Cultivation, Sale, Rules: How Cannabis Legalization Should Be Implemented

Cannabis legalization is a much-discussed topic. The traffic light government wants to release the drug in a controlled manner. We answer the most important questions.

Cannabis legalization is a long-discussed topic in German politics. Users, as well as various parties and associations, have long campaigned for the release of the drug, which has been banned in Germany since 1929. However, critics, including the CDU/CSU and police unions, warn of health consequences. However, the federal government of the traffic light coalition of SPD, Greens and FDP defined the legalization of cannabis as a goal in the coalition agreement in 2021 – and presented a key issues paper just under a year later. "Drug policy needs to be renewed. We want to reform cannabis use from a health point of view," said Federal Health Minister Karl Lauterbach (SPD) about the project. In April 2023, the traffic light adjusted the plans.

Content

• How does the traffic light coalition intend to implement cannabis legalization?
• When will cannabis be legalized?
• What could prevent legalization?
• How should the cannabis associations be structured and what rules apply there?
• Who should be allowed to buy cannabis?
• How is the sale regulated?
• Who should be allowed to grow cannabis?
• Driver's license: What rules should apply in road traffic?
• What are the plans for the protection of minors?
• What health protection measures are planned?
• How high should the cannabis tax be?
• What do critics of cannabis legalization say?
• What are the current cannabis rules in Germany?
• Since when has cannabis been banned in Germany?

Cannabis legalization is a goal of the traffic light coalition

When forming a government in 2021, the SPD, Greens and FDP set cannabis legalization as their goal. The coalition agreement provides for the "controlled supply of cannabis to adults for recreational purposes in licensed shops". The governing parties hope that this will result in quality control, protection against contaminated substances and improved protection of minors.

The German government has consulted with experts and interest groups on the concrete design of the legalisation of cannabis. At the end of the consultation process led by the Federal Drug Commissioner, the Cabinet adopted a key issues paper, which Karl Lauterbach presented on 26 October 2022. It specifies the design of the release of the drug.

The rules for medical cannabis are not expected to change significantly after legalization.

How does the traffic light coalition intend to implement cannabis legalization?

However, the compatibility of the planned cannabis legalization with EU law and other international agreements was questionable. That is why Karl Lauterbach had the key points examined by the EU Commission. On April 12, 2023, Lauterbach and Agriculture Minister Cem Özdemir presented the cornerstones of a two-pillar model of legalization, which take into account the findings from the coordination with the EU. The legalization of cannabis is thus to take place in two steps:

0

Also Read

Frustration over heating law: Habeck's groomsmen clique ignored experts – despite objections

READ

Is a battle for Crimea imminent? Counteroffensive could lead to "emotional disappointment"

READ

No Ukraine conquest for Putin: US sees signs of rethinking – ceasefire possible?

READ

Putin supporters awakened from coma after attack - Russia initiates terror investigation

READ

Intrigues in the Kremlin: Secret documents probably show Putin's rebuff for Wagner - and Shoigu's explosive plans

READ

Fancy a voyage of discovery?

My Area

The federal government plans to review legalization within the framework of cannabis associations after four years. The focus is on the protection of health and minors as well as the development of the black market. The pilot projects for the commercial distribution of cannabis in licensed shops will initially last five years.

When will cannabis be legalized?

The limited legalization of cannabis in non-commercial associations is expected to take place before the end of 2023. The German government plans to present the bill at the end of April. According to the Federal Government, the draft law on the model regions is to take place after the summer break. Therefore, this is not expected until September 2023 at the earliest.

Long demanded by demonstrators like here in Berlin, now it should come: The traffic light coalition has presented key points on cannabis legalization. (Archive photo) © Fabian Sommer/dpa

The German government also assumes that there is an obligation to notify the EU Commission for the second step of legalization. The EU Commission and other member states will have the opportunity to comment on Germany's plans. As a result of the examination, the procedure can be delayed for up to six months. During this time, the draft may not be adopted. If the Commission decides to establish common rules for the whole of the Union, it can block the draft for up to 18 months.

What could delay or prevent cannabis legalization?

The legalization of cannabis is subject to strict international rules to combat drugs. According to the Bundestag's Research Service, the original plans violated EU law. On the basis of the EU Framework Decision of 2004, the production, cultivation, sale, transport, dispatch, import and export of drugs must be criminalised. The text of the resolution also explicitly mentions the cultivation of the cannabis plant.

