EU Drugs Strategy 2021-2025.
Date: 2021-08-20
Institutions: General Secretariat of the Council
Subjects: common strategy, drug traffic, environmental risk prevention, fight against crime, organised crime, public health

International 
cooperation

Drug supply 
reduction:
Enhancing 
security

Coordination, 
governance 
and 
implementation

Addressing 
drug-related 
harm

Drug demand 
reduction:
Prevention, 
treatment and 
care services

Research, 
innovation 
and foresight

EU DRUGS STRATEGY 2021-2025General SecretariatCouncil of the European UnionFINDING INFORMATION ABOUT THE EU

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EU DRUGS STRATEGY 
2021-2025

TABLE OF CONTENTS

7 

INTRODUCTION

AIM, FOUNDATIONS AND APPROACH

11 

I. DRUG SUPPLY REDUCTION

ENHANCING SECURITY

12  Strategic priority 1 

14  Strategic priority 2 

16  Strategic priority 3 

17  Strategic priority 4 

19 

II. DRUG DEMAND REDUCTION

PREVENTION, TREATMENT AND CARE SERVICES 

20  Strategic priority 5 

22  Strategic priority 6 

25 

III. ADDRESSING DRUG-RELATED HARM

26  Strategic priority 7 

28  Strategic priority 8 

31 

IV. INTERNATIONAL COOPERATION 

32  Strategic priority 9 

37  V. RESEARCH, INNOVATION AND FORESIGHT 

38  Strategic priority 10 

43 

 VI. COORDINATION, GOVERNANCE AND 

IMPLEMENTATION 

44  Strategic priority 11 

EN | EU DRUGS STRATEGY 2021-2025 | 5

INTRODUCTION
Aim, foundations and 
approach

1 
The EU Drugs Strategy 2021-2025 (hereinafter referred to as 
‘the Strategy’) provides the overarching political framework 
and priorities for the European Union’s drugs policy for the 
period 2021-2025. The framework, aim and objectives of 
this Strategy will serve as the basis for the EU Action Plan on 
Drugs from 2021 to 2025.

2 
The Strategy aims to protect and improve the well-being 
of society and of the individual, to protect and promote 
public health, to offer a high level of security and well-being 
for the general public and to increase health literacy. The 
Strategy takes an evidence-based, integrated, balanced and 
multidisciplinary approach to the drugs phenomenon at 
national, EU and international level. It also incorporates a 
gender equality and health equity perspective.

3 
By 2025, the priorities and actions in the 
field of illicit drugs, coordinated through 
the Strategy, should have had an overall 
impact on key aspects of the EU drug 
situation. The coherent, effective and 
efficient implementation of measures 
should both ensure a high level of human 
health protection, social stability and 
security, and contribute to awareness 
raising. Any potential unintended negative 
consequences associated with the 
implementation of the actions should 
be minimised, and human rights and 
sustainable development promoted.

4 
The Strategy is based first and foremost on 
the fundamental principles of EU law and, in 
every regard, upholds the founding values 
of the EU: respect for human dignity, liberty, 
democracy, equality, solidarity, the rule of 
law and human rights. The Strategy is also 
based on international law, the relevant 
United Nations (UN) Conventions1 which 
provide the international legal framework 
for addressing the illicit drugs phenomenon, 
and the Universal Declaration on Human 
Rights. The Strategy takes into account 
policy developments at multilateral level, 
and contributes to the acceleration of their 
implementation. First and foremost, the EU 
strongly supports the outcome document 
of the 2016 UN General Assembly Special 
Session (UNGASS) on the world drug 
problem entitled ‘Our joint commitment 
to effectively addressing and countering 
the world drug problem’, which is the most 

comprehensive policy document in that 
respect. It also supports the 2019 Ministerial 
declaration on strengthening our actions at 
the national, regional and international levels 
to accelerate the implementation of our 
joint commitments to address and counter 
the world drug problem, the applicable 
goals of the 2030 Agenda for Sustainable 
Development, the UN system common 
position supporting the implementation 
of the international drug control policy 
through effective inter-agency collaboration, 
and the International Guidelines on Human 
Rights and Drug Policy. The Strategy has 
been drafted on the basis of the principles 
set out in the Lisbon Treaty and taking into 
account the respective competences of the 
EU and individual Member States. Due regard 
is given to subsidiarity and proportionality, 
as the Strategy intends to add value to 
national strategies while respecting national 
needs and legislation. The Strategy should 
be implemented in accordance with these 
principles and competencies. Furthermore, 
the Strategy fully respects the European 
Convention on Human Rights and the Charter 
of Fundamental Rights of the EU and is 
guided by the human right to health, which 
should apply to everyone regardless of, for 
example, age or gender. All women, men 
and children, including people with drug-use 
disorders, have the right to enjoy the highest 
attainable standard of physical and mental 
health, including freedom from violence.

1.  The 1961 Single Convention on Narcotic Drugs, as amended by the 1972 Protocol, the 1971 

Convention on Psychotropic Substances and the 1988 United Nations Convention against Illicit Traffic 
in Narcotic Drugs and Psychotropic Substances.

8 | EU DRUGS STRATEGY 2021-2025 | EN 

5 
Drug policy is of a cross-cutting nature. It is 
also a national and international issue that 
needs to be addressed in a global context, 
by a variety of stakeholders. The Strategy 
provides a common and evidence-based 
framework for responding in a consistent 
manner to the drugs phenomenon, 
within and outside the EU. It supports and 
complements national policies, provides a 
framework for coordinated and joint action 
and forms the basis and political framework 
for EU external cooperation in this field. It 
thereby ensures that resources invested in 
this area are used effectively and efficiently.

6 
The Strategy builds on valuable input from 
the Commission Communication EU Agenda 
and Action Plan on Drugs 2021-20252, on the 
lessons learned from the implementation 
of previous EU drugs strategies and action 
plans, including the findings from external 
evaluation3 and builds upon the EU’s 
achievements in this area. It also takes into 
account the EU Security Union Strategy 
for 2020-2025, the Health and Food Safety 
strategic plan for 2016-2020, and other 
relevant policy developments and actions 
at EU and international level in the field of 
drugs. In addition, the Strategy is informed 
by an ongoing assessment of the current 
drug situation, in particular as provided by 

the European Monitoring Centre for Drugs 
and Drug Addictions (EMCDDA) and Europol. 
Finally, it takes into account information 
provided by civil society.

7 
The Strategy addresses existing and evolving 
challenges, and takes on board evolving 
evidence-based approaches. Furthermore, 
given the dynamic and complex nature 
of the drugs phenomenon, which once 
again became evident during the COVID-19 
pandemic, the Strategy adopts a future-
oriented approach in order to anticipate 
changes. Strategic foresight has been 
integrated with the intention to increase 
EU preparedness and ensure an efficient 
response to future challenges.

