may  convene  meetings  of 
the  National  Drugs  Coordinators,  and  of  other 

Biannually 

Council Presidency 

Emerging  trends  and  related  policy  developments  were  discussed 
during  the  National  Drug  Coordinators'  meetings  organised  three 
times in 2013 and 2014. The topics approached were the misuse of 

24 Doc. 13865, Directive of the European Parliament and of the Council amending 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, as regards the definition of drug 

35 

 
 
                                                            
groupings  as  appropriate,  to  consider  emerging 
trends,  effective  interventions  and  other  policy 
developments  of  added  value  to  the  EU  Drugs 
Strategy and to MS 

Member States 

36 

and dependence on prescribed medicines (2013, Vilnius); the fight 
against  drugs  and  new  psychoactive  substances  sales  on  internet, 
especially  to  minors  (2014,  Rome);  the  impact  of  economic  crisis 
on drugs use and its consequences for public health (2014, Athens). 
Preparation for UNGASS 2016 was covered during the meetings in 
Vilnius  and  Rome  and  the  development  of  minimum  quality 
standards  in  drug  demand  discussion  was  examined  during  the 
meetings in Athens and Rome. 

improved  communication  and 

A large majority of Member States found that the frequency of the 
National  Drug  Coordinators'  (NDC)  meetings  and  their  agendas 
reflected developments, trends and new insights in policy responses 
and  provided  for 
information 
exchange  in  2013-2014.  A  few  Member  States  found  this  was  not 
the  case.  It  was  pointed  out  that  the  discussions  were  rather 
academic  and  theoretical  rather  than  factual,  on  problems  that 
NDCs are confronted with. Another point revolved around the fact 
that no space is reserved for NDCs to exchange information on the 
latest  developments  in  their  national  policies  and  discuss  about 
future  challenges.  One  country  felt  that  the  PRES  organising  the 
NDC should focus more on the core issues of the implementation of 
the EU Action Plan on Drugs, at the preconditions and obstacles for 
implementing  it  at  national  level.  One  country  felt  that  there  were 
too many meetings and it would be better to have only one a year. 

Several  countries  pointed  out  that  the  informal  character  of  these 
meetings facilitates participation and makes discussions and debates 
more interesting.  

Some  of  the  suggestions  to  make  NDC  meetings  more  effective 
included: the preparation of the meeting should be done differently 
to  increase  the  efficiency  of  the  meetings:  the  Presidency  of  the 

 
 
25.  The  HDG  will  facilitate:  (a)  monitoring  of 
the  implementation  of  the  Action  Plan  through 
thematic debates; and (b) an annual dialogue on 
the state of the drugs phenomenon in Europe 

Bian- nually 

Annually 

Council  should  choose  a  theme  of  common  interest  to  all  MS, 
provide NDCs well in advance of the meeting with a short written 
document outlining the theme and serving as common group for the 
preparation  of  the  NDC  meeting;  focus  on  sharing  best  practices 
dealing  with  emerging  trends  in  drug  use  across  Europe;  at  the 
meeting  the  Presidency  or  an  external  expert  could  give  a 
presentation  to  serve  as  starting  point  for  discussions;  meetings 
should reach a balanced approach between drug control policy and 
real actions that should be taken, as well as more responsibility on 
NDCs; discussions should not include files running at the HDG but 
they should promote a better understanding of trends and responses; 
the main goal of the meeting should be to converge opinions 

A large majority of Member States found that the monitoring of the 
implementation  of  the  Action  Plan  on  Drugs  was  carried  out  in  a 
timely  and  satisfactory  way  at  the  Horizontal  Group  on  Drugs 
(HDG) in 2013-2014. A few Member States found this was not the 
case.  Some  of  the  issues  encountered  were  related  to  the  fact  that 
discussions  in  the  group  focused  on  the  new  legislation  for  new 
psychoactive  substances,  relations  with  third  countries,  CND  and 
UNGASS  and  specific  actions  of  the  Action  Plan  on  Drugs  were 
discussed on a less systematic basis and not in their entirety. Some 
countries felt that more time should have been taken in the group to 
discuss  the  monitoring  of  the  Action  Plan  and  that  the  preparation 
and  evaluation  of  the  EU  Drugs  Strategy  and  Action  Plan  should 
have  been  more  inter-linked  so  that  the  evaluation  is  done  mainly 
via  the  information  exchange  flows  and  additional  questionnaires 
are not necessary. 

The  rotating  Presidency  of  the  Council  pointed  out  that  in  2013-
2014  the  topics  most  often  addressed  at  the  HDG  were  the  new 

Council 
Presidency 
Horizontal Drugs 
Group 
Member States 
European 
Commission 
EMCDDA 
Europol 

37 

 
 
psychoactive  substances  (including  the  discussion  on  the  draft 
Regulation  on  new  psychoactive  substances),  misuse  of  and 
dependence  on  prescribed  medicines,  development  of  drug  supply 
indicators,  developments  of  minimum  quality  standards  in  drug 
demand reduction, preparation for the CND and UNGASS sessions 
as well as cooperation with third countries. A dialogue on research 
was  also  held  annually.  Misuse  of  and  dependence  on  prescribed 
medicines and new psychoactive substances were the most common 
topics  for  thematic  debates  held  during  the  experts  meetings  on 
drugs with third countries. The EMCDDA presented in the HDG its 
European  Drugs  Report  that  gives  an  overview  of  the  drugs 
situation in the EU in 2013 and 2014.  Member States delegations 
also used HDG meetings to update each other on drug situation and 
policy developments in their countries.  

The  rotating  Presidency  of  the  Council  reported  that  a  number  of 
issues  were  examined  across  Presidencies  with  close  coordination 
between  the  outgoing,  current  and  incoming  Presidencies.  Such 
issues  included  the  discussion  on  the  draft  Regulation  on  new 
psychoactive  substances,  misuse  of  and  dependence  on  prescribed 
medicines, development of drug supply indicators, developments of 
minimum  quality  standards  in  drug  demand  reduction,  preparation 
for  the  CND  and  UNGASS  sessions  as  well  as  cooperation  with 
civil society and cooperation with third countries. 

Bianually 

Council 
Presidency 
Council 
Presidency Trio 
Member Statse 
European 
Commission 
Horizotal Drugs 
Group 
EMCDDA 
Europol 

Ongoing 

European  External 
Action Service  

European 

38 

Cooperation  between  the  HDG  and  COLAC  has  been  intensified, 
especially  as  regards  sharing  the  information  on  the  High  Level 
the  EU-CELAC  Coordination  and  Cooperation 
meetings  of 

26.  Ensure  consistency  and  continuity  of  MS 
to 
and  EU  actions  across  presidencies 
strengthen 
and 
evidence-based approach to drugs in the EU 

integrated,  balanced 

the 

27.  Ensure  coordination  of  EU  drugs  policies 
and 
international 
cooperation between the EU, third countries and 

responses, 

support 

to 

 
 
 
international organisations 

Commission 

Horizontal  Drugs 
Group  

Member States 

Mechanism  on  Drugs,  with  the  presentations/participation  of  the 
representatives  of  HDG  in  COLAC  meetings  and  the  participation 
of COLAC representatives at the HDG meetings. Also possibilities 
were  explored  to  organise  joint  sessions  between  HDG  and 
COLAC. 

The  EU  drug  situation  was  also  continuously  presented  at  all 
experts  meetings  on  drugs  held  with  relevant  third  countries, 
including  the  US,  Central  Asia,  Western  Balkans,  Russia  and 
Eastern partnership countries. 

As one of the EU's external cooperation programmes in the area of 
drugs,  the  Heroin  Route  Programme  (HRP)  and  Cocaine  Route 
Programme  (CRP),  funded  by  the  European  Union’s  Instrument 
contributing  to  Stability  and  Peace  (IcSP),  are  in  line  with  the 
priorities  of  the  EU  programming  instruments  as  well  as  the  main 
EU policies and strategic documents such as the European Security 
Strategy (2003), the  EU Drugs Strategy (2013-2020) and its Action 
Plan  (2013-2016),  as  well  as  the  European  pact  to  combat 
international drug trafficking - disrupting cocaine and heroin routes 
(2010). Overall, the Programmes are designed to think strategically 
about  illicit  flows  and  ensure  an  integrated  response  to  the 
challenges  presented  by  both  organised  crime  and  drug  trafficking 
along the heroin route. As such, they are designed to reinforce the 
capacities  of  law  enforcement  agencies  in  better  addressing  drug-
related organised crime and to support them in engaging effectively 
in international cooperation in the fight against heroin and cocaine 
trafficking  along  the  countries  of  the  so-called  “Heroin  Route” 
which  commences  in  Afghanistan  and  of  the  so-called  Cocaine 
Route,  from  producing  countries  in  Latin  America  to  Europe  via 
transit  countries  in  Latin  and  Central  America,  the  Caribbean,  and 

39 

 
 
Africa,  essentially  West  Africa,  while  ensuring  compliance  with 
human rights and the rule of law.  

The  Cocaine  Route  Programme  (CRP)  underwent  an  independent 
mid-term  review  in  the  first  semester  of  2013.  The  review 
concluded that the CRP constitutes a response to a problem and to 
needs that have been widely recognized as urgent by stakeholders in 
the  EU  and  in  partner  countries,  notably  the  threats  posed  by 
transnational organized crime and drug trafficking and their impact 
on security and development, and provides the EU with a valuable 
and innovative tool to tackle them effectively.  

COPOLAD,  a Regional  cooperation  programme  on Drugs policies 
between  Latin  America  and  the  EU,  aims  at  improving  the 
coherence, balance and impact of Drugs policies in Latin America 
as well as the EU-CELAC policy dialogue on Drugs. Specifically, it 
aims  at  strengthening  capacities  and  encouraging  the  different 
stages of the drugs policies development process in Latin American 
countries.  It  does  this  by  improving  the  dialogue,  the  exchange  of 
mutual experiences, and reinforcing the co-operation of the national 
agencies  and  other  actors  responsible  for  Drugs  policies  in  Latin 
American and EU countries. COPOLAD is fully coherent with the 
priorities of the EU programming instruments and the EU Strategy 
on Drugs and Action Plan. 

CADAP, the Central Asia Drug Action Programme, which began in 
2001, is assisting the gradual adoption of EU and international good 
practices  by  Central  Asian  nations  to  reduce  demand  for  drugs. 
CADAP  5  achieved  institutionalization  of  annual  drug  reporting 
and  compilation  of  country  drug  situation  summaries,  introduction 
of  modern  methods  of  treatment  in  prisons  and  communities, 
institutionalization of modern facilities for treatment, and launching 

40 

 
 
28. Achieve a coordinated and appropriate level 
of resources at EU level and Member State level 
to fulfil the priorities of the EU Drugs Strategy 

Annually 

of a local campaign on prevention.  

