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UNDERAGE DRINKING

Certified Public Manager® Training Program

2013 CPM Solutions Alabama

August 14, 2013

Underage Drinking in Alabama

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UNDERAGE DRINKING PROJECT TEAM MEMBERS

Kim Dokas Retirement Systems of Alabama

[email protected]

Lakisha Hardy Alabama Department of Insurance

[email protected]

Nakeshia James Alabama Medicaid Agency

[email protected]

Debra Larison Alabama Alcoholic Beverage Control Board

[email protected]

Gwendolyn Reynolds Alabama Department of Youth Services [email protected]

Denise Rodgers

Alabama Department of Human Resources [email protected]

Martha Taylor

Alabama Department of Revenue [email protected]

Alcornelia Terry

Alabama Department of Corrections [email protected]

Judy Thomas

Alabama Medicaid Agency [email protected]

Lawrence Webster

Alabama Department of Youth Services [email protected]

Alesha Womble

Alabama Department of Insurance [email protected]


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ACKNOWLEDGEMENTSThe Underage Drinking Project Team would like to thank the following individuals for assisting in

the research and support of this project:

The Alabama Alcoholic Beverage Control Board for their support and leadership throughout

this project, along with their commitment to reducing underage drinking.

Captain Hal Taylor, Assistant Director of Special Operations for the Alabama Alcoholic

Beverage Control Board for providing guidance and support through this project and allowing

us the opportunity to help further underage drinking prevention awareness.

The supervisors and agency directors of each team member for their support during our

project and for allowing each of us the chance to further our leadership skills.

The AUM Alabama Training Institute staff and instructors for their guidance throughout this

project.

Mental Health and Public Safety for readily providing us access to data and strategies for

preventing adolescents and young adults from early use.

Tracy Webb with Peers Are Staying Straight for coming to speak with our group about the

programs they have to deter underage drinking.

Auburn University and the University of Alabama for guidance and statistical information on

the use of alcohol among college students and programs offered to the students.

Pamela Morton with Mothers Against Drunk Driving for providing us with information and

statistical data that helps to prevent underage drinking.

Michael George with the South Carolina Alcohol Enforcement Team for providing us with

information about programs used towards the prevention of underage drinking in South

Carolina.

Doryan Carlton with the Alabama Department of Finance for providing insight and

information into the Education Trust Fund appropriations and guiding the team on how the

Alabama Alcoholic Beverage Control Board could use these funds towards the prevention of

underage drinking.


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TableofContentsACKNOWLEDGEMENTS .................................................................................................................... 3

PROJECT TASK .................................................................................................................................... 5

OUR APPROACH .................................................................................................................................. 6

INTRODUCTION .................................................................................................................................. 7

Availability ......................................................................................................................................... 8

Frequency and Effects of Alcohol Use ............................................................................................... 9

Locations and Times of Alcohol Use ................................................................................................ 10

Prevention ......................................................................................................................................... 13

UNDERAGE DRINKING STATISTICS ............................................................................................. 14

Georgia .............................................................................................................................................. 17

Indiana............................................................................................................................................... 18

South Carolina .................................................................................................................................. 20

Tennessee .......................................................................................................................................... 22

Alabama ............................................................................................................................................ 23

CURRENT ALABAMA PROGRAMS ................................................................................................ 26

RECOMMENDATIONS ...................................................................................................................... 28

Recommendation One ....................................................................................................................... 28

Recommendation Two ...................................................................................................................... 29

Recommendation Three .................................................................................................................... 29

Recommendation Four ...................................................................................................................... 29

Recommendation Five ...................................................................................................................... 30

CONCLUSION ..................................................................................................................................... 31

REFERENCES ..................................................................................................................................... 32


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PROJECTTASK

This team of Certified Public Manager® participants explored the critical issue of underage

drinking in Alabama. Our Project Team was given the task of analyzing the prevalence of underage

drinking in Alabama. This included researching how Alabama compares nationally, evaluating the

initiatives utilized by the Alabama Alcoholic Beverage Control Board to reduce underage drinking,

and researching what other states are doing to reduce underage drinking. From this analysis and

research, we are recommending strategies that the Alabama ABC Board can consider in deterring

underage drinking.


