1: Adopt a balanced, evidence-based approach to tackling problem drug use.
Recommended (the committee's words)We call on both Governments to adopt a balanced, evidence-based approach to problem drug use. (Conclusion, Paragraph 35)
Select committee: Scottish Affairs Committee
Problem drug use in Scotland follow-up: Glasgow’s Safer Drug Consumption Facility
Closed
Opened 13 Jan 2025
Closed 1 Dec 2025
10 recommendations
11 conclusions
Scottish Affairs Committee Inquiry on parliament.uk ↗
Inquiry scope (the committee's words)
This inquiry is examining the legal and policy challenges faced in setting up and running the pilot Safer Drugs Consumption Facility (SDCF) which opened in Glasgow in January 2025. This inquiry will examine the case for the facility, as well as its medical effectiveness in reducing drug-related harm in Scotland. The Committee will consider the current legal position of the SDCF, what challenges this presents, and what statutory and policy changes at a UK level might be necessary to enable the facility to operate sustainably beyond its three-year pilot. This inquiry follows up on relevant aspects of the Scottish Affairs Committee’s previous work on this issue in the 2017-19 Parliament . Read the terms of reference for more detail about the inquiry.
Where it stands
The inquiry is closed, opened 13 January 2025.
The committee has published 1 report, most recently 3rd report - Problem drug use in Scotland follow-up: Glasgow’s Safer Drug Consumption Facility on 16 September 2025.
The government's response
Published 20 November 2025. The deadline was 16 November 2025.
Summary written by Accountability Index from the government's response. It is not the government's own words.The government states that it "does not support drug consumption rooms" and has "no plans" to amend the Misuse of Drugs Act 1971 to enable them, while committing to an evidence-based approach and to working with the Scottish Government.
- On tourniquets and safer inhalation pipes, the government says supplying them "would constitute a breach of the law" and it has "no plans to make legislative changes". It says any request for exemptions would be "a matter for the Lord Advocate".
- On drug checking, it says a Home Office licence for the Glasgow drug checking service was issued in October to the Greater Glasgow and Clyde NHS Board. It states that The Thistle, which operates separately, is not covered by this licence.
- On evidence, the government says it is "committed to an evidence-based approach towards drug policy within the law". On the independent evaluation of The Thistle, it says it "will welcome any evidence that emerges" following the three-year pilot.
- It says it is "committed to working closely and positively with the Scottish Government", while recognising "differences in approach". It states the next UK Drugs Ministerial will take place in "early 2026".
Recommendations and conclusions
- 1: Adopt a balanced, evidence-based approach to tackling problem drug use.Recommendation
- 2: Mandate independent evaluation findings determine future of The Thistle safe drug consumption facility.Conclusion
- 3: Articulate The Thistle's rationale and objectives clearly and consistently to improve public understanding.Conclusion
Reports
- 3rd report - Problem drug use in Scotland follow-up: Glasgow’s Safer Drug Consumption Facility16 September 2025 · 21 items
Evidence
- 4 oral evidence sessionsLatest 4 June 2025
- 15 witnesses
Recent activity
- 4th Special Report - Problem drug use in Scotland follow-up: Glasgow’s Safer Drug Consumption Facility: Government Response20 November 2025, Report published
- 3rd report - Problem drug use in Scotland follow-up: Glasgow’s Safer Drug Consumption Facility16 September 2025, Report published
- Letter from Minister for Policing and Crime Prevention regarding Thistle License, dated 21 July 20253 September 2025, Correspondence
Recommendations and conclusions 21 shown
2: Mandate independent evaluation findings determine future of The Thistle safe drug consumption facility.
Concluded (the committee's words)We recognise that the opening of The Thistle on a pilot-basis presents an opportunity to test the effectiveness of SDCFs in Glasgow’s unique context. We believe the evidence provided by the independent evaluation panel should be determinative in discussions about The Thistle’s future beyond the three-year pilot. If the evaluation does not demonstrate the facility’s efficacy, it is difficult to see how The Thistle — or any other SDCFs in Scotland — could proceed. (Recommendation, Paragraph 36)
3: Articulate The Thistle's rationale and objectives clearly and consistently to improve public understanding.