The  EMCDDA  reports  that  the  information  available  on  drug-
related  funding  both  at  the  European  and  national  level  remains 
sparse. For the 19 countries that have produced estimates in the past 
10  years,  drug-related  public  expenditure  is  estimated  at  between 
0.01%  and  0.5%  of  gross  domestic  product,  with  health 
interventions representing between 24% and 73% of all drug-related 
expenditure.  Differences  in  the  scope  and  quality  of  the  estimates 
make  it  difficult  to  compare  drug-related  public  expenditure 
between countries.  

Just under half of the Member States pointed out that they did not 
have  specific  funding  for  supply  reduction.  Many  Member  States 
also mentioned that they did not have specific funding for demand 
reduction. In many cases this funding is integrated in other relevant 
fields  (e.g.  health  care,  education,  welfare,  criminal  police,  etc.). 
Therefore,  it  is  difficult  to  make  an  estimate  of  the  drug-related 
expenditure at EU level including all the Member States. 

In  2013-2014  the  EU  funding  in  the  field  of  drugs  mainly  came 
from the Prevention of and Fight against Crime Programme (ISEC), 
the  Drug  Prevention  and  Information  Programme  (DPIP)  and  the 
Justice Programme, which together had a budget of approximately 
EUR  11  million  for  drug-related  actions  in  the  reference  period. 
Under the Socio-Economic Sciences and Humanities programme of 
the  Seventh  Framework  Programme  for  Research  (FP7),  the 
Commission  also  provided  funding  of  almost  EUR  10  million  to 
research projects. 

In addition, the EU funds several projects in partner projects, such 
as COPOLAD in Latin America which received a total contribution 

Member States 

European 
Commission 

European External 
Action Service 

Council 

Horizontal Drugs 
Group 

41 

 
 
of approximately EUR 17 million for its two phases; CADAP, the 
Central  Asia  Drug  Action  Programme  to  which  the  EU  allocated 
EUR 20.7 million for the period 2001-13; the Cocaine Route with a 
budget of approximately EUR 50 million for the period 2009-2014 
and  the  Heroin  Route  with  a  budget  of  approximately  EUR15,  5 
million for the period 2008-2014. 

The  EU  also  allocated  EUR  450.000  million  for  the  EMCDDA-
European  Neighbourhood  countries  (Morocco,  Israel25,  Armenia, 
Azerbaijan,  Georgia, Moldova, Ukraine and foresees other Eastern 
Neighbourhood  Partner  countries)  first 
technical  cooperation 
project  towards  a  gradual  improvement  of  ENP  countries  capacity 
to monitor and to meet drug-related challenges. The project covers 
the period 2014 – 2016. 

In 2013-2014, a few Member States also allocated funds to support 
alternative  development  programmes  in  regions  where  illicit  crop 
cultivation  was  taking  place  or  which  are  at  risk  of  illicit  crop 
cultivation  and  to    support  third  countries  to  tackle  drug-related 
organised  crime,  including  drug  trafficking.  Less  than  half  of  the 
Member States supported third countries, including civil society in 
those countries to develop and implement risk  and harm reduction 
initiatives. 

For  the  external  dimension  of  the  EU  Drugs  Strategy  and  Action 
Plan, the European Union is a long-standing supporter of UNODC 
projects and programmes. In fight against drug trafficking, the EU 
finances several projects and programmes. The total amount of the 
drug related projects is EUR 73m. 

25  

42 

 
 
                                                            
Objective 8: Ensure effective coordination of drug-related policy at national level 

29. Coordinate actions on drugs policy between 
government departments/ministries and relevant 
agencies  at  MS  level  and  ensure  appropriate 
multi-disciplinary representation on, or input to, 
HDG delegations 

Ongoing 

Member States 

Objective 9: Ensure the participation of civil society in drugs policy 

30.  Promote  and  support  dialogue  with,  and 
involvement  of,  civil  society  and  the  scientific 
community 
and 
implementation of drugs policies at MS and EU 
levels 

development 

the 

in 

Ongoing 

Member States  

European 
Commission  

Horizontal  Drugs 
Group  

Council Presidency 

43 

Almost  all  of  the  Member  States  reported  that  their  country's 
positions that are presented in the EU Council Working Parties on 
drug-related  issues  are  coordinated  with  all  relevant  parties  at 
national level. A large majority also confirm that their national drug 
coordination body  structurally  involves  all  governmental  units  and 
departments that are active in the 5 areas of the EU Action Plan on 
Drugs 
reduction,  drug  supply 
reduction,  international  cooperation  and  research/monitoring  and 
evaluation). 

(coordination,  drug  demand 

The  EMCDDA  informs  that,  in  parallel  with  the  development  of 
national  drug  strategies,  countries  have  also  set  up  mechanisms  to 
coordinate  the  implementation  of  their  drug  policy.  At  national 
level,  most  countries  now  have  an  inter-ministerial  committee  on 
drugs, supplemented by a national drug coordination body, which is 
responsible for the day-to-day management of activities.  

All  Member  States  say  that  civil  society  organisations  were 
involved in the development, monitoring and/or evaluation of their 
national drugs policy in 2013-2014.  

The  categories  of  civil  society  organisations 
involved  are: 
professional  drug  service  providers,  other  non-governmental 
organisations active in the field of drugs policy, non-governmental 
organisations representing the interests of individual stakeholders in 
the  field  of  drugs  (drug  users/family  members  etc.),  and  scientific 
community. 

 
 
Civil society organisations and the scientific community are usually 
involved  in  the  following  areas  of  the  national  drugs  policy:  the 
development  of 
the 
implementation  of  the  national  drug  policy;  coordination  and 
advisory  bodies;  the  evaluation  of  national  drug  policies;  the 
monitoring of the implementation of the national drugs policy. 

the  national  drug  policy  documents; 

Civil  society  organisations  confirmed  having  been  involved  in  the 
development,  monitoring  and  or  evaluation  of  the  drug  policy  in 
their country in 2013-2014; however, some also said that there was 
no  structured  dialogue  for  this.  Many  of  the  civil  society 
organisations  considered  that  the  kind  of  cooperation  they  had  at 
national  level  was  useful.  A  few  representatives  mentioned  that 
there is no role for the civil society in shaping drugs policies in their 
countries.  

International Cooperation 

Objective/Action 

Responsible 
party 
Objective 10: Integrate the EU Drugs Strategy within the EU's overall foreign policy framework as part of a comprehensive approach that makes full 
use of the variety of policies and diplomatic, political and financial instruments at the EU's disposal in a coherent and coordinated manner 

State of Play 

Timeline 

31.  Ensure  policy  coherence  between 
the 
internal  and  external  aspects  of  the  EU  drugs 
policies  and  fully  integrate  drugs  issues  within 
the 
framework 
agreements between the EU and its partners and 

dialogues 

political 

and 

Ongoing 

European 
Commission 

European  External 
Action Service  

The  Strategy  Paper  2014-20  and  Multi-Annual 
Indicative 
Programme  2014-2017  of  the  Instrument  contributing  to  Stability 
and Peace26 includes trans-regional actions against illicit drugs and 
related organised crime.    

Security  challenges  figure  as  one  of  the  priority  topics  in  the  EU-

26 Regulation (EU) No 230/2014 of the European Parliament and of the Council of 11 March 2014 establishing an instrument contributing to stability and peace OJ L77/1 of 15/03/2014 

44 

 
 
 
                                                            
the  EU  advocacy  on  global 

in 
challenges 

issues  or 

Council Presidency  

Horizontal  Drugs 
Group  

MS 

Central  Asia  strategy.  A  High  Level  Security  Dialogue  was 
introduced  as  a  new  platform  for  exchange  on  security  issues 
including  drugs.  Issues  of  security,  border  management,  including 
illicit  trafficking  of  drugs  and  updates  on  drug-related  issues  and 
EU  programmes,  are  a  permanent  issue  on  political  dialogue  with 
Central  Asia  countries 
(cooperation  councils;  cooperation 
committees; justice, freedom and security dialogues). 

The  drugs  issue  is  included  on  the  agenda  of  bilateral  dialogues 
between  the  EU  and  partner  countries  from  Latin  America,  the 
Caribbean  and  Central  Asia  at  different  levels  (High  Level 
Dialogues, ministerial level and possibly summit level). 

Drugs are an important chapter of the EU-CELAC (Community of 
Latin America and Caribbean States) relations and bi-annual Action 
Plan.  That  is  why  the  EU  has  developed  a  comprehensive  set  of 
political, operational and technical exchanges and cooperation with 
Latin America and the Caribbean on this issue, including: a specific 
cooperation  mechanism  on  drug  precursors  with  seven  Latin 
American  countries27;  and  the  EU  Citizen  Security  Strategy  in 
Central America and the Caribbean and its Action Plan adopted in 
June 2015, which includes drug issues. 

The  objectives  of  COPOLAD  (a  Regional  cooperation  programme 
on Drugs policies between Latin America and the EU) are meant to 
be  achieved  through  activities  in  four  major  intervention  areas, 
including  one  specifically  dedicated  to  "Consolidation  of  the  EU-
CELAC Coordination and Cooperation Mechanism on Drugs". The 

27 The EU has signed agreements on drug precursors control with Bolivia, Chile, Colombia, Ecuador, Mexico, Peru and Venezuela. The EU meets jointly with six of them (all except Mexico, with whom there is a 
specific bi-lateral consultation mechanism) in the framework of the Joint follow-up group on precursors, on an annual basis.  

45 

 
 
                                                            
 
32.  Ensure  that  the  policy  priorities  and  the 
balance  between  demand  and  supply  reduction 
are  well  reflected  in  policy  options  and  in  the 
programming  and  implementation  of  external 
assistance,  particularly  in  source  and  transit 
countries, through projects involving: 

Ongoing 

COM 
MS 
EEAS 

a) development of integrated, balanced and 
evidence-based drug policies; 

b)supply reduction; 

c) the prevention of the diversion of drug 
precursors and pre-precursors; 

d) drug demand reduction; and 

e)alternative development measures 

final  evaluation  highlighted  that  the  programme  has  contributed 
positively  to  the  reinforcement  of  the  CELAC  coordination 
mechanism  and  shows  a  positive  impact  in  terms  of  regional 
networking and regional dialogue on Drug policies. 

Policy  options,  programmes  and  external  assistances  were 
implemented in and by a majority of the Member States in line with 
the  balanced  approach  between  drug  demand  and  drug  supply 
reduction in 2013-2014. 

Via  their  own  assistance  and  cooperation  programmes  some 
Member  States  fund  third  countries,  such  as  the  region  of  Sahel28, 
which  fights  against  crime  and  trafficking.  Other  fund  several 
bilateral  and  multilateral  programmes  and  projects  in  the  field  of 
alternative  development  in  Peru,  Bolivia,  Colombia,  Myanmar, 
Laos. 

One  Member  State  mentions  having  made  voluntary  contributions 
to UNODC, which are distributed among the programmes for drug 
demand 
fighting  against 
reduction,  drug  supply 
precursors, alternative development.  

reduction, 

One country points out that its law enforcement agencies supported 
international  meetings  and  workshops  regarding  the  misuse  of 
chemicals  and  the  cooperation  with  the  chemical  industry  and 
conducted  several  training  courses  in  various  countries  to  support 
their  capacities  in  law  enforcement  and  as  a  consequence  thereof, 
reducing drug supply.  