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OURAPPROACH

We began the project task by meeting with Captain Hal Taylor, Assistant Director of Special

Operations for the Alabama ABC Board Enforcement Division. Captain Taylor gave our team insight

on what the Alabama ABC Board is currently doing to deter underage drinking. Since this is such a

critical issue that can affect any citizen of the state and can have such devastating consequences, the

agency is receptive to any enhancement that can deter underage drinking. Our project team

researched the data for underage drinking in Georgia, Indiana, South Carolina, Tennessee and

Alabama. The research detailed findings of useful strategies that can be utilized to assist in deterring

underage drinking in Alabama. Through much research, detailed within, we have developed five

recommendations that Alabama should consider to educate, prevent and deter underage drinking.

We identified our stakeholders, community programs, statewide programs and examined what

surrounding states are doing to deter underage drinking. We inquired with other Alabama agencies

affected by underage drinking and we analyzed statistical data to determine possible core areas of

concern. Through research and analysis it has been determined that the more effective the outreach,

involvement and awareness, the healthier the outcome. Underage drinking is not just a parent

problem or law enforcement issue - it is everybody’s problem. Deterring underage drinking can save

lives and that life may one day be your own.


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INTRODUCTION

What is alcohol? Alcohol is a drug. It is a colorless liquid that acts as a depressant that can

affect multiple organs in the body, create dependency and lead to health problems. According to the

National Institutes of Health (2010), “drinking alcohol has been part of American culture and its use

by young people has been accepted by many as part of growing up.” Today, despite the institution of

legislation and laws prohibiting people under the age of 21 from consuming alcohol, it remains “a

pervasive and persistent problem with serious health and safety consequences” (National Institutes of

Health, October 2010).

According to several sources such as the National Institutes of Health, the Center on Alcohol

Marketing and Youth and the U.S. Department of Health and Human Services Surgeon General,

alcohol is the most widely abused substance among adolescents and young adults. Alcohol use among

people under the age of 21 raises the risk of addiction later in life. In addition to addiction, beginning

alcohol use at an early age predisposes adolescents and young adults for serious, and sometimes even

life-threatening, illnesses in their adult lives. Most people under the age of 21 who consume alcohol

engage in, “binge drinking.” Binge drinking, as defined by the National Institute on Alcohol Abuse

and Alcoholism, is a pattern of drinking that quickly brings a person’s blood alcohol content (BAC)

to 0.08 percent or above. Ninety percent of the time, this is how underage drinkers ingest alcohol

(Centers for Disease Control and Prevention, 2012). The statistics associated with underage drinking

are alarming. Underage drinking is becoming the social norm and unless the parents, the community

and the adolescents and young adults themselves bind together to deter underage drinking, it can

become an epidemic. According to the Centers for Disease Control and Prevention (2012), a survey

conducted in 2011 (Youth Risk Behavior Survey), found that among high school students:

39% consumed alcohol

22% participated in binge drinking

8% drove after drinking alcohol

24% rode with a driver who had been drinking alcohol

In other surveys, it was noted 25% of adolescents and young adults aged 12 to 20 years drank alcohol

and 16% reported binge drinking (National Survey on Drug Use and Health 2011). In addition, the

Monitoring the Future Survey (2011) noted 33% of 8th graders and 70% of 12th graders had tried

alcohol, and 13% of 8th graders and 40% of 12th graders had consumed alcohol within the past month.


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There are multiple types of alcohol available on the market. The types of alcohol most

available to adolescents and young adults are beer, wine or wine coolers and various forms of liquor

according to the Pride Surveys: 2009-2010 Alabama Statewide Student Survey. Pride Surveys was

created to help local, state and federal governments measure alcohol, tobacco or other drug use

among adolescents in the schools by surveys. “In 1998 a federal law designated Pride Surveys as an

official measurement of adolescent drug use in America” (Pride Surveys, 2010). These surveys help

to measure behavior on issues such as family, discipline, activities and more that are crucial and

affect learning in our adolescents. Additionally, in a 2013 issue of The Globe (Global Alcohol Policy

Alliance), it detailed the top 10 brands of alcohol consumed by people under the age of 21 as shown

in Table 1 below:

