I warmly welcome this debate as it provides an opportunity to discuss in some detail our new national drugs strategy launched earlier this month. As in many countries throughout the developed world, drug misuse is one of the fundamental problems facing our society. It affects individuals, their families and entire communities. Tackling this scourge and ending the inter-generational cycle of drug dependency is a major challenge, particularly in these times of economic prosperity.
The Government believes that drug misuse in Ireland remains a major public policy issue. That is the reason our new national drugs strategy is so important. The new strategy will tackle the drugs problem in the most comprehensive way ever undertaken in Ireland. The strategy is the first to clearly assign responsibilities and set targets for the different Departments and agencies delivering drugs policy in the four spheres of supply reduction, prevention, treatment and research.
In April 2000 the Cabinet committee on social inclusion and drugs, which is chaired by the Taoiseach, requested that a comprehensive review of our existing drugs policies be carried out. The objective of the review was to identify any gaps or deficiencies in the existing strategy, develop revised strategies and, if necessary, new arrangements by means of which to deliver them. The review was managed and overseen by a review group comprising senior officials from key Departments and the national drugs strategy team. The review group was assisted in its work by a team of independent consultants – Farrell Grant Sparks, Dr. Michael Farrell and Nexus Research Co-operative Consultants.
As part of the review, an extensive public consultation process was undertaken. This gave individuals and groups an opportunity to tell us how effective the current strategy was and how it might be improved. Over 190 written submissions were received and eight regional consultative fora were held throughout the country. In addition, 34 different organisations and groups – representing Departments, State agencies and service providers – made presentations to the review group and me.
Members will recall that we had a two hour debate on the national drugs strategy on 21 June 2000 which also contributed to the review process. I am indebted to all those who participated in the review, particularly for the many insights they provided into this complex problem from a variety of different perspectives. As policy makers, we have learned in recent years that it is fundamentally important to listen. It is equally important to act upon what one has heard. I am glad to say therefore that the new strategy has been developed taking into account the broad range of issues raised during the consultation process.
During the review the Cabinet committee on social inclusion and drugs was regularly briefed on the key issues emerging. At all stages it was eager to be in a position to act quickly and, where necessary, bilateral meetings were held with Ministers to tease out issues. When the review was completed last month it was cleared by the Cabinet committee and, immediately afterwards, by the Government.
A striking feature of the consultations was the serious concern expressed over the widespread abuse of alcohol among young people, particularly outside Dublin. There is a common perception that alcohol abuse can act as a stepping stone or gateway to illicit drug misuse. Our society has always had a somewhat paradoxical relationship with alcohol. We take pride in promoting our friendly pub culture to an international audience. In addition, young people are being constantly bombarded with glamorous images involving alcohol by all sections of the media.
In the light of the concerns expressed during the consultations the national alcohol awareness campaign recently launched by the Minister for Health and Children, Deputy Martin, is timely. It is particularly aimed at young people. Allied to this, the new drugs strategy contains recommendations designed to ensure increased co-ordination and co-operation between the drugs and alcohol strategists.
As part of the review, the latest available data on the nature and extent of the drugs problem in Ireland were examined. This shows that the most commonly used drug in Ireland is cannabis followed by ecstasy. However heroin causes the greatest harm to individuals and the community. Both treatment data and data from the Garda Síochána indicate that heroin misuse continues to be a Dublin phenomenon, almost exclusively. Research also shows that heroin abusers are predominantly male, under 30 years of age and unemployed, and over half of those presenting for treatment had already left school by the age of 16 years. Members will agree that these are stark statistics.
There are one million to 1.5 million problem drug users, mainly of heroin, in the European Union. Prevalence estimates put Ireland marginally above the EU average for problem drug use. As part of the review, the drug strategies of a number of other countries were examined. In shaping the new strategy the review group took on board proven international practices in tackling drug misuse.
Ireland's current approach to tackling drug misuse incorporates the broad range of activities which are the hallmarks of modern drugs strategies in other jurisdictions. Central to the approach has been the bringing together of key agencies to develop a range of appropriate responses to tackle drug misuse. These agencies are working, not just in relation to the supply of drugs, but also in providing treatment and rehabilitation to those who are addicted and in developing preventative strategies. This type of co-ordinated working, where all the key players come together to build on each other's experience, is in my opinion the only way that the complex and deep-rooted problems of drug misuse can be solved.
The local drugs task forces have embraced this way of working from the outset, in a true spirit of partnership between the local communities and the State agencies. It is fair to say that over the last few years a new process of engagement has emerged between the communities and the State. Community representatives, residents and State agencies are united in a common purpose. I am confident that the local drugs task forces will continue to build on their considerable achievements through their new action plans. To date, the Cabinet committee has approved almost £6.9 million for 11 updated plans. These plans cover a wide variety of issues in the areas of treatment, rehabilitation, awareness, prevention and education. Earlier this evening the Cabinet sub-committee approved another two plans out of the 14.