8 
The Strategy is structured around three 
policy areas that will all contribute to 
achieving its aim: (I.) Drug supply reduction: 
Enhancing Security, (II.) Drug demand 
reduction: prevention, treatment and care 
services, and (III.) Addressing drug-related 
harm; and three cross-cutting themes in 
support of the policy areas: (IV.) International 
cooperation, (V.) Research, innovation and 
foresight; and (VI.) Coordination, governance 
and implementation. Altogether, the 
Strategy encompasses 11 strategic priorities.

2.  Communication from the Commission to the European Parliament, the Council, the European 

Economic and Social Committee and the Committee of the Regions, EU Agenda and Action Plan on 
Drugs 2021-2025.

3.  Commission Staff Working Document: Evaluation of the EU Drugs Strategy 2013-2020 and EU Action 

Plan on Drugs 2017-2020, July 2020, SWD(2020) 150.

EN | EU DRUGS STRATEGY 2021-2025 | 9

I 
DRUG SUPPLY 
REDUCTION
ENHANCING SECURITY

Drug supply reduction includes the prevention of, dissuasion 
from and disruption of drug-related crime, in particular 
organised crime, through judicial and law enforcement 
cooperation, intelligence, interdiction, confiscation of 
criminal assets, investigations and border management.

In the field of drug supply reduction, the objective of the 
Strategy is to respond, through an evidence-based approach, 
to the challenging development of European drug markets, 
which is characterised by a high availability of various types 
of drugs, ever larger seizures, increasing use of violence and 
huge profits. The Strategy therefore aims to contribute to the 
disruption of traditional and online illicit drug markets, the 
dismantling of organised crime groups that are involved in 
drug production and trafficking, efficient use of the criminal 
justice system, effective intelligence-led law enforcement, a 
reduction in the levels of violence associated with the illicit 
drug markets, and increased intelligence sharing that will 
ensure a common approach on the part of all responsible  
stakeholders. 

STRATEGIC PRIORITY 1 

Disrupt and dismantle high-risk drug-related organised crime groups 
operating in, originating in or targeting the EU Member States;  

address links with other security threats and improve crime prevention.

Priority areas to address

1.1.

Target high-risk organised crime groups 
active across the EU and cross-border 
drug markets; set priorities in synergy 
with the EU policy cycle for organised and 
serious international crime (EMPACT)4; 
disrupt criminal business models 
especially those that foster collaboration 
between different organised crime 
groups; and address links with other 
security threats.

1.2.

Track, trace, freeze and confiscate the 
proceeds of and instruments used by 
organised crime groups involved in the 
illicit drug markets.

1.3.

Prevent drug related crime with 
particular focus on the need to counter 
violence, limit corruption and address 
the exploitation of vulnerable groups 
by addressing the underlying factors 
that lead to their involvement in illicit 
drug markets. 

The following priorities have been 
identified

1.1.
High-risk drug-related organised crime 
groups should be disrupted. Both operations 
that are large scale in terms of the volume 
of drugs or profits and those that are 
smaller scale but particularly harmful due 
to the nature of drugs concerned, such 
as new psychoactive substances (NPS), 
synthetic opioids, heroin, cocaine and 
methamphetamine, should be a priority 
target at EU level. In order to ensure 
efficiency and an evidence-based approach, 
this should be prioritised in synergy with 
the EU policy cycle for organised and 
serious international crime (EMPACT) 
that identifies, prioritises and addresses 
threats on a commodity-based approach. 
Furthermore, both top-level and established 
mid-level targets important for sustaining 
the operational continuity of organised 
crime groups should be a priority in order to 
disrupt their command structure. All actors 
in the chain who are experienced enough 
to provide continuity of criminal operations 
should be targeted. Links between drug-
related criminality and other forms of serious 
crime need to be addressed. 

4.  https://www.europol.europa.eu/empact

12 | EU DRUGS STRATEGY 2021-2025 | EN 

1.3.
It is important to recognise the impact 
of drug-related crime, in particular on 
communities, and to counter the threats 
posed by these crimes, such as violence 
and intimidation, corruption and money 
laundering, and their associated negative 
effect on the legal economy. It is also 
necessary to counter the exploitation by 
organised crime groups of vulnerable groups, 
including children and young people and 
those with drug problems, by taking a 
multidisciplinary approach to the underlying 
factors which lead to their involvement 
in illicit drug markets. Countering and 
preventing these threats and promoting 
sustainable development is a significant 
challenge that requires concerted action at 
EU level and across a number of sectors. 

1.2.
Focus should be given to tracking, tracing, 
freezing and confiscating the huge criminal 
assets obtained from drug trafficking and 
related offences in order to remove organised 
crime groups’ capacity to engage in future 
crimes and to infiltrate the legal economy. 
To effectively tackle drug trafficking, we must 
ensure that illegal profits do not go back 
into the illicit drug supply chain and do not 
enable criminal behaviour such as corruption 
and violence, or other forms of serious and 
organised crime, such as trafficking in human 
beings or even terrorism. Furthermore, 
measures to limit the criminal use of 
instruments that facilitate the illicit drug trade, 
such as equipment in drug laboratories used 
for the purposes of illicit drug production, 
firearms, falsified documents and encryption 
technology, should also be considered. Finally, 
seized and confiscated instruments and the 
proceeds from offences related to drugs 
could be used to support measures to reduce 
drug supply and drug demand, insofar as is 
permitted by national law.

EN | EU DRUGS STRATEGY 2021-2025 | 13

STRATEGIC PRIORITY 2 

Increase the detection of illicit wholesale trafficking of drugs and 
drug precursors at EU points of entry and exit. 

Priority areas to address

2.1.

Counter the smuggling of drugs and drug 
precursors in and out of the EU by using 
established legitimate trade channels.

2.2.

Increase monitoring of border crossings 
that are not part of established trade 
channels to more effectively prevent 
illicit or undeclared crossings of the EU 
external borders.

The following priorities have been 
identified

2.1.
Major known ports, airports and land 
entry and exit points in the EU that are 
used as hubs for the wholesale trafficking 
of drugs and drug precursors should 
be put on a high priority list for action 
targeting drug trafficking. Measures should 
include improved customs risk analysis of 
containers and cargo, profiling, intelligence 
sharing and effective cooperation across 
and between the competent EU agencies 
within their respective mandates and law 
enforcement, customs and border control 
agencies in Member States and relevant 
agencies of partner countries. Improved 

exchange of information and closer 
cooperation between customs and police 
authorities have been identified as critical in 
the fight against drug smuggling. Attention 
should also be given to further developing 
and extending anti-corruption measures 
in relation to these hubs and to detecting 
any displacement effects resulting from 
effective interventions.