United Nations (UN) treaties could also prevent the general release of cannabis. This is the conclusion, for example, of an expert opinion commissioned by the Bavarian state government by Bernhard Wegener, Professor of Public Law and European Law at the University of Erlangen-Nuremberg, dated March 1, 2023. Accordingly, the UN conventions on cannabis legalization prescribe a ban. "The signatory states are largely obliged to explicitly threaten the use of drugs with punishment," Wegener notes. Cannabis and other drugs should therefore only be used in science and medicine.

However, there is a "constitutional reservation" in the UN treaties, which proponents consider to be the legal basis for legalization. However, the reservation relates solely to a possible decriminalization of private consumption, writes Bernhard Wegener in his report.

Can the CDU and CSU prevent legalization in legislation?

In Germany, the planned bills need a majority in the Bundestag, where the traffic light coalition has a majority. For legalization, however, it could be decisive whether it is a law requiring approval. This is the case if it affects the interests of the countries or changes the constitution. In this case, an absolute majority of 35 votes is required in the Bundesrat.

The CDU/CSU could prevent legalization in such a scenario. They are represented in eight state governments with a total of 39 votes, in six of which they provide the prime minister (29 votes). If Kai Wegner (CDU) is elected mayor of Berlin at the end of April 2023 as planned, four more votes will be added for the CDU/CSU. In the case of objection laws, the traffic light can overrule the Bundesrat with its majority in the Bundestag.

How should the cannabis associations be structured and what rules apply there?

Initially, the cultivation and distribution of cannabis will only take place in cannabis associations. These are similar to the "Cannabis Social Clubs" that already exist in Spain and Malta. Anyone wishing to possess and consume cannabis must be a member of an association. Memberships in several clubs are not permitted. The minimum age of 18 years and a place of residence or permanent abode in Germany are a condition for membership. According to the new key issues paper, the following rules will apply to members of cannabis clubs:

• Setting a maximum dispensing quantity of 25 grams per day and 50 grams per month
• Maximum 30 grams per month and THC limit for those under 21 years of age
• Delivery of seven seeds or five cuttings to private individuals for home cultivation
• Unpunished possession of a maximum of 25 grams in public

The approval and monitoring of cultivation and distribution in the clubs is to be carried out by state authorities. A number of other rules apply to the clubs:

• Obligation to report and document on cannabis produced and sold
• Guidance by natural persons who must prove their reliability
• A maximum of 500 members per club
• Youth protection, addiction and prevention officers with expertise must be appointed
• Consumption is prohibited in rooms of the association
• The distribution of alcohol, tobacco and other stimulants or intoxicants is prohibited
• Access only for people aged 18 and over
• Mandatory cooperation with addiction prevention and counselling centres
• Personal liability of the Executive Board in the event of "financial loss" or violation of the conditions shall take place in the event of intent or gross negligence

Who should be allowed to buy cannabis?

The current plans for cannabis legalization in Germany stipulate a minimum age of 18 years to buy cannabis. Accordingly, only adults are allowed to become members of the associations and – in model regions – enter sales outlets and possess cannabis. In public, consumers are allowed to carry a maximum of 25 grams. The federal government is also planning a THC cap for people under the age of 21. According to the new key issues paper, this is to be enforced by issuing certain varieties.

Für Minderjährige bleibt der Besitz verboten, allerdings soll er nicht strafbewehrt bleiben. Die Teilnahme an Frühinterventions- oder Präventionsprogrammen ist jedoch für minderjährige Besitzer und Konsumenten von Cannabis verpflichtend.

Wie wird der Verkauf von Cannabis geregelt?

Der flächendeckende Verkauf von Cannabis in lizenzierten Geschäften, wie ihn noch das Eckpunktepapier vom Oktober 2022 vorgesehen hat, ist zunächst nicht mehr geplant. Stattdessen erfolgt die Abgabe von Cannabisblüten und -harz durch nicht-kommerzielle Vereinigungen. Die Abgabe von anderen Cannabisprodukten wie beispielsweise Kuchen oder Öle ist verboten, genau wie die Vermischung mit Tabak oder Aromen. Der Preis darf jedoch nur so hoch sein, dass die Produktionskosten gedeckt sind.

