1 Drug misuse is a major threat to individuals, families and the wider community. The aim of the Government’s strategy, as set out in the White Paper –"Tackling Drugs Together" (HMSO, 1995) is:

"To take effective action by vigorous law enforcement, accessible treatment and a new emphasis on education and prevention to

• increase the safety of communities from drug-related crime;
• reduce the acceptability and availability of drugs to young people; and
• reduce the health risks and other damage related to drug misuse".

An Annex from the White Paper listing the main illegal drugs is reproduced as Annex 1.

2 Young people are influenced by their parents, youth culture, the media, their peers, and others - but education can play a key role in ensuring that young people know the risks of drug taking and have the knowledge and skills to resist. Schools alone cannot "solve" the problem of drug misuse in society but an effective programme of drug education in schools can be an important step in tackling it.

3 Drug misuse is an educational issue. Relatively few children of compulsory school age are actively involved in experimenting with illegal drugs. But pupils - including those in primary schools - are likely to be exposed to the effects and influences of drug misuse in the wider community. Each school therefore has a responsibility to consider its response to drug misuse, working in partnership with health and social services, the police and other agencies.

4 This Circular reflects recognised good practice in schools and offers guidance on the principles which should inform the development of school drug education programmes and assist schools in dealing effectively and consistently with drug-related incidents. Each school will want to consider its own response to drug prevention in the light of these common principles.

5 Although the Government's overall drugs strategy focuses on illegal drugs only this Circular deals also with tobacco, alcohol, volatile substances (solvents) and other substances whose use or misuse may have harmful effects on the body. Whilst a clear distinction must be maintained between illegal drugs and others, these substances may raise common issues for schools and require some similar teaching approaches; for example, in equipping pupils to be better able to resist peer pressure.

6 The Secretary of State is not seeking through this guidance to impose additional curricular demands or pastoral responsibilities on schools. The aim is to encourage better planned and targeted practice in this important area and to counter the stigma which has too often attached to schools who have made a stand against drugs.

7 Data on the extent of drug misuse among young people vary and can be unreliable where surveys are based on self-reporting of a covert activity such as the use of illegal drugs. One authoritative source, the 1992 British Crime Survey shows, however, that 3% of 12-13 year olds and 14% of 14 to15-year-olds said they had ever taken an illegal drug. Further statistics from this survey are reproduced in the table at Annex 2. Other smaller scale, local surveys have found higher levels of reported use and figures for the number of young people of school age who say they have been offered illegal drugs are considerably higher. The available evidence suggests that the age of first use of illegal drugs is failing while the number of deaths resulting directly from drug misuse is rising.

8 Drug misuse is as much an issue for schools in rural areas and affluent communities as for disadvantaged inner city areas. There are no –"no go areas"- for illegal drugs. Drug misuse extends across socio-economic and ethnic boundaries. Educationally successful young people are just as likely to find themselves at risk. No school can afford to be complacent or to think its pupils are not at risk.

9 Just as it is wrong to think of drug misuse as primarily an issue for schools in urban deprived areas, it is also wrong to think of drug education as an issue for secondary schools only. Teachers in primary schools report that their pupils already display some knowledge of drug misuse - they are just as likely to be influenced by media references to drug misuse and may have witnessed instances of use and trafficking amongst older children and adults. Information and skills to resist drugs are best first provided before exposure and experimentation are likely. Younger pupils are likely to benefit from unambiguous messages and from being helped to develop a repertoire of responses to enable them to resist pressure or encouragement to misuse drugs from peers, older children or others. Primary, and even nursery, school sites may be used after hours for drug misuse so even the youngest children may need to be warned of the dangers from discarded equipment.

10 In England and Wales, certain aspects of drug education are a statutory requirement as part of the National Curriculum science Order, and these remain in the revised Order. This comes into force from 1 August 1995 and states that pupils should be taught:

• ·Key Stage 1 (5-7 year olds) about the role of drugs as medicines;
• Key Stage 2 (7-11 year olds) that tobacco, alcohol and other drugs can have harmful effects;
• Key Stage 3 (11-14 year olds) that the abuse of alcohol, solvents, tobacco and other drugs affects health and that the body's natural defence may be enhanced by immunisation and medicines and how smoking affects lung structure and gas exchange; and
• Key Stage 4 (14-16 year olds) the effects of solvents, tobacco, alcohol and other drugs on body functions.

11 The requirements of the National Curriculum represent the statutory minimum for schools. It is for individual schools to consider whether, and if so how, they might wish to extend provision for drug education beyond this. Schools should also take account of the general requirement in the Education Reform Act 1988 that the curriculum in all maintained schools should promote "the spiritual, moral, cultural, mental and physical development of pupils at the school and of society" and should prepare them for "the opportunities, responsibilities and experiences of adult life".

12 Within the statutory framework, schools are free to decide for themselves how best to organise drug education for their pupils. Such education may be provided within science classes, as appropriate within other subject areas, or as part of a broader programme of personal and social or health education.