The  EU  is  UNODC's  major  partner  in  West  Africa  and  Latin 

28 The Sahel covers parts of (from west to east) Senegal, southern Mauritania, central Mali, northern Burkina Faso, extreme south of Algeria, Niger, extreme north of Nigeria, central Chad, central and southern Sudan, 
and northern Eritrea. 

46 

 
 
                                                            
America,  including  a  comprehensive  EU-funded  programme  in 
Nigeria  consisting  of  5  UNODC  projects  to  the  value  of  EUR 
100m, supporting the justice, anti-corruption and drugs sectors. The 
EU also provides funding to support the ECOWAS29 regional action 
plan  on  illicit  drug  trafficking,  related  organised  crime  and  drug 
abuse in West Africa (EUR 11.7m). 

In  the  fight  against  drug  trafficking,  the  EU  finances  several 
projects and programmes – Container Control Programme along the 
Heroin  Route,  Regional  Programme 
for  Afghanistan  and 
Neighbouring countries, Alternative Development Programme (Lao 
PDR,  Myanmar),  Prevention  of  the  Diversion  of  Drugs  Precursors 
(Latin  America  and  Caribbean  region),  Support  to  Drug  Demand 
Reduction  in  the  Andean  Community  (PREDEM),  Response  to 
Drugs  and  Related  Organized  Crime  in  Nigeria  (EUR  34.5m), 
AIRCOP  (Air  Communications,  West  Africa,  Latin  America 
Caribbean – cocaine route).  

The  EU  Citizen  Security  Strategy  in  Central  America  and  the 
Caribbean and its Action Plan adopted in June 2015 aims to address 
drug  trafficking  in  a  balanced  manner  (supply  and  demand 
reduction),  under  a  preventive,  comprehensive  approach  with  a 
focus on root causes 

Some EU delegations reported on the following drug-related action: 
the  EU  Delegation  in  Mexico  follows  drug  issues  and  has  good 
contacts with UNODC  office; sporadic local coordination  between 
international partners takes place in El Salvador; good coordination 
takes  places  between  the  EU  Delegation  and  Member  States  in 
Bolivia  and  Peru,  where  Member  States  are  involved  in  the 

33. Improve capacity and strengthen the role of 
EU  Delegations  to  enable  them  to  proactively 
engage on drugs policy issues 

29 Economic Community Of West African States 

2013-2016 

European  External 
Action Service  

European 
Commission 

47 

 
 
                                                            
Member States 

34.  Ensure  an  appropriate  level  of  EU  and  MS 
funding  and  expertise  to  further  strengthen  and 
support third countries' efforts in addressing and 
preventing  illicit  drug  crop  cultivation,  through 
rural  development  measures,  in  order  to  deal 
with  the  challenges  to  public  health,  safety  and 
security 

Ongoing 

Member States 

European External 
Action Service 

European 
Commission 

35. Promote and implement the EU approach to 
alternative development (consistent with the EU 
Drugs Strategy 2013-2020; the EU Approach to 
Alternative  Development  and 
the  United 
Nations  Guiding  Principles  on  Alternative 
Development  2013)  in  cooperation  with  third 
countries,  taking  into  account  human  rights, 

Ongoing 

Member States 

European 
Commission 

European External 
Action Service 

48 

implementation  of  EU-financed  projects;  the  staff  of  the  EU 
Delegation in charge to follow up the implementation of the drug-
related  strategies  and  projects  in  Central  Asia  countries  developed 
some  specific  drugs-related  capacities,  especially 
the  EU 
Delegation  in  Kyrgyzstan.  The  Delegation  covering  Barbados, 
Antigua  &  Barbuda,  Dominica,  Grenada,  St  Lucia,  St  Kitts  and 
Nevis, St Vincent and the Grenadines discusses drug-related issues 
in  meetings  with  the  two  Member  States  present  in  these  7 
countries.  

Only  a  few  Member  States  funded  rural  development  projects  and 
programmes in regions where illicit crop cultivation is taking place 
or  in  regions  at  risk  of  illicit  crop  cultivation  in  2013-2014.  The 
main  beneficiaries  were  Afghanistan,  Myanmar,  Laos,  Bolivia, 
Colombia, Peru, and Ecuador. 

In  the  fight  against  drug  trafficking,  the  EU  finances  several 
projects  and  programmes,  including  on  alternative  development, 
together  with  UNODC  or  in  the  context  of  programmes  such  as 
COPOLAD or the Cocaine Route programme at a regional level or 
bilaterally  in  countries  such  as  Bolivia  or  Peru,  with  good 
cooperation between the EU and Member States. 

Only  a  few  Member  States  funded  projects  on  alternative 
development for illicit crop cultivation in drug producing countries 
in 2013-2014. The main beneficiaries were Afghanistan, Myanmar, 
Laos, Bolivia, Colombia, Peru, and Ecuador. 

In  the  fight  against  drug  trafficking,  the  EU  finances  several 
projects and programmes, including on alternative development, in 
the  context  of  programmes  such  as  COPOLAD  (it  has  organised 

 
 
security 

human 
conditions, including: 

and 

specific 

framework 

a)  incorporating  alternative  development  into 
the  broader  agenda  of  Member  States, 
encouraging third countries that wish to do so to 
integrate  alternative  development  into  their 
national strategies; 

b)  contributing  to  initiatives  that  aim  to  reduce 
poverty, conflict and vulnerability by supporting 
sensitive 
and 
sustainable, 
livelihoods  for  people  who  were  previously,  or 
are currently, involved in illicit drug production 

gender 

legal 

36.  Support  third  countries,  including  civil 
society  in  those  countries,  to  develop  and 
implement  risk  and  harm  reduction  initiatives 
particularly  where  there  is  a  growing  threat  of 
transmission 
blood-borne 
viruses  associated  with  drug  use  including  but 
not limited to HIV and viral hepatitis, as well as 
sexually transmittable diseases and tuberculosis 

drug-related 

of 

several  regional  meetings  to  discuss  alternative  development)  or 
together  with  UNODC  or  in  the  context  of  programmes  such  as 
COPOLAD. 

Ongoing 

Member States 

European 
Commission 

European External 
Action Service 

In  2013-2014  less  than  half  of  the  Member  States  supported  third 
countries,  including  civil  society  in  those  countries,  develop  and 
implement 
initiatives.  The  main 
beneficiaries  were  Latin  America,  Central  and  South-East  Asia, 
African  countries,  Western  Balkans,  South  Mediterranean  and 
Eastern European countries. 

risk  and  harm 

reduction 

The  EU  supports  a  wide  range  of  programmes  across  the  world 
following  a  comprehensive  approach  encompassing  both  demand 
and supply reduction.  

For  example,  as  the  majority  of  drug  users  in  Central  Asia  are 
injection  drug  users,  the  issue  of  infection  diseases,  such  as  HIV 
and  hepatitis  C,  was  mainstreamed  into  the  CADAP.  Through  a 
the  EU  supported  civil  society 
prison  reform  programme, 
organisations  providing  rehabilitation  and  re-socialization  services 

49 

 
 
 
 
to released prisoners with specific focus on drug-users.   

As regards the EU support to the ECOWAS Action Plan on Drugs, 
the  overall  expected  results  are:  strengthen 
the  ECOWAS 
Commission  Drug  Unit  advocacy,  monitoring  and  coordination 
capacity; harmonised information on drug abuse epidemiology and 
data collection are available; good practices on drug prevention and 
treatment  are 
law 
identified  and  disseminated; 
enforcement against transnational organised crime related to drugs. 

improved 

COPOLAD  supported  capacity  building  both  in  the  reduction  of 
drug  demand  and  drug  supply.  According  to  Latin  American 
national drugs agencies, COPOLAD has helped to enhance changes 
in the way drugs policies are perceived  and it has helped emphasise 
the  need  for  a  balanced  approach  between  drug  demand  reduction 
and  drug  supply  reduction  and  introduced  acceptability  for  harm 
reduction approaches, which were massively rejected before. 

Only a few Member States funded projects and/or programmes that 
tackled  drug-related  organised  crime  in  third  countries  in  2013-
2014.  The  main  beneficiaries  were  the  African  countries,  the 
Caribbean, South America, the Western Balkans, Central Asia and 
Eastern Europe. 

Regarding  regional  cooperation,  the  EU  funds  one  project  in 
Central America - Support to the Central America security strategy 
dealing with: 

- intelligence sharing and the exchange of best practices 

- strengthening counter-narcotics capacity and developing expertise 
of source and transit countries 

37.  Support  third  countries  to  tackle  drug- 
related  organised 
including  drug 
crime, 
trafficking, by: 

Ongoing 

a) intelligence sharing and the exchange of best 
practices; 

b)  strengthening  counter-narcotics  capacity  and 
transit 
developing  expertise  of  source  and 
countries; 

c)  working  with  international  partners  to  tackle 
the  enablers  of  drug 
trafficking  such  as 
corruption,  weak  institutions,  poor  governance 

Member States 

European External 
Action Service 

European 
Commission 

50 

 
 
and lack of financial regulatory controls; 

d) strengthening cooperation in the field of asset 
identification  and 
in  particular 
through  the  creation  of  dedicated  national  plat-
forms; and 

recovery, 

intensifying 

e) 
cooperation 

regional  and 

intraregional 

- working with international partners to tackle the enablers of drug 
trafficking  such  as  corruption,  weak  institutions,  poor  governance 
and lack of financial regulatory controls  

-  strengthening  cooperation  in  the  field  of  asset  identification  and 
recovery,  in  particular  through  the  creation  of  dedicated  national 
platforms:  

2517 police officers, attorney office and judges were trained in 13 
regional seminars on (among others): intelligence, organized crime, 
asset seizure and reconversion. 

Regional  cooperation  with  Latin  America  in  the  period  2014-2020 
(EUR 805M) includes four focal sectors, of which one, the 'security 
and development nexus' (EUR 70M), tackles directly drugs-related 
issues,  such  as  security,  justice,  rule  of  law,  human  rights  and 
migration.  The  sub-regional  component  (Central  America)  of  the 
same  programme  (EUR  120M)  includes  three  focal  sectors  and 
support measures, with one sector focusing on 'security and rule of 
law' (EUR 40M).  

On  the  Caribbean  side,  the  11th  European  Development  Fund 
Regional  Indicative  Programme  for  the  period  2014-2020  includes 
three  focal  sectors,  including  one  related  to  'Crime  and  Security' 
(EUR  44M)  encompassing  crime  prevention,  risk  reduction  and 
enhancement  of  restorative  justice,  citizen  and  border  security, 
compliance with international norms on financial crimes, terrorism 
financing  and  corruption,  with  a  focus  on  combatting  root  causes 
and  the  enabling  environment  of  crime  The  bilateral  cooperation 
programmes  for  Guatemala,  Honduras  and  El  Salvador  in  Central 
America  and  Jamaica  in  the  Caribbean  for  the  period  2014-2020 
also  include  support  to  the  Rule  of  Law,  the  sector  of  justice  and 

51 

 
 
security and mitigation of violence for a total of EUR 183 M. 

