Alcohol and drugs: partnership delivery framework - 2026

2. Structures and Resources

2.1 Broad Structures

The policy, planning and delivery landscape supporting people affected by problem use of alcohol and drugs is complex. This narrative describes the overall structure, with later sections setting out practical implications.

At a UK level, the UK Government retains reserved responsibility for the legislative framework governing the supply and misuse of drugs, primarily through the Home Office, underpinning enforcement and judicial responses. Alcohol policy is not reserved. The UK Department for Work and Pensions (DWP) provide financial support for people experiencing wider hardship or deprivation.

At a national level, the Scottish Government (SG) adopts a public health approach and provides strategic direction through consultation and evidence gathering; national policy frameworks; funding mechanisms; and national performance monitoring and reporting. Social Security Scotland provides financial support, while National Records of Scotland maintains data supporting policy development.

Between national and local levels sit statutory and third sector partners operating on a Scotland-wide basis but delivering regionally or locally.

At a local level, NHS Boards and Local Authorities (LAs) each hold statutory responsibility for their respective functions. Certain adult health and social care functions are delegated to Integration Authorities (IAs) in accordance with approved integration schemes. IAs operate under the Public Bodies (Joint Working) (Scotland) Act 2014. In most areas this takes the form of an Integration Joint Board (IJB) (a distinct legal entity). In lead agency areas, integration functions are exercised by the relevant Health Board (HB) or Local Authority (LA) in accordance with the integration scheme. For the purposes of this Partnership Delivery Framework (PDF), references to IAs include areas operating lawful integration arrangements.

IAs facilitate local strategic planning through Alcohol and Drugs Partnerships (ADPs). ADPs operate within a wider landscape of local partnerships, often subordinate to Community Planning Partnerships (CPP) and/or Chief Officers Groups (COGs), and are expected to work in a complementary and aligned way. Throughout this PDF, references to ADP leadership relate to coordination, assurance, influence and escalation, rather than direct service delivery or statutory accountability.

At service delivery level, partners are accountable for commissioned activity under the local ADP strategic plan. Delivery, effectiveness, and outcomes should be monitored and reviewed through contractual and ADP arrangements to support learning, improvement, and decisions on future commissioning.

2.2 Partners

Outlined below are the key organisations and groups that hold significant interest in, responsibility for, or influence over the planning, governance, and delivery of services to support people affected by problematic use of alcohol and drugs. This list is not exhaustive but seeks to ensure that key partners are clearly identified and that their respective roles and contributions are understood within the wider system.

In line with this PDF, ADPs are expected to engage a broad and inclusive range of stakeholders beyond their core membership. This includes people with lived and living experience and other individuals and groups who can contribute meaningfully to strategic planning, service design, and delivery. ADPs should consider involving these wider stakeholders through formal meetings, sub-groups, and other mechanisms that support genuine, participatory engagement.

A table detailing the principal lines of accountability for the partners listed below is included at Annex B.

2.2.1 People with Lived and Living Experience (LLE)

People with LLE of substance use play a vital role in shaping effective, fair, and evidence-informed alcohol and drugs policy and services at all levels of the policy and service landscape. Meaningful participation is central to a human rights-based approach which underpins the SG's Alcohol and Drugs Strategic Plan, Preventing Harm Promoting Recovery.

Direction for the participation of people with LLE is set through national policy, guidance, and commissioning expectations, with decisions about how involvement is realised taken within the governance arrangements of national programmes, ADPs, and individual organisations. This includes decisions on ethical application of participation models, support, and how input is used in decision-making.

LLE adds value to service design and improvement by shaping strategies and services that are grounded in real-world experience and recovery. Meaningful participation supports safer, more accessible, services and improves accountability to the people most affected.

Accountability for meaningful and well-supported LLE involvement sits with Ministers, senior officials, ADP Chairs, Chief Officers, and service leaders, who should ensure the structures, resources, and cultures are in place to enable real influence in decision making.

Staff as a Voice of Lived and Living Experience (LLE):

Staff with LLE are recognised as vital, offering unique insights that enhance service delivery, provide hope, and shape policy, particularly in substance use and mental health sectors. The Scottish Government’s Guiding Principles on Supporting Employees with Lived and Living Experience emphasise treating staff with experience as equal partners, ensuring parity with paid staff, removing employment barriers, and providing appropriate support.

2.2.2 National Partners

2.2.2.1 UK Government (and Departments)

The UK Government holds reserved responsibility for key aspects of the legislative, regulatory, and fiscal framework within which alcohol and drugs policy operates across the UK. In particular, the Home Office has statutory responsibility for drugs policy and control under the Misuse of Drugs Act 1971, including classification and scheduling of controlled substances, alongside responsibilities for the associated criminal justice framework. The DWP holds UK-wide responsibilities for social security and employability.

