Opinion of the Economic and Social Committee on the "Communication from the Commission to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions on a European Action Plan to Combat Drugs (2000-2004)"

(2000/C 51/12)

On 8 July 1999 the Economic and Social Committee, acting under the third paragraph of Rule 23 of its Rules of Procedure, decided to draw up an additional Opinion on the above-mentioned communication.

The Section for Employment, Social Affairs, and Citizenship, which was responsible for preparing the Committee's work on the subject, adopted its opinion unanimously on 12 November 1999. The rapporteur was Ms Hassett.

At its 368th plenary session of 8 and 9 December 1999 (meeting of 8 December 1999), the Economic and Social Committee adopted the following opinion by 112 votes in favour, no votes against, and with three abstentions.

1. Introduction

On 25 January 1995 the Economic and Social Committee adopted an own-initiative opinion on the "Prevention of Drug Abuse"(1) (rapporteur: Mrs Guillaume) in which it, inter alia, commented on the Action Plan to Combat Drugs, which is currently in force (1995-1999). This additional own-initiative opinion builds upon the work which was carried out in that context.

1.1. The Communication from the Commission on a European Action Plan to Combat Drugs (2000-2004) contains:

- a programme to combat illicit drugs using co-ordinated action at all levels;

- a call for prevention to be given the highest priority;

- proposals to increase the exchange of experience and best practice;

- proposals to reduce the supply of illicit drugs;

- a call for the integration of Schengen drug-related activities and the implementation of the EU Action Plan on organised crime;

- plans to promote at an international level the inclusion of clauses on control of illicit drugs in agreements on development and trade.

1.2. The aims and objectives of the European Action Plan are the following:

- to ensure that the issue of the fight against drugs is kept a major priority for the EU internal and external action;

- to continue the integrated and balanced approach where supply and demand reduction are seen as mutually reinforcing elements;

- to ensure the supply of objective, reliable and comparable data on the drugs situation in the EU;

- to promote international cooperation; and

- to emphasise that appropriate resources have to be made available, with the highest priority accorded to prevention policies.

The Communication also identifies a number of new challenges, e.g. the growing prevalence of synthetic drugs, the relation between drugs and urban delinquency, and drug-related problems in the areas of health, social policies and criminal justice. The urgent need to develop the necessary methodological tools to systematically evaluate actions to combat drugs at the EU level is underlined.

1.3. The fight against drugs remains near the top of the political agenda for the European Union and the individual Member States alike. Obtaining reliable data in this area - on the prevalence of illicit drug use, on drug-related deaths, accidents, disease/infection cases and crime, etc.- in order to get a just picture of the state of the problem is notoriously difficult. Notwithstanding these difficulties, the 1998 Annual report of the European Monitoring Centre for Drugs and Drug Addiction (EMCDDA) clearly demonstrates that there is no cause for complacency.

1.4. The EU Member States and the European Community have, since the mid-1980s, adopted common measures for combating drug addiction and drug trafficking and for promoting international cooperation. The scope for EU activities in the fight against drugs, which basically falls within the competence of each individual Member State, is to support and coordinate certain efforts in areas where the Union can bring added value. Demand reduction, supply reduction and international cooperation constitute the foundations of the current EU strategy against drugs.

1.5. For the European Union, the fight against drugs is an inseparable objective of the aim of creating "an area of freedom, security and justice" which was introduced by the Treaty of Amsterdam. Action to fight drugs is viewed as a public health priority (Title XIII, Art. 152 of the EC Treaty), as a priority for cooperation in the field of Justice and Home Affairs (Title VI, TEU) and as a priority for international cooperation (Title V, TEU).

1.6. At the EU level, effective policies and strategies can only be formulated on the basis of the above-mentioned and sought after "objective, reliable and comparable data" on the drugs situation. Two bodies have been set up to provide such information, the EMCDDA and the Europol Drugs Unit (EDU). The EMCDDA compiles and disseminates non-confidential data on drug abuse to support policy making. The EDU exchanges and analyses data on organised drug trafficking and related criminal activities to support police operations. The Commission also emphasises the need for systematic evaluation, assessment and follow up mechanisms. The work of these bodies contributes to improved knowledge about the extent and magnitude of the drugs problem in the Union.

1.7. The international dimension of the fight against drugs requires more intensive cooperation due to the seriousness of the problem and the fact that it poses a common threat to both the developed and the developing world.

