HaCKeRz KrOnIcKLeZ 3/HaCKeRz_KrOnIcKLeZ.iso/drugs/94.fact.sheet

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From: [e-mail] (Richard v.d. Horst)
Newsgroups: alt.drugs
Subject: Fact sheet- The Drug Policy in the Netherlands, Feb. '94 (1/5)
Message-ID: <[e-mail]>
Date: Fri, 22 Apr 1994 16:24:00 GMT

In order to bring more clearness about the Dutch drug policy, I post the
latest fact sheet- February 1994. I've reformatted it to 79 chars/line to
ease reading/printing. Please note that my news server is currently having
problems, so I can't answer any posted replies (but email works properly).
Typos are OCR's, though I double-checked all tables on their correctness...

Note- I've been notified that #5 on page 7 should be "Importing/Exporting".

- Richard
===
THE DRUG POLICY IN THE NETHERLANDS


February 1994


Ministry of Welfare, Health             Ministry of Justice
and Cultural Affairs

P.O. Box 3008                           P.O. Box 20301
2280 MK Rijswijk                        2500 EH 's-Gravenhage
The Netherlands                         The Netherlands
Telephone: [phone]               Telephone: [phone]
Telefax: (31) 703405233                 Telefax: (31) 703707933


_Table_of_contents:_                                                   page

1.       Description of the situation and trends/statistics              1
   1.1   Traffic                                                         1
   1.2   Drug misuse                                                     2
   1.3   Description of users and type of use                            5

2.       Governmental structures responsible for drugs                   6

3.       National legislation                                            6
   3.1   Basic approach                                                  6
   3.2   Legislation/penalties concerning production, traffic,
         possession and sale                                             6
   3.2.1 Practical enforcement prosecution policy and the expediency
         principle                                                       8
   3.3   Legislation/penalties eoncerning commerce of precursors
         and essential chemicals                                         9
   3.4   International treaties and agreements                           9

4.       Practical law enforcement                                       9
         Organisation of police services / Assessment of current
         effectiveness of law enforcement services/problem
         areas/possible proposals for new policies                       9

5.       Information/Education/Prevention                                10
   5.1   General principies                                              10
   5.2   Organisation and policy of services responsible for
         prevention activities                                           11
   5.3   Prevention of HIV infection/Aids among drug misusers            11
   5.3.1 Needle exchange schemes and outreach work                       12
   5.3.2 Epidemiology of Aids                                            12

6.       Treatment and rehabilitation                                    12

   6.1   General principles of treatment and rehabilitation policy;
         assessment of the programmes                                    12
   6.2   General organisation of services / Types of treatment
         offered                                                         13
   6.3   Assessment of treatment and rehabilitation programmes           14

7.       Drug policy debate in Parliament                                16

8.       International cooperation                                       16
   8.1   Cooperation within the United Nations system                    16
   8.2   Regional and bilateral cooperation within Europe
         (including money-laundering)                                    16
   8.3   Drug liaison officers                                           16
   8.4   Drugs-related assistance within and outside Europe              17
BASIC APPROACH OF DRUG POLICY

The central objective is to restrict as much as possible the risks that drug
abuse present to drug users themselves, their immediate environment and society
as a whole. These risks, or the likelihood of harmful effects, are dependent
not only on the psychotropic or other properties of the substance, but
primarily on the type of user, the reasons for use and the circumstances in
which the drugs are taken. Experience has shown that a pragmatic approach aimed
at seeking solutions for concrete problems is more effective than one that is
emotional and dogmatic. There is no question of a laissez-faire attitude being
taken. It is part of Dutch tradition that whatever the probiem to be tackled,
the effectiveness of the measures to be applied is of primary importance.
Legislation is obviously considered useful in the Netherlands, but great value
is likewise attached to strongly organised social control. Although the risks
to society must of course be taken into account, the government tries to ensure
that drug users are not caused more harm by prosecution and imprisonment than
by the use of drugs themselves. Dutch policy is also continuously seeking to
strike the right balance between the different types of measures. The Minister
for Welfare, Health and Cultural Affairs has been made responsible for
coordinating the government's drug policy to which there are two facets: the
enforcement of the Opium Act and poiicy on prevention and treatment. The
Minister for Justice is responsible for implementing the Opium Act as far as
the illicit aspects are concerned.

1. DESCRIPTION OF THE SITUATION AND TRENDS/STATISTICS

1.1 _Traffic:_Number_and_quantity_of_seizures_by_substance_(in_kgs)_

                        1989      1990      1991      1992      1993

HEROIN (total) *         492       532       406       570       916
- South East Asia        167        85        49        36        65
- South West Asia        288       413       308       478       773
- unknown                 37        34        49        56        78

COCAINE                 1425      4288      2492      3433      3499

AMPHETAMINES              65        47       128       267       293
- tablets              24000      2500               30705       142
- oil (in litres)         90         7       120        60         2

LSD (in dosages)        8075      5146      1630     50002    187082
LSD (in grs)                        64                             3

MDA (in kgs)                                           776      0.35
MDA (in tablets)                                   2500000       335

MDMA (in kgs)          0.750     0.322     0.700       300       1.5
MDMA (in tablets)     930000        48               10286   1625391
MDMA (in litres)                                                   2

MDEA (in kgs)                                                      6
MDEA (in tablets)                                   188532     52053

CANNABIS (total)       42315    109762     96292     94593
- Hashish              14071     90010     73962     75292     28173
- Hashoil (in litres)                                           18.6
- Marihuana            28234     19752     22330     19301    110049
- Dutch grown
  Marihuana plants (in number)             71945    313242    150696
  Marihuana plants (in weight)                        1245

