COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on the EU Drugs Strategy
Date: 2025-12-04
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU strategy, drug addiction, drug traffic, fight against crime, illicit trade, international cooperation, organised crime, psychotropic substance, public health

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 4.12.2025  COM(2025) 743 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on the EU Drugs Strategy  
 
 
INTRODUCTION 

Europe faces significant security, health and social challenges linked to the trafficking and use of 
illicit  drugs.  This  profoundly  impacts  the  safety  and  security  of  our  towns,  cities,  and  local 
communities.  Growing,  sophisticated  and  violent  drug  markets  contribute  to  increased  crime, 
dependency,  overdoses,  the  spread  of  infectious  diseases1,  and  environmental  degradation, 
destabilising communities2 and straining public resources.  

Illicit  drug production, trafficking  and distribution is  a growing and  evolving  global  criminal 
business. In the EU, half of the most dangerous criminal networks engage in drug trafficking, and 
over two thirds use violence3. Flows of cocaine to European ports, either directly from Latin 
America or via West Africa, have increased dramatically in recent years4. Criminal networks use 
information  technologies  and  adapt  their  modi  operandi  to  avoid  detection  and  adapt  to 
controls. They diversify trafficking operations to less controlled routes and expand their presence 
online, using e-commerce platforms and social media, anonymisation and encryption tools to their 
advantage.  They  divert  and  traffic  drug  precursors,  including  designer  precursors,  to  produce 
synthetic drugs. These criminals are infiltrating our society using violence, including by minors, 
exacerbating public insecurity, and destabilising communities, families, and economies.  

Drug use continues to pose serious health challenges in the EU, with young people particularly 
affected. With cocaine consumption rising and new psychoactive substances emerging, the risks 
of  poisoning  and  drug-related  fatalities  increase,  totalling  nearly  7 500  in  20235.  These 
developments strain monitoring systems  and hinder  effective  treatment and  harm reduction 
efforts. Even socially integrated groups increasingly use stimulants like cocaine, risking severe 
health impacts and long-term harm. Drug use threatens the health and social stability of various 
groups, especially those already in vulnerable situations. 

Finally, drug production and trafficking  damage the environment via the dumping of toxic 
chemical  waste  and  the  destruction  of  habitats,  impacting  local  communities’  living  space  and 
challenging law enforcement in the safe dismantling of drug laboratories and waste dumps. 

These threats are being felt across Member States by citizens in their everyday life. In a recent 
Eurobarometer, four out of 10 respondents reported that drug trafficking and drug use were serious 
problems in their areas, and over a third thought that problems had increased in recent years6.  

To  address  the  rising  challenges  of  drug  use  and  trafficking,  the  European  Union  needs  an 
ambitious drug policy approach. With this strategy, the Commission is setting a way forward that 
is aimed at safeguarding citizen’s well-being, enhancing public health, and ensuring security, 
while promoting multidisciplinary approaches to prevent harm and foster resilient, thriving 
communities and protect the environment. It is a strategy that will strengthen EU preparedness 
and response to current and future drug-related challenges.  

1 European Union Drugs Agency (EUDA) (2025), European Drug Report 2025. Trends and Developments. 
2 European Commission (2024), Eurobarometer survey on the impact of drugs on local communities. 
3 Europol (2024), Decoding the EU’s most threatening criminal networks. 
4 UNODC, World Drug Report (2025). 
5 EUDA (2025), European Drug Report 2025. Trends and Developments.  
6 European Commission (2024), Eurobarometer survey on the impact of drugs on local communities 

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THE DRUGS STRATEGY FRAMEWORK: OBJECTIVES AND GUIDING PRINCIPLES 

Reaffirming the EU’s commitment to a balanced and multidisciplinary approach, the Strategy 
aims  to  curb  drug  use  and  combat  organised  crime  by  reinforcing  health,  social,  and  security 
measures grounded in scientific evidence. Organised crime groups exploit legal gaps and policy 
variations,  with  the  drug  landscape  rapidly  changing.  The  strategy  therefore  promotes  an 
integrated approach to drug policy, advocating for coordination at EU, national, regional, and 
local levels. It intertwines security, health, and social responses to shield against potential drug 
crises, ensuring citizens and communities are protected and harm reduced.  

The  strategy  promotes  comprehensive  stakeholder  collaboration  through  a  whole-of-society 
approach, strengthening sectoral and partner cooperation and actively engaging civil society.  

Recognising  the  interconnected  nature  of  drug  production,  trafficking,  and  consumption,  and 
acknowledging that the challenges associated with the drug situation transcend national borders, 
the Strategy promotes coordinated international responses in collaboration with global partners. 
The objective of the strategy is to shape drug policy at EU and national levels and inform EU 
engagement internationally. 

It is based on five pillars aiming to:  

1) enhance EU and national preparedness to 
anticipate and respond to drug-related health 
and security threats;  
2)  protect  public  health  via  evidence-based 
preventive approaches and treatment;  
3)  improve  security  and  protect  society  by 
addressing drug production and trafficking and 
combatting criminal infiltration;  
4)  address  drug-related  harm  to  protect 
individuals  and  society  with  measures  that 
address individual health as well as social and 
environmental damages; and  
5)  build  strong  partnerships  to  address  the 
drug situation, in particular with third countries 
and regions. 

The  strategy  is  anchored  in  EU  values7  and  the  fundamental  rights  enshrined  in  the  EU 
Charter of Fundamental Rights8. It is based on international law, especially international drug 
control  conventions,  the  Charter  of  the  United  Nations,  and  implemented  in  accordance  with 
international human rights law. It aligns with global commitments such as the 2016 United Nations 
General  Assembly Special Session  outcome document9, the 2019 Ministerial Declaration10, the 

7 Notably those laid down in Article 2 of the Treaty on the European Union. 
8 Charter of Fundamental Rights of the European Union, OJ C 326, 26.10.2012, pp. 391. 
9 Outcome document of the 2016 United Nations General Assembly Special Session (UNGASS) on the world drug 
problem ‘Our joint commitment to effectively addressing and countering the world drug problem’. 
10 Ministerial declaration of 2019 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. 

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high-level Declaration on the 2024 mid-term review11 and the 2030 UN Agenda for Sustainable 
Development12.  
The  strategy  builds  on  the  evaluation  of  the  EU  Drugs  Strategy  and  Action  Plan  2021-202513, 
which highlighted its value while emphasising the need for a result-oriented approach. It relies on 
the monitoring of the drug situation by the relevant EU agencies, especially the European Union 
Drugs Agency (EUDA), widely recognised as a hub of scientific excellence on the drug-related 
issues  and  entrusted  with  a  new  key  role  in  enhancing  the  Union’s  preparedness  through  its 
strengthened mandate14, and Europol which provides robust intelligence-led analyses to support 
law enforcement efforts. It incorporates substantial contributions from continuous dialogue with 
Member States and dedicated workshops in the Council preparatory body in charge of drug policy, 
as well as valuable input from civil society groups like the Civil Society Forum on Drugs. The 
strategy is a key deliverable of the European Internal Security Strategy (ProtectEU)15 and aligns 
with the Preparedness Union Strategy16, the European Health Union17, including the reinforced 
EU  health  security  framework18,  and  the  Commission’s  proposal  on  new  rules  on  drug 
precursors19. 

Noting  the  results  of  the  evaluation  which  highlighted  the  need  to  propose  an  operational 
response to the drug situation, the Commission is complementing the strategy with a dedicated 
EU action plan against drug trafficking, to  disrupt  organised criminal  networks behind  drug 
trafficking, targeting their routes and criminal methods. Building on the priorities identified in the 
strategy, the action plan outlines urgent concrete actions to undertake at the EU level between 2026 
and  2030.  This  action  plan  includes  19  operational  actions  that  will  primarily  deliver  on  the 
strategic commitment to strengthen EU’s security, but also to enhance preparedness, address the 
harms caused by youth recruitment, and to build strong partnerships to address drug trafficking.  

I.  ENHANCING PREPAREDNESS AND RESPONSE 

11 High-level declaration by the Commission on Narcotic Drugs on the 2024 midterm review, following up to the 
Ministerial Declaration of 2019. 
12  United  Nations  General  Assembly,  UN  General  Assembly,  Transforming  our  world:  the  2030  Agenda  for 
Sustainable Development, A/RES/70/1, 21 October 2015. 
13 Commission Staff Working Document – Executive Summary of the Evaluation of the EU Drugs Strategy 2021-
2025  and  EU  Drugs  Action  Plan  2021-2025,  SWD  (2025)  188  final;  Commission  Staff  Working  Document  – 
Evaluation of the EU Drugs Strategy 2021-2025 and EU Drugs Action Plan 2021-2025, SWD (2025) 187 final. 
14 https://ec.europa.eu/commission/presscorner/detail/fi/ip_23_1936 
15 Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions on ProtectEU: a European Internal Security Strategy, COM/2025/148 
final. 
16 Joint Communication to the European Parliament, the European Council, the Council, the European Economic and 
Social Committee and the Committee of the Regions on the European Preparedness Union Strategy, JOIN/2025/130 
final. 
17 Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions, The European Health Union: acting together for people’s health, COM 
(2024) 206 final. 
18 Regulation (EU) 2022/2371 of the European Parliament and of the Council of 23 November 2022 on serious cross-
border threats to health and repealing Decision No 1082/2013/EU (Text with EEA relevance), OJ L 314, 6.12.2022, 
pp. 26–63.  
19  Proposal  for  a  Regulation  of  the  European  Parliament  and  of  the  Council  on monitoring  and  controlling  drug 
precursors and repealing Regulations (EC) No 273/2004 and (EC) No 111/2005, COM(2025) 747 final. 