Direction is set by UK Ministers, with policy developed within Departments and delivery overseen through their executive agencies. Within the Home Office, Ministers and senior officials set policy and operational priorities for reserved drugs legislation and enforcement approaches that influence justice partners operating in Scotland; within DWP, Ministers and senior officials set welfare and labour market policy and delivery expectations through established departmental governance.

In relation to alcohol and drugs, UK reserved legislation and justice policy directly shape the context in which devolved prevention, treatment, and recovery services operate, including where interventions intersect with controlled drug law or justice pathways. DWPs policies influence income security, housing stability, and employability, which are key determinants affecting vulnerability, engagement with services, and recovery outcomes.

Key accountable officeholders include the Home Secretary and Secretary of State for Work and Pensions, supported by their Permanent Secretaries, and relevant Directors General / senior policy leads, who should ensure UK policy and operational practice is developed with due regard to impacts on Scotland’s alcohol and drugs priorities.

2.2.2.2 Scottish Government (SG) (and Agencies)

The SG provides national leadership and strategic direction for Scotland’s response to alcohol and drug harm within devolved competence, setting national strategy, policy and priorities and allocating funding to support local delivery through ADPs and partners. This role is grounded in ministerial accountability to the Scottish Parliament and exercised primarily through policy, guidance, oversight and engagement rather than direct service provision.

Direction is set by Scottish Ministers, with decisions taken through the SG’s established governance and budget processes, supported by Directors General, Directors, and senior officials. Executive agencies operate within this framework, delivering statutory or operational functions on behalf of Ministers.

In relation to alcohol and drugs, the SG sets the national outcomes, expectations, and improvement approach that ADPs and partners are expected to deliver against, and funds national and local activity. Social Security Scotland delivers devolved benefits under powers transferred through the Scotland Act 2016, which can materially influence stability and recovery for people affected by substance use. National Records of Scotland produces authoritative population statistics under the Registration of Births, Deaths and Marriages (Scotland) Act 1965 and related legislation, including drug-related and alcohol-related death statistics that inform planning, scrutiny, and evaluation.

Key accountable officeholders include relevant Cabinet Secretaries and Ministers, the Permanent Secretary, Directors General, and the Chief Executives of the agencies above.

2.2.3 National Partners with a Local Role

2.2.3.1 The Convention of Scottish Local Authorities (COSLA)

COSLA is a politically-led, cross-party organisation that represents the collective interests of Scotland’s Local Authorities (LAs). COSLA is the representative voice of Local Government (LG) on national issues relating to policy, funding, and legislation and negotiates on behalf of LAs in order to secure the resources and powers they need.

Direction is set democratically through COSLA’s political leadership, with policy positions developed through engagement with elected members and local partners, including officers in LAs and professional associations. Decisions are taken through COSLA’s internal governance, which includes policy boards, meetings of council Leaders and COSLA Convention which sets the strategic direction and is representative of the political make up of councils. Elected members from all member councils are represented across COSLA's governance.

In relation to alcohol and drugs, COSLA is a key national partner in shaping approaches that are deliverable locally, supporting sector-led improvement, peer learning and shared practice, and helping align alcohol and drugs priorities with wider local government responsibilities such as housing, social work, community planning and community justice. COSLA jointly owns the PDF and Strategic Plan for Alcohol and Drugs with Scottish Government.

Key accountable office-holders include COSLA’s political leadership, Chief Executive and Directors.

2.2.3.2 Special NHS Boards

Special or Special NHS Boards are statutory NHS bodies operating within the NHS governance framework, including the National Health Service (Scotland) Act 1978, the Public Services Reform (Scotland) Act 2010, and associated direction and accountability arrangements. They provide national capability that supports local planning and delivery. All Special Boards have a SG Sponsor team who work to ensure partnership working and delivery of shared goals, and each has a Board Operating Framework which sets out how the organisations will interact.

Public Health Scotland (PHS) provides public health intelligence, analytical capability, and improvement support, and is accountable to Scottish Ministers and COSLA Leaders through its Board and Chief Executive. To reflect the key importance of driving whole system working locally and nationally in order to improve population health, PHS is jointly sponsored by the SG and COSLA Leaders, who work collaboratively to inform and guide the work of the body. Decisions sit with the Board and Executive Team. In relation to alcohol and drugs, it supports evidence-based planning and improvement through data, benchmarking and support to ADPs and partners. Key accountable officers are the Chief Executive, and relevant Directors.