* The difference between the total quantity of heroin and the sum of the SE
Asia and SW Asia heroin relates to seized heroin of which the origin could not
be established (unknown).               [Source: Criminal Intelligence Service]
                                       -2-

_-_General_assessment_of_situation_

Most of all seized heroin originates from South West Asia and was smuggled
along the Balkan route.
Chinese crime syndicates have been re-establishing themselves in the illicit
traffic of heroin coming from South East Asia.
An increasing number of Nigerian couriers are involved in illicit traffic of
heroin coming from Asia.
The quantity of seized cocaine in 1990 increased by 300% compared to 1989 and
originates from Colombia. There is evidence that Surinam and other countries in
the Caribbean region have been used as transit countries, from which cocaine is
trafficked by air and sea.
The Netherlands police succeeded in detecting clandestine amphetamine
laboratories and in dismantling several organisations involved in this
manufacture (using precursors and essential chemicals from Germany and Belgium)
and exportation.
The majority of seized cannabis was being shipped or transported by lorries
from northern africa. The supply of cannabis is in the hands of organized
groups.

1.2 DRUG MISUSE

The Netherlands is one of the most densely populated countries of Europe, with
15 million inhabitants. Appr. 90% lives in urban areas. Amsterdam has 700,000
inhabitants.

_-_Estimate_of_total_number_of_drug_misusers/addicts_

- Netherlands: 21,000 addicts.
  Sources: 1) assessments of municipalities; 2) recent research on all
  methadone programmes in the Netheriands (Bureau Driessen, 1990; 1993).

- Amsterdam: 6,000 - 7,000 addicts.
  Source: capture/recapture method based on several data systems: Municipal
  Health Service, Municipal Police, local studies (1990)(1993).

_-_Prevalence/incidence_data_

Prevalence of drug use in 1990 (population of 12 years and over in Amsterdam)
-------------------------------------------------------------------------------
                    Ever used       Used past year  Used past month
drug                   n      %        n      %        n      %      N
------------------------------------------------------------------------
Tobacco             3010   67.7     2066   46.5     1899   42.7     4444
Alcohol             3820   86.0     3459   77.8     3073   69.1     4444
Hypnotics            847   19.1      420    9.5      289    6.5     4442
Sedatives            912   20.5      417    9.4      272    6.1     4439
Cannabis            1111   25.0      438    9.9      268    6.0     4442
Cocaine              245    5.5       57    1.3       17    0.4     4440
Amphetamines         183    4.1       20    0.5       10    0.2     4440
Ecstasy               56    1.3       30    0.7        5    0.1     4442
Hallucinogens        182    4.1       13    0.3        3    0.1     4430
Inhalants             42    0.9        6    0.1        2    0.0     4430
Opiates              325    7.3       86    1.9       28    0.6     4425
 Pharm. opiates      295    6.7       83    1.9       28    0.6     4425
 Heroin               48    1.0        5    0.1        1    0.0     4425
------------------------------------------------------------------------

=============================================================================

From: [e-mail] (Richard v.d. Horst)
Newsgroups: alt.drugs
Subject: Fact sheet- The Netherlands (2/5)
Message-ID: <[e-mail]>
Date: Fri, 22 Apr 1994 17:34:00 GMT

                                       -3-

Source:
Licit and illicit drug use in Amsterdam: report of a household survey in 1990
on the prevalence of drug use among the population of 12 years and over / J.P.
Sandwijk, P.D.A. Cohen, S. Musterd. Amsterdam: Instituut voor Sociale
Geografie, Faculteit der Ruimtelijke Wetenschappen, Universiteit van Amsterdam

The table shows that even in Amsterdam (an urban area where drug use is always
highest) cocaine use was very low in 1990. The househoid survey will be
repeated in 1994. At present, the most recent data on prevalence of drug use
are the following data, based on school surveys among pupils aged 12 to 18
years:
_______________________________________________________________________________

Frequency of drug use in lifetime for students aged 12 to 18 in percentages
(N=7,216)

                12-13 yr   14-15 yr   16-17 yr     18+ yr     total 12+ yr
                  M*   F*    M    F     M    F     M    F     M    F     T
              ------------------------------------------------------------
cannabis        4.2  1.8  15.4 12.6  32.5 19.7  46.8 22.0  16.6 10.4  13.6

cocaine         0.6  0.7   1.7  1.0   3.6  1.9   2.9  1.5   1.9  1.1   1.5

XTC             1.9  0.7   4.7  2.7   6.9  3.0   6.9  1.5   4.5  2.1   3.3

amphetamines    0.8  0.6   2.6  1.4   5.1  2.8   5.2  0.8   2.8  1.4   2.1

heroin          0.7  0.2   1.2  0.5   0.3  0.8   1.7  0.0   0.9  0.5   0.7

* M = Male
  F = Female
_______________________________________________________________________________

Frequency of drug use during previous month (= current use) for students aged
12 to 18 in percentages (N=7,216)

                12-13 yr   14-15 yr   16-17 yr     18+ yr     total 12+ yr
                  M*   F*    M    F     M    F     M    F     M    F     T
              ------------------------------------------------------------
cannabis        2.1  0.7   7.4  4.6  17.9  7.8  17.0  6.1   8.8  4.1   6.5

cocaine         0.3  0.1   0.3  0.2   0.6  0.7   1.2  0.0   0.4  0.3   0.3

XTC             0.5  0.1   1.2  0.9   2.5  1.0   2.3  0.8   1.3  0.6   1.0

amphetamines    0.4  0.2   0.7  0.2   1.6  0.6   0.6  0.8   0.8  0.3   0.6

heroin          0.2  0.1   0.3  0.2   0.0  0.1   0.6  0.0   0.2  0.1   0.2

* M = Male
  F = Female
_______________________________________________________________________________
                                       -4-

The table shows that current cannabis and cocaine use is relatively low. The
average last month prevalence of cannabis use in the _entire_ (12-18 years)
sample was 6.5 %; cocaine 0.3%.