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The dynamics of illicit drug supply and demand are evolving rapidly, driven by influential global 
criminal networks and spurred by geopolitical and technological developments20. New, potentially 
more toxic and addictive psychoactive substances  are  rapidly  emerging,  increasing the  risks of 
poisoning  and  drug-related  fatalities.  Enhancing  Europe’s  preparedness  in  health,  social  and 
security aspects related to drugs is crucial. 

Strategic priority 1 – Strengthen EU preparedness to address drug-related threats 

The  EU  must  step  up  the  monitoring  of  the  EU  drugs  situation,  updating  its  data  collection, 
analysis and dissemination systems and networks  to better anticipate and respond to  new drug 
challenges, including through preparedness measures and other evidence-based responses. 

1.1. Stepping up risk awareness and the EU’s forward-looking approach 

Strengthening the EU’s situational awareness means improving its ability to rapidly analyse and 
share data on emerging trends. The EUDA provides essential tools such as the European network 
of forensic and toxicological laboratories, which must be effectively rolled out to enhance the EU’s 
readiness. 

EU agencies, in particular the EUDA and Europol, should improve the timeliness of EU-level 
monitoring of the drug situation in close cooperation with the Member States. The EUDA will 
assist Member States in improving unified data collection, using sources such as the EU statistical 
office  (Eurostat)  geospatial  intelligence  tools  and  data  from  the  European  Centre  for  Disease 
Prevention and Control (ECDC). It will use innovative approaches to identify early signals that 
point to changes in the drug situation, building on their existing analyses of data from hospital 
emergencies, syringe residues or municipal wastewaters. 

Given the rapid and continuous emergence of new substances, sharing information swiftly across 
the EU is  key. To that end, the EUDA  will  upgrade the EU Early Warning System  to quickly 
identify new psychoactive substances, monitor their composition and potency, assess their harm 
and provide Member States this information systematically. The European network of forensic and 
toxicological  laboratories  will  support  this  information  exchange  and  provide  EU  specialist 
expertise. Furthermore, in certain cases of a serious cross-border threat to health, the Member State 
authorities or the Commission are to notify an alert in the Early Warning and Response System21 
in order to guarantee a more effective response. 

Finally, the EU and Member States should strengthen their foresight capabilities by leveraging 
new and existing data systems. This will help anticipate medium- and long-term developments in 
drug trends, like the impact of digitalisation, risks to young people, and the rise in synthetic drugs. 
The EUDA will boost its horizon scanning and foresight activities to identify shortcomings in drug 
markets, including the effect  of digitalisation,  the potential impact  of new synthetic drugs, and 
challenges arising from policy changes. 

1.2. Enhancing the EU’s response capacity 

20 Europol (2025), European Union Serious and Organised Crime Threat Assessment - The changing DNA of serious 
and organised crime. 
21 Regulation (EU) 2022/2371 of the European Parliament and of the Council of 23 November 2022 on serious cross-
border threats to health and repealing Decision No 1082/2013/EU, OJ L 314, 6.12.2022, p. 26. 

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The EU needs to be better prepared to respond to emerging drug-related threats. To this end, the 
EUDA, working  with  national  experts, will  develop  threat assessments on new drug-related 
health and security threats. The assessments will include clear response options to help mitigate 
the threats  at  both  national  and EU level22.  The EU’s  preparedness  must  cover the rise  of new 
potent synthetic drugs. The EUDA will therefore initiate a threat assessment dedicated to highly 
potent synthetic opioids in Europe. 

Furthermore,  complementing  EU  efforts  as  part  of  the  Union  prevention,  preparedness  and 
response  plan  for  health  crises23,  Member  States  should  develop  national  preparedness  and 
response  measures.  Member  States  should  ensure  their  systems  can  anticipate,  prevent,  and 
mitigate  threats,  including  by  swiftly  deploying  medical  countermeasures  and  harm  reduction 
supplies. 

The EUDA will also issue targeted rapid health and security alerts on serious drug-related risks, 
such  as  highly  potent  synthetic  drugs,  through  the  European  drug  alert  system24.  This  alert 
system will contribute to efficient and timely risk communications, linking in with national alert 
systems and directly reaching health practitioners and law enforcement officers. 

1.3. Bringing together research efforts 

Efforts at EU and national levels should focus on enhancing the understanding of research gaps 
related to drug behaviour, treatment options, polysubstance use, mental health disorders, and the 
societal  impact  of  drug  trafficking.  Through  research  dialogues25,  the  EU  aims  to  facilitate 
knowledge  sharing  and  establish  research  priorities.  The  EUDA  will  create  a  drug-related 
research database and a community of knowledge, bringing together policymakers, scientists, civil 
society, and field experts to bridge critical knowledge gaps. In order to foster security industry 
innovation  that  directly  benefits  to  law  enforcement,  the  European  Commission  will  map  the 
urgent  technological  and  operational  needs  of  law  enforcement  to  combat  organised  crime, 
including drug trafficking. 

Innovation remains central to addressing emerging health and security threats posed by drugs, such 
as  new  psychoactive  substances  and  new  forms  of  use,  including  vaping.  Leveraging  new 
technologies and artificial intelligence, the EU and Member States should ensure adequate funding 
for innovation, enhancing detection technologies that integrate AI to rapidly identify precursors at 
EU  borders  and  assist  law  enforcement  in  dismantling  drug  production.  The  Commission, 
supported by Europol and the EUDA, will coordinate the dissemination of innovative practices to 
actors in the drug sector. Innovative tools to map rural production areas, trafficking corridors, 
and  environmental  risk  zones  need  scaling  up  to  enhance  the  intelligence  picture.  Training 
should  be  provided  to  improve  law  enforcement’s  technical  skills,  complemented  by  ongoing 

22 In synergy with the assessment of prevention, preparedness and response planning under Article 8 of Regulation 
(EU) 2022/2371 on serious cross-border threats to health. 
23 Commission Staff Working Document introducing the Union prevention, preparedness and response plan for health 
crisis, SWD (2025) 393 final. 
24 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, pp. 6, Article 13. 
25 Annual exchange on drug-related research within the framework of the Horizontal Group on Drugs to strengthen 
policy-research links and collaboration at EU level established following the Council conclusions of December 2009 
on strengthening EU research capacity on illicit drugs, 17177/09. 

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research to refine the intelligence picture, ensuring a comprehensive understanding and effective 
response to drug-related challenges. 

Through  the  EU’s  research  and  innovation  funding  programmes,  the  Commission  will  boost 
research  to  understand  drug  use  disorders  and  behavioural  patterns,  while  also  advancing 
innovative therapies for stimulant use and harnessing opioids and psychoactive substances safely 
for medical purposes. Promoting digital tools and healthcare applications is essential to optimise 
healthcare and social systems. 

In this context, the European Health Data Space (EHDS) will facilitate secured access to electronic 
health data across Member States, supporting research, innovation and public policy making on 
drug-related health trends, treatment outcomes, and the impact of new psychoactive substances26. 

Key priorities  

The Commission and Member States, with the support of relevant EU agencies, should: 

• 

facilitate  knowledge  sharing  and  the  identification  of  research  priorities  via 
research dialogues;  

•  coordinate  operational  support  and  dissemination  of  innovative  practices  and 

solutions to relevant actors in the drug sector. 

In line with its extended mandate, the EUDA will: 

•  upgrade the EU early warning system to identify swiftly and systematically new 

psychoactive substances and disseminate this information to the Member States;  

• 

implement a European drug alert system to issue targeted rapid health and 
security alerts on serious drug-related risks; 

•  develop  threat  assessments  on  new  drug-related  health  and  security  threats  and 
carry out a specific threat assessment on highly potent synthetic opioids in Europe; 

• 

improve the timely monitoring of the drug situation by scaling up EU-wide data 
collection,  notably  building  on  rapid  reporting  from  the  Reitox  National  Focal 
Points27. 

Member States are encouraged to: 

•  develop  national  preparedness  and  response  measures  with  actions  to  anticipate 

and mitigate new and emerging drug-related threats. 

II.  PROTECTING PUBLIC HEALTH 

Public health is heavily impacted by the growing availability and use of diverse and potent illicit 
drugs. Demand reduction therefore remains at the forefront of the EU’s response to illicit 
drug use. In conjunction with harm reduction efforts, a comprehensive range of measures should 

26 Regulation (EU) 2025/327 of the European Parliament and of the Council of 11 February 2025 on the European 
Health Data Space and amending Directive 2011/24/EU and Regulation (EU) 2024/2847, OJ L, 2025/327, 5.3.2025. 
27  The European Information Network on Drugs and Drug Addiction (the ‘Reitox network’). 

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work  together  to  achieve  three  main  goals:  reduce  drug  use,  provide  accessible  treatment  for 
everyone, and support the recovery and social reintegration of people with drug use disorders. 