Der Verkauf von Cannabis in lizenzierten Geschäften soll laut Bundesregierung nur in den Modellregionen erfolgen dürfen. Dort sollen die im Oktober 2022 vorgestellten Regeln gelten. Der Verkauf findet damit in bestimmten Geschäften statt, die ausschließlich auf den Verkauf und Beratung der Cannabisprodukte ausgerichtet sind. Online-Shops und einen Versandhandel soll es zu Beginn nicht geben. Im Rahmen der nachträglichen Untersuchung des Modellversuchs soll jedoch geprüft werden, ob ein Online- bzw. Versandhandel zugelassen wird.

Die Betreiber der Verkaufsstellen benötigen eine Lizenz, die sie zeitlich befristet von Behörden ausgestellt bekommen. Die Lizenzen können mehrmals verlängert werden. Zudem sind Kontrollen vorgesehen. Bei Verstößen können die Betreiber die Lizenz verlieren.

Beim Cannabis-Verkauf gelten zudem eine Reihe von Regeln:

• Maximale Abgabemenge pro Person
• Keine Verbindung mit dem Verkauf von Tabak und Alkohol
• Bereitstellung von Informationen zu risikoarmen Konsum, Risiken und Hinweise auf Beratungs- und Behandlungsstellen
• Ernennung einer Ansprechpartnerin bzw. eines Ansprechpartners für den Jugendschutz
• Werbeverbot (sachliche Informationen sind erlaubt, z.B. zum Verkaufsort)

Auch die Betreiber der Verkaufsstellen und ihr Personal müssen eine Reihe von Bedingungen erfüllen, wenn sie Cannabis verkaufen wollen:

• Sachkundenachweis
• Nachweis über Beratungs- und Präventionskenntnisse
• Nachweis über Zuverlässigkeit

Welche Regeln sollen für den Cannabis-Anbau gelten?

Nicht nur der Verkauf, sondern auch der Cannabis-Anbau soll laut Ampel-Plänen zunächst zugelassenen Vereinen und lizenzierte Unternehmen erfolgen. Im Rahmen der Legalisierung will die Bundesregierung den gesamten Prozess – von Anbau über Herstellung, Transport und Verkauf – streng regulieren und behördlich überwachen lassen. Als Produktionsstätten sieht die Regierung vor allem den Indoor-Anbau sowie Gewächshäuser vor.

Für den Anbau von Cannabis durch die Vereine und Unternehmen gelten eine Reihe von Regeln:

• Anbau- und Erntemengen sind auf Bedarfsdeckung ausgelegt (in den Vereinigungen)
• Berichts- und Dokumentationspflicht zu erzeugten Mengen (in den Vereinigungen)
• Vorgaben zu Qualität und Reinheit, Pflanzenschutzmitteln, Mykotoxinen und Mikroorganismen
• Vorgaben zu Kontrollsystemen
• Anforderungen an Qualifikation, Zuverlässigkeit und Bonität an Produzenten
• Produktion ausschließlich in Deutschland

Auch Eigenanbau von Cannabis soll erlaubt werden. Das Eckpunktepapier sieht dabei drei Pflanzen pro volljähriger Person vor. Die Pflanzen und ihre Erträge müssen vor Kindern und Jugendlichen ferngehalten werden. Die nötigen Samen und Stecklinge sollen ebenfalls über die Cannabis-Vereine abgegeben werden. Ob die Abgabe auch an Nicht-Mitglieder erlaubt sein soll, will die Bundesregierung noch prüfen.

Führerschein: Wirkt sich die Cannabis-Legalisierung auf die Regeln im Straßenverkehr aus?

Ob die Grenzwerte für den Cannabis-Wirkstoff THC im Straßenverkehr im Rahmen der Legalisierung angepasst werden, sollen Fachgremien überprüfen. Das gilt auch für andere Verkehrsbereiche, also die Luft- und Schifffahrt.

Aktuell begehen Fahrer eine Ordnungswidrigkeit, wenn sie unter Einfluss von Cannabis am Steuer sind. Entscheidend ist dabei der Nachweis der Droge im Blut. Derzeit gilt für THC ein Grenzwert von einem Nanogramm pro Milliliter. Je nach Konsumhäufigkeit wird der Wert noch mehrere Tage nach dem Cannabiskonsum überschritten.

Was passiert nach der Legalisierung mit laufenden Strafverfahren und früheren Verurteilungen wegen Cannabis-Delikten?

