Introduction

Since 1999, more than one million people have died of a drug overdose in the U.S. The nature of this crisis has evolved rapidly in recent years, with synthetic opioids, such as fentanyl, now dominating the drug supply. Amid an evolving and increasingly life-threatening substance use environment, harm reduction has become a pillar of America’s overdose prevention strategy. Harm reduction is an evidence-based approach to engage and meet the needs of people who use drugs. For America’s counties, harm reduction complements prevention, treatment and recovery services to create a more holistic and effective system of care.

Harm Reduction: 

"a practical and transformative approach that incorporates community-driven public health strategies – including prevention, risk reduction, and health promotion – to empower people who use drugs and their families with the choice to live healthier, self-directed, and purpose-filled lives."

— U.S. Substance Abuse and Mental Health Services Administration

Through the national opioid settlements, counties have access to flexible resources that can enhance our existing opioid response strategies, including incorporating or expanding the role of harm reduction in our systems of service. How counties can integrate harm reduction depends on the policy environment, including on whether counties have broad authority, limited authority or face state-imposed barriers. 

To help counties assess the utility and feasibility of harm reduction in our jurisdictions, this resource explores five questions from counties in different policy contexts: 
  1. What is harm reduction and what would it mean for our community?

    Question in Action: Graves County, Ky.

  2. What if our county isn’t involved in the delivery of substance use services?

    Question in Action: Arapahoe County, Colo.

  3. What if community-based organizations already offer harm reduction services?

    Question in Action: Allegheny County, Pa.

  4. What if harm reduction is restricted at the state level?

    Question in Action: Bexar County, Texas

  5. How can opioid settlement funds support harm reduction?

    Question in Action: Hennepin County, Minn.

Each example includes information about the state’s policy context, so that counties can assess which context is most similar to their own.