Strategic priority 2: Implement evidence-based prevention and risk awareness 

The EU should actively engage in preventing and reducing drug use through the implementation 
and expansion of robust prevention and awareness raising activities across Member States, while 
scaling up evidence-based and effective health interventions. 

2.1. Strengthen effective prevention activities  

Evidence-based prevention should be central to the EU’s public health approach to reduce the risks 
of drug dependence and drug-related harm.  Member States  should therefore step up  universal 
prevention  activities.  Early  prevention  programmes  should  build  resilience,  increase  health 
literacy  and  promote  life  skills  and  healthy  lifestyles.  Environmental  prevention  activities  to 
reduce  individuals’  exposure  to  substance  use  and  dependence  should  be  implemented28.  To 
significantly  strengthen  the  resilience  of  citizens,  drug  prevention  activities  must  be  integrated 
with  interventions  that  address  other  critical  health  factors,  such  as  tobacco  use  and  harmful 
alcohol consumption, along with comprehensive health promotion initiatives. 

The Commission will step up its work on preventive health through initiatives on cardiovascular 
diseases  and  mental  health  under  the  Healthier  Together  -  EU  non-communicable  diseases 
framework29.  This  approach  aids  in  reducing  drug  use  and  bolstering  mental  health  resilience 
against substance use disorders. The Commission supports Member States with a comprehensive 
approach to mental health through a dedicated Communication30, focusing on vulnerable groups 
and  health  inequalities.  Key  initiatives  include  capacity  building  for  Member  States  in 
collaboration  with  the  World  Health  Organization  (WHO)31,  and  the  establishment  of  EU 
PROMENS32, a training and exchange programme on mental health with a focus on supporting 
vulnerable groups. 

At the same time, we need to improve citizens’ perception of the risks to health and to security 
linked  to  drug  use  and  drug  production  and  trafficking.  A  serious  concern  is  the  rising  use  of 
stimulants like cocaine, which not only presents significant challenges to public health, including 
long-term health risks33, but also triggers security concerns related to violence and crime linked to 
the  cocaine  market34.  The  EU  should 
therefore  promote  evidence-based  awareness 
communications. To address these issues more effectively, the EUDA will help Member States 
develop effective awareness-raising activities targeted at priority areas, including cocaine use 
and potent new synthetic drugs.  

28 Environmental interventions are regulatory, economic and physical measures designed to change the cultural, social, 
physical and economic context in which people make decisions (about drug use) and support healthier choices. 
29 Healthier together – EU non-communicable diseases initiative - Public Health. 
30 Mental health - Public Health - European Commission 
31 who.int/europe/activities/partnering-with-the-european-union-(eu)-to-tackle-mental-health-challenges 
32 EU-PROMENS Project Page - EU-PROMENS 
33 EUDA (2025), European Drug Report 2025. Trends and Developments. 
34 EUDA and Europol (2024). EU Drug Markets Analysis: Key insights for policy and practice. 

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Additionally,  Member  States  should  focus  on  creating  and  promoting  targeted  prevention 
measures specifically designed for groups that  are particularly vulnerable to exposure to illicit 
drugs. These include young people at risk of or already experimenting with drugs and people with 
acute  and  chronic  mental  health  disorders.  Targeted  prevention  activities  should  be  rooted  in 
science and tailored to specific socio-economic and cultural contexts and implemented across a 
variety of settings such as schools, sports, nightlife, internet, and social media platforms, as well 
as prisons. 

2.2. Disseminate evidence for effective prevention activities 

The  EU  should  promote  the  implementation  of  evidence-based  awareness  and  prevention 
programmes, monitoring new interventions, reviewing their effectiveness, and disseminating best 
practices. 

Implementation  of  existing  quality  standards  for  prevention  should  be  strengthened  across 
Member  States.  The  Minimum  Quality  Standards  in  demand  reduction,  the  European  Drug 
Prevention Quality Standards, the United Nations Office on Drugs and Crime (UNODC)/WHO 
International Standards on Drug Use Prevention and the European Prevention Curriculum provide 
practical guidance for effective prevention. National efforts should be strengthened to improve the 
quality  of  prevention,  treatment,  and  care  activities  by  developing  training  modules  for 
practitioners, health professionals, social workers, law enforcement and decisionmakers. 

Strategic priority 3: Enhance treatment, recovery and reintegration 

Member States should ensure that people who use drugs have access to health and social care by 
providing affordable treatment aligned with reintegration and social inclusion activities. 

3.1. Ease access to voluntary, integrated, and adapted treatment options 

People who use drugs should have easy and timely access to affordable, quality and adapted 
treatment, in line with the right to care laid down in the European Pillar of Social Rights35. With 
a variety of illicit drugs in circulation, insufficient availability and uptake of treatment negatively 
impacts health. 

As  a  result,  national  and  regional  healthcare  systems  should  strive  to  improve  their  ability  to 
provide effective people-centred treatment and recovery services for drug use disorders throughout 
Europe, including in less developed regions, rural and remote areas and the EU outermost regions. 
Recognising that individuals’ needs vary, Member States are encouraged to offer a broad range 
of  evidence-based  treatment  options,  within  a  continuum  of  care.  This  includes  integrated 
services for individuals facing polysubstance use and those with concurrent drug and mental health 
issues36. Additional treatment options are needed to address stimulant use, like cocaine. Integrated 
drug treatment services should combine health, social, and, when appropriate, law enforcement 
services to reflect the interconnectedness of health, social well-being, and safety. 

35 Communication from the Commission to the European Parliament, the Council, the European Council, the European 
Economic and Social Committee and the Committee of the Regions, Establishing a European Pillar of Social Rights, 
COM/2017/0250 final. 
36 Council conclusions of December 2023 on people having drug use disorders that co-occur with other mental health 
disorders, 16112/23. 

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Furthermore,  Member  States  should  scale  up  drug-related  prevention,  treatment,  and  care  in 
prisons to address the higher prevalence of drug use in prison settings compared to the general 
population. Treatment, rehabilitation, and recovery need to continue, both during incarceration and 
upon release. 

Access to treatment in Europe should be voluntary and of high quality. Member States should 
improve the quality of treatment delivered to match the latest scientific evidence and evolving 
societal needs. Member States are therefore encouraged to update and implement the minimum 
quality standards in drug demand reduction adopted by the Council in 201537 and engage with civil 
society organisations and peer groups. The EUDA will support those efforts, assessing the quality 
of  interventions  at  national,  regional,  and  local  levels  (EU-Quality)  and  developing  EU-wide 
comprehensive guidance on quality standards. 

3.2. Promoting reintegration and social inclusion 

Drug treatment services should be complemented by activities that stimulate recovery and social 
reintegration,  promoting  a  whole-of-society  approach.  To  prevent  individuals  from  slipping 
through  the  gaps,  it  is  essential  to  encourage  active  collaboration  among  health,  social, 
employment, youth, and harm reduction services. 

Drug  use  can  be  both  a  consequence  and  a  cause  of  social  exclusion.  Member  States  need  to 
improve  reintegration  of  people  with  drug  use  disorders  into  the  community  and  the  labour 
market. This helps to reduce drug use and the risk of relapse after treatment. To contribute to those 
efforts,  the  Commission  will  promote  the  socio-economic  integration  of  people  in  vulnerable 
situations including people using drugs, through current and future EU spending instruments, such 
as the European Social Fund Plus (ESF+) and the European Regional Development Fund (ERDF) 
or the proposed national and regional partnership plans beyond 2028. 

Social measures can also make a real difference for people using drugs, in particular for those also 
at risk of poverty, social exclusion, or homelessness. Member States are encouraged to implement 
social support measures aimed at people using drugs, including via community and peer-led 
projects  linked  to  recovery,  housing,  mental  health  assistance,  and  job  opportunities.  The 
Commission will strengthen measures to address the multiple dimensions and structural causes of 
exclusion  and  strengthen  access  to  social  and  support  services,  also  in  the  context  of  the 
forthcoming  EU  Anti-Poverty  Strategy.  Furthermore,  as  part  of  the  European  Platform  on 
Combating  Homelessness,  the  Commission  will  establish  the  needs  of  vulnerable  groups, 
including people using drugs, and combat homelessness in all policies. 
Integrating  security  and  social  policies  is  essential.  Alternatives  to  pre-trial  detention38  and  to 
coercive sanctions39 can assist in the socio-economic reintegration of individuals with drug-related 
offences, help aid to reduce recidivism, lessen stigma, and potentially lower judicial costs while 
improving security outcomes. Member States should strengthen and expand the availability of 

37  Council  conclusions  of  September  2018  on  the  implementation  of  the  EU  Action  Plan  on  Drugs  2013-2016 
regarding minimum quality standards in drug demand reduction in the European Union, 11985/15. 
38 Commission Recommendation (EU) 2023/681 of 8 December 2022 on procedural rights of suspects and accused 
persons subject to pre-trial detention and on material detention conditions, OJ L 86, 24.3.2023, pp. 44. 
39 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).  

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such alternatives to better connect  criminal, social and health systems, in particular for young 
people. 

To disseminate scientific evidence and best practices to a wider range of professionals, the EUDA 
will roll out a new learning platform – PLATO 2.0 – under which expanded and tailored e-learning 
possibilities on social reintegration will be made available. 