Source: Youth and risky behavior. Results from the third National Youth Health
Care Survey on smoking, drinking, drug use and gambling by school children from
the age of 10 years. Kuipers, Mensink and de Zwart, NIAD, Utrecht, 1993. The
standardized methodology has been developed by the Epidemiology experts of the
Pompidou group of the Council of Europe.

In two earlier studies it was found that cannabis use has been rather stable
(slight differences upwards and downwards) since the beginning of the
seventies. Sources: Korf: "Twenty years of soft drug use in Holland: a
retrospective view, based on twenty years of prevalence studies", Dutch Journal
of Alcohol, Drugs and other Psychotropic Substances, 1988 (14) nr. 3, 81-89
and: Driessen and Van Dam: "The development of cannabis use in the Netherlands,
some European countries and the USA since 1969", Dutch Journal of Alcohol,
Drugs and other Psychotropic Substances, 1989 (15) nr 1, 2-15.

The recent NIAD-study cited above indicates that the prevalence of cannabis use
among school children of 12-18 years has increased in recent years. However,
the dominant pattern of consumption is still incidental and recreational. As
there have been no significant changes in the Dutch policy on cannabis in
recent years, the higher popularity of cannabis among young people may reflect
changes in Western European youth culture. Similar increases of the prevalence
of cannabis use among youngsters have recently been reported for Germany, The
United States, Norway, Denmark and the United Kingdom. In view of the increase
in prevalence, the prevention efforts will be intensified.

Ecstacy (MDMA) was first seen in the Netherlands in 1985. in 1988 Ecstacy was
brought under legal controI (Schedule I, Opium Act), mainly to prevent
large-scale trafficking and export. In 1993 Eve (MDEA) was brought under legal
control as well (Scheduie I, Opium Act), in reaction to agressive marketing
efforts of producers. At present, use ot Ecstacy can be observed especially in
the circuit of so-called house parties and discotheques and is of an
experimental and recreational nature. The NIAD-study cited above shows a 3.3 %
life-time prevalence of use of Ecstacy among school children of 12-18 years.
The last-month prevalence in this group was 1.0 %. While there is no evidence
of large-scale misuse, the situation warrants careful monitoring from a
preventive point of view, as the pills sold as Ecstacy sometimes in fact
contain substances with a higher risk, such as amphetamines and LSD. The NIAD
has developed a special project to monitor developments in this area.

_-_Indirect_indicators_

_Treatment_clients_

Methadone is supplied to 7,000 people on an average day (point prevalence) in
appr. 60 municipalities. (This means that the total number of addicts receiving
methadone is greater than 7,000!) Source: National (State) Inspectorate for
Drugs (1990); Driessen (1990, 1993).
                                       -5-

In 1992 the Consultation Bureaus for Alcohol and Drug problems had 21,715
clients, which is 39% of the total case-load.

_Drug_related_deaths_

Netherlands, 1991:
74 residents (primary and secondary cause of death). Source: National Bureau
for Statistics, based on the WHO International Classification of Diseases
(ICD-9).

Amsterdam, 1992:
19 residents. Sources: annual registration Municipal Health Service, 1993;
methodology validated in an analysis of the backgrounds of 'Acute death after
drug misuse in Amsterdam" (in Dutch) by Cobelens, Schrader and Sluijs, 1990.

1.3 DESCRIPTION OF USERS AND TYPE OF USE

_-_The_most_used_drugs_

Cannabis products are the most popular illicit drugs.
Cannabis use generally does not create problems to users.
Heroin is still the preferred drug among addicts, although they do not restrict
their use to heroin and combine all manner of substances, including cocaine,
other psychotropic substances (e.g. benzodiazepines) and alcohol.
"Crack" use is almost absent in the Netherlands.

_-_Average_age_of_drug_misusers_

The average age of addicts is rising and today lies between 25 and 35; people
are older when they take drugs for the first time (with the exception of
cannabis).

_-_Socio-demographic_profile_of_drug_misusers_

Cocaine use in the general population (primary cocaine users in all social
strata and income groups) seems to be mainly experimental and/or recreational.
An in-depth field study in Amsterdam among experienced users (at least 5 years
of use) revealed that the average age of cocaine users was 30 years and the age
at which they started was 22 years. The large majority was non-deviant and 50%
never use more than half a gram a week. The users do not underestimate the
negative effects, which mainly occur at a level of 2.5 gram a week. 86.2% of
the users reported to have stopped for more than a month, against 11.9% who
never stopped since they started cocaine use. Since the use is embedded in
non-marginalized social settings where confrontation with the police is rare,
some kinds of informal use-control rules could be developed (Cohen, 1989), A
follow-up study has been carried out (Cohen & Sas, 1993) . One of the main
conclusions of this study is that almost half of the 1991 follow-up respondents
had ceased cocaine consumption since they were interviewed in 1987.

Over the years drug misuse increased among groups in a relatively disadvantaged
social and economic position, particularly among ethnic minorities from Morocco
and Turkey.
                                       -6-

_-_Routes_of_administration_

A recent research report confirms that the prevalence of drug injecting has
been steadily decreasing (Grund & Blanken, 1993). A growing majority of drug
users, 70 - 75 %, now prefers the method of smoking heroin or "chasing the
dragon" (inhaling the fume). On average, only 25 - 30 % of the hard drug users
now practises injecting. According to the researchers, this development of a
less harmful pattern of heroin use can be seen as a result of the pragmatic
drug policy. The comparatively low repression of drug users and the enforcement
emphasis on the importation level of the drug trade created the situation in
which a stable and fairly relaxed consumer market could emerge, in which heroin
is sold of reasonable price and at a purity level (40 %) sufficient for
smoking.