13 Teaching about drugs is generally best provided as part of an integrated programme of health education spanning all four key stages. Many of the attitudes and behaviours are common to other aspects of health education. To single out drug education for separate treatment may risk glamorising the subject or losing opportunities to reinforce wider messages about healthy lifestyles. However a programme of drug education is organised, the essential aim should be to give pupils the facts, emphasise the benefits of a healthy lifestyle, and give young people the knowledge and skills to make informed and responsible choices now and later in life.

14 Drug education requires sensitive teaching matched to the particular needs and concerns of pupils in the class. Teachers will need to use their professional judgement where the class includes pupils from ethnic minority or religious communities with particular sensitivities. Careful consideration needs to be given to the possibility that pupils' parents or siblings may have experience of drug misuse.

15 Teaching should be responsive to changing trends in drug misuse and offer a credible and consistent message. Teaching about illegal drugs is unlikely to have a lasting effect if a lesson is given in isolation or as one-off response to a drug-related incident in the school. Teaching approaches which set out to shock or to frighten may actually increase interest and encourage experimentation. However, with the very young a clear warning about the dangerous effects of drugs can be particularly, powerful.

16 All pupils need accurate information on which to base their decisions about drug use. This should include information about the law on drug misuse; the physiological and psychological effects of drugs; and a realistic account of their implications for the individual, the family and wider society. They should be encouraged to reject drugs because they believe that to be the right thing to do not just because they have been told to "say No". Pupils need skills to help them resist pressure to experiment with drugs; and they need positive attitudes towards living healthy lives which will be strong enough to influence their behaviour. A more subtle approach is also needed where young people may have seen evidence in their local community or in national life of the profits associated with drug-dealing and drug-taking and where the lifestyle may therefore seem outwardly attractive.

17 Alongside direct teaching, there can be particular vague in a more interactive approach to learning, including the use of audio-visual materials, role-playing and group discussions. A number of organisations have developed imaginative and innovative materials and teaching approaches related to drug misuse, including video materials, mobile classrooms, puppetry and Theatre-in-Education groups.

18 Further detailed guidance on the organisation of drug education across the school curriculum is provided in the DfE/SCAA document "Drug Education: Curriculum Guidance for Schools". At Annex 3 is an extract from the report of the Government's advisory committee, the Advisory Council on the Misuse of Drugs, on drug education in schools, setting out in more detail some of the key principles which should inform thinking about drug education.

19 Many schools find that visiting speakers such as a local health promotion officer or a community police officer can fulfil a valuable expert role but there should be no question of schools abdicating their responsibility for drug education by simply arranging an outside talk or screening a video. Where outside Their contribution should complement other teaching, the tone and substance should match the age and maturity of the pupils involved, and teachers should always be involved so they are able to deal with any follow-up questions or concerns.

20 Some schools have invited former drug users to speak to older pupils. Such speakers can have a dramatic impact in describing their personal experiences of the damage which drugs can do. In considering such contributions, however, schools should be particularly aware that without sensitive handling, they may perversely serve to glamorise drug misuse and actually encourage experimentation. The extract from one LEA’s drug education guidelines at Annex 4 offers a more detailed checklist of points for schools to consider in relation to outside speakers.

21 A wide range of factual and educational resources is available at national and local level to support drug education programmes. This is a sensitive area of the curriculum and schools will need to judge for themselves which materials are appropriate for use with their pupils and best complement the approach to drug education that they intend to follow. To assist in this task, the Department has funded the production of a Digest listing some of the main current resources to ensure that schools are aware of the range available.

22 Schools will need the support and encouragement of parents in their efforts on drug prevention. PTAs can play a valuable role in keeping parents in touch. Parents meetings, including the annual meeting, at which the school's approach to drug education can be explained may help to overcome any initial alarm at the prospect of children being "taught about drugs" and concern that such teaching may encourage experimentation. At such meetings parents can see any teaching materials to be used and meet any outside professionals, such as police officers or health professionals, who will play a part in the programme. Some parents may be reluctant to attend a meeting concerned explicitly with drug misuse. Schools may therefore prefer to deal with this issue as part of a discussion about their approach to health education.

23 Such meetings can also contribute to the public education of the wider community on the facts about drug misuse, helping parents to recognise the signs of drug misuse and to know where to turn for specialist help and advice. Details of education materials available for use with parents are included in the Department's Digest of resources.

24 As part of their general responsibilities for the management of the school, governors have a key role to play in the development of their school's policy for drug education and drug prevention.

25 Funding is available through the GEST programme for initiatives concerned to raise the level of school governors' involvement and awareness of policy and practice in relation to drug misuse. Details of materials for use with governors are included in the Department's Digest of resources.

26 A number of schools have already drawn up policies on drug prevention making clear their commitment to tackling drug misuse, setting out the aims and objectives of their programme of drug education, and summarising their policy on drug-related incidents. There is no statutory obligation on schools to have such policies but a clear statement of this kind can be valuable in raising the awareness of staff governors, parents and pupils of drug misuse and engaging their commitment to effective measures against drugs.

