COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on the EU roadmap to fight drug trafficking and organised crime
Date: 2023-10-18
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU police cooperation, EU strategy, common ports policy, drug traffic, fight against crime, illicit trade, international cooperation, judicial cooperation, organised crime, police cooperation

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 18.10.2023  COM(2023) 641 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on the EU roadmap to fight drug trafficking and organised crime  
 
 
1.  INTRODUCTION 

The  drugs  trade  orchestrated  by  organised  crime  is  one  of  the  most  serious  security  threats 
facing  Europe  today,  and  the  situation  is  escalating:  this  is  clearly  demonstrated  by  the 
unprecedented  increase  of  illicit  drugs  available  in  Europe,  in  particular  cocaine  from  South 
America. In August 2023, it took only 2 weeks for the record of 8 tonnes of cocaine seized in 
Rotterdam (The Netherlands) to be broken by the seizure of 9.5 tonnes of the drug in the port of 
Algeciras  (Spain).  There  is  also  a  growing  concern  over  the  production  and  proliferation  of 
synthetic drugs in Europe, which are trafficked globally. A joint analysis made by Europol and 
the European Monitoring Centre for Drugs and Drug  Addiction (EMCDDA) demonstrated that 
drug trafficking is one of the main profit-generating activities of organised crime, estimated 
to represent around one fifth of global crime proceeds1. 

In  their  efforts  to  make  large  profits,  criminal  networks  use  extreme  violence,  corruption  and 
intimidation2.  They  are  also  highly  capable  to  make  connections  and  conceal  their  plans,  as 
shown by the dismantling of encrypted communication tools such as EncroChat, which has led to 
at  least  6 558  arrests  worldwide3.  Economic  and  financial  crimes  are  key  in  supporting  all 
criminal activities, and corruption is instrumental to criminal networks. According to Europol’s 
estimates, 60% of criminal networks operating in the EU use corruptive methods to achieve their 
illicit objectives. Approximately EUR 4.1 billion of criminal assets were seized on average per 
year in 2020 and 2021 in EU Member States. This represents a substantial increase compared to 
earlier  years,  but  it  still  remains  less  than  2%  of  the  estimated  yearly  proceeds  of  organised 
crime4. This vast revenue obtained through illicit activities are used for other criminal activities 
and  laundered  by  professional  money  laundering  syndicates.  The  revenue  is  then  invested  to 
infiltrate the legal economy, which has far-reaching and destabilising consequences for society, 
the rule of law and trust in public authorities.  

As  a  highly  visible  consequence  of  this  threat,  criminals’  global  reach  and  iron  grip  on  drug 
trafficking supply chains have led to a wave of violence in the streets. The many victims are not 
only among rival gangs themselves, but also among innocent people. In 2023, this has included 
an  11-year-old  girl  in  Antwerp  (Belgium)  in  January,  a  10-year-old  boy  in  August  in  Nîmes 
(France)  and  of  a  13-year-old  boy  in  September  in  Stockholm  (Sweden),  who  all  died  as  a 
consequence  of  drug-related  violence.  Moreover,  it  is  estimated  6 200  people  in  the  EU  died 
from a drug overdose in 20215. 

The size of the threat and its worldwide reach calls for strong and sustainable action at EU and 
global levels. Therefore, the Commission proposes an EU roadmap to fight drug trafficking and 
organised  crime.  The  roadmap  sets  out  17  actions  in  four  priority  areas:  to  strengthen  the 

1 https://www.emcdda.europa.eu/publications/eu-drug-markets_en 
2 https://www.europol.europa.eu/publications-events/main-reports/socta-report 
3https://www.europol.europa.eu/media-press/newsroom/news/dismantling-encrypted-criminal-encrochat-
communications-leads-to-over-6-500-arrests-and-close-to-eur-900-million-seized 
4 The Other Side of the Coin: An Analysis of Financial and Economic Crime | Europol (europa.eu)  
5  European  Drug  Report  2023,  EMCDDA,  https://www.emcdda.europa.eu/publications/european-drug-
report/2023/drug-induced-deaths_en  

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resilience  of  logistic  hubs  with  a  European  Ports  Alliance,  to  dismantle  criminal  networks,  to 
increase  prevention  efforts  and  to  strengthen  cooperation  with  international  partners.  These 
actions are to be implemented in 2024 and 2025. 

2.  EU STRATEGY AND RESPONSE 

The  EU  strategy  to  tackle  organised  crime  for  2021-20256  and  the  EU  drugs  strategy  and 
action  plan  for  2021-20257  (‘the  EU  strategies’)  set  out  holistic  EU  policies  to  tackle  these 
threats based on joint action by the EU and Member States. 

The EU is currently implementing these strategies and will continue to work towards achieving 
their objectives as highlighted in the Sixth Progress Report on the EU Security Union Strategy8. 
The  EU  strategy  to  tackle  organised  crime  is  contributing  to  intensifying  the  EU’s  collective 
efforts  in  the  fight  against  criminal  networks.  At  the  same  time,  with  the  drugs  strategy  and 
action plan, the EU has set out the work for a balanced and multidisciplinary approach that aims 
to reduce drug supplies by improving security, reducing drug demand with prevention, treatment 
and  care  services  and  addressing  drug-related  harm.  As  set  out  in  the  strategy,  in  2024,  the 
Commission will launch an external evaluation on implementation of the drugs strategy with the 
aim of presenting the report to the European Parliament and the Council in spring 2025.  

In terms of policy initiatives, the Commission has put forward several legislative proposals to 
bolster EU legislation to fight criminal networks. This includes strengthening the Asset Recovery 
and  Confiscation  Directive9,  the  amendment  of  Directive  2019/1153  which  allows  competent 
authorities access centralised bank account registries, which facilitates financial investigations10, 
and a package to strengthen the EU’s anti-money laundering rules11. The Commission has also 
adopted  a  proposal  to  reform  the  EU  Customs  Union12.  This  will  significantly  strengthen  the 
capacity  of  customs  to  stop  unsafe  or  illegal  goods  from  entering  the  EU  and  substantially 
improve  cooperation  between  customs  and  law  enforcement  authorities.  Furthermore,  the 
Commission proposed to strengthen the EU rules on combating corruption in May 202313.  

Law  enforcement  capabilities  have  been  stepped  up  with  the  strengthening  of  Europol’s 
mandate14,  the  proposal  for  a  Police  Cooperation  Code,  which  led  to  recommendations  on 

6 COM/2021/170 final. 
7 COM/2020/ 606 final. 
8 COM/2023/ [exact reference to be included once available]. 
9 COM/2022/245 final. 
10 COM/2021/429 final. 
11 COM/2021/421 final, COM/2021/420 final, COM/2021/423 final and Regulation (EU) 2015/847 of the European 
Parliament  and  of  the  Council  of  20 May  2015  on  information  accompanying  transfers  of  funds  and  repealing 
Regulation (EC) No 1781/2006 (Text with EEA relevance) (OJ L 141, 5.6.2015, p. 1). 
12 COM/2023/257 final. 
13 COM/2023/234 final. 
14 Regulation (EU) 2016/794 of the European Parliament and of the Council of 11 May 2016 on the European Union 
Agency for Law Enforcement Cooperation (Europol) and replacing and repealing Council Decisions 2009/371/JHA, 
2009/934/JHA, 2009/935/JHA, 2009/936/JHA and 2009/968/JHA (OJ L 135 24.5.2016). 

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operational  police  cooperation15,  and  the  adoption  of  the  Directive  on  the  exchange  of 
information  between  law  enforcement  authorities16.  The  proposed  revision  of  the  Prüm 
Regulation will further contribute to these efforts17. 

In  recent  years,  the  EU’s  judicial  response  has  also  been  improved:  the  European  Public 
Prosecutor’s  Office  (EPPO)18  was  founded  as  an  independent  public  prosecution  office, 
responsible  for  investigating,  prosecuting,  and  bringing  to  justice  crimes  against  the  financial 
interests  of  the  EU.  The  EPPO  is  also  competent  for  offences  regarding  participation  in  a 
criminal organisation, if the focus of the criminal activity of such an organisation is to commit 
criminal  offences  affecting  the  Union’s  financial  interests.  In  addition,  to  make  it  easier  and 
faster for police and judicial authorities to  access the information  they need, the EU adopted  a 
package on cross-border access to electronic evidence19. 

To  support  the  EU’s  collective  response  to  drugs,  the  EMCDDA’s  mandate  has  been 
strengthened.  This  aims,  in  particular,  to  improve  its  threat  assessment  and  early  warning 
capacity and to extend its scope to polydrug use, drug markets and supply, and drug precursors. 
The EMCDDA will become the new EU Drugs Agency and will become operational on 2 July 
202420. The new Agency will carry out health and security threat assessments on synthetic drugs. 
The Agency will also closely monitor synthetic drug developments in the EU and feed this into 
developing countermeasures. The development of a European drug alert system to quickly let 
national  authorities  and  (potential)  drug  users  know  when  new  dangerous  substances  enter  the 
market will also be an important step. Lastly, the new mandate provides for the Agency to look 
into  drug  precursors  and  to  set  up  a  network  of  forensic  and  toxicological  laboratories  to 
identify new substances and possible trends. 