1.8. In view of enlargement it is also pertinent to examine the situation in the accession countries. According to the EMCDDA 1998 Annual Report "most of the central and east European countries face increasing problems associated with the traffic and transit of illicit drugs as well as a rise in local drug consumption"(2). Continued EU support, e.g. through the multi-country Phare programme for the fight against drugs, will be necessary in order to reverse this worrying trend.

2. The Committee's 1995 Opinion on "Prevention of Drug Abuse"(3)

2.1. In its earlier own-initiative opinion of 1995, the Committee considered that, despite all the efforts of European governments, including policies to combat the illegal production, sale and supply of all drugs, and the commitment of massive resources, these policies had not had the desired effect. It was now recognised that enforcement and supply-side measures alone would not solve the problem of drug misuse.

2.2. While supportive of enforcement policies coordinating the pursuit of those engaged in the production, trafficking and supply of illicit drugs, the Committee considered that equal emphasis should be given to the promotion of "demand reduction" policies. These should include:

- adequately resourced treatment, rehabilitation and education programmes targeted towards those who might be inclined to consume illicit drugs;

- education and preventive programmes towards those groups who are vulnerable to the risk of illicit drug consumption.

2.3. While the scale of the problem demands a European-wide prevention policy, there was also a need to change attitudes. No Member State should have to run the risk of being considered as a drug haven because of innovative action. No single region, city, local community or local school should have to worry about its reputation because it wishes to promote a pro-active drug abuse prevention policy. A coordinated preventive approach would help bring the problem out into the open, help citizens in each community to recognise their individual and collective responsibilities.

2.4. The Committee considered that the European Union needed a much clearer and coordinated policy.

2.5. At local and regional levels, integrated networks needed to be established, based on coordination groups involving:

- local and municipal authorities;

- staff adequately trained in drug-abuse prevention;

- medical and paramedical staff;

- police officers;

- teachers and head teachers;

- employers, employment agencies;

- parents;

- family associations, community support groups and voluntary agencies;

- local press, television and radio networks;

- full-time professional coordinators;

- coordination of health services, local authorities, employment agencies and the social partners.

2.6. At national level, the Committee urged the setting up of coordination centres responsible for monitoring local and regional coordination groups, providing specific support where necessary and ensuring cross-referencing and a structured response to drug abuse.

2.7. At European level, the Committee proposed that the following actions could be envisaged:

>TABLE>

The Committee notes with satisfaction that action has been taken which to a great extent corresponds to the suggestions made in the 1995 opinion.

3. General Comments

3.1. The Economic and Social Committee warmly welcomes the Commission proposal for a new Action Plan to combat drugs (2000-2004), and would particularly highlight the specific targets of the Action Plan in the five domains of action;

1) Information

2) Action on demand reduction

3) Consolidation of the acquis communautaire

4) Action at international level

5) Coordination, integration and simplification

3.2. In line with the Political Declaration by the 1998 United Nations General Assembly Special Session on Drugs (Ungass), the Committee endorses the basic principles of shared responsibility; integrating drugs control into mainstream development; a balanced approach between demand and supply reduction; respect for human rights and support for multilateral approaches.

3.3. The Committee agrees that in the context of the campaign to reduce demand the highest priority is given to health, education and training activities, and to instruments to combat social exclusion, in order to achieve the following two main objectives:

- to reduce significantly over five years the prevalence of illicit drug use among young people under 18 years of age;

- to reduce substantially over five years the number of drug related deaths.

These objectives are usually achieved through programmes targeted at the whole population through mainstream activities focused on the day-to-day needs of the population. Health care can be delivered through an assessment of the needs of particular communities; education can be delivered through the school curriculum, detached youth work and community networks; research should be part of wider population based investigations, and training can be provided as part of the wider preparation of the workforce.

3.3.1. The Committee agrees with the Commission that, inter alia, the appropriate application of new media such as the Internet for implementing and assessing education programmes aimed at drug prevention can be useful in the field of education and awareness raising.

3.4. The Commission places considerable emphasis on the state and semi-state sector. However, the ESC notes from experience the importance of including the broader social partnership models, which exist in many Member States. The proposal stresses use of both the public health and education systems, primarily provided by local and regional authorities, but only refers to the importance of peer education, non-governmental organisations and wider society. There is little mention of already existing partnerships, e.g. on crime and disorder, economic regeneration, health improvement, and cooperation business/local government.

3.5. The principle of shared responsibility requires an integrated and balanced approach. In order to achieve this, it is essential that we make use of the resources available within the social partnership. The Committee would highlight the need to build partnerships through a memorandum of understanding, with examples ranging from prevention in the workplace, and initiating cooperation between e.g. hauliers and customs authorities.

