An Overview of Rural Enforcement An Overview of Rural Enforcement Initiatives Addressing Underage Initiatives Addressing Underage

Alcohol ProblemsAlcohol Problems

NABCA Administrator’s ConferenceNABCA Administrator’s Conference

Philadelphia, PAPhiladelphia, PA

20072007

Aidan J. MooreAidan J. Moore

Program DirectorProgram Director

Pacific Institute for Research and Pacific Institute for Research and EvaluationEvaluation

Costs of Underage Drinking in the Costs of Underage Drinking in the United States 2005 United States 2005

Youth Violence

Youth Traffic Crashes

High Risk Sex, Ages14-20Youth PropertyCrimesYouth Injury

Poisonings

FAS

Youth AlcoholTreatment

Total $60.3 Billion Dollars Total $60.3 Billion Dollars

(1.6 Billion Dollar Reduction from 2001)(1.6 Billion Dollar Reduction from 2001)

Source: Source: Pacific Institute for Research and Evaluation (PIRE), July 2007Pacific Institute for Research and Evaluation (PIRE), July 2007

Slightly more than half of Americans Slightly more than half of Americans aged 12 or older reported being current aged 12 or older reported being current drinkers of alcohol in the 2006 survey drinkers of alcohol in the 2006 survey (50.9 percent). This translates to an (50.9 percent). This translates to an estimated 125 million people, which is estimated 125 million people, which is similar to the 2005 estimate of 126 similar to the 2005 estimate of 126 million people (51.8 percent).million people (51.8 percent).

Source:Source: Results from the 2006 National Survey on Drug Use and Health:Results from the 2006 National Survey on Drug Use and Health:National Findings, SAMHSA Office of Applied StudiesNational Findings, SAMHSA Office of Applied Studies

A 2006 National Survey on A 2006 National Survey on Drug Use and Health Among Drug Use and Health Among

Age 20 and YoungerAge 20 and Younger

Source: Department of Health and Human Services, SAMHSA, Office Source: Department of Health and Human Services, SAMHSA, Office of Applied Studies 2006of Applied Studies 2006

Alcohol in Rural AreasAlcohol in Rural Areas

Alcohol is of particular concern in rural Alcohol is of particular concern in rural areas. areas.

Each year more people are arrested for Each year more people are arrested for driving under the influence (DUI) than for driving under the influence (DUI) than for any other single offense, and DUI is more any other single offense, and DUI is more common in rural areas.common in rural areas.

One way to compare rural and urban areas is One way to compare rural and urban areas is to use self-report surveys. One survey found to use self-report surveys. One survey found that rural youths began using both legal and that rural youths began using both legal and illegal drugs at a younger age, but a higher illegal drugs at a younger age, but a higher percentage of urban youths were users.percentage of urban youths were users.Source: National Institute of Justice, Research in Source: National Institute of Justice, Research in Action, Action, Rural Crime and Rural Policing Rural Crime and Rural Policing

Big PictureBig Picture Rural communities are faced with unique Rural communities are faced with unique

challenges and opportunities when confronting challenges and opportunities when confronting underage drinking and other drug related underage drinking and other drug related problems. problems.

Data indicates that social availability of alcohol Data indicates that social availability of alcohol and inadequate enforcement at retail alcohol and inadequate enforcement at retail alcohol outlets creates an environment ripe for high-outlets creates an environment ripe for high-risk teen drinking. risk teen drinking.

Underage drinking can be especially prevalent Underage drinking can be especially prevalent in rural communities given the lack activities in rural communities given the lack activities for teenagers, as well as limited funding and for teenagers, as well as limited funding and services for alcohol and other drug prevention services for alcohol and other drug prevention programming.programming.

Rural v. UrbanRural v. Urban While the terms “rural” and “urban” are used While the terms “rural” and “urban” are used

frequently in everyday language, there are no frequently in everyday language, there are no precise meanings of these terms upon which precise meanings of these terms upon which everyone can agree.everyone can agree.

Geography and the availability of resources Geography and the availability of resources are primary characteristics that distinguish are primary characteristics that distinguish rural law enforcement efforts from those in rural law enforcement efforts from those in urban areas. urban areas.