While the review group recognised that much remains to be done, there are encouraging signs of progress in recent years, which suggests that the current approach to tackling the drug problem is proving to be effective. The current approach, therefore, provides a solid foundation to build on for the next seven years.
I congratulate local drug task forces for the work they have done over many years and the time they have put into it, many of them on a voluntary basis. Internationally they have been seen to be doing a great job, and this has been acknowledged during visits to them. The work within communities to build them up, with local people in charge of projects, had the advantage of training people up on an educational level, but also because they were part of the community they knew what was going on. The European Monitoring Centre for Drugs and Drug Addiction in Lisbon told us that one of the biggest hits on their own website was local drugs task forces in Ireland, which is a great compliment to the task forces. There is a lot of activity in Europe on this subject and people are looking at other strategies. We have to recognise the work of those local people over the years who went out and delivered when they were given the help and resources.
Consequently, the new strategy endorses the existing approach and will expand on and strengthen the pillars and principles which underpin it. The overall strategic objective of the new strategy is to reduce significantly the harm caused to individuals and society by the misuse of drugs through a concerted focus on supply reduction, prevention, treatment and research.
What is different about the new strategy? This is the first time that all elements of the drugs policy in Ireland have been brought together into a single framework with responsibilities clearly assigned. The new strategy sets out a policy framework through which all those involved in addressing this problem can work for the next seven years. It clearly assigns responsibility to, and sets targets for, the different Departments and agencies involved in delivering drugs policy across the four pillars of supply reduction, prevention, treatment and research.
Under each of the four pillars, a series of objectives and key performance indicators have been set – with specific targets that Departments and agencies will have to meet. Around the pillars we have no fewer than 100 individual actions. These actions are designed to build on what has been achieved to date and drive the new strategy forward.
One of the key recommendations in the new strategy is that regional drugs task forces be set up throughout the country to develop appropriate policies for their regions. While heroin misuse remains predominantly a Dublin phenomenon, drug misuse is occurring throughout the country. The regional drugs task forces will have a key role to play in the whole area of prevention and will also be responsible for identifying and addressing any gaps in service provision to tackle the drug problem in their areas. What this adds up to is national coverage. For the first time, we have an integrated strategy covering the whole country.
One of the interesting aspects of what has happened is that there are 14 local drugs task forces, most of which are in Dublin. There is one in Bray and one in Cork, but there is no real heroin problem in Cork. The local drugs task force launched some time ago a fantastic plan in Cork, with a lot of money going into prevention. If there is prevention on the ground, these problems can be overcome. The people who have worked on the local drugs task force in Cork deserve much credit for being there on the ground and for their excellent plan which covers the whole city. If heroin suddenly came into Cork on a large scale, they would be able to identify it very quickly and act immediately to counteract it. Cork is lucky that it does not have heroin.
Anybody whose constituency has heroin in it – Senator Costello's certainly has it and Senator Henry also knows it from her own area of Dublin South-East – knows that once heroin arrives an area completely changes. The whole atmosphere changes and it is very easy to identify it because it brings individuals, families and the whole community down. It is a scourge of a drug. I believe regional structures are the way forward with our strategy, on the basis of the experience with Cork.
Other key actions to drive the new strategy forward include, under the supply reduction pillar, increasing the number of Garda deployed in local drugs task force areas by the end of 2001. In addition, the volume of all illicit drugs seized will be significantly increased, by 25% by 2004 and by 50% by 2008. Under the prevention pillar, an on-going national awareness campaign highlighting the dangers of drugs will be launched with the first stage to commence by the end of 2001. Comprehensive substance misuse prevention programmes will also be taught in all schools. The national awareness campaign will not be merely a "Do not take drugs week", it will have to be ongoing, consistent and will need to involve the media, schools, and others.
Under the treatment pillar, the number of methadone treatment places will increase to 6,000 by the end of 2001 and to 6,500 places by the end 2002. There will be immediate access to professional assessment and counselling for the individual drug misuser, followed by commencement of treatment not later than one month after assessment. A range of treatment and rehabilitation options will also be developed in each health board area and a protocol will be developed for treating under 18 year olds presenting with serious drug problems by mid 2002.
Senator Jackman talked about other options and we are looking at alternatives to methadone. We are aware that there has been some criticism about methadone, but it is the choice which most people presenting for treatment want. We have to make sure that they are not just dumping methadone, but they move through to rehabilitation and counselling and hopefully out the other side. There are many projects throughout this city where that is happening. An independent assessment of the treatment showed that 40% of those treated were back to work, and over 70% were no longer on heroin. There is a problem with poly-drug use and benzodiazepines, which Senator Henry referred to, and this will be tackled. The protocol on benzodiazepines should be launched in June and this will hopefully address that problem. It will be difficult to meet the demands of the proper use of benzodiazepines, while at the same time trying to stop people prescribing them, and using and abusing them as they are at the moment.
