Policy Update
Arjun Brij
Introduction
The National Action Plan for Drug Demand Reduction (NAPDDR), launched in 2018 by the Ministry of Social Justice and Empowerment, is India’s main policy instrument to fight rising drug abuse and illicit drug trade. Drafted as an integrated and comprehensive strategy, NAPDDR is intended to be aligned with international targets and objectives under the United Nations Sustainable Development Goals (SDGs), namely SDG 3.5, which deals with prevention and treatment of abuse of substances, and SDG 16.4, which deals with the eradication of organized crime, including drug crime.
Despite the stringent provisions of the Narcotic Drugs and Psychotropic Substances (NDPS) Act of 1985, India is confronted with a growing public health issue of rising incidence and refinement of drug addiction. Socio-economic vulnerabilities, easy accessibility of both traditional and synthetic drugs, and ad hoc enforcement have contributed to the problem.
A 2019 national historic survey by MoSJE in partnership with the National Drug Dependence Treatment Centre (NDDTC) at AIIMS revealed the shocking scale of the issue: there were approximately 5.7 crore Indians—or 5.2% of the population—consuming cannabis and opioids. Of these, nearly 72 lakh people needed to be treated for opioid dependence. More than 1.18 crore people were also injecting drug users (IDUs), which put them at significantly increased risk of acquiring blood-borne diseases such as HIV, Hepatitis B, and Hepatitis C.
Functioning and Performance
The National Action Plan for Drug Demand Reduction (NAPDDR) is formulated on four pillars: prevention, treatment and rehabilitation, capacity building, and enforcement. To achieve these ends, the government has launched a number of programmes, namely the Nasha Mukt Bharat Abhiyan (NMBA), which is functioning in 372 districts across the nation. Under the umbrella of NMBA, the National Institute of Social Defence (NISD) has launched mass school-based and community outreach programmes. Besides these, mass media campaigns like the popular Drug-Free India campaign have helped in generating awareness.
Despite these efforts, program execution is irregular. A 2023 Ministry of Social Justice and Empowerment (MoSJE) analysis noted that only 40% of the targeted schools had fully incorporated drug education curricula, reflecting underlying organizational inefficiencies and non-standardization in delivery mechanisms.
In the rehabilitation field, the government has established over 400 Integrated Rehabilitation Centres for Addicts (IRCAs) with the support of Outreach and Drop-In Centres (ODICs). However, the 2023 report of the Parliamentary Standing Committee brought into the spotlight some serious issues: barely 30% of the IRCAs were functioning at full capacity, with most of the centres lacking the essential staff in the form of psychiatrists, psychologists, and trained drug addiction counsellors. In core addiction-prone states, e.g., Punjab, fewer than half of the IRCAs had full-time psychiatrists, forcing many to approach expensive private treatment centres, which are out of their reach.
While India has formalized training and certification programs for addiction management, states’ variation in service quality continues as there is no standardized, uniform training curriculum.
Enforcement efforts have been enhanced with the Narcotics Control Bureau (NCB) working in collaboration with state agencies to increase anti-trafficking operations. NCB data (2024) indicate that drug seizures have increased by 25% quarter-on-quarter since 2019. Notwithstanding, a lack of interoperable, digital monitoring systems severely impedes inter-agency coordination. Approximately 30% of seized drugs are not tracked, with no data on their source or distribution networks, reflecting serious data management and coordination loopholes.
Even with the rise in budgetary provision for the NAPDDR from ₹100 crore in FY 2018–19 to ₹450 crore in FY 2024–25, finance remains constrained compared to international norms. For instance, the United States allocates over $40 billion annually on its drug control activities. Compared to this, India has enormous infrastructure and human resources constraints that drastically hinder the effectiveness and scaling up of its activities.