At operational level, the EU has strengthened its support for Member States’ law enforcement 
authorities.  The  European  Multidisciplinary  Platform  Against  Crime  Threats  (EMPACT), 
the  Member-State  driven,  operational  approach  to  EU  internal  security,  is  now  a  permanent 
instrument  with  increased  funding.  Cooperation  with  international  partners  will  continue  in 
EMPACT with the support of the Commission. The Operational Network Against Mafia-Style 
Organised  Criminal  Groups  supports  complex  investigations  against  high-risk  criminal 

15 COM/2021/780 final. 
16  Directive  (EU)  2023/977  of  the  European  Parliament  and  of  the  Council  of  10 May  2023  on  the  exchange  of 
information between the law enforcement authorities of Member States and repealing Council Framework Decision 
2006/960/JHA (OJ L 134, 22.5.2023). 
17 COM/2021/784 final. 
18  Council  Regulation  (EU)  2017/1939  of  12 October  2017  implementing  enhanced  cooperation  on  the 
establishment of the European Public Prosecutor’s Office (‘the EPPO’) (OJ L 283, 31.10.2017, p. 1). 
19  Regulation  (EU)  2023/1543  of  the  European  Parliament  and  of  the  Council  of  12 July  2023  on  European 
Production  Orders  and  European  Preservation  Orders  for  electronic  evidence  in  criminal  proceedings  and  for  the 
execution of custodial sentences following criminal proceedings (OJ L 191, 28.7.2023, p. 118) and 
Directive (EU) 2023/1544 of the European Parliament and of the Council of 12 July 2023 laying down harmonised 
rules on the designation of designated establishments and the appointment of legal representatives for the purpose of 
gathering electronic evidence in criminal proceedings (OJ L 191, 28.7.2023, p. 181). 
20  Regulation  (EU)  2023/1322  of  the  European  Parliament  and  of  the  Council  of  27 June  2023  on  the  European 
Union Drugs Agency (EUDA) and repealing Regulation (EC) No 1920/2006 (OJ L 166, 30.6.2023). 

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networks21.  Already  in  2022,  this  led  to  excellent  operational  results:  121  arrests  and  EUR  12 
million  of  cash  seized.  42  criminal  networks  were  identified,  and  more  than  50  high  level 
criminals  have  been  investigated  and  prosecuted  with  the  support  of  Europol  and  Eurojust. 
Currently  driven  by  Belgium  in  2022-2023  and  by  Italy  from  2024-2025,  the  Commission 
supports  the  objectives  and  innovative  approach  of  this  new  priority  and  invites  all  Member 
States  and  international  partners  to  take  part.  Furthermore,  the  dismantling  of  the  encrypted 
communication networks, EncroChat, SkyECC and AN0M, supported by Europol, led to many 
arrests and seizures. In particular, it gave valuable insights into criminal networks’ activities and 
their  methods.  Europol  has  supported  many  other  successful  investigations  conducted  by 
Member States, such as Operation Desert Light in November 202222, in which a ‘super cartel’ 
of cocaine traffickers was taken down.  

The  success  of  the  Maritime  Analysis  and  Operations  Centre  –  Narcotics  (MAOC  (N))  in 
supporting maritime interdictions has so far led to the seizure of 327,653 tonnes of cocaine and 
667,344 tonnes of cannabis23. Moreover, Belgium and Germany have initiated the process to join 
MAOC  (N).  The  revised  EU  Maritime  Security  Strategy24  and  its  Action  Plan  confirm  the 
commitment  for  joint  operations  in  departure  countries  and  EU  ports,  involving  MAOC-N, 
relevant Member States’ authorities, and European Commission Services/Agencies. 

As  organised  crime  is  almost  always  transnational,  the  EU  is  increasing  its  partnerships  with 
third  countries,  notably  with  those  on  key  drug  supply  routes.  This  includes  enhanced 
cooperation  with  Latin  America  and  the  Caribbean,  with  the  New  Agenda  for  relations 
between the EU and Latin America and the Caribbean25, the Declaration of the EU-Community 
of Latin American and Caribbean States (CELAC) Summit of 17-18 July 202326 and cooperation 
between  the  EU  and  the  Latin  American  Committee  on  Internal  Security  (CLASI),  which 
confirms the commitment to step up efforts in the areas of justice, security and the fight against 
transnational  criminal  networks.  The  regional  technical  assistance  programmes,  such  as  EL 
PAcCTO, EUROFRONT and COPOLAD III as well as the Global Illicit Flows Programme, 
have  proven  to  be  effective  instruments  in  boosting  national  and  regional  capabilities  to  fight 
organised crime.  

In West Africa, cooperation focuses on building up the capacity of state institutions and regional 
organizations  to  tackle  drug  trafficking  at  sea.  Since  2018,  the  EU  has  put  in  place  a  set  of 
complementary regional programmes aimed at supporting ECOWAS countries’ efforts to combat 
transnational organised crime and illicit trafficking, cybercrime as well as money laundering and 
the financing of terrorism27. In the Horn of Africa, the EU Naval Force Operation ATALANTA 

21 Funded through the Internal Security Fund, EUR 2 million for 2024-2025. 
22https://www.europol.europa.eu/media-press/newsroom/news/heat-rising-european-super-cartel-taken-down-in-six-
countries  
23 Statistics – MAOC (N). 
24 The revised EUMSS has been sent to the Council for its endorsement 
25 JOIN 2023/17 final 
26 https://data.consilium.europa.eu/doc/document/ST-12000-2023-INIT/en/pdf 
27  The  West-African  Response  on  Cybersecurity  and  Fight  against  Cybercrime  (OCWAR-C),  the  West-African 
response to the fight against Money Laundering and the financing of Terrorism (OCWAR-M) and the West-African 
response to Trafficking (OCWAR-T). 

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contributes  to  the  disruption  of  drug  trafficking  and  weapons  trafficking,  as  well  as  to  the 
deterrence, prevention and repression of acts of piracy and armed robbery off the Somali coast. 
The  EU  is  also  firmly  committed  to  address  illegal  money  flows  through  a  dedicated  Team 
Europe Initiative on Illicit Financial Flows for Sub-Sahara Africa.  

North Africa and the Middle East are a major source, transit and destination of illicit drugs and 
the illicit drug business is growing. Programmes funded by the EU such as the EU4Monitoring 
Drugs  have  analysed  the  emergence  of  new  drug  trafficking  routes,  the  expansions  of  online 
markets and the availability of a broader spectrum of substances.   

Furthermore, in Central Asia, the EU has designed two important regional security programmes 
to deliver on its strategy helping Central Asian partners to tackle some of the risks associated to 
drugs  crime,  including  those  emanating  from  Afghanistan.  The  Central  Asia  Drug  Action 
Programme  (CADAP)  contributes  to  the  reduction  of  drug  use  and  supports  Central  Asian 
Governments’  drug  policies,  and  more  specifically  to  improve  access  to  quality  drug  demand 
reduction  interventions.  The  Border  Management  Programme  in  Central  Asia  (BOMCA), 
fosters  sustainable  economic  development  through  integrated  border  management,  focusing  on 
capacity  building  and 
improving  border 
trade, 
management systems, and eliminating illicit trafficking across Central Asia.  

institutional  development, 

facilitating 

The EU cooperation with the Western Balkans remains a priority. The increased participation 
of our Western Balkan partners in international police operations, their closer cooperation with 
Europol  via  the  posting  of  liaison  officers  to  Europol  headquarters,  their  involvement  in 
EMPACT  and  participation  in  Joint  Investigation  Teams  have  brought  significant  operational 
results.  EU  financial  and  technical  support  will  continue  to  be  provided.  It  is  crucial  that  all 
Western  Balkan  partners  establish  functioning  Early  Warning  Systems  and  National  Drugs 
Observatories  to  improve  their  exchange  of  data  with  the  EMCDDA  and  conclude  Working 
Arrangements with the EU Agency.   

Lastly, Six Member States (Belgium, Germany, France,  Italy, Spain and the Netherlands) have 
set up a Coalition against Serious and Organised Crime, to which the Commission, Europol 
and Eurojust participate. The Coalition has put forward several important operational actions of 
common  interest,  which  are  broadly  in  line  with  the  EU  strategies  and  involve  EU  agencies, 
bodies  and  frameworks,  such  as  EMPACT.  Actions  focus,  in  particular,  on  identifying 
operational  needs,  strengthening  the  security  of  logistic  hubs  and  maritime  security,  disrupting 
criminal  money  flows,  empowering  law  enforcement  with  technology  and  innovation,  and 
strengthening  international  cooperation.  The  Commission  recognises  the  efforts  made  by  the 
Coalition and is setting out this roadmap to take this work to the next level and demonstrate an 
EU commitment to intensifying efforts. 

3.  PRIORITY ACTIONS 

Criminals are quick to adapt to new opportunities to make a profit. They are also very capable of 
taking  advantage  of  societies’  increased  interconnectedness  and  technological  advancements. 
Against this constantly changing phenomenon, it is essential to bring together the efforts of the 

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Commission,  High Representative, the European Parliament,  the Council  and EU  agencies and 
bodies  around  a  set  of  priority  actions.  To  be  delivered,  the  measures  need  to  be  implemented 
through  effective  cooperation  across  the  EU,  engagement  with  our  strategic  international 
partners, and determined political commitment from everyone involved. 

This Roadmap focuses on four priority areas for increased action.  

First,  criminals  use  logistic  hubs  in  the  EU  and  non-EU  countries  to  carry  out  their  illegal 
activities and target vulnerable people to carry out criminal activities. The EU therefore needs to 
strengthen the resilience of logistic hubs from being exploited by criminals. This must be done 
in close cooperation with each other as criminals are constantly looking for the weakest link.  

Second,  criminal  networks  are  dynamic  and  increasingly  use  specialised  criminal  service 
providers,  bringing  more  players  into  the  fold.  Individual  arrests  are  much  needed  but  not 
sufficient:  it  is  vital  to  increase  law  enforcement  and  judicial  authorities’  capabilities  to 
dismantle criminal networks, disrupt their business models and confiscate their profits.  