Healthcare Improvement Scotland (HIS) is NHS Scotland’s improvement body, supporting and assessing the quality of health and social care services, operating independently within its legislative remit and accountable to Scottish Ministers through its Board and Chief Executive. Decisions are taken by its Board and Executive Team. In relation to alcohol and drugs, it develops standards, undertakes scrutiny and supports improvement to ensure services are safe, effective, and person-centred. Key accountable officers are the Chief Executive, and relevant Executive Directors.

The Scottish Ambulance Service is a Special Health Board delivering national emergency and urgent care, accountable through its Board, Chief Executive, and clinical governance arrangements within the strategic and policy framework set by Ministers. Decisions are taken by the Board and Executive Team. In relation to alcohol and drugs, it provides frontline response (including naloxone) and supports pathways into care through conveyance/signposting. Key accountable officers are the Chief Executive, and Medical Director / clinical governance leads.

2.2.3.3 Crown Office and Procurator Fiscal Service (COPFS)

COPFS is Scotland’s public prosecution service and death-investigation authority, led independently by the Lord Advocate (a Law Officer of the Scottish Government) under constitutional arrangements including the Scotland Act 1998. It is responsible for investigating and prosecuting crime and investigating sudden, suspicious and unexplained deaths.

Direction is set by the Lord Advocate, supported by the Solicitor General, Crown Agent and senior prosecutors, with operational prosecution decisions taken by Procurators Fiscal locally in line with prosecution policy.

In relation to alcohol and drugs, COPFS supports proportionate, public-health-informed justice responses through appropriate use of diversion, and by supporting community-based sentencing pathways (e.g., Drug Testing and Treatment Orders (DTTOs) and Community Payback Order (CPOs) that can reduce reoffending while enabling treatment and recovery. It also supports victims and witnesses affected by associated crime.

Key accountable officeholders are the Lord Advocate, Solicitor General, Crown Agent, Area Procurators Fiscal, and senior legal managers.

2.2.3.4 Scottish Courts and Tribunals Service (SCTS)

SCTS is the statutory body responsible for the administration of Scotland’s courts and tribunals under the Judiciary and Courts (Scotland) Act 2008, providing buildings, staff and systems while preserving judicial independence.

Direction is set by the SCTS Board (chaired by the Lord President) with operational management led by the Chief Executive. Decisions on resources and operations sit within Board governance and executive management.

In relation to alcohol and drugs, SCTS enables the operation of specialist and problem-solving courts (where established) by providing the infrastructure and administrative support that allows judicially-led therapeutic and problem-solving approaches to function and to link justice processes with treatment and recovery pathways.

Key accountable officeholders are the Lord President (as Board Chair), SCTS Board members, Chief Executive, and senior operational leaders.

2.2.3.5 Police Scotland

Police Scotland is Scotland’s national police service established under the Police and Fire Reform (Scotland) Act 2012, responsible for public safety, crime prevention/detection, and protecting people at risk of harm.

Strategic oversight is provided by the Scottish Police Authority, with operational independence exercised by the Chief Constable through national and divisional policing structures where local decisions are taken.

In relation to alcohol and drugs, Police Scotland contributes through enforcement (including disruption of illegal supply), safeguarding and partnership working, sharing intelligence to support prevention and harm reduction, and directing people towards services. This supports a balanced approach between public protection and public health.

Key accountable officeholders are the SPA Chair and Board (oversight), Chief Constable, Deputy Chief Constables, Divisional Commanders, and relevant local senior officers.

2.2.3.6 Scottish Prison Service (SPS)

SPS is Scotland’s national prison authority, established under the Prisons (Scotland) Act 1989, responsible for safe custody, security and rehabilitation within the prison estate.

Direction is set within the strategic framework established by Scottish Ministers, with governance through the SPS Board and operational decisions taken by the Chief Executive, senior leadership and Governors within establishments.

In relation to alcohol and drugs, SPS reduces substance-related harm in custody through security measures and recovery-focused approaches, working with NHS and partners to deliver harm reduction, treatment, continuity of care and reintegration planning, including strong links to community services on liberation.

Key accountable officeholders are the Cabinet Secretary/Ministerial portfolio lead, SPS Board Chair, Chief Executive, Governors, and relevant health/rehabilitation leads.

2.2.3.7 Scottish Fire and Rescue Service (SFRS)

SFRS is Scotland’s national fire and rescue service established under the Police and Fire Reform (Scotland) Act 2012. The main purpose of the SFRS is to work in partnership with communities and with others in the public, private and third sectors, on prevention, protection, and response, to improve the safety and well-being of people throughout Scotland.

