Using Enforcement to Reduce Using Enforcement to Reduce
Underage DrinkingUnderage DrinkingMichael Sparks
Alcohol Policy Specialist
Please answer, in the chat box:
1) What campus are you from?
2) What is your role in prevention?
3) Do you work with a coalition?
Today’s DiscussionToday’s Discussion
Public Health Model of PreventionPublic Health Model of Prevention
Laws as one type of environmental preventionLaws as one type of environmental prevention
Logic Model of Community Influences of Logic Model of Community Influences of Underage DrinkingUnderage Drinking
The role of law enforcement in reducing The role of law enforcement in reducing underage drinkingunderage drinking
How familiar are you with environmental approaches/strategies?
A.A. Very familiar Very familiar
B.B. Kind of familiarKind of familiar
C.C. Not familiarNot familiar
PublicPublic Health ModelHealth Model
Individual
Alcohol Environment
Alcohol-Related Problems
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What works: Reviews of the U.S. and global research literature
CDC Guide to CDC Guide to Community Community Preventive Preventive ServicesServices
Policy Approaches to PreventionPolicy Approaches to Prevention
Formal legal and regulatory mechanisms, rules, and Formal legal and regulatory mechanisms, rules, and procedures for reducing risky behaviors (e.g., the procedures for reducing risky behaviors (e.g., the consumption of alcohol or risky drinking behaviors)consumption of alcohol or risky drinking behaviors)
Implementation and enforcement of these measuresImplementation and enforcement of these measures
Grube & Nygaard, 2001; Toomey & Wagenaar, 1999Grube & Nygaard, 2001; Toomey & Wagenaar, 1999
Targets the social, physical or public environment where Targets the social, physical or public environment where sales/use occurssales/use occurs
Views alcohol and other drug problems not just as individual Views alcohol and other drug problems not just as individual addiction, but rather as the collective reflection of community addiction, but rather as the collective reflection of community norms and practicesnorms and practices
Targets are policy makers and others with authority to change Targets are policy makers and others with authority to change environmentsenvironments
Seeks to change physical, legal, economic & social processes Seeks to change physical, legal, economic & social processes of communitiesof communities
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The Role of Laws in Environmental Prevention
Purpose of Enforcement of Alcohol PoliciesPurpose of Enforcement of Alcohol Policies
Decrease Decrease availabilityavailability of alcohol by increasing of alcohol by increasing economic costs and opportunity costseconomic costs and opportunity costs
DeterDeter drinking, heavy drinking, or drinking-related drinking, heavy drinking, or drinking-related problem behaviorsproblem behaviors
Moderate relations between drinking and problem Moderate relations between drinking and problem outcomes outcomes
Community NormsCommunity Norms LawsLaws
Focus on Enforcement ItselfFocus on Enforcement Itself
Discussion Questions
• What are the conditions in your community that require some sort of enforcement action?
Levels of EnforcementLevels of Enforcement
Levels of Enforcement
Arrest Rate
Source: Wagenaar & Wolfson, 1994
Only 2 of every 1000 occasions ofunderage drinking result in arrest
Action Against Outlets
Only 5 of every 100,000 occasions ofunderage drinking result in actionagainst outlet.
Source: Wagenaar & Wolfson, 1994
Deterrence Theory
Legal threat of punishment encourages or prevents behavior
Punishment must be:– Certain
– Swift
– Severe
General and specific deterrence
Laws are effective when they are perceived as…
Legitimate
Practical
Effective
Proportional to the problem
The Role of Coalitions in Promoting Effective
EnforcementKey Coalition Functions:
Include enforcement agency in all deliberations regarding enforcement of Include enforcement agency in all deliberations regarding enforcement of policy at the start of the policy processpolicy at the start of the policy processBuild strong organizational and personal relationships with key Build strong organizational and personal relationships with key enforcement personnelenforcement personnelIdentify shared self-interest associated with enforcementIdentify shared self-interest associated with enforcementTake responsibility for making the case to the community for the Take responsibility for making the case to the community for the importance of enforcementimportance of enforcementCreatively collaborate to address enforcement’s financial constraints Creatively collaborate to address enforcement’s financial constraints associated with implementationassociated with implementationUse the media to publically support enforcement activities and give credit Use the media to publically support enforcement activities and give credit to enforcement agency when they are carried outto enforcement agency when they are carried out
Can you please type into your chat box examples of enforcement strategies you have
implemented.
