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Using Enforcement to Reduce Underage Drinking

Using Enforcement to Reduce Underage Drinking. Michael Sparks Alcohol Policy Specialist. Michael@sparksInitiatives.com. Question . Please answer, in the chat box: What campus are you from? What is your role in prevention? Do you work with a coalition?. Today’s Discussion.

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Using Enforcement to Reduce Underage Drinking

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  1. Using Enforcement to Reduce Underage Drinking Michael Sparks Alcohol Policy Specialist Michael@sparksInitiatives.com

  2. Question Please answer, in the chat box: • What campus are you from? • What is your role in prevention? • Do you work with a coalition?

  3. Today’s Discussion • Public Health Model of Prevention • Laws as one type of environmental prevention • Logic Model of Community Influences of Underage Drinking • The role of law enforcement in reducing underage drinking

  4. Poll #1 How familiar are you with environmental approaches/strategies? • Very familiar • Kind of familiar • Not familiar

  5. PublicHealth Model Individual Alcohol Environment Alcohol-Related Problems

  6. College Party

  7. What works: Reviews of the U.S. and global research literature CDC Guide to Community Preventive Services

  8. Policy Approaches to Prevention • Formal legal and regulatory mechanisms, rules, and procedures for reducing risky behaviors (e.g., the consumption of alcohol or risky drinking behaviors) • Implementation and enforcement of these measures Grube & Nygaard, 2001; Toomey & Wagenaar, 1999

  9. The Environmental Perspective: • Targets the social, physical or public environment where sales/use occurs • Views alcohol and other drug problems not just as individual addiction, but rather as the collective reflection of community norms and practices • Targets are policy makers and others with authority to change environments • Seeks to change physical, legal, economic & social processes of communities

  10. The Role of Laws in Environmental Prevention

  11. Purpose of Enforcement of Alcohol Policies • Decrease availability of alcohol by increasing economic costs and opportunity costs • Deter drinking, heavy drinking, or drinking-related problem behaviors • Moderate relations between drinking and problem outcomes

  12. Laws Community Norms

  13. Focus on Enforcement Itself

  14. Discussion Questions • What are the conditions in your community that require some sort of enforcement action?

  15. Levels of Enforcement • Institutional • Home • School • Community • Neighborhood • City • County • Society • State • Federal • Parent • Teacher/Administrator • Association/Watch • Police • Sheriff • ABC, DPS • ATF, TTB

  16. Levels of Enforcement • Institutional • Home • School • Community • Neighborhood • City • County • Society • State • Federal • Parent • Teacher/Administrator • Association/Watch • Police • Sheriff • ABC • ATF, TTB

  17. Arrest Rate Only 2 of every 1000 occasions of underage drinking result in arrest Source: Wagenaar & Wolfson, 1994

  18. Action Against Outlets Only 5 of every 100,000 occasions of underage drinking result in action against outlet. Source: Wagenaar & Wolfson, 1994

  19. Deterrence Theory • Legal threat of punishment encourages or prevents behavior • Punishment must be: • Certain • Swift • Severe • General and specific deterrence

  20. Laws are effective when they are perceived as… • Legitimate • Practical • Effective • Proportional to the problem

  21. The Role of Coalitions in Promoting Effective Enforcement Key Coalition Functions: Include enforcement agency in all deliberations regarding enforcement of policy at the start of the policy process Build strong organizational and personal relationships with key enforcement personnel Identify shared self-interest associated with enforcement Take responsibility for making the case to the community for the importance of enforcement Creatively collaborate to address enforcement’s financial constraints associated with implementation Use the media to publically support enforcement activities and give credit to enforcement agency when they are carried out

  22. Question Can you please type into your chat box examples of enforcement strategies you have implemented.

  23. A Logic Model for Reducing Underage Drinking….. The Role of Enforcement in Impacting Alcohol-Related Problems

  24. Underage Drinking: Basic Research Evidence: Population Prevention Effects Strong Moderate Low (target group only) None (no target or population) Visible Enforcement Retail Availability of Alcohol to Youth Alcohol-Related Problems (Traffic crashes, Injuries, School performance. Unsafe sex, Violence, etc.) Price Social Availability of Alcohol to Youth Underage Drinking Laws Underage Drinking Drinking Beliefs Community Norms About Youth Drinking Family, School, and Peer Influence Drinking Context Alcohol Promotion (Advertising, Point of Sale Promotion , Sponsorship of Community Events) Holder/Saltz: Pacific Institute for Research and Evaluation