27 The Secretary of State commends such policies an d hopes, in the light of the Government's White Paper and the guidance offered in this Circular, all maintained primary and secondary schools will by the start of the spring term 1996 have considered the need to prepare such a statement, or where a policy already exists, have reviewed it. An outline model prepared by one LEA which schools can use in preparing such a policy is at Annex 5.

28 Some larger schools have identified a particular member of staff to co-ordinate curricular and pastoral aspects of drug prevention. It is t individual schools to decide whether they wish to adopt such an approach. A properly trained co-ordinator or specified senior member of staff can play a valuable role in the planning and implementation drug education in the curriculum and can also act as a first point of expert contact and advice on drug-related incidents. It is important t recognise, however, that drug prevention should be seen as a whole-school issue and that each staff member, both teaching and non-teaching, has a part to play. Teachers should be aware that their personal conduct can have a significant impact on the readiness of pupils to adopt responsibilities and behaviour in relation to drugs.

29 A central theme of the Government White Paper is the need for better co-ordination and co-operation at all levels. Effective networking be particularly valuable in drug prevention strategies. Individual schools need to be prepared to work closely with neighbouring schools and to establish effective links with the police, specialist drug prevention workers, and health and social services and other agencies. Local education authorities can play a significant role where they provide training, support and guidance materials. Some LEA’s have established policy guidelines for all their schools, sometimes in association with other services, providing a clear framework for dealing with drug-related issues. The Secretary of State welcomes such initiatives. She also acknowledges the key role which Health Education co-ordinators play in many parts of the country in providing training, resources, information, advice on policy and curriculum development and pastoral consultancy, including assistance for drug users.

30 Since its launch in 1990 the Government's Drugs Prevention Initiative (DPI), funded through the Home Office, has supported over 1,300 specific projects, many with an educational focus, aimed at mobilising local communities to promote and sustain drug prevention activity.

31 The Government White Paper sets out plans for the establishment up to 100 or so Drug Action Teams to co-ordinate and promote action to tackle drug misuse at local levels. Chief Executives of District Health Authorities are required to set up Drug Action teams by December 1995, allowing some flexibility in relation to the selection of geographical boundaries. Membership of the Team includes:

Chief Executive/Deputy, or Head of Strategy/Policy Planning

Chief Education Officer or Deputy

Director of Social Services or Deputy

Chief Executive/Director of Public Health

Chief Constable/Assistant Chief Constable or Superintendent or equivalents

HM Prison Service Area Manager

Chief Probation Officer or Assistant Chief Probation Officer.

The remit of each Team is to draw up an action plan to tackle the drug problem in its area, to ensure that the respective organisational policies and operations are in line with each other, and to make progress in line with the Government's national objectives for tackling drug misuse, in the light of local needs and priorities. Teams have the discretion to co-opt additional members with special skills, commitment or expertise and are encouraged to consider the potential contribution of a nominated representative of the voluntary sector.

32 Each Team will be advised by community groups, including governors of grant-maintained and LEA-maintained schools, head teachers and local GPs. Participation will be voluntary and each Drug Action Team will decide with its community group the mechanisms for seeking its advice and on the frequency and nature of joint discussions. The aim is to ensure that there is a clear and consistent shared purpose and agreement on the action which needs to be taken at local level to tackle drug misuse and that senior figures within each of the agencies concerned are actively working together. The Government believes that the establishment of Drug Action Teams will heap to smooth the way for improved inter-agency co-operation and will also ensure that educational concerns play their full part in decisions about local arrangements to tackle drug misuse amongst the young.

33The Office for Standards in Education (Ofsted) will be monitoring schools’ policies and practice in drug education and the management of drug-related incidents as part of their regular programme of inspections. Ofsted will undertake a specific study of provision for drug education in maintained and independent schools during the academic year 1995-96, taking account of existing research findings on effective teaching strategies. In addition Ofsted will also be inspecting collaborative activities between youth workers and teachers in schools and drug education in school-based youth clubs. The findings will be published and will inform further Government thinking on drug prevention in schools and the youth service.

34 Drug education is just as necessary for pupils with special educational needs. Children with learning difficulties may need more help than others in understanding what sorts of behaviour are and are not acceptable and desirable, in resisting peer group pressure and in developing the confidence and skills to resist drugs. Some pupils with special educational needs attending residential schools may be particularly subject to peer group pressure, and may need specific support. Where pupils are taking prescribed medication they will need to distinguish between appropriate and inappropriate drugs.

35 For children and young people who have emotional and behavioural difficulties, alcohol or substance misuse may be among a number of symptoms. The DFE Code of Practice on the Identification and Assessment of Special Educational Needs ⁹ refers to the need for an LEA to take account of any clear, recorded evidence of substance or alcohol misuse in considering whether a child may need statutory assessment.

36 Given that drug education features in National Curriculum science, all initial teacher training courses for trainees who are preparing to teach science should address the appropriate aspects of drug education relating to each key stage. Other subject specific training may also cover aspects of drug prevention. In addition, the criteria for both primary and secondary courses more generally require that "'newly qualified teachers should have acquired in initial training the necessary foundation to develop ... a working knowledge of their pastoral responsibilities as teachers". They must also acquire a readiness to promote the moral and spiritual well-being of their pupils. ITT courses should also deal with the particular pastoral issues which may arise in relation to pupils who are taking drugs or who are at risk of doing so.