Key priorities 

The Commission will: 

•  step up efforts on preventive health, rolling out the Healthier Together - EU non-

communicable diseases initiative; 

• 

take forward its flagship projects under the Communication on a comprehensive 
approach to mental health. 

The EUDA will: 

•  support  Member  States  in  designing  effective  awareness-raising  activities  on  the 

impact of drug use and drug trafficking; 

•  develop  and  promote  EU-wide  comprehensive  guidance  on  minimum  quality 
standards  and  advise  Member  States  on  implementing  effective  prevention  and 
treatment. 

Member States are encouraged to: 

•  step up universal and environmental health prevention and develop and implement 
evidence-based prevention activities specifically designed for groups in vulnerable 
situations and young people;  

•  strengthen  the  availability  of  evidence-based  treatment  options  integrated  in  a 

continuum of care and addressing increased stimulant use; 

•  promote the integration of people using drugs, via social support measures, as well 
as strengthen and expand the availability of alternatives to pre-trial detention and 
coercive sanctions for drug-related offences. 

III. 

IMPROVING SECURITY AND PROTECTING SOCIETY 

Drug trafficking networks operate globally and bring with them violence, corruption, infiltration 
of  the  legal  economy  and  harm  to  society.  Trafficking  networks  are  bringing  unprecedented 
amounts  of  cocaine  into  the  EU,  as  well  as  other  illicit  drugs.  Preventing  and  disrupting  drug 
related crime is essential to break up criminal networks, disrupt trafficking routes and dismantle 
drug production facilities.  

The  strategy  offers  a  comprehensive  framework  to  address  the  drug  situation,  focusing  on  key 
issues  related  to  drug  trafficking.  It  is  complemented  by  a  dedicated  action  plan  that  defines 
specific priority actions needing further development or increased efforts. The action plan aims to 
enhance security in response to the current drug situation and can be complemented with additional 
measures depending on the evolution of the drug situation.  

10 

 
 
 
 
 
Strategic priority 4: Enhance law enforcement and judicial cooperation  

The  EU  will  intensify  its  efforts  to  break  up  high-risk  criminal  networks  that  contribute  to  the 
proliferation of illicit drugs across its territory. This involves proposing stricter rules to tackle 
organised  crime,  reinforcing  the  capabilities  of  law  enforcement  and  judicial  authorities  in 
investigation  and  prosecution,  recovering  proceeds  from  criminal  activities,  and  disrupting 
criminal operations within prison systems. 

4.1. An effective legal framework against drug trafficking  

The  Commission  will  propose  revised  rules  against  organised  crime  in  2026,  which  will 
reinforce options to dismantle the organised crime networks behind drug trafficking. In addition, 
it will evaluate the Framework Decision on drug trafficking40 to assess whether it remains fit for 
purpose, assessing in particular the contribution it makes to effective cross-border cooperation. 
The  Commission  will  also  assess  the  need  to  strengthen  the  European  Investigation  Order  to 
improve the cross-border gathering of evidence in criminal matters. 

4.2. Strengthening capabilities of law enforcement and judicial authorities 

Investigating organised crime and drug trafficking operations within the current criminal landscape 
is  challenging.  Effective  dismantling  of  these  networks  requires  coordinated  efforts  by  law 
enforcement  and  judicial  authorities,  supported  by  robust  cross-border  cooperation  and 
information  exchange.  As  criminal  networks  grow  more  sophisticated,  law  enforcement  and 
judicial responses must adapt, using new technologies and AI. Member States should prioritise 
enhancing the capabilities of these authorities to effectively detect, investigate, and prosecute drug 
trafficking, employing improved legal and operational tools.  

The  strengthened  European  Multi-disciplinary  Platform  against  Criminal  Threats 
(EMPACT)  will  boost  operational,  cross-border  collaboration.  The  new  EMPACT  cycle  has 
identified  key  priorities  for  fighting  drug  trafficking  and  identifying  and  disrupting  the  most 
threatening criminal networks41. 

EU  agencies  and  bodies  will  support  national  authorities  in  the  fight  against  drug  trafficking. 
Europol’s  activities  on  drug  trafficking  provide  a  framework  for  operational  cooperation.  Its 
mandate  will  be  reinforced,  as  announced  in  the  ProtectEU  internal  security  strategy,  offering 
strengthened support to Member States in countering drug trafficking. Eurojust supports national 
judicial authorities in efficiently prosecuting drug trafficking networks. Its strengthened mandate 
will also  serve the  fight  against drug trafficking  by increasing  Eurojust’s ability to  support  the 
investigation and prosecution of drug-related offences. The new EU Customs Authority and the 
EU Customs Data Hub will better equip customs to perform risk analysis at EU level and further 
improve the cooperation between customs and other law enforcement bodies. 

The  EUDA’s  updated  mandate  increases  its  capacity  to  monitor  drug  market  development  and 
provide evidence-based responses to counter them. CEPOL, the EU Agency for Law Enforcement 
Training, will boost its support to Member States via capacity building and training. The planned 

40  Council  Framework  Decision  2004/757/JHA  of  25  October  2004  laying  down  minimum  provisions  on  the 
constituent elements of criminal acts and penalties in the field of illicit drug trafficking, OJ L 335, 11.11.2004, pp. 8. 
41  Council  conclusions  of  June  2025  on  the  enhancement  of  EMPACT  and  on  EU  crime  priorities  for  the  next 
EMPACT cycle 2026-2029, 9397/25. 

11 

 
 
 
reinforcement  of  Frontex,  the  European  Border  and  Coast  Guard  Agency,  will  provide  it  with 
advanced  surveillance  technology  and  situational  awareness  tools.  This  will  enhance  Frontex's 
capacity  to  detect,  prevent,  and  combat  cross-border  crime  at  external  borders,  including  drug 
trafficking. Further synergies with the Secure Connectivity and EU Space Programmes should be 
developed  to  strengthen  Frontex  capabilities  in  the  fields  of  secured  communication,  resilient 
positioning, navigation and timing, and earth observation. 

4.3. Follow the money to fight criminal organisations 

Following the money is crucial for combating organised crime and drug trafficking networks. In 
2024,  the  EU  reinforced  the  legal  framework  on  anti-money  laundering42  as  well  as  on  asset 
recovery and confiscation, underlining the importance of financial investigations  for disrupting 
criminal  organisations.  Member  States  should  incorporate  the  strengthened  rules  on  asset 
recovery and confiscation43 into national law without delay and use them to their full potential.  

To protect local communities and legitimate businesses, the EU and Member States should step 
up  efforts  to  detect  and  prevent  criminal  infiltration  into  legal  businesses,  pursuing  the 
administrative approach44. To trace and seize criminal assets, the EU needs to explore innovative 
practices  to  detect  money  laundering  and  track  organised  crime  profits.  As  highlighted  in  the 
ProtectEU internal security strategy, the Commission is exploring the feasibility of a new EU-wide 
system to track terrorist financing. To respond to the organised crime threat,  it will expand the 
assessment to also cover organised crime profits. 

Additionally, efforts will be directed towards enhancing the use of technologies such as advanced 
analytics and AI to track crypto asset transactions, focusing on the financial operations of criminal 
organisations, particularly in crimeas-a-service scenarios. 

Corruption fuels every stage of the drug trafficking, undermining the licit economy and often goes 
hand  in  hand  with  intimidation.  Tackling  corruption  remains  a  key  priority  for  dismantling 
organised  crime  and  drug  trafficking.  Through  the  upcoming  EU  anti-corruption  strategy,  the 
Commission  will  strengthen measures to  address the threat  and use of  corruption by organised 
crime. In addition, the Commission will work with the co-legislators to allow for a swift adoption 
of the directive on combating corruption45. 

4.4. Addressing drugs trafficking in custodial environments 

Drug  trafficking  does  not  stop  with  incarceration.  Criminal  networks  exploit  communication 
channels and use visitors to smuggle drugs into prisons and to coordinate drug operations outside. 
Prison staff can face intimidation, bribery attempts or direct threats. The EU needs to protect public 

42 Regulation (EU) 2024/1624 of the European Parliament and of the Council of 31 May 2024 on the prevention of 
the  use  of  the  financial  system  for  the  purposes  of  money  laundering  or  terrorist  financing,  OJ  L,  2024/1624, 
19.6.2024. 
43 Directive (EU) 2024/1260 of the European Parliament and of the Council of 24 April 2024 on asset recovery  
and confiscation, OJ L, 2024/1260, 2.5.2024. 
44 Council conclusions of June 2016 on the administrative approach to prevent and fight serious and organised crime, 
9935/2016. 
45 Proposal for a Directive of the European Parliament and of the Council on combating corruption, replacing Council 
Framework  Decision  2003/568/JHA  and  the  Convention  on  the  fight  against  corruption  involving  officials  of  the 
European Communities or officials of Member States of the European Union and amending Directive (EU) 2017/1371 
of the European Parliament and of the Council, COM/2023/234 final. 

12 

 
 
 
safety and the integrity of justice systems against this threat. Alongside Member States, the EU 
should promote evidence-based solutions and share best practices for disrupting criminal activity 
within prison systems. 

