Ten years of experience with needle and syringe exchange programmes in European prisons

Results of needle and syringe exchange programmes (SEPs) in prisons based on 10 years experience in Switzerland, Germany, Spain and Moldova are presented. SEPs have been introduced in 46 European prisons, predominantly as pilot projects. Forty-three of these projects were still operating at the time of writing. In 11 prisons, SEPs were evaluated to assess feasibility and efficacy. Results did not support fears that commonly arise in the start-up of implementation of SEPs. Syringe distribution was not followed by an increase in drug use or injection drug use. Syringes were not misused, and disposal of used syringes was uncomplicated. Sharing of syringes among drug users reduced. Based on these experiences, it can be concluded that in these settings harm reduction measures, including syringe exchange, were not only feasible but efficient. Despite these positive results, syringe exchange in prison is far from general acceptance. However, a governmental decree released in Spain in 2001 that all prisons in the country are required to provide drug users with sterile injection equipment may lead to a breakthrough of this harm reduction measure in the future. The discrepancy concerning the success of SEPs in prisons on the one hand and its low acceptance on the other hand is striking. Suggestions for the installation of SEPs in prison are given to assist a more objective discussion.     

What predicts which metropolitan areas in the USA have syringe exchanges?

HIV epidemics among IDUs vary widely across different cities in the USA [American Journal of Public Health 86 (5) (1996) 642]. Few studies have focused on how localities differ in regard to response to the HIV epidemic. While syringe exchange programmes (SEPs) are a response to HIV among IDUs, they are often unwelcome and difficult to set up even in communities hit hardest by the epidemic. It is important to understand what metropolitan area characteristics are related to when and if an SEP opens in a particular locality. Logistic regression models are used to explore how need, political factors, SEP diffusion from Tacoma (the first SEP), and metropolitan socioeconomic characteristics are related to SEP presence. Results indicate that need is not a significant predictor of having an SEP. Predictors were the percentage of the population who are men who have sex with men (AOR=6.95; 95% CI=1.29–37.49), and metropolitan area population (AOR=1.08 per 100,000; 95% CI=1.02–1.14). Predictors of having an SEP in a metropolitan area seem to be political factors and metropolitan area population size, not need among IDUs. Gay political influence and/or support may well facilitate SEP formation, and geographic diffusion may influence where SEPs are established.     

Direct and indirect acquisition of syringes from syringe exchange programmes in Baltimore, Maryland, USA

Syringe exchange programmes (SEPs) are a fundamental source of sterile syringes and other health services for injection drug users (IDUs). However, various obstacles prevent many individuals from obtaining syringes from this source. As a result, some IDUs acquire syringes from “secondary exchangers”. The current study assessed the acquisition of syringes from the Baltimore City Needle Exchange Program (BNEP) as well as factors associated with obtaining syringes from the BNEP. Participants were asked to identify the colour of the cap of the most recently obtained syringe (red or grey cap suggested BNEP origins). In addition, support and risk network variables were examined. Although 38% reported using a syringe with a grey or red cap, only 7% reported that the BNEP was their primary source of syringes. Multivariate analyses showed that reporting the most recent syringe cap as red or grey was associated with obtaining syringes from the BNEP, obtaining syringes from a spouse, obtaining syringes from friends/neighbours, and number of drug users in their network. Based on these findings, encouraging secondary exchange is an effective method of providing injectors with syringes.     