Rural and urban policing share a variety of Rural and urban policing share a variety of concerns, there are also problems that are concerns, there are also problems that are either unique to the rural setting or are made either unique to the rural setting or are made more complicated by the rural environmentmore complicated by the rural environment

The Isolation FactorThe Isolation Factor The jurisdiction’s The jurisdiction’s

square mileage is often square mileage is often a number containing 4 a number containing 4 digits.digits.

It might take a long It might take a long time for law time for law enforcement to get to enforcement to get to the scene.the scene.

Road quality may be Road quality may be poor poor

Youth must travel Youth must travel greater distances to get greater distances to get around. In a rural around. In a rural setting.setting.

There is a greater There is a greater distance from hospitals distance from hospitals or emergency care or emergency care facilities resulting in a facilities resulting in a high number of deaths high number of deaths from alcohol-related from alcohol-related crashes and a lack of crashes and a lack of timely medical care.timely medical care.

Drivers under 21 Drivers under 21 involved in fatal crashes involved in fatal crashes on rural roads are 18.4% on rural roads are 18.4% more likely to be under more likely to be under the influence of alcohol the influence of alcohol than drivers under 21 on than drivers under 21 on non-rural roads.*non-rural roads.** 1995 Youth fatal crash and alcohol facts

(DOT HS 808 525). Washington, D.C.: US Departmentof Transportation, NHTSA. National Center for Statisticsand Analysis, Fatal Accident Reporting System.

Who are Rural Police Who are Rural Police Agencies?Agencies?

The stereotypical rural police agency is a small The stereotypical rural police agency is a small sheriff’s office similar to a fictional television sheriff’s office similar to a fictional television program.program.

This stereotype ignores other agencies involved This stereotype ignores other agencies involved in rural policing, such as State police, rural in rural policing, such as State police, rural municipal departments, State-level municipal departments, State-level conservation departments, Immigration and conservation departments, Immigration and Customs Enforcement (ICE), park rangers, the Customs Enforcement (ICE), park rangers, the railroad police, or tribal police who operate on railroad police, or tribal police who operate on Indian reservations.Indian reservations.

All of these agencies play a part in a All of these agencies play a part in a comprehensive law enforcement approach to comprehensive law enforcement approach to rural underage alcohol problemsrural underage alcohol problems

Rural Impediments Rural Impediments Collaboration between law enforcement agenciesCollaboration between law enforcement agencies Getting broad representation from different Getting broad representation from different

sectors of the communitysectors of the community Lack of training for retailers and their employeesLack of training for retailers and their employees Media – Is the message getting through?Media – Is the message getting through? Lack of data to support hypothesizes or Lack of data to support hypothesizes or

conclusionsconclusions Inconsistent approaches by state agencies, local Inconsistent approaches by state agencies, local

police and the judiciary contribute to the police and the judiciary contribute to the challengeschallenges

Apathy or anger by the public based upon their Apathy or anger by the public based upon their perception that nothing is being done.perception that nothing is being done.

Lack of alternative activities for youth. (????)Lack of alternative activities for youth. (????)

What About Data?What About Data? Where Can I Get Rural Data?Where Can I Get Rural Data?

AOD use and access surveys administered to all AOD use and access surveys administered to all students at only rural junior and senior high schoolsstudents at only rural junior and senior high schools

Risk assessments at local alcohol outletsRisk assessments at local alcohol outlets Crash data, FARS, hospital discharge data by zip codeCrash data, FARS, hospital discharge data by zip code

Data Can Assist in Community MobilizationData Can Assist in Community Mobilization Motivational call-to-action for community membersMotivational call-to-action for community members

Data Can Assist in Problem IdentificationData Can Assist in Problem Identification To identify underage drinking and youth access to To identify underage drinking and youth access to

alcohol as a priority to law enforcementalcohol as a priority to law enforcement Data is Important to Garner Media CoverageData is Important to Garner Media Coverage

Data presented to media helps stimulate coverage to Data presented to media helps stimulate coverage to the communitythe community

Federal Initiative - EUDLFederal Initiative - EUDL Enforcing Underage Drinking Law ProgramEnforcing Underage Drinking Law Program State Block Grants ($360,000 per state and State Block Grants ($360,000 per state and

D.C.)D.C.) Managed by OJJDP’s State Relations Unit (SRAD)Managed by OJJDP’s State Relations Unit (SRAD)

Discretionary Funds ($6,640,000)Discretionary Funds ($6,640,000) Managed by OJJDP’s Demonstration Programs Managed by OJJDP’s Demonstration Programs

UnitUnit Discretionary Grants Discretionary Grants Evaluation (Wake Forest University and NIAAA)Evaluation (Wake Forest University and NIAAA)

Training and Technical AssistanceTraining and Technical Assistance Pacific Institute for Research and Evaluation - Pacific Institute for Research and Evaluation -

PIREPIRE

Are Rural Problems Are Rural Problems any Different?any Different?