  1. Centers for Disease Control and Prevention. Drug Overdose Deaths. Reviewed August 22, 2023. Accessed December 1, 2023. www.cdc.gov/drugoverdose/deaths/index.html
  2. Center for Substance Abuse Prevention, Substance Abuse and Mental Health Services Administration. Harm Reduction Framework. Published 2023. www.samhsa.gov/sites/default/files/harm-reduction-framework.pdf
  3. Substance Abuse and Mental Health Services Administration. Harm Reduction. Updated April 24, 2023. Accessed December 1, 2023. www.samhsa.gov/find-help/harm-reduction
  4. Strathdee SA, Celentano DD, Shah N, et al. Needle-exchange attendance and health care utilization promote entry into detoxification. J Urban Health. 1999;76(4):448-460. doi:10.1007/BF02351502 
  5. Thakarar K, Nenninger K and Agmas W. Harm Reduction Services to Prevent and Treat Infectious Diseases in People Who Use Drugs. Infectious Disease Clinics of North America. 2020;34(3):605-620. doi.org/10.1016/j.idc.2020.06.013
  6. Centers for Disease Control and Prevention. Case Studies: Overdose Data to Action Case Studies: Harm Reduction. Published 2022. www.cdc.gov/drugoverdose/od2a/case-studies/harm-reduction.html
  7. Hagan H, McGough JP, Thiede H, Hopkins S, Duchin J and Alexander ER. Reduced injection frequency and increased entry and retention in drug treatment associated with needle-exchange participation in Seattle drug injectors. J Subst Abuse Treat. 2000;19(3):247-252. www.jsatjournal.com/article/S0740-5472(00)00104-5/fulltext
  8. Krieger MS, Goedel WC, Buxton JA, Lysyshyn M, Bernstein E, Sherman SG, Rich JD, Hadland SE, Green TC, Marshall BDL. Use of rapid fentanyl test strips among young adults who use drugs. Int J Drug Policy. 2018 Nov;61:52-58. doi: 10.1016/j.drugpo.2018.09.009. 
  9. Prevention Point. Locations. Accessed December 1, 2023. www.fixsafe.org/locations.html
  10. National Association of Counties. Syringe Services Programs. Published Jan 23, 2023. Accessed October 30, 2023. www.naco.org/resource/syringe-services-programs
  11. OPTUMRx. Epclusa® (velpatasvir/sofosbuvir) and Harvoni® (ledipasvir/sofosbuvir) – First-time generics. professionals.optumrx.com/content/dam/optum3/professional-optumrx/news/rxnews/new-generics/newgenerics_epclusa_harvoni_2019-0115.pdf
  12. Schackman BR, Fleishman JA, Su AE, et al. The Lifetime Medical Cost Savings From Preventing HIV in the United States. Medical Care. 2015;53(4):293-301. doi:10.1097/MLR.0000000000000308 
  13. Teshale EH, Asher A, Aslam MV, Augustine R, Duncan E, Rose-Wood A, Ward J, Mermin J, Owusu-Edusei K, Dietz PM. Estimated cost of comprehensive syringe service program in the United States. PLoS One. 2019;14(4):e0216205. doi: 10.1371/journal.pone.0216205.
  14. Kentucky General Assembly. Kentucky Revised Statutes: KRS Chapter 218A, Drug Paraphernalia. Published 2023. Accessed October 30, 2023. apps.legislature.ky.gov/law/statutes/chapter.aspx?id=38267
  15. Kentucky General Assembly. Kentucky Revised Statutes: KRS Chapter 218A, Drug Paraphernalia. Published 2023. Accessed October 30, 2023. apps.legislature.ky.gov/law/statutes/chapter.aspx?id=38267
  16. Naloxone: Summary of State Laws. Legislative Analysis and Public Policy Association. January 2023. legislativeanalysis.org/wp-content/uploads/2023/02/Naloxone-Access-Summary-of-State-Laws.pdf
  17. Naloxone: Summary of State Laws. Legislative Analysis and Public Policy Association. January 2023. legislativeanalysis.org/wp-content/uploads/2023/02/Naloxone-Access-Summary-of-State-Laws.pdf
  18. Centers for Disease Control and Prevention. Vulnerable Counties and Jurisdictions Experiencing or At-Risk of Outbreaks. Updated August 31, 2021. Accessed December 21, 2023. www.cdc.gov/pwid/vulnerable-counties-data.html
  19. Substance Abuse and Mental Health Services Administration. 2021 National Survey of Drug Use and Health (NSDUH) Releases. www.samhsa.gov/data/release/2021-national-survey-drug-use-and-health-nsduh-releases
  20. The Network for Public Health Law. Harm Reduction and Overdose Prevention: 50-State Survey. Published 2021. www.networkforphl.org/wp-content/uploads/2020/12/50-State-Survey-Harm-Reduction-Laws-in-the-United-States-final.pdf
  21. The Network for Public Health Law. Harm Reduction and Overdose Prevention: 50-State Survey. Published 2021. www.networkforphl.org/wp-content/uploads/2020/12/50-State-Survey-Harm-Reduction-Laws-in-the-United-States-final.pdf
  22. General Assembly of the State of Colorado. SB19-227. leg.colorado.gov/sites/default/files/documents/2019A/bills/2019a_227_enr.pdf 
  23. Naloxone: Summary of State Laws. Legislative Analysis and Public Policy Association. January 2023. legislativeanalysis.org/wp-content/uploads/2023/02/Naloxone-Access-Summary-of-State-Laws.pdf  
  24. Ibid.