37 Any induction training offered to new teachers joining a school staff should cover the school's approach to drug education and both the pastoral and disciplinary policy for dealing with drug-related incidents.

38 The main focus of teacher training on drug prevention must, however, be on appropriate in-service training for teachers. Some teachers will feel anxious about dealing with the subject and may be concerned that their pupils know more about drug--taking in the local area than they do themselves. Teachers who are responsible for teaching about drugs or for co-ordinating a school's programme of drug education and drug prevention need to be given the confidence to deliver clear and consistent messages about drugs, and need access to up to date facts about drug misuse and to new materials and successful teaching approaches. The Department's Digest of resources includes materials for teachers. Where general training is being provided about drugs and young people it can be particularly valuable for teaching staff to train alongside other professionals such as school nurses, the police, health and social services personnel, youth workers and staff from specialist drug prevention agencies.

39 Support is available to all local education authorities through the GEST programme in 1995-96 towards the cost of in-service training on drug prevention and to support the development of innovative programmes of drug prevention. Outcomes will be evaluated and disseminated. The Department will consider the possibility of continuing to support this GEST programme in future years. Parallel grant support is available to grant maintained schools.

40There will still be some young people of school age who choose to experiment with illegal drugs even if they have both the knowledge of the risks and the skills to resist peer pressure. Schools therefore need clear policies and procedures for dealing with drug-related incidents on school premises and for working with other services concerned with young people to offer appropriate advice and support.

41 Teachers, and non-teaching staff, should be alert to the warning signs which may indicate that a pupil is misusing drugs. Some of the main signs which may be associated with drug misuse are summarised in Annex 6.

42 Head teachers should ensure that, where appropriate, arrangements are in place to check the school site for signs of drug misuse at the beginning and end of the school day and at break times. Some schools, including primary schools, whose sites are used regularly after school hours for drug misuse, have arranged for the caretaker to check daily for used syringes or discarded needles and have made arrangements with the local authority's environmental services department for the safe and secure disposal of dangerous matter. There may be cases where further measures are appropriate and would, in any case, enhance the security of the premises.

43 Acute intoxication, physical collapse or unconsciousness can result from even one experiment with drugs or solvents. Teachers should be prepared to deal with a drug-related medical emergency by calling on a trained first aider if available and calling for professional medical help. The head teacher should always be notified and attempts should be made to contact the pupil's parents.

44 Where a pupil has been identified by the school as having experimented with illegal drugs or as being at particular risk of doing so, consideration should be given to the provision of appropriate counselling and support within the school's general pastoral arrangements. Some schools have developed programmes of mentoring for at risk pupils, involving an older pupil or a staff member offering encouragement, advice and support to the pupil. The Secretary of State recognises that such an approach may not be possible for all schools, and that such an approach, unless sensitively handled, can actually serve to glamorise the status of the at risk pupil in the eyes of his or her peers.

45 Schools should be aware of the range of specialised agencies, support and counselling services available in their areas which may be in a position to support an at risk pupil. The education welfare service, local health and social services, and the local police, through the police school liaison officer, all have a role to play in supporting schools’ efforts. Some LEAs have established joint projects with local police forces, for example under an initiative by Liverpool LEA and Merseyside Police all Liverpool schools have been offered guidance on drug prevention and invited to commit themselves to a range of measures to educate and support pupils - the key points are set out at Annex 7.

46 All schools should consider displaying details of local telephone helplines for pupils who may want to seek confidential advice and support on drug problems. The Department of Health has funded the establishment of a National Drugs Helpline.

47 Schools will wish to consider carefully the response of teachers approached by a pupil for individual advice on illegal drug misuse. Where a pupil discloses to a teacher that he or she is taking drugs the teacher should make clear to the pupil that he or she can offer no guarantee of confidentiality given the seriousness of drug misuse. A teacher might point to sources of confidential information and advice and to treatment and rehabilitation services to help those who are misusing illegal drugs to stop.

48 It is an offence under the Misuse of Drugs Act 1971:

i. to supply or offer to supply a controlled drug to another in contravention of the Act;

ii. to be in possession of, or to possess with intent to supply to another, a controlled drug in contravention of the Act; it is a defence to the offence of possession that, knowing or suspecting it to be a controlled drug, the accused took possession of it for the purpose of preventing another from committing or continuing to commit an offence and that as soon as possible after taking possession of it he took all such steps as were reasonably open to him to destroy the drug or to deliver it into the custody of a person lawfully entitled to take custody of it;

iii. for the occupier or someone concerned in the management of any premises knowingly to permit or suffer on those premises the smoking of cannabis; or the production, attempted production, supply, attempted supply, or offering to supply of any controlled drug.

49 Schools should liaise closely with their local police force to ensure that there is an agreed policy for dealing with the range of incidents which might arise involving illegal drugs. Although there is no statutory requirement to do so, the Secretary of State would expect the police to be informed when illegal drugs are found on a pupil or on school premises. The law permits school staff to take temporary possession of a substance suspected of being a controlled drug for the purposes of protecting a pupil from harm and from committing the offence of possession. They should hand the substance to the police who will be able to identify whether it is an illegal drug; school staff should not attempt to analyse or taste an unidentified substance.