  25. Underage Drinking: Evidence-based Theory of Change Retailer Training & rewards Compliance checks, citations, license loss Retail Sale of alcohol to youth Underage drinking laws Visible enforcement Social availability of alcohol to youth (parties, peers, families) Underage Drinking Party patrol, Shoulder taps, Beer keg registration Local alcohol policy Family, School, & Peer Influence Community norms about youth drinking Legal risks for providing alcohol to underage Media advocacy

  26. Does Enforcement Work?

  27. Minimum Legal Drinking Age

  28. James Fell et al. The Impact of Underage Drinking Laws on Alcohol-Related Fatal Crashes of Young DriversAlcohol Clin Exp Res, 2009 • Methods • Analysis of the Fatality Analysis Reporting System from 1982-2004 • Examined the effects of the minimum legal drinking age of 21 on the ratio of drinking to non-drinking drivers under age 21 in fatal crashes • Controlled for: • Zero Tolerance Laws • Graduated License Night Restrictions • Use/Lose laws • Administrative License Revocation • .10, .08 BAC per se • Mandatory seat belt laws • Per capita beer consumption • Unemployment rate • Vehicle miles traveled • Frequency of sobriety checkpoints • Number of licensed drivers • Ratio of drinking to non-drinking drivers • Age 26+ in fatal crashes • Ratio of drinking to non-drinking drivers age 26+ in fatal crashes

  29. Fell et al., Alcohol Clin Exp Res, 2009 (cont) • Results • Minimum legal drinking age was independently associated with a 16% decline in the ratio of drinking to non-drinking drivers in fatal crashes under age 21 • Other laws that independently predicted lower involvement of drinking drivers under age 21 in fatal crashes: • Use/Lose laws ↓5% • Zero tolerance laws ↓5% • 0.08% BAC limit ↓ 8% • 0.10% BAC limit ↓ 7% • Administrative license ↓ 5% revocation (ALR) • Seat belt laws ↓ 3%

  30. Fell et al., Alcohol ClinExp Res, 2009 (cont) • Conclusions • Minimum legal drinking age of 21 reduced involvement of drinking drivers under 21 in fatal crashes (16%) • Zero tolerance laws and Use/Lose laws targeted drivers under 21 also produced reductions • Laws targeting drinking drivers of all ages also reduced involvement of drinking drivers under 21 in fatal crashes (0.08% and .10% BAC limits, ALR, seat belt laws)

  31. … but there’s more than just minimum legal drinking age laws!

  32. DUI Enforcement • General vs specific enforcement • Sobriety checkpoints • Saturation patrols • Revocation/suspension • Ignition interlock • Last drink • Check-in programs

  33. Sobriety Checkpoints • Restrict traffic flow in a designated area and check drivers for signs of impairment • Primarily general deterrence – increase perceived risk • High visibility – media coverage • Random breath test vs selective • Blitz vs regular • Shults, Elder, Sleet et al (2001) • Review studies from 1980-2000 • 12 RBT studies: average 18% decrease across outcomes • 11 SBT studies: average 20% decrease across outcomes

  34. Recently updated previous checkpoint review • Added 15 studies from 2000-2012 • 10 studies examined alcohol-involved fatal crashes -> 8.9% decrease • Other 5 studies found decreases in: • % drivers above .08 (28-64%) • alcohol-involved fatalities/VMT (4.6%) • alcohol-involved collisions (19%) • nighttime crashes (22%) • Task Force Finding “The Community Preventive Services Task Force recommends publicized sobriety checkpoint programs based on strong evidence of effectiveness in reducing alcohol-impaired driving.”

  35. DUI CheckpointsKey Resource:http://www.nhtsa.gov/people/injury/alcohol/saturation_patrols/SatPats2002.pdfCommon Challenges Generating community/political will Finding overtime dollars for police Ensuring training on checkpoint best-practices Supporting development of materials for dissemination at checkpoint Ensuring visibility -- using media to publicize checkpoints before and after event

  36. Upstream DUI Enforcement • It is too late once an intoxicated individual gets behind the wheel • It is difficult to identify and apprehend intoxicated drivers • It has been estimated that less than 1/1000 DUI trips results in an arrest (Miller, Spicer, Levy, & Lestina, 1998) • Car crashes are but one of the many negative health consequences associated with intoxication • Focusing exclusively on DUI enforcement may send the message that, as long as someone is not driving, it is OK to get intoxicated