A Logic Model for Reducing Underage Drinking….. The Role of Enforcement in Impacting
Alcohol-Related Problems
Retail Availability of Alcohol to
Youth
Visible Enforcement
Underage Drinking Laws
Alcohol-Related Problems(Traffic crashes, Injuries,
School performance. Unsafe sex, Violence, etc.)
Underage Underage DrinkingDrinking
Social Availability of
Alcohol to Youth
Drinking Beliefs
Family, School, and Peer Influence
Drinking Context
Price
Community Norms About
Youth Drinking
Underage Drinking: Basic Research
Alcohol Promotion (Advertising, Point of Sale Promotion , Sponsorship of Community Events)
Evidence: Population Prevention EffectsStrong
Moderate
Low (target group only)
None (no target or population)
Holder/Saltz: Pacific Institute for Research and Evaluation
Underage Drinking: Evidence-based Theory of Change
Underage Drinking
Social availability of alcohol to youth (parties, peers, families)
Retail Sale of alcohol to youth
Underage drinking laws
Community norms about youth drinking
Visible enforcement
Family, School, & Peer Influence
Compliance checks, citations, license loss
Party patrol,Shoulder taps,Beer keg registration
Legal risks for providing alcohol to underage
Retailer Training & rewards
Local alcohol policy
Media advocacyMedia advocacy
Does Enforcement Work?
Minimum Legal Drinking Age
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
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%
Fell et al., Fell et al., Alcohol Clin Exp Res, 2009Alcohol Clin Exp Res, 2009 (cont) (cont)
Conclusions– Minimum legal drinking age of 21 reduced involvement of drinking Minimum legal drinking age of 21 reduced involvement of drinking
drivers under 21 in fatal crashes (16%)drivers under 21 in fatal crashes (16%)
– Zero tolerance laws and Use/Lose laws targeted drivers under 21 Zero tolerance laws and Use/Lose laws targeted drivers under 21 also produced reductionsalso produced reductions
– Laws targeting drinking drivers of all ages also reduced Laws targeting drinking drivers of all ages also reduced involvement of drinking drivers under 21 in fatal crashes (0.08% involvement of drinking drivers under 21 in fatal crashes (0.08% and .10% BAC limits, ALR, seat belt laws)and .10% BAC limits, ALR, seat belt laws)
… but there’s more than just minimum legal drinking age laws!
DUI Enforcement
General vs specific enforcement
Sobriety checkpoints
Saturation patrols
Revocation/suspension
Ignition interlock
Last drink
Check-in programs
Sobriety CheckpointsRestrict traffic flow in a designated area and check drivers Restrict traffic flow in a designated area and check drivers for signs of impairmentfor signs of impairment
Primarily general deterrence – increase perceived riskPrimarily general deterrence – increase perceived risk
High visibility – media coverageHigh visibility – media coverage
Random breath test vs selectiveRandom breath test vs selective
Blitz vs regularBlitz vs regular
Shults, Elder, Sleet et al (2001)Shults, Elder, Sleet et al (2001)– Review studies from 1980-2000Review studies from 1980-2000– 12 RBT studies: average 12 RBT studies: average 18% decrease 18% decrease across outcomesacross outcomes– 11 SBT studies: average 11 SBT studies: average 20% decrease 20% decrease across outcomesacross outcomes
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.”
DUI CheckpointsKey Resource:
http://www.nhtsa.gov/people/injury/alcohol/saturation_patrols/SatPats2002.pdf
Common Challenges1. Generating community/political will
2. Finding overtime dollars for police
3. Ensuring training on checkpoint best-practices
4. Supporting development of materials for dissemination at checkpoint
5. Ensuring visibility -- using media to publicize checkpoints before and after event
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
Have your coalition/group participated in sobriety checkpoints?