Strategic priority 5: Disrupt drug trafficking routes 

The EU is committed to disrupting drug trafficking networks by targeting trafficking routes across 
sea, land, and air. A concentrated effort will be made to combat drug trafficking in online spaces 
to  dismantle these illicit operations and significantly hinder  the activities of  criminal  networks 
involved. 

5.1. Identify and dismantle drug trafficking via maritime routes 

Criminal  networks  smuggle  drugs  into  European  seaports  on  a  large  scale.  Maritime  drug 
trafficking routes are highly diversified including through the EU’s outermost regions, and reports 
show  a  shift  in  the  modus  operandi,  with  drug  shipments  arriving  to  a  wider  range  of  smaller 
European ports. To conceal these shipments, criminals use new methods often undetectable by law 
enforcement  and  maritime  authorities.  Europol  will  strengthen  the  strategic  analysis  of 
maritime trafficking to identify the operational needs for disrupting new methods of transporting 
and concealing drugs. 

The  Maritime  Analysis  and  Operation  Centre  (MAOC-N)  should  further  intensify  its 
activities, notably the monitoring of vessels carrying illicit drugs in high seas. 

As  the  main  EU  framework  for  public-private  cooperation  against  drug  trafficking,  the 
Commission will share best practices through the enlarged European Ports Alliance, improving 
the resilience of ports across the EU. The upcoming EU Ports Strategy will put an emphasis on 
security, drawing on strategic dialogue with government officials, port authorities, private sector, 
and other key stakeholders. The aim is to enhance the security and preparedness of EU ports.  

5.2. Addressing drug trafficking through land, post and parcel, and aviation 

The increased production of synthetic drugs, combined with the rapid expansion of e-commerce, 
offers ample possibilities to smuggle illicit drugs through postal and parcel delivery services. Post 
and parcel trafficking of smaller quantities, which are harder to detect, cumulatively fuel large-
scale trafficking operations. To improve the detection of illicit drug flows, the EU will promote 
public-private  cooperation  between  the  postal  and  parcel  delivery  sector,  customs,  and  law 
enforcement authorities. The action plan against drug trafficking includes concrete steps to take 
this cooperation forward. 
High-value,  low-volume  shipments  containing  designer  precursors46  or  drug  precursors  are 
increasingly being smuggled via air routes. In addition to their use of commercial aviation via the 
exploitation of human couriers, criminal networks increasingly use private planes, small aircraft, 
and  non-scheduled  flights  to  smuggle  drugs  undetected.  The  EU  will  work  to  increase  the 
monitoring and security controls of general aviation, including increased information exchange 
between relevant civil aviation and law enforcement authorities, including customs.  

5.3. Improving the monitoring and interception of drugs distributed online 

46 A close chemical relative of a drug precursor which does not have any known legitimate use except research and 
innovation 

13 

 
 
 
Criminals  use  both  the  open  and  dark  web  to  promote,  sell  and  distribute  illicit  drugs.  Law 
enforcement agencies need enhanced capabilities and operational support to effectively detect and 
investigate these online activities, including those on the dark web and social media. To improve 
safety,  protect  minors  and  combat  the  dissemination  of  illegal  content  online,  online  service 
providers  and  authorities  must  fully  comply  with  the  Digital  Services  Act  (DSA).  The 
Commission  will  continue  to  monitor  and  enforce  the  due  diligence  compliance  of  very  large 
online platforms and search engines under the DSA. Additionally, the EU Internet Forum will 
leverage  voluntary  cooperation  with  online  platforms  to  address  challenges  and  share  best 
practices for disrupting online drug sales and preventing the recruitment of minors by criminal 
networks, building on the measures included in the Commission Guidelines on measures to ensure 
a  high  level  of  privacy,  safety  and  security  for  minors  online,  pursuant  to  Article 28(4)  of 
Regulation (EU) 2022/206547.  As part of the EU Internet Forum, this activity will enhance social 
media platforms’ role in drug use prevention, with a particular focus on reaching young people, in 
cooperation with the EUDA48. 

Strategic priority 6: Combat the production of synthetic drugs and precursors 

To address the challenge posed by increased production, import and trafficking of synthetic drugs, 
the EU will boost operational efforts to detect and safely dismantle clandestine laboratories and 
stop the inflow of drug precursors. 

6.1. Strengthening operational capabilities to detect and dismantle clandestine laboratories 

Detecting and dismantling clandestine laboratories producing and exporting synthetic drugs and 
new psychoactive substances remains a significant challenge. These substances are an important 
EMPACT priority, where police and customs work together to achieve results. With the support 
of EMPACT, the EUDA will contribute to an improved understanding of criminal drug production 
on  the  EU  territory  by  developing  a  European  database  on  drug  production  incidents,  in 
collaboration with affected Member States. 

Dismantling drug production laboratories is complex and poses serious health risks to the public 
and  law  enforcement,  alongside  environmental  risks.  To  address  this,  the  Commission  and 
Member States will provide guidelines and protocols to help law enforcement detect and dismantle 
clandestine synthetic drug labs using advanced detection technologies and specialised training 
programmes. This approach aims to reduce risks for law enforcement and environmental harm. 
Additionally, Europol and CEPOL will create instructions for the safe transport and disposal of 
seized  chemicals  and  equipment,  outline  best  practices  for  safely  dismantling  laboratories,  and 
enhance training and capacities in this area. 

6.2. Tackling the diversion and trafficking of drug precursors and designer precursors  

Drug precursors are often misused to produce synthetic drugs and new psychoactive substances, 
posing a significant threat to public safety. The Commission’s revision of legislation concerning 
precursors is essential for enhancing the monitoring and control of drug precursors and designer 

47 Regulation (EU) 2022/2065 of the European Parliament and of the Council of 19 October 2022 on a Single Market 
For Digital Services and amending Directive 2000/31/EC (Digital Services Act), OJ L 277, 27.10.2022, pp. 1. 
48 Building on the measures included in the Commission Guidelines on measures to ensure a high level of privacy, 
safety and security for minors online, pursuant to Article 28(4) of Regulation (EU) 2022/2065. 

14 

 
 
 
precursors49. This proposal aims to empower enforcement authorities and economic operators to 
more effectively identify suspicious transactions, thereby enhancing cooperation and vigilance in 
preventing  illegal  drug  production.  To  assist  implementation,  the  EUDA  will  monitor 
developments related to the diversion and trafficking of drug precursors. It will also contribute to 
implementing  the  EU  law  on  drug  precursors  by  developing  a  Drug  Precursors  Information 
Repository,  containing  information  on  precursors  facilitating  information  sharing  for  their 
identification. Alongside, the EU should step up work with international partners to monitor and 
subsequently disrupt the illicit production, diversion, and trafficking of drug precursors, including 
designer precursors. To facilitate forensic investigations at national level, the EU will step up its 
support to detect precursors used in drug production facilities. 

Key priorities 

The Commission will: 

• 

implement, in close collaboration with Member States and relevant EU agencies, 
the dedicated EU action plan against drug trafficking; 

•  evaluate the existing Framework Decision on drug trafficking in 2026; 

•  deliver an EU Ports Strategy with a strong focus on port security; 

•  will work with the co-legislators to advance the swift adoption of the new rules on 

precursors;  

•  assess  the  feasibility  of  establishing  a  new  EU-wide  system  to  track  financing 

related to both organised crime and terrorism. 

The EUDA, with support of EMPACT, will: 

•  develop a European database on drug production incidents. 

Member States are encouraged to: 

•  reinforce national authorities’ capacities to detect, investigate and prosecute drug 

trafficking;  

• 

incorporate  into  national  law  and  implement  the  strengthened  rules  on  asset 
recovery and confiscation; 

•  detect  and  prevent  criminal  infiltration  into  legal  businesses  through  the 

administrative approach. 

IV.  ADDRESSING RISKS AND HARM 

The potential impact of illicit substances on people who use drugs, public spaces, and society is a 
growing concern. The rise of potent new psycho-active substances escalates the risk of overdose 
deaths, while drug trafficking introduces violence and environmental harm to local communities. 

49 COM(2025) 747 final. 

15 

 
 
 
 
 
 
To address these issues, the EU must focus on significantly reducing drug-related risks and harms, 
alongside enhancing preparedness. 

Strategic priority 7: Reduce individual drug-related harm 

In a continuum of care with prevention and treatment, the EU and Member States will increase 
the availability of effective harm and risk reduction interventions to protect the people who use 
drugs from harm. 

7.1. Increase  the  availability  and  coverage  of  evidence-based  harm  and  risk  reduction 

interventions 

As  new  drugs  bring  new  risks,  Member  States  need  to  expand  and  adapt  harm  reduction 
interventions. Close collaboration between health and social professionals, civil society and peer 
groups is crucial. Interventions should be integrated with other health promotion activities to reach 
high-risk  populations,  for  instance  via  rooms  for  safe  and  supervised  drug  consumption,  drug 
checking facilities or mobile units that provide health and social support. Risk and harm reduction 
measures,  including  actions  supported  through  cohesion  policy  funds,  must  be  embedded  in 
regional and local policies and realities, with actors working together to promote community-based 
health, safety, and security.  