A strong  focus  on  prevention is  also  necessary: to  prevent  people and businesses from  being 
exploited by criminal  networks, we need to  tackle the  root causes  of organised crime  and take 
action  against criminal  activities as a  permanent  solution. This  requires  not  only  efforts of law 
enforcement authorities, but also of municipalities and local communities.  

Lastly,  organised  crime  has  always  been  a  global  phenomenon,  but  recent  technological 
developments have further enabled criminals to operate globally and run their illicit businesses 
from outside the EU. International cooperation is therefore essential to disrupt criminal supply 
routes and support improvements in both law enforcement and judicial cooperation. 

3.1.The European Ports Alliance: strengthening the resilience of logistic hubs 

Logistic  hubs  are  crucial  gateways  to  enable  EU  economic  prosperity,  the  transport  of  goods 
across the EU and the proper functioning of the single market. Ports contribute to around 75% of 
EU  external  trade  volumes  and  31%  of  EU  internal  trade  volumes.  Every  year,  400  million 
passengers embark and disembark in EU ports28. However, the strategic role played by logistic 
hubs  makes  them  vulnerable  to  drug  smuggling  and  exploitation  by  high-risk  criminal 
networks and their enablers, as recognised in the EU drugs strategy and action plan. 

As highlighted in the joint report prepared by Europol and the Security Steering Committee 
of the ports of Antwerp, Hamburg/Bremerhaven and Rotterdam on criminal networks in EU 
ports29,  there  are  many  opportunities  for  criminal  infiltration  and  using  these  ports  for  illicit 

28 European Commission, Directorate-General for Mobility and Transport, Assessment of potential of maritime and 
inland  ports  and  inland  waterways  and  of  related  policy  measures,  including  industrial  policy  measures  –  Final 
report, Publications Office, 2020, https://data.europa.eu/doi/10.2832/03796 
29https://www.europol.europa.eu/cms/sites/default/files/documents/Europol_Joint-
report_Criminal%20networks%20in%20EU%20ports_Public_version.pdf 

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shipments.  Criminals  use  a  variety  of  methods  to  transport  drugs  via  maritime  shipping 
containers. These methods include switching to containers that are checked less frequently, using 
stolen container reference codes (PIN fraud), cloning container registration numbers, and using 
extraction  teams  who  wait  for  opportune  moments  to  retrieve  a  shipment.  Crucially,  these 
common methods rely on corruption to be successful as criminal networks use port insiders to 
organise the transport of containers containing drugs and illicit goods into the EU30. 

Criminal networks  are quick to  adapt  their supply routes to  less protected or smaller harbours. 
Strengthening  the  security  of  logistic  hubs  therefore  calls  for  a  common  EU  approach  where 
those  involved  work  together  in  a  coordinated  way.  Effective  action  to  protect  the  ports  starts 
with  a  clear  assessment  of  current  gaps  and  weaknesses.  The  Commission  therefore  has 
started a  Schengen Thematic Evaluation on drug trafficking in ports. This will result in  an 
evaluation  report  with  best  practices  in  2023  and  a  proposal  for  Council  recommendations  in 
early 2024.  

In  addition,  countering  drug  trafficking  –  including  the  downstream  disruption  of  drug 
trafficking after arrival in the ports – will be part of two studies the Commission has launched 
in 2023 on maritime data and on the law enforcement needs on rail and road transport, the 
results of which will be expected in 2024.  

To  implement  these  and  other  findings  and  best  practices,  the  Commission  proposes  to 
strengthen the resilience of the ports through a European Ports Alliance. This will require the 
mobilisation  of  the  customs  community  as  the  first  line  of  defence  against  illegal  trade,  better 
law  enforcement  cooperation  to  dismantle  the  criminal  networks  behind  drug  trafficking  and 
setting  up  a public-private partnership to  combine  efforts to  tackle drug trafficking and protect 
logistic,  information  technology,  human  resources,  and  operational  processes  against  criminal 
infiltration.  

Action 1: Mobilising the customs community against drug trafficking 
Main  actors:  Commission,  European  Anti-Fraud  Office,  Member  States  (in  particular  customs 
authorities) 

Member  State  customs  authorities  are  the  first  line  of  defence  at  the  EU’s  external  borders  to 
protect  the  EU  from  illegal  trade,  ensure  the  security  of  its  citizens  and  protect  its  financial 
interests31.  In  this  context,  where  nearly  70%  of  all  drugs  seizures  by  customs  authorities 
occur at EU ports, it is essential to strengthen effective collaboration and cooperation between 
customs authorities,  who must  act  as one, and  other stakeholders,  especially police authorities. 
To defend the EU’s borders, customs should continue using the available risk management and 
controls policies and tools effectively. 

30 Ibid. 
31  Council  Resolution  on  customs  cooperation  in  the  area  of  law  enforcement  and  its  contribution  to  the  internal 
security of the EU. 

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Therefore, through the European Ports Alliance, and financed under the Customs programme32, 
the Commission will set up a framework which facilitates the effective risk management and 
customs  controls  linked  to  illicit  drugs  and  drug  precursors  smuggling  to  ensure  the 
cooperation of  customs authorities, together with  the Commission.  As a first  step, a  dedicated 
project  group  will  be  put  in  place,  involving  representatives  from  Member  State  customs 
authorities  at  management  and  expert  level.  The  project  group  will  map  the  situation  on  the 
ground,  work  towards  a  common  understanding  and  coordinated  approach,  identify  gaps  and 
weaknesses  in  customs  supervision,  draw  up  a  threat  and  risk  assessment,  set  out  common 
targeting criteria and share best practices. 

This will prepare the ground for even more coordinated and efficient customs controls by setting 
out  common  risk  criteria  and  priority  customs  controls  at  EU  level.  The  Commission  will 
propose  these  for  implementation  to  Member  States,  combining  EU  and  national  risk 
management  tools.  These  priority  controls  will  improve  real-time  analysis,  collaboration  and 
cooperation between Member States and provide solutions to cover blind spots in the ports and 
supply  chain.  The  controls  will  also  test  an  approach  for  structured  information  exchange 
(interoperability or a systematic data exchange framework) to support the fight against drugs and 
precursor trafficking. 

As a continuation of this action and as of mid-2024, the Commission will set up a new expert 
team  under  the  Customs  Programme.  This  team  will  benefit  from  a  dedicated  budget  and 
resources  and  build  on  the  methodology  and  success  of  one  of  its  most  productive  and 
operational expert teams33. The evolution of the project group to this new expert team will ensure 
that coordinated customs action is more flexible, both thematically and geographically. It will be 
based  on  improved  operational  cooperation,  not  only  in  ports,  but  also  at  other  borders  (land, 
air).  This  is  because  an  effective  approach  against  drug  trafficking  requires  the  deployment  of 
coordinated EU action covering all modes of transport. This approach would also contribute to 
more  efficient  operational  cooperation  with  third  countries  and  other  law  enforcement 
authorities. 

Furthermore,  as  from  2024,  the  Commission  will  use  the  Customs  Control  Equipment 
Instrument  (CCEI)  programme34  to  support  this  EU  priority  by  allocating  more  than 
EUR 200  million  to  fund  state-of-the-art  equipment  that  can  help  customs  authorities  scan 

32  Regulation  (EU)  2021/444  of  the  European  Parliament  and  of  the  Council  of  11 March  2021  establishing  the 
Customs programme for cooperation in the field of customs (OJ L 87, 15.3.2021). 
33  CELBET  (Customs  Eastern  and  South-Eastern  Land  Borders  Expert  Team)  is  a  Member  States`  expert  team 
gathering the 11 eastern and south-eastern land borders Member States (BG, FI, EE, EL, HR, HU, LT, LV, PL, SK, 
RO),  and  financed  under  the  Customs  programme.  It  has  been  particularly  effective  in  delivering  operational 
solutions  on  the  ground,  has  proven  experience  in  collaborating  with  other  law  enforcement  authorities  and 
ultimately ensures that customs controls are performed in a harmonised way at the land border of the EU. 
34 Regulation (EU) 2021/1077 of the European Parliament and of the Council of 24 June 2021 establishing, as part 
of the Integrated Border Management Fund, the instrument for financial support for customs control equipment  (OJ 
L 234, 2.7.2021). 

8 

 
 
 
 
 
 
 
containers  and  other  means  of  transport,  thereby  increasing  the  effectiveness  of  customs  risk 
management and controls related to illicit drugs and drug precursors. This includes support for 
the  customs  laboratories  that  will  also  be  given  equipment  to  analyse  drugs  and  address  the 
increasing challenges of designer precursors. 

Action 2: Strengthening law enforcement operations in ports 
Main  actors:  Member  States,  Commission,  European  Anti-Fraud  Office,  Europol,  Eurojust, 
EPPO 

A successful approach to drug trafficking does not stop at logistic hubs or any other part of the 
drug  supply  chain.  As  the  EU  collectively  increases  its  effectiveness  in  the  early  detection  of 
illicit  drugs,  it  is  vital  to  ensure  that  drug  trafficking  is  thoroughly  investigated  and 
prosecuted  to  show  that  this  crime  does  not  pay.  This  can  be  done  by  going  after  the 
perpetrators  and  the  networks  of  which  they  are  part.  Coordinated  law  enforcement  is  vital  to 
investigate  the  criminal  networks  behind  the  seizures.  In  some  cases,  for  example,  police 
authorities  could  opt  to  monitor  containers  for  surveillance  purposes  in  coordination  with 
customs,  rather  than  seizing  the  content  immediately.  Another  possibility  is  to  launch  digital 
investigations to detect possible abuses of software control systems used in ports. Moreover, law 
enforcement authorities could investigate corruption allegations, including by acting as a point of 
contact for whistle-blowers. 

