Summary
This document lays out The Devon Drug and Alcohol Strategic Partnership’s (DDASP) priorities and key deliverables for 2025 to 2028. These will be renewed annually and a progress report provided via the DDASP’s annual report.
The Devon Drug and Alcohol Strategic Partnership
The Devon Drug and Alcohol Strategic Partnership (DDASP) works across the Devon County Council footprint and aims to reduce alcohol and drug-related harms through action with local partners working across enforcement, treatment, recovery, and prevention. The Partnership, formed in November 2022, is chaired by Steve Brown, Director of Public Health, and has representation from key partners including drug and alcohol treatment services, Devon and Cornwall Police, NHS organisations within Devon, Probation Service South West and Voluntary and Community Sector partners. The Partnership aims to support the ambitions of the National Drugs Strategy ‘From Harm to Hope 2023-2033’:
- Support more people with alcohol or substance use disorder into treatment.
- Reduce alcohol and drug related deaths.
- Improve continuity of care for people engaged in the Criminal Justice System.
- Reduce the supply and demand for illicit drugs.
The national picture
Harms associated with alcohol and drugs are wide ranging in their impact both for individuals and society. As well as worse health outcomes, people with drug and alcohol dependence are often socially excluded and typically experience multiple interacting vulnerabilities such as poor health, discrimination, poverty, violence and complex trauma. In England the number of people estimated to use drugs has not changed significantly since 2014. However, drug and alcohol related deaths are increasing, in part due to new threats including changing patterns of use, strength of drugs available and increased risk from synthetic drugs made in laboratories.
In 2021 the UK Government published their 10 year drugs strategy; From Harm to Hope. The strategy followed Dame Carol Black’s review which emphasised:
- Stronger collaboration across Government: Government departments should work more closely together to provide a coordinated and effective response.
- Recognising substance misuse as a health issue: Drug and alcohol misuse should be treated primarily as a health need, not just a criminal or social issue.
- Promoting compassion and support: Society should foster greater kindness and understanding, ensuring people are supported in getting the help they need.
- Encourage help-seeking without fear: People should not be punished unless they have committed a crime. People should feel safe and empowered to seek help for recovery and treatment without fear of stigma which acts as a barrier to support.
The Government’s drug strategy responded with three priorities and aligned 15 commitments. The three priorities were:
- Break drug supply chains.
- Deliver a world class treatment and recovery system.
- Achieve a generational shift in the demand for recreational drugs.
The DDASP has adopted the national strategic priorities and, aligned to the national commitments, identified 12 local priorities for implementation, each supported by key deliverables for 2025-2028.
Drug and Alcohol Need in Devon; a snapshot
The following are a few headlines to describe how we understand drug and alcohol related need in Devon. This a snapshot as of July 2025, further information can be found on the Devon Health and Wellbeing website.
Estimated numbers of people eligible for treatment for alcohol or drugs, and in treatment in Devon 2023-2024
- 2310 adults in Devon were in structured treatment for drug and alcohol dependence.
- 1174 adults were in structured treatment for opiate and/or crack dependence. Based on national prevalence estimates, an estimated 3201 adults were eligible for treatment – equating to 36.7% receiving structured treatment.
- 369 adults were in structured treatment for both opiate and crack dependence. Based on national prevalence estimates, an estimated 845 adults were eligible for treatment – equating to 43.7% receiving structured treatment.
- 961 adults were in structured treatment for alcohol dependence. Based on national prevalence estimates, an estimated 7,367 adults were eligible for treatment – equating to 13.0% receiving structured treatment.
(NDTMS 2023-24)
Deaths due to drug poisoning
In the three year period 2021 to 2023 Devon had 130 deaths registered related to drug poisoning and 268 alcohol poisoning specific deaths registered. District numbers are below:
| Deaths related to drug poisoning | Specific alcohol poisoning deaths | |
|---|---|---|
| Exeter | 39 | 52 |
| East Devon | 18 | 48 |
| North Devon | 21 | 43 |
| Mid Devon | 7 | 28 |
| South Hams | 11 | 14 |
| Teignbridge | 13 | 45 |
| Torridge | 9 | 7 |
| West Devon | 12 | 18 |
Between 2021 and 2023, Devon was above the England average for drug misuse deaths.