2. GOVERNMENTAL STRUCTURES RESPONSIBLE FOR DRUGS

_-_Basic_organisation_of_responsibilities_at_national_and_local_level_and_the
_coordinating_bodies_

The larger Municipal Police Forces, for which the burgomasters carry
responsibility, have special criminal investigation departments (CIDs) dealing
exclusively with offences under the Opium Act. They receive support from other
CIDs or from uniformed police when undertaking major operations. The National
and Municipal Police work in close cooperation with the Central Narcotics
agency of the National Criminal Intelligence Service (CRI) in The Hague, for
which the Minister of Justice is responsible. The CRI collects information in
the Netherlands and abroad and passes it on to the local police, one of its
sources being specially appointed drugs liaison officers stationed in foreign
countries (see also item 8.3). In larger cities, policy on actions against
illegal offenders of the Opium Act is usually preceded by tripartite
consultation between the burgomaster, the head of the Public Prosecutions
Department and the Iocal chief of police.

As to treatment policy, in 1994 23 larger municipalities (working closely
together with the other relevant cities in 23 regions) receive a special budget
from the (national) Ministry of the Interior and are directly responsible for
treatment policy and for funding treatment.


3. NATIONAL LEGISIATION

3.1 _Basic_approach_

Responsibility for implementing the Opium Act rests with the Minister for
Welfare, Health and Cultural Affairs for the licit aspects (strict supervision
of the production and medical use of the drugs) and the Minister of Justice for
the illicit aspects: law enforcement policy.

3.2 _Legislation/penalties_concerning_production,_traffic,_possession_and_sale_

The Opium Act of 1919 was radically amended in 1928 and again in 1976. The
possession, sale, transport, trafficking, manufacture, etc., of all drugs
mentioned in

=============================================================================

From: [e-mail] (Richard v.d. Horst)
Newsgroups: alt.drugs
Subject: Fact sheet- The Netherlands (3/5)
Message-ID: <[e-mail]>
Date: Fri, 22 Apr 1994 17:35:00 GMT

                                       -7-

this Act, except for medical or scientific purposes, is deemed a punishable
offence. _Drug_consumption_is_not_prohibited_by_law_. The Opium Act also
provides for the strict supervision of the production and medical use of the
drugs referred to in the Act. Hemp (cannabis) products and other drugs are
subject to different statutory penalties. Policy in the administration of
criminal justice likewise maintains a clear cut distinction between drug users
and traffickers, one of its aims being to avoid classifying the possession of
drugs by users as serious crimes, as they would then no longer be accessible to
any form of prevention or voluntary intervention. A distinction is also made
between 'drugs presenting unacceptable risks' (such as heroin, cocaine, LSD,
amphetamines and hash oil), classified as Schedule I drugs in the Opium Act,
and 'hemp (cannabis) products', classified as Schedule II substances in the
Opium Act. The possession of any of these substances for personal use is
subject to less severe penalties than possession for the purpose of
trafficking. The following table indicates the maximum penalty which can be
imposed for offences involving various substances.

Substance               Offence            Maximum penalty

1. Schedule I              importing or exporting    12 years'imprisonment
   substances (opiates,    (trafficking)             and/or FL.100,000,- fine
   cocaine, etc.)

2. Schedule I              selling, transporting,    8 years'imprisonment
   substances (opiates,    manufacturing             and/or FL.100,000,- fine
   cocaine, etc.)

3. Schedule I              planning import or        6 years'imprisonment
   substances (opiates,    export, etc.              and/or FL.100,000,- fine
   cocaine, etc.)

4. Schedule I              possession                4 years'imprisonment
   substances (opiates,                              and/or FL.100,000,- fine
   cocaine, etc.)
                                                     4 years' imprisonment
5. Hemp products           selling manufacturing,    and/or FL.100,000,- fine
   (hashish & marijuana)   possesion

- Contrary to the general rule, offences under the Qpium Act may carry both a
  penalty of a fine and an unconditional term of imprisonment.
- If the vafue of the things with which such offences have been comrnitted or
  which have been obtained wholly or partially by means of such offences,
  exceeds a quarter of the maximum fine, a fine of one category higher may be
  imposed: FL.100,000,- would become FL.1,000,000,-.
                                       -8-

6. Hemp products           selling, manufacturing,   2 years'imprisonment
   (hashish & marijuana)   possession                and/or FL.25,000,- fine

7. Schedule I              possession for personal   1 years'imprisonment
   substances (opiates,    use                       and/or FL.10,000,- fine
   cocaine, etc.)

8. Hemp products           selling, manufacturing,   1 month's imprisonment
   (hashish & marijuana)   possession of up to 30    and/or FL.5,000,- fine
                           grams

Explanatory notes

Offences which are punishable under the Opium Act are subject to the general
criminal law provision whereby the maximum penalty may be increased by
one-third when the offence has been committed more than once.
In that case the maximum penalty is 16 years imprisonment.
- Other offences, such as advertising the sale/supply of drugs, are covered by
  the Opium Act.
- In accordance with an amendment to the Opium Act in 1985, both trafficking
  and activities preparatory to trafficking in Schedule I drugs are now
  offences. This enables action to be taken at an earlier stage in the chain of
  trafficking operations and provides greater opportunities for dealing with
  the organisers. Furthermore, any person who attempts to import drugs into the
  Netherlands, regardless of their nationality. In general, 'conspiring' or
  planning to commit an offence is not deemed punishable in Dutch criminal law.
- A Bill is currently being prepared which will greatly facilitate the
  detection, freezing and confiscation of the proceeds of criminal acts,
  thereby considerably increasing the efficiency with which national and
  international drugs traffic can be combated.