On the treatment side, it is local opposition that is causing the problem. In Crumlin, for example, there were approximately 80 people on the waiting list in April 2000. Since we opened three treatment centres in the area, that figure has fallen to fewer than ten which shows that if we can get the centres open we can get people into treatment. Ballyfermot, which had 150 people in treatment, now has 380 in treatment. The waiting list in the area in 1998 was 250 people. There are now fewer than 50 people waiting for treatment. That is because we managed to open the treatment centres.
Unfortunately, as Senator Henry has said, there very often is great local opposition to new centres. The matter needs to be approached in the right way. Senator Kett mentioned criticism of the health board. The health board has learned from its past mistakes. Many of us have had the experience of attending public meetings having been told one thing only to discover while standing on stage defending it that it is not true. The health board has learned from events and is working with local communities.
Some people who once objected to treatment centres have shown a willingness to tell public meetings that the establishment of a centre, as Senator Henry said, has considerably improved the position on the street. I took part in a radio programme recently, during which the chairman of a residents' association in Crumlin phoned in to say that his group, which had objected to a treatment centre being opened in the area, now agreed that the scheme is working. That message will slowly get across to people.
The Government is firmly committed to implementing the various actions set out in the new strategy. To ensure this happens, I will chair the interdepartmental group on drugs which will oversee the implementation of the strategy. This group will be responsible for bringing six-monthly progress reports to Government highlighting emerging operational difficulties or conflicts which are blocking implementation of the strategy. Any such impediments will be overcome. An annual report on progress made in implementing the various actions will also be published and an independent evaluation of the strategy will be carried out in 2004.
While the review was taking place, progress was also made in enhancing the current strategy and a number of landmark initiatives took place. Over 120 of the original local drugs task force projects have been mainstreamed and the task forces are currently updating their plans for the next three years. The National Advisory Committee on Drugs, which was established in July 2000, is overseeing a three-year prioritised programme of research and evaluation on the extent, nature, causes and effects of drug misuse in Ireland.
Over 340 projects are being developed as part of the young people's facilities and services fund. The important role that diversionary activities such as involvement in sport and recreation can have on young people at risk of drug misuse has long been recognised. It is also time that we recognised that there are many young people who would not kick a football if their life depended on it. Other activities, cyber cafes for instance, will also have to be considered. A lot of money is going into sport but we should remember that not everyone is interested in sport. These areas need to be examined and developed.
A joint policy on prison-based drug treatment services has been agreed between the Prisons Service and the Eastern Regional Health Authority and is being implemented. In addition, a pilot drugs court has been set up in the north inner city of Dublin which will provide opportunities to divert people away from the criminal justice system into alternative and more effective treatment and rehabilitation programmes.
It is also worth mentioning the RAPID programme in this context. This programme, which was launched in February 2001, is a focused initiative by the Government to tackle the most concentrated areas of disadvantage in the country. The 25 areas selected are located in large urban centres of population. The programme will prioritise the needs of these neighbourhoods and, through investment and improved services, will aim to develop the areas in relation to health, education, housing, employment, drug misuse and policing, depending on the needs of the individual areas which will be identified in an area plan.
All this is being done against the backdrop of substantial funding being made available under the National Development Plan 2000-2006 for social inclusion measures. Over the lifetime of the strategy approximately £1 billion will be made available for such measures.
What are the prospects for the future? After years of hard work and concerted effort by a range of individuals and bodies, we can say that the foundations are solidly laid. We are entering into the next stage of the drugs strategy with a clear focus on what needs to be done. With the implementation of the recommendations contained in the new strategy and the active involvement of all the relevant players, we will turn the tide on this modern day menace.
We should not underestimate the task which is facing us in eradicating drugs from society. We can succeed, however, in making a measurable difference for the first time. By working together through the Departments, State agencies, front-line workers, the community and the politicians, we can stake our claim on a more fair and socially inclusive society. The new strategy will open a window of hope for all those individuals and communities suffering because of drugs and make this a country of which we can all be proud.
Senator Jackman mentioned the ESPAD report. The figures in that report are worrying but they were compiled differently in Ireland than in other countries. No consistent methodology was applied across the EU. One of the reasons we set up the National Advisory Committee on Drugs was to get data that stood up to analysis. I am not saying that the report is wrong but people around Europe have questioned the way in which it was compiled in some countries. One of the problems people have pointed out in relation to our strategy is that no one has been carrying out proper studies in this area. I met Des Corrigan, the chairman of the committee, this morning to discuss a number of issues. The committee, which is producing some exciting results in parts of its research, will be referred to by many people in the coming years.
The drugs court is a pilot project in the north inner city. As it is only concerned with treatment, no one is sent to prison.