(ONS, Deaths related to drug poisoning in England and Wales – Office for National Statistics)
Comparison of drug misuse deaths with England in the rolling 12 months 2021 to 2023
| Drug misuse deaths (rate per 100,000) | |
|---|---|
| Devon | 6.0 |
| England | 5.50 |
Between April 2024 and March 2025, Devon was below the England average for alcohol specific deaths.
Comparison of alcohol specific deaths with England in the year April 2024 to March 2025
| Alcohol specific deaths (rate per 100,000) | |
|---|---|
| Devon | 8.70 |
| England | 13.50 |
Deaths in treatment in 2023 to 2024
Between 2023 and 2024, 30 people died whilst receiving treatment for Devon drug and alcohol (adult) services; 1.4% of all the adults in treatment. 25 adults died whilst receiving treatment for opiate and/or crack- related substance use disorder, 2.1% of all in in treatment for opiate and/or crack. Deaths of people in treatment represented 18% of the total drug poisoning deaths.
Hospital admissions 2023/24
Data related to drug- and alcohol- related hospital admissions reflect both progress and ongoing challenges:
Hospital admissions due to substance misuse among 15–24-year-olds have continued to decline, with 110 admissions recorded between 2021 and 2024. Similarly, hospital admissions for alcohol-specific conditions among those under 18 have also decreased, with 181 admissions over the same period.
In contrast, overall alcohol-related hospital admission rates have risen by 46.0% between 2016/17 and 2023/24, reaching 774 per 100,000 population. Admissions for alcoholic liver disease have seen an even sharper increase of 70.0%, rising to 8 per 100,000 over the same timeframe.
Numbers in treatment with mental health and/or housing needs
In 2023/24, 68% of adults entering drug treatment identified as having a mental health treatment need. Of those 86% were receiving treatment for that need.
In March 2025 26% of adults in treatment had an identified housing need. For those people supported by the System Transformation and Recovery (STaR) project in the year 2024-2025, specialist provision for people who are, or at risk of homelessness, 94% had an identified housing need.
Outcomes – Proportion showing substantial treatment progress: April 2025
The Treatment Progress Measure refers to the progress made for each adult in their treatment journey for the period (often consisting of multiple overlapping episodes at different services). The measure applies only to adults in community treatment services.
| Opiates only | Crack (no opiates) | Opiates and Crack | Alcohol only | Non opiates and alcohol (no crack) | Non opiates only (no crack) | |
|---|---|---|---|---|---|---|
| Devon | 61.56% | 27.08% | 46.81% | 35.88% | 29.68% | 35.42% |
| England | 52.46% | 25.23% | 30.53% | 41.19% | 32.94% | 37.43% |
Outcomes – continuity of care
Between January and December 2024, the proportion of adults with a substance misuse need who successfully engaged in community based substance misuse treatment within three weeks of release from prison was 52%.
Residential rehabilitation
Between April 2024 and March 2025, 27 people in Devon started a residential rehabilitation placement, 10 funded by Devon County Council. All individuals funded by Devon County Council in 2024 completed their placement or the placement remained ongoing at the end of the reporting period.
Learnings from working with those affected by drug and alcohol use
People with lived experience of substance use disorder have shared with us what’s important to them. A key theme arising was equitable access to services and resources to meet people’s needs including: daily living e.g. a toilet, food, treatment for addiction, and help to have physical health, mental health, and social health (i.e. a supportive culture, trust, and to belong).
Working differently found that when individuals sought help, were supported to improve their physical health, and achieve stability within their lives, their substance-related outcomes and engagement with services improved. This suggests that internal stability may be a key catalyst to proactive behaviour change. Learning as a system about the needs of people affected by drugs and alcohol found that addressing stigma, dealing with emerging drugs threats, and supporting people effectively requires good relationships, strong governance and a reflective culture of collective and circular learning and actions, both in organisations and in Partnerships.
Delivery Plan
The Devon Drug and Alcohol Strategic Partnership delivery plan is below. This lists the 12 local priorities and deliverables. The 2025 to 2026 measures of progress against each deliverable is listed.
National Priority 1: Break drug supply chains
In Devon we will: reduce dealing and alcohol and drug related disorder, deter drug dealers from coming through Devon, and disrupt supply and demand for illegal substances.
Local Priority 1: Reduce dealing and alcohol and drug related disorder
The police will lead on this through three deliverables:
1. Our Neighbourhood Policing (NHP) teams will target activity and use problem solving plans to reduce drug related crime and associated Antisocial Behaviour (ASB).