Budgetary Allocations
| Year | Allocation (₹ Crore) | Key Initiatives |
|---|---|---|
| 2018–19 | 100 | Launch of Nasha Mukt Bharat Abhiyan (NMBA), Outreach and Drop-In Centres (ODICs) |
| 2020–21 | 260 | Expansion of Integrated Rehabilitation Centres for Addicts (IRCAs) |
| 2023–24 | 315 | Targeted focus on synthetic drug abuse |
| 2024–25 (Proposed) | 450 | Darknet monitoring, AI-based surveillance mechanisms |
Despite increased funding, only 30% of de-addiction centers meet operational standards (Parliamentary Standing Committee Report, 2023).
NITI Aayog’s 2024 report points out two fundamental fiscal shortcomings which are impacting the effectiveness of NAPDDR. First, there is an uneven spatial distribution of rehabilitation facilities with regard to the population because almost 80% of de-addiction centers are located in urban areas. Second, it was noted that less than 10% of CSR funds is spent on drug rehabilitation, which is permissible under the Companies Act, highlighting the underutilization of these funds.
Challenges
India is facing a rapidly evolving drug situation marked by unfolding threats that require emerging and dynamic policy responses. One such alarming trend is the growing availability and use of synthetic drugs, such as fentanyl, methamphetamine, and synthetic cannabinoids. These drugs have transformed the drug scene because of their high potency and affordability.
In 2023, Delhi witnessed a 200% increase in the seizure of synthetic drugs. With prices plummeting to as low as ₹50 per dose, these drugs have become readily accessible—particularly among young people from urban areas. This has resulted in a steep increase in the use of substances, with synthetic drugs accounting for almost 40% of all reported cases in urban areas, resulting in a massive public health emergency.
Adding to this challenge is the increasing trend of drug dealing conducted using darknet networks, which has transformed the distribution pattern drastically. The 2024 Narcotics Control Bureau (NCB) report places the estimate that some 65% of all narcotic transactions in India are now being conducted through end-to-end encrypted online platforms such as Telegram and Signal.
This emerging space of drug dealing utilizes the factors of anonymity, cryptocurrency transactions, and secretive shipping practices, significantly undermining the efforts of law enforcement agencies. An example from Mumbai showed the extent of the issue: a darknet vendor serviced more than 1,000 buyers before being apprehended, establishing the extent and resilience of online drug markets.
Another area of the issue of substance misuse involves the diversion of prescription medications. Drugs like Tramadol and codeine-containing cough syrups have documented increasing patterns of misuse, particularly among young adult and adolescent groups.
In a 2023 enforcement operation on pharmacies in Uttar Pradesh, it was discovered that nearly 20% of the pharmacies checked were involved in unlawful sales of prescription drugs. These accounts indicate a critical lack of monitoring mechanisms and present a pressing need to increase monitoring of the pharmaceutical supply chain. Access to the substances through illicit online pharmacies as well as actual retail outlets also contributes to the issue of pharmaceutical diversion.
Policy Recommendations for NAPDDR 2.0 (2025-2030)
To effectively address the multifaceted challenges posed by these developments, a comprehensive strategic plan is imperative. A fresh NAPDDR (2025-2030) has to adopt a “4E Strategy”: Enforcement (techno-policing), Education (preventive awareness), Empathy (medical over punitive actions for addicts), and Expansion (upscaling rehabilitation infrastructure). As India works towards enforcing these strategies, it is of utmost importance that the nation adopts a technology centric intelligence framework.
Enforcement
The proposed National Narcotics Intelligence Network (NNIN) represents a crucial advancement in enforcement capabilities. By consolidating the Narcotics Control Bureau, Financial Intelligence Unit, and state agencies into a single integrated platform for real-time data analysis, this initiative would facilitate predictive policing aimed at identifying trafficking routes and monitoring financial transactions.
Furthermore, the implementation of the EU’s 4PRACK AI surveillance system, which demonstrated a 40% reduction in drug web sales during its pilot study in Kerala, could serve as a vital tool for surveilling and disrupting darknet marketplaces. Moreover, bolstered accountability and transparency across jurisdictions will be achieved through blockchain tracking systems like ‘Narcosafe’ in Andhra Pradesh, which documents drug seizure processes.