3.6. With regard to the experiences of the 1996-2000 Drugs Prevention Programme, it is imperative that the results are fed into the proposed Action Plan when it is implemented. The outcomes should be shared, developed and mainstreamed where appropriate. The successes are often highlighted, but it is crucially important to assess the failures as well. In the establishment of new actions we need to learn from our experiences. This emphasises the need for multidisciplinary and multidimensional responses at local, national and global level.

3.7. Generally, the first experimental drug use occurs because someone you know offers you drugs. Therefore prevention needs to be reinforced in the shape of peer groups, which has been widely recognized. It is necessary to involve young people themselves from the beginning, in the setting up prevention programmes.

3.8. The connections between drugs, alcohol and tobacco are complex. In some contexts it is clear that the use of one of these substances leads to use of another. In other situations this is not so obvious. The difference in legal status creates a further dilemma. Preventive strategies for tobacco and alcohol could also have an impact on preventing initial use of illicit drugs. Highlighting the dangers of combining substances, e.g. drugs and alcohol, is also absolutely necessary. This strategy, however, should recognise that the link is between the individuals via peer groups and not between the substances as such. The use of substances is often primarily based on availability. The Committee notes that health risks are not limited to prohibited drugs and that many of the new synthetic drugs are not yet controlled in the Member States.

3.9. In order to ensure an effective strategy towards supply reduction, the implementation as agreed by the EU of the Action Plans of Ungass is essential. This adds to the importance of the integration of EU international co-operation in the fight against drugs into the broader objectives of EU external relations. The Committee would draw attention to the scope offered by the Treaty, for stronger, overall external action against drugs, through the common foreign and security policy (CFSP).

3.10. There is now general recognition that the problem of illicit drug abuse and dependency is common to all Member States. Whilst sustaining enforcement alongside a harmonisation of penalties a dynamic European prevention policy framework is required, backed up by the concrete measures envisaged by the European Council. The new Treaty provisions permit a coordinated and comprehensive policy approach, necessary to reduce both supply and demand. Given that 8 % of world trade, according to United Nations figures is drug trafficking, the Committee stresses the need of a consistent European Union policy to combat drug production and trafficking. A broader coordination in the fields of justice and home affairs and of external policy is required. The importance of European and national policy is that when challenged, the local community will have channels that can be activated to ensure a long-term solution. Without a national policy, local communities can often respond emotionally and subjectively.

3.11. The Committee welcomes the Community action on synthetic drugs. The Joint Action(4) aims at the creation of a mechanism for rapid exchange of information on new synthetic drugs and the assessment of their risks in order to permit the application of measures of control on psychotropic substances, applicable in Member States, equally to new synthetic drugs.

3.12. The Committee considers that the European Union needs a much clearer and co-ordinated policy on the conditions of entry of candidate countries to the Union. The Committee believes that protocols should be entered into with these countries setting out their obligations to reduce the supply of drugs through their territory, establish programmes that will reduce the demand for illicit drugs and ensure participation in international activities. Agreements on controlling so called drug precursors (which play an important role in the manufacture of amphetamines, for example) must be included here. The Committee advises that high priority be given to the acquis in the area on freedom, security and justice, inter alia to the acquis on combating drugs.

3.12.1. At the same time the candidate countries should be encouraged to make use of the possibility of being involved in pilot projects in particular under the OISIN and Falcone programmes.

3.13. The issue of doping in sport has continued to rise over the recent years. Doping in sport often does not mean taking illegal drugs but misusing legal drugs. A clear and precise legal framework and closer international cooperation are urgently needed. The Committee therefore welcomes the decision of the European Commission to open discussions with the International Olympic Committee (IOC) on its invitation to participate in the creation and operation of a World AntiDoping Agency. The need to rebuild trust both within the sporting sector and public domain ever increases.

3.14. The Commission draws our attention to the EU employment initiatives and the educational and vocational training programmes. It should be noted that whilst these programmes were not initially designed to tackle the issue of drugs, a number of excellent projects have emerged. Therefore, guidelines and policies need to be developed and built into the programmes as a resource, to support any aspects that may deal with drugs and related issues. The Committee believes increased resources are needed to facilitate the coordination required to achieve a decrease in the demand for drugs.

3.15. Considerable efforts have been made throughout Europe to combat drugs. It is apparent, however, that many of these efforts are being made in isolation, without a comprehensive and systematic policy strategy, and often on a piecemeal and spontaneous basis. The Committee regrets the shortage of dedicated youth workers, especially at street level. European coordination should strengthen youth work.