Table 1

Rank Brand/Type Reported Use in Previous 30 Days

Among Underage Adolescents

and Young Adults

1. Bud Light 27.9%

2. Smirnoff Malt 17.0%

3. Flavored Alcohol Beverages 14.6%

4. Budweiser 12.7%

5. Smirnoff Vodkas 12.7%

6. Coors Light 11.4%

7. Jack Daniel’s Bourbons 11.3%

8. Corona Extra 10.8%

9. Mike’s 10.4%

10. Captain Morgan Rums &

Absolut Vodkas

10.1%

Availability

Although it is illegal to consume, alcohol remains readily available to adolescents and young

adults under the age of 21. According to a survey conducted by Pride Surveys Report: 2009 - 2010

Alabama Statewide Survey (2010) (See Table 2) an alarming number of students reported the ease of


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obtaining alcohol. Discouraging the use of alcohol at an illegal age is important if there is to be any

change or improvement in the number of adolescents engaging in underage drinking. It is equally

important to involve parents, community leaders, students, schools and other concerned citizens to

discourage the illegal use and distribution of alcohol to those under the legal drinking age of 21. As

concerned citizens, we cannot be dismissive. We are obligated as a State, as a community, as parents

to formally educate adolescents and young adults on the dangers of drinking and encourage them to

make responsible decisions.

Table 2 - Percentage of Adolescents Reporting that it is Fairly Easy or Very Easy to Get Alcohol

Grade 6th 7th 8th 9th 10th 11th 12th

Alcohol 16.1 25.3 36.4 48.3 54.4 60.4 65.7

FrequencyandEffectsofAlcoholUse

Although drinking alcohol is illegal for anyone under the age of 21, beer, wine coolers and

liquor are popular intoxicants for adolescents (Table 3). We should keep in mind that this data is from

274,993 12 to 18-year-old adolescents (Pride Surveys, 2010) in Alabama schools. Not only are they

minors under the law, and therefore violating the law when using alcohol, but they are also young

adolescents who are abusing alcohol at least once a month or more often. This data shows that the

adolescents are using alcohol in younger grades. As the adolescents get older, the data shows us that

the use of alcohol increases by an alarming percentage in the 8th grade. The effects of using alcohol at

such early age’s shows that prevention must begin in middle schools instead of focusing our attention

just on the high schools. The community, parents and organizations must focus their attention on

reaching these adolescents to ensure that these numbers go down instead of increasing.

Table 3 – Percentage of Adolescents 30 day Use of Alcohol Percentage

Type of Alcohol 6th 7th 8th 9th 10th 11th 12th

Any Alcohol 5.0 9.5 16.3 24.0 27.1 30.4 36.4

Beer 3.6 7.0 12.1 18.8 21.6 24.4 29.8

Coolers, Breezers, etc. 3.5 6.5 11.5 17.2 19.1 21.1 25.0

Liquor 2.9 5.9 11.3 18.7 22.0 25.4 31.1


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According to a study conducted by the American Medical Association over a 20 year period, “The

brain goes through dynamic change during adolescence, and alcohol can seriously damage long and

short-term growth processes. Between the ages of 16 and 20, irreversible damage can be done to the

developing brain. In addition, negative effects such as impaired learning and impaired memory can

occur in adolescents who drink only half as much as an adult (American Medical Association). The

effects of underage drinking on the developing brain are real. Not only does underage drinking

subject the body to harsh physical effects, it also damages other organs such as the liver, pancreas and

other organs, but it also links them to more illicit drug use later in age.

Young people under the age of 21 who continue to abuse alcohol are more susceptible than

non-drinkers to the damaging of two key areas of the brain that are undergoing dramatic changes in

adolescence according to the American Medical Association:

“The hippocampus handles many types of memory and learning and suffers from the

worst alcohol-related brain damage in adolescents and young adults. Those who have been

drinking more and for longer had significantly smaller hippocampi (10%).”

“The prefrontal area (behind the forehead) undergoes the most change during

adolescence. Researchers found that adolescent drinking could cause severe changes in this

area and others, which play an important role in forming adult personality and behavior and is

often called the CEO of the brain.”

