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They present an important evidence base for MS's policy decisions and actions in the fields of alcohol prevention, treatment and harm reduction.Lorem ipsum dolor ...

Basic Facts


PAKKA – The Local Alcohol, Tobacco and Gambling Policy Model (Paikallinen alkoholi-, tupakka- ja rahapelipolitiikka -malli)


The Local Alcohol, Tobacco and Gambling Policy Pakka is a model for community action, tailored to the Finnish context and aimed at preventing harm from substance use, smoking and gambling through local cooperation. The focus is on the availability of alcohol, tobacco and slot machines. Activities to reduce availability are focussed on situations where under-18s have access to alcohol, tobacco or slot machines and where alcoholic beverages are being sold or served to intoxicated people or minors. The Pakka model brings together key actors in the community - public authorities, economic operators, young people, parents, and the media - to pool their expertise to reduce harm in the community. The development of Pakka model started as a project focussed on local alcohol policy in 2004 in pilot communities with support from local actors, the national Alcohol Action Plan and substance use prevention experts.


  • National/regional/local government

The evaluation study received support from the government alcohol retail monopoly Alko Inc. Support has also been received from national funds for the development of health and social services (Programme Kaste).


  • National
  • Regional
  • Local


To reduce underage (<18 years) access to alcohol, tobacco and slot machines as well as to reduce serving of alcoholic beverages to intoxicated people and to enhance enforcement of legislation related to these.


Stakeholder Involvement

  • Target group(s)
  • Intermediate target group
  • Economic operator
  • Government
  • Researchers
  • Local and regional media

Logic Model

Scientific model: Warpenius K & al. Peliin ei puututa: Alkoholin, tupakan ja rahapeliautomaattien ikärajavalvontaa testanneet ostokokeet vähittäisliikkeissä. [Enforcing age limits on purchases of alcohol and tobacco and the use of slot machines: test purchases in retail outlets.] Yhteiskuntapolitiikka 77 (4): 375-385, 2012.

Past experience: Holmila M & al. Paikallinen alkoholipolitiikka: Pakka-hankkeen loppuraportti. [Local Alcohol Policy: Final report of the PAKKA Project]. National Institute for Health and Welfare, Report 5/2009. 

Elements Of Plan

  • Literature review and/or formative research
  • Needs assessment
  • Detailed plan of action
  • Financial plan
  • Human resource management plan
  • Time schedule
  • Partners' agreement
  • Communication plan
  • Evaluation plan


Time Frame

  • Continuous

Target Group

  • General Population
  • Children
  • Adolescents
  • Young adults

Communication Channel

  • Radio
  • Newspaper/magazines
  • Brochures/leaflets/items
  • Website
  • E-mail
  • Meetings/conferences with experts/colleagues
  • Direct communication
  • Scientific publications
  • The Innokylä web platform for exchange and networking

Core Activities

Wide range of activities at the local level, for example, local work groups to address supply, mystery shopping, trainings to retailers and restaurant personnel, awareness campaigns, school activities, etc. At national level: network of Pakka developers (coordinators), handbooks and other materials and a dedicated web site.

Supportive activities

  • Consultancy
  • Supervision
  • Training
  • Team meetings
  • Helpdesk
  • Dedicated web site and handbook





  • Process
  • Impact
  • Outcome


The Pakka Project substantially enhanced the enforcement of the Alcohol Act: reduction of harms, fostering responsible serving and sale of alcohol, development of economic operators' own control measures. The structure and professional approach to substance use prevention were enhanced.

Follow Up

Dissemination of the PAKKA model for community action is a priority in substance use prevention at national level. The aim is that the model is being implemented in half of the municipalities in Finland by 2020.

Additional Information


Contact person: Jaana Markkula, Development Manager

Organization: National Institute of Health and Welfare (THL)

Address: Mannerheimintie 168b, 00271 Helsinki Finland/ P.O. Box 30, FI-00271 Helsinki

Country: Finland

Telephone number: +358 29 5248 802

E-mail address:

Additional remarks

Last change: 16. 08. 2016 - 13:20, created: 12. 08. 2016
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