3.2.1 _Practical_enforcement:_prosecution_policy_and_the_expediency_principle_

One of the basic premises of Duteh criminal procedure is the expediency
principle laid down in the Code of Criminal Procedure whereby the Public
Prosecutions Department is empowered to refrain from instituting criminal
proceedings if there are weighty public interests to be considered 'on grounds
deriving from the general good'. Guidelines have therefore been established for
detecting and prosecuting offences under the Opium Act. Similar guidelines also
exist for other offences such as the illegal possession of firearms, pirate
broadcasting and exceeding the speed limit. The guidelines contain
recommendations regarding the penalties to be imposed and set out the
priorities to be observed in detecting and prosecuting offences. The
'Guidelines for detection and prosecution policy for offences under the Opium
Act' established in 1976 are based on the priorities already laid down in the
Opium Act.

International drug trafficking has the highest priority, possession of drugs
the lowest. This does not, however, imply that we take no action at all with
regard to possession: drugs are confiscated, but an addict is not thrown into
jail if he has less than half a gramme in his possession. We try to offer
assistance in these cases. An early intervention network set up by the Alcohol
and Drug Clinics, provides for counsellors to visit suspects at police stations
in the Netherlands. The low priority accorded the possession and sale of up to
30 grams of hemp products has resulted in dealers selling small quantities of
hemp products in youth
                                       -9-

centres and so-called coffee shops. The authorities keep a fixed eye on these
sales points.
By doing so the authorities follow the guidelines- no dealers quantities, that
means > 30 gram, no sale of any other drugs (e.g. cocaine, heroin), no
advertisements, no encouragement to use, no sale to minors. Policy aims to
maintain a separation between the market for drugs presenting unacceptable
risks and the market for hemp products.
In addition, the work of the tripartite consultative body, has led in recent
years to a number of preventive maesures being included in new administrative
rules as f.i. in relation to the location of coffee shops; on the other hand,
these rules make it possible for a mayor to close the shops in cases when a
dealer has been arrested and will be prosecuted. This latter measure is very
effective: if the coffee shop in question is allowed to remain open, other
persons will continue the dealer's activities as soon as he has been arrested.

3.3  _Legislation/penalties_concerning_commerce_of_precursors_and_essential
_chemicals_

Article 12 of the Vienna convention has been implemented within the European
Union; a decision was recentiy taken to amend our on legislation on the legal
traffic in precursors and chemicals. The Ministry of Economic Affairs has
already changed the legislation for the import and export to third countries. A
separate Act including regulations on the control of the legal traffic within
the Community has been drafted and will pass Parliament soon; the Economic
Surveillance Service will be responsible for supervision.

3.4 _International_treaties_and_agreements_

The Netherlands have ratified the Vienna Convention of 1988, the Convention of
Strassbourg of 1990 and the 1971 Convention on psychotropic substances,
accompanied by the legislation implementing them, last year.

The Minister of Justice signed an agreement on asset sharing and mutual
assistance in confiscation procedures with the United States of America and the
United Kingdom.

4. PRACTICAL LAW ENFORCEMENT

_Organisation_of_police_services_/_Assessment_of_current_effectiveness_of_law
_enforcement_services/problem_areas/possible_proposals_for_new_policies_

Since time immemorial, its geographical location has made the Netherlands a
transit country for drug smuggling. For this reason, the police and the public
prosecutors office have always accorded highest priority to combating wholesale
trafficking. With a view to the ratification of the Schengen Agreement, a
number of measures have been taken to intensify external frontier controls:
- officials of the Royal Military Constabulary and customs authorities who are
  no longer needed along the internal frontiers have been transferred to
  Rotterdam and Schiphol, and some will be employed to combat cross-frontier
  offences within the Schengen area;
                                       -10-

- at the end of 1992 a multidisciplinary team was set up at Schiphol
  (comprising customs, police and Royal Military Constabulary) to combat drug
  smuggling;
- the container checks set up and coordinated by the customs authorities is
  being further refined and harmonised in consultation with officials
  responsible for checks in other major European ports.

The Dutch police has recently undergone reorganisation, and the country is now
divided into 25 regions. A 26th force also exists, including the National
Criminal Intelligence Service (CRI), which plays a coordinating role in the
fight against drugs. The CRI is responsible for maintaining contacts with drugs
liaison officers detached to this country and with the police officers sent to
various other countries (Pakistan, Thailand, Venezuela, Colombia, the
Netherlands Antilles, Turkey and several European member states) by the
Netherlands.

This year (1994) sees the launching of Europol in The Hague, an organisation
that will strive to improve international cooperation in the fight against
drugs.

Much has been achieved in terms of legislation over the course of the past 4
years:
- the scope for confiscation has been greatly expanded in the case of serious
  drug offenders, making it possible to seize the illicit gains from drug
  trafficking (based on the 1992 Strasbourg Convention);
- measures have been introduced to curb the laundering of money
-  witnesses who have been threatened are now given police protection;
- the coercive measures available to the police have been expanded to include,
  for example, more sophisticated telephone tapping equipment. Infiltration
  into criminal organisations and controlled deliveries have been routine
  practices in police investigations for some considerable time.

Within the territory covered by the Schengen Agreement, regional liaison
networks wiil be set up in Benelux and France to combat drug tourism.
Consultations held in this framework wili aim to improve cooperation between
different police forces and courts.