Effectiveness of sterile needle and syringe programmes

This is the first comprehensive international review of the evidence for needle syringe programmes. The major, and now overwhelmingly strong, finding is that needle syringe programmes reduce HIV transmission effectively, safely and cost effectively. The size of the benefit is substantial. There is compelling evidence that needle syringe programmes reduce HIV incidence and HIV prevalence by reducing HIV risk behaviour. The Bradford Hill criteria, generally regarded as the most robust method of assessing public health interventions, were used for the evaluation framework. Conservatively, six of the nine Bradford Hill criteria were fulfilled (strength of association, replication of findings, temporal sequence, biological plausibility, coherence of evidence, and reasoning by analogy). Three of the Bradford Hill criteria were not fulfilled (specificity of association, biological gradient and experimental evidence). Five additional criteria were clearly fulfilled (cost-effectiveness, absence of negative consequences, feasibility of implementation, expansion and coverage, unanticipated benefits, and application to special populations). The findings in this review are consistent with seven published national reviews conducted by, or on behalf of, United States government agencies, which had previously found that needle syringe programmes were effective in reducing HIV infection among injecting drug users and did not increase illicit or injecting drug use. Countries affected or threatened by HIV infection among injecting drug users should carefully consider the convincing evidence now available for the effectiveness and safety of needle syringe programs with a view to establishing or expanding needle syringe programs to scale. Although some research questions still remain unanswered, and areas exist where improved research methodology is needed, the failure to implement needle syringe programmes in time and on a sufficient scale cannot be justified by a lack of available evidence.     

Public opinion about syringe exchange programmes in the USA: an analysis of national surveys

Background: Despite scientific evidence demonstrating their effectiveness, syringe exchange programs (SEPs) have not been as widely embraced by policy-makers in the USA as in some other nations. One reason for this disjunction between science and policy may be the effect of public opinion.Methods: To better understand the role of public opinion in shaping SEP policies, we undertook a systematic search for all reported U.S. national surveys asking about support or opposition to SEPs. Relevant polls were identified through a national database of public opinion questions, and a similar search of a newspaper database. We present the survey findings. The wording of poll questions and the agenda of organisations sponsoring the polls are also examined.Results: Twenty-one questions from 14 different polls conducted from 1987 to 2000 were identified. Support for SEPs ranged from 29 to 66%. Surveys conducted by organisations with a public health agenda were more likely to suggest support for SEPs than those sponsored by organisations with a “family values” perspective. Question wording appeared to strongly influence support for SEPs. Poll questions that referred to “drug addicts” were less likely to indicate majority support for SEPs than those that avoided loaded terms or that provided public health information to respondents.Discussion: Public opinion regarding SEPs is very malleable, strongly affected by question wording or other biases of organisations sponsoring the polls. Therefore, there may be no clear national consensus on the desirability of SEPs. Our findings are particularly relevant for national policy, such as federal funding for SEPs.     

Injecting behaviour of injecting drug users at needle and syringe programmes and pharmacies in Australia

Objective: To compare demographic and injecting characteristics of clients collecting needle syringes from needle syringe programmes (NSPs) and pharmacies. Methods: Clients obtaining needle syringes from three NSPs and one pharmacy in the same geographic area during one and four weeks, respectively were asked to complete a self-administered questionnaire. Results: Approximately half the 336 NSP (56%) and 63 pharmacy (49%) respondents reported using both NSPs and pharmacies in the past month. NSP and pharmacy respondents were similar on many characteristics: male gender (60 and 62%, respectively); median age (30 years for both groups); median age at first injection (18 years both groups); history of methadone treatment (62 and 53%); and heroin as the last drug injected (60 and 59%). NSP respondents were more likely than pharmacy respondents to report imprisonment in the previous year (20% versus 8%, P=0.05), daily injection (67% versus 56%, P=0.09) and re-use of more than one other person’s needle syringe in the previous month (27% versus 7% of 52 and 15 reporting needle syringe re-use). Pharmacy respondents were more likely than NSP respondents to report amphetamine use (32% versus 10%, P<0.001), shared use of tourniquets (24% versus 12%, P=0.01), spoons (43% versus 32%, P=0.09), filters (22% versus 15%, P=0.1), or drug mix (16% versus 9%, P=0.1), and difficulty finding a vein (73% versus 26%, P<0.001). Conclusion: The risk profile of IDUs (Injecting Drug Users) recruited at various sites provides important information for behavioural surveillance and health promotion efforts. Increased convenience of needle syringe access enhances HIV prevention efforts, however, appropriate education is required for people obtaining needle syringes at pharmacies to reduce sharing of injecting equipment other than needle syringes.     