Harm  reduction  interventions  that  seek  to  prevent  or  reduce  the  risks  of  overdose,  infectious 
diseases,  and  life-threatening  infections  need  specific  focus.  Member  States  are  urged  to  take 
measures to prevent or reduce the risk of drug overdose and death, particularly related to opioids, 
by increasing access to evidence-based interventions like opioid agonist treatments and naloxone, 
including take-home naloxone programmes. Innovative strategies are also vital for addressing the 
risks  associated  with  new  drugs,  such  as  synthetic  cannabinoids,  and  new  usage  methods  like 
vapes. 

Additional efforts should focus on preventing, treating, and reducing drug-related blood-borne 
infections, especially HIV and hepatitis C (HCV), as well as vaccine-preventable diseases like 
hepatitis  A  and  B.  People  who  inject  drugs  should  have  access  to  life-saving  interventions 
informed by the EUDA and ECDC guidance on preventing and controlling infectious diseases50. 
Widely available needle and syringe programmes alongside voluntary HIV and HCV testing and 
treatment are crucial. The Commission will collaborate with the Civil Society Forum on Drugs to 
identify systemic barriers affecting vulnerable populations, including people using drugs. 

In  addition,  Member  States  should  consider  developing  and  implementing  dedicated  harm 
reduction  interventions  for  specific  at-risk  groups.  These  include  people  with  mental  health 
disorders, people in custodial settings, LGBTIQ+, migrants, as well as young people in recreational 
settings such as nightclubs or festivals. 

7.2. Disseminating the evidence on effective harm reduction interventions  

While  various  risk-  and  harm-reduction  measures  exist  to  reach  high-risk  populations,  further 
innovative  measures  should  be  made  available  as  drugs  and  drug  use  evolve.  The  EUDA  will 

50 European Centre for Disease Prevention and Control (ECDC) and European Monitoring Centre for Drugs and Drug 
Addiction (EMCDDA) (2023), Prevention and control of infectious diseases among people who inject drugs. 

16 

 
 
 
review  the  effectiveness  of  new  interventions  and  share  best  practices  via  a  harm  reduction 
database. These efforts will ensure information is widely available to support the development 
of quality standards on harm reduction. 

Building  on  the  success  of  the  European  Prevention  Curriculum,  the  EUDA  will  develop  a 
dedicated training programme to improve the implementation of evidence-based harm reduction 
measures. The European Harm Reduction Curriculum will help Member States build capacity 
for harm reduction across Europe. 

Strategic priority 8: Mitigate social and environmental impacts 

The EU will  increase  crime prevention  efforts to counter the growing  violence associated with 
illicit drug trafficking, with particular attention to protecting young people from recruitment into 
crime and reducing the harm illicit drugs cause to society, local communities and the environment. 

8.1. Addressing drug related violence and stepping up crime prevention 

Drug-related violence is becoming more complex, often linked to organised crime creating cycles 
of harm which impact the safety and security of our towns, cities, and local communities. Children 
and young people are particularly vulnerable as they can be victims, perpetrators, and recruits for 
these  groups.  To  tackle  drug  violence,  the  EU  aims  to  disrupt  criminal  networks  and  promote 
community-based policing that integrates community safety with public health initiatives. Under 
the EU agenda for cities, the Commission will support local authorities by promoting innovative 
local projects and facilitating best-practice exchanges. This support aims to enhance community 
resilience  and  cohesion  to  address  security  and  social  integration  challenges,  including  those 
associated with drug-related issues. In addition, the EUDA will conduct research and monitoring 
to better understand drug-related violence at various levels. 

The EU will also step up efforts to prevent the recruitment of young people into organised crime, 
including  online  measures  and  evidence-based  prevention  measures.  Member  States  are 
encouraged to strengthen protective environments for young people, using best practices available 
through the EU Crime Prevention Network Knowledge Centre. These efforts require collaboration 
among  law  enforcement,  social  workers,  health  professionals,  and  civil  society.  The  European 
Crime  Prevention  Network  will  develop  a  dedicated  toolbox  to  address  the  recruitment  of 
minors by criminal networks to support these efforts. 

In  addition,  to  protect  children  from  all  forms  of  crime,  including  related  to  drugs  online  and 
offline, the EU will propose an Action Plan on the Protection of Children against Crime, as 
announced in the ProtectEU internal security strategy. 

8.2. Addressing drug-related stigma and discrimination 

Europe must tackle the stigma associated with drug use and related disorders51, as it negatively 
impacts the mental and physical health of individuals. It can hinder their ability to seek support 
and  integrate  into  society,  potentially  leading  to  school  dropout  among  young  people.  Policies 
should integrate experiences of individuals affected by drug-related stigma, particularly through 

51 Council conclusions of December 2022 on human rights-based approach in drug policies, 15818/22. 

17 

 
 
 
on-going  engagement  with  civil  society,  including  people  who  use  drugs  and  clients  of  drug-
related services. The EU will enhance awareness, promote information sharing, and foster mutual 
learning via the  EU Health Policy Platform, the EU Best Practice Portal  on Public Health, and 
Horizon Europe-funded research projects. Additionally, investment from ESF+ and ERDF should 
synergise with other EU funds and programmes to support social inclusion comprehensively. 

8.3. Taking a gender-responsive approach to the drug phenomenon 

The drug situation affects men and women differently, with women representing about a quarter 
of those with serious drug problems, but only a fifth of those entering treatment. Overdose deaths 
among women in the EU rose by 76% from 2013 to 2023, indicating additional barriers women 
face in accessing health and social services. 

Member States should implement gender-responsive measures within all strategy pillars to ensure 
non-discriminatory, barrier-free access to services, particularly for treatment and harm reduction. 
Tailored services should include women-only options, childcare, and specialised trauma-informed 
support. 

Additionally, sexual orientation and gender identity can affect access to health services. LGBTIQ+ 
individuals  often  face  higher  risks  of  mental  health  challenges  and  violence,  as  noted  in  the 
Commission’s LGBTIQ+ Equality Strategy 2026-203052. Addressing discrimination and barriers 
for LGBTIQ+ people is crucial to reduce negative health impacts and ensure equitable access to 
services. 

8.4. Addressing the risks posed by drug-impaired driving 

It is estimated that up to a quarter of road deaths in the EU, totalling over 19 940 in 2024, are 
linked to alcohol and/or drugs53. To support Vision Zero54 and the aim of zero road fatalities by 
2050, the EU should implement measures to prevent drug-impaired driving and accidents caused 
by drivers under the influence of drugs. 

With  the  new  Driving  Licence  Directive55,  Member  States  have  committed  to  zero-tolerance 
policies on driving under the influence of drugs. Member States are encouraged to introduce 
generally applied zero-tolerance schemes in their national law. 

Given the high incidence of novice drivers, mostly young people, in road traffic accidents related 
to drink-driving and drug use, Member States are also encouraged to apply stricter rules on novice 

52 Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee  and  the  Committee  of  the  Regions,  Union  of  Equality:  LGBTIQ+  Equality  Strategy  2026-2030, 
COM/2025/725 final. 
53 European Commission, Directorate-General for Mobility and Transport, Modijefsky, M., Janse, R., Spit, W., et al., 
Prevention of driving under the influence of alcohol and drugs : final report,  Publications Office  of the European 
Union, 2022, https://data.europa.eu/doi/10.2832/284545  
54 Commission staff working document, EU Road Safety Policy Framework 2021-2030 - Next steps towards ‘Vision 
Zero’, SWD (2019) 283 final. 
55 Directive (EU) 2025/2205 of the European Parliament and of the Council of 22 October 2025 on driving licences, 
amending Regulation (EU) 2018/1724 of the European Parliament and of the Council and Directive (EU) 2022/2561 
of the European Parliament and of the Council, and repealing Directive 2006/126/EC of the European Parliament and 
of the Council and Commission Regulation (EU) No 383/2012; OJ L, 2025/2205, 5.11.2025 

18 

 
 
 
drivers in line with the Directive. This should be supported by targeted national awareness efforts 
highlighting the dangers of driving under the influence of drugs, specifically aimed at young 
adults.  Furthermore,  the  new  Driving  Disqualification  and  revised  Cross-Border  Exchange  of 
Information  Directives  will  enable  the  sharing  of  information  on  drug-related  traffic  offences 
between Member States, preventing dangerous behaviours linked to drug-impaired driving from 
going unaddressed. 

8.5. Addressing drug-related harm to the environment 

Drug  cultivation  and  production  causes  significant  environmental  harm  both  in  Europe  and 
globally.  Organised  crime  dumps  toxic  chemical  waste  originating  from  the  production  of 
synthetic drugs, involving serious risks to the environment and local communities. For example, 
the  production  of  one  kg  of  MDMA  generates  approximately  58  kg  of  toxic  waste.  Cannabis 
production drains water and energy but also impacts water and air pollution56. 

Illicit drug laboratories must be dismantled in a manner that ensures the safety of law enforcement 
agents and considers environmental impacts. The EU will develop and apply methods for the safe 
handling,  transport,  disposal  and  destruction  of  seized  illicit  drugs,  precursors,  chemicals, 
waste, and equipment that are environmentally friendly. In line with the EU Pact addressing new 
synthetic drug threats57, CEPOL and the EUDA will enhance training for law enforcement on the 
security  and  health  risks  involved  in  dismantling  these  facilities.  EMPACT  will  strengthen 
operational cooperation to boost the capacity for dismantling synthetic drug laboratories. 