  25. The Network for Public Health Law. Harm Reduction and Overdose Prevention: 50-State Survey. Published 2021. www.networkforphl.org/wp-content/uploads/2020/12/50-State-Survey-Harm-Reduction-Laws-in-the-United-States-final.pdf
  26. Pennsylvania General Assembly. 2022 Act 111. Accessed October 30, 2023. www.legis.state.pa.us/cfdocs/legis/li/uconsCheck.cfm?yr=2022&sessInd=0&act=111
  27. Naloxone: Summary of State Laws. Legislative Analysis and Public Policy Association. January 2023. legislativeanalysis.org/wp-content/uploads/2023/02/Naloxone-Access-Summary-of-State-Laws.pdf   
  28. Naloxone: Summary of State Laws. Legislative Analysis and Public Policy Association. January 2023. legislativeanalysis.org/wp-content/uploads/2023/02/Naloxone-Access-Summary-of-State-Laws.pdf   
  29. Pennsylvania Department of Health. County and Municipal Health Departments. Accessed December 1, 2023. www.health.pa.gov/About/Pages/County-Municipal%20Health%20Depts.aspx
  30. University of California San Francisco. Toward a New Understanding: The California Statewide Study of People Experiencing Homelessness. Benioff Homelessness and Housing Initiative. Published June 2023. homelessness.ucsf.edu/sites/default/files/2023-06/CASPEH_Report_62023.pdf 
  31. Dimmick I. Needle exchange programs are rare in Texas. A San Antonio group is proving they can work. San Antonio Report. Published January 23, 2022. sanantonioreport.org/needle-exchange-program-harm-reduction-san-antonio/
  32. The Network for Public Health Law. Harm Reduction and Overdose Prevention: 50-State Survey. Published 2021. www.networkforphl.org/wp-content/uploads/2020/12/50-State-Survey-Harm-Reduction-Laws-in-the-United-States-final.pdf
  33. Naloxone: Summary of State Laws. Legislative Analysis and Public Policy Association. January 2023. legislativeanalysis.org/wp-content/uploads/2023/02/Naloxone-Access-Summary-of-State-Laws.pdf   
  34. Naloxone: Summary of State Laws. Legislative Analysis and Public Policy Association. January 2023. legislativeanalysis.org/wp-content/uploads/2023/02/Naloxone-Access-Summary-of-State-Laws.pdf   
  35. Dimmick I. Needle exchange programs are rare in Texas. A San Antonio group is proving they can work. San Antonio Report. Published January 23, 2022. sanantonioreport.org/needle-exchange-program-harm-reduction-san-antonio/
  36. Corazón Ministries. All Programs. Accessed October 30, 2023. corazonsa.org/all-programs/ 
  37. Ranapurwala S. I., Shanahan M. E., Alexandridis A. A., Proescholdbell S. K., Naumann R. B. and Edwards D. Opioid overdose mortality among former North Carolina inmates: 2000–2015. American Journal of Public Health. 2018;108(9), 1207–1213. doi:10.2105/AJPH.2018.304514 
  38. Doe-Simkins M, Wheeler E.J., Figgatt M.C., Jones T. S., Bell A, Davidson P.J. and Dasgupta N. Naloxone Buyers Club: Overlooked Critical Public Health Infrastructure for Preventing Overdose Deaths. medRxiv. November 16, 2021. doi.org/10.1101/2021.11.14.21266221
  39. National Association of Counties. Naloxone to Reverse Opioid Overdose. Published July 17, 2023. Accessed October 30, 2023. www.naco.org/resources/opioid-solutions/approved-strategies/naloxone 
  40. Minnesota Legislature, Office of the Revisor of Statutes. Minnesota Session Laws – 2023, Regular Session. Chapter 52, Article 15 Controlled Substances Policy. www.revisor.mn.gov/laws/2023/0/Session+Law/Chapter/52/
  41. Minnesota Legislature, Office of the Revisor of Statutes. Minnesota Session Laws – 2023, Regular Session. Chapter 52, Article 15 Controlled Substances Policy. www.revisor.mn.gov/laws/2023/0/Session+Law/Chapter/52/
  42. Minnesota Legislature, Office of the Revisor of Statutes. Minnesota Session Laws – 2023, Regular Session. Chapter 52, Article 15 Controlled Substances Policy. www.revisor.mn.gov/laws/2023/0/Session+Law/Chapter/52/
  43. Naloxone: Summary of State Laws. Legislative Analysis and Public Policy Association. January 2023. legislativeanalysis.org/wp-content/uploads/2023/02/Naloxone-Access-Summary-of-State-Laws.pdf   
  44. Naloxone: Summary of State Laws. Legislative Analysis and Public Policy Association. January 2023. legislativeanalysis.org/wp-content/uploads/2023/02/Naloxone-Access-Summary-of-State-Laws.pdf
  45. The Office of Minnesota Attorney General Keith Ellison. Opioid Settlement Payment Amounts. Accessed December 8, 2023. www.ag.state.mn.us/opioids/SettlementAllocation.asp
  46. National Institute on Drug Abuse. Overdose Prevention Centers. Published August 2023. Accessed October 30, 2023. nida.nih.gov/research-topics/overdose-prevention-centers

Additional Resources

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Program

Opioid Solutions Center

NACo's Opioid Solutions Center empowers local leaders to invest resources in effective treatment, recovery, prevention and harm reduction practices that save lives and address the underlying causes of substance use disorder.