More than 1 in 4 adults have been prescribed medications that are potentially addictive or have problems with withdrawal, the report said.
A review of the evidence by Public Health England (PHE) found that half of those receiving prescriptions for five classes of drugs were prescribed for at least one year during the year to March 2018.
Matt Hancock, Secretary of State for Health and Human Services, said the evidence in his report made it clear that we were "in the grip of an opioid crisis."
The analysis showed that in 2017 to 2018, 11.5 million adults in England (26% of the elderly) received and gave one or more prescriptions for any of these medicines.
Medicines included in the review are:
Z-drugs (1.0 million)
Gabapentinoids (1.5 million)
Chronic opioids cancer pain (5.6 million)
Antidepressants (7.3 million)  Prof. Paul Cosford, PHE Medical Director, said: "This report shows that although the vast majority of new prescriptions for these drugs to be for short-term use, within the clinical guidelines, he also emphasizes that a considerable number of these drugs have long been taken.
"It is essential to follow the clinical prescribing guidelines and to have regular patient check-ups to pay attention."
Between 2015 and 2016 and 2017 by 2018, there has been a slight decline in prescribing rates for opioids, benzodiazepines and z-drugs. However, prescriptions for antidepressants increase from 15.8% of the adult population to 16.6% and for gabapentinoids from 2.9% to 3.3%.
The prescription rate is 1.5 times higher for women than men, and the frequency increases with age.  Long-term use
A photo taken of people receiving prescriptions in March 2018 found that about half of patients in each drug class had been receiving the prescription continuously for at least one year.
Between 22% and 32% received prescriptions for at least the previous three years, depending on the class of medicine.
The number of patients known to have received a prescription continuously between April 2015 and March 2018 ranges from 100,000 people receiving z-medication to 930,000 receiving antidepressants.
The review concluded that longer-term prescribing was widespread. It says that in addition to antidepressants that some people should take to preserve the benefit and prevent relapse, the medicines reviewed are licensed and are usually indicated for the short-term treatment of acute conditions.
Benzodiazepines, for example, should not usually be prescribed for longer than 2 to 4 weeks, whereas long-term prescribing of opioids for chronic, non-cancerous pain is not effective for most patients.
Mr Hancock said he was "incredibly concerned" with the findings, which he said showed the impact of the over-the-counter medicine. He said of opioid prescriptions: "Figures show that use has been more or less flat over the last few years, but the level is far, far too high."
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The review found large variations in standardized prescribing rates in clinical commissioning groups.
Prescriptions for opioid pain medications and gabapentinoids are more common in areas of greater deprivation, while the other three classes of medicine have less to do with deprivation.
For all in the five classes of medicine, the proportion of people receiving prescriptions for a year or more is higher in needy areas, the analysis found.
Prof. Helen Stokes-Lampard, chairman of the Royal College of Physicians, said the problems identified in the report cited "the severe lack of alternatives to drug therapies in many conditions – and where effective alternatives, inadequate and unequal access to them throughout, are known and available country ".
dded that GPs need "better access for our patients to community-based alternative therapies" and "higher quality studies of alternative drug therapies in general."
The PHE review also made a number of recommendations. They fall into five broad categories, which are:
Increasing the availability and use of drug prescribing data that can cause addiction or withdrawal
Improve clinical guidance and likelihood of follow-up
information on patients and carers of prescribed medications and other treatments
Improvement of support provided by the healthcare system for patients who are addicted to or discontinued with prescribed medication
and studies for the prevention and treatment of addiction and withdrawal from prescribed medicines.
Karen Tyrell, spokesman for the charity Drug and Alcohol Agency, commented: "This review found that one quarter of us had been prescribed one of these drugs in the last year.
"The scale of this we see here, alarm bells must sound. There should be clearer national guidelines on the use of all prescription pain medicines. "
Dr. Paul Chris, Director of the Center for Guidance at the National Institute of Excellence in Health and Care (NICE), stated:" NICE is developing a guideline for the safe prescription and withdrawal of prescribed medicines.
"The proposed scope of this guideline should complement the review of the evidence. We will consult on the proposed scope by the end of the month. "
NICE also updated its
Medicines and Healthcare Regulatory Agency said it accepts US experience of addiction and addiction to opioids You have taken very seriously and promised to take action "to minimize the risks of addiction and addiction in the UK and prevent the adoption of an American-type opioid epidemic."
He says that the MHRA has set up an expert working group to review the benefits and the risks of opioid units including addiction and addiction