50 It is open to a member of staff to search a pupil's desk or locker where he or she has reasonable cause to believe it contains unlawful items, including illegal drugs. Where pupils are suspected of concealing illegal drugs on their person, every effort should first be made to secure the voluntary production of any unlawful substances, for example by asking them to turn out their pockets. If the pupil refuses, the police should be called in to deal with the situation. Intimate physical searches should never be made by a teacher.

51 In exceptional cases the police may interview pupils on school premises, with the head teacher's agreement and provided efforts have been made to inform the pupil's parents. The Police and Criminal Evidence Act 1984 and its Code of Practice set out procedures in respect of the detention, treatment and questioning of young people by police officers which should be observed when children are interviewed on school premises.

52 Where a teacher is told, or is aware, of possible criminal activity outside school premises, the Secretary of State would also expect the police to be informed in the interests of safeguarding the health and safety of young people in the area. This would include not only information about the supply of illegal drugs but also, for example, evidence that a local shopkeeper was selling alcohol or solvents to pupils in contravention of the law.

53 The DFE's Circular "Pupil Behaviour and Discipline" 10 encouraged all schools to develop a written behaviour policy, based on principles established by the governing body, discussed with parents and pupils, and set out in the annual report to parents and in the school prospectus. The head teacher is responsible for developing school rules and codes of conduct which give effect to the behaviour policy and for ensuring that pupils know and understand the boundaries of acceptable behaviour in the school and the sanctions which will be used where those rules are broken. Sanctions should be applied consistently.

54 The Secretary of State believes that all school policies on behaviour and discipline should include a clear statement of the school's attitude to illegal drugs and other substances open to misuse, and of the disciplinary measures which will be applied to drug-related incidents. She would expect all schools to make clear that they are committed to tackling drug misuse among young people and that any instances of possession, use or supply of illegal drugs on school premises will be regarded with the utmost seriousness.

55 Head teachers must retain the responsibility for deciding how to respond to particular incidents, taking account of factors such as the age of the pupil concerned, whether the incident involved one pupil or a group of pupils and whether there is evidence of particular peer group pressure. The fact that certain behaviour could constitute a violation of the criminal law should not, in itself, be taken as automatically leading to the exclusion of a pupil.

56 In cases where it is clear that a pupil is selling illegal drugs and the health and safety of other pupils is directly at risk, the head teacher may decide that a pupil should be excluded.¹¹ Fixed term exclusions will be appropriate in some cases and permanent exclusion may be warranted as a final sanction when all other reasonable steps have been taken. Only the head teacher, or a deputy head acting in the head teacher's absence, has the power to exclude a pupil either for a fixed term or permanently. In both cases the school should take steps to ensure that the excluded pupil has access to professional support and advice from health and social services, including early intervention services.

57 The Secretary of State believes that schools will want to develop a repertoire of responses, incorporating both sanctions and counselling, reflecting the different kinds of drug-related offences, such as possession of an illegal drug, individual use and selling or sharing drugs with other pupils.

58 Where a pupil is permanently excluded from school for a drug-related offence, the LEA may consider that the pupil would benefit from a period of education otherwise than at school, or in a Pupil Referral Unit (PRU), before returning to mainstream education. Where a pupil has been excluded for a drug-related offence there is clearly a particular continuing need to provide appropriate drug education and support.

59 Parts I and II of this Circular have addressed general issues associated with drug use of all kinds among school-age youngsters, but focusing particularly on illegal drugs. Just as important for schools, and sometimes more immediately relevant given the patterns of use among young people, are the range of other legal drugs and substances which are open to misuse. The following paragraphs offer more detailed guidance on some of the most widely used legal drugs. Both the DFE/ SCAA curriculum guidance⁵ and the Department's Digest of Resources also refer to these.

60 Smoking remains the largest preventable cause of death, with smoking-related diseases accounting for some 90,000 deaths a year in England. There is some evidence that smoking can be a "gateway" into illegal drug misuse. Although overall attitudes to smoking have changed significantly in recent years, and few young people of primary school age are smokers, there has been only marginal change in smoking prevalence among 11-15 year olds. In this age range 8% of boys and 11 % of girls are regular smokers, and a further 8% of boys and girls smoke occasionally. The proportion rises with age. Very few Year 6 pupils but 22% of Year 11 pupils are smokers.

61 The Children and Young Persons (Protection from Tobacco) Act 1991 strengthened the existing law on illegal sales of tobacco products to children under the age of 16, greatly increasing the penalties for doing so, making illegal the sale of unpackaged cigarettes and requiring warning statements to be displayed in all retail premises and on cigarette vending machines. A voluntary code operates to prevent tobacco advertising in the vicinity of schools or which is designed to encourage young people to smoke. Through public health education campaigns the Government encourages a reduction in smoking.