  37. Poll #2 Yes No Have your coalition/group participated in sobriety checkpoints?

  38. Underage Compliance Checks • Sting or Decoy buys • Police hire an underage (<21 years old) individual to attempt to purchase alcohol • If an illegal sale is made, citation issued to either the seller or the establishment • Penalty may vary from warning to a fine to a liquor license suspension/revocation (usually depending on previous citations)

  39. Compliance Check Effectiveness • Growing research literature that compliance checks are effective • CDC conducted a review of studies that examined ‘enhanced enforcement’ – programs that increased or intended to increase frequency of compliance checks • 8 studies from 1994-2005 • all 8 studies examined sales to a decoy • average 42% reduction • 3 studies examined alcohol consumption • 20% reduction • 2-7% reduction • 4-6% relative decrease

  40. Compliance Check Effectiveness Task Force Finding “The Community Preventive Services Task Force recommends enhanced enforcement of laws prohibiting sale of alcohol to minors, on the basis of sufficient evidence of effectiveness in limiting underage alcohol purchases. Further research will be required to assess the degree to which these changes in retailer behavior affect underage drinking.” source: Elder, Lawrence, Janes, et al. (2007). Enhanced enforcement of laws prohibiting sale of alcohol to minors: systematic review of effectiveness for reducing sales and underage drinking. Transportation Research E-Circular 2007;Issue E-C123:181-8.

  41. Compliance ChecksKey Resource:http://www.udetc.org/aps/ComplianceChkDB.htmCommon Challenges Generating community/political support Generating police support Finding overtime dollars for police Convincing state Liquor Control to partner Building support for prosecuting violators

  42. Poll #3 Yes No Has your coalition/group supported or sponsored compliance check?

  43. Party Patrols/Social Host Laws

  44. Party Patrols/Social Host Laws Problem Setting: Residential Parties Son held drunken party for 600 friends after banishing parents to bedroom of their multi-million-dollar mansion By Mail Foreign ServiceUPDATED: 20:55 EST, 14 October 2010

  45. Intent of Social Host Policies • Change community CULTURE and CONDITIONS • Change the FOCUS from underage drinker to provider/enabler • Decrease PROVISION • Decrease furnishing alcohol to an underage person • Change CONTEXT and SETTING • Deter underage drinking parties

  46. Social Host: the Evidence • Viewed as a useful tool by law enforcement officers (Oceanside, CA and Vista, CA—see Evalcorp, 2009a) • May result in changes in youth norms related to the riskiness of drinking (Long Beach City, NY—unpublished data) • May result in fewer calls for service, either overall, or related to disturbances. For example, Petaluma, CA had 9.3% fewer calls for service related to disturbances from the year prior to passage (2006) to the second year after passage (2009) (Petaluma, CA—unpublished data). • San Diego County had 8% fewer disturbance calls from the year preceding passage (2002) to the year following passage (2004) of its SHO (UDETC, 2003)

  47. Party Patrols • Enforcement strategy that targeting community high priority underage drinking party areas. • arranged to both deter parties (through LE visibility) and find and address parties that are going on (through LE action). • Law enforcement reports that party patrols can be effective deterrents if there are existing laws on the books that hold adults or other responsible parties accountable for underage drinking parties in homes.

  48. Party Dispersal • An ongoing party is often difficult for officers to “break it up” with maximum impact on deterring underage parties from happening in the future and preventing teens from fleeing the scene. • Party dispersal training gives officers and departments a strong foundation to systematically address parties and hold underage drinkers and providers responsible.

  49. Landlord Lease Agreements • Languagethat landlords include in leases that prohibit underage parties from occurring. • There are often fines and penalties that escalate to eviction. • Can effectively reduce the number of rental properties in which loud and unruly parties occur; if, strongly enforced and adopted by all/most landlords.

  50. Party Patrols/Social Host Laws Key Resource:http://www.udetc.org/documents/Party_Patrol_Guidebook.pdfhttp://venturacountylimits.org.s94613.gridserver.com/resource_documents/model_sho_fnl_nashville.pdfCommon Challenges Identifying/adopting policy to enforce Generating community/political support for policy Generating police support to use resources Finding overtime dollars for police Training law enforcement to use enforcement techniques Building support for prosecuting violators

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