The  Commission  is  aiding  Member  States  in  implementing  the  new  Environmental  Crime 
Directive58,  which  addresses  offences  like  pollution,  unlawful  waste  management,  habitat 
destruction, and illegal water abstraction.  

The  Commission  encourages  Member  States  to  explicitly  link  environmental  crime  with  other 
criminal activities, like drug production and trafficking, in the national strategies they are required 
to develop by 21 May 2027. This integration aims to enhance the effectiveness of strategies by 
addressing the interconnected nature of these crimes. 

To produce illicit drugs, organised crime often employs environmentally destructive practices such 
as deforestation or intense water use. Improving the detection of these practices is crucial due to 
the role they play in exacerbating drought, habitat destruction, and biodiversity loss.  

Key priorities 

The Commission will: 

•  develop and disseminate, through the EU Crime Prevention Network, a dedicated 

EU toolbox to address the recruitment of minors by criminal networks; 

56 European Monitoring Centre for Drugs and Drug Addiction and Europol (2022), EU Drug Market: Cannabis — In-
depth analysis. 
57  Council  conclusions  of  June  2025 on  the  Pact  addressing  new  synthetic  drug  and  new  psychoactive  substances 
threats in the European Union, 10265/25. 
58 Directive (EU) 2024/1203 of the European Parliament and of the Council of 11 April 2024 on the protection of the 
environment  through  criminal  law  and  replacing  Directives  2008/99/EC  and  2009/123/EC,  OJ  L,  2024/1203, 
30.4.2024. 

19 

 
 
 
 
• 

leverage the strengthened EMPACT framework for operational law enforcement 
cooperation to tackle illicit drug production facilities as part of the implementation 
of the action plan against drug trafficking. 

The EUDA will: 

•  develop the European Harm Reduction Curriculum to support capacity-building 

on harm reduction interventions across the EU; 

•  work closely with Member States to develop and implement their crime prevention 

measures in support of local communities and young people. 

Member States are encouraged to: 

• 

increase the availability of harm and risk reduction interventions and coverage to 
reduce drug overdoses, deaths, and blood-borne infections across the EU; 

•  adopt zero-tolerance policies for driving under the influence of drugs, in line with 
the Driving Licence Directive, and make full use of available cross-border tools to 
enforce these rules;  

•  make  full  use  of  the  new  Environmental  Crime  Directive  to  respond  to  the 

environmental challenges arising from drug production and trafficking. 

V.  BUILDING STRONG PARTNERSHIPS 

Drug-related  policies  in  third  countries  significantly  affect  Europe’s  illicit  drug  situation,  as 
criminal networks within the EU cooperate with international counterparts to expand trafficking 
operations. Hence, international partnerships are crucial for an effective EU drug policy. Within 
the EU, enhancing coordination and partnerships with civil society and private actors is necessary. 
This  promotes  mutual  learning  and  facilitates  joint  operational  actions,  supporting  a 
comprehensive whole-of-society approach. 

Strategic priority 9: Strengthen international cooperation 

Recognising the global nature of the phenomenon, the EU will strengthen its cooperation with 
key international partners through impactful dialogues, capacity building and enhanced 
operational cooperation. 

9.1. The EU’s international cooperation objectives 

The ProtectEU internal security strategy calls for an EU that actively defends its security interests 
by addressing external threats, disrupting trafficking routes and safeguarding strategic corridors. 
The EU remains committed to being a strong ally to partner countries, collaborating to improve 
global security and strengthen mutual resilience, particularly against drug trafficking threats. 

The EU’s external relations in the field of drugs emphasise shared responsibility, multilateralism, 
and a development-oriented approach, respecting human rights, dignity, and the rule of law. The 
EU remains committed to these principles, advocating for an evidence-based, integrated, balanced, 
and  multidisciplinary  drug  policy  approach.  It  supports  third  countries’  efforts,  aligning  with 
international drug control conventions and human rights obligations, as outlined in the Council 

20 

 
 
 
 
conclusions on the human rights-based approach in drug policies59, the EU Action Plan on Human 
Rights and Democracy 2020-202760, and relevant UN instruments on drug policy. Additionally, 
the  EU  maintains  a  strong  stance  against  the  death  penalty  in  all  situations,  affirming  its 
commitment to human rights. 

The EU will collaborate with enlargement partners to align strategies against organised crime 
networks,  improve  drug  information  systems,  and  strengthen  operational  cooperation.  This 
includes supporting the development of national drug observatories and early warning systems for 
new psychoactive substances, in line with EU law; and promoting evidence-based, integrated, and 
balanced  drug  policies,  with  support  from  EUDA.  To  ensure  an  accelerated  integration  of 
candidate  countries  into  EU’s  security  architecture,  the  EU  should  systematically  involve  and 
support  enlargement  partners  ensuring  their  access  to  tools,  guidance,  and  capacity-building 
opportunities.  Similarly,  the  Commission  will  explore  cooperation  with  candidate  countries  on 
port security, such as including them as observers in European Ports Alliance meetings. 

In cooperation with Southern Mediterranean partners, the EU will promote further monitoring 
and assessment of drugs trends, judicial and law enforcement cooperation, and integrated border 
management  to  respond  to  cross-border  drug  trafficking  more  efficiently,  in  line  with  the 
“Security,  preparedness  and  migration  management”  of  the  Pact  for  the  Mediterranean.  Closer 
operational cooperation of the EUDA, EUROPOL, CEPOL, Eurojust and MAOC-N with regional 
partners is essential. Operational cooperation with North Africa, the Middle East, and the Gulf will 
be strengthened, in particular on drug production and trafficking, with a focus on captagon. 

The EU aims to enhance international alliances against synthetic drug threats by working with 
key  third  countries  like  the  United  States,  Mexico,  China,  and  India  to  dismantle  illicit  drug 
production,  stop  the  flow  of  drug  precursors,  and  boost  preparedness  against  synthetic  drugs 
challenges. Cooperation will focus on disrupting drug trafficking routes, bolstering the resilience 
of  logistic  hubs  globally,  and  countering  exploitation  of  major  seaports  by  organised  crime, 
particularly in Latin America, West Africa, and the Western Balkans. 

Restrictive  measures  are  an  important  instrument  in  the  EU’s  external  toolbox,  and  they  can 
complement a well-balanced policy mix to effectively disrupt and reduce transnational organised 
crime.  The  Commission  is  currently  exploring  options  for  a  horizontal  sanctions’  regime 
targeting individuals and organised criminal groups involved in migrant smuggling and trafficking 
in human beings. Given that drug trafficking often nurtures transnational organised crime groups 
and that drug trafficking relies on the same money launderers, cryptocurrency traders and other 
service providers for the entirety of their operations, consideration may be given to extending the 
scope of such a regime, subject to discussions with Member States. EU Delegations in all relevant 
countries and sub-regions will identify focal points among their staff for the fight against organised 
crime, with the possibility of Member States deploying liaison officers for this purpose. 

Targeted operational responses will involve customs, law enforcement, and relevant authorities in 
key third countries, including initiatives like investigative units and intelligence fusion centres. 
The EU will also build stronger partnerships on justice and security with key third countries and 

59 Council conclusions of December 2022 on human rights-based approach in drug policies, 15818/22. 
60 Council Conclusions of 27 May 2024 on the alignment of the EU Action Plan on Human Rights and Democracy 
2020-2024 with the Multiannual Financial Framework 2021-2027, 9508/24. 

21 

 
 
 
regions,  enhancing  cooperation  on  mutual  legal  assistance,  extradition,  asset  recovery,  and 
confiscation, especially with countries in Latin America, the Caribbean, and the Mediterranean 
region. 

Additionally,  the  Commission  will  collaborate  with  Member  States  and  partner  countries  to 
strengthen  anti-drug  trafficking  efforts,  advancing  the  newly  launched  European  Coalition 
against Drugs, thereby enhancing the effectiveness of shared objectives and strategies. 

9.2. Strengthening dialogues with third countries and regions 

Engaging in dialogues with third countries is key for promoting an integrated and balanced drug 
policy approach. The EU will continue dedicated dialogues on drugs with partners in the Western 
Balkans, Eastern Partnership, Latin America and the Caribbean, Central Asia, and bilaterally with 
the  USA,  China,  and  Colombia.  These  dialogues  aim  to  strengthen  strategic  and  operational 
cooperation, fostering impactful responses. New dialogues should be initiated with other priority 
countries or regions heavily affected by drug issues. Security dialogues may address drug policy 
issues,  particularly  trafficking,  and  thematic  exchanges  and  expert  meetings  will  facilitate 
information  sharing  and  activity  coordination,  such  as  with  India  to  prevent  the  diversion  and 
trafficking of drug precursors. 

The  EU  will  leverage  diplomatic,  political,  and  financial  instruments  within  its  foreign  policy 
framework to bolster these efforts. The whole range of EU’s instruments, including the NDICI and 
Common Security and Defence Policy missions, can be employed to enhance law enforcement 
capacities in third countries and support a whole-of-government approach to drug policy. 