The  Commission  will  continue  to  support  EMPACT  and  its  operations  as  the  platform  for  a 
holistic approach to drug trafficking. The Commission will also keep promoting cooperation in 
EMPACT as one of the major catalysts in developing the European Ports Alliance. 

In  EMPACT,  there  are  two  operational  priorities  where  police  and  customs  work  together  to 
fight  drug  trafficking:  cannabis,  cocaine  and  heroin  (CCH)  and  synthetic  drugs  and  new 
psychoactive substances (SYN-NPS). Here, law enforcement authorities continue to investigate 
and share intelligence on drug production and detection, trafficking routes, and drug trafficking 
networks’  methods  which  can  be  operationalised  into  targeting  criteria  and  risk  profiles. 
Measures  include  a  more  structured  and  systematic  sharing  of  the  relevant  risk  information, 
strengthening  the  strategic  and  tactical  intelligence  picture  of  the  abuse  of  legal  business 
structures,  detecting  and  dismantling  clandestine  laboratories  involved  in  the  production  and 
export  of  synthetic  drugs  and  new  psychoactive  substances,  and  implementing  specific  cross-
border operations targeting the movements of cocaine, cannabis, heroin, synthetic drugs and new 
psychoactive  substances.  Given  the  global  nature  of  drug  trafficking,  the  Commission 
coordinates,  encourages  and  supports  international  participation  around  these  two  priorities. 
Currently,  18  non-EU  countries  are  active  in  CCH  and  13  in  SYN-NPS.  In  2024-2025,  the 
Commission will boost cooperation by providing additional support to further integrate non-
EU  countries  into  these  two  priorities.  The  active  involvement  of  Member  States’  as  well  as 
third countries’ customs authorities will be indispensable. 

9 

 
 
 
 
 
 
 
 
The Commission will also continue to support and develop the two networks of laboratories (the 
Customs  Laboratories European Network and  the European Network of Forensic Science 
Institutes).  These  laboratories  help  police  and  customs  in  their  investigations  and  controls  and 
will  encourage  increasing  labs’  cooperation  with  law  enforcement.  Moreover,  technologies 
stemming  from  the  EU  Horizon  2020  projects  equip  law  enforcement  with  new  capabilities, 
allowing for more effective detection of illicit drugs and precursors at the borders35.  

Action 3: A public-private partnership against drug smuggling and criminal infiltration 
Main actors: Commission, Member States, Europol, EMCDDA, public and private stakeholders 

Many  public  and  private  players,  from  port  authorities  to  shipping  companies  and  other 
service providers,  play  a crucial  role in  protecting ports’ security. They are the first  point of 
contact  in  the  fight  against  drug  smuggling  and  criminal  infiltration.  This  is  because  they  use 
processes,  systems  and  equipment  that  could  help  identify  insider  threats  throughout  maritime 
supply chains, from locating the origin of shipments, to transit and transhipment hubs, up to the 
final destination. Port authorities and private shipping companies need to be aware of their role 
in  the  fight  against  drug  trafficking  and  criminal  infiltration.  They  should  have  the  necessary 
tools  to  track  containers  and  to  secure  port  areas  with  cameras,  sensors  and  scanners.  They 
should  also  have  the  means  to  properly  screen  and  vet  their  employees  to  avoid  attempted 
corruption by criminal networks. 

However,  they  cannot  do  it  alone.  To  avoid  drug  trafficking  and  criminal  infiltration,  the  EU 
needs  to  join  forces.  Bringing  together  the  private  sector  and  law  enforcement  authorities 
can  contribute  to  identifying  and  implementing  operational  and  concrete  solutions  to  prevent 
criminal networks infiltrating EU ports and exploiting them for drug trafficking. In this context, 
the  Commission  advocates  for  a  full  and  thorough  implementation  and  enforcement  of  the 
relevant EU legislation36 (including security vetting of or background checks on key staff). 

To  strengthen  the  resilience  of  logistic  hubs,  the  Commission  will  bring  together  all  relevant 
public  and  private  actors  into  a  public-private  partnership:  Member  States,  local  authorities, 
law enforcement authorities, including customs, EU agencies and private operators in the ports. 
Drawing  from  the  expertise  and  experience  of  the  public  and  private  sector,  the  Alliance  will 
promote  best  practices  and  due  diligence.  It  will  put  in  place  coordinated  measures  to  step  up 
efforts to tackle drug trafficking and protect logistic hubs from criminal infiltration. The work of 
the Alliance will include a focus on the exchange of strategic and operational information. The 
Commission will reflect on how to exchange information most effectively between members of 
the Alliance. 

35 Border detection of illicit drugs and precursors by highly accurate electrosensors | BorderSens | Project | Fact sheet 
| H2020 | CORDIS | European Commission (europa.eu)  
36 See Regulation (EC) No 725/2004 of the European Parliament and of the Council of 31 March 2004 on enhancing 
ship and port facility security, OJ 129/6 and Directive 2005/65/EC of the European Parliament and the Council of 
26 October 2005 on enhancing port security (OJ L310/28). 

10 

 
 
 
 
 
 
 
 
3.2. Dismantling high-risk criminal networks 

Criminal  networks  have  rapidly  evolved  to  pursue  large  financial  gains.  The  increasing 
complexity  and  flexibility  of  the  criminal  landscape  makes  investigations  into  organised  crime 
particularly  challenging,  as  one  member  of  a  network  can  easily  be  replaced  by  others  when 
apprehended. Moreover, criminal networks use sophisticated techniques to hide their assets from 
detection.  They  use  the  services  of  high-level  brokers,  who  run  parallel  underground  systems, 
such as hawala, that are outside of the formal financial system37.  

As  set  out  in  the  EU  organised  crime  strategy,  to  make  a  real  difference  in  the  fight  against 
organised  crime,  criminal  networks  must  be  dismantled  as  such.  This requires  an  improved 
intelligence picture; specialised well-trained services with the right tools; effective, targeted and 
coordinated  action  by  law  enforcement  and  judicial  authorities;  and  a  robust  legal  framework 
against organised crime under which to operate. 

Action 4: Mapping the criminal networks that pose the biggest threats to society 
Main actors: Commission, Member States, Europol, Eurojust, CEPOL 

To  have  the  greatest  impact,  law  enforcement  and  judicial  authorities  should  pay  specific 
attention to those networks that pose the biggest threats to our society and the public. These 
high-risk criminal networks use corruption, infiltrate the legal economy, commit acts of violence, 
including intimidation, and run parallel underground financial systems. 

To target these criminal organisations, a paradigm shift is needed: moving away from a focus 
on individual criminals and specific crimes to investigating and prosecuting networks as a 
whole. The  new priority,  high-risk criminal networks, in EMPACT has  laid the foundation 
for  this  joint  work,  which  brings  together  law  enforcement  and  judicial  authorities  of  EU 
Member  States  and  international  partners  (including  37  non-EU  countries  in  2023),  with  the 
support of EU institutions, agencies and bodies. 

As the next step, Europol, with the support of Member States, will conduct a mapping exercise 
in early 2024 to identify the criminal networks that pose the biggest threats, whether they are 
operating in  EU  or  non-EU countries.  This  will  also  help  identify key members or enablers of 
high-risk criminal networks. The mapping will considerably improve the intelligence picture of 
crime, which will feed into dedicated threat assessments and  help prioritise investigations. The 
mapping should be regularly updated so authorities are aware of changes in networks’ activities 
and  methods.  Furthermore,  the  Commission,  Member  States  and  Europol  should  work  in 
EMPACT  to  develop  common  indicators  and  assessments  to  allow  for  the  comparability  of 
data  by  2025.  In  addition,  the  Commission  will  explore  possibilities  for  the  EU  to  create 
synergies with Interpol’s criminal intelligence analysis. 

37 The Other Side of the Coin: An Analysis of Financial and Economic Crime | Europol (europa.eu) 

11 

 
 
 
 
 
 
 
 
 
 
Action 5: A network of specialised prosecutors and judges to dismantle criminal networks 
Main actors: Eurojust, Europol, Member States. 

Criminal  networks  and  their  illicit  activities  often  span  different  jurisdictions,  but  this  is  not 
always known at the start of investigations in one Member State. Even if investigators are aware 
of the geographical range of the criminal network, they are faced with practical obstacles. These 
obstacles  include  difficulties  in  identifying  their  counterparts  in  other  Member  States  or 
insufficient  awareness  of  specific  rules  in  other  Member  States,  for  example  on  the  conditions 
for carrying out investigative measures. 

To dismantle criminal networks and their business models across the EU, authorities must build 
trust  and  connections  to  exchange  information  early  on  and  launch  parallel  investigations  in 
those Member States where links are identified. Throughout the proceedings, a regular dialogue 
between the judicial authorities involved is essential to ensure investigative strategies are aligned 
and to speed up the cross-border gathering of evidence. 

To  strengthen  the  exchange  of  information  and  cooperation  between  judicial  authorities  on 
complex  cross-border  investigations  into  organised  crime,  a  network  of  specialised 
prosecutors  and  judges  from  Member  States  should  be  created  with  the  support  of 
Eurojust.  The  network  will  be  a  centre  of  specialised  expertise  supporting  judicial  authorities 
and  facilitating  the  exchange  of  expertise,  best  practices  and  other  knowledge  on  investigating 
and  prosecuting  organised  crime.  They  will  foster  dialogue  among  the  different  national 
authorities involved, provide a forum to discuss legal and practical problems and promote using 
Eurojust in cross-border organised crime cases. 