Public opinion on needle and syringe programmes: avoiding assumptions for policy and practice

Despite evidence for their effectiveness, harm reduction services such as needle and syringe programmes (NSPs) are highly vulnerable to perceptions of community disapproval. This paper reviews Australian research on community attitudes to harm reduction services and its impact on research, policy and practice. The literature on community attitudes to NSPs in Australia comprises a small number of representative national samples and surveys of local communities affected by specific services. Despite these extremely limited data, negative community attitudes are often cited by policy-makers and health professionals as a primary constraint on policy-making. The main finding of this literature review is that community perceptions of NSPs are largely positive. Also, support for NSPs was not synonymous with condoning drug use. The failure of policy-makers and politicians to recognise positive community attitudes to NSPs has led in some instances to hasty political responses to adverse media reports, including the closure of services. This literature review showing positive community attitudes to harm reduction services should embolden researchers, practitioners and policy-makers to challenge such reactionary responses. Further, this evidence should be used in countering negative publicity surrounding these services. [Treloar C, Fraser S. Public opinion on needle and syringe programmes: avoiding assumptions for policy and practice. Drug Alcohol Rev 2007;26:355 - 361]     

Topic-Focused Bibliography: Syringe Exchange: HIV Prevention,Key Findings,and Future Directions

HIV among injecting drug users (IDUs) has now been documented in over 60 countries in the world, and there are an additional 40 countries where injecting drug use has been reported including widespread epidemics in Southeast and southern Asia and in Latin America. At present HIV infection is almost always fatal, and there is no promise that a preventive vaccine will become available soon. Given the enormity of the HIV epidemic among IDUs and the critical need to reduce the spread of HIV transmission to and from IDUs, prevention efforts are essential. Syringe-exchange programs have become a major component of HIV prevention strategies in most developed countries and work within the philosophy of harm reduction. Increasing access to sterile syringes has been met with considerable controversy. Opponents of syringe exchange have generally argued that increasing access to sterile syringes would simultaneously increase the number of injecting drug users, increase the frequency of injection for already active IDUs, and appear to “condone” an illegal behavior. To date many research studies and four major reviews of syringe exchange literature have been conducted. All studies thus far have shown no increase in illicit drug injection associated with syringe exchanges, and significant decrease in drug risk behaviors.     

Five years of needle syringe exchange in Manipur, India: programme and contextual issues

This paper reviews the performance of the syringe exchange programmes (SEPs) in Manipur, northeast India, with the objective of identifying good practice, and areas that require improvement. The paper also examines contextual and structural factors in Manipur that inhibit optimal functioning of SEPs and hinder behaviour change, and argues that these factors need to be addressed as part of any endeavour aimed at improving services and programme coverage in the future.     

Delivering syringe exchange services through “satellite exchangers”: the Sacramento Area Needle Exchange, USA

An important operational aspect of Syringe Exchange Programmes (SEPs) is the venue of service delivery. This report describes the programmatic features of the Sacramento Area Needle Exchange (SANE), an illegal SEP operating in California, USA. SANE utilises “satellite exchangers” to distribute the bulk of its syringes and HIV risk reduction supplies. Advantages of relying primarily on Designated Exchangers (DE) for delivery of SEP services are that it: (1) allows for coverage of a large geographical area; (2) keeps operational cost low; (3) provides syringes to clients who may not want to or cannot use fixed site programmes; (4) limits the possibility of detection of programme personnel and clients by law enforcement. Limitations are that: (1) it is not as conducive as fixed sites to providing a wide range of ancillary services; (2) it may not be optimal for drug users who do not want to be reliant on other people for access to syringes; (3) those who receive services from a satellite exchanger may not derive as much counselling and referral services as direct exchangers. The lack of legal status, political support and adequate funding threatens the programme’s existence.     

Benefits of concurrent syringe exchange and substance abuse treatment participation

Participation in syringe exchange programs (SEPs) is associated with many individual and public health benefits but may have little impact on reducing drug use without concurrent treatment engagement. This study evaluated rates of drug use, other risk behaviors, and illegal activities in newly registered SEP participants (N = 240) enrolled versus not enrolled in substance abuse treatment over a 4-month observation window and examined the effect of days in treatment on these outcomes. After controlling for baseline differences, SEP registrants enrolled in treatment (n = 113) reported less days of opioid and cocaine use, injection drug use, illegal activities, and incarceration than those not enrolled in treatment (n = 127). For those enrolled in treatment, days of treatment was strongly correlated with each of these outcomes. These findings provide good evidence for a dose-response effect of treatment in syringe exchangers and suggest that substance abuse treatment significantly expands the harm reduction benefits of SEP participation.     

