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In the coming weeks, Prohibition Partners will launch a new digital knowledge hub, offering readers the same in-depth and up-to-date analysis they’ve come to expect from the company, in an easy-to-navigate, consistently updated, interactive format.
Ahead of its release, we have delved into some of the key data and insights set to be integrated into the new site, providing a taste of what readers can expect. For further exclusive analysis into the European cannabis market, pre-orders for data packages are available now.
The European adult-use cannabis industry is still in its infancy, as governments and regulators which have adopted some form of adult-use cannabis framework have taken cautious approaches to its implementation.
The justification and aim for the legalisation in all adult-use markets in Europe is concerned with encouraging public safety and health, protecting youth, and combating the illicit market.
As countries within the EU and Switzerland are bound to international law, including the United Nations’ 1961 Single Convention on Narcotic Drugs as well as the 1988 Convention Against Illicit Traffic in Narcotic Drugs and Psychotropic Substances, European countries have to justify adult-use legalisation in terms of science and public health and safety. To adhere to international law, commercial sales of adult-use cannabis are only being conducted through experiments and pilot projects.
Currently, five countries in Europe have legalised adult-use cannabis to a certain extent, with European adult-use markets being split into three types of frameworks:
Scientific: Commercial sales through the use of pilot projects and experiments (Netherlands & Switzerland)
Public Health & Safety: Home cultivation & cannabis associations (Malta & Luxembourg)
Combination of the above (Germany)
Upcoming: Prohibition Partners, The European Cannabis Report: 10th Edition – Pre-Order Now
Scientific & Pilot Project Model(s)
The Netherlands
In the Netherlands and Switzerland, adult-use cannabis is currently being sold commercially; however, both countries have implemented differing approaches towards it. In the Netherlands, this is conducted through the Controlled Cannabis Supply Chain Experiment, whereas in Switzerland, adult-use cannabis is sold to study participants through small pilot projects.
The aim of the Netherlands Controlled Cannabis Supply Chain Experiment is to establish and assess the possibility of regulating the production, distribution and sale of quality-controlled cannabis. The experiment also evaluates the effects on the illicit market, crime, public safety and health.
This experiment is unique to the Netherlands due to the pre-existing cultural and legal norms of the country. For decades, the toleration policy within the country’s Opium Act has permitted the sale of cannabis through coffeeshops; however, the supply to the coffeeshops has been sourced illicitly.
In an effort to legitimise this framework, the government approved a multi-year trial enabling a legal commercial supply chain in which 10 selected licensed producers will cultivate cannabis for coffeeshops in the ten participating municipalities.
The experiment commenced in December 2023 and is set to run until April 2029. As of 7 April 2025, the experiment is in its main phase, where all coffeeshops exclusively source products from the ten selected suppliers.
Switzerland
In September 2020, the Swiss parliament passed an amendment to the Federal Act on Narcotics and Psychotropic Substances (NarcA), providing a legal basis for conducting scientific pilot trials with cannabis, to examine the disadvantages and advantages of legal adult-use cannabis and evaluate the best approach to a regulated cannabis framework.
The law came into force on 15 May 2021, and the first pilot project, Weed Care, commenced adult-use sales in January 2023.
There are currently 7 active pilot projects in Switzerland that hold approval from the FOPH. In total, roughly 10,000 participants are currently able to purchase adult-use cannabis through specific points of sale outlined in the scientific studies, which include pharmacies, drug information centres, speciality stores and cannabis associations.
Additionally, in February 2025, the Swiss National Council’s Social Security and Health Committee voted to approve a preliminary draft bill for full adult-use legalisation in Switzerland. The draft would enable citizens to legally ‘grow, buy, possess and consume cannabis’.
An ‘explanatory report’ is now being prepared, ahead of a consultation process set to take place over the summer. If passed, the final version of the law is expected to be implemented in 2026. This would represent the first full commercial adult-use cannabis market in Europe.
Home Cultivation & Cannabis Associations
Germany, Luxembourg and Malta are the only countries in Europe that have explicitly legalised the home cultivation of cannabis for personal use. In Malta and Luxembourg, adults may cultivate up to 4 plants per household, whereas in Germany, adults are allowed to cultivate up to 3 plants per person. In all countries, plants must be kept safe from children and third parties.
In Germany and Malta, cannabis cultivation associations are also permitted to provide adult-use cannabis to their members under strict requirements.
In both countries, cannabis cultivation associations have to be non-profit associations, promote harm reduction, be a significant distance from schools, and hold a maximum of 500 members at least 18 years old.
In Malta, members may only purchase a daily limit of 7 grams, with the monthly limit being capped at 50 grams of dried flowers. To protect the youth further, Malta has also prohibited cannabis associations from selling cannabis with over 18% THC to its members under 21. While in Germany, members over 21 can purchase a maximum of 25 grams a day and 50 grams a month, and those between 18-21 have a monthly cap of 30 grams a month with a maximum THC content of 10%.
As of April 2025 there are 19 cannabis associations in Malta which have been approved by the Authority for the Responsible Use of Cannabis (ARUC). Whereas in Germany, cannabis associations have submitted roughly 630 applications, with approximately 216 receiving permits.
Upcoming: Prohibition Partners, The European Cannabis Report: 10th Edition – Pre-Order Now
The roll-out of permits has been fragmented throughout Germany, as federal states control the roll-out process, giving state authorities responsibility for monitoring and licensing, and also placing requirements on cannabis associations. Thus, there is a disparity between federal states regarding the number of permits issued so far.
The federal states that have issued the greatest number of permits are North Rhine-Westphalia, Lower Saxony and Rhineland-Palatinate, accounting for roughly 60% of the permits issued in Germany. In Bavaria, the first permits were issued in April 2024; however, in Saarland, no permits have been issued.
Germany’s Pilot Projects
Under Germany’s two-pillar approach to cannabis legalisation, Pillar One legalised personal use and possession, home cultivation and the establishment of cannabis cultivation associations. However, Pillar Two would establish the commercial distribution of adult-use cannabis through regional pilot projects.
To date, there has been no further legislation regarding Pillar Two from the Ministry of Health. Nevertheless, as the CanG allows for scientific research projects on adult-use cannabis under the Consumer Cannabis Science Competence Ordinance (KCanWV), there has been an initiative to start projects under this route, with several German cities and universities showing interest.
As of March 2025, according to the German Cannabis Business Association (BvCW), 28 districts and municipalities in 10 federal states are pursuing, or are interested in, conducting scientific research projects regarding the commercial supply of adult-use cannabis.
Under the KCanWV, the Federal Office for Agriculture and Food (BLE) is responsible for implementing regulations, issuing permits, and monitoring these projects. According to Krautinvest, the BLE has received 26 applications.
However, as the newly elected ruling conservative party in Germany, CDU, alongside the newly elected Minister of Agriculture, Food and Home Affairs in charge of the BLE, Alois Rainer from the Christian Social Union in Bavaria, holds an anti-legalisation stance, there are doubts that scientific research projects will come to fruition.
“}]] We have delved into some of the key data and insights set to be integrated into the new site, providing a taste of what readers can expect. For further exclusive analysis into the European cannabis market, pre-orders for data packages are available now. Read More