Action 6: Facilitating financial investigations 
Main actors: Commission, Member States, Europol, Eurojust, CEPOL 

Since the priority of organised crime is to make a profit, the ‘follow-the-money’ approach is the 
most effective way of depriving criminals of their large illicit gains. In the Council Conclusions 
on  enhancing  financial  investigations  to  fight  serious  and  organised  crime38,  Member  States 
committed to improving financial investigations as a crucial part of the fight against organised 
crime. The upcoming adoption by the European Parliament and the Council of the Commission 
proposal  on  confiscation  and  asset  recovery  will  boost  systematic  financial  investigations. 
These investigations will be facilitated by the recent agreement on the interconnection of bank 
account  registries  as  well  as  by  the  strengthened  rules  on  anti-money  laundering.  Once  the 
AML/CFT legislative package is adopted, the future Anti-money Laundering Authority (AMLA) 
will  provide  operational  support  to  Financial  Intelligence  Units  when  carrying  joint  analyses. 
This will contribute to a more effective detection and analysis of cross-border cases.   

38 ST 8927/20, https://data.consilium.europa.eu/doc/document/ST-8927-2020-INIT/en/pdf . 

12 

 
 
 
 
 
 
 
 
 
 
 
As  a  complement  to  anti-money  laundering  rules,  some  Member  States  have  set  up  public-
private  partnerships  enabling  the  exchange  of  operational  information  among  authorities 
and banks and financial and credit institutions. These partnerships help private bodies, which 
are at  the forefront  of identifying  illicit financial flows  among  billions of daily transactions, to 
detect difficult-to-find activity. To facilitate the development of this type of cooperation across 
Member States, Europol’s Financial Intelligence Public-Private Partnership will develop, within 
the  limits  of  Europol’s  mandate,  a  blueprint  summarising  the  legal  frameworks  and  practical 
steps  taken  in  Member  States  and  third  countries  to  set  up  partnerships  against  money 
laundering  by  mid-2024.  This  blueprint  should  take  into  account  the  best  practices  and  legal 
considerations  set  out  in  the  Commission’s  staff  working  document  on  this  subject39  and  the 
outcome of the negotiations on the anti-money laundering package. It should in particular build 
on  the  steps  already  taken  by  Member  States  to  ensure  that  the  exchange  of  personal  data  is 
limited  to  what  is  necessary  and  proportionate  to  the  purpose  of  preventing,  detecting  and 
investigating money laundering offences and the safeguards set out to protect personal data. 

Law  enforcement  authorities  should  use  parallel  financial  investigations  more  systematically 
when  investigating  organised  crime.  However,  carrying  out  complex  financial  investigations 
requires  specialised  expertise,  capacity  and  technological  tools.  Europol’s  Financial  and 
Economic  Crime  Centre,  which  in  2022  supported  over  400  financial  investigations40,  and 
Eurojust,  which  provides  competent  authorities  with  guidelines  and  best  practices  on  the 
recovery  of  illicit  assets  are  key  in  supporting  Member  States.  In  particular,  the  Centre  can 
provide  valuable  support  to  joint  activities  on  investigations  into  underground  banking. 
Furthermore,  CEPOL’s  training  capabilities  can  help  Member  States  increase  the  skills  and 
expertise of law enforcement in financial investigations. 

Building  the  financial  profile  of  a  criminal  network  requires  putting  together  and  analysing 
different sources of information, including information on crypto assets, which are often used by 
drug  trafficking  groups  to  hide  their  financial  trail.  It  also  requires  harmonising  the  different 
formats of the data collected, identifying entities in unstructured datasets  and  cross matching a 
large  number  of  subjects.  Some  Member  States,  such  as  Latvia,  Slovenia  and  Spain,  have 
developed  or  are  developing  their  own  tools  for  financial  transaction  analysis  to  this  effect. 
The  ma³tch  tool  in  FIU.net,  hosted  and  managed  by  the  Commission  since  2021,  allows 
Financial  Intelligence  Units  to  crossmatch  information  (e.g.,  concerning  transactions)  in  a 
pseudonymised way and enables them to establish in real time if a subject is already known by 
another unit. If this is the case, information can be exchanged, and cases built together. Financial 
Intelligence Units are strongly encouraged to make full use of the FIU.net’s ma³tch functionality.  

39 Commission staff working document on the use of public-private partnerships in the framework of preventing and 
fighting money laundering and terrorist financing, Brussels, 27.10.2022 (SWD/2022. 347 final). 
40 https://www.europol.europa.eu/about-europol/european-financial-and-economic-crime-centre-efecc 

13 

 
 
 
 
 
 
Additionally,  under  the  Horizon  Europe  programme,  the  Commission  will  publish  a  call  for 
research and innovation on security in June 2024 that will provide further funding opportunities 
for the development and uptake of specific tools to conduct effective financial investigations41. 

Action 7: Facilitating digital investigations 
Main actors: Commission, Member States, Europol, Eurojust, CEPOL 

As our everyday activities move online more than ever, so do illegal activities. Investigators are 
faced  with  the  reality  that  criminals  have  been  quick  to  exploit  the  possibilities  offered  by  the 
online  world  and  continue  to  use  more  and  more  advanced  technologies  to  achieve  their  aims. 
Therefore,  the  Commission  seeks  to  explore  several  strands  of  work  to  respond  to  these 
developments.  The  High-Level  Group  on  access  to  data  for  effective  law  enforcement  was 
launched  by  the  Commission  in  June  202342.  The  High-Level  Group  brings  together  law 
enforcement  and  judicial  authorities,  data  protection,  privacy  and  cybersecurity  experts,  the 
private  sector,  non-governmental  organisations  and  academia.  The  group  explores  challenges 
that law enforcement practitioners face in their daily work and potential solutions to overcome 
them,  with  the  aim  of  ensuring  the  adequate  access  to  data,  to  fight  crime  and  enhance  public 
security in the digital age. The group will issue a report in 2024 with technical, operational or 
legal recommendations. 

The Commission is also helping increase the capacity of Member States’ authorities to carry 
out  digital  investigations  by  supporting  the  European  Cybercrime  Training  and  Education 
Group43 in developing training resources. This group has trained at least 1 000 police officers in 
the last 3 years. Furthermore, the Commission funds the European Anti-Cybercrime Technology 
Development  Association44  to  develop  digital  tools  to  support  investigations,  which  are  then 
made  available  for  free  to  EU  law  enforcement  authorities  and  Europol.  Eurojust  supports  the 
fight  against  cybercrime  through  the  European  Judicial  Cybercrime  Network  with  strategic 
support and best practices. 

Drug  trafficking  itself  also  takes  place  online  both  on  darknet  markets  and  on  the  clearnet, 
including through social media. There are significant challenges to tackle this kind of trafficking. 
The  Commission  will  work  to  address  online  drug  trafficking,  including  through  collaboration 
with  the private sector  through the EU Internet Forum. The Forum will deliver  a knowledge 
package in 2024 aimed at supporting social media companies in better moderating drugs content 
on  their  platforms.  Furthermore,  the  Commission  will  develop  an  IT  tool  in  2024  to  help  law 

41https://ec.europa.eu/info/funding-tenders/opportunities/portal/screen/opportunities/topic-details/horizon-cl3-2024-
fct-01-08  
42 COM/2023/3647 final 
43 https://www.ecteg.eu/ 
44 https://www.eactda.eu/ 

14 

 
 
 
 
 
 
enforcement  authorities  monitor  the  darknet  to  counter  drug  trafficking45.  Finally,  under  the 
Horizon  Europe  Programme,  the  Commission  will  fund  a  security  research  project  using 
Artificial Intelligence in fighting illicit drugs production and trafficking as of November 2023. 

Action 8: Unlocking the potential of Schengen Information System alerts 
Main actors: Commission, Member States, Europol 

The  exchange  of  operational  information  across  borders  is  vital  to  detect  and  apprehend 
criminals. The features of the Schengen Information System (SIS) – by a new legal framework 
that has entered into force in March 202346 – help prevent criminals and terrorists from moving 
within  or  entering  the  EU  undetected.  The  upgraded  SIS  includes  new  categories  of  alerts  and 
biometrics  (such  as  palm  prints,  finger  marks  and  DNA  records)  to  correctly  identify  people 
travelling  under a false identity  and information about  the cars or other objects  they are using. 
New alerts on persons and objects for discreet checks, inquiry checks or specific checks  enable 
authorities to collect targeted information on suspects of serious or organised crime or terrorism. 

Additionally,  Europol’s  recently  strengthened  mandate  permits  the  agency  to  support  Member 
States in processing data transmitted by non-EU countries or international organisations. Europol 
may also propose that Member States enter information alerts in the SIS47. 

Member States are therefore strongly encouraged to make full use of the tools available in 
SIS to fight serious and organised crime. In particular, it is crucial that Member States issue 
alerts  on  members  or  enablers  of  high-risk  criminal  networks  in  the  system  and  report  hits  to 
Europol.  In  March  2023,  the  Commission  launched  a  study  to  explore,  assess  and  propose 
various  options  to  innovate  the  exchange  of  supplementary  information  on  SIS  alerts  by  the 
national offices (the SIRENE Bureaux) to allow for a better use of this information. In 2026, the 
Commission  will  carry  out  an  overall  evaluation  of  the  central  SIS,  the  supplementary 
information  exchange  between  national  authorities,  including  an  assessment  of  the  automated 
fingerprint identification system, and SIS information campaigns. 