Political dialogue is also relevant at all levels. At the regional level, 
discussions  take  place  within  fora  such  as  the  EU-CELAC 
Summits.  At  the  sub-regional  level,  they  are  carried  out  with 
relevant  institutions,  namely  the  Central  American  Integration 
System  (SICA)  for  Central  America  or  CARIFORUM  for  the 
Caribbean. And national level regular political meetings take place 
with the authorities. 

Regional  support  to  Central  Asia  is  provided  through  the  Heroin 
Route  Programme  and  through  support  to  the  Central  Asian 
Regional  Information  and  Coordination  Centre  for  combating  the 
illicit  trafficking  of  narcotic  drugs,  psychotropic  substances  and 
their precursors (CARICC). 

in  adopting  an 

In the context of the Heroin Route Programme (HRP) which is one 
of  the  actions  in  the  EU's  external  cooperation  toolbox  with  third 
countries  in  the  area  of  drugs,  the  main  focus  of  the  actions 
undertaken  relate  to  enhancing  the  capacities  of  law  enforcement 
authorities 
intelligence-led,  evidenced-based 
response  to  tackling  drug  trafficking.  Regional  cooperation  can 
provide  the  key  for  the  long-term  development  and  an  effective 
architecture for addressing security, economic and drugs problems. 
As such, past and ongoing projects of the Heroin Route Programme 
focus on supporting intelligence sharing mechanisms, promotion of 
EU  best  practices  and  support  for  regional  and  trans-regional 
cooperation in the fight against drugs.  

The  ongoing  "Information  Networks  along  the  Heroin  Route" 
project has been specifically aiming  at  enhancing  the capacities  of 
Central  Asian  Regional  Information  and  Coordination  Centre 

52 

 
 
(CARICC) to serve as a regional centre of excellence and promote 
inter-regional  operational  cooperation  and  information  exchange 
amongst Central Asian states as well as with neighbouring countries 
and regions. 

Moreover,  the  Heroin  Route  Programme  has  been  providing 
technical assistance to the countries along the "route" in areas such 
as  risk  /  data  analysis,  controlled  deliveries  and  joint  investigation 
teams  with  a  view  to  sustainable  capacity  building  and  promoting 
EU  best  practice  of  intelligence-led  approach  to  investigations, 
coupled  with  the  principles  of  rule  of  law  and  human  rights 
safeguards. 

The  Cocaine  Route  Programme  is  also  providing  a  good  basis  for 
regional  cooperation.  Working  mainly  with  law  enforcement  and 
judiciary  authorities  ("supply  side")  from  almost  40  partner 
countries  in  Latin  America,  the  Caribbean  and  Africa,  essentially 
West  Africa,  as  of  2009  and  with  a  budget  so  far  of  almost  50 
MEUR,  the  Cocaine  Route  Programme  is  composed  of  eight  self-
standing  projects  which intervene in three  main broad  areas: illicit 
production  of  drugs  via  chemical  precursors  and  their  interception 
at selected airports and seaports (PRELAC, AIRCOP and SEACOP 
projects);  fight  against  money  laundering  and  encouraging  asset 
recovery  (AML/WA  and  GAFILAT-EU  projects);  information 
sharing  (AMERIPOL-EU;  WAPIS  and  CORMS  projects).  A  new 
area  (criminal  investigation  and  criminal  justice  cooperation  is 
expected to be added). Most of the projects have come a long way 
in  building  up  local  and  regional  capacities  by  forming,  training, 
equipping, in encouraging inter-agency cooperation and information 
sharing,  in  adapting  national  legal  frameworks  when  needed,  in 
promoting  an  intelligence-led  approach  to  investigation,  and  in 

53 

 
 
enhancing  regional,  and 
cooperation. 

to  a  certain  extent 

trans-regional, 

In  2013-2014  2255  officials  were  trained,  351  were  mentored,  15 
joint  operations  were  organised,  523  arrests  were  made  and  the 
following  seizures  were  made:  Cocaine:  1029,55  kg;  Liquid 
cocaine:  400  litres;  Heroin:  84,42  kg;  Methamphetamine:  221  kg; 
Cannabis:  2022  kg;  Cocaine  paste:  1751,92  kg;  Macerated  Coca 
leaves:  9.840  kg;  Cash:  USD  16.547.689  and  EUR    160.000; 
Ethylic acetate:  10.000 litres; Sulphuric acid: 500 litres; Potassium 
permanganate: 100 kg; Urea: 1.500 Kg.  

Regional  support  to  the  Eastern  Partnership  (EaP)  countries  is 
provided  via  TAIEX,  which  funds  numerous  regional  events, 
seminars  with  all  EaP  countries.  The  EU  "Heroin  Route 
Programme"  (Instrument  contributing  to  Stability  and  Peace)  is 
being  implemented,  with  fora  on  trans-regional  law  enforcement 
cooperation  and  information  exchange.  Phase  II  (from  2013) 
includes  activities  in  Black  Sea  region.  The  Eastern  Partnership 
Cooperation  Programme  (2014-2018;    EUR  5  Mil  budget)  aims  at  
increasing  police  cooperation    related  to  cross-border  crime.  It 
includes both regional and bilateral partnerships and allows all EaP 
states to participate. Trainings and seminars target drug trafficking 
too, as well as money laundering, trafficking of humans, terrorism, 
cybercrime.  The  flagship  initiative  IBM,  started  in  2011,  is 
in  partnership  with  a  number  of 
implemented  by  Frontex 
international  organisations.  It  concerns  exchange  of  best  practices, 
training and capacity building. Smuggling of drugs is one of the key 
thematic areas under is Training project/segment. 

Europol continues to seek opportunities to engage with strategically 
important third countries and organisations in order to improve the 

54 

 
 
coordination of cross-border drug trafficking achieving Operational 
agreements with Albania and Serbia in 2013 and exploring avenues 
for  cooperation  with  a  number  of  other  strategically  important 
countries.  Europol  participates  in  the  PARIS  Pact,  especially  in 
respect  of  Heroin  trafficking  and  has  also  contributed  to  activities 
under Interpol’s Operation Lionfish. Lionfish 1 (2013) and Lionfish 
2  (2014)  saw  Europol  deploy  officers  and  a  mobile  office  in 
Martinique to support this Interpol initiative which in 2014 saw the 
seizure  of  27.5  tonnes  of  drugs  in  an  operation  targeting  the  illicit 
trafficking of drugs and firearms by OCGs across Central America 
and the Caribbean.  

Europol  also  signed  an  operational  cooperation  agreement  with 
Colombia. 

The  rotating  Presidency  of  the  Council  informed  that  in  2013  and 
2014  a  number  of  expert  meetings  on  drugs  were  organised  with 
third countries, including US, CELAC, Russia, Eastern partnership 
countries,  Western  Balkans,  Central  Asia  and  Brazil.  The  EU-
Central Asia Action Plan on Drugs 2014-2020 was endorsed at the 
EU-Central  Asia  Senior  Officials'  Dialogue  on  Drugs  held  on  12 
November  2013.  The  Joint  Declaration  on  enhancing  cooperation 
on  drugs  and  renewing  the  commitments  of  the  EU-Western 
Balkans  Action  Plan  on  Drugs  (2009-2013)  was  endorsed  at  the 
EU-Western  Balkans  ministerial  meeting  held  on  19-20  December 
2013  in  Budva.  The  Quito  declaration  and  Athens  declaration  on 
EU-CELAC  cooperation  on 
tackling  drugs  were  endorsed 
respectively  at  the  EU-CELAC  High  Level  meeting  held  in  Quito 
on  13-14  June  2013  and  EU-CELAC  High  Level  meeting  held  in 
Athens on 17-18 June 2014. 

38.  Reinforce  cooperation  and  update  and 
implement  dialogues,  declarations  and  EU 
Drugs Action Plans with partners, including: 

Ongoing 

a) acceding countries, candidate countries and 
potential candidates; 

b) European Neighbourhood Policy countries; 

c) United States of America, the Russian 
Federation; 

d) other countries or regions of priority notably: 

Afghanistan and Pakistan, 

Central Asian republics, 

Council 
Presidency Trio  

European 
Commission  

European External 
Action Service  

Member States 

55 

 
 
China, 

Latin American and the Caribbean (CELAC), 

Africa, in particular West Africa 

39. Improve the Dublin Group consultative 
mechanism through intensified EU coordination 
and participation, better implementation and 

Ongoing 

Dublin Group 

European 

56 

Regular updates on the Cocaine Route Programme are provided to 
the  CELAC,  specific  African  countries  and  to  the  US  during  the 
Dialogues  conducted  with  these  countries.  Information  meetings 
with  representatives  of  beneficiary  states  are  regularly  organized 
during missions in the field as well as in Brussels. Regular updates 
on the Cocaine and Heroin Route Programmes are also provided to 
the  Dublin  Group  Meetings  as  well  as  to  other  EU  MS  Platforms 
(i.e.  the  Fontanot  Group)  or  other  international  platforms  (i.e.  the 
G7+  Rome-Lyon  Group)  and  dialogues  with  third  countries  or 
regions  (such  as  the  EU-US  Drug  Dialogue  and  the  EU-Central 
Asia Drug Dialogue). Information sharing and coordination is also 
undertaken in the context of mini Dublin Group meetings where EU 
Delegations  provide  input  on  ongoing  activities,  achieved  results 
and plans.    

In  2013-2014  half  of  the  Member  States  entered  in  bilateral 
agreements, cooperation strategies and/or action plans that included 
cooperation in the field of drugs with third countries. Most of these 
bilateral cooperation agreements covered 4 areas of the drug policy 
(coordination,  drug  demand  reduction,  drug  supply  reduction, 
information,  evaluation,  research  and  monitoring)  or  only  drug 
supply  reduction.  For  one  country  it  covered  all  areas  except  for 
drug  demand  reduction;  for  one  it  covered  only  information, 
evaluation, research and monitoring and for other only coordination 
and  drug  supply  reduction.  One  country  mentions  that  it  did  not 
enter any new agreements but continued actions through a series of 
long-running agreements. 

The Dublin Group performs informal consultative and coordination 
tasks in drug supply and demand reduction, at regional and country 
level,  along  the  guidelines  established  by  the  contracting  parties 

 
 
dissemination of the recommendations of the 
Mini Dublin Group reports 

Commission 

European External 
Action Service 

Member States 

(7641/1/06).  Regional  Dublin  Group  chairs,  in  cooperation  with 
Mini Dublin Groups provided detailed and extensive reports on the 
state of the drugs problem, focusing on selected countries.  

