Sundheds- og Forebyggelsesudvalget 2014-15 (1. samling)
SUU Alm.del Bilag 1326
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Counterfeit medical products
and similar crimes
Key points
The Council of Europe has drawn up the first international treaty against counterfeit medical
products and similar crimes involving threats to public health, the
MEDICRIME Convention,
to
establish as offences:
- the manufacturing of counterfeit medical products,
- supplying, offering to supply and trafficking in counterfeit medical products,
- the falsification of documents,
- the unauthorised manufacturing or supplying of medicinal products and the
marketing of medical devices that do not comply with conformity requirements.
The Convention also lays down a framework for national and international co-operation
between the competent health, police and customs authorities on both the national and
international levels, measures for crime prevention by also involving the private sector, and
the effective prosecution of crime and the protection of victims and witnesses. Furthermore, it
provides for the establishment of a committee of the Parties to follow up the implementation of
the Convention by the signatory states.
On 8 December 2010, the Committee of Ministers of the Council of Europe - representing 47
states in Europe - adopted the MEDICRIME Convention and invited the Secretary General to
disseminate the Convention widely among non- member states that may be interested in
becoming parties, in particular among those states with observer status with the European
Pharmacopeia Commission. The Committee of Ministers decided to open the Convention for
signature on 28 October 2011, at the occasion of a high-level thematic conference in Moscow.
To date, 23 states have signed the MEDICRIME Convention amongst those 3 states outside of
Europe, Guinea, Morocco and Israel.
As the counterfeiting of medical products and similar crimes constitute a global threat, the
Convention is open to member and non-member states of the Council of Europe, as has
been the case for other recent conventions. Therefore, the MEDICRIME Convention offers a
legal framework for world-wide co-operation to combat the counterfeiting of medical
products and similar crimes involving threats to public health.
Counterfeit medical products
and similar crimes
Questions and Answers
What is a counterfeit medical product? What are similar crimes?
The Convention defines a “counterfeit medical product” as a medical product whose
identity, and/or source are fraudulently misrepresented, including on the label.
“Similar crimes” are understood as the production, stock-piling, trafficking, offering for sale of
medical products intentionally by-passing the obligatory supervision/control of medicines
authorities: these crimes are as dangerous as counterfeiting and pose a threat of a
comparable dimension. Medicinal products used for doping and without a medical indication
are one of the outputs of “similar crimes”, as are products offered for treatment of diseases
without prior benefit risk analysis and authorisation of the competent drug regulatory authorities.
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Counterfeiting and similar crimes potentially concern all kinds of medical products
- medical products available without prescription and medicines for life-threatening
disorders. Medicinal products for human and veterinary use, clinical trial medication for
patients and healthy test persons, medical devices, active substances, excipients, components
and accessories of medical devices are covered.
The legal concepts and definitions used in the Convention are fully compatible with other
internationally recognised concepts and definitions. In particular, for the purposes of the
Convention, it should be noted that the term “counterfeit” corresponds to the term “false”
without the connotations to intellectual property rights sometimes associated with
“counterfeit”.
Therefore, preference for the term “counterfeiting” or “falsification with criminal intent” will
not pose an issue for the use of the Convention.
How widespread is the problem?
Public health threats related to counterfeit medical products and similar crimes have now
reached truly global proportions. Counterfeiting is a multi-milliard euro business that poses a
major threat to patients, already particularly vulnerable. It is often linked to organised crime
and generates substantial profits with low risk of being intercepted and relatively mild
penalties in comparison to e.g. trafficking of narcotic drugs. Counterfeiting of medical products
and similar crimes affect all countries, whether as countries of origin, transit or marketplace.
As with all clandestine criminal activities, it is impossible to gauge exactly the extent of the
problem. Recent estimates suggest that global sales of counterfeit medicines are worth
more than € 57 milliard, having doubled in just five years between 2005 and 2010. Numerous
studies have also reported large numbers of websites supplying prescription-only medicines
without a prescription and people buying medicines online despite being aware of the dangers.
According to statistics from customs authorities in the European Union (EU), the number of
medical products seized at the outer border of the EU (not counting patent issues) tripled
between 2006 and 2009 to reach approximately 7.5 million. Medicines accounted for 10% of
all seized materials in 2009.
Other statistics from customs authorities in the EU appear to confirm that sales of medicines
via the internet have increased. Nearly 69% of articles seized in postal traffic were medicines.
However, there are no reliable statistics on the number of counterfeit medicines reaching
consumers through unregulated sources such as illegal online pharmacies.
The MEDICRIME Convention: a Council of Europe international criminal law treaty
The 47 states in Europe that are members of the Council of Europe, as well as states in
other regions of the world, can sign and ratify the Convention and thus join the international
co-operation under the Convention.
The MEDICRIME Convention applies to all medical products, i.e. products claiming that they
can be used for diagnosing or treating or preventing a disease, and the various ingredients,
parts and materials they are made of - regardless of whether or not these medical products
are protected under intellectual property rights or are generic.
Activities OUTSIDE the scope of the MEDICRIME Convention:
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- The Convention cannot be used against (legal) generic medical products authorised for being
marketed by a competent authority. It is an important and essential concept of the
Convention that legal “generic” medical products (i.e. a “legal copy of a patented, branded,
trademarked product”) are not subject to criminalisation under the Convention. Mere
violations of the rights of owners of patents, brands and trademarks (“intellectual property
rights – IPR”) of medical products which are authorised by a competent authority for being
placed on the market are not covered by the Convention.
The Convention does not in any way hinder IPR holders from seeking legal recourse
via the specific legislation applying to IPR.