Measure of progress: The police will monitor data from both the Crime Survey in England and Wales and local data set sent to Community Safety Partnership (CSP) analysts.
2. Dedicated police officers and staff will focus on drugs research, analytics and intelligence – a ‘Drugs Focus Desk’.
Measure of progress: The police Drugs Focus Desk (DFD) team are developing internal dashboards to understand and monitor.
3. Through early intervention and education, the police will work with partners to divert people away from fuelling the drug market and its associated crimes, including violence (includes domestic abuse and violence against women and girls), human exploitation, drug driving offences.
Measure of progress: Performance and analysis currently internally provided to the Out Of Court Resolutions Officer (OoCR) for internal performance managing. The police are currently looking at options to understand the drug options and reporting information captured.
Local Priority 2: Deter drug dealers from coming through Devon
The police will lead on this through three deliverables:
1. Continued investment in advancing analytical and drug evidence options
Measure of progress: The police will increase use of partnership intelligence reporting portal and crime stoppers intelligence.
2. County lines threat effectively managed.
Measure of progress: Disruptions are monitored by the police and learnings feed into problem solving future action.
3. Work regionally to gather intelligence to enhance the ‘ring of steel’ and stop drugs networks coming through our countryside and coasts.
Measure of progress: Disruptions are monitored by the police and learnings feed into problem solving future action.
Local Priority 3: Disrupt supply and demand for illegal substances
The police will lead on this through three deliverables:
1. Proceeds of Crime Act (POCA) and asset recovery embedded within proactive investigations.
Measure of progress: Performance is internally managed by the police, and work is ongoing to ensure that levels of asset recovery are maintained.
2. Identify a targeted place-based response and use the Clear Hold Build framework to enable a co-ordinated response against organised criminality in drug markets.
Measure of progress: A targeted places based response is identified by the police.
3. Our roads policing team will make the road network an unwelcome environment for organised criminal networks.
Measure of progress: Roads policing team’s review of data and activities.
National Priority 2: Deliver a world class treatment system
In Devon we will: deliver high quality, accessible and equitable drug and alcohol services, work to prevent future drug- and alcohol- related deaths and understand, plan and deliver according to the needs of our population.
Local Priority 4: To deliver high quality, accessible and equitable drug and alcohol services
Drug and alcohol treatment services will do this through four deliverables:
1. Maintain numbers in treatment in line with 2024 baseline.
Measure of progress: Drug and alcohol treatment services will maintain numbers of people in treatment.
2. Improve treatment outcomes for those in treatment.
Measure of progress: Drug and alcohol treatment services will improve the proportion of people in treatment reporting substantial progress and/or a reduction in co-occurring need (e.g. housing, mental health).
3. Improve recovery outcomes for those accessing treatment.
Measure of progress: Drug and alcohol treatment services will increase the proportion of people in treatment reporting no housing issue, in education, employment or training, reduce the proportion of people in treatment with an unmet mental health need, improve the proportion showing substantial progress.
4. Enhance the specialist drug and alcohol treatment service offer through partnership working across the health and social care system.
Measure of progress: Drug and alcohol treatment services will ensure that an alcohol pathway is in place. Explore homeless and transitions services from the Royal Devon United Hospital (RDUH). And enhance the shared care offer with primary care.
Local Priority 5: Prevent future drug and alcohol-related deaths
Public Health Devon will lead on this through four deliverables:
1. Deliver an effective response to drug related harm incidents.
Measures of progress:
- The number of drug related deaths and number of Non-Fatal Overdoses (NFO) reported to Public Health Devon via the Local Drug Information System (LDIS). The number of LDIS intelligence reports received and corresponding response.
- Public Health Devon will ensure that a synthetic opioid response plan is in place.
- Public Health Devon will ensure that partners in Devon are aware of the Local Drugs Information System (LDIS), what it does, how to report into it and what to do if an alert is issued.
- The LDIS distribution list includes non-treatment population groups. Public Health Devon will conduct an annual review of the standard operating procedure.
2. Establish mechanisms to embed system learning from drug and alcohol related deaths.
Measures of progress:
- Public Health Devon will review preventable deaths amongst people who experience homelessness in Devon completed and share learning with partners.
- The Prevention of Drug and Alcohol Related Harm (PDARH) review process is established by Public Health Devon.
- Number of PDARH reviews completed.