LocationsandTimesofAlcoholUse

According to the Pride Surveys Report (2010), the charts below (Chart 1 and Chart 2) contain

percentage data for the times of alcohol use as reported by junior and senior high students in

Alabama. It is important to note that past research indicates that “At School” is the least popular

location for use and “During School” is the least popular time of use (Chart 2). “Weekends” tend to

be the most popular time of use for adolescents. “At Home” tends to be the most popular with

adolescents in 8th – 12th grades (Chart 1). This indicates that these adolescents may be getting alcohol

from the parents or from the parent’s liquor cabinet or refrigerators. While “Friend’s House” and

“Other” tends to be the most popular with older adolescents, which could indicate that other parents

may be encouraging drinking among adolescents in their homes without consent of the other parents

(Chart 1). These figures show that adolescents are able to obtain alcohol from numerous resources

whether it is other parents, friends or even in their own home. The age of onset for adolescent

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Table 4 compares Alabama usage and the National usage of alcohol for 6th – 12th grades. According to Pride Survey (2010), Alabama is in line with the National usage and prevention measures needed to be in place to help bring Alabama’s numbers below the National average. “Beer” among 7th – 9th graders is higher in Alabama than National usage. “Coolers, Breezers” usage among 7th and 8th graders is higher or the same as the National usage. “Liquor” usage among 6th – 9th graders is higher in Alabama than among National usage. “Any alcohol” usage among 6th – 8th graders is higher in Alabama than among National usage. This chart shows more preventive measures are necessary to reach out to parents, communities and schools to help deter underage drinking among our adolescents. Among 10th – 12th grades, Alabama is lower than the national average, which indicates that we need to begin a more thorough outreach at a much younger age.

Table 4

6th 7th 8th

9th 10th 11th 12th

Beer

Alabama 11.8 19.8 28.2 36.3 38.6 41.4 45.3

National 11.4 17.5 26.63 35.1 43.3 47.7 53.36

Difference 0.4 2.3 1.9 1.2 -4.7 -6.3 -8.3

Coolers, Breezers, etc.

Alabama 9.5 17.8 26.8 34.9 37.4 40.2 43.1

National 9.8 16.4 26.8 35.7 42.5 47.1 51.1

Difference -0.3 1.4 0 -0.8 -5.1 -6.9 -8.0

Liquor

Alabama 7.7 15.6 26.0 36.7 41.1 45.1 50.0

National 7.6 13.8 23.5 35.9 44.9 51.7 57.6

Difference 0.1 1.8 2.5 0.8 -3.8 -6.6 -7.6

Any Alcohol

Alabama 16.3 27.2 38.2 47.6 50.5 53.6 57.5

National 15.9 24.7 36.5 47.8 55.7 61.5 66.5

Difference 0.4 2.5 1.7 -0.2 -5.2 -7.9 -9.0


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Prevention

The prevention of underage alcohol use and related behaviors is most likely to occur when

parents, teachers, faith leaders, other individuals and community organizations that are part of the

child’s friendship circle:

are well informed of the harmful effects

understand the potential danger

recognize behavioral changes due to alcohol use

understand how alcohol use is encouraged and accepted in the social world of the child.

Another key to successful prevention programming is the direct involvement of adolescents and

young adults in planning and implementing programs.

Community awareness that an alcohol problem exists is important when mobilizing the

various components of a community in a planned systematic process to reduce alcohol and any other

substance used by the adolescents and young adults. Unless the community is convinced that the

problem is serious, real and local, a threat to their children, families and friends, it is unlikely that

meaningful community involvement or support will occur. Community awareness involves informing

as many people as possible of the extent and nature of the adolescent drug problem. Information

collected by a survey of students drug use can be a useful tool in building community awareness

(Pride Surveys, 2010).

Two of the most effective means of conducting community awareness is through electronic

and print media and through presentations to community groups such as parent and school groups,

civic and business organizations, community coalitions and church groups.

In the 2012 Report to Congress on the Prevention and Reduction of Underage Drinking by the

U.S. Department of Health and Human Services, Secretary Kathleen Sebelius helps states and

communities make use of the report’s contents. The Substance Abuse and Mental Health Services

Administration (SAMHSA) has posted reports of each state’s policies, enforcement activities and

prevention programs that address underage drinking.

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A Regional Comparison

We compared Alabama with Georgia, Indiana, South Carolina and Tennessee as to how they

target the seriousness of underage drinking with the adolescents, young adults, communities and

parents. Each of these states has worked diligently with the communities and state agencies to assist

in deterring the underage drinking problem. Table 5 shows each state profile for the underage

drinking for alcohol and binge drinking, and the fatalities attributed to death in each state.