Concluded (the committee's words)A range of rationales have been given for why there is a need for The Thistle and what effect it is intended to have. This has been unhelpful to public understanding of the facility and may result in unrealistic expectations of its impact. Moving forward, it is imperative that the rationale and objectives of the facility are clear, and articulated in a consistent, disciplined manner. (Conclusion, Paragraph 37) The legal position of The Thistle
4: The Thistle's current legal position creates risks for operators and users lacking a full framework.
Concluded (the committee's words)The current Lord Advocate’s statement of prosecution policy has been pivotal in enabling The Thistle to open. However, the Lord Advocate’s prosecutorial discretion is not a substitute for a considered legal framework to enable and regulate safer drug consumption facilities. The Thistle’s current legal position creates potential risks for people operating and using the facility. While the operators of The Thistle have reassured the Lord Advocate that the possibility for offences other than possession can be mitigated through strict standard operating procedures, only a full legal framework can offer certainty to the people who are operating and using the facility. (Conclusion, Paragraph 67)
5: Establishing multiple safer drug consumption facilities requires a clear, common UK legal framework.
Recommended (the committee's words)There has been interest in establishing SCDFs in other parts of Scotland, and the Lord Advocate has indicated that she will consider any such applications on their merits. Rather than having multiple facilities with individual 48 prosecution policy arrangements, it would be more appropriate for them to operate on a clear, legal basis, common to all. This would require legislative action from the UK Government and UK Parliament. (Conclusion, Paragraph 68) A gold standard service
6: The 'gold standard' Thistle facility is expensive, leaving alternative cost-effective models untested.
Concluded (the committee's words)Given the severity of problem drug use in Glasgow, it is clear that decisive, radical action is needed. The Thistle is a gold standard facility and represents an intervention that is commensurate with the scale of Glasgow’s drug problem. However, it is also expensive. The Thistle could prove good value by saving money elsewhere in the health service, but it will be for the Scottish Government and Glasgow City Council to determine this following the evaluation, and to decide whether to continue The Thistle’s funding beyond the three-year pilot. We note that The Thistle is described as ‘gold standard’, and consider that a less sophisticated model of the facility could potentially offer corresponding harm reduction benefits, at a reduced cost. But, given that the pilot is being run as the stated ‘gold standard’ model, the effectiveness and therefore value for money and harm reduction capability of a less sophisticated model would remain untested and therefore largely unknown. (Conclusion, Paragraph 82)
7: Addressing Scotland's severe drug crisis requires significant, commensurate investment due to high fatalities.
Concluded (the committee's words)However, any discussion of the cost of The Thistle must be considered in the context of Scotland’s drugs crisis, with 1,172 people having died from drugs in 2023 alone. While it is right that the cost of The Thistle is properly considered, it must be recognised that the scale of Scotland’s emergency inevitably requires a commensurate response that must entail significant investment. (Conclusion, Paragraph 83)
8: Safer drug consumption facilities are complementary tools, not substitutes for recovery services.
Concluded (the committee's words)It is also clear to us that SDCFs must not come at the cost of funding current recovery services. It is not an ‘either/or’. Rather, SDCFs are just one tool available to combat problem drug use, which is complementary to, and works in tandem with, recovery services. (Conclusion, Paragraph 84)
9: Exploring alternative, more cost-effective safer drug consumption facility models like mobile units has merit.
Recommended (the committee's words)The Thistle is an example of just one model of a safer drug consumption facility, and it is possible that others — such as mobile units — could provide more cost-effective solutions, or interventions better suited to the needs of local populations. There could be merit in exploring other service models, such as mobile units, which would complement The Thistle, or be an alternative to the facility, particularly if funding for the site becomes a challenge. Alternative operating models may also be better suited to serving communities elsewhere in Scotland and could be part of any discussion if additional locations are to be considered. (Conclusion, Paragraph 91) 49 Local community
10: Local community concerns regarding The Thistle's impact require serious attention despite ongoing evaluation.
Concluded (the committee's words)Community support and the impact of the SDCF on the local community is of paramount importance to the success of The Thistle. While we are reassured that the ongoing independent evaluation is monitoring the levels of discarded paraphernalia and the wider impact on the local community, and recognising the international evidence suggesting that SDCFs reduce levels of publicly discarded drug litter and antisocial behaviour, the concerns of the local community need to be taken seriously. (Conclusion, Paragraph 103)
11: Develop and implement a responsive communication strategy for The Thistle, agreed by the Community Forum.