2.2.
It is important to monitor maritime, land 
and air borders to prevent illicit crossings 
relating to the drug trade. Within this scope, 
situational awareness activities should 
be reinforced for all EU external borders, 
including within Frontex in cooperation 
with Member States. Priority should be 
given to air and maritime borders due to 
their inherent vulnerabilities, the limited 
monitoring, and the strategic importance 
of the general aviation5 space, as well as the 
Atlantic Ocean and the Mediterranean Sea. 
During the COVID-19 pandemic, maritime 
shipping continued relatively unimpeded 
and trafficking opportunities remained 
available to organised crime groups 
involved in the wholesale transportation of 
drugs to Europe6. Activities such as those 
conducted by the Maritime Analysis and 
Operation Centre – Narcotics (MAOC (N)), 
e.g. monitoring vessels and aircrafts of 
interest carrying illicit drugs on the high 

5.  Aviation encompasses scheduled air transport, including passenger and cargo flights operating on regularly 

scheduled routes, and general aviation, which includes all other commercial and private civil flights.

6.  EMCDDA and Europol, EU Drug Markets – Impact of COVID-19, May 2020. 

14 | EU DRUGS STRATEGY 2021-2025 | EN 

seas and in the air space surrounding 
the known abused EU maritime borders 
and airspace with the aim of intercepting 
them before or when they reach their first 
EU port of entry, should be strengthened 
and extended. The general aviation space 
also poses a risk to the EU’s security and is 
increasingly used by drug traffickers, while 
remaining under-monitored. 

EN | EU DRUGS STRATEGY 2021-2025 | 15

STRATEGIC PRIORITY 3 

Tackle the exploitation of logistical and digital channels for 
medium- and small-volume illicit drug distribution and increase 

seizures of illicit substances smuggled through these channels in 

close cooperation with the private sector. 

Priority areas to address

3.1.

Tackle digitally enabled illicit drug 
markets.

3.2.

Target drugs trafficking via postal and 
express services.

3.3.

Reinforce monitoring and investigation 
methods for cross-EU rail and fluvial 
channels and the general aviation space.

The following priorities have been 
identified

3.1.
Focus should be given to tackling the 
increased sales of illicit drugs, including NPS, 
via social media platforms, apps and internet/
darknet market places, and the use of online 
payments (including cryptocurrencies) 
and encrypted digital communication. 
Engagement with the private sector should 
be enhanced in this regard.  

3.2.
Trafficking of drugs via postal and express 
services should be targeted, also paying 
attention to the impact of the COVID-19 
pandemic. In this context stricter monitoring 
of shipments containing illicit substances 
is needed in close cooperation with postal 
and express services. The role of new 
technologies and artificial intelligence 
in improving controls and procedures 
including the risk assessment of postal 
items7 can be examined, with the possibility 
of fully implementing advanced electronic 
data on all items that come from source 
countries (international and EU). 

3.3.
Cross-border rail transport connections and 
fluvial channels and the general aviation 
space can be exploited as possible drug 
trafficking channels and are currently 
insufficiently monitored by law enforcement. 
Greater awareness is needed in order to 
reinforce  monitoring and targeted risk-
based investigations at smaller sea harbours 
and fluvial ports, small or local airfields and 
train stations.  

7.  Postal item: an item addressed in the final form in which it is to be carried by a postal service provider. 

In addition to items of correspondence, such items also include, for instance, books, catalogues, 
newspapers, periodicals and postal parcels containing merchandise with or without commercial value.

16 | EU DRUGS STRATEGY 2021-2025 | EN 

STRATEGIC PRIORITY 4 

Dismantle illicit drug production and counter illicit cultivation; 
prevent the diversion and trafficking of drug precursors for illicit 

drug production; and address environmental damage.

4.2.
Issues related to the diversion and trafficking 
of drug precursors and the development of 
alternative chemicals need to be addressed at 
European and international level. 

4.3.
Environmental crime related to illicit 
drug production and trafficking needs 
to be targeted. As regards environmental 
damage, it is crucial to address the 
environmental impacts, hazards to health 
and costs associated with the chemical waste 
generated by illicit synthetic drug production, 
as also recognised in EMPACT. In this 
context, aspects related to the handling and 
destruction of seized illicit drugs, precursors 
and other chemicals and equipment used 
in illicit drug production, as well as the 
ecological disposal of the resulting waste 
should also be considered.

Priority areas to address

4.1.

Counter illicit production of synthetic 
drugs and illicit cultivation of drugs.

4.2.

Tackle the diversion and trafficking of 
drug precursors and the development of 
alternative chemicals8. 

4.3.

Address environmental crime related to 
illicit drug production and trafficking.

The following priorities have been 
identified

4.1.
Further efforts of law enforcement authorities 
are needed to detect and dismantle illicit 
synthetic drug laboratories and to stop 
exports of illicit drugs produced in the EU. 
Law enforcement authorities and other 
competent bodies should also strengthen 
measures to tackle illicit cultivation of drugs.

8.  The term alternative chemicals covers the wide range of substances variously referred to in both 

official and unofficial reports as ‘designer precursor’, ‘masked precursor’, ‘pre-precursor’ or ‘masked drug’, 
EMCDDA, Drug Precursor Development in the European Union, 2019, page 2.

EN | EU DRUGS STRATEGY 2021-2025 | 17

II 
DRUG DEMAND 
REDUCTION
PREVENTION, TREATMENT 
AND CARE SERVICES 

Drug demand reduction consists of a range of equally 
important and mutually reinforcing measures, including 
prevention (environmental, universal, selective and 
indicated), early detection and intervention, counselling, 
treatment, rehabilitation, social reintegration and recovery. 

In the area of drug demand reduction, the objective of the 
Strategy is to contribute to the healthy and safe development 
of children and young people and to a reduction of the use of 
illicit drugs. It also aims to delay the age of onset, to prevent 
and reduce problem drug use, to treat drug dependence, 
to provide for recovery and social reintegration through an 
integrated, multidisciplinary and evidence-based approach 
and by promoting and safeguarding coherence between 
health, social and justice policies. 

STRATEGIC PRIORITY 5 

Prevent drug use and raise awareness of the adverse effects of drugs. 

Priority areas to address

5.1.

Provide, implement and, where needed, 
increase the availability of evidence-based 
environmental and universal prevention 
interventions and strategies for target 
groups and environments, in order to 
increase resilience and strengthen life 
skills and healthy life choices.

5.2.

Provide, implement and, where 
needed, increase the availability of 
evidence-based targeted prevention 
interventions for young people and 
other vulnerable groups.

5.3.

Provide, implement and, where needed, 
increase the availability of evidence-
based early intervention measures. 

5.4.

Disseminate the latest scientific 
evidence on prevention to decision 
makers and practitioners and provide 
them with training.

5.5.

Address drug-impaired driving. 

20 | EU DRUGS STRATEGY 2021-2025 | EN 

The following priorities have been 
identified

5.1.
The wide implementation of evidence-based 
environmental and universal prevention 
interventions and strategies, including those 
that build resilience, increase health literacy 
and promote life skills and opportunities to 
choose healthy lifestyles, is important for 
achieving health, welfare and well-being for 
all individuals. In addition, evidence-based 
programmes targeting families should also be 
further implemented, where needed. 