The EUDL Rural Communities Initiative The EUDL Rural Communities Initiative (RCI) funded implementation of EUDL (RCI) funded implementation of EUDL programs in rural settings.programs in rural settings.

Purpose: To promote understanding of Purpose: To promote understanding of issues related to underage drinking in issues related to underage drinking in rural communities.rural communities.

OJJDP is partnering with the National OJJDP is partnering with the National Institute on Alcohol Abuse and Institute on Alcohol Abuse and Alcoholism, which will conduct process Alcoholism, which will conduct process and outcome evaluations of this initiative. and outcome evaluations of this initiative.

The EUDL RCI StatesThe EUDL RCI States

WashingtonWashington OregonOregon New MexicoNew Mexico NevadaNevada California (Example)California (Example) Illinois (Example)Illinois (Example) PennsylvaniaPennsylvania

Use of Logic Use of Logic Model/Planning ToolModel/Planning Tool

A graphic representation or map of a A graphic representation or map of a phenomenon; often represents a theory of the phenomenon; often represents a theory of the problem and/or a theory of action to address it.problem and/or a theory of action to address it.

A Logic Model for substance abuse prevention A Logic Model for substance abuse prevention maps a problem in terms of three components:maps a problem in terms of three components: A clear definition of problem(sA clear definition of problem(s) to be addressed ) to be addressed

(consequences and behaviors)(consequences and behaviors) Intervening variablesIntervening variables which have scientific evidence which have scientific evidence

of contributing to the problem, and of contributing to the problem, and Prevention strategies (programs, policies, Prevention strategies (programs, policies,

practices)practices) with evidence of effectiveness to impact with evidence of effectiveness to impact one or more intervening variable and/or the one or more intervening variable and/or the targeted problem.targeted problem.

Alcohol-related crash fatalities

Alcohol Poisoning

Violence/Crime

School Problems

Teen Pregnancy

Low or discount pricing of alcohol

Easy Retail Access to Alcohol for youth

Easy Social Access to Alcohol (parties, peers,

family)

Media Advocacy to Increase Community

Concern about Underage Drinking

Example: Logic Model for Reducing Example: Logic Model for Reducing Underage DrinkingUnderage Drinking

Restrictions on alcohol advertising in youth

markets

Social Norms accepting and/or encouraging youth drinking (peer, family, community)

Promotion of alcohol use (advertising, movies, music)

Low enforcement of alcohol laws

Social Event Monitoring and Enforcement

Bans on alcohol price promotion/happy hours

Underage drinking

Enforce underage alcohol laws

(compliance checks, sobriety checkpoints)

Causal Factors

Strategies(Examples)

Substance-Related

Consequences

SubstanceUse

Educate retailers to check ID and enforce underage sales law

Source: Dr. Johanna Birckmayer Source: Dr. Johanna Birckmayer PIREPIRE

Specifically Targeted Specifically Targeted Strategies -1Strategies -1

Reducing Physical AvailabilityReducing Physical Availability Creation of alcohol, tobacco and other drug-free Creation of alcohol, tobacco and other drug-free

zones near schools, parks, and other areas where zones near schools, parks, and other areas where youth congregateyouth congregate

Restrictions on the number, type, and location of Restrictions on the number, type, and location of alcohol outlets within a certain proximity to schoolsalcohol outlets within a certain proximity to schools

Closing of problem alcohol outletsClosing of problem alcohol outlets Prohibitions on alcohol sales and use at community Prohibitions on alcohol sales and use at community

and family-oriented eventsand family-oriented events

Restrictions on Advertising and Restrictions on Advertising and Promotion Within a Certain Promotion Within a Certain Proximity to SchoolsProximity to Schools