9.3. Operational cooperation 

As drug trafficking networks worldwide become interconnected, the EU will boost its operational 
response through partnerships with candidate and key third countries and regions. JHA agencies 
play a key role in this effort. Europol’s role in strengthening strategic and operational capacities 
in key third countries is crucial to disrupt transnational criminal networks. Therefore, Europol is 
expanding  external  partnerships  to  facilitate  strategic  and  operational  information  exchange, 
ensuring  investigations  are  coordinated  across  jurisdictions.  Eurojust’s  role  in  building  strong 
cases against criminal organisations and facilitating prosecutions is vital for effective legal action 
against transnational crime. 

The EUDA, following its new mandate, is committed to improving international cooperation and 
monitoring  drug  situations  in  third  countries,  supporting  the  development  of  evidence-based, 
integrated, and balanced drug policies. The Commission, as part of the ProtectEU internal security 
strategy, will pursue additional agreements between the EU and third countries  for cooperation 
with Europol and Eurojust, particularly extending efforts to more Latin American countries and 
advocating for the inclusion of more third countries in the EMPACT framework. 

The  EU  will  maintain  technical  assistance  and  capacity  building  initiatives  and  cooperation 
programmes to help third countries address drug issues in a manner consistent with human rights 
obligations,  tackling challenges  across public health, development,  safety, and security sectors. 
The EU and its Member States emphasise development-oriented drug policies and alternative 

22 

 
 
and sustainable development measures61, offering a pathway to reduce drug supply, protect the 
environment, and boost socio-economic development of impacted regions. 

9.4. Reaffirm the EU’s leading role in shaping the international drug policy agenda 

The  EU  remains  committed  to  a  multilateral  system  grounded  in  international  law  and  the 
principles of the UN Charter62. It will maintain a leading role in UN drug policy development 
processes,  actively  participating  in  the  Commission  on  Narcotic  Drugs  and  other  UN  bodies 
focused  on  health,  human  rights,  and  development.  This  approach  extends  to  engaging  in 
multilateral venues like the Council of Europe.  

The  EU  will  continue  strengthening  strategic  cooperation  with  international  organisations, 
particularly with UNODC, which is the leading body within the UN system for addressing global 
drug issues, the International Narcotics Control Board, as well as the WHO and the World Customs 
Organization.  The  EU  will  also  support  coordination  across  relevant  UN  bodies 
to 
comprehensively and consistently address the drug situation. 

Strategic priority 10: Enhance EU coordination and strategic partnerships 

Acknowledging  the  cross-cutting  nature  of  drug  policy,  the  EU  commits  to  implementing  such 
policies, including this strategy, through a unified whole-of-society approach. This requires close 
coordination  among  EU  institutions,  bodies,  agencies,  and  Member  States,  while  actively 
involving  civil  society  and  private  sector  actors.  This  collaborative  effort  aims  to  strengthen 
collective actions, maximise impact, and ensure an inclusive approach to drug-related challenges. 

10.1. Strengthen coordination among EU institutions, bodies, agencies, and Member States 

EU institutions, bodies, and relevant agencies must coordinate their activities related to illicit 
drugs, ensuring complementarity within their respective mandates. Member States are encouraged 
to  align  their  actions  with  this  strategy,  allocating  targeted  resources  accordingly.  Recognising 
local and regional differences in the drug situation, Member States should involve regional and 
local  authorities  in  strategy  implementation.  These  authorities  play  a  vital  role  by  tailoring 
interventions  to  community  needs,  fostering  collaboration  among  stakeholders,  such  as  health 
services, law enforcement,  and community organisations to  enhance prevention, treatment,  and 
harm  reduction  efforts.  At  the  EU  level,  the  Committee  of  the  Regions  and  the  Economic  and 
Social Committee play an important role on drug-related developments. 

Coordination across sectors,  particularly  health, security, and justice,  is  crucial at  both  EU and 
national levels. Integrated grassroots approaches, involving law enforcement, judiciary, social and 
healthcare services, medicines agencies, and authorities in sectors like civil aviation and maritime, 
can  improve  health  and  security  outcomes.  This  cooperation  across  diverse  sectors  is  key  to 
developing comprehensive solutions to drug-related challenges. 

61 Council conclusions of November 2018 on Alternative Development: “Towards a new understanding of Alternative 
Development  and  related  development-centred  drug  policy  interventions  –  contributing  to  the  implementation  of 
UNGASS 2016 and the UN Sustainable Development Goals”, 14338/18. 
62 Council Conclusions of June 2025 on EU priorities at the United Nations during the  80th session of the United 
Nations General Assembly, September 2025 – September 2026, Doc. 10491/25 

23 

 
 
 
The successful implementation of this Strategy depends on effective governance and coordination. 
Therefore, as the strategy is reviewed and future directions are outlined, the Council of the EU, 
with support from the Commission, is invited to develop an implementation framework. This 
framework should clearly identify the stakeholders involved in implementing the various priorities 
and  foster  synergies  and  consistency  across  drug  policies  at  EU,  national,  and  local  levels. 
Furthermore,  it  should  explore  ways  to  ensure  that  each  Member  State  maintains  a  national 
overview  of  drug-related  issues  through  a  whole-of-government  approach. This  will  improve 
coordination and maximise policy impact at EU, national and local levels. 

The Commission and the Council of the EU should regularly review the strategy implementation, 
maintaining exchanges with Member States. EU agencies like the EUDA and Europol will assist 
in  monitoring  strategy  implementation.  Effective  monitoring  of  drug  measures  requires  data 
collection and impact indicators, and the EUDA will scale-up its Policy Evaluation Toolkit  for 
precise tracking of progress and outcomes, facilitating timely strategy adjustments for maximum 
effectiveness. 

10.2. Reinforce meaningful engagement with civil society 

Effective policy responses require the inclusion of those directly affected by drug-related issues, 
utilising their experiences to inform grounded and practical solutions. Civil society is essential in 
developing  drug  policies  at  national,  EU,  and  international  levels.  At  the  EU  level,  the  Civil 
Society  Forum  on  Drugs  will  remain  an  integral  part  of  the  strategy’s  implementation. 
Additionally, the EUDA will enhance its regular collaboration with civil society as part of its new 
mandate.  

Nationally, civil society’s firsthand knowledge of emerging trends and effective responses should 
be  harnessed  to  shape  and  implement  policies  and  measures.  Ensuring  appropriate  resource 
allocation for all drug services and fostering civil society involvement is crucial across all levels 
to support comprehensive and inclusive policy development. 

10.3. Scale up public-private partnerships on drug policy 

Illicit  drugs  affect  all  aspects  of  society,  including  the  workplace,  and  organised  crime  often 
infiltrates  the  legal  economy  to  sustain  drug  trafficking.  Member  States  are  encouraged  to 
cooperate with the private sector to reduce drug supply and demand and address drug-related harm. 
The Commission will build on the success of the European Ports Alliance by establishing closer 
ties with private operators. 

Developing  public-private  partnerships  is  crucial  for  countering  drug  trafficking,  criminal 
infiltration, and the diversion of precursors, especially with sectors like the postal services. These 
partnerships should also be strengthened in health and social reintegration, fostering collaboration 
with private actors who can innovate in health solutions. This comprehensive approach aims to 
integrate efforts across sectors to effectively tackle drug-related challenges. 

24 

 
 
Key priorities 

The Commission, in cooperation with the Council of the EU and Member States, will: 

•  strengthen  international  dialogues  on  drugs  with  third  countries  and  regions, 
including efforts to reinforce and expand international alliances against synthetic 
drugs; 

•  continue  to  lead  EU  participation  in  UN  drug  policy  processes  and  promote  a 

human rights and balanced approach to drug policy. 

The Commission, with the support of EU agencies, will: 

•  strengthen  operational  cooperation  to  address  drug  trafficking  with  candidate 

countries and key third countries and regions; 

• 

join efforts with Member States to drive forward the European Coalition against 
Drugs. 

The Commission and Member States should: 

•  step up engagement with the Civil Society Forum on Drugs; 

•  promote public-private partnerships on drug policy.  

Conclusion 

In today’s unpredictable drug landscape, the EU must proactively anticipate threats, prevent harm 
and act decisively to safeguard health and security. 

Organised crime and drug trafficking undermine global security, fuelling violence, corruption, and 
instability within communities, while potent new synthetic drugs present major health challenges. 
A robust, integrated response is essential, emphasising readiness and prevention. 

Strengthening public health structures focused on prevention, treatment, social reintegration, and 
harm  reduction  within  a  continuum  of  care  is  essential.  Equally  important  is  enhancing  law 
enforcement while fostering partnerships that prioritise human well-being. Delivering sustainable 
solutions is crucial to protect our social fabric and help set global standards for our partners. 

The Commission's strategy provides a comprehensive framework to address illicit drug challenges 
cohesively, guiding stakeholders to protect citizens and communities from organised drug crime 
and  its  harm.  This  strategy’s  integrated  and  whole-of-society  approach  connects  health  and 
security  policies,  bolstering  health  benefits  and  enhancing  security  measures.  The  Commission 
looks forward to discussing these critical issues with the European Parliament and the Council. 

Aligning  security  and  health  efforts  is  vital  for  a  comprehensive  response,  ensuring  a  safer, 
healthier future for all. 

25