5.2.
Evidence-based measures should be 
available and implemented to support 
people experiencing particular and multiple 
disadvantages and who may be more 
vulnerable to the risks associated with drug 
use, including NPS use, and to developing risky 
drug-use patterns. Effective prevention should 
be appropriate to the local social context 
and to the needs of the target population, be 
informed by scientific evidence, and be safe 
and effective. In order to reach young people, 
full use should be made of new and innovative 
digital communication channels. The measures 
implemented should be evidence-based 
and should support positive relationships 
with peers and with adults. An important 
target group for prevention activities will be 
young people in multiple settings, including 
schools, families, night life, the workplace, the 
community and internet and social media. 
Special attention should also, however, 
be given to those groups that have been 

identified as particularly vulnerable to drug use 
in European, national and local research.  

5.3.
Provide and, where needed, increase the 
availability of effective measures to prevent 
the development of severe drug-use 
disorders through appropriately targeted 
early interventions for people at risk of such 
progression, also by facilitating collaboration 
between all stakeholders, including parents and 
families, those working in education or family 
support, networks, youth services, student unions, 
sporting organisations and networks of people 
who use drugs. It is essential to make better use 
of primary healthcare professionals in order to 
improve the identification of problematic use and 
offer short early interventions.

5.4.
The European drug prevention quality standards 
(EDPQS), the UNODC/WHO International 
Standards on Drug Use Prevention and the 
European Prevention Curriculum (EUPC) 
compile the latest scientific evidence. It is 
important to disseminate these tools and 
advocate for evidence-based prevention and 
training among decision makers, opinion leaders 
and practitioners and to allocate sufficient 
funding to such measures.

5.5.
Focus should be given to the prevention of 
drug-impaired driving and accidents caused by 
drug-impaired persons. In particular, awareness 
raising is required to highlight the risks of 
driving while impaired by drugs. This area 
requires further research and development 
to identify and evaluate effective policy 
and operational responses, including the 
development of more accessible roadside 
testing methods for drug detection. 

EN | EU DRUGS STRATEGY 2021-2025 | 21

STRATEGIC PRIORITY 6 

Ensure access to and strengthen treatment and care services. 

Priority areas to address

6.1.

Ensure voluntary access to treatment 
and care services that work in close 
coordination and collaboration with other 
health and social support services.

6.2.

Promote peer work.

6.3.

Identify and remedy the barriers to 
accessing treatment and ensure and, 
where needed, extend coverage of 
treatment and care services based on 
individual needs. 

6.4.

Reduce stigma.

6.5.

Widely implement treatment and care 
addressing the specific needs of women.

6.6.

Implement models of care that are 
appropriate for groups with special care 
needs.

6.7.

Provide and, where needed, improve 
access to, availability and appropriate use 
of substances for medical and scientific 
purposes.

The following priorities have been 
identified

6.1.
Ensure voluntary and non-discriminatory access 
to a broad range of effective evidence-based 
services, including professional counselling, 
psychosocial, behavioural and medication-
assisted treatment, including person-centred 
opioid maintenance therapy, rehabilitation, social 
reintegration and recovery support programmes. 
These services need to be well coordinated and 
need to work hand in hand with other social, 
health, employment and youth services in order 
to provide the full continuum of care and be both 
as effective as possible and focused on individual 
needs and existing comorbid disorders. 

Training for staff should be developed on the 
basis of evidence-based measures. Counselling 
and evidence-based treatment addressing 
poly drug use and the specific needs of young 
people who use drugs and their families should 
be implemented.

6.2.
Peer-led outreach and peer group work should 
be recognised as a key component of the care 
plan of a person who uses drugs, promoting 
autonomy, empowerment and recognising 
the peer’s expertise and experience. Peer-led 
work should be promoted as a way of sharing 
information, providing support and increasing 
awareness of relevant information among the 
community of people who use drugs.

22 | EU DRUGS STRATEGY 2021-2025 | EN 

6.3.
Barriers to accessing support services and 
treatment need to be addressed and it must be 
ensured that healthcare and social services are 
both sufficiently available, sufficiently funded and 
appropriate to the needs of their client groups, 
and that they take into account the gender 
perspective. This may also include e-health 
offers, especially in the context of the COVID 
19 pandemic. Barriers to access should also be 
reduced with respect to the key characteristics 
of the target group, such as demographic 
factors (e.g. age, gender, education, cultural 
background), situational factors (e.g. poverty, 
family circumstances, social circle, homelessness, 
migration, imprisonment), and personal factors 
(e.g. physical and mental health, disabilities, 
psychological well-being). 

6.4.
The stigmatisation linked to drug use and drug-
use disorders needs to be addressed, especially 
as this stigma may have a detrimental effect 
on the mental and physical health of people 
who use drugs and could also act as a barrier 
to seeking support. In this regard, the inclusion 
of people that have experienced drug-related 
stigma should be particularly taken into account 
when developing policies.

6.5.
Measures need to be taken to better identify and 
address the barriers that women face in engaging 
with and pursuing counselling, treatment and 
rehabilitation services. These barriers include 
domestic violence, trauma, stigma, physical 
and mental health issues, pregnancy and 
childcare issues, all of which may be aggravated 
by demographic, socio-economic, situational 
and personal factors. Effective service delivery 
should be sensitive to the specific needs and life 
experiences of women with drug-use problems 
and should recognise that patterns of drug use 

and problems may differ from those experienced 
by men. Women-only service options should 
be developed, as should services that take care 
of accompanying children and that offer other 
forms of specialist care, such as close working 
partnerships with care providers and with services 
working with vulnerable women and victims of 
domestic violence. 

6.6.
The diversity evident among people who use 
drugs should be recognised and steps should 
be taken to provide services that can address 
this diversity and reflect the needs of different 
groups in relation to problem drug use. Specific 
groups of people who use drugs and who have 
drug-use disorders that involve potentially more 
complex or specific care needs include: children 
and young people, older people with a history of 
long-term drug use and dependence, people with 
comorbid mental health problems, LGBTI, people 
with poly drug use, people who use drugs and 
are also parents, people with disabilities, ethnic 
minorities, migrants, refugees, asylum seekers, 
people who engage in sex work and prostitution 
and homeless people. Effective engagement with 
these groups also requires models of care that 
recognise the need for cross-service partnerships 
between healthcare, youth and social care 
providers, and patients/carers groups. 

6.7.
The lack of access to and availability of controlled 
substances for medical and scientific purposes is a 
cause of unnecessary human suffering and not in 
line with international agreements and respect for 
human rights. At the same time, there is a real risk 
of misuse and diversion of these substances. The 
appropriate use of these substances is therefore 
imperative. A balanced approach that focuses both 
on the systemic, legal and financial issues and on the 
provision of capacity-building and awareness-raising 
activities needs to be promoted and implemented.

EN | EU DRUGS STRATEGY 2021-2025 | 23

III 
ADDRESSING 
DRUG-RELATED 
HARM

The use of drugs may cause health and social harm to users 
but also to their family and the wider community. This 
chapter therefore focuses on measures and policies that 
prevent or reduce the possible health and social risks and 
harm for users, for society and in prison settings. National 
needs and national legislation must be taken into account 
when implementing these measures and policies.