Specifically Targeted Specifically Targeted Strategies -2Strategies -2

Enforcement Aimed at Limiting Enforcement Aimed at Limiting Alcohol AccessAlcohol Access

Retail compliance checksRetail compliance checks ““Shoulder Tap” enforcement (aimed at Shoulder Tap” enforcement (aimed at

third party providers)third party providers) ““Party Patrol” enforcementParty Patrol” enforcement

Impaired Driving EnforcementImpaired Driving Enforcement

Specifically Targeted Specifically Targeted Strategies -3Strategies -3

InterventionsInterventions Encourage health care providers to Encourage health care providers to

conduct brief intervention and conduct brief intervention and screening practices with all patients screening practices with all patients who are under the age of 21.who are under the age of 21.

EducationEducation prosecutors and judges in order to prosecutors and judges in order to

enhance their ability to recognize the enhance their ability to recognize the full consequences and costs of full consequences and costs of underage drinking. underage drinking.

IllinoisIllinoisExample - RCI Work PlanExample - RCI Work Plan

Illinois Programmatic Illinois Programmatic GoalsGoals

The Provider agrees to deliver services that address the following goals:The Provider agrees to deliver services that address the following goals:

A A 10% reduction10% reduction in use of alcohol during the previous month among in use of alcohol during the previous month among youth ages 14 - 20. youth ages 14 - 20.

A A 10 % reduction10 % reduction in attempts to purchase alcohol during the previous in attempts to purchase alcohol during the previous month among youth ages 14 - 20. month among youth ages 14 - 20.

A A 10% reduction10% reduction in the belief alcohol is "easy" or "somewhat easy" to in the belief alcohol is "easy" or "somewhat easy" to access month 14 - 20 years old. access month 14 - 20 years old.

Conduct compliance checks in Conduct compliance checks in 100%100% of all on and off premise alcohol of all on and off premise alcohol outlets within each targeted community. outlets within each targeted community.

An An increase increase in the percentage of community law enforcement personnel in the percentage of community law enforcement personnel who believe local penalties associated with underage alcohol law who believe local penalties associated with underage alcohol law violations are appropriate and effective. violations are appropriate and effective.

An An increaseincrease in the percentage of parents who believe it is "wrong" or in the percentage of parents who believe it is "wrong" or "very wrong" to supply alcohol to underage youth (who are not their "very wrong" to supply alcohol to underage youth (who are not their children). children).

A A 10% increase10% increase in adults identified and cited for providing alcohol to in adults identified and cited for providing alcohol to underage youth. underage youth.

An increase in the percentage of judges who believe local penalties An increase in the percentage of judges who believe local penalties associated with underage alcohol laws are appropriate and effective. associated with underage alcohol laws are appropriate and effective. 

Illinois Program Illinois Program ComponentsComponents

Compliance checks conducted with on and off premise liquor license Compliance checks conducted with on and off premise liquor license holdersholders

Merchant EducationMerchant Education Strategies to reduce social availability of alcohol to youthStrategies to reduce social availability of alcohol to youth Review existing local policy related to underage drinkingReview existing local policy related to underage drinking Develop plan and provide technical assistance for the adoption of local Develop plan and provide technical assistance for the adoption of local

policies or increased enforcement of existing policiespolicies or increased enforcement of existing policies Strategies to increase Driving While Intoxicated (DWI) enforcement with a Strategies to increase Driving While Intoxicated (DWI) enforcement with a

focus on youthfocus on youth Environmental strategies to reduce alcohol consumption on or near school Environmental strategies to reduce alcohol consumption on or near school

sitessites Strategies to improve cross-disciplinary data collection policies and procedures for Strategies to improve cross-disciplinary data collection policies and procedures for

ongoing assessment of underage drinking issues ongoing assessment of underage drinking issues Assess and improve judicial responses to underage drinking offenses Assess and improve judicial responses to underage drinking offenses Assess and improve healthcare responses to underage drinking issues Assess and improve healthcare responses to underage drinking issues Educate the community, including parents, about local underage drinking issues Educate the community, including parents, about local underage drinking issues Seek and develop innovative strategies to affect positive change in enforcing Seek and develop innovative strategies to affect positive change in enforcing

underage drinking laws and reducing underage drinking behavior underage drinking laws and reducing underage drinking behavior Strategically utilize media to enhance local efforts to reduce underage Strategically utilize media to enhance local efforts to reduce underage

drinking drinking (i.e. social marketing, media advocacy)(i.e. social marketing, media advocacy)