Table 5

Alabama Compared to other States

State profile and Underage Drinking Facts

South Carolina

Population Ages 12-20:

Ages 12-20 PCT Number PCT Number PCT Number PCT Number PCT Number

Past Month Alcohol Use 21.6 128,000 23.6 287,000 23.2 188,000 21.9 119,000 20.9 156,000

Past-Month Binge Alcohol Use 13.0 78,000 14.7 178,000 16.0 130,000 12.8 70,000 14.7 109,000

Ages 12-14Past Month Alcohol Use 5.8 10,000 7.1 25,000 4.0 10,000 4.9 9,000 5.0 12,000






Traffic Fatalities 15 to 20

yyear old Drivers

with BAC > 0.01 18.0 26 15.0 23 18.0 23 34.0 48 21.0 33

Number Number Number Number Number

99 157 101 84 112

5,930 9,436 6,072 5,029 6,668

Tennessee

6,346,105

590,000 1,217,000 814,000 543,000 746,000

Alabama Georgia Indiana

4,625,364

Alcohol Attributable Deaths (Under 21)

Years of Potential Life Lost (Under 21)

4,779,736 9,687,653 6,483,802 State Population

In all 50 states, it is illegal and prohibited to furnish alcohol to minors and there are no

exceptions to the law. Each state has experienced health, social and economic problems that result

from the use of alcohol. The states have not eliminated the problem but each state has been finding

ways to deter the problem by involving the parents, communities, media and state agencies and has


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included the adolescents and young adults to assist with deterring underage drinking. The

collaboration on activities are aimed at limiting access to those under the age of 21, which

emphasizes that is against the law for anyone under the age of 21 to purchase, possess or consume

alcohol. This is a vital message that all states agree should be communicated to parents, adolescents,

young adults and communities.

Georgia

Alcohol consumed by adolescents and young adults is a prevalent problem in Georgia. It

kills more adolescents and young adults between the ages of 18 and 25 than all other drugs combined

and is the third leading cause of death in the state. Georgia ranked 39th among 50 states for money

spent for each adolescent and young adult ($1,450) in 2010, associated with underage drinking. That

amounts to approximately $1.4 billion. This figure includes $772 million for adolescent and young

adult violence, $182.4 million for traffic crashes, $139.2 million for high-risk sex, $196.2 million for

property crimes, $46.7 million for injuries, $15.3 million for poisonings and psychoses, $42.6 million

for Fetal Alcohol Syndrome (FAS), and $29 million for alcohol treatment. As can be seen in Table 6

below, adolescent and young adult violence is by far the largest cost that Georgia attributes to

underage drinking and includes homicide, suicide and aggravated assault. The second and third

largest costs are associated with property crimes and traffic crashes respectively.

Some factors, which contribute to underage drinking in Georgia, include easy access, low

prices, high availability and advertising and marketing practices, which appeal to young audiences.

For these reasons and others, alcohol continues to be the most commonly used drug among the

adolescents and young adults of this state and this nation (surpassing tobacco and illicit drugs). To

help combat some of its problems, Georgia has four specific programs, which seek to prevent alcohol

consumption and reduce the prevalence of binge drinking:

1. Leadership to Keep Children Alcohol Free, an organization that is comprised of

Governors’ spouses, Federal agencies and both public and private organizations.

2. The Council on Alcohol and Drugs is an organization that collaborates with local, regional

and state organizations to prevent alcohol abuse by underage adolescents and young adults

in targeted communities throughout the state. They receive funding from Georgia’s

Department of Behavioral Health and Developmental Disabilities (DBHDD) and have

three goals:


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o Reduce the early onset of alcohol use

o Reduce the access to alcohol and binge drinking

o Reduce binge drinking and heavy drinking in adolescents between the ages 9 - 15

3. The Georgia Underage Drinking Prevention Initiative seeks to identify alcohol related

billboards and advertising, which have been placed too close to schools and targets

adolescents and young adults. They also provide business owners and their employees

with the necessary information and resources needed to prevent unauthorized sales to

adolescents and young adults in colleges and high-risk communities by creating

Responsible Sales and Service workshops (RASS).