Education
Education as the second E must be incorporated as a part of the curriculum. A shift from ad-hoc awareness campaigns to a more structured approach is critical. Preventive measures must be reinforced through systemic changes. Integrating drug awareness modules into the curricula of CBSE and State Board syllabuses by 2026, inspired by a pilot project in Gujarat that yielded a 60% increase in student awareness, could institutionalize educational prevention programs.
It is essential that comprehensive drug education is included in the CBSE and State Board syllabi by the year 2026. Additionally, involving NSS and NCC volunteers as “Drug-Free Ambassadors” has shown promise; a program in Karnataka achieved a 25% reduction in substance use among college students using this model. These initiatives must also sustain targeted media attention while tailoring them to address local sub-region specific drug issues.
Empathy
The third E, Empathy, constitutes the need to address substance abuse as a public health concern rather than a criminal offense. AIIMS and UNODC data reveal that, out of an estimated 2.26 crore opioid users in India, only 25% of those who require treatment actually seek help—and below 5% receive inpatient treatment. The under-provision of Opioid Substitution Therapy (OST) in less developed rural and semi-urban regions worsens this situation.
Some regions such as Punjab and Bihar have had success with OST clinics, but this still needs to be adopted in other regions. These gaps could be improved by expanding tele-rehabilitation services through platforms like e-Sanjeevani, which treated more than 5,000 addiction patients remotely in Odisha. It is crucial that public health infrastructure makes available addiction counselors and psychiatrists so as to lessen the dependency on private expensive clinics.
Expansion
There is an urgent need to expand and enhance treatment facilities. A mandate requiring at least one Integrated Rehabilitation Centre for Addicts (IRCA) in each district, alongside the adoption of public-private partnership models, could significantly improve access to treatment.
The successful collaboration in Tamil Nadu with Apollo Hospitals, which achieved a 35% reduction in relapse rates in 2023, serves as a noteworthy example of such effective partnerships. Concurrent initiatives, such as tele-rehabilitation services offered through India’s e-Sanjeevani platform, can address access disparities in rural areas, as evidenced by an Odisha pilot program that delivered remote treatment to 5,000 patients in 2023.
Also, there is an issue of underusing funds allocated for Corporate Social Responsibility (CSR) initiatives. It is legally mandated by the Companies Act to set aside, yet less than 10 percent of these funds is targeted at rehabilitation for substance abuse. Institutional mechanisms need to be developed to allocate these certified funds to rehabilitation providers in these certified rehab centers.
Other Measures
Reforms in governance, guided by data, should include the implementation of National Drug Abuse Surveys every three years to remain responsive to evolving abuse patterns. Conducting national drug abuse surveys once every three years—down from the previous long durations—will ensure the metrics guiding policies are proactive, timely, and responsive to localized trends and changes. Creating a blockchain ledger for drug seizures, similar to the “Narcosafe” system initiated in Andhra Pradesh, would enhance transparency and documentation of the chain of custody among enforcement agencies.
Lastly, robust legal reforms are essential to draw a clear distinction between individuals requiring rehabilitation and those engaged in trafficking, who should face severe penalties. Amendments to the NDPS Act should reflect this differentiation, coupled with the establishment of over 100 special fast-track courts for narcotics cases. Following the implementation of such courts in Maharashtra, which successfully resolved 500 cases in 2023, it is evident that expedited justice can serve both as a deterrent and a mechanism for effective law enforcement.
Replacing the phrase ‘substance-free India by 2047’ permits the nation to tone down its intensity, however, the vision remains hyperbolic yet vital. For a country seeking to evolve into a USD 5 trillion economy, the peculiar economic toll of substance abuse—estimated at ₹1.5 lakh crore a year is concerning.