Prisoners are more likely to have used drugs compared with 
the general population, and they are also more likely to have 
engaged in risky forms of use, such as injecting drug use. Up 
to 70 % of European prisoners have used an illicit drug9. Drug 
problems can worsen in prison settings due to the difficulties 
in coping with incarceration and the availability of drugs, 
including NPS. At the same time, imprisonment can provide 
an opportunity for treatment and rehabilitation. 

9.  EMCDDA ‘Prison topics page’, 

www.emcdda.europa.eu/topics/prison_en.

STRATEGIC PRIORITY 7 

Risk- and harm-reduction interventions and other measures to 
protect and support people who use drugs. 

Priority areas to address

7.1.

Reduce the prevalence and incidence 
of drug-related infectious diseases 
and other negative health and social 
outcomes.

7.2.

Prevent overdoses and drug-related 
deaths.

7.3.

Promote civil society participation and 
ensure sustainable funding.

7.4.

Provide alternatives to coercive sanctions.

26 | EU DRUGS STRATEGY 2021-2025 | EN 

The following priorities have been 
identified

7.1.
The availability, accessibility and coverage of 
risk- and harm-reduction services need to be 
maintained and, where needed, improved. 
Training on evidence-based measures 
should also be implemented. These services 
should be guided by the minimum quality 
standards for drug demand reduction 
interventions in the EU. It is necessary to 
further prevent and treat blood-borne 
infectious diseases, especially HIV and 
Hepatitis C (HCV) and to reach high-risk 
populations and put them in touch with 
care and other support services. Needle 
and syringe programmes, linked to low 
threshold social and health care services, 
opioid agonist treatment, accessible HIV 
and HCV voluntary testing and treatment 
interventions are implemented by EU 
Member States to prevent blood-borne 
infections among people who inject drugs. 
In addition, Member States have applied 
various innovative risk- and harm-reduction 
measures to reach high-risk populations, 
e.g. supervised drug consumption facilities, 
to reduce risks and harm and put the 
most vulnerable groups in touch with care 
services. In addition, low threshold services, 
outreach work and co-operation with 
people who use drugs and their families 
are also essential for reducing the negative 
health and social impacts of drug use.

people who use drugs, clients of drug-
related services, the scientific community 
and other experts in the development and 
implementation of drug policies. It is also 
imperative that an appropriate level of 
resources be provided for all drug services at 
local, regional and national level. 

7.4.
Although all Member States employ at least 
one alternative to coercive sanctions10, 
for drug-using offenders and for people 
arrested, charged with or convicted for 
drug-related offences or people found 
in possession of drugs for personal use, 
stepping up efforts and mainstreaming the 
implementation of effective measures11 
should be progressed. In this regard, drug 
consumption and/or drug possession for 
personal use or possession of small amounts 
do not constitute a criminal offence in many 
Member States, or there is the option to 
refrain from imposing criminal sanctions. 
More comprehensive and in-depth data 
and exchange of best practices between 
Member States is needed in this area. 

7.2.
Effective measures to prevent drug 
overdoses are missing from current 
responses. The use of the opioid antagonist 
naloxone, including take-home naloxone 
programmes, should therefore be further 
investigated and implemented as a way 
of responding to or intervening in opioid 
overdoses. In addition, further evidence is 
needed on supervised drug consumption 
facilities which aim to prevent drug-related 
deaths. Drug services also have an important 
role in preventing drug-related mortality. 
New measures should be considered. For 
example, innovative approaches should 
be developed and tested for people 
who use stimulant drugs and for young 
people who go to nightclubs and parties. 
In addition, the effective and positively 
evaluated innovations in harm-reduction 
services seen in some Member States as a 
result of the COVID-19 pandemic should be 
maintained. The monitoring and reporting of 
overdose deaths across the EU needs further 
improvement. Overdose deaths should be 
a key indicator for measuring progress in 
implementing the Strategy. 

7.3.
To be most successful in reducing the risks 
and harm associated with the use of drugs, 
it is crucial to promote and encourage the 
active and meaningful participation and 
involvement of civil society, including non-
governmental organisations, young people, 

10.  The term "alternatives to coercive sanctions" can, according to the national legislation of the Member 

States, also refer to alternatives that are used instead of or in addition alongside the traditional 
criminal justice measures for drug-using offenders.

11.  Alternatives to coercive measures are defined as measures that have some rehabilitative element or 

that constitute a non-intervention (for example, deciding not to charge or prosecute), and those used 
instead of prison or other punishment (for example, a suspended sentence with drug treatment). See 
the Council conclusions of March 2018 on promoting the use of alternatives to coercive sanctions for 
drug using offenders (6931/18).

EN | EU DRUGS STRATEGY 2021-2025 | 27

STRATEGIC PRIORITY 8 

Address the health and social needs of people who use drugs in 
prison settings and after release. 

Priority areas to address

8.1.

Assure equivalence and continuity of 
healthcare provision in prison and by 
probationary services.

8.2.

Implement evidence-based measures 
in prison settings to prevent and reduce 
drug use and its health consequences, 
including measures to address the risk of 
drug-related deaths and the transmission 
of blood-borne viruses.

8.3.

Provide overdose prevention and referral 
services to ensure continuity of care on 
release.

8.4.

Restrict the availability of drugs in prisons.

28 | EU DRUGS STRATEGY 2021-2025 | EN 

The following priorities have been 
identified

8.1.
Drug treatment services, including opioid 
agonist treatment, rehabilitation and recovery 
for drug using offenders as well as provisions 
to reduce stigma need to be provided in male 
and female prisons and after release, in addition 
to supporting social reintegration. Developing 
a continuum of care model appropriate for 
each Member State and prison setting and 
probationary service is essential for allowing 
prisoners to access the range of support they 
need in order to achieve their personal recovery 
goals while entering prison and while in prison. 
Equally, after release prisoners should be 
supported by providing access to healthcare 
and social services, employment, housing 
and support for reintegration into society. It 
is essential to provide continued access to 
evidence-based drug services, equivalent to 
that provided in the community. 

8.2.
Preventing the use of drugs and the 
transmission of blood-borne infections within 
custodial settings through both evidence-
based preventive measures and risk- and 
harm-reduction measures, implemented 
by well-trained staff or peers is part of a 
comprehensive strategy. Providing access 
to testing and treatment for blood-borne 
infections and other measures that reduce the 
health risks associated with drug use should 
be considered for prison settings in the same 
way as is done in the community. 

8.3.
Upon release, overdose awareness trainings 
in combination with the distribution of take 
home naloxone might be made available 
where possible, in order to reduce overdoses 
and drug-related mortality.

8.4.
Disrupting the channels that supply 
illicit drugs and NPS into prisons should 
be a priority. Better use of the existing 
instruments such as cooperation with 
law enforcement agencies, sharing and 
processing information, tackling corruption, 
using intelligence and drug testing could 
form the basis for effective intervention.