Two  Member  States  report  on  implementing  Dublin  Group 
recommendations  in  2013-2014,  including:  the  involvement  of  the 
media  and  of  the  civil  society  in  promoting  the  information  about 
the  risks  and  consequences  of  illegal  drug  trafficking  and  drug 
consumption;  adjustment  and  harmonization  of  the  existing  legal 
framework  and  of  the  new  legislation  projects  in  correspondence 
with the international agreed standards in this area; enhancement of 
the partnership between governments and civil society; provision of 
adequate resources to counter drug trafficking and reduce domestic 
demand.  Improving  the  collection  of  thorough  and  detailed 
statistics, that cover all social strata and which would be conducive 
to  a  better  understanding  of  the  drug  phenomenon;  ensuring 
external support and assistance to the Easter Partnership countries. 
One Member State points out that Dublin Group reports were taken 
into account when forming strategic goals and operational activities 
of the law enforcement. 

One Member State pointed out that reports of the Dublin Group or 
the  mini-Dublin  groups  have  not  tended  to  influence  directly  its 
engagement with third countries because the recommendations tend 
to not put forward proposals for concrete actions or activities. They 
would  be  more  useful  if  focused  on  identifying  capacity  gaps  and 
vulnerabilities  and  made  specific  recommendations  about  what 
needs  to  be  done  to  address  them  and  how  they  ought  to  be 
implemented. 

Some  Member  States  hold  the  Presidency  of  the  mini  Dublin 

57 

 
 
Groups. 

The EU Delegations in South America  and in Panama, Nicaragua, 
Mexico,  Barbados,  Antigua  &  Barbuda,  Dominica,  Grenada,  St 
Lucia,  St  Kitts  and  Nevis,  and  St  Vincent  and  the  Grenadines 
participated in mini-Dublin groups meetings held locally. 

40. Hold an annual dialogue on EU and MS 
drugs-related assistance to third countries 
accompanied by a written update 

From 2014 

European 
Commission  

This dialogue did not take place in 2014  

European External 
Action Service  

Member States 

41. Ensure that the promotion and protection of 
human rights are fully integrated in political 
dialogues and in the planning and 
implementation of relevant drugs-related 
programmes and projects including through the 
development of a human rights guidance and 
impact assessment tool 

Ongoing 

European 
Commission  

European External 
Action Service  

Member States 

The EU external cooperation programmes in the area of drugs aim 
at  tackling  the  issue  within  a  policy  framework  balancing  supply 
and demand approaches through measures that promote and protect 
human  rights.  As  such,  measures  are  implemented  in  accordance 
with  international  law,  including  international  human  rights  and 
humanitarian law, and incorporate a clear human rights perspective 
on  the  basis  of  the  "Tool-box  for  a  Rights-based  Approach, 
encompassing  all  human  rights,  for  EU  development  cooperation" 
(2014)  as  well  as  relevant  advice  provided  under  the  "Human 
Rights  Due  Diligence  for  Drug  Control:  An  Assessment  Tool  for 
Donors  and  Implementing  Agencies"  (2012)  prepared  by  Harm 
Reduction  International  with  financial  assistance  by  the  EU. 
Moreover,  the  European  Commission  has  been  developing  further 
operational  guidance  aimed  specifically  at  ensuring  that  human 
rights are taken into consideration in the design and implementation 
of the measures in the fight against organised crime, terrorism, and 

58 

 
 
cybercrime (2015). 

The  EU  applies  a  due  diligence  throughout  the  lifespan  of  drug-
related  actions.  A  risk  assessment  and  situational  analysis  is 
undertaken  prior  to  any  engagement  with  particular  focus  on  the 
application  of  the  drug  penalty  for  drug  offences  and  fair  trial 
procedures.  During  implementation,  close  monitoring  of  activities 
allows  for  undertaking  mitigating  measures  in  cases  of  concerns, 
whilst regular evaluations feeds into the overall assessment of these 
projects and future engagement in this area.    

The  EU  has  also  been  delivering  regularly  statements  and 
demarches  condemning  the  death  penalty,  including  for  drug 
offences.  Such  are  issued,  for  example  on  a  regular  basis  in 
Indonesia, but also in numerous other countries. The Statements and 
the  High 
levels:  by 
demarches  were 
Representative herself or by the EU Delegation on spot. 

issued  at  different 

Objective 11: Improve cohesiveness of EU approach and EU visibility in the United Nations (UN) and strengthen EU coordination with international 
bodies related to the drugs field 

42. Contribute to shaping the agenda on 
international drugs policy, including through: 

Ongoing 

European External 
Action Service 

a) action by EU and MS Delegations at the UN 
General Assembly and the Commission on 
Narcotic Drugs (CND); 

b) preparation, coordination and adoption of EU 
common positions and joint resolutions in the 
UN General Assembly and the CND and 
ensuring that the EU speaks with one strong 

Council PRES 

Member States 

European 
Commission 

Council 

59 

The rotating Presidencies of the Council of the EU were responsible 
in 2013-2014 for preparing and coordinating EU positions ahead of 
and  during  the  sessions  of  the  Commission  on  Narcotic  Drugs 
(CND).  When  relevant  for  this  preparation  and  coordination, 
the  EU 
representatives 
Delegations  in  Vienna  participate  in  meetings  of  the  Horizontal 
Drugs  Group  in  Brussels.  In  general,  EU  statements  for  the  CND 
were  prepared  and  negotiated  by  the  EU  Delegation  in  Vienna, 
while resolutions were either drafted (in the case of EU initiatives) 
or discussed in the HDG in Brussels prior to the CND meetings. At 

the  EU  Representations  and 

from 

 
 
voice in these and other international fora; 

c) the mid-term review process of the 2009 UN 
Political Declaration and Action Plan on 
International Cooperation towards an Integrated 
and Balanced Strategy to Counter the World 
Drug Problem; and 

d) the 2016 UN General Assembly Special 
Session on Drugs 

Horizontal Drugs 
Group 

their  request,  the  EU  Presidencies  can  be  supported  by  other  EU 
Member  States  and  by  the  EU  Delegation  in  Vienna  during  these 
proceedings. 

The EU prepared and presented its positions during the negotiations 
on  the  Joint  Ministerial  Statement  endorsed  at  the  High  Level 
Segment  of  the  57th  CND  session  in  2014.  The  High-Level 
Segment adopted the “Joint Ministerial Statement of the 2014 high-
level  review  by  the  Commission  of  Narcotic  Drugs  of  the 
Implementation by Member States of the Political Declaration and 
Plan of Action on International Cooperation towards and Integrated 
and  Balanced  Strategy  to  Counter  the  World  Drug  Problem.”  All 
the  EU  benchmarks  (reference  to  the  three  international  drug 
conventions,  human 
alternative 
development, civil society, balanced and comprehensive approach), 
but one (reference to death penalty), were reflected in the text. The 
EU  and  its  Member  States,  and  30  aligning  countries  representing 
different  regions,  expressed  their  regret  that  the  Joint  Ministerial 
the  death  penalty 
Statement  did  not 
(explanation  of  position). The  term  "risk  and  harm  reduction"  was 
not mentioned in the text, but the concept was reflected in the Joint 
Ministerial Statement.   

language  on 

international 

include 

rights, 

law, 

After  the  adoption  of  the  Joint  Ministerial  Statement  at  the  High 
Level Segment of the 57th CND session in 2014, the EU presented 
a  statement  urging  the  United  Nations’  Member  States  to  respect 
the  international  minimum  standards  on  the  use  of  death  penalty 
and  impose  a  moratorium  on  its  use  as  a  step  towards  its  final 
abolition.  A  number  of  countries  aligned  with  this  statement, 
including  Yugoslav  Republic  of  Macedonia,  Montenegro,  Iceland, 
Serbia,  Albania,  Bosnia  and  Herzegovina,  Liechtenstein,  Ukraine, 

60 

 
 
the  Republic  of  Moldova,  Armenia,  Andorra,  Switzerland,  San 
Marino, Monaco, Chile, El Salvador, Costa Rica, Mexico, Uruguay, 
Australia,  Haiti,  Panama,  Uzbekistan,  Argentina,  Colombia,  New 
Zealand and Kazakhstan. 

trade 

for  CND 

international 

resolutions  on  enhancing 

EU  was  active  in  submitting  resolutions  for  the  CND  sessions. 
During  the  56th  CND  session  in  2013  the  EU  submitted  the 
proposals 
International 
cooperation in the identification and reporting of new psychoactive 
substances;  on  promoting  the  development  and  use  of  the 
international  electronic  import  and  export  authorization  system  for 
in  narcotic  drugs  and  psychotropic 
licit 
substances; on promoting the sharing of expertise and knowledge in 
forensic  drug  profiling;  on  raising  awareness  on  the  diversion  of 
non-scheduled substances as substitutes for scheduled substances in 
international trade for the illicit  manufacture of narcotic drugs and 
psychotropic  substances;  on  intensifying  our  efforts  to  reduce 
HIV/AIDS  effects  for  achieving  the  targets  of  the  2011  Political 
International 
Declaration  on  HIV/AIDS  and  on  enhancing 
cooperation  to  combat  illicit  drug  trafficking  and  other  criminal 
activities related to drugs in West Africa. 

During  the  57th  CND  session  in  2014  the  EU  submitted  the 
proposals  for  CND  resolutions  on  protecting  public  health  by 
ensuring  adequate  services  for  drug  abusers  regardless  of  limited 
resources and on education and training on drug use disorders. 

During the 56th CND session in 2013 the EU also organised a side 
event to present the new EU Drugs Strategy 2013-2020. During the 
57th  CND  session  in  2014  a  side  event  on  a  new  EU  tool  -  EU 
policy  cycle  for  organised  and  serious  international  crime  was 

61 

 
 
43. Strengthen partnerships with the UNODC, 
WHO UNAIDS and other relevant UN 
agencies, international and regional bodies and 
organisations and initiatives (such as the 
Council of Europe and the Paris Pact Initiative) 

Ongoing 

organised. 

The  EU  also  prepared  and  presented  the  EU  positions  for  the 
meetings  related  to  UNGASS  2016  preparation,  including  for  the 
intersessional  meeting  held  on  23  October  2014  and  the  Special 
segment on the preparations for the UNGASS held on 3 December 
2014.  

The  EU  is  very  much  involved  with  international  organisations. 
However, despite the entry into force of the Lisbon Treaty, the EU 
is  not yet  recognised  as  an  official  representative  entity  in  the UN 
its  status  continue.  In  different 
system  as  negotiations  on 
international  organisations  the  EU  position  is  coordinated  through 
the Presidency of the Council or through one of its Member States 
that acts as coordinator.  

The representative of the UNODC was invited to the HDG meeting 
in November 2014 to present the preparation for UNGASS 2016. 

The  Commission,  through  the  Directorate  General  for  Health 
contributes twice a year to the discussions of the WHO mechanism 
on 
counterfeit 
medical products (SSFFC). 

Substandard/spurious/falsely-labelled/falsified/ 

Council 

European External 
Action Service 

European 
Commission 

Council Presidency 

Horizontal Drugs 
Group 

Objective 12: Support the process for acceding countries, candidate countries, and potential candidates to adapt to and align with the EU acquis in 
the drugs field, through targeted assistance and monitoring 

44. Provide targeted technical assistance, and 
other assistance and support as necessary, to 

Ongoing 

European 

Commission 

62 

The  enlargement  countries  are  on  the  main  drug  trafficking  routes 
to  the  EU  (mainly  on  the  heroin  route)  and  they  are  important 

 
 
 
acceding countries, candidate countries, and 
potential candidates to facilitate their adaptation 
to and alignment with the EU acquis in the 
drugs field 

Member States 

EMCDDA 

Europol 

Eurojust 

Frontex 

European External 
Action Service 

storage and transit countries between Asia and Western Europe.  