Conclusion
The 4E Strategy is a guide toward fostering resilient and supportive drug control systems by integrating public health, technological advancements, grassroots education, and legal reform. As the Nasha Mukt Bharat Abhiyan demonstrates through its reach in 372 districts, the groundwork is in place—it requires scale, synergy, sustained political support, and intention to grow. Collectively, these measures present India with a strategic pathway to regain control in its ongoing struggle against substance abuse.
The NAPDDR needs to evolve into a dynamic, technology-driven policy that harnesses data, citizen engagement, and inter-sector coordination. By consolidating prevention, treatment, and enforcement into a single framework, India is able to prevent the socio-economic consequences of drug abuse and achieve its SDG 3.5 targets.
References:
- Department of Science and Technology. (2025). Annual Report 2024-25. Retrieved from https://dst.gov.in/sites/default/files/Annual%20Report_2025_English.pdf
- Ministry of Social Justice and Empowerment. (2019). Magnitude of Substance Use in India Report. Retrieved from https://socialjustice.gov.in/writereaddata/UploadFile/Magnitude_Substance_Use_India_REPORT.pdf
- Narcotics Control Bureau. (2024). Annual Report 2023-24. Retrieved from https://narcoticsindia.nic.in/Upload/UploadFiles/AnnualReport2024.pdf
- Parliamentary Standing Committee on Social Justice and Empowerment. (2023). Report on Drug Abuse in India. Retrieved from https://rajyasabha.nic.in/rsnew/Committee_site/Committee_File/ReportFile/19/142/3_2023_12_15.pdf
- NITI Aayog. (2024). Policy Paper on Substance Abuse and Economic Impact. Retrieved from https://www.niti.gov.in/sites/default/files/2024-02/SubstanceAbusePolicyPaper2024.pdf
- United Nations Office on Drugs and Crime. (2023). World Drug Report 2023: India Analysis. Retrieved from https://www.unodc.org/unodc/en/data-and-analysis/wdr-2023.html
- National Institute of Social Defence. (2023). Annual Report on Rehabilitation Programs. Retrieved from https://nisd.gov.in/sites/default/files/NISD_AR_2022-23_English.pdf
- Andhra Pradesh Government. (2023). Narcosafe Blockchain-Based Seizure Documentation System. Retrieved from https://www.ap.gov.in/narcosafe-initiative/
- Apollo Hospitals. (2023). Annual Report on Substance Abuse Rehabilitation Partnerships. Retrieved from https://www.apollohospitals.com/investors/annual-reports/
- Gujarat State Board of School Textbooks. (2023). Pilot Implementation Report on Drug Awareness Curriculum. Retrieved from https://gujarat-education.gov.in/pilot-drug-awareness-report/
- Kerala Police Department. (2024). Final Report on the 4PRACK AI System for Darknet Monitoring. Retrieved from https://keralapolice.gov.in/reports/4prack-final2024.pdf
- Karnataka Higher Education Council. (2023). Impact Assessment of NCC-Led Drug Prevention Programs. Retrieved from https://karnatakastatecouncil.ac.in/ncc-drug-prevention-2023/
- Tamil Nadu Department of Health and Family Welfare. (2023). Public-Private Partnership in De-Addiction Services: Apollo Model. Retrieved from https://tnhealth.tn.gov.in/apollo-ppp-deaddiction.pdf
- UNODC South Asia. (2023). Trends in Opioid Use and Response Strategies in India. Retrieved from https://www.unodc.org/southasia/en/frontpage/2023/October/opioid-trends-india.html
- Reserve Bank of India. (2024). Annual Report: Monitoring Cryptocurrency Transactions for Illicit Use. Retrieved from https://www.rbi.org.in/Scripts/AnnualReportPublications.aspx
About the Contributor– Arjun Brij is a Policy Researcher at the Impact and Policy Research Institute.
Acknowledgment: This article was reviewed by IMPRI experts and other collaborators.
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