Cannabis fines: the Cour des Comptes delivers a harsh verdict on Macron's flagship measure

Presented as a «modern and effective» solution», the system of fixed fines for minor offenses (AFD) is currently facing significant institutional backlash. In a report published on April 15, the Court of Auditors  concludes that this measure has only «limited» effectiveness and suffers from profound structural weaknesses, particularly with regard to enforcement and fairness.

These findings directly call into question one of the government’s main tools in the fight against drug users, including that of Cannabis. Introduced in 2016 and expanded to include drug users in September 2020 led by LREM Representative Eric Poulliat, the AFD system has been strongly supported by Emmanuel Macron’s political camp, which played a central role in developing this approach aimed at penalizing consumers with swift fines.

A policy designed to «hit people where it hurts»—in their wallets»

The principle behind the AFD is simple: police officers and gendarmes can issue a fine for a minor offense on the spot using a mobile device. The person is penalized immediately, without being taken into custody, and the case bypasses traditional judicial procedures. In theory, this was intended to reduce court backlogs and enable a faster response from the criminal justice system.

This policy has become the cornerstone of the government’s strategy to «hold drug users accountable.» Emmanuel Macron personally reaffirmed this approach during a visit to Marseille on December 16, defending the idea of imposing financial penalties on users and announcing that the’The fine would be doubled to 500 euros.

The message was clear: drug use—whether it involved joints, crack, or cocaine—would be treated as a direct target for law enforcement.

A system that produces numbers, not results

The Court of Auditors, however, paints a very different picture. According to its report, the AFD system has failed to «achieve its objectives […] in terms of simplifying and improving the effectiveness of the criminal justice response.».

The scale of the deployment was massive. In 2024 alone, nearly 500,000 AFD were issued, compared with just 57,300 in 2019. These fines now amount to approximately 10% of all recorded offenses in France.

However, the Court warns against the misleading nature of these figures, which, in its view, result in statistics that flatter the Ministry of the Interior rather than reflecting actual effectiveness on the ground. The institution suggests that this tool is sometimes used to demonstrate a police presence rather than to improve judicial outcomes.

A Failure in Debt Collection: 1.1 Billion Euros Still Unpaid

Perhaps the most striking criticism concerns implementation. The Court of Auditors notes that the payment rate is extremely low, reaching only 24% according to an estimate.

As of December 31, 1.1 billion euros remained to be collected from fines imposed since 2018. Between 2020 and 2025, the government collected only 137.5 million euros on AFDs not related to traffic.

This raises a key question: if the Most fines go unpaid, the deterrent effect is limited. The Court describes the enforcement rate as ’insufficient,« suggesting that the system may function more as a symbolic punishment than as a genuine tool for reducing consumption.

The Court also highlights a growing number of irregularities. Audits of AFDs declined sharply between 2021 and 2024, while the number of irregularities detected rose from 0.6% to 8.6%.

Disputes have skyrocketed, particularly regarding fines for drug use. Visit AFD disputes Drug-related offenses increased 49-fold between 2020 and 2024. Many offenders claimed they were using legal CBD products rather than illegal cannabis.

To avoid any legal uncertainty, police authorities reportedly instructed officers to request proof of purchase. However, the Court points out a major legal loophole: there is no law requiring individuals to be in possession of a receipt for CBD.

A tool criticized for being unfair and arbitrary

The Court's criticism echoes earlier warnings. In May 2023, the Ombudsman had recommended the elimination of fixed fines for minor offenses, citing «the risk of arbitrariness and unequal treatment, which is contrary to the principle of equality before the law.».

Another major problem is that the AFDs impose the same fine regardless of the offender’s income or circumstances. The Court argues that this «blurs the clarity of the hierarchy of penalties,» creating confusion between a simple infraction and a misdemeanor.

Despite these findings, the government appears determined to continue expanding the system. The Ministry of the Interior is already considering new fines for illegal street racing or participation in illegal raves.

The Court of Auditors, however, is calling for a «comprehensive review» of the AFD system, including simplified payment mechanisms and strengthened interministerial oversight.

With regard to cannabis-related fines, the report reaches a troubling conclusion: after years of political support from Macron’s majority, the flagship «rapid sanction» strategy may well generate more red tape, litigation, and unpaid debts than it has an impact on drug use.