62 Young people begin to smoke for a variety of reasons, including the desire to appear grown up, the perception that smoking controls weight and that it is relaxing. Research suggests that important predisposing factors include having brothers and sisters, and parents, who smoke, and that for 11-15 year olds peer pressure becomes a greater influence as age increases.

63 Schools can make an important contribution towards ensuring that pupils are aware of the health risks associated with smoking. National Curriculum science requires schools at successive key stages to teach pupils about the harmful effects of tobacco; how smoking affects breathing; and about the effects of tobacco on body functions. As with other aspects of drug and health education, it is important that pupils are given the facts and equipped with the skills to resist pressure and to make healthy, responsible choices.

64 Beyond the curriculum, pupils are likely to be influenced by the school environment and teachers' own attitudes and behaviour. Some schools have adopted a smoke-free policy, others have embraced a comprehensive health promoting school approach which views the school as both an educational and workplace setting. An increasing number of schools prohibit smoking entirely on school premises or limit it to a designated area for all teachers, non-teaching staff and visitors.

65 The Department for Education and the Department of Health have contributed to the production of detailed guidance on how schools might develop and implement a smoking policy in order to promote healthy environments for all those who work in or visit schools. Some illustrative school smoking policies drawn from this guidance are at Annex 8.

66 The Secretary of State is particularly concerned at the level of teenage smoking. She believes schools will share her concern, and will wish to consider the scope for renewing and reinforcing their efforts to discourage smoking among young people through their programmes of health education and their whole school approach to health. As part of their overall policy on the standards of behaviour expected of pupils, schools will want to make clear their attitude towards smoking.

67 In recent years volatile substance misuse has accounted for the deaths of more than 100 young people each year. Volatile substance misuse carries a distinctive, worrying and real risk of sudden death even on first use. Many of the issues it raises are common to other types of drug misuse and it may also be a ‘gateway’ into illegal drug misuse.

68 The possession of volatile substances is not illegal. However, it is an offence in English law to supply or attempt to supply a substance to a person aged under 18, knowing or having reasonable cause to believe that the substance or its fumes are likely to be used by that person for the purpose of causing intoxication. Nevertheless, the wide variety of volatile substances in common use in the home and workplace (including adhesives, aerosol gases, cigarette lighter refills, paint stripper and typewriter correction fluid) makes them relatively accessible.

69 It is difficult to estimate the overall prevalence of volatile substance misuse since use varies around the country and with local trends and fashions in youth culture. But evidence suggests that a small percentage of 8-10 year olds experiment, while among teenagers 5-10% may have engaged in volatile substance misuse at some time.

70 In the light of the early age of first use and concern about sudden death at first use, all schools may wish to consider the place of education about the dangers of volatile substance misuse within their drug and health education programmes. As with other education about drugs, pupils need information and the skills to resist experimentation. Teachers need to be aware of the needs of pupils who may be experimenting, including arrangements for referral to appropriate agencies.

71 As part of their general responsibility for the health and safety of pupils, schools should also seek to ensure careful control of the movement and safe storage of volatile substances on school premises.

72 Alcohol is easily accessible and socially acceptable in most but not all cultural groups. Taken in excess it has been associated with a range of risk-taking behaviour, including unprotected sex which carries an increased risk of both pregnancy and HIV infection. Given its prevalence, alcohol raises particular concerns in relation to its use by pupils of primary age; and its potentially dangerous effects in combination with other drugs.

73 As the Government's Chief Medical Officer has observed:

"From a very early age, young people develop a sophisticated awareness of alcohol and drinking behaviour. It appears that regular drinking, that is at least once a week, often begins at an early age and that weekly consumption in 14-15 year olds is increasing. Recent surveys show that 20% of 9-15 year olds have had their first alcoholic drink by the age of 8 years, and 89% by 13 years. Twelve per cent of 11~15 year olds are regular drinkers, and young people are also at risk for drunkenness offences and related criminal behaviour. The recommended sensible drinking limits for adults may be less applicable for young people and the proportion drinking in excess of them gives cause for concern. A Health Education Authority Survey in 1992 showed that, among 11-15 year olds who drank in the preceding week, 5% of the girls exceeded the adult sensible limit of 14 units and 3% of boys exceeded the adult sensible limit of 21 units - the equivalent of 35,000 young people in England."¹⁶

74 As with other aspects of health and drug education, education about alcohol is likely to be most effective in the context of an overall drug and health education programme. Pupils need the facts and the skills and confidence to put their knowledge into practice.

75 It is an offence under the Licensing Act 1964 to sell intoxicating liquor without a licence. This would prevent the sale of alcohol at school events unless an occasional licence had been obtained under the Licensing (Occasional Permissions) Act 1983. It is also an offence to sell alcohol to anyone under the age of 18. No licence would be needed by the school to offer alcohol at school events (i.e. where no sale takes place) or to store alcohol on the school premises. It is an offence under Section 6 of the Children and Young Persons Act 1933 to give any child under the age of 5 intoxicating liquor.

76 As with smoking, as part of their overall policy on the standards of behaviour expected of pupils, schools will want to make clear their attitude towards alcohol.