Scottish Ministers’ priorities are set out in a Fire and Rescue Framework, with governance provided by the SFRS Board and operational decisions taken by the Chief Officer and local senior officers based on national and local risk assessment.

In relation to alcohol and drugs, SFRS contributes by targeting prevention and early intervention where substance use increases vulnerability and household risk, including through home fire safety visits, risk assessment, and partnership working with ADPs and community planning structures.

Key accountable officeholders are the SFRS Board Chair, Chief Officer, relevant Directors, and senior local officers.

2.2.3.8 National Third Sector Organisations

National third sector or independent organisations are funded by the SG or its agencies to deliver specialist functions. Their role derives from commissioning/grant arrangements and organisational purposes rather than statute.

Direction is set through grant conditions or contracts, with internal decisions taken by each organisation’s Board/Trustees and senior leadership, and accountability for public funds shared through reporting and governance arrangements with commissioners.

In relation to alcohol and drugs, these organisations bring specialist expertise, innovation, and links to LLE, supporting ADPs and partners through advocacy, workforce development, quality improvement, and direct support, often addressing gaps or groups less well served by mainstream provision.

Key accountable officeholders are commissioning senior responsible officer(s) within government, and the Chairs, Boards/Trustees, Chief Executives, and relevant service leads within the organisations themselves.

2.2.3.9 Elected Members of Respective Parliaments

Elected Members of the UK Parliament and Scottish Parliament provide democratic accountability for public policy through legislation, budget scrutiny, and holding governments to account. Their role derives from electoral mandate rather than executive responsibility for delivery.

Direction is exercised through parliamentary processes (Chamber business, committees, scrutiny and questions), with individual Members shaping debate and accountability through representation, committees, and engagement with Ministers and public bodies.

In relation to alcohol and drugs, Members raise constituent experience, highlight emerging issues, and scrutinise outcomes, transparency, and use of public funds, supporting alignment between national strategy and lived community experience.

Individual Members are accountable to their electorates. All partners should ensure Members can fulfil scrutiny and representative roles through the provision of appropriate information and engagement.

2.2.4 Local Partners

2.2.4.1 Territorial Health Boards

Scotland’s 14 Territorial Health Boards (HBs) are statutory NHS bodies under the National Health Service (Scotland) Act 1978, responsible for planning, commissioning and delivering healthcare services for their populations.

Direction is set through national policy, funding, and performance frameworks established by Scottish Ministers, with decisions taken by each HB and Executive Team under clinical and corporate governance arrangements (including Medical Director, Director of Public Health, and Nursing Director roles).

In relation to alcohol and drugs, HBs deliver and/or commission a broad range of relevant services across primary care and contracted services, specialist nursing, mental health (including CAMHS), emergency/acute care, and relevant specialisms such as hepatology and BBV services, making integration essential for continuity, co-morbidity, and harm reduction.

Key accountable officeholders are Board Chairs, Chief Executives, Medical Directors, Directors of Public Health, Nursing Directors, and relevant service directors.

2.2.4.2 Local Authorities (LAs)

Scotland’s 32 LAs are statutory bodies established primarily under the Local Government (Scotland) Act 1973, responsible for a wide range of local public services and democratic governance.

Direction is set by elected members through council decision-making (committees, cabinets and full council), with operational decisions taken by senior officers within corporate governance arrangements and, where relevant, through integrated or partnership structures.

In relation to alcohol and drugs, LAs provide leadership and coordination within ADPs and contribute directly through social work and social care (children and adults), housing and homelessness, education, and community planning. These responsibilities are critical to prevention, safeguarding, recovery, and the wider determinants of harm.

Key accountable officeholders are Council Leaders/Conveners, Chief Executives, Chief Social Work Officers, Directors of Social Work/Social Care, and relevant Directors (e.g., Housing, Education).

2.2.4.3 Integration Authorities (IAs)

IAs are statutory bodies established under the Public Bodies (Joint Working) (Scotland) Act 2014. The primary duty is to strategically plan, commission and oversee the delivery of integrated adult health and social care services in a LA area (including through Integration Joint Boards (IJBs) or locally agreed alternative arrangements).

IAs have responsibility for governance, planning, and resourcing of integrated health and social care services in their local area (through IJBs where applicable). Accountability is shared to partner organisations and within national performance frameworks. Decisions on commissioning and resource allocation are taken by the IJB/lead governance body and Chief Officer/finance leadership.