Vor der Cannabis-Legalisierung können die Behörden der Bundesländer entscheiden, ob sie im Rahmen der aktuellen Regeln Straftaten verfolgen. Sobald das Gesetz in Kraft getreten ist, sollen laufende Ermittlungen und Strafverfahren eingestellt werden.

Eingetragene Verurteilungen sollen auf Antrag beseitigt werden können. Das betrifft bisherige Straftaten, die mit der Freigabe von Cannabis wegfallen. Die Bundesregierung nennt dabei im Eckpunktepapier vor allem Besitz, Erwerb und Anbau von Cannabis bis zu einer Menge von 25 bzw. drei weiblich blühenden Pflanzen.

Welche Maßnahmen gibt es für den Jugendschutz?

Die Bundesregierung und insbesondere Gesundheitsminister Lauterbach argumentieren, dass die Cannabis-Legalisierung einen besseren Gesundheits- und Jugendschutz ermöglicht. Das Eckpunktepapier nennt dabei eine Reihe von Maßnahmen.

Die bedeutendste Maßnahme zum Jugendschutz ist die Altersgrenze von 18 Jahren. Kinder und Jugendliche dürfen kein Cannabis und keine Cannabisprodukte besitzen, Geschäfte nicht betreten und nicht Mitglied in Cannabis-Vereinen werden. Bei einem Verstoß gegen die Alterskontrolle droht den Verkäuferinnen und Verkäufern der Entzug ihrer Lizenz sowie ein Strafverfahren.

Das Eckpunktepapier der Bundesregierung sieht zudem eine Reihe von weiteren Maßnahmen zum Kinder- und Jugendschutz vor:

• Mindestabstände der Clubs und Verkaufsstellen zu Kitas, Schulen sowie Kinder- und Jugendeinrichtungen
• Begrenzung der Anzahl der Geschäfte in einer Gegend entsprechend der Bevölkerungsdichte
• Konsumverbot an Orten, an denen sich Kinder und Jugendliche regelmäßig aufhalten (einschließlich Fußgängerzonen bis 20 Uhr)
• Frühinterventions- oder Präventionsprogramme bei Erwerb und Besitz von Cannabis durch Jugendliche
• Flächendeckende Frühinterventionsangebote zur Konsumreflexion
• Beratungs- und Behandlungsangebote
• Familiengerichtliche Maßnahmen gegen Sorgeberechtigte, wenn das Wohl des Kindes gefährdet wird bzw. die Eltern nicht in der Lage sind, etwas dagegen zu tun
• Strafen für den Verkauf oder die Überlassung von Cannabis an Kinder oder Jugendliche

Welche Maßnahmen zum Gesundheitsschutz plant die Regierung bei der Cannabis-Legalisierung?

Allgemein will die Bundesregierung im Zuge der Legalisierung Aufklärung, Prävention, Beratung und Behandlungsangebote ausbauen. Diese sollen laut Eckpunktepapier vom Oktober 2022 möglichst in der Lebenswelt der Menschen stattfinden. Als mögliche Orte werden dabei Schulen, Berufsschulen, soziale Medien, Sportvereine und die Arbeitswelt genannt. Zusätzlich soll im Rahmen der Cannabis-Legalisierung auch der Nichtraucherschutz ergänzt werden. Die entsprechenden Regeln gelten dann auch, wenn Produkte mit Cannabis geraucht wird.

Diese Maßnahmen zum Gesundheitsschutz nennt die Bundesregierung im zweiten Eckpunktepapier vom April 2023:

• Limitation of the amount to 25 grams per day or 50 grams per month
• Distribution of cannabis only in pure form (flowers or resin)
• Prohibition of the sale of alcohol in clubs
• General ban on advertising cannabis and clubs
• Expansion of prevention services
• Advice on handing in clubs and selling in shops
• Packaging instructions on risks and THC content

According to the plans of the federal government, the effects of cannabis legalization on the protection of minors and health are to be reviewed after four years. The law can then be amended.

How high should the cannabis tax be?

Initially, the federal government had also planned to introduce a special consumption tax with legalization. However, the colloquial cannabis tax is no longer provided for in the updated key issues paper of April 2023. It merely mentions that revenues from the sale of cannabis products in the model projects are subject to VAT.

The "cannabis tax" should be based on the THC content of cannabis products, which should make potentially more harmful products more expensive. The German government hopes that the new tax will contribute to health protection.