- Thematic review of alcohol related deaths completed, led by Public Health Devon and a year 1 PDARH report produced with evidence that learning and recommendations are being adopted by the wider system.
- Progress towards establishment of a central learning repository for Devon County Council led serious incident and death review processes.
3. Ensure high quality information about drug risk and harm minimisation reaches the right people at the right time.
Measures of progress:
- Public Health Devon will evidence reach and impact of harm minimisation communications.
- The LDIS distribution list includes vulnerable non treatment population groups.
- Annual Review of LDIS standard operating procedures completed by Public Health Devon.
- Public Health Devon will develop a synthetic opioid response plan.
- Naloxone mapping completed – led by Public Health Devon – and Naloxone distribution strategy agreed.
- DDASP communication strategy developed.
4. Promote and deliver suite of evidence-based harm reduction measures.
Measure of progress: Naloxone audit and dissemination strategy developed.
Local Priority 6: To understand, plan and deliver according to the needs of our population
Public Health Devon will lead on this through four deliverables:
1. Develop local understanding of drug and alcohol need and progress against national strategy through local data and intelligence.
Measures of progress:
- Public Health Devon will ensure that the 2025 health needs assessment update is completed, learning shared, and action taken.
- Public Health Devon will ensure that version two of the Devon Drugs and Alcohol Strategic Partnership Dashboard is public.
- Public Health Devon will ensure that the alcohol harm reduction dashboard is public.
2. Ensure our local approach is informed by the best available evidence.
Measure of progress: Public Health Devon will ensure that learning informs service delivery and planning in Devon’s approach including embedding learning from local evidence including Devon Communities Together Breaking Barriers Report, and reports by BtheChange and Intercom Trust.
3. Develop a local alcohol harm reduction strategy and implementation plan that is informed by the national strategy and guidance, and aligned to this DDASP delivery plan.
Measures of progress:
- Public Health Devon will ensure that alcohol related and specific measures are included in the data Dashboards.
- The annual director of public health report on alcohol published.
- Any national guidance and/or new policy is understood and informing local strategy, and that a local alcohol harm reduction strategy is produced and identified actions agreed.
4. Work with people with lived experience to inform and deliver the ambitions of Devon Drugs and Alcohol Strategic Partnership.
Measure of progress: Public Health Devon will ensure that there is a governance plan for involving people with lived experience developed for public health commissioning.
Local Priority 7: Develop effective ways of working to support individuals with multiple disadvantage and co-occurring needs through partnership and integrated working
We will do this through four deliverables:
1. Develop effective ways of working to support individuals with co-occurring mental health and drug and alcohol need.
Measures of progress:
- Devon Partnership Trust will develop an adult treatment drug and alcohol services joint working protocol.
- Devon Partnership Trust will monitor the proportion of people in treatment reporting a mental health need who received treatment of interventions.
- NHS Talking Therapies will conduct an annual review against (Improving Access to Psychological Therapies) IAPT best practice guide.
2. Improve response to the physical, mental, social and emotional needs of people living with alcohol and other drug dependency.
Measures of progress:
- Public Health Devon will ensure that a learning report from the inclusion health pilot is shared.
- Public Health Devon will ensure that evidence recommendations from Equality, Diversity and Inclusion (EDI) reviews are implemented.
3. Develop and implement the Devon inclusion health action plan across the Devon Integrated Care System (ICS).
Measures of progress:
- The Integrated Care Board (ICB) will provide evidence of progress against the inclusion health action plan.
- The Integrated Care Board (ICB) will ensure that the inclusion health action plan is developed and agreed with partners.
4. Build system understanding of multiple disadvantages and implementation of anti-stigma approaches.
Measures of progress:
- The Integrated Care Board (ICB) will ensure that the inclusion health learning is delivered to workforces.
- Public Health Devon will develop a communication strategy, and first phase implementation is completed with evidence of impact.
Local Priority 8: Support the continuous development of the local drug and alcohol and allied professional workforce
We will do this through two deliverables:
1. Drug and alcohol treatment services will develop a Devon Workforce Strategy following publication of the Office for Health Improvement and Disparities (OHID) capability framework.
Measure of progress: A workforce strategy is developed by drug and alcohol treatment services.
2. Public Health Devon will support the development of system wide trauma informed workplaces and workforces.
Measure of progress: A good practice report is completed following learnings from Equality, Diversity and Inclusion reports and from trauma audits happening in the system.