Action 9: Towards a more robust legal framework against organised crime 
Main actors: Commission, European Parliament, Council, High Representative 

45  Implementing  the  preparatory  action  on  the  EU-coordinated  darknet  monitoring  to  counter  criminal  activities 
proposed by the European Parliament, with the involvement of the EMCDDA as well as Europol, in line with the 
EU drugs strategy and action plan. 
46  Regulation  (EU)  2018/1862  of  the  European  Parliament  and  of  the  Council  of  28 November  2018  on  the 
establishment,  operation and use of the Schengen Information System (SIS) in the field of police cooperation and 
judicial  cooperation  in  criminal  matters,  amending  and  repealing  Council  Decision  2007/533/JHA,  and  repealing 
Regulation  (EC)  No 1986/2006  of  the  European  Parliament  and  of  the  Council  and  Commission  Decision 
2010/261/EU (OJ L 312 7.12.2018, p. 56). 
47 Regulation (EU) 2022/991 of the European Parliament and of the Council of 8 June 2022 amending Regulation 
(EU) 2016/794, as regards Europol’s cooperation with private parties, the processing of personal data by Europol in 
support of criminal investigations, and Europol’s role in research and innovation (OJ L 169, 27.6.2022, p. 1). 

15 

 
 
 
 
 
 
 
 
 
 
An effective EU legal framework is essential to provide law enforcement and judicial authorities 
with the necessary tools to fight organised crime. A study published in February 2023 assessing 
the  effectiveness  of  the  2008  Framework  Decision  on  Organised  Crime48  highlighted  wide 
divergences among Member States in the offences, penalties and investigative tools related 
to  participating  in  a  criminal  organisation.  These  differences  create  obstacles  in  cross-border 
cooperation  and  can  discourage  authorities  from  investigating  criminal  networks  and  their 
members. 

To  address  the  identified  shortcomings,  the  Commission  will  work  with  Member  States,  the 
European  Parliament,  EU  agencies  and  bodies  and  other  stakeholders  to  strengthen  the  legal 
framework  against  organised  crime  and  its  implementation.  An  assessment  of  the  existing 
legal framework will also need to look at harmonised legal definitions of organised crime and 
adapt  them  to  the  reality  of  criminal  networks  and  their  key  members  to  ensure  dissuasive 
sanctions  for  participating  in  or  running  a  criminal  organisation.  In  order  for  the  competent 
authorities  to  better  detect  and  investigate  organised  criminal  activities,  the  review  should 
explore measures that ensure authorities have the appropriate special investigative techniques at 
their  disposal.  A  reflection  should  take  place  about  the  need  for  additional  measures,  such  as 
national  organised  crime  strategies,  as  well  as  specialised  units  with  expertise  from  several 
disciplines  to  tackle  complex  investigations.  Furthermore,  the  review  should  explore  whether 
measures at EU level would be necessary to facilitate the collaboration of crown witnesses.  

Specifically on drug trafficking, the Council Framework Decision 2004/757/JHA laying down 
minimum provisions on the constituent elements of criminal acts and penalties in the field 
of  illicit  drug  trafficking49  will  be  evaluated  in  2024.  The  rules,  especially  those  on  criminal 
sanctions, could be amended, modernised and strengthened. 

Further  reflections  should  take  place  at  EU  level  on  whether  other  measures  could  be  relevant 
that limit the ability of members of criminal networks to access the EU’s internal market. Certain 
measures, which have been applied by third countries, could  be  a valuable complement to  law 
enforcement  efforts,  cutting  off  criminals  from  the  funds  that  allow  them  to  infiltrate  the 
economy  and  limiting  their  capacity  to  operate  across  borders,  especially  when  the  suspect  is 
located outside the EU. 

3.3.Prevention 

The Commission considers crime prevention to be an integral part of a long-term response 
to  combating  organised  crime.  The  EU’s  policy  on  crime  prevention  focuses  on  creating 
technical  or  administrative  barriers  that  prevent  individuals  from  committing  a  crime.  In 

48 Council Framework Decision 2008/841/JHA of 24 October 2008 on the fight against organised crime (OJ L 300, 
11.11.2008). 
49  Council  Framework  Decision  2004/757/JHA  of  25 October  2004  laying  down  minimum  provisions  on  the 
constituent elements of criminal acts and penalties in the field of illicit drug trafficking (OJ L 335, 11.11.2004, p. 8). 

16 

 
 
 
 
 
 
 
 
 
addition,  it  promotes  exchanges  of  experience  and  best  practices  to  mitigate  factors  that 
encourage  crime  and  recidivism,  including  efforts  to  prevent  people  from  ending  up  in 
vulnerable situations that may lead them to criminal behaviour. Prevention is an integral part of 
the EU’s security policy, covering drugs50, corruption51, cybercrime52 and many other areas. 

A  multidisciplinary  and  inter-agency  approach  to  crime  prevention  should  include  close 
cooperation with local authorities and civil society. This can contribute to reducing the likelihood 
of  criminal  activity  by  building  barriers,  raising  the  awareness  of  potential  victims  and 
supporting vulnerable individuals and communities to reduce the risk of falling into crime. The 
Commission  supports  Member  States  and  local  policymakers  and  practitioners  in  promoting 
evidence-based policies and tools to prevent crime. The Commission also stresses the need for 
policymakers  and  practitioners  at  EU,  national  and  local  levels  to  connect  and  exchange 
information through clearly designated and well-established dissemination and communication 
channels. 

Action 10: Preventing organised crime activities through administrative measures 
Main  actors:  Commission,  Member  States,  Europol,  European  Network  on  the  Administrative 
Approach 

More than 80% of the criminal networks active today in the EU use legal business structures for 
their criminal activities53. For example, they set up small businesses to launder their illicit gains 
or  compete  in  public  tenders,  defrauding  public  institutions.  Therefore,  it  is  vital  that 
administrative authorities are aware of the  major  role they can play in  combating  organised 
crime. In addition, suitable procedures must be put in place at national and local levels to shut 
down a business, perform background checks before granting permits, tenders and subsidies and 
put  in  place  other  barriers,  such  as  inspections  (for  example  health  or  labour  inspections)  that 
prevent criminals from committing a crime. 

Several  Member  States  have  well-developed  frameworks  in  place  where  local  authorities  are 
empowered  to  use  administrative  tools  to  prevent  the  criminal  infiltration  of  legal 
the 
businesses  and  administrative 
administrative approach is still underdeveloped. Moreover, differences in national frameworks 
and  practices  complicate  cross-border  collaboration,  resulting  in  criminals  simply  crossing  the 
border to set up new fraudulent businesses if their previous business is closed by the authorities. 

infrastructure.  In  other  Member  States,  however, 

Therefore,  the  exchange  of  best  practices  and  guidance  among  all  Member  States  should  be 
further  strengthened  to  help  Member  States  set  up  national  frameworks  to  apply  the 
administrative approach. The Commission will develop practical guidance in 2024 on the use 

50 COM/2020/ 606 final. 
51 COM/2023/ 234 final. 
52 https://home-affairs.ec.europa.eu/policies/internal-security/cybercrime_en 
53 https://www.europol.europa.eu/publications-events/main-reports/socta-report 

17 

 
 
 
 
 
 
 
 
 
of administrative tools and the exchange of information in the fight against criminal infiltration. 
This work will draw on the experience of the EU Regional Information and Expertise  Centre54 
(an  EU-funded  project  supporting  the  cross-border  administrative  approach  between  Belgium, 
Germany  and  the  Netherlands),  the  European  Network  on  the  Administrative  Approach55  and 
EMPACT. 

The administrative approach is one of EMPACT's nine common horizontal strategic goals. The 
Commission  strongly  encourages  Member  States  and  Europol  to  carry  out  specific  operational 
measures in 2024 and 2025 that contribute to this goal. 

Action 11: Combating the proliferation of designer precursors 
Main actors: Commission, European Parliament, Council, EMCDDA 

Criminals  use  and  divert  chemicals  needed  in  the  production  of  everyday  products  for  the 
manufacture of illegal drugs. In order to limit and control access to these drug precursors, the EU 
has already put rules in place.56  However, criminals can easily circumvent the existing controls 
for  these  substances  by  creating  ever  new  designer  precursors:  close  chemical  relatives  of 
traditional drug precursors. They are made to circumvent customs controls and do not have any 
known legitimate use.  

The  existing  EU  legislative  framework  on  drug  precursors57  follows  a  time  consuming 
‘substance-by-substance  scheduling’  approach,  which  makes  it  difficult  to  keep  up  with  the 
speed  of  innovation  of  organised  crime.  Each  time  a  new  substance  is  identified  as  drug 
precursor  and  subsequently  scheduled  for  control  and  monitoring,  organised  crime  groups 
respond by altering the molecular structure slightly and create a new designer precursor. This can 
be done much faster than the time it takes to schedule (control) a substance. 

Therefore, as from 2024, the Commission plans to set out innovative ways for speeding up and 
broadening  the  existing  approach  of  scheduling  drug  precursors.  The  range  of  scheduled 
substances will be extended to clearly identified derivatives and related chemicals that can easily 
be converted to or used as substitutes during illicit production. On the timing of scheduling. In 
addition, the Commission will  make every effort  to  fast-track the  adoption procedure of future 
delegated acts that schedule additional substances, by working hand in hand with the European 
Parliament and the Council.  The Commission  will  propose implementing this  new approach to 

54 EURIEC. 
55 Homepage - European Network on the Administrative Approach. 
56  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, OJ L 22, 26.1.2005, p. 1–10, and Regulation (EC) 
No  273/2004  of  the  European  Parliament  and  of  the  Council  of  11  February  2004  on  drug  precursors,  OJ  L47, 
18.2.2004. 
57  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,  (OJ  L  22,  26.1.2005,  p.   1–-10),  and  Regulation 
(EC)  No  273/2004 of  the  European  Parliament  and  of  the  Council of  11   February  2004  on drug precursors,  (OJ 
L47, 18.2.2004). 