Engage youth in the planning and implementation of the above program Engage youth in the planning and implementation of the above program componentscomponents

Program components that are italicized are required Program components that are italicized are required by the grantorby the grantor

California’sCalifornia’s Rural Underage Alcohol Problem Rural Underage Alcohol Problem

Prevention:Prevention:A Demonstration ProjectA Demonstration Project

Combating underage drinking in San Diego’s rural Combating underage drinking in San Diego’s rural east county communities through a public health and east county communities through a public health and

safety approach of enhanced community safety approach of enhanced community collaboration, high-visibility law enforcement and collaboration, high-visibility law enforcement and

increased public informationincreased public information

Funded by OJJDPFunded by OJJDP

Case Study - RUAPPCase Study - RUAPP The Rural Underage Alcohol Problem The Rural Underage Alcohol Problem

Prevention Project (RUAPP) was a cross Prevention Project (RUAPP) was a cross disciplinary, multiple-intervention disciplinary, multiple-intervention demonstration project targeting rural East demonstration project targeting rural East San Diego County, California. San Diego County, California.

The project was designed to impact underage The project was designed to impact underage drinking through a public health and safety drinking through a public health and safety approach of enhanced community approach of enhanced community collaboration, high-visibility law enforcement collaboration, high-visibility law enforcement and increased public information.and increased public information.

The RUAPP School Survey and final report The RUAPP School Survey and final report was authored by PIRE.was authored by PIRE.

Programmatic Programmatic ComponentsComponents

The project utilized a public health and The project utilized a public health and safety approach of enhanced community safety approach of enhanced community collaboration, high-visibility law collaboration, high-visibility law enforcement, youth development, and enforcement, youth development, and media advocacy. media advocacy.

Each component was developed to Each component was developed to support the goals of reducing underage support the goals of reducing underage drinking among rural east county teens, drinking among rural east county teens, reducing youth access to alcohol reducing youth access to alcohol (including in Tecate, Mexico) and (including in Tecate, Mexico) and reducing DUI-related crashes. reducing DUI-related crashes.

More Information on the More Information on the RUAPPRUAPP

““RUAPP: One Model for Rural Environment Prevention”RUAPP: One Model for Rural Environment Prevention” http://publicstrategies.org/east_county_rural_home_phttp://publicstrategies.org/east_county_rural_home_p

age.htmage.htm An excellent example of a “how-to-guidebook” An excellent example of a “how-to-guidebook”

for community members. for community members. Included in this Action Kit are:  Included in this Action Kit are: 

examples that can be utilized by community examples that can be utilized by community leaders leaders

a step-by-step outline for implementing a step-by-step outline for implementing environmental prevention in rural communities environmental prevention in rural communities

and a PowerPoint slide show with presenter notes.and a PowerPoint slide show with presenter notes.

Comprehensive Comprehensive Rural StrategyRural Strategy

Local Merchants

Judicial Judicial InvolvementInvolvement

Medical / Medical / Health CareHealth Care

Youth Youth Parents Parents SchoolsSchools

State Alcohol State Alcohol RegulatorsRegulators

MediaMedia

LE LE CollaborationCollaboration

Retail Retail LicenseesLicensees

InformationInformation

Aidan J. MooreAidan J. Moore

Underage Drinking Enforcement Training Center at PIREUnderage Drinking Enforcement Training Center at PIRE11720 Beltsville Drive, Suite 90011720 Beltsville Drive, Suite 900

Calverton, MD 20705-3102Calverton, MD 20705-3102603-369-1766603-369-1766

amoore@pire.orgamoore@pire.org

EUDL Program Manager for the states of:EUDL Program Manager for the states of:

Maine, New Hampshire, Vermont, Connecticut, Rhode Island, Maine, New Hampshire, Vermont, Connecticut, Rhode Island, MassachusettsMassachusetts

Washington, D.C., New Jersey, Pennsylvania, Iowa, Idaho and Washington, D.C., New Jersey, Pennsylvania, Iowa, Idaho and MichiganMichigan