The emergence and development of national drug strategies in line 
with  the  EU  Drug  Strategy  and  Action  Plans,  as  part  of  the 
approximation to the EU, represent significant progress in the right 
direction. Some countries even started to evaluate their strategies in 
order  to  design  the  new  ones.  At  the  same  time,  drawing  up  new 
and  more  comprehensive  strategies  makes  the  need  to  build 
consensus  between  the  main  stakeholders  and  the  importance  of 
securing adequately human and financial resources on the long term 
more visible. 

In 2013 new/updated strategies have were adopted in Turkey (2013-
2018)  and Montenegro  (2013  -2020).   In  2014  a  new  strategy  was 
adopted  in  the  former  Yugoslavia  Republic  of  Macedonia  (2014-
2020) and in Serbia.  

Cooperation  with  candidate  and  potential  candidate  countries 
continued in 2013-2014 within the framework of the Instrument for 
Pre-Accession  Assistance30  (IPA)  4  technical  assistance  project. 
Seven IPA beneficiary countries (Albania, Bosnia and Herzegovina, 
Montenegro,  Kosovo*,  Serbia,  the  former  Yugoslav  Republic  of 
Macedonia  and  Turkey)  were  provided  with  capacity-building  and 
technical support in order to prepare them for their participation in 
the work of the EMCDDA. 

An important component of the project was capacity development. 
In 2014, this was mainly achieved through several multi-country or 
national Reitox Academies implemented by the EMCDDA on Drug 
law,  the  effectiveness  and  efficiency  of  drug  use  prevention 
programmes  or  on  the  implementation  of  European  standards  in 

30 http://ec.europa.eu/enlargement/policy/glossary/terms/ipa_en.htm  

63 

 
 
                                                            
developing strategic guidelines in the field of drugs. 

Furthermore,  experts  from  the  beneficiary  countries  attended 
various  EMCDDA  meetings  held  during  the  year.  These  included 
the key indicators annual expert meetings, the annual EWS network 
meeting,  the  annual  meeting  of  the  legal  correspondents,  the  third 
extended Reitox Week, and the ESPAD coordination meeting. 

line  with 
General  population  surveys  were 
EMCDDA  methodology  for  the  first  time  in  Serbia,  Albania and 
Kosovo. In addition, a pilot GPS was carried out in Montenegro. 

implemented 

in 

The  Commission  is  also  supporting  short-term  targeted  activities 
(study  seminars,  education  and  awareness 
initiatives,  expert 
meetings  and  conferences)  under  the  TAIEX  and  TWINNING 
Programmes31. 

Eurojust has established 32 judicial contact points with third States 
to  facilitate  operational  cooperation  in  cross-border  cases.  These 
contact  points  cover  several  countries  from  the  Balkan  area 
(Albania,  Bosnia  and  Herzegovina,  the  former  Yugoslav  Republic 
of Macedonia, Montenegro, Serbia) and also other third States that 
are  located  along  the  trafficking  routes  into  Europe(e.g.  Turkey, 
Ukraine, Georgia, Moldova). 

31 Twinning is a European Union instrument for institutional cooperation between Public Administrations of EU Member States (MS) and of beneficiary countries (BC). It was originally designed in 1998 to help 
candidate countries of the time to acquire the necessary skills and experience to adopt, implement and enforce EU legislation. 

64 

 
 
 
 
 
                                                            
Information, research, monitoring and evaluation 

Objective/Action 

Timetable 

Responsible party 

State of Play 

Objective 13: Ensure adequate investment in research, data collection, monitoring, evaluation and information exchange on all aspects of the drug 
phenomenon 

45. Promote appropriate financing of EU- level 
drug-related  multi-disciplinary  research  and 
studies  including  through  EU  related  financial 
programmes (2014-2020) 

2014-2016 

Member States 

European 
Commission 

EMCDDA 

In 2013-2014, under the Socio-Economic Sciences and Humanities 
programme  of  the  Seventh  Framework  Programme  for  Research 
(FP7), funding of almost EUR 10 million was provided to two drug-
related projects: Addictions and Lifestyles in Contemporary Europe 
(ALICE RAP) and the European Research Area Network on Illicit 
Drugs (ERANID).  

Eight  further  FP7  research  projects  were  launched  in  2013-2014, 
encompassing  pathophysiological  mechanisms  of  addiction, 
innovative  treatment  options  such  as  brain  imaging-based  neuro-
feedback  and  improvement  of  detection  technologies  for  illicit 
drugs.  This  specific  effort  amounts  to  some  EUR  18  million.  The 
overall  FP7  support  to  research  on  illicit  drug  amounts  to  some 
EUR  60  million,  including  also  studies  on  injecting  drug  users  in 
hepatitis cohorts and HIV-infected pregnant women. 

Horizon  2020,  the  EU  Framework  Programme  for  Research  and 
Innovation (2014-2020) launched at the end of 2013, offers a wide 
range of possibilities to pursue previous research efforts. Since the 
launch of the first Horizon 2020 calls, some EUR 14 million have 
been  allocated 
research  projects  addressing  biological 
mechanisms underlying addiction and development of technologies 
for drug detection, including synthetic drugs.   

to 

Finally,  the  EU  provided  more  than  EUR  1.5  million  to  research–

65 

 
 
46. Ensure that EU-supported projects: 

2014-2016 

a) take account of the priorities of the EU Drugs 
Strategy and Action Plan on Drugs; 

b) take account of gaps in policy formulation; 

c)  deliver  clear  added  value  and  ensure 
coherence and synergy; and 

d)  avoid  duplication  with  research  under  other 
programmes and bodies; 

e) take account of the importance of behavioural 
research and neuroscience 

related  projects  in  the  area  of  drugs  using  other  financial 
programmes32.  

European 
Commission 

EMCDDA 

An annual dialogue on research takes place at the Horizontal Drugs 
Group  meetings.  The  EMCDDA  Scientific  Committee  provided 
recommendations  on  research  priorities  at  these  meetings  in  2013 
and 2014.  

in 

the  European 
research  priorities  set 
The  drugs-related 
Commission’s  calls  for  proposals  in  the  framework  of  the 
Prevention  of  and  Fight  against  Crime  Programme  (ISEC),  Drug 
Prevention and Information Programme (DPIP), Justice Programme 
and the 7th Framework Programme for Research and Innovation are 
always  in  line  with  the  priorities  of  the  EU  Drugs  Strategy  and 
Action Plan.  

to 

illicit 

drugs 

The EMCDDA organises annually 1) a Reitox Forum on Research, 
during  one  of  the  Heads  of  Focal  Point  meetings,  to  promote  the 
exchange  of  information  on  relevant  drug-related  topics  and  2)  a 
scientific paper award to select and recognise high quality research 
related 
EU 
(http://www.emcdda.europa.eu/activities/scientific-paper-award)  in 
the  fields  of  (a)  Basic  biological,  neurobiological  and  behavioural 
research  (including  aetiological  and  addictive  behaviour  research); 
(b)  Population  based  and  clinical  epidemiology  (including  site 
surveys and ethnographic studies); (c) Demand reduction (including 
prevention,  treatment,  harm  reduction,  reintegration  and  clinical 
treatment research); (d) Supply, supply reduction and crime and (e) 

concerning 

the 

32 The Prevention of and Fight against Crime Programme (ISEC), Drug Prevention and Information Programme (DPIP) and Justice Programme funded the following projects: LEADER on enhancing economic analyses 
of  illicit  drugs  (Clinic  Biomedical  Research  Foundation,  Barcelona),  HCV  treatment  and  prevention  research  (University  of  Bristol),  CASSANDRA  on  research  on  NPS  supply  chain  and diffusion  (King's  College 
London), PREDICT – Predicting risk of emerging drugs with in Silico and clinical toxicology (Maastricht University). 

66 

 
 
                                                            
47.  Promote  scientific  evaluations  of  policies 
and 
and 
international level 

at  national,  EU 

interventions 

Drug policy (including laws, economic issues and strategies). 

According to the EMCDDA, in recent years, an increasing number 
of  Member  States  have  performed  a  final  evaluation  of  their  drug 
strategy or action plan.  

The aim is generally to assess the level of implementation achieved, 
as  well  as  the  changes  in  the  overall  drug  situation,  in  order  to 
inform  the  development  of  the  next  strategy.  Across  Europe,  most 
evaluations  are  internal,  performed  by  the  agency  or  institution 
responsible for the plan, but an increasing number of countries have 
joint  or  external  evaluations.  Currently,  most 
commissioned 
European  countries  have  plans  to  undertake  a  final  evaluation  of 
their ongoing drug strategy.  

is  also  preparing  a 
The  EMCDDA  Scientific  Committee 
contribution  on  the  evaluation  of  national  drug  policies.  The 
working  document  is  being  drafted  around  the  topics  of:  1. 
Evolving  towards  a  scientific  evaluation  of  policies;  2.  What 
scientific  evaluation  of  drug  policies  is  about;  3.  Defining  key 
indicators  for  scientific  evaluation  purposes  and  4.  Overview  of 
existing evaluation methods. In addition, the EMCDDA launched a 
study in 2015 to design EU guidelines for the evaluation of national 
drug strategies and action plans.  

Regarding  the  evaluation  of  the  EU  policies  in  the  area  of  anti-
drugs, the EU has run  an  independent evaluation of the EU Drugs 
Strategy 2009-2012 and of the two Action Plans that accompanied 
it. It will do the same for the evaluation of the EU Drugs Strategy 
2013-2020  and  its  accompanying  Action  Plans,  with  the  mid-term 
assessment  of  the  Strategy  and  the  final  assessment  of  the  Action 
Plan 2013-2016 due in 2016. 

2013-2016 

European 

Commission 

Member States 

EMCDDA 

67 

 
 
 
48.  In  collaboration  with  relevant  parties  as 
appropriate, continue to provide comprehensive 
analyses of: 

Ongoing 

a) the EU drugs situation; 

b)  the  dynamics  of  drug  use  within  general 
populations and target groups; and 

c) responses to drug use 

EMCDDA 

Europol 

Member States 

33 http://www.emcdda.europa.eu/edr2015 
34 downloadable at http://www.emcdda.europa.eu/publications/joint-publications/drug-markets 

68 

In 2013 a revised annual overview of the European drug situation, 
called the European Drug Report (EDR) was produced for the first 
time.  This  fresh  information  package  was  more  timely,  interactive 
and interlinked than its predecessor. The EDR package included the 
Trends and developments report — a top-level overview of the drug 
phenomenon  in  Europe  (3);  a  new  series  of  online  analyses  on 
specific  topics  called  Perspectives  on  drugs;  national  data  in 
Country  overviews;  the  Statistical  bulletin;  and  Health  and  social 
responses  profiles.  The  second  EDR  was  launched  in  May  2014, 
accompanied  by  a  revised  statistical  bulletin  and  6  new  analyses 
(PODs)33. 