YesYes
NoNo
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)
Compliance Check Effectiveness
Growing research literature that compliance checks are effectiveGrowing research literature that compliance checks are effective
CDC conducted a review of studies that examined ‘enhanced enforcement’ CDC conducted a review of studies that examined ‘enhanced enforcement’ – programs that increased or intended to increase frequency of compliance – programs that increased or intended to increase frequency of compliance checkschecks
8 studies from 1994-20058 studies from 1994-2005– all 8 studies examined sales to a decoyall 8 studies examined sales to a decoy
average 42% reductionaverage 42% reduction
– 3 studies examined alcohol consumption3 studies examined alcohol consumption
20% reduction20% reduction
2-7% reduction2-7% reduction
4-6% relative decrease4-6% relative decrease
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.
Compliance Checks Key Resource:
http://www.udetc.org/aps/ComplianceChkDB.htm
Common Challenges1. Generating community/political support
2. Generating police support
3. Finding overtime dollars for police
4. Convincing state Liquor Control to partner
5. Building support for prosecuting violators
Has your coalition/group supported or sponsored compliance check?
YesYes
NoNo
Party Patrols/Social Host Laws
Problem Setting: Residential PartiesProblem Setting: Residential PartiesSon 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
Party Patrols/Social Host Laws
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
Social Host: the Evidence
Viewed as a useful tool by law enforcement officers 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 May result in changes in youth norms related to the riskiness of drinking riskiness of drinking (Long Beach City, NY—unpublished data)
May result in fewer calls for service, either overall, or May result in fewer calls for service, either overall, or related to disturbances. For example, Petaluma, CA had related to disturbances. For example, Petaluma, CA had 9.3% fewer calls for service related to disturbances from 9.3% fewer calls for service related to disturbances from the year prior to passage (2006) to the second year after the year prior to passage (2006) to the second year after passage (2009) passage (2009) (Petaluma, CA—unpublished data).
San Diego County had 8% fewer disturbance calls from the San Diego County had 8% fewer disturbance calls from the year preceding passage (2002) to the year following year preceding passage (2002) to the year following passage (2004) of its SHO passage (2004) of its SHO (UDETC, 2003)
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.
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.
Landlord Lease Agreements
Language that 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 Can effectively reduce the number of rental properties in which loud and unruly parties occur; if, strongly in which loud and unruly parties occur; if, strongly enforced and adopted by all/most landlords.enforced and adopted by all/most landlords.
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.pdf
Common Challenges
1.1. Identifying/adopting policy to enforceIdentifying/adopting policy to enforce
2.2. Generating community/political support for policyGenerating community/political support for policy
3.3. Generating police support to use resourcesGenerating police support to use resources
4.4. Finding overtime dollars for policeFinding overtime dollars for police
5.5. Training law enforcement to use enforcement Training law enforcement to use enforcement techniquestechniques
6.6. Building support for prosecuting violatorsBuilding support for prosecuting violators
Has your coalition/group supported or sponsored party patrols?
YesYes
NoNo
Has your coalition/group supported or sponsored the adoption of a social host ordinance?
YesYes
NoNo
Three Enforcement Strategies Frequently Used By Coalitions
1. Compliance checks for sales to minors at off-premise outlets
2. Party patrols/social host laws
3. DUI checkpoints
Which of these strategies are you most interested in considering?
A. DUI Checkpoints
B. Party Patrols
C. Social Host Laws
D. Compliance Checks
E. Landlord Lease AgreementsWHY?????
Questions About Enforcement Strategies to Reduce
Alcohol Related Problems?
Safer California UniversitiesProject Goal:
To evaluate the efficacy of a“Risk Management” approach to
alcohol problem prevention
NIAAA grant #R01 AA12516with support from CSAP/SAMHSA.
Bob Saltz: Prevention Research CenterPRC
Integrated Intervention Strategies for Off-Campus Parties
Compliance Checks
DUI Check Points
Party Patrols
Pass Social Host “Response Cost” Ordinance
A Social Host Safe Party Campaign
Practical SignificanceAt each campus, 900 fewer students drinking to intoxication at off-campus parties and 600 fewer getting drunk at bars/restaurants during the fall semester at intervention schools relative to controls.
Equivalent to 6,000 fewer incidents of intoxication at off-campus parties and 4,000 fewer incidents at bars & restaurants during the fall semester at Safer intervention schools relative to controls
In addition…
No Displacement
So…What are the Implications for
Your Coalition?
Thank You!
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