Concluded (the committee's words)A responsive communication strategy must be developed by The Thistle, agreed by the Community Forum, and put in place as soon as possible in order to support the community engagement and partnership working that is crucial to the success of the project. (Conclusion, Paragraph 104)
12: Engage key stakeholders and the local community to address concerns about The Thistle's impact.
Recommended (the committee's words)It is vital that key stakeholders of The Thistle are engaged to address concerns about the impact of the facility and continue to work with the local community on how to address any concerns raised. We recognise that it may take time for the local effects of The Thistle to be fully understood and assessed. We therefore await the independent evaluation to objectively understand the impact on the local community. (Recommendation, Paragraph 105) Expansion of services
13: Legal barriers prevent The Thistle from operating effective drug inhalation rooms.
Concluded (the committee's words)Drug trends in Scotland have changed and are changing. For The Thistle to be effective, it must be able to meet the needs of the population it is trying to help, which it cannot do without an inhalation room. As well as making the facility accessible to those who inhale drugs, encouraging visitors to change their method of consuming drugs from injecting to inhaling can be an important harm reduction step. Legal barriers currently prevent an inhalation room operating at The Thistle. (Conclusion, Paragraph 115)
14: Require the Lord Advocate and Scottish Government to consider future inhalation room applications on their merits.
Recommended (the committee's words)The Lord Advocate believes that widening the statement of prosecution policy to allow an inhalation room to operate is undesirable and we understand the reasons she has given. However, given that expert medical advice suggests that allowing the inhalation of drugs would increase opportunities for harm reduction, any future application for an inhalation room should be considered on its merits by the Lord Advocate and Scottish Government. (Conclusion, Paragraph 116)
15: The Thistle's full effectiveness is inhibited without key harm reduction equipment and services.
Concluded (the committee's words)Having access to equipment such as single-use tourniquets, testing drugs onsite, and allowing visitors to inhale drugs have all been highlighted as key to The Thistle achieving its maximum effectiveness. Without these, a full and fair evaluation of The Thistle will be inhibited. (Conclusion, Paragraph 126) 50
16: Require UK Government to consider applications for medical equipment exemptions at The Thistle.
Recommended (the committee's words)If an application for exemptions from the Misuse of Drugs Act 1971 to enable the provision of medical equipment at The Thistle were made by Glasgow City HSCP or the Scottish Government, the UK Government should consider such an application on its merits, as evidence suggests this could enable The Thistle to maximise its effectiveness. (Recommendation, Paragraph 127)
17: Urgently complete assessment and support The Thistle's drug checking licence application.
Recommended (the committee's words)The Home Office should urgently complete its assessment of The Thistle for a drug checking licence and should ensure any necessary support is provided to ensure The Thistle is successful in its application. The Home Office should provide an update on the progress of the drug checking license in its response to this report. (Recommendation, Paragraph 128) The future of SDCFs in Scotland
18: Require UK Government to seriously consider evaluation of The Thistle and merits of SDCFs.
Recommended (the committee's words)The Minister has stated that the UK Government will consider the evidence emerging from the pilot. However, it was clear from the Minister’s evidence that the Home Office will not make legislative changes, even if the evaluation finds that the facility has been effective in meeting its aims. The UK Government should not approach the evaluation having already made up its mind about the future of The Thistle. The UK Government should seriously consider the evaluation and, if the outcomes are positive, should consider the merits of SDCFs alongside consideration of other interventions to tackle problem drug use. (Conclusion, Paragraph 135)
19: Demonstrate an evidence-based approach and consider The Thistle's independent evaluation for policymaking.
Recommended (the committee's words)The UK Government must demonstrate that it has an evidence-based approach to policy making and will consider the independent evaluation of The Thistle. Any intervention found to be effective at saving lives and reducing harm should not be dismissed. (Recommendation, Paragraph 136)
20: The Thistle's operational status remains precarious without UK Government approval or legislation.