A strategic analysis, the first EU drugs market report was produced 
jointly  by  the  EMCDDA  and  Europol  in  201334  at  the  European 
law 
Commission's  request.  An  essential  reference 
enforcement professionals, policymakers, the academic community 
and  the  general  public,  the  report  combines  the  EMCDDA’s 
ongoing  monitoring  and  analysis  of  the  drug  phenomenon  with 
Europol’s  strategic  and  operational  understanding  of  trends  and 
developments  in  organised  crime.  The  next  report  is  due  to  be 
launched in 2016. 

tool  for 

The  EDR  and  markets  report  draw  on  the  full  range  of  data 
collected  by  the  EMCDDA  and  Reitox  network.  The  EMCDDA 
data  collections  on  drug  demand  provide  information  on  the 
prevalence of use of a range of drugs in both the general population 
(both  in  use  and  highly  problematic  use)  and  the  prison  setting. 
Information  on 
treatment  demand,  drug-related  deaths  and 
infectious  diseases  focus  on  the  consequences  of  drug  use,  and 

 
 
                                                            
indirectly reflect the level of demand, in particular of high risk drug 
use.  On drug supply, information is available on seizures, offences, 
prices,  purity  and  potency.    The  data  collection  instruments  are 
reviewed  as  necessary  to  respond  to  changes  in  drug  use,  and  the 
responses  from  the  Members  States  are  collected  and  reviewed 
annually.   

Related to demand reduction, a substantial development occurred in 
the  collection  of  data  on  entrants  into  treatment  as  a  result  of  a 
comprehensive  review,  involving  Member  States,  experts  and  co-
ordinated  by  the  EMCDDA,  culminating  in  a  new  protocol  (TDI 
3.0) in 2013 and data submission in 2014.  Entrants into treatment 
are also used as an indirect measure of trends in high risk drug use.   
Reflecting  the  diversity  of  drugs  used  currently,  the  main  break 
variable has become drug rather than sex, improvements have been 
made  in  the  collection  of  information  on  the  patterns  of  drug  use, 
information on methodology has been enhanced and where possible 
categories harmonised with international practice.  The majority of 
Member  States  submitted  the  new  data  collection  in  2014.    In 
addition  EMCDDA  collects  information  on  demand  reduction 
activities,  such  as  the  total  number  of  people  in  treatment,  and  on 
treatment  and  prevention  availability  in  Member  States,  in  a  more 
qualitative way.  

Training and capacity building activities are used by the EMCDDA 
to  disseminate  knowledge  and  best  practice.  In  2014,  an  Options 
paper on  an Integrated training strategy for external audiences was 
completed, exploring three main areas for further development: (a) 
exchange knowledge and practices on monitoring drug situation; (b) 
promote best practice relevant to responding to drug problems;  (c) 
the integration into academic training programmes on addictions for 

49.  Enhance  training  for  those  involved  in 
responding to the drugs phenomenon 

2014-2016 

Member States 

EMCDDA 

CEPOL 

69 

 
 
graduate and post-graduate students.  

In  2013  and  2014,  the  annual  summer  school  ‘Drugs  in  Europe: 
Demand,  Supply  and  Public  Policies´,  was  co-organised  by  the 
EMCDDA  and  Instituto  Superior  das  Ciências  do  Trabalho  e  da 
Empresa  – Instituto Universitário  de Lisboa (ISCTE-IUL).  Further 
ties  were  built  with  several  academic  institutions  across  the  EU  to 
support their graduate education programmes within the framework 
of EU projects.  

In 2013 EMCDDA was involved in 11 training events and in 2014 
15, in collaboration to European Projects on training such as the A 
European Masters in Drug and Alcohol Studies (http://emdas.org/); 
The European Society for Addiction Prevention and the SEWPROF 
ITN (http://sewprof-itn.eu/).  

In the framework of Reitox Academy training programme, which is 
the main vehicle for the EMCDDA targeted training for the MS, the 
following residential courses were provided: 

 

 

In 2013- 4 training activities (Contemporary approaches to 
drug  monitoring;  Prevention  of  drug  related  infectious 
diseases;  best practices in harm reduction;  Best practice in 
prevention)  
In  2014  –  4  training  activities  were  organised    (Early 
warning system; Prevention of drug use; Harm reduction in 
prisons; Supply reduction and indicators)  

The EMCDDA responded to the needs of the MS by taking part in 
the  training  activities  organised  by  the  National  Focal  Pointss  or 
Member States, as well as other EU agencies.   

70 

 
 
In 2014 the EMCDDA drafted a Training Strategy that is expected 
to be published in 2015. 

The EMCDDA has a longstanding collaboration with the European 
Masters  on  Drugs  and  Alcohol  Studies,  a  programme  which  was 
developed  through  the  European  Commission's  Lifelong  Learning 
Programme  and  brings  together  3  different  European  Universities: 
Århus (Denmark), Universidad Miguel Hernández de Elche (Spain) 
and Piemonte Orientale ‘A. Avogardo’ (Italy).  

CEPOL’s training activities in the field of drugs in the period 2013-
2014 are reported under action 12. 

In  2013-2014  almost  all  Member  States  initiated/implemented 
initiatives  to  train  professionals  in  aspects  of  drug  demand  and 
supply reduction. 

The  type  of  initiatives  provided  included:  annual  conferences  on 
addiction  prevention;  quality  circles  and  conferences  on  addiction 
treatment; webinars; distant learning in the framework of exchange 
programmes  and 
international  forums;  national  conferences; 
awareness  raising;  regional  drug  seminars  on  cannabis;  yearly 
seminars  on  addiction  medicine;  yearly  seminars  on  drugs  for  law 
enforcement;  information  session  for  foreign  trainees;  workshops; 
expert meetings; lectures; trainings. 

A  wide  variety  of  topics  were  covered  in  the  trainings,  including: 
combatting  of  drug  trafficking;  identification  and  recognition  of 
new  drug  substances  and  precursors;  detection,  identification  and 
seizure of drug substances carried by passengers; methamphetamine 
in Europe; passengers profiling control; combatting synthetic drugs 
and  precursors  diversion;  evidence-based  drug  treatment  methods; 

71 

 
 
course  of  investigation  on  drugs  trafficking;  course  of  expertise  in 
investigations on precursors; investigations on drugs precursors and 
inspection  activities;  prospective  intelligence  applied  to  the  fight 
against organised crime; methodology of the police investigation of 
money  laundering;  deepening  knowledge  of  social  workers  while 
working  with  persons  in  social  risk  who  are  suffering  addictions 
and  their  family  members;  provision  of  low-threshold  services, 
including needle-syringe programmes; the role of social workers in 
strengthening  of  self-help  groups  of  individuals  with  substance 
dependence;  prevention  of  psychoactive  substances  abuse;  addicts 
rehabilitation  programme,  addiction,  complex  addiction  and 
violence;  addiction  treatment  in  prisons;  addiction  prevention 
methods; OST: training and supervision group for OST prescribers; 
training in sample taking teams and mobile chemical laboratories in 
taking  and  identifying  the  toxic  chemical  substances;  training  in 
manipulation  of  narcotic  drugs  and  psychotropic  substances; 
gaining  expert  abilities  in  handling  explosives;  personal  and 
emotional  development;  counselling  skills  for  working  with 
teenagers; programme for effective drug prevention in schools and 
school facilities. 

The  professionals  targeted  by  the  training  initiatives  included: 
general  practitioners;  psychologists,  drug  addiction  coordination 
units and staff of addiction services; customs officers and customs 
dogs;  police  officers;  NGOs;  professionals  in  the  field  of  drug 
demand  reduction;  managers  of  programmes  for  treatment  with 
opioid  agonists  and  agonists-antagonists;  people  directly  involved 
in the implementation of harm reduction programmes; managers of 
psychosocial  rehabilitation  programmes;  social  workers;  substance 
abuse therapists; health professionals; social professionals; military; 
volunteers;  diplomats;  researchers  and  policy-makers;  teachers; 

72 

 
 
Ongoing 

Member States 

European 
Commission 

EMCDDA 

Europol 

European  Centre 
Disease 
for 
and 
Prevention 
Control (ECDC) 

EMA 

50.  Enhance  data  collection,  research,  analysis 
and reporting on: 

(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

a) drug demand reduction; 

b) drug supply reduction; 

c)emerging  trends,  such  as  poly-drug 
use and misuse of prescribed controlled 
medicines, that pose risks to health and 
safety; 

d)blood-borne  viruses  associated  with 
drug  use  including  but  not  limited  to 
HIV  and  viral  hepatitis,  as  well  as 
transmittable  diseases  and 
sexually 
tuberculosis; 

psychiatric 

e) 
morbidity; 

and 

physical 

co- 

f)  drug  problems  among  prisoners  and 
the  availability  and  coverage  of  drug 
interventions  and 
demand  reduction 
services in prison settings; and 

g) other drug-related consequences 

73 

judges;  attorneys;  prison  administration;  MDs  wo  are  OST 
prescribers;  educators;  risk  analysts;  maritime  authority  and 
maritime police; priests. 

In  2013-2014  half  of  the  Member  States    initiated/implemented 
initiatives  to  train  professionals  related  to  data  collection  and 
reporting of drug demand reduction and drug supply reduction. 

The  type  of  initiatives  provided  included:    e-guides,  Reitox  Baltic 
Academy; trainings. 

The  topics  of  the  trainings  included:  conducting  surveys,  data 
analysis and collection of information; how to report to the national 
database  of  drug  treatment  abuse;  how  to  use  data  collection  for 
evidence-based  treatment  methods;  indicators  gathering;  Reitox 
training  on  drug  data  collection;  implementation  of  the  treatment 
demand indicator (TDI) standard protocol 3.0; national information 
system  on  addictions;  monitoring  information  systems  of  persons 
who  apply  to  healthcare  institutions  for  mental  and  behavioural 
disorders and use of narcotic and psychotropic substances users. 

The  professionals  targeted  by  the  training  initiatives  included: 
therapists;  social  workers; 
police  officers;  substance  abuse 
professionals  participating  in  projects  under  the  programme  of 
evidence based treatment methods; regional and city experts; Reitox 
network  members;  treatment  centres'  managers  and  employees; 
therapeutic  communities;  services  for  mental  health  and  addiction 
prevention;  healthcare  professionals;  psychologists;  data  reporting 
providers. 

In  2013-2014  new  key  research  was  carried  out  in  the  Member 
States  mainly  on  drug  demand  reduction  and  on  blood  borne 

 
 
diseases associated with drug use. These were followed by research 
on poly-drug use and the misuse of prescribed controlled medicines 
and  on  drug  problems  among  prisoners  and  the  availability  and 
coverage  of  drug  demand  reduction  interventions  and  services  in 
prison settings. Research on drug supply reduction, psychiatric and 
physical  co-morbidity  was  also  carried  out  in  less  than  half  of  the 
Member States. 