- Breaches of quality norms, good practices and standards in the manufacture and distribution
of medical products are not subject to this Convention as long as they are not carried out
with criminal intent.
- The Convention does not regulate the production and distribution of medical products under
legal circumstances, and under which circumstances businesses (e.g. internet pharmacies,
brokers) legally operate. Therefore, it does not interfere in any way with the freedom of the
internet as long as it is not misused by criminals for unlawful activities.
What is the purpose of the MEDICRIME Convention?
The Convention provides States Parties with a powerful tool to combat the counterfeiting of
medical products and similar crimes from the perspective of the protection of patient health
and users of medical products, the introduction of common minimum standards on
substantive and procedural criminal law, as well as provisions aimed at improving co-
operation and information exchange between the competent authorities at both national and
international levels.
With the adoption of an innovative concept ensuring that points of contact exist within the
national health, medicines reference laboratories, police and customs authorities, the
Convention will ensure the exchange of information and assist in the operational
management of cases at the national level. A single point of contact (SPOC) in each
country will ensure trans-border co-operation with other SPOCs and also be of value for the
effective implementation and follow-up of the Convention.
Why should the counterfeiting of medical products and similar crimes b e
considered a criminal offence?
The manufacture of genuine medical products is done by highly-trained professionals and
takes place under strict public authority control - all to ensure that the lives of patients and
users are not put at risk and the best possible medication outcome can be achieved.
In contrast, counterfeit medical products are manufactured by individuals or organisations solely
seeking a quick profit, without having any interest in the health of the patients and those buying
their products. Hence, inactive ingredients, wrong dosages and even harmful substances are
often used in the manufacturing process.
Intentionally putting the health and lives of patients and users at risk in this way – and, in the
process, undermining trust in public health systems – is thus a very serious matter that states
all over the world must urgently address, including through criminal law measures, in order to
be able to bring the criminal individuals and organisations involved to justice, to seize any
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proceeds from the crime and to protect public health.
How can the MEDICRIME Convention be used against criminals abusing the internet
for counterfeiting and similar crimes?
Counterfeiters and their associates in crime often make use of the internet to promote
counterfeit and otherwise dangerous medical products. The World Health Organization (WHO)
has found that over 50% of medicines purchased on internet sites that conceal their real
address are counterfeit. The domestic courts of law of States Parties to the Convention may
consider the use of the Internet as an aggravating circumstance and raise the level of
sanctions correspondingly, where appropriate.
How does the Convention protect the integrity of healthcare systems and prevent
waste of scarce healthcare resources?
In many countries of the world counterfeiting of medical products and similar crimes results in
enormous waste of scarce healthcare resources and fuels other illegal activities to the
detriment of social security and prosperity. Combatting these crimes will support
sustainable development and free up resources for social welfare.
Is this a global instrument or is its usefulness limited to Europe?
All states around the world are affected by the counterfeiting of medical products and similar
crimes involving threats to public health. Hence, the Council of Europe has decided to open
the Convention to participation by non-member states upon invitation by the Committee of
Ministers of the Council of Europe. The criminal law concepts and measures used in the
Convention are globally applicable.
What is the role of the Council of Europe and its European Directorate for the
Quality of Medicines & HealthCare (EDQM)
in assisting states
to combat
counterfeiting and
similar crimes
and
to
implement
the MEDICRIME
Convention?
Since 1958, the Council of Europe has carried out numerous activities in the field of crime
prevention and crime control. The European Committee on Crime Problems (CDPC)
elaborates conventions, agreements, recommendations and reports in the fields of criminal
law and procedure, criminology and penology, implements these activities and makes proposals
to the Committee of Ministers.
The mission of the EDQM is to contribute to health, a social human right, through access to
good quality medicines and healthcare, and to promote and protect human and animal health.
In line with the spirit of the MEDICRIME Convention ranking high the prevention of
counterfeiting of medical products and similar crimes besides combating such crimes, the
EDQM co-ordinates the work of bodies, such as the Committee of Experts on minimising public
health risks posed by counterfeiting of medicinal products and similar crimes to protect public
health: through risk management and prevention of such crimes, and improved co-operation
of member states and other stakeholders in Europe and beyond. It develops specific risk
management and prevention approaches, improves cooperation between member states and
stakeholders, and collaborates with national and international organisations.
The Committee of the Parties run by the Signatory states may make use of the expertise and
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working results co-ordinated by the Council of Europe and its EDQM to support the follow-up
of the Convention after its entry into force.
What other reference texts does the Council of Europe have in this field?
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Resolution ResAP(2001)2 of the Committee of Ministers concerning the
pharmacist’s role in the framework of health security.
Resolution ResAP(2007) 2 on good practices for distributing medicine via mail order.
PACE Recommendation 1673 (2004) on counterfeiting: problems and solutions.
A Council of Europe survey on counterfeit medicines (2006).
A model for a network and single points of contact (2007).
PACE Recommendation 1793 (2007) on the need for a Council of Europe
convention on the suppression of counterfeiting and trafficking in counterfeit goods.
PACE Recommendation 1794 (2007) on the quality of medicines in Europe.
A practical guide, available in several languages, to enable users to distinguish between
reliable and unreliable medical information and warn them about the risks they run if they
buy medicines on-line.
More information
www.coe.int/medicrime
and
www.edqm.eu
Press contact
Estelle Steiner, Media Officer
Tel.: +33 (0)3 88 41 33 35
Mobile: +33 (0)6 08 46 01 57
[email protected]
Updated: 30.09.2013