However, cannabis legalization would bring in billions of dollars annually for the state. Justus Haucap, professor at the Institute for Competition Economics (DICE) in Düsseldorf, and his colleague Leon Knoke estimate a total of 4.7 billion euros per year. The sum is made up of income from a cannabis tax, other taxes, social security contributions and saved costs for investigative and law enforcement authorities.

The effects of the cannabis tax on government revenues and expenditures of the Düsseldorf study of 21 November 2021 at a glance:

What criticism is there of cannabis legalization?

Despite hopes for better protection of minors and health, relief for the police and judiciary, and the displacement of the black market, the planned cannabis legalization is causing criticism. Critics warn of the health consequences of cannabis use and secondary disorders such as addictions, depression, anxiety disorders, psychoses and developmental delays in adolescents. They also fear an increase in traffic accidents.

According to critics, the black market cannot be displaced because the illegal market adapts to young people who are excluded from the legal market.

The German Police Union (DPolG) sees cannabis legalization as a "fatal signal". "We must not send out the message that the use of drugs is not so bad." The Bavarian Police Union (GdP Bayern) also warns against "talking cannabis 'soft' and making it socially acceptable through illegalization". It is suggested that it is not dangerous to consume cannabis, said the deputy chairman of the GdP Bavaria, Florian Leitner, in a statement.

Cannabis prohibition in Germany: What are the current rules?

Cannabis is still considered a "non-marketable" narcotic and is therefore prohibited. For cultivation, production, trade, import, export, purchase and possession, a fine or imprisonment of up to five years is possible. In the case of a small amount, authorities can dispense with criminal proceedings. The guidelines for this differ – and are not binding for judges and the public prosecutor's office.

Medical cannabis has been available in Germany since 2017. Doctors may prescribe cannabis, cannabis flowers or extracts for serious illnesses if alternatives have already been exhausted. The cultivation of legal, medical cannabis is controlled by an agency.

Since when has cannabis been banned in Germany?

The previous cannabis ban has existed since 1929. After the inclusion of Indian hemp in the "International Convention on Narcotic Drugs" by the League of Nations in 1925, Germany was forced to enact production, import and export, trade and use. Cannabis was only allowed to be used for medical or scientific purposes.

On December 10, 1929, Indian hemp was included in the "Law on the Traffic in Narcotic Drugs", also known as the Opium Act. In the Narcotics Act (BtMG), which came into force in 1972, cannabis is also mentioned literally. Since 1929, the cultivation, trade, purchase and possession of cannabis have been punishable by law in Germany. The SPD, Greens and FDP want to change that now – more than 90 years later.

Sources

2021 coalition agreement: "Dare to make more progress. Alliance for Freedom, Justice and Sustainability"

Karl Lauterbach at the Federal Press Conference on 26 October 2022

Key issues paper of the Federal Government on the introduction of a controlled supply of cannabis to adults for recreational purposes of 26 October 2022

Karl Lauterbach and Cem Özdemir at the Federal Press Conference on 12 April 2023

Federal Ministry of Health: Controlled distribution of recreational cannabis to adults Key points of a 2-pillar model of 24 March 2023

Council Framework Decision 2004/757/JHA of 25 October 2004 laying down minimum rules on the constituent elements of criminal acts and penalties in the field of illicit drug trafficking

Bernhard Wegener: Limits of cannabis legalization in Germany under international and European law. Legal opinion for the Bavarian State Government

Justus Haucap, Leon Knoke: Fiscal Implications of Cannabis Legalization in Germany: An Update

Federal Office of Consumer Protection and Food Safety: Does the cannabis product fall under the Narcotics Act?; https://www.bvl.bund.de/SharedDocs/FAQ/DE/02_Unternehmer/01_Lebensmittel/03_FAQ_Hanf_THC_CBD/01_FAQ_Cannabidiol_CBD.html

Act on the Traffic in Narcotics (Narcotics Act - BtMG)

German Road Safety Council: § 24 a para. 2 StVG limit values; https://drogen.dvr.de/StVG_p24a_a2_Grenzwerte.html

Miriam Frank: Cannabis in German History – Panacea or Drug?; https://www.mdr.de/geschichte/zeitgeschichte-gegenwart/politik-gesellschaft/cannabis-droge-legalisierung-100.html