4. The Governor’s Office for Children and Families (GOCF) awarded almost $87,000 in

grant monies in 2013, to promote a campaign in 10 designated counties. Their goal is to

reduce/prevent underage drinking by providing a Compliance Checks Public Service

Announcement Media Campaign (Pressit, 2013). This campaign will utilize radio

broadcasts to increase awareness to both retailers and the public.

Georgia's "State Profile and Underage Drinking Facts" report submitted to congress in 2010

on the prevention and reduction of underage drinking indicated that 287,000 out of 1.2 million

underage adolescents and young adults between the ages of 12 and 20 had used alcohol during the

past month. Of these users, 8.7% were between the ages of 12 and 14, 3.35% were between the ages

of 15 and 17, and 59.93% were between 18 and 20. Please see Table 5.

In addition to the alarming statistics, the report also indicates that 16.3% (711) of 4,349

businesses did not pass compliance tests conducted by state agencies between July 2009, and June

2010. Of the 711 that failed, 708 received an average fine of $1,023.02, 115 received suspensions

averaging 3.2 days, while no liquor licenses were revoked.

Indiana

The State of Indiana recognizes that it does have a problem with underage drinking. It also

realizes there are different behavioral and health issues depending on gender. Based on this

understanding, Indiana believes informational public health policy and prevention programs targeting

the different needs of adolescent females and males can be strategically implemented to deter

underage drinking (U.S. Department of Health and Human Services, 2009). The facts and statistics

below, gathered from the U.S. Department of Health and Human Services and other resources,


19

substantiate this reality:

Annual sales of alcohol per underage customer averaged $1,793

Underage customers consumed an average of 4.6 drinks per day, whereas legal customers

drank 1.5 drinks per day (Pacific Institute for Research and Evaluation – PIRE – 2011)

13.6 % (74,000) of adolescents and young adults used alcohol within the last thirty days

8.7% (48,000) of adolescents and young adults engaged in binge drinking

Rates of alcohol abuse were similar between males and females

4.2% (12,000) males and 4.1% (11,000) females did not receive substance abuse treatment

even though they needed it

Indiana does have a variety of adolescent-led, adult supported programs to deter underage

drinking. For example, the Point of Youth (POY) Program, operated by the Indiana Criminal Justice

Institute (ICJI), engages adolescents and young adults throughout the state to develop a substance

abuse policy and program to reduce the use of alcohol amongst their peers. A statewide underage

drinking program, “Serve Youth, Serve Time,” was the result of POY addressing the sale of alcohol

to adolescents and young adults under the age of 21. This program has been embraced by the state,

along with other underage drinking prevention programs, such as Students Against Drunk Driving

(SADD) and the Pride Surveys Report.

The Indiana Coalition to Reduce Underage Drinking (ICRUD) – a subsidiary of Mental

Health America of Indiana (MHAI) – receives funding from federal and state grants as well as private

donations. The Coalition conducted three statewide initiatives to raise awareness and reduce alcohol

use by adolescents and young adults. The three initiatives are:

1. The Orange Ribbon Campaign – a prevention program designed to reduce underage

drinking by changing public policy. This campaign includes an advocacy guide; a media

outreach campaign, and a product catalog featuring the orange ribbon, buttons, t-shirts,

and sweatshirts.

2. Passage of the Keg Tracking Law of 2002 – this law holds adults responsible for a

purchased keg. Each keg contains a tamper resistant sticker with purchaser contact

information. For example, if a keg is confiscated at a party with underage drinkers, the

police can easily track the purchaser. The purchaser can have a variety of charges filed

against him or her, including inducing a minor, maintaining a public nuisance and


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tampering with the keg sticker, which can carry a fine of up to $1,000.

3. Passage of a law that requires mandatory alcohol server training (ICRUD 2013) – the goal

is to decrease the sale of alcohol to minors and intoxicated patrons. Training consists of a

two-hour class for alcohol servers and teaches them how to recognize false identifications,

how to refuse service to an intoxicated patron and how to understand the liquor sale laws.

Indiana Coalition to Reduce Underage Drinking also conducts student surveys and actively seeks

volunteers and new ideas to help combat underage drinking. Additional information can be found at

www.icrud.org, Facebook and Twitter.