Concluded (the committee's words)Without the UK Government’s approval or a change in legislation, The Thistle and potential other Safer Drug Consumption Facilities could, theoretically, continue to operate in Scotland indefinitely but this is not a desirable situation as their status would be precarious and uncertain. (Conclusion, Paragraph 137)
21: Work with Scottish Government to create sustainable legal framework for Safer Drug Consumption Facilities.
Recommended (the committee's words)If the independent evaluation of The Thistle deems the pilot a success, and the Scottish Government proceeds to make The Thistle permanent, and perhaps to open further SDCFs, the UK Government should work with the Scottish Government to make the necessary changes to reserved legislation to ensure there is a full, sustainable legal framework for Safer Drug Consumptions Facilities in Scotland. (Recommendation, Paragraph 138) 51
Reports
3rd report - Problem drug use in Scotland follow-up: Glasgow’s Safer Drug Consumption Facility
- HC No.
- HC 630
- Published
- 16 Sep 2025
- Items
- 21
- Government response
- Government response published 20 November 2025 (deadline 16 November 2025). Read the government's response ↗
Oral evidence sessions
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| Date | Session and witnesses | Source |
|---|---|---|
| 4 Jun 2025 |
Glasgow’s SDCF – Session 4
Laura Zeballos · Scottish Government,
Marcus Starling · Home Office,
Neil Gray MSP · Scottish Government,
Rt Hon Dame Diana Johnson DBE MP · Home Office
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| 7 May 2025 |
Glasgow’s SDCF – Session 3
Dorothy Bain KC, The Lord Advocate,
Jenny Hamilton · Crown Office and Procurator Fiscal Service,
Superintendent Joanne McEwan, Police Scotland
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| 5 Mar 2025 |
Problem drug use in Scotland follow-up: Glasgow’s Safer Drug Consumption Facility
Councillor Allan Casey · Glasgow City Council,
Dr Saket Priyadarshi · NHS Greater Glasgow and Clyde,
Kelda Gaffney · Glasgow City Health and Social Care Partnership,
Lynn MacDonald · NHS Greater Glasgow and Clyde
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| 12 Feb 2025 |
Glasgow’s SDCF – Session 1
Andrew McAuley · Glasgow Caledonian University,
Catriona Matheson · The University of Stirling,
Gillian Shorter · Queen’s University Belfast,
Vittal Katikireddi · The University of Glasgow
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Who gave evidence
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| Witness | Organisation | Sessions |
|---|---|---|
| Andrew McAuley · Professor of Public Health | Glasgow Caledonian University | 1 |
| Catriona Matheson · Professor in Substance Use | The University of Stirling | 1 |
| Councillor Allan Casey · City Convener for Workforce and Homelessness and Addiction Services | Glasgow City Council | 1 |
| Dorothy Bain KC, The Lord Advocate | Not recorded | 1 |
| Dr Saket Priyadarshi · Associate Medical Director, Alcohol and Drug Recovery Services | NHS Greater Glasgow and Clyde | 1 |
| Gillian Shorter · Reader in Clinical Psychology | Queen’s University Belfast | 1 |
| Jenny Hamilton · Policy and Engagement | Crown Office and Procurator Fiscal Service | 1 |
| Kelda Gaffney · Interim Assistant Chief Officer, Adult Services & Chief Social Work Officer | Glasgow City Health and Social Care Partnership | 1 |
| Laura Zeballos · Deputy Director, Drugs Policy Division | Scottish Government | 1 |
| Lynn MacDonald · Service Manager | NHS Greater Glasgow and Clyde | 1 |
| Marcus Starling · Deputy Director of the Drug Misuse Unit, Crime Reduction Directorate | Home Office | 1 |
| Neil Gray MSP · Cabinet Secretary for Health and Social Care | Scottish Government | 1 |
| Rt Hon Dame Diana Johnson DBE MP · Minister for Policing, Fire and Crime Prevention | Home Office | 1 |
| Superintendent Joanne McEwan, Police Scotland | Not recorded | 1 |
| Vittal Katikireddi · Professor of Public Health & Health Inequalities | The University of Glasgow | 1 |
Correspondence
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Meetings & visits
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| Date | Type | Detail | Source |
|---|---|---|---|
| 3 Sep 2025 | Formal meeting (private meeting) | Not recorded · The Grimond Room, Portcullis House |