EN | EU DRUGS STRATEGY 2021-2025 | 29

IV 
INTERNATIONAL 
COOPERATION 

STRATEGIC PRIORITY 9 

Strengthening international cooperation with third countries, 
regions, international and regional organisations, and at 

multilateral level to pursue the approach and objectives of the 

Strategy, including in the field of development. Enhancing the role 

of the EU as a global broker for a people-centred and human rights-

oriented drug policy. 

Due to the global nature of the drug 
phenomenon, the internal and external 
dimensions of the EU’s drug policy are 
increasingly interconnected. International 
cooperation is therefore necessary to pursue 
the Strategy’s approach and objectives. It 
should reflect the integrated, multidisciplinary, 
balanced and evidence-based EU approach 
outlined in the Strategy. It also contributes to 
the acceleration of the implementation of the 
commitments made by the EU at international 
level. The Sustainable Development Goals 
of the Agenda 2030 should guide the 
development of international drug policy.

The EU’s external relations in the field of 
drugs are based on the principles of shared 
responsibility, multilateralism, the promotion 
of a development-oriented approach, respect 
for human rights and human dignity, the rule 
of law and respect for the international drug 
control conventions. 

The acceleration of the implementation of the 
2016 UNGASS Outcome Document and the 
2030 Agenda for Sustainable Development 
should be strongly supported. The UN 
system common position supporting the 
implementation of the international drug 
control policy through effective inter-agency 
collaboration, as well as the International 

32 | EU DRUGS STRATEGY 2021-2025 | EN 

Guidelines on Human Rights and Drug Policy, 
are important guidelines for international drug 
policy. Likewise, the continued involvement 
of civil society and the scientific community 
is of high importance to the EU, as they play 
a crucial role in assessing and addressing the 
world drug situation. 

Furthermore, the integration of the Strategy 
and its objectives 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 should 
be guaranteed. This requires in particular 
that international cooperation in the field of 
drugs be integrated within the overall political 
relations and framework agreements between 
the EU and its partners, both at national and/
or regional level. Where appropriate, and 
with a view to enhancing knowledge of the 
threat assessment, forms of cooperation 
with Common Security and Foreign Policy 
(CSFP) instruments (such as Common 
Security and Defence Policy (CSDP) missions 
and operations) should be used, within the 
framework of existing EU policies. The High 
Representative, supported by the European 
External Action Service (EEAS), should facilitate 
this process.

Priority areas to address

9.1.

Continue shaping the international and 
multilateral agendas on drug policy. 

9.2.

Ensure a sustainable level of dialogue and 
information sharing on the strategies, 
aims and relevant initiatives with third 
countries or regions.

9.3.

Foster international cooperation by 
further involving competent EU agencies 
within their respective mandates.

9.4.

Continue, and establish new, cooperation 
programmes with third countries or 
regions and other partners based on 
regular evaluations of such programmes.

9.5.

Address all the policy aspects of the 
Strategy in international cooperation, 
including in the fields of security and 
judicial cooperation as well as the health-
related aspects of drugs issues.

9.6.

Strengthen the commitment to 
development-oriented drug policies and 
alternative development measures.

9.7.

Protect and promote adherence to 
international human right standards and 
obligations in global drug policies.

The following priorities have been 
identified

9.1.
Shaping the international and multilateral 
agendas on drug policy in line with the 
Strategy’s approach and objectives should 
be continued. This includes strategic 
cooperation with international organisations, 
in particular with UNODC as the leading 
entity within the UN system for addressing 
and countering the world drug situation, as 
well as the EU’s participation in UN policy 
processes, in particular the Commission 
on Narcotic Drugs (CND) as the principal 
policymaking body of the UN with prime 
responsibility for drug control matters, as 
well as in other UN fora focusing on health, 
human rights and development. 

9.2.
A sustainable level of policy dialogue and 
information sharing on the strategies, 
aims and relevant initiatives through the 
dialogues on drugs with international 
partners, both at regional and bilateral level, 
should be ensured. These forms of dialogue 
are a key element of the EU’s approach to 
international cooperation. Partners with 
which to continue or launch dialogues on 
drugs are identified on the basis of their 
relevance in addressing the global drug 
situation and taking into account the EU’s 
overall relations with those partners. These 
dialogues should be complementary to, and 
consistent with, other external cooperation 
structures and their impact and, where 
appropriate, should provide a forum for 
discussing cooperation priorities and 
progress on EU-funded projects.

EN | EU DRUGS STRATEGY 2021-2025 | 33

9.3.
International cooperation in the field 
of drugs should be fostered by further 
involving EU agencies, especially Europol 
and the EMCDDA, within their respective 
mandates, in synergy with the work of 
international actors, and by providing 
them with the relevant resources needed 
to strengthen their role and fulfil their 
obligations in line with the Strategy.

9.4.
Cooperation initiatives and programmes are 
key to further strengthening and supporting 
third countries’ efforts to address drug issues 
in an evidence-based, integrated, balanced 
and multidisciplinary manner and in full 
compliance with international human rights 
obligations. These include programmes 
aimed at addressing challenges in the fields 
of public health, development, safety and 
security. An appropriate level of funding and 
expertise (provided by the EU and its Member 
States), including by reinforcing coordination, 
monitoring and evaluation of financial and 
technical support, should be ensured. 

This should also include support for 
candidate and potential candidate 
countries, and the countries of the European 
Neighbourhood Policy, focusing on capacity-
building on both supply and demand 
reduction and evidence-based, effective 
and balanced drug policies, through 
strengthened cooperation, including the 
sharing of EU best practices. 

9.5.
International cooperation in the field of 
drugs should address the whole range of 
policy aspects of the Strategy, including the 
intertwined security-, development- and 
health-related aspects of the drugs issues.

This should include drug-related crime 
prevention, law enforcement and judicial 
cooperation, as well as addressing possible 
links to terrorism and other forms of 
transnational crime, as defined in the UN 
legal framework. Addressing the production 
of drugs in partner countries, in full 
compliance with international human rights 
obligations, contributes significantly to 
reducing the supply and availability of drugs 
on the domestic EU market. In promoting 
and supporting international judicial and 
law enforcement cooperation, as well as 
cooperation between drug observatories, and 
the capacity-building of relevant authorities, 
measures under this priority should 
continuously seek to address the root causes 
and main drivers of organised crime and 
enhance the resilience of local communities. 

This should also include addressing health-
related aspects of drug use, in particular the 
impact of demand and supply reduction 
interventions on people who use drugs 
and the public. This implies the promotion 
of prevention, treatment, risk and harm 
reduction and alternatives to coercive 
sanctions and social reintegration in line 
with human rights obligations. Furthermore, 
increased access to and availability of 
controlled substances for medical and 
scientific purposes should be promoted.