SouthCarolina

Young people who drink under the age of 21 cost the citizens of South Carolina $1.0 billion in

2010. However, in 2009, it was reported that alcohol sold in South Carolina totaled $260 million in

sales, of which 11.9 % was to underage customers. “Annual sales of alcohol consumed by youth in

South Carolina averaged $1,540 per underage customer” (Pacific Institute for Research and

Evaluation, 2011). The adolescent and young adults drink an average of 3.8 drinks a day compared to

legal customers of only 1.7. South Carolina ranked number 43 on the percentage of alcohol consumed

by underage adolescents and young adults (Pacific Institute for Research and Evaluation, 2011).

The South Carolina Alcohol Enforcement Teams (SCAET) were created in August 2007 as a

strategic move to reduce the underage group of 21 accesses to alcohol. This program was

implemented in several South Carolina communities. The establishment of these teams was at the

local level with collaboration with 33 alcohol and drug commissions, state, local and county law

enforcement agencies and community stakeholders.

The South Carolina Alcohol Enforcement Teams works a multi-jurisdictional structure, which

includes 16 judicial circuits and covers 46 counties in South Carolina. There is approximately 265

local and state law enforcement officers working in some capacity with their local Alcohol

Enforcement Team. However, local participation is based on whether local resources are available.

“There are three measurable areas where the state Alcohol Enforcement Team either increased

enforcement activity or decreased alcohol use and the compliance check buy rate: 1) enforcement and

education activity, 2) drop in buy rate statewide, 3) drop in alcohol use by adolescents and young

adults. During the four years that the 16 judicial circuit Alcohol Enforcement Teams have been in

existence, they have reported 23,290 on-premise and off-premise alcohol compliance checks and

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22

reducing the availability of alcohol; 2) changing norms and behaviors through education; and 3)

consistent enforcement of existing laws and regulations.

After the success of the campaign in 2007, the campaign was reviewed by the legislators and

$1.6 million dollars was added to the “Prevention of Underage Drinking and Access to Alcohol Act

of 2007.” Also during the FY 2009 year, the South Carolina Assembly provided state dollars with

federal grant funding to continue the effort. The team believes the effort is not just about issuing

tickets and arresting adolescents and young adults, but it is about saving lives.

With their tremendous efforts and all their accomplishments, during the Annual National

Leadership Conference South Carolina was one of seven states (California, Hawaii, Illinois,

Maryland, Minnesota, and North Carolina) recognized for their efforts to reduce underage drinking.

Of the seven award receipts, South Carolina was one of three states with programs or polices that

affected citizens statewide. Additionally, South Carolina had the only collaborative effort, which

involved state and local team members (Trainor, 2011). Due to the their combined efforts with

members, coordinators and the people in the community working together as a team to reduce and try

to eliminate underage drinking, the South Carolina Alcohol Enforcement Team (SCAET) was

nominated and elected for the 2011 National Leadership Conference Law Enforcement Award

(Trainor, 2011).

Tennessee

Underage drinking costs states billions of dollars each year. Tennessee citizens pay a high

cost. In 2010, it cost the state $1.3 billion for underage drinking which translates the cost to $2,182

per adolescent and young adult and $4.04 per drink consumed underage. It is estimated that

approximately 212,000 underage adolescents and young adults drink each year. Tennessee is ranked

29th on the percentage of alcohol consumed by underage adolescents and young adults (Underage

Drinking Enforcement Training Center, 2011).

Funds in Tennessee have been allotted for the prevention of underage drinking. Programs

receiving the funds include community-based programs, K-12 based programs, programs targeted to

institutes of higher learning and the Boys and Girls Club of the Tennessee Valley for Primary

Prevention Services.

Tennessee has a division under the Tennessee Department of Mental Health and Substances

Abuse Services related to underage drinking which is called Office of Prevention Services. This


23

division contracts with community-based agencies through individual contracts where they serve and

target behaviors based on needs of that particular community with input from the Office of

Prevention Services. Tennessee also has a block grant for the Enforcing Underage Drinking Laws,

which encourages the state to address the problematic issue of alcohol consumption by minors (U.S.

Department of Health and Human Services, 2012).