3.16. To map the drugs problem more exactly is an important objective. The Commission paper gives little information about the size and shape of the problem. A major weakness of the Commission document is the almost complete focus on drugs as an urban phenomenon. Evidence suggests that this problem is as serious in rural communities, who do not have the infrastructure to respond effectively.

4. Conclusions/Recommendations

4.1. The Communication from the Commission on a European Union Action Plan to Combat Drugs (2000-2004) is an important step in the development of a comprehensive approach. However, it is with great concern that the Committee notes that the funds for putting this action plan into force have not been identified. In order to achieve successful implementation of the plan it is imperative that adequate financial means are allocated. In the implementation of its action plan the Commission needs to take into account the resources available, thereby ensuring a balanced approach between reducing demand and reducing supply, with due regard to Member States' own responsibilities.

4.2. The Committee stresses the need to fully implement Title VI of the Amsterdam Treaty. Concretely, it mentions that drugs constitute a threat to collective and individual security in numerous ways, often but not always linked to organised crime. It is based on shared responsibility between consumer, transit and producer countries. Within that comprehensive framework, it is clear that a major component will be the mobilisation of all available judicial and law enforcement resources against the traffickers and criminal organisations. It is essential that intervention be stepped up. It is not acceptable to leave certain neighbourhoods of European cities in the hands of drug traffickers, who openly peddle drugs to addicts, without the police intervening to stop them. The need to establish minimum rules relating to the constituent elements of criminal acts and penalties will require increased coordination, and particular attention must be paid to the harmonisation of laws and judicial, customs and police cooperation. The need for concerted preventive action by police, education and rehabilitation services is emphasised.

4.3. The Committee notes the conclusions of the European Council in Tampere, in particular the recommendations about an Area of freedom, security and justice. Also noted are the amendments to the Council Directive 91/308/EEC of 10 June 1991 on prevention of the use of the financial system for the purpose of money laundering, on which the Committee is currently drawing up an Opinion. In composing this Opinion on the Action Plan to Combat Drugs it is understood that the issues raised by the Tampere summit will be addressed in subsequent ESC Opinions.

4.4. The Committee calls on the Commission to provide greater analysis of the situation. Substantial data and research is available on the use of drugs in Member States, but it is necessary also to analyse and map the impact of drugs. Evaluation is often carried out purely on an analytical basis. The Committee requests that a study that examines the socio-economic factors which influences the development of drug use is conducted. Frequently, what is actually happening on the ground is not demonstrated. Improved analysis, coupled with an assessment of good and bad practice, will aid the European Union and its Member States to put in place an effective strategy.

4.5. The Committee notes the increased use of the Internet both from the supply and demand perspective of the drugs phenomena. Therefore the Committee calls on the Commission to implement the action plan on promoting safe use of the Internet(5), on which the ESC adopted an Opinion in April 1998(6).

4.6. The Commission refers to the positive impact that sections of the youth framework programmes and the employment initiatives have had in combating drugs. The Committee is concerned that these programmes will be seen as the non-formal and training arm of the Commission's Action Plan. While these, amongst many EU programmes, deal with young people, they will not necessarily reach the appropriate target group for this Action Plan. The Committee calls on the Commission to increase the resources available for prevention and demand reduction.

4.7. With the focus on the problem of drugs, often the greater issues of exclusion and isolation are neglected. In this action plan the need to reach out and understand these phenomena is greater than ever. Many young people feel excluded and isolated; use of drugs is often a symptom of this exclusion. The Committee believes that the Commission needs to identify suitable mechanisms to reach out to and link with these young people. For example a young person may not come into contact with the public health system until a critical stage is reached. They may, however, come into contact with the local employment scheme or local groups. Better cooperation between the various services dealing with children and young people at every level including European is clearly needed.

Brussels, 8 December 1999.

The President

of the Economic and Social Committee

Beatrice RANGONI MACHIAVELLI

(1) O J C 102, 24.4.1995.

(2) 1998 Annual report on the state of the drugs problem in the European Union - European Monitoring Centre for Drugs and Drug Addiction, p. 61.

(3) OJ C 102, 24.4.1995.

(4) Joint Action of 16 June 1997 adopted by the Council on the basis of Article K.3 of the Treaty on European Union, concerning the information exchange, risk assessment and the control of new synthetic drugs, 97/396/JHA, OJ L 167, 25.6.1997.

(5) Decision 276/1999/EC; OJ 33, 6.2.1999.

(6) OJ C 214, 10.7.1998.