In relation to alcohol and drugs, IAs embed substance use services within wider care pathways (community health, adult social care, mental health and related supports such as housing and family services), enabling coordinated, person-centred, support and continuity across prevention, treatment, recovery, and ongoing care.

Key accountable officeholders are IJB Chairs, Chief Officers, Chief Finance Officers, relevant clinical and social care leaders, and partner organisation Chief Executives as appropriate.

Chief Officers (COs)

As set out in the Chief Officers’ Public Protection Induction Resource (November 2023), COs are determined as:

Chief Executives of Health Boards

Chief Officers of Local Authorities

Senior Police Officers with delegated authority of the Police Chief Constable

Chief Officer Public Protection Groups (COGs) are the mechanism through which COs ensure their agencies fulfil their statutory duties across all public protection domains. In other words:

Statutes and guidance impose duties on agencies, not on COGs directly.

COs, as the senior accountable leaders of those agencies, must ensure these duties are delivered.

Chief Officer Groups exist as the collective structure through which this statutory accountability and oversight is exercised.

Where Alcohol and Drug Partnerships (ADPs) sit as part of the Chief Officers Public Protection Group the Chief Officers’ Public Protection Induction Resource (November 2023), states that COs responsibilities include ensuring that the ADP has strong governance, clear accountability, and effective leadership, including appointing an impartial Chair, providing resources, overseeing delivery plans, monitoring performance and finance, and enabling collaboration with wider partnerships. Chief Officers should either sit on or be represented within the ADP and ensure that its work aligns with national frameworks and reporting requirements.

2.2.4.4 Chief Officers’ (Public Protection) Groups (COGs)

COGs are senior multi-agency leadership forums within local public protection and community planning arrangements. They are not statutory bodies. Their authority derives from the statutory responsibilities of member organisations and officeholders.

Direction is set collectively by senior leaders through local governance arrangements, providing oversight, coordination, and assurance across strands such as Child Protection, Adult Support and Protection, Multi-Agency Public Protection Arrangements (MAPPA), Violence Against Women and Girls (VAWG), Suicide Prevention, and Alcohol and Drug-related harm.

In relation to alcohol and drugs, COGs can help to provide greater accountability and align ADP activity with wider public protection and community safety systems, supporting shared risk awareness, integrated planning, coherent escalation/assurance, and accountability where harms overlap.

2.2.4.5 Local Strategic Planning and Delivery Groups and Partnerships

Community Planning Partnerships (CPPs) are statutory partnerships under the Community Empowerment (Scotland) Act 2015 that align local priorities, resources and action across public services to improve outcomes and reduce inequality.

Direction is set collectively through agreed CPP governance. Accountability remains with each partner organisation for its statutory functions. CPPs produce Local Outcomes Improvement Plans (LOIPs) and Locality Plans, with priorities and delivery agreed collaboratively.

In relation to alcohol and drugs, where substance use is identified as a local priority, CPPs sometimes act as a higher-level coordinating body, aligning the objectives and investment in broader community wellbeing and public protection priorities, and ensuring alcohol and drugs responses are embedded within.

Key accountable officeholders are senior leaders from statutory partners participating in the CPP, particularly local authority Chief Executives and elected members, NHS Chief Executives, and relevant senior officers.

2.2.4.6 Third Sector Organisations

Third sector organisations are independent bodies (often charities or not-for-profit organisations) delivering community-based support. Their role is derived from organisational purposes and, frequently, commissioning or grant arrangements with public bodies, including LAs or IAs.

Direction is set by Boards/Trustees, with operational decisions taken by senior managers in line with regulatory obligations and funding agreements. Accountability for public funds sits with both providers and commissioners through agreed governance and reporting.

In relation to alcohol and drugs, third sector organisations deliver trauma-informed, person-centred, support including harm reduction, peer recovery, advocacy, family support, and outreach, often improving access and complementing statutory provision through integrated or hub models.

Key accountable officeholders are Trustees/Boards, Chief Executives, senior managers/service leads, and commissioning leads within partner public bodies.

2.2.4.7 Locally Elected Members

Locally elected members (councillors) provide democratic leadership, scrutiny and accountability within and of LAs. Their mandate derives from election rather than executive responsibility for delivery.

Direction is exercised through council governance (committees, cabinets and full council) where budgets and priorities are set, and through scrutiny arrangements holding senior officers and partnerships to account.

In relation to alcohol and drugs, councillors can strengthen transparency and alignment between ADP priorities and wider council objectives (housing, education, social care, community planning), and may engage with ADP governance in line with local arrangements.

Elected members are accountable to their electorates, supported by Council Leaders/Committee Chairs, and senior officers, ensuring members can fulfil scrutiny and governance roles.