34 | EU DRUGS STRATEGY 2021-2025 | EN 

9.6.
The cultivation of illicit drugs in third 
countries with possible implications for 
the EU, in particular opium poppies for 
heroin production and coca plants for 
cocaine production as well as cannabis, 
should also be addressed by a renewed 
and strong commitment to alternative 
development measures12: tackling the root 
causes of illicit drug economies through 
an integrated approach combining 
efforts on rural development, poverty 
alleviation, socio-economic development, 
the promotion of access to land and land 
rights, environmental protection and 
climate change, the promotion of the rule 
of law, security and good governance, 
within the framework of the 2030 Agenda 
for Sustainable Development and in full 
compliance with international human rights 
obligations and a commitment to gender 
equality. These development cooperation 
efforts should adhere to the OECD-
Development Assistance Committee’s (DAC) 
guidelines and standards. 

Those measures should also adhere to the 
principles of non-conditionality, non-
discrimination, and proper sequencing, while 
the success of these interventions should be 
measured using socio-economic indicators 
which go beyond an exclusive focus on illicit 
drug crop monitoring indicators, ensuring 
ownership among target communities.

This includes acknowledging development-
centred drug policy interventions as a 
legitimate means of addressing phenomena 
such as drug trafficking and urban drug 
markets in developing countries.

9.7.
The protection and promotion of human 
rights should be fully integrated into, and a 
specific objective of, the EU’s external action 
on drugs issues, including engagement 
at multilateral level, political dialogues 
and the implementation and delivery of 
relevant programmes and projects in the 
field of drugs. This includes upholding the 
principle of an adequate, proportionate and 
effective response to drug-related offences, 
as highlighted in all UN documents on drug 
policy. The EU is strongly and unequivocally 
opposed to the use of the death penalty at 
all times and under all circumstances. Capital 
punishment violates the inalienable right to 
life and is incompatible with human dignity. 
It does not serve as a deterrent to crime and 
makes any miscarriage of justice irreversible. 
The application of the death penalty for 
drug-related offences also violates Article 6 
of the International Covenant on Civil and 
Political Rights13. Human rights are universal, 
inalienable, indivisible, interdependent, and 
interrelated, including in the contexts of 
drug policy, development assistance, health 
care, and criminal justice14.

12.  See the Council conclusions of November 2018 on Alternative Development: “Towards a new 
understanding of Alternative Development and related development-centered drug policy 
interventions - contributing to the implementation of UNGASS 2016 and the UN Sustainable 
Development Goals” (14338/18).

13.  ‘In countries which have not abolished the death penalty, sentence of death may be imposed 

only for the most serious crimes’ which are ‘intentional crimes with lethal or other extremely grave 
consequences’. UN Economic and Social Council (ECOSOC) Resolution 1984/50 of 25 May 1984.

14.  International Guidelines on Human Rights and Drug Policy 

(www.humanrights-drugpolicy.org/site/assets/files/1/hrdp_guidelines_2019_v19.pdf ).

EN | EU DRUGS STRATEGY 2021-2025 | 35

V 
RESEARCH, 
INNOVATION AND 
FORESIGHT 

STRATEGIC PRIORITY 10 

Building synergies to provide the EU and its Member States with 
the comprehensive research evidence base and foresight capacities 

necessary to enable a more effective, innovative and agile 

approach to the growing complexity of the drugs phenomenon, 

and to increase the preparedness of the EU and its Member States 

to respond to future challenges and crises. 

The scope of the cross-cutting field of 
research, innovation and foresight covers 
both the health and security aspects of the 
drugs phenomenon, and recognises that 
they are intrinsically linked. Its objective is 
to contribute to a better understanding of 
all aspects of the drugs phenomenon and 
of what constitute effective interventions, 
so as to provide a sound evidence base for 
necessary policy development and practice. 
It will ensure that maximum value is derived 
from investment in this area by fostering 
synergies and the efficient allocation of 

resources. Furthermore, in recognition of 
the growing dynamism and complexity of 
the drugs phenomenon, it will encourage a 
future-oriented approach that allows new 
trends and developments to be more rapidly 
identified, and evidence-based responses to 
be more rapidly put in place. This requires 
the development of the technological 
capacity necessary to allow the EU and its 
Member States to be better prepared to 
anticipate and respond to new challenges 
or future crises that have the potential to 
impact the drugs situation.

38 | EU DRUGS STRATEGY 2021-2025 | EN 

Priority areas to address

10.1.

Strengthen and broaden research 
capacities and encourage the greater 
sharing and use of results.

10.2.

Foster innovation, so that policy 
and actions shift from a reactive to a 
proactive mode. 

10.3.

Develop strategic foresight and a future-
oriented approach.

10.4.

Strengthen coordination and synergies, 
and support the central role of the 
EMCDDA, Europol and the Reitox 
network of national focal points in 
research, innovation and foresight. 

10.5.

Ensure adequate financing for 
drug-related research, innovation 
and foresight. 

The following priorities have been 
identified

10.1.
It should be a priority to strengthen and 
broaden capacities in information gathering, 
monitoring, evaluations, modelling and 
analysis and to encourage the greater sharing 
and use of the results on the various aspects 
of the drug phenomenon and on responses. 
This should take into account the expertise 
of the scientific community and civil society. 
In this context, it is necessary to ensure 
consistency and coherence with similar 
initiatives at international level as well as 
efficiency and cost-effectiveness, and to avoid 
any unnecessary additional administrative 
burden, in particular related to data collection 
by the EMCDDA and UNODC. 

10.2.
It is important to strengthen the capacity to 
respond proactively rather than reactively 
to new challenges and emerging threats 
by innovation and the development and 
use of new methods and technologies and 
opportunities for interventions arising from 
digitalisation. In particular, efforts should 
be intensified to develop, adopt and use 
early warning approaches, and forensic and 
new technologies, to better monitor, model, 
analyse and respond to new challenges 
and emerging threats to public health and 
security. There is a need for an improved and 
coordinated monitoring and analysis of the 
threats posed by digitalisation, in particular 
the accessibility of illicit drugs via social 
media platforms, apps, internet/darknet 
market places, as well as the use of online 
payments (including cryptocurrencies) and 
encrypted digital communication.  

EN | EU DRUGS STRATEGY 2021-2025 | 39

should lead at European level scientific risk 
assessments and strategic and operational 
threat assessments to inform and stimulate 
research, innovation and foresight on both 
controlled illicit drugs and NPS.

10.5.
The EU and its Member States should 
ensure adequate financing for drug-related 
research, innovation and foresight in line 
with the implementation of the Strategy. 
This should include the use of the Internal 
Security Fund, the EU4Health programme, 
the security research part of Horizon Europe, 
Cohesion Policy Funds, the Digital Europe 
programme and the Rights and Values 
programme, in line with the requirements of 
the Strategy and the Action Plan to deliver 
clear EU added value, ensuring coherence 
and synergies while avoiding duplication.  