18 

 
 
 
 
 
 
 
 
the  fullest  extent  possible  within  the  existing  EU  legal  framework  when  scheduling  additional 
substances. 

At a later stage, following an in-depth examination of the issues at stake and possible solutions, 
and  building  on  the  outcome  of  the  evaluation  of  the  EU  drug  precursors  regulations,58  the 
Commission may review these regulations59 also with a view to tackle the identified issues of 
designer precursors. The Commission supports international efforts and will continue to do so in 
the future. The EU has been pursuing stronger multilateral cooperation on and awareness raising 
about  the  challenges  posed  by  non-scheduled  substances,  particularly  designer  precursors.  The 
EU is also closely monitoring and contributing to the work of the United Nations’ Commission 
on Narcotic Drugs, which regularly reviews and analyses the global drug situation. The EU will 
continue  to  work  closely  with  the  International  Narcotics  Control  Board  and  like-minded 
countries that are taking in its pursuit of concrete action against this phenomenon. It is vital to 
increase responsiveness, as currently, criminals have ample time to figure out how to circumvent 
controls. 

Action 12: Preventing criminal networks from recruiting children and young people  
Main  actors:  Commission,  Member  States  (including  local  authorities),  EMCDDA,  European 
Crime Prevention Network, civil society organisations 

Criminal networks, including drug traffickers, exploit vulnerable people and use young people or 
even  children  to  carry  out  criminal  activities.  These  activities  include  burglaries,  shoplifting, 
emptying containers filled with drugs, placing explosives, committing online fraud, or ‘lending’ 
bank  accounts.  In  search  of  easy  money,  young  people  are  tempted  to  drop  out  of  school  or 
employment.  To protect young people and disrupt criminal  activity, it is essential  to invest in 
effective crime prevention policies and tools. 

Crime prevention involves local communities, families, schools, the social welfare sector, civil 
society,  law  enforcement,  the  judiciary,  prison  authorities  and  the  private  sector.  The 
effective  use  of  EU  and  national  resources  to  improve  social  cohesion,  address  unemployment 
and  ensure  that  young  people  do  not  abandon  their  education  is  very  relevant  in  this  context. 
Through  the  European  Social  Fund+,  the  Commission  will  continue  to  help  vulnerable  young 
people  reach  their  potential  by  supporting  local  initiatives  to  combat  poverty,  social  inclusion 
and  youth  unemployment,  in  line  with  the  implementation  of  the  European  Pillar  of  Social 
Rights60. 

Building  on  the  experience  of  the  European  Crime  Prevention  Network,  the  Radicalisation 
Awareness Network and EMPACT, the Commission will strengthen the exchange of knowledge 

58 COM/2020/ 768 final. 
59  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  (OJ  L  22,  26.1.2005,  p. 1–)  and  Regulation  (EC) 
No 273/2004  of  the  European  Parliament  and  of  the  Council  of  11 February  2004  on  drug  precursors  (OJ  L47, 
18.2.2004).. 
60 COM/2017/ 250 final. 

19 

 
 
 
 
 
 
 
 
 
and  best  practices  on  crime  prevention.  Along  with  Member  States,  the  EU  Crime  Prevention 
Network and  other  stakeholders,  the Commission will  bring crime prevention practitioners and 
policymakers together for a high-level conference on crime prevention in 2024 and present a 
collection of best practices on preventing recruitment in organised crime. 

Action 13: Improving public safety and public health in areas affected by the use and sale of 
drugs and drug-related crime. 
Main actors: Commission, Member States, EMCDDA 

In several EU countries, drug-related criminal hubs have been developing. Some locations, such 
as urban neighbourhoods, train and metro stations and urban wastelands, are particularly affected 
by the sale of drugs, drug use and drug-related crimes. This is due to many factors, including 
poverty  and  social  exclusion.  This  leads  to  insecurity  for  local  communities,  and  people  using 
drugs  in  these  areas  continue  to  suffer  from  health  problems,  stigma  and  social  harm.  The 
challenges posed by this concentration of illicit activities cannot be resolved by local authorities 
alone and require sustainable solutions. 

Due to significant differences in  local,  regional and national situations,  targeted solutions must 
be  identified  that  combine  a  law  enforcement  response  with  social  and  health  measures.  It  is 
crucial  to  create  a  space  for  the  exchange  of  best  practices  and  evidence-based  approaches 
between those concerned. The Commission, with the support of the EMCDDA, will organise a 
high-level  conference  in  2024,  bringing  together  law  enforcement,  health  and  social 
professionals and local authorities, including health services, to draw up best practices. As part 
of  EMPACT,  joint  action  and  training  will  be  held  based  on  the  EMCDDA’s  European 
Prevention Curriculum61. 

3.4.International cooperation 

The global reach of criminal networks and their interconnectedness has made it more urgent for 
the  EU  to  look  beyond  its  borders  for  comprehensive  solutions.  In  the  fight  against  drug 
trafficking, priority is given to cooperation with those countries and regions  in which the main 
drug  supply  routes  run  and  that  are  particularly  affected  by  the  adverse  effects  of  drug 
trafficking. Cooperation  with  key partners that  can  help  provide solutions is  also  crucial. EU’s 
external  action  and  partnerships  are  comprehensive,  focusing  on  both  prevention  and  the  fight 
against organised crime.  

The  EU  should  continue  to  improve  law  enforcement  and  judicial  cooperation  with  those 
countries whose national legal frameworks are abused by criminals in order to hide themselves 

61 https://www.emcdda.europa.eu/publications/manuals/european-prevention-curriculum_en 

20 

 
 
 
 
 
 
 
 
 
 
 
or  their  assets.  Moreover,  under  the  umbrella  of  the  Global  Gateway  Strategy62,  the  EU  will 
continue  to  invest  in  partners’  infrastructure  needs,  notably  plugging  vulnerabilities  in  logistic 
hubs  through  dedicated  Team  Europe  Initiatives  that  also  support  security  and  technological 
enhancement. 

As regards the protection of ports against criminal infiltration, in its engagement with non-EU 
countries,  the  Commission  stresses  the  importance  of  them  adhering  fully  to  the  International 
Convention for the Safety of Life at Sea (SOLAS) Convention (especially the special measures 
to improve maritime security) and the International Ship and Port Facility (ISPS) Code63. 

Action  14:  Strengthening  support  to  operational  anti-drug  trafficking  operations  in  West 
Africa 
Main EU actors: Commission, Member States, MAOC (N), Europol. 

The Gulf of Guinea has become one of the major drug trafficking routes from South America. 
Drugs make their way to Europe through the Gulf of Guinea in fishing vessels, pleasure crafts, 
sailing  boats  and  other  types  of  ships  leaving  South  America.  These  vessels  load  their  illicit 
cargo off the coast and sail towards the Gulf of Guinea to deliver the drugs to other ships. These 
ships then bring the shipment to shore, and from there, the drugs are smuggled across the Sahara 
Desert into Europe. 

In  line  with  the  EU  Maritime  Security  Strategy  for  evolving  maritime  threats  and  the  action 
plan64 and the EU strategy on the Gulf of Guinea65, the Commission, together with EU Member 
States,  will  work  to  tackle  this  drug-supply  route  in  a  coordinated  way.  They  will  do  so  by 
exchanging  information,  strengthening  the  national  maritime  presence  in  the  area,  facilitating 
joint  operations  with  the  support  of  the  Maritime  Analysis  and  Operations  Centre  –  Narcotics 
(MAOC (N)) and further supporting the development of Western African countries’ capacity 
to fight drug trafficking, for instance through the Global Illicit Flows Programme (GIFP). 

The upcoming maritime security programme  “Enhancing maritime security in Africa” (Safe 
Seas  for  Africa)  aims  to  strengthen  the  capacities  of  law  enforcement  agencies  to  tackle 
trafficking  of  narcotics  at  sea,  both  in  the  Gulf  of  Guinea  region,  as  well  as  along  the  Swahili 
coast and in the island region of the Western Indian Ocean.  

Furthermore, for West Africa, the EU is in the process of exploring a potential future regional 
intervention guided by a comprehensive ‘trafficking corridors and hubs’ approach. Such a 
program would further contribute to stabilization efforts, notably by addressing potential existing 
connections between organized crime and the proliferation of terrorist activities in West Africa. 

62 JOIN/2021/30 final 
63 SOLAS XI-2 and the ISPS Code (imo.org). 
64 The revised EUMSS has been sent to the Council for its endorsement. 
65  EU  Strategy  on 
https://www.consilium.europa.eu/media/28734/141582.pdf 

the  Gulf  of  Guinea,  17 March  2014,  Council  of 

the  European  Union 

21 

 
 
 
 
 
 
 
 
Action 15: Boosting EU cooperation with countries in Latin America and the Caribbean in the 
fight against organised crime 
Main EU actors: Commission, Europol, Eurojust, Member States. 

As the criminal threats faced by Latin America and the Caribbean (LAC) and the EU seriously 
affect  the  security  and  well-being  of  people  in  both  regions,  we  must  join  forces  to  fight  the 
threat. As a matter of priority, to improve law enforcement cooperation with Latin America, the 
Commission is negotiating international agreements on the exchange of personal data with 
Europol with Bolivia, Brazil, Ecuador, Mexico and Peru. The Commission is also intensifying 
work  to  conclude  negotiations  on  international  judicial  cooperation  agreements  with 
Eurojust with Brazil, Argentina and Colombia. The Commission will also consider proposing to 
extend  the  Council’s  mandate  in  particular  to  other  Latin  American  countries  for  Eurojust’s 
future engagement on judicial cooperation in the region. 