Local Priority 9: Support effective working between drug and alcohol treatment services and the criminal justice system
Drug and alcohol treatment services will do this through one deliverable:
1. Effective diversionary schemes are in place.
Measure of progress: Drug and alcohol treatment services will ensure there is engagement in community-based structured treatment within three weeks of leaving prison (adults).
Local Priority 10: Work as a system to meet the health, social and community needs of people with drug and alcohol dependence
We will do this through three deliverables:
1. Drug and alcohol treatment services will work with partners to advocate for the effective housing solutions for people with drug and alcohol need.
Measure of progress: There is a decrease in the proportion of people in treatment that have reported no housing problems in the last 28 days.
2. Public Health Devon will develop and implement a communications strategy to improve knowledge and understanding of drug and alcohol need and reduce stigma.
Measure of progress: A communication strategy is developed by Public Health Devon and first phase implementation completed with evidence of impact.
3. Drug and alcohol treatment services will support people with drug and alcohol need to access employment.
Measure of progress:
- Drug and alcohol treatment services will develop links to connect to work programme, a Department for Work and Pensions peer pilot.
- Drug and alcohol treatment services will ensure the establishment of the OHID Individual Placement and Support service.
National Priority 3: Achieve a generational shift in the demand for drugs
In Devon we will: Support schools to deliver effective drug and alcohol education in line with best practice and the national curriculum, support Children and Young People (CYP) and families at risk of substance misuse or exploitation, and ensure that the system provides a meaningful response to harmful drug and alcohol use.
Local Priority 11: Support schools to deliver effective drug and alcohol education in line with best practice and the national curriculum
We will do this through six deliverables:
1. Public Health Devon will promote effective drugs education through the national Personal, Social, Health and Economic (PHSE) curriculum.
Measures of progress:
- Public Health Devon will feedback to education settings the results of the School Health Education Unit survey and signpost them to areas of good practice and helpful resources to influence PHSE content.
- Public Health Devon will work with the Schools Advisory Panel to coproduce one-minute guides for schools that help influence PHSE, parental and pupil communications e.g. Guide to harms caused by Ketamine and support available.
- Public Health Devon will monitor and report the number of schools/further education settings that request targeted drug and alcohol education from Y-SMART and its impact on an annual basis.
2. Public Health Devon will work with partners to ensure the voices of young people inform education and service delivery.
Measure of progress: Public Health Devon will ensure that findings are shared from further exploration of the Schools and Students Health Education Unit (SHEU) data with children and young people.
3. Devon County Council will ensure that children at risk of exclusion are supported to stay in school.
Measure of progress: Devon County Council will ensure there is a reduction in the number of children in Devon receiving fixed or permanent exclusions.
4. Devon County Council will ensure the needs of children in care are identified and met.
Measure of progress:
- The child exploitation strategy is developed by Devon County Council and there is evidence of implementation.
- Y-SMART children and young people’s drug and alcohol service will provide evidence that social care workforces are actively referring vulnerable young people to Y-SMART.
- Y-SMART children and young people’s drug and alcohol service will increase the number of the children and young people in drug and alcohol treatment.
- Y-SMART children and young people’s drug and alcohol service will deliver AQA self-esteem and emotional wellbeing training.
- Y-SMART children and young people’s drug and alcohol service will review the impact of the Dialectal Behaviour Therapy (DBT) on resilience, treatment and recovery among children and young people.
5. Devon County Council will ensure that children affected by parental substance misuse and other parental risk factors are effectively supported.
Measure of progress: The child exploitation strategy is developed by Devon County Council and there is evidence of implementation.
6. Devon County Council will ensure that children at risk of exploitation are identified and effectively supported through the Adolescent Safety Framework/Reach Service.
Measure of progress: The child exploitation strategy is developed by Devon County Council and there is evidence of implementation.
Local Priority 12: The system ensures a meaningful response to harmful drug and alcohol use
We will do this through two deliverables:
1. Ensure there are effective pathways to children and young people drug and alcohol services across the education, health and social care system.
Measures of progress: Devon County Council and the Integrated Care Board (ICB) will ensure there is an increase in health and social care referrals into treatment and recovery services and in the number of family interventions delivered by treatment services. The drug and alcohol treatment services will record people reporting in meaningful activity in their communities (5 Ways to Wellbeing).
2. Effective diversionary schemes are in place.
Measures of progress: As above.