5. INFORMATION/EDUCATION/PREVENTION

5.1 _General_principles_

The basic premise of information/education is that information on the risks of
drug use and on the risks attaching to the use of alcohol and tobacco should be
presented together. This general information has been incorporated in the
broader framework of the primary school subjects "promotion of healthy
behaviour" and "promotion of social skills" (such as: increase consciousness of
social influences and to learn skills to resist these influences) in order to
be able to cope with the risks of life in general. Secondary school pupils are
also encouraged to act responsibly in this respect. The significance of
information as a means of preventing drug (and alcohol) abuse should not be
overestimated, however. Various studies have shown that publicity is
ineffective in preventing the problem of drug abuse, particularly where it
seeks to emphasize the dangers invoived by presenting warning, deterring or
sensational facts. Publicity of this kind, which is likely to be one-sided and
often counter-productive, is therefore rejected by the Dutch government which
is likewise

=============================================================================

From: [e-mail] (Richard v.d. Horst)
Newsgroups: alt.drugs
Subject: Fact sheet- The Netherlands (4/5)
Message-ID: <[e-mail]>
Date: Fri, 22 Apr 1994 17:38:00 GMT

                                       -11-

disinclined to conduct mass media campaigns on the subject, which are
unavoidable untargeted. Since the level of drug consumption in the Netherlands
is rather low the message would mainly reach those who are not inclined to use
drugs.

Research into the lifestyles of heroin addicts in the Netherlands has given
rise to new attitudes towards prevention and widened understanding for the
reasons why people turn to drugs; it has also called into question the
possibility of prevention, especially by means of information. Moreover, it was
found that to start using drugs does not automatically lead to addiction. A
large number of people experiment with drugs without actually becoming
addicted. There are many types of users with many different lifestyles.
Measures to prevent occasional users from becoming addicted are therefore
extremely important and preventing problems is accordingly given at least equal
emphasis as preventing the use of drugs.
In view of the above, the Dutch government believes that drug use should be
shorn of its taboo image and its sensational and emotional overtones. The image
of the user and addict should be demythologised and reduced to its real
proportions, for it is precisely the stigma paradoxically enough, that
exercises such a strong attraction on some young people. In spite of the more
general principles of prevention there is education/information to risk groups:
"heavy" experimenters and those who live in surroundings where drug use is
considered "normal". Many city-funded care facilities (e.g. street workers)
carry out such prevention activities, making use of specific methods and
materials (see also item 6.2).

5.2 _Organisation_and_policy_of_services_responsible_for_prevention_activities_

The national government only creates good conditions for the development,
implementation and evaluation of health education. For example by financing two
institutes: the National Centre on Health Education in Utrecht, which
stimulates health education throughout the country (information and
documentation, increasing of expert knowledge, development of methodology,
research) and the National Institute on Alcohol and Drugs (NIAD), aIso in
Utrecht, with a similar function. NIAC primarily develops programmes and
materials for the prevention departments of drug treatment institutions (CADs,
see item 6.2.), which on their part carry out activities directed to
intermediaries, such as school teachers, youth workers, general health
professionals (GP's) etc. The vocational training for health education
professionals takes place in several government funded universities.
A Bill (1990) on General Health Prevention charges the municipalities (in many
larger cities implemented by municipal health services) to develop health
prevention activities to the general pubiic.
Taking into account the abovementioned general principles it is the freedom of
each individual school to decide how to carry out their health education
programmes by their own teachers. They may -and many do- make use of the
programmes developed by the beforementioned local programmes or National
Institutes. Usually parents are not involved, neither is the police. The
involvement of the police would only reinforce the negative and sensational
aspects associated with drug use and the creation of new myths.

5.3 _Prevention_of_HIV_infection/Aids_among_drug_misusers_

Keeping close contact with drug addicts (see item 6.1.) is a prerequisite for
an effective Aids prevention policy. The supply and use of sterile needles and
syringes
                                       -12-

in exchange for used ones and the supply of condoms is one way of limiting the
spread of HIV but is not a panacea. It must be embedded in a broader care
system. Persuasive face-to-face counseling, in order to change addicts' risky
behaviour in favour of safer practices, is essential.

5.3.1 _Needle_exchange_schemes_and_outreach_work_

There are about 130 needle and syringe exchange schemes now running in 60
municipalities. The schemes exhibit several differences in terms of size, type
of agency that is responsible, accessibility, outreach activities, opening
hours etc.. In 1992, 1,000,000 syringes were exchanged in Amsterdam.
Exchange schemes may be part of methadone programmes run by drug treatment
agencies or municipal health services. The special programmes for street
prostitutes in the larger cities also provide syringes. In a few municipalities
pharmacists exchange needles and syringes. Some schemes deliver syringes and
containers at private homes of isolated drug users and drug dealers. Some
schemes are mobile, making use of minibuses and vans that make stops at several
locations. Also, outreach workers provide syringes in the street or at private
homes. Some cities experiment with slot machines for needle exchange, to
provide syringes after the regular opening hours.

5.3.2 _Epidemiology_of_Aids:_

As of October, 1993, the total (dead and alive) number of Aids cases in the
Netherlands was 2783. The table below shows the cumulative Aids cases per
transmission group:

Homo/bisexual                          2131   (76.0 %)
IV drug user                            260   ( 9.0 %) \ 10 %
Homo/bisexual IV drug user               28   ( 1.0 %) /
Haemophiliac/coagul. disorder            46   ( 1.7 %)
Transfusion recipient                    38   ( 1.4 %)
Heterosexual contact                    220   ( 7.9 %)
Mother-to-child                          13   ( 0.5 %)
Other/unknown                            47   ( 1.7 %)

The proportion of injecting drug users among the number of Aids patients slowly
increases. There is no evidence of an explosive development.