77 There is no reliable estimate of the extent of anabolic steroid misuse in England. The Government intends to introduce tighter controls that will make it a criminal offence, without authority, to supply or intend to supply anabolic steroids but not an offence simply to possess them. They have a limited range of legitimate medical and veterinary uses. Their misuse extends beyond organised sporting activities to public gymnasia and health clubs where they are widely available. They are said to bring about an increase in strength, speed, aggression and competitiveness and, by reducing recovery time, to enable more intensive training of longer duration. As well as weightlifters, body-builders and those participating in a wide variety of sports, misusers include those whose motivation is cosmetic, to improve their body image, or inflate their muscles.

78 Young people may be influenced to misuse anabolic steroids by a wish to succeed in competitive sport, to emulate role models, to be attractive and well-liked, or for other reasons. Prolonged use may have a range of adverse effects, some of which are particularly pertinent for the young. Anabolic steroids have been linked to a number of serious physical health problems, can restrict growth in young people, leading to spinal problems, and can result in menstrual abnormalities, smaller breasts, irreversible deepening of the voice and hirsuteness. Many misusers inject steroids -in some areas the numbers attending needle exchanges outnumbers heroin and amphetamine misusers - increasing the health risks, especially from HIV infection. Prolonged misuse may lead to a degree of psychological dependence.

79 Schools are in a position to assist the efforts of sporting bodies and others to eliminate the use of steroids from sport, and to counter undesirable influences by giving pupils the facts and warning of the risks.

1. 'Drug misuse' is defined as the non-medical use of drugs that are only intended for use in medical treatment, and the use of drugs that have no accepted medical purpose. Such drugs are controlled under the Misuse of Drugs Act 1971. The Act does not cover solvent misuse.

2. The main drugs misused are: opiates such as heroin; stimulants such as cocaine, amphetamines and Ecstasy; tranquillisers such as temazepam; hallucinogens such as LSD; and cannabinoids such as cannabis.

3. Heroin, cocaine and cannabis are mainly imported into the United Kingdom. Amphetamines, tranquillisers, LSD and Ecstasy are produced synthetically and manufactured both in the UK and abroad. Further information on these drugs and their effects is available in "Drug and Solvent Misuse: A Basic Briefing" produced by the Department of Health.

The British Crime Survey (BCS) is a large nationally representative survey of a random sample of people living in private households in England and Wales, which provides an opportunity to collect information on self-reported drug misuse. The BCS has been conducted in 1982, 1984, 1988, 1992, and 1994.

Surveys of self-reported drug use cannot provide a precise estimate of the number of people in the population who have taken controlled drugs. Nevertheless, the 1992 BCS provides a useful, if conservative, estimate of the extent of drug taking in England and Wales by 1991.

a. AIM The aim of drug education is to enable pupils to make healthy, informed choices

i. Increasing knowledge, changing attitudes and enhancing skills

• To provide opportunities for pupils to acquire knowledge and understanding about the dangers of drug misuse
• To provide opportunities for Pupils to be equipped with the knowledge, attitudes and skills they need to avoid the misuse of drugs and to help reduce school problems associated with drug misuse where locally appropriate

• To minimise the number of young people who ever engage in drug misuse
• To delay the age of onset of first use for those who do experiment at any time
• To minimise the proportion of users who adopt particularly dangerous forms of misuse
• To persuade those who are experimenting with or misusing drugs to stop
• To enable any pupils who are misusing drugs or who have concerns about the misuse of drugs to seek help

• To increase knowledge of social and personal issues relating to drugs in line with the National Curriculum
• To enhance young people's capacity to contribute to school policies on drugs misuse and wider community matters
• To enhance young people's decision-making skills more generally, using drug education as a vehicle
• To enhance later parenting skills in relation to prevention of drug misuse when pupils reach adulthood

• Drug education should be provided in the broader context of the teaching of health and personal and social education as part of a pupils life skills and preparation for adulthood
• It should aim to involve parents and encourage them to take an interest
• It should be delivered in the context of the school as part of the community
• It should take account of the age, sex and cultural/social background of the pupils at which it is targeted
• It should take account of the local circumstances and culture of the community
• It should provide factual and accurate information backed up with consistent advice
• It should aim to teach pupils the necessary social and personal skills described in (b)(i) above

• It should be delivered in a clear and honest manner that informs without encouraging drug misuse
• It should encourage active pupil participation backed up with adequate teacher supervision
• It should be provided at regular intervals throughout the school career so as to maximise its effectiveness
• It should be provided by teachers and other professionals with specific training in the requirements of drug education and issues relating to drug misuse
• It should be evaluated
• It should be backed up with access to advice or help for pupils with problems or concerns.

Health education is a shared responsibility: what is learned at school can and should be supported by experiences at home and in the community. It is therefore sometimes appropriate to involve visitors from outside agencies - not to undertake the above, to support it.