The  EMCDDA  data  collections  on  drug  demand  provide 
information on the prevalence of use of a range of drugs in both the 
general population (both on use and highly problematic use) and the 
prison  setting.  Information  on  treatment  demand,  drug-related 
deaths  and  infectious  diseases  focus  on  the  consequences  of  drug 
use, and indirectly reflect the level of demand, in particular of high 
risk drug use.  On drug supply, information is available on seizures, 
offences,  prices,  purity  and  potency. 
  The  data  collection 
instruments are reviewed as necessary to respond to changes in drug 
use,  and  the  responses  from  the  Members  States  are  collected  and 
reviewed annually.   

The  EMCDDA  has  been  developing  a  range  of  data  sources  and 
methods capable of identification and reporting on emerging trends 
such  as  poly-drug  use  and  misuse  of  prescribed  controlled 
medicines.  This  includes  wastewater  monitoring  in  collaboration 
with  the  SCORE35  group,  internet  monitoring  as  well  as  trend 
spotter studies. 

The  EMCDDA  reports  that  in  2013  a  study  on  psychiatric  co-

35  The  SCORE  (Sewage  Analysis  Core  Group  in  Europe)  is  a  European  consortium  consisting  of  University  of  Antwerp,  University  Jaume  I  (Spain),  Mario  Negri  Institute  (Italy),  KWR  Watercycle  Institute  (the 
Netherlands), University of Bath (United Kingdom), EAWAG (Switzerland) and NIVA (Norway). The aim of this consortium is to plan and coordinate European initiatives on sewage analysis. They maintain contacts 
with the European Monitoring Centre for Drug and Drug Addiction (EMCDDA) and the United Nations Office on Drugs and Crime (UNODC) and seek funding to keep the European research going http://sewprof-
itn.eu/  

74 

 
 
                                                            
morbidity  in  the  European  countries  was  carried  out,  including  a 
discussion  on  the  definitions,  concepts  and  diagnostic  instruments 
to identify psychiatric co-morbidity, an analysis of epidemiological 
data  from  different  target  groups,  a  description  of  available 
treatment  for  patients  suffering  from  psychiatric  co-morbidity  in 
Europe and recommendations for treatment. 

The  EMCDDA’s  “Methodological  Framework  on  Drugs  and 
Prison. Towards the development of indicators to monitor drug use, 
drug-related  health  problems  and  drug  services  in  European 
prisons”  promotes  a  standardised  approach  to  monitoring  drug  use 
and  drug-related  health  responses  in  prison.  In  2014,  a  common 
European Questionnaire on Drug Use among Prisoners (EQDP) was 
published,  to  promote  the  harmonisation  of  the  collection  of  data 
across EU countries.  

Emergencies related to drug use are increasingly monitored by the 
EMCDDA. In 2014, a review of the health consequence of cocaine 
use  in  Europe  was  published,  pointing  to  a  heavy  burden  of  these 
cases  on  emergency  settings,  and  to  the  potential  for  referral  of 
some  patients.  This  report  was  also  a  review  of  the  monitoring  of 
drug-related acute emergencies in 30 European countries. It showed 
the  limitations  but  also  the  potential  of  this  indicator  to  monitor 
morbidity related to drug intoxication. 

In cooperation with the EMCDDA and Member States, Europol has 
elaborated  a  tool  for  data  collection  on  illicit  synthetic  drug 
laboratories  -  ERISSP  (European  reporting  on  illicit  Synthetic 
Substances  production).  In  March  2014  a  training  course  was 
delivered  within  the  EMPACT  Priorities  2014  (co-financed)  by 
Europol and the ERISSP tool has now been delivered to all Member 

75 

 
 
States. 

Europol,  in  cooperation  with  the  EMCDDA  also  elaborated  on  a 
reporting tool relating to Illicit Cocaine Laboratories along with the 
explanatory  guidelines  which  has  been  made  available  to  Member 
States. 

In  2013-2014,  the  number  of  new  psychoactive  substances  (NPS) 
appearing  on  the  market  continued  the  upward  trend  started  in 
previous  years;  moreover,  these  substances  raised  more  public 
health concerns than ever before. 

In this period, a total of 182 NPS were identified, which represents 
two  fifths  of  the  total  number  of  NPS  which  have  been  identified, 
formally notified to and monitored by the Early Warning System to 
date since 1997 (i.e. around 450 NPS); and seven risk assessments 
were  carried  out  at  the  request  of  the  Council,  that  is  twice  the 
number of risk assessments requested during the period 2010–2013. 

Seizure  data  from  law  enforcement  also  confirm  the  growth  and 
importance of the new drugs market. Between 2008 and 2013 there 
was a seven-fold increase in the number of seizures reported across 
Europe.  An  EMCDDA-Europol  report  on  the  implementation  of 
Council Decision 2005/387/JHA on the information exchange, risk 
assessment and control of new psychoactive substances is published 
annually36. 

The rapid emergence of NPS creates difficulties for the control and 
public  health  authorities  in  the  Member  States,  for  identification 
and  detection  of  these  substances  by  customs  and  forensic 
laboratories,  and  also  for  collection  of  data  regarding  their  health 

51.  Improve  the  capacity  to  detect,  assess  and 
respond effectively to the emergence and use of 
new  psychoactive  substances  and  monitor  the 
extent to which such new substances impact on 
the number and profile of users 

Ongoing 

European 

Commission  

Member States 

EMCDDA 

Europol 

36 The implementation reports can be retrieved online 

76 

 
 
                                                            
effects.  These  problems  are  regularly  presented  in  meetings  and 
workshops  of  customs  and  forensic  laboratories  (e.g.  Customs 
Laboratory  European  Network  (CLEN)  and  European  Network  of 
Forensic Science Institutes (ENFSI)). 

The  European  Commission  has  undertaken  actions  to  set  up 
scientific  and  analytical  support  to  Customs  laboratories  to  help 
them to faster identify NPS. 

Following a pilot and feasibility study run in 2013, in October 2014, 
an  Administrative  Arrangement  was  made  for  the  EU's  Joint 
Research  Centre  (DG  JRC)  to  provide  a  regular  analytical  support 
to  the  European  Customs  laboratories,  to  build-up  of  a  spectral 
repository  of  NPS  and  to  develop  and  establish  harmonised 
analytical methods for identification of NPS. 

The  EMCDDA’s  Early  Warning  System  (EWS)  is  responsible  for 
collecting  data  from  the  forensic  and  toxicology  laboratories 
through  the  national  Early  Warning  Systems.  In  order  to  issue  a 
formal  notification  on  a  new  psychoactive  substance  to  the  EWS 
Network, a complete analytical dataset that ensures the unequivocal 
identification  of  the  substance  is  required.  The  number  of  NPS 
detected  each  year  (81  in  2013  and  101  in  2014)  is  the  minimum 
estimate for the number of complete datasets received in those two 
years.  In  addition,  the  EU  EWS  collects  updated  analytical 
information on substances notified in previous years, including data 
from  the  scientific  literature,  and  provides  technical  assistance  to 
the labs when requested.  

A  regional  risk  assessment,  carried  out  in  response  to  sharp 
increases  in  human  immunodeficiency  virus  (HIV)  notifications 
among  people  who  inject  drugs  (PWID)  in  two  Member  States  in 

52.  Strengthen  efforts  to  share  forensic  science 
data,  including  laboratory  reference  standards, 
on new psycho- active substances, by enhancing 
cooperation  through  existing  networks,  such  as 
the  Drugs  Working  Group  of  the  European 
Network  of  Forensic  Science  Institutes  in  the 
framework  of  the  JHA  Council  conclusions  on 
the vision for European Forensic Science 2020 

2016 

European 

Commission 

Member States 

EMCDDA 

53.  Improve  the  ability  to  identify,  assess  and 
respond at MS and EU levels to (a) behavioural 

Ongoing 

Member States 

EMCDDA 

77 

 
 
changes 
epidemic outbreaks 

in  drug  consumption  and  (b) 

to 

ECDC 

EMA 

2011 was updated in 2013 by ECDC and EMCDDA37. Employing a 
set of established indicators, a report was produced which identifies 
areas  where  scale-up  of  evidence-based  preventive  measures  is 
needed to avoid further outbreaks.    

In  the  period  2013-2014,  the  EMCDDA  issued  182  formal 
notifications  on  NPS  and  32  public  health  alerts  and  advisories  to 
the  Early  Warning  System  Network.  Many  of  the  latter  concerned 
serious adverse events, particularly deaths, and/or hazards that had 
the potential to cause serious harm.  

In this period, the Scientific Committee of the EMCDDA conducted 
seven  risk  assessments  on  new  psychoactive  substances  posing 
health concerns. 

The  EMCDDA  also  provides  technical  assistance,  advice  and 
feedback  to  the  Member  States  on  a  daily  basis  and  is  engaged  in 
many  training  activities.  In  2014,  the  EMCDDA  participated  in  7 
training activities focused on new psychoactive substances. 

Objective 14: Enhance dissemination of monitoring, research and evaluation results at EU and national level 

54.  Member  States  continue  to  support  EU 
monitoring  and  information  exchange  efforts, 
including  cooperation  with,  and  adequate 
support for, Reitox national focal points 

Ongoing  

MS 

EMCDDA 

In  2013,  due 
the  EMCDDA’s 
to  budgetary  constraints, 
Management  Board  adopted  new  measures  including  a  substantial 
reduction of the maximum amount available for EU Member States 
for the Grant Agreements as part of the co-financing system of the 
National Focal Points (NFPs). The decision also underlined that the 
co-financing system was directed only to the tasks of the NFPs that 
were related to their role towards the EMCDDA, without prejudice 
of their national tasks, nor the financing of data collection which is 
the responsibility of Member States. 

37 see Eurosurveillance  paper: http://www.eurosurveillance.org/ ViewArticle.aspx?ArticleId=20648 

78 

 
 
                                                            
Following a consultation of all NFPs by the Reitox Spokespersons 
in  2014  about  the  impact  of  those  measures  on  the  operational 
capacity  of  the  NFPs,  the  conclusion  is:  there  is  an  impact  for  all 
NFPs, to a lesser or greater extent: 

 

lower  capacity  to  implement  tasks  for  the  EMCDDA  and/or 
their countries.  

  direct 

leading 

impact  on 

the  NFP  staff,  potentially 

to 
redundancies or reallocation of staff to other tasks, i.e. not NFP 
activities.  
lowering of the operational budget of NFPs, (role in the field of 
research  and  monitoring  and  implementation  of  the  key 
epidemiological indicators and other standards), and which also 
emphasises the national role of the NFP. 
fewer research projects and expert reports, and reduction of the 
NFP’s  capacity 
the  work  or 
to  commission  part  of 
complementary studies to external experts/institutions.  
reduction  of  national  contributions,  which  means  that  in  some 
countries  budget  cuts  might  affect  regional  cooperation. 
perception of the role and position of the NFP at national level 
to: become more a simple observer/provider of data rather than 
a key actor contributing to the analysis and understanding of the 
situation. 

 

 

 

79