6. TREATMENT AND REHABILITATION

6.1 _General_principles_of_treatment_and_rehabilitation_policy;_assessment_of
_the_programmes_

It is tried to make greater and more efficient use of general, particularly
primary, care facilities. Projects have been set up to encourage addicts and
former addicts to make use of general facilities, including health and social
services and youth welfare and housing facilities that are available to all
members of the public, as a means of preserving or re-establishing social
integration.
                                       -13-

Every effort is made to reach and assist as many addicts as possible, which
approach can claim a success rate of between 70% and 80% (Korf and Hoogenhout,
1990). Assistance is not aimed solely at combating addiction and the behaviour
associated with it, since people who do not feel the need to get off drugs or
are not capable of doing so, would remain beyond the reach of help. This could
lead to further social isolation, degradation and marginalization. There are
forms of care and treatment which are not primarily intended to end addiction
as such but to improve addicts' physical well-being and help them to function
in society, the inability to give up drug use being accepted as a fact for the
time being. This kind of assistance is called 'harm reduction' and may take the
form of field work, initial reception, the supply of substitute drugs -mainly
methadone-, material support and opportunities for social rehabilitation.
Failure to provide this type of care and support, would simply make matters
worse and increase the risk to the individual and to society. For those who
want to achieve a drug-free existence a wide variety of services is also
available.
The broad ambit and easy aecessibility of care is essential to the effective
implementation of AIDS prevention measures.

6.2 _General_organisation_of_services_/_Types_of_treatment_offered_

a. The Medical Consultation Bureaus for Alcohol and Drug Problems (CADs) are
autonomous non-governmental institutions, the entire costs of which are paid
directly by 23 municipalities and 19 probation boards. 75% of these funds are
provided by the Ministry of the Interior through these municipalities and 25%
by the Ministry of Justice through the probation boards. The CADs are also
active in the field of probation; one aspect is the initial reception of drug
addicts in police stations, where an effort is made to establish contact that
may lead to the acceptance of further aid during and after detention.
Although the CADs primarily provide non-residential mental health care, their
services are oriented towards social work, as the majority of their staff
(appr. 900 in all) are social workers. The objectives of individual CADs may
vary from kicking the habit (drugfree), to stabilising the functioning of
addicts by supplying the substitute drug methadone on a "maintenance basis"
(stable dosage). "Reduction based" methadone programmes are also applied
(gradually reduced dosages to nil). A variety of methods is used, including
psychotherapy, group therapy, material assistance, family therapy, counselling,
and advising groups of parents. An increasingly important area of the CADs'
work is prevention (see item 5.2), including AIDS control (needle-exchange,
information and education).
The nationwide network of CADs comprises 16 main branches, 44 subsidiary
branches and 45 consulting rooms. The total budget for 1993 amounted to appr.
FL. 80 million.

b. Several municipal authorities have set up their own methadone programmes
which are run by the municipal health services (budget: appr. FL. 7 million).
Methadone is now supplied either by a CAD or the municipal health service in
virtually all municipalities with a drug problem. Like the CADs the municipal
health programs have a central role in the field of AIDS prevention. Methadone
is being supplied to 7,000 addicts on an average day in appr. 60
municipalities.

c. The social welfare projects for drug users are part of a wide range of
social welfare services aimed at young people, and directed primarily to
prevention or risk
                                       -14-

reduction. Multiple risk groups are not uncommon, such as the unemployed,
ethnic minorities, and young people from marginal groups. These projects are
also subsidized by the municipalities, because the choice of projects can best
be made at local level. The projects listed below concentrate on different
types of aid and are geared to young peopie in particular: they are easily
accessible and are designed to have the widest possible outreach.
- projects aimed at preventing the social isolation of addicts;
- projects aimed at making contact with addicts and referring them to general
  of specialised aid agencies;
- social assistance and crisis centre projects;
- day and night centres where psychosocial assistance is provided;
- social rehabilitation projects for addicts and former addicts, comprising
  such facilities as supervised accommodation, vocational and other training,
  assistance in adjusting to work, and aftercare.

The total budget for these services for 1993 amounted to appr. FL. 55 million
for almost 90 projects in 45 municipaiities. Assistance to addicts of
Surinamese origin (Latin America) has increased considerably, drug use among
Moluccans (Asia) is decreasing sharply, whilst youngsters from the
Mediterranean countries, including Morocco, are turning to drugs in greater
numbers. Some 550 people are employed in these services.

d. Residential facilities for the drug-free treatment of drug addicts and
alcoholics are situated throughout the Netherlands, providing a total of 1,060
beds for the two categories of patients between which no sharp distinction is
made.
These facilities may take the form of an independent clinic or therapeutic
communities or special units in general psychiatric hospitals.
Various types of treatment are available:
- crisis intervention and detoxification which may last between two days and
  three weeks;
- clinical treatment lasting from three months to a year, aimed at overcoming
  addiction.
These facilities cost about FL. 80 million (as of 1993) and are funded from
contributions made under the Exceptional Medical Expenses (Compensation) Act,
which is part of the public health insurance system.

6.3 _Assessment_of_treatment_and_rehabilitation_programmes_

- The number of addiets and drug deaths are considered to be indicators of the
  effectiveness of drug policies: see item 1.2.

- The medical supply of methadone by drug treatment agencies in the Netherlands
  has been evaluated (Driessen, 1990, 1993). At present, drug counselors view
  reduction of health risks (HIV, Hepatitis B) and improvement of the social
  situation of clients as rather more important goals than just ending drug
  use. Nevertheless, a fourth of the clients follow a reduction programme that
  involves reducing the methadone dosage every week.

- The accessibility of the treatment sector has significantly improved during
  the last decade. About 75% of the current addicts now come into contact with
  any type of treatment agency, as compared to about 40% in the early eighties.
  This is a

=============================================================================

From: [e-mail] (Richard v.d. Horst)
Newsgroups: alt.drugs
Subject: Fact sheet- The Netherlands (5/5)
Message-ID: <[e-mail]>
Date: Fri, 22 Apr 1994 17:39:00 GMT

  success in itself! Methadone is also provided more frequently: 75% of the
  clients receive methadone -although not daily-, vs. 40% some 10 years ago.
  The researchers qualify the dosages as low.