Before involving visitors in drug education, or any aspect of health education, schools should consider:

• Does the visitor share the schools values and approach to health education? Will the contribution be consistent with the school's own theory and practice and the information impartial?
• Why is an outsider's input being sought and is that particular visitor the most appropriate source of that input?
• Is the contribution from a visitor an integrated element of the curriculum, with appropriate planning, preparatory and follow up work?
• Does the visitor understand the emotional and intellectual levels of the children or young people involved and can s/he communicate at the appropriate level?
• Is the school aware of the legal implications of having and using visitors in school, in respect of child protection and Children Act 1989.
• Has the visitor been vetted by the local authority?

It is advisable that visitors should not be left alone to work with pupils. The teacher needs to be part of the experience so s/he can provide appropriate follow up work.

Before agreeing to take part, a visitor should enquire:

• what are the aims of the session?
• why do you want this agency's involvement?
• what drug education have the pupils already experienced?
• what will they experience in the future?
• how will the session be followed up?
• about the group to be taught - numbers, ages, time, premises, resources.

Draft Policy on Substance Use and Misuse: A Basis for Primary and Secondary Schools to work from The following is intended as a model outline policy which schools can use as a starting point in discussing and devising their own policies.

• The school condones neither the misuse of drugs and alcohol by members of the school, nor the illegal supply of these substances.
• The school is committed to the health and safety of its members and will take action to safeguard their well-being.
• The school acknowledges the importance of its pastoral role in the welfare of young people, and through the general ethos of the school, will seek to persuade pupils in need of support to come forward.

In response to our shared concerns at a local and national level, we wish to state that as part of its care for the welfare of its pupils, the school believes it has a duty to inform and educate young people on the consequences of drug use and misuse. The school takes a proactive stance on this matter, believing that health education is a vital part of the Personal and Social education of every pupil.

Fundamental to our school's values and practice is the principle of sharing the responsibility for education of young people with parents, by keeping them informed and involved at all times. Effective communication and co-operation is essential to the successful implementation of this policy.

Whilst we acknowledge that the numbers of young people who use and misuse substances is rising, ft is seen as important to recognise that the larger numbers of young people are choosing not to use or misuse substances. We will continue to support their differing needs.

We believe and support the following educational aims in respect of substance use and misuse:

• to enable pupils to make healthy, informed choices by increasing knowledge, challenging attitudes and developing and practising skills
• to provide accurate information about substances
• to increase understanding about the implications and possible consequences of use and misuse
• to encourage an understanding for those experiencing or likely to experience substance use
• to widen understanding about related health and social issues, e.g. sex and sexuality, crime, HIV and AIDS
• to seek to minimise the risks that users and potential users face
• to enable young people to identify sources of appropriate personal support.

These aims are fulfilled through aspects of the pupils' experiences in the taught curriculum, the informal curriculum and through opportunities for extra-curricular activities. We deliver in the taught curriculum mainly through PSHE, Science and English areas, but other opportunities to reinforce learning will occur in other parts of the teaching programme. The school actively co-operates with other agencies such as Community Police, Social Services, LEA and Health and Drug Agencies. to deliver Drugs Education and to deal with incidents of substance use and misuse. Visitors who support the school will be informed of the values held within this policy.

The head teacher takes overall responsibility for the policy and its implementation, for liaison with the Governing Body, parents, LEA and appropriate outside agencies and for the appointment within the school of a Substance Co-ordinator, who will have general responsibility for handling the daily implementation of this policy. The head teacher will ensure that all staff dealing with substance issues are adequately supported and trained.

In instances involving substance misuse or supply on the premises, and following discussion between staff members who know the pupil well, parents will be informed at the earliest opportunity by the head teacher. The school and the parents can then work together to support the young person involved.

If a young person admits to using or supplying substances off the premises, the teacher's discretion will be involved, but informing the Substance Co-ordinator is appropriate action. The Co-ordinator should inform the head teacher, who will inform the parents.

There is no legal obligation to inform the police, though they may be able to give relevant support and advice. However, a school cannot knowingly allow its premises to be used for the production or supply of any controlled drug, or the preparation or smoking of cannabis or opium. Where it is suspected that substances are continuing to be sold on the premises, details regarding those involved as well as as much information as possible, will be passed to the Police Liaison Officer or Community Affairs Department.

The Governing Body will be involved in substance education and substance related incidents in the same manner as any other matter concerning the direction of the school.

The school will consider each substance incident individually and recognises that a variety of responses will be necessary to deal with incidents. The school will consider very carefully the implications of any action it may take. It seeks to balance the interests of the pupil involved, the other school members and the local community. Permanent exclusion is seen as a last resort as it may only transfer the problem.

Regarding the welfare of staff, the school will follow the County Council Policy on Drug and Alcohol Misuse as part of its Health and Safety Policy, which is designed to reduce to a minimum the possible effects of substance misuse on the user, other employees and the environment.

The head teacher will take responsibility for liaison with the media. As the issue of substance misuse is an emotive one, and is likely to generate interest from the local and national media, the school will take appropriate advice and guidance from the LEA Press Office and Legal Department to ensure that any reporting of incidents remains in the best interests of the young people, their families and the school. Where LEA schools are concerned, the LEA should be informed as soon as possible. This may be done via the LEA Adviser for Drugs Education, or the School Support Officer.