Differential access to syringe exchange and other prevention activities among people who inject drugs in rural and urban areas of Puerto Rico

BackgroundInjection drug use and its associated blood-borne infections has become a rapidly increasing problem in rural areas of the US recently. Syringe exchange programs have been shown to be effective for reducing transmission of blood borne infections, however access to these prevention efforts may be limited in rural areas.MethodsThis paper utilizes two separate community samples of people who inject drugs (PWID) in Puerto Rico to achieve the following research objectives: (1) compare rural and urban access to syringe exchange programs, free sterile syringes and other HIV/HCV prevention activities, and (2) examine whether utilization of prevention activities is associated with lower injection risk behaviors. Two samples were recruited with RDS (n = 315 rural sample; n = 512 urban sample) and included adults aged 18 years and older who have injected drugs within the past month.Results78.5% of the urban sample utilized a syringe exchange program in the past year, compared to 58.4% of the rural sample (p < .001). 71.4% of the urban sample received free sterile needles, compared to 58.4% of the rural sample (p < .001). 66% of the urban sample received free works compared to 59% of the rural sample (p = .034). 29% of urban PWID had a conversation with an outreach worker about HIV prevention compared to 18% of the rural sample (p < 0.001). Receiving free needles significantly increases the frequency of using a sterile needle to inject (p < .001).ConclusionUrban PWID were significantly more likely to have utilized syringe exchange programs, received free sterile needles, received free works, and to have talked about HIV prevention with an outreach worker during the past year than PWID residing in rural areas. Individuals who accessed these prevention activities were significantly less likely to exhibit risky injection behavior. Policy implications call for increasing access to prevention services in rural areas to reduce disease transmission.     

Human immunodeficiency virus and hepatitis C virus testing services at syringe exchange programs: availability and outcomes

We described the availability and outcomes of human immunodeficiency virus (HIV) and hepatitis C virus (HCV) testing services at syringe exchange programs throughout California, using interviews with 24 syringe exchange program directors and 560 syringe exchange clients. Both HIV and HCV testing services were available in 62% of programs, 21% had HIV testing only, and 17% had neither. Programs administered by health care/social service providers were more likely than independent syringe exchange programs to have HIV and HCV testing services available. Among clients of programs with testing available, clients of illegal programs were significantly less likely than clients of legal programs to have used syringe exchange HIV and HCV testing services. The availability of HIV and HCV testing services at syringe exchange programs varies, and the use of existing testing services by clients is not universal. Efforts to increase both the availability of HIV and HCV testing services at syringe exchange programs and the use of existing testing services are needed.     

A mathematical model of HIV transmission in NSW prisons

A mathematical model was developed to estimate HIV incidence in NSW prisons. Data included: duration of imprisonment; number of inmates using each needle; lower and higher number of shared injections per IDU per week; proportion of IDUs using bleach; efficacy of bleach; HIV prevalence and probability of infection. HIV prevalence in IDUs in prison was estimated to have risen from 0.8 to 6.7% (12.2%) over 180 weeks when using lower (and higher) values for frequency of shared injections. The estimated minimum (and maximum) number of IDU inmates infected with HIV in NSW prisons was 38 (and 152) in 1993 according to the model. These figures require confirmation by seroincidence studies.     

Syringe Exchange as a Social Movement: A Case Study of Harm Reduction in Oakland,California

The federal ban on funding for syringe exchange programs (SEPs) has greatly hampered attempts to prevent the spread of HIV among injection drug users in the United States. State laws prohibiting the possession and/or distribution of syringes have made SEPs illegal. These factors have lent a unique social movement quality to harm reduction efforts in the United States. Using a social movement perspective, this paper explores dynamics of the implementation and defense of the syringe exchange program in Oakland, California. The advantages and disadvantages of the social movement aspects of harm reduction are discussed.