- A fourth of the clients receiving methadone has been integrated into society.
  They have found employment or are completing studies. A third of the clients
  appears to be in control of their addiction and uses little or no more
  heroin. A fourth of the clients suffers from serious physical and social
  problems. Next to methadone they use a lot of other substanees, are often in
  bad health and are unable to adapt themselves to the demands of treatment. Of
  all methadone clients, 20% have been imprisoned during the last year.

  Next to the provision of methadone, other forms of help are also being used.
  Of all clients, 42% applies for medical assistance and 30% applies for social
  work. In addition, more therapeutic forms of assistance are available, such
  as psychotherapy and family therapy. However, only 1 to 4% of the clients
  make use of these kinds of therapy.

- Some results of a study of clients of methadone programmes outside the four
  large cities in the Netherlands:
  - a majority of clients use methadone on a regular basis;
  - almost all clients (95 %) use heroin as well, but only a minority (37 %) on
    a daily basis;
  - 75 % of the clients use cocaine, 10 % of them do so on a daily basis;
  - half of the clients are not criminally active; half are employed at least
    during part of the year;
  - 83 % have a stable housing situation; half have a stable relationship with
    a partner;
  - 6 % of the clients report to be seropositive for HIV (7 % of the injecting
    clients, 4 % of non-injectors);
  - 45 % are still at risk for HIV-infection, due to unsafe use and/or unsafe
    sex (Driessen, 1992).

- Swierstra (1990) found in a long term follow-up study that the use of hard
  drugs is related to a specific way of life, upon which the addict may become
  even more dependent than upon his drugs. Two-thirds of his respondents have
  stopped taking drugs and are no longer criminally active or, when still
  addicted, hardly so. This process is still going on among the respondents: a
  continuing decrease in criminality, a continuing increase in abstinence.
  Methadone appeared to have played an important role in bridging a problematic
  period in their lifetime.

- It is known from drug free facilities that many of their patients have had
  long experience with methadone, being of decisive importance to eventual
  kicking the habit. The existence of 'harm reduction' facilities did not
  prevent an increasing number of addicts who do want to kick their habit from
  making use of drug-free facilities; in Amsterdam this number of addicts has
  doubled during the last ten years.

- Grapendaal and Leuw (1991) found that in their Amsterdam study among drug
  addicts, more than 40% of the sample had not used heroin or only little less
  than
  half a gram, in the previous week. A strang correlation could be established
  with methadone use. They also state that -only- a minority of 25% conducts a
  lifestyle of heavy drug use and frequent criminal behaviour.

7. DRUG POLICY DEBATE IN PARLIAMENT

In March and April 1993, the drug policy was discussed at length in Parliament.
On the basis of this debate, it has been decided that the government will
maintain the current drug policy, considering its relatively good results.
Consequently, the primary aim of the policy remains the safeguarding of health,
while the Minister for Welfare, Health and Cultural Affairs remains responsible
for coordinating the governments drug policy. However, some amendments have
been deemed necessary.

First of all, to prevent public disorder as well as to ensure separation of
drug markets, the supervision of the so-called cannabis coffeeshops will be
tightened up. Secondly, the government has decided to make a more intensive use
of the existing instruments for placing problematic drug users under
constraint. In other words, to give them the choice between prison or
treatment. In December 1993, the State Secretary for Welfare, Health and
Cultural Affairs and the Minister of Justice have presented a note to
Parliament, outlining a plan of action to take more addicts out of the justice
system and to offer them help. This approach will help reduce the pressure on
the justice system. The action plan explicitly acknowledges that the policy
will be effective only if there are sufficient monitoring facilities and/or
after-care projects for the reinsertion of these persons into society.

8. INTERNATIONAL COOPERATION

8.1 _Cooperation_within_the_United_Nations_system_

The Netherlands has been a member of the UN Commission on Narcotic Drugs since
many years and has chaired this Commission in 1991.

8.2 _Regional_and_bilateral_cooperation_within_Europe_(including
_money-laundering_

Cooperation and mutual assistance have been set up to implement the specific
provisions of the Schengen Agreement, the Benelux Agreement on Extradition and
the European Convention on Extradition and Mutual Assistance. In addition the
Netherlands signed several bilateral agreements on this matter, for example
with the United Kingdom. There have also been established regular bilateral
consultations on drug policy with the United Kingdom.
The Netherlands are member of different technical police working groups of the
Pompidou group, as f.i. the Airport and maritime seaport group.

8.3 _Drug_liaison_officers_

See also item 2.
The National Criminal Intelligence Service (CRI) has appointed drug liaison
officers stationed in Thailand, Pakistan, Venezuela, Colombia, Interpol Lyon,
the Netherlands Antilles and in Turkey and Spain. Under the aegis of the CRI a
number of police officers from 11 countries have been stationed in the
Netherlands,
thus ensuring fruitful cooperation between their countries and the Netherlands'
authorities.

8.4 _Drugs-related_assistance_within_and_outside_Europe_

The Netherlands is closely involved in international efforts to suppress
production, trafficking and consumption of narcotic drugs. It encourages
developments in this direction and has been participating in projects of the
United Nations International Drug Control Programme (UNDCP). These projects are
aimed at different aspects of the problem, such as strengthening the social and
economic intrastructure, demand reduction (e.g. projects in Bolivia and
Colombia), and supporting the drafting of legislation (Surinam). The
Netherlands belongs to the Major Donors Group of UNDCP with a contribution to
the regular annual budget of Fl. 700.000 in 1994. Also, The Netherlands is a
member of the UN Commission on Narcotic Drugs (CND).

---
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