10.3.
There is a need to develop strategic foresight 
and a future-oriented approach to increase 
preparedness to identify and respond to 
potential future challenges, helping to create 
institutional resilience and fostering more agile 
responses. This should include research to 
better understand the links between the drugs 
phenomenon and other important policy 
issues such as violence, health and societal 
problems, and environmental damage.

10.4.
Research, innovation and foresight should 
result from the coordinated efforts of the 
various stakeholders at EU and national 
level, thus entailing synergies and 
complementarity to ensure that investment 
in research delivers maximum value. 
The Member States should increase and 
coordinate their efforts in data collection, 
monitoring, modelling and analysis, research, 
innovation and foresight on all relevant 
aspects of the drug phenomenon, including 
by further supporting the existing data 
collection and interface role of the Reitox 
network of national focal points. Within their 
respective mandates, the EMCDDA, Europol 
and the Reitox network of national focal 
points should have the means, including 
financial resources, to play their central 
supporting role in early warning, threat and 
risk assessment, research, innovation and 
foresight, in order to provide timely and 
sound evidence for policy makers and to 
support Member States in building their 
national policy and actions on evidence-
based information. Based on the early signals 
identified, modelling and the analysis of 
current data and information, competent 
agencies, especially the EMCDDA and 
Europol within their respective mandates, 

40 | EU DRUGS STRATEGY 2021-2025 | EN 

EN | EU DRUGS STRATEGY 2021-2025 | 41

VI 
COORDINATION, 
GOVERNANCE AND 
IMPLEMENTATION 

STRATEGIC PRIORITY 11 

Ensuring optimal implementation of the Strategy and of the Action 
Plan, coordination by default of all stakeholders and the provision 

of adequate resources at EU and national levels. 
1 
On the basis of the Strategy the EU Action Plan 
on Drugs 2021 - 2025 (hereinafter referred to 
as ‘the Action Plan’) will provide a list of actions, 
including on the basis of the following criteria.

cooperate together. In addition, the HDG 
should hold discussions or exchanges of best 
practices which could provide support to the 
Member States in their implementation of the 
Strategy and of the Action Plan. Continuity 
should be ensured between the successive 
Presidencies in this regard.

3 
The Commission, taking into account 
information provided by the Member States 
and the EEAS, and available from the EMCDDA, 
Europol, other relevant EU institutions and 
bodies and civil society, is requested to 
initiate an overall external evaluation of the 
implementation of the Strategy and of the 
Action Plan. The results of this evaluation will be 
made available to the European Parliament and 
to the Council as soon as they are available, and 
at the latest by 31 March 2025, in order to be 
discussed in the relevant fora and in particular in 
the HDG. These discussions will form the basis 
for the definition of the future development of 
EU drug policy and the following cycle of the EU 
Drugs Strategy to be approved by the Council.

4 
Appropriate and targeted resources should 
be allocated for the implementation of 
the objectives of this Strategy at both 
EU and national level. The allocation of 
resources should be directed proportionally 
towards those strategic priorities, areas and 
interventions that are most likely to achieve 
the aims of the Strategy and Action Plan at EU, 

Actions

•  must be evidence-based, scientifically 

sound and aim for realistic and measurable 
results that can be evaluated;

•  will be time-bound and will identify 
the parties responsible for their 
implementation;

•  must have a clear EU relevance and added 

value.

2 
The implementation of the Strategy and of 
the Action Plan should facilitate synergies and 
consistency between policies on drugs at EU 
and national level. The Commission, taking 
into account information provided by the 
Member States and the EEAS, and available 
from the EMCDDA, Europol and other EU 
bodies, as well as from civil society, should 
monitor the implementation of the Strategy 
and the Action Plan. Close cooperation and 
coordination is essential in this area, given the 
intertwined competences at EU and national 
level. In order to facilitate coordination 
and allow any necessary policy follow-up, 
including monitoring, the Commission, the 
Presidency and the Horizontal Working Party 
on Drugs (HDG), as the Council preparatory 
body in charge of drug policy, will closely 

44 | EU DRUGS STRATEGY 2021-2025 | EN 

national and local levels. Funding in support 
of the priorities set in the Strategy should 
be allocated from cross-sectoral EU funding 
sources, including notably the Internal Security 
Fund, the EU4Health programme, the security 
research part of Horizon Europe, Cohesion 
Policy Funds, the Digital Europe programme 
and the Rights and Values programme.

5 
Following the evaluation of the EMCDDA, the 
Commission is invited to present a proposal 
to revise the mandate of the EMCDDA as soon 
as possible, to ensure that the agency plays 
a stronger part in addressing the current and 
future challenges of the drug phenomenon. 
Furthermore, the EMCDDA and Europol will 
need to be provided with the relevant resources 
to enable them to fulfil their roles in line with 
their respective mandates and the Strategy, 
including to support Member States’ drug-
related actions.

6 
Coordination plays a crucial role in the efficiency 
of EU drug policy and of its implementation, 
especially given the cross-cutting nature of this 
field. To achieve the objectives of the Strategy, 
there should be coordination with agencies, 
bodies or organisations that have relevance 
for the drugs field, within their respective 
mandates: both within the EU - in particular 
the EMCDDA and Europol - and outside the 
EU, such as UNODC, WCO, WHO and the 
Pompidou Group. The EU institutions and the 
High Representative, each within the scope of 
their respective powers, should seek to ensure 
that the EU’s activities in the field of illicit drugs 
are coordinated and that they complement 
each other. Where relevant, the EU should also 
promote coordination among external actors, 
including in the UN context.

7 
In the Council of the EU, the HDG, as the main 
coordinating body on drug policy, should be 
kept informed of possible work linked to drugs 
issues, carried out by other preparatory bodies 
of the Council, such as the Standing Committee 
on Operational Cooperation on Internal Security 
(COSI) and the Working Party on Public Health, 
as well as other relevant Council preparatory 
bodies, including in the area of customs, judicial 
and criminal matters, law enforcement, social 
affairs, agriculture and external relations.

8 
Coordination and synergies should be sought 
between the drug policy and the other policies, 
including in the security and health areas. 
Coordination should involve the relevant 
stakeholders in the various areas, including 
law enforcement, customs including customs 
laboratories, border control, the judiciary, 
prisons and correctional facilities, civil aviation 
and maritime authorities, medicines agencies, 
postal services, stakeholders involved in research, 
innovation and monitoring, including the Reitox 
network of national focal points, social and 
drug treatment services, including healthcare 
professionals, education and prevention sectors.

9 
Externally, the EU and its Member States should 
promote the approach and objectives of the 
Strategy with one voice. EU delegations should 
play a useful role in promoting this and in 
facilitating a coherent EU discourse on drug policy. 

10 
The meaningful participation and involvement 
of civil society, including the Civil Society Forum 
on Drugs, should be ensured in the development 
and implementation of drug policies, at national, 
EU and international levels.

EN | EU DRUGS STRATEGY 2021-2025 | 45

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•  page 6-7: © 123rf, lightwise - © Shutterstock, FabrikaSimf
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•  page 42-43: © 123rf, Edhar Yuralaits

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