As part of the  strenghtened EU-LAC partnership  on Justice  and Security  and its  Team  Europe 
Initiative, there are regional programmes that support integrated border management efforts and 
the  fight  against  trafficking  and  smuggling  of  human  beings  in  several  South  American 
countries66  (EUROFRONT)  as  well  as  reducing  the  supply  and  demand  of  drugs  in  Latin 
America and the Caribbean (COPOLAD) and the Global Illicit Flows Programme, which seeks 
to  build  capacity  to  combat  organised  crime  across  Latin  America  and  the  Caribbean  (among 
other regions). High-level dialogue will also be enhanced through the EU-CELAC Coordination 
and Cooperation Mechanism on Drugs. In this regard, the new edition of EL PAcCTO 2.0 will 
provide  additional  resources  to  strengthen  law  enforcement  cooperation  between  the  EU  and 
Latin  American  and  Caribbean  countries,  including  support  to  AMERIPOL.  As  part  of  EL 
PAcCTO  2.0.,  a  joint  project  will  support  and  strengthen  the  exchange  of  information  and 
intelligence, streamline operations, and maximise the use of data between Europol and Colombia 
to  disrupt  criminal  drug  trafficking  networks.  Following  the  Team  Europe  approach,  the 
Commission will also explore possibilities to support local special investigative teams to carry 
out complex investigations in non-EU countries. 

In 2022, 44 tonnes of cocaine were seized in Guayaquil in Ecuador. Ports in the Guayaquil area 
have  become  one  of  the  most  used  logistic  hubs  to  traffic  drugs  to  Europe  via  containers. 
Together  with  national  authorities,  the  Commission  will  launch  a  specific  assessment  of  the 
vulnerabilities  of  the  ports  of  Guayaquil  and  its  bay  area  to  prioritise  future  activities, 
including EU support. 

Action 16: Forging alliances to address synthetic drug threats 
Main actors: Commission, Europol, EMCDDA and Member States 

66 Colombia, Ecuador, Peru, Bolivia, Argentina, Paraguay and Brazil. 

22 

 
 
 
 
 
 
 
 
 
Synthetic drugs can be manufactured easily and rapidly all around the world in large quantities 
and from  cheap chemicals.  Synthetic drugs have proliferated in  the last decade at  international 
and regional levels and pose a real threat to health and safety. There is also a growing concern 
over the production of synthetic drugs in Europe, which are exported around the world. The EU 
should  therefore  take  responsibility  and  contribute  to  countering  this  phenomenon,  particularly 
by seeking out international partners. Exchanging information and sharing experiences is highly 
valuable,  especially  with  North  American  countries  where  fentanyl-related  problems  are  most 
prevalent. The EU needs to increase preparedness and put in place robust surveillance measures. 

On  7 July  2023,  the  Commission  confirmed  that  the  EU  would  join  the  Global  Coalition  to 
Address Synthetic Drug Threats launched by the United States. The Commission and the High 
Representative, together with the relevant EU agencies and Member States, will contribute to the 
Coalition’s  work  to  improve  global  surveillance  capacity,  strengthen  preparedness  for  the 
challenges  from  the  manufacture  and  trafficking  of  synthetic  drugs  and  develop  approaches  to 
reduce drug demand and drug-related harm. The Commission also supports US efforts to present 
a UN General Assembly resolution on synthetic drugs for endorsement in December 2023. 

The  Commission  will  also  hold  further  exchanges  with  China,  in  particular  via  the  EU 
Dialogue  on  Drugs,  to  boost  cooperation  on  illicit  drugs  production  and  the  diversion  and 
trafficking of drug precursors and other essential chemicals for the illicit manufacture of drugs. 
Alongside the next EU-China Dialogue on Drugs to be held in 2024, the Commission intends to 
resume  mutual  administrative  assistance  as  part  of  the  EU-China  Joint  Follow-up  Group  on 
Precursors to exchange information. This will also help prevent the diversion of precursors and 
chemical  substances  frequently  used  in  the manufacture  of  illicit  drugs traded  between  the  EU 
and China. 

Action  17:  Strengthening  law  enforcement  and  judicial  cooperation  with  uncooperative 
jurisdictions 
Main actors: Commission, Member States 

Modern criminal networks are cross border in nature. They use international commercial routes 
to traffic all sorts of illegal goods and exploit the gaps between jurisdictions to traffic drugs and 
conceal and launder their vast criminal revenue67. At the same time, uncooperative jurisdictions 
are  used  as  safe  havens  for  high-value  fugitives  to  escape  investigation  and  prosecution. 
Moreover, those  who run underground banking  systems  usually hide in  countries where police 
and  judicial  cooperation  with  the  EU  is  complex  and  where  they  can  enjoy  a  high  standard  of 
living. 

67 https://www.europol.europa.eu/publications-events/main-reports/socta-report 

23 

 
 
 
 
 
 
 
 
 
Recent major investigations, such as the successful Operation Desert Light supported by Europol 
in November 202268, have also shown the crucial need for effective judicial cooperation with 
non-EU  countries  to  ensure  that  apprehended  criminals  are  extradited,  prosecuted  and 
convicted.  It  is  therefore  essential  to  strengthen  law  enforcement  and  judicial  cooperation 
with  non-EU  countries.  Particular  attention  should  be  paid  to  extradition,  financial 
investigations  and  the  recovery  of  criminal  assets  outside  the  EU,  including  through  close 
cooperation  of  Member  States’  or  EU  Agency  liaison  officers  posted  in  non-EU  countries.  To 
step  up  coordination,  maximise  the  EU’s  impact  and  improve  engagement  with  non-EU 
countries,  the  creation  and  deployment  of  EU  law  enforcement  and  judicial  liaison  officers  in 
key non-EU countries should be considered. 

Alongside  improved  operational  activities,  it  is  also  important  to  have  a  common  legal 
framework for  effective  criminal  law cooperation at  international  level.  The Commission  in its 
engagement  with  non-EU  countries  invites  them  to  become  parties  to  the  Council  of  Europe 
conventions in the area of mutual legal assistance69 extradition70 and freezing and confiscation71. 

The Commission will work on identifying the current issues faced by Member States with non-
EU countries to combine diplomatic efforts for more effective cooperation that is in line with EU 
fundamental rights standards. Furthermore, the Commission will explore the possibility to launch 
negotiations  to  conclude specific  EU  extradition agreements,  where the preconditions for the 
conclusion of such agreements are fulfilled.  

3.5.Working together and providing support 

Since the adoption of the EU strategies, the Commission, Member States and EU agencies and 
bodies  have  met  regularly  to  build  a  multidisciplinary  community  of  policymakers  and 
practitioners and  engage in a regular dialogue. The Commission will continue to  work with all 
stakeholders on the implementation of the organised crime strategy and the actions presented in 
this  Communication  to  exchange  best  practices,  facilitate  sharing  information  and  operational 
cooperation and reflect on future needs. 

Furthermore, the Commission has mobilised funding to support the fight against organised crime 
with dedicated EU funding for 2023-2025. It will organise calls for proposals under the Internal 
Security  Fund  on  several  topics,  including  corruption,  digital  investigations,  and  support  to 
EMPACT. In particular, the Commission will launch a call for proposals on organised crime 
for a total of EUR 20 million by the end of 2023. 

https://www.europol.europa.eu/media-press/newsroom/news/heat-rising-european-super-cartel-taken-down-in-

68 
six-countries 
69 Council of Europe Convention on Mutual Legal Assistance (ETS No 30), https://rm.coe.int/16800656ce 
70 Council of Europe Convention on Extradition (ETS No 24), https://rm.coe.int/1680064587  
71 Council of Europe Convention on Laundering, Search, Seizure and Confiscation of the Proceeds from Crime and 
on the Financing of Terrorism (CTS No 198), https://rm.coe.int/168008371  

24 

 
 
 
 
 
 
 
 
 
 
4.  CONCLUSIONS 

The  scale,  sophistication  and  violent  consequences  of  organised  crime  have  become  a  serious 
threat  to  the  EU’s  security.  As  criminal  networks’  methods  become  more  sophisticated,  so 
should the EU’s: the response to dismantle these networks needs to be stepped up urgently. 
This document therefore has set out key actions needed at EU level to intensify the fight against 
high-risk criminal networks and drug trafficking. Work on fully implementing the EU strategies 
on  organised  crime  and  drugs  should  continue  at  full  speed.  The  Commission  commits  to 
implementing  these  additional  actions  in  2024  and  2025,  in  close  cooperation  with  Member 
States and EU agencies and bodies. 

Common, robust and effective rules are essential to boost national measures, as well as EU and 
international cooperation against organised crime and drug trafficking and to protect victims of 
these crimes. The Commission invites the European Parliament and the Council to adopt by 
the end of the legislature the Confiscation and Asset Recovery Directive, the revision of the 
Prüm Regulation, the rules on the interconnection of bank account registries, the proposed 
anti-money-laundering legislative package, and the draft Directive on combating corruption 
by  criminal  law.  The  Commission  reiterates  its  commitment  to  work  closely  with  the  co-
legislators to achieve this aim. 

Fighting  organised  crime  and  drug  trafficking  must  be  a  priority  for  the  EU  and  its  Member 
States. We must address the threats we face together, which is why the Commission proposes 
to the European Parliament and the Council to fully endorse the priorities and medium- to long-
term measures set out in this roadmap. 

25