The Tennessee Association of Alcohol and other Drug Abuse Services (TAADAS) is another

statewide agency acting as an advocate for substance abuse, treatment and prevention services. They

provide community education and engagement and coordinate training and technical assistance for

the Division of Substance Abuse Services (DSAS) provider network. The Northeast Tennessee

Adolescent Prevention Program (N-TAPP), which is a program through the TAADAS, is a family-

focused program serving high-risk adolescents, ages 10 to 18 years in the eight counties of Northeast

Tennessee. The services provided are based in schools and communities and provide parents with

tools to assist in setting limits and expectations and improving communications with their children.

Education is the major strategy used to propagate the information concerning the awareness of

underage drinking (Tennessee Department of Mental Health and Substance Abuse Services, 2012).

Through the Tennessee Prevention Network, Tennessee has many innovative programs for

adolescents and young adults and communities to prevent and combat underage drinking. According

to Table 5 statistics, these services and programs have proven to be successful in the prevention of

underage drinking one county and individual at a time. These services can be reviewed in the

Prevention Services Provider Directory at http://tn.gov/mental/A&D/PREVEN~1.PDF. The State also

utilizes public advertising, education, training and other activities that can assist in reducing underage

drinking.

Alabama

Alabama has not escaped the dangers and costs associated with underage drinking. In 2010,

underage drinking cost the citizens of Alabama $1.0 billion. This cost translated to a cost of

approximately $2,222 per year for each adolescent and young adult in the state or $3.41 per drink

consumed (Pacific Institute for Research and Evaluation, 2011). According to the Alabama

Department of Mental Health Prevention factsheet (2012), alcohol consumed by underage drinkers in

2009 was 14.6% and totaled $317 million. While the Alabama Alcoholic Beverage Control

Enforcement Division has a number of proactive initiatives aimed at reducing underage drinking,


24

agents continue to see this problem in Alabama.

Underage drinking often results in driving under the influence and, unfortunately, vehicular

fatalities. Adolescents and young adults from the ages of 15-20 make up 6.7% of the total driving

population, but 14% of all fatal crashes. According to general statistics published by Edgar Snyder &

Associates, a law firm representing injured people, 32% of drivers age 16 to 20 with invalid driver

licenses have driven with a Blood Alcohol Content .08 or higher. Males were estimated to be twice as

likely as females to have Blood Alcohol Content of .08 or greater. Alabama Alcoholic Beverage

Control Board (2012) statistics indicate the alcohol does change a person’s feelings as well as a

person’s ability to function properly (Alabama Alcoholic Beverage Control Board, 2012).

In 2011, 9th –12th graders in Alabama reported,

• Alcohol use prior to age 13 - 24%

• Had at least one drink of alcohol on at least one day during the past 30 days - 36%

• Had five or more drinks of alcohol in a row within a couple of hours on

at least one day during the past 30 days - 21%

• Usually obtained the alcohol they drank by someone giving it to them - 39%

• Had at least one drink of alcohol on one day during their life – 67%

Although underage drinking is illegal, 14.6% of all alcohol sold in Alabama is consumed by underage

drinkers. In 2009, sales of alcohol to underage consumers totaled $317 million. The average age of

alcohol first use is 12.6” (Alabama Department of Mental Health, 2012).

Beer is the drug of choice for underage drinkers, a depressant you can buy without a

prescription, sometimes even without being asked for identification. Adolescents and young adults

say it is easy to get. It is also the biggest killer of teenagers when combined with their other favorite

activity, driving (Alabama Alcoholic Beverage Control Board, 2012).


25

Alcohol is prevalent in Alabama schools. The school incident reports (Table 8) indicate

incidents related to alcohol in the Alabama school system between 2009 - 2012 school years. The

school incident reports the number of alcohol incidents during the fiscal school year for students from

kindergarten to the 12th grade.

Table 6

Annual School Incident Report 2009‐2010

Type of Incident Incidents V P V P V P V P

Alcohol Possession 236 0 28 0 0 0 129 0 305

Alcohol Sale 1 0 0 0 0 0 2 0 2

Alcohol Use 152 0 2 0 91 0 142 0 235

Annual School Incident Report

2011



Alcohol Sale 2 0 0 1 1 0 1 1 2

Alcohol Use 188 0 4 0 139 0 165 0 308

Annual School Incident Report

2012



Alcohol Sale 3 0 0 0 3 0 1 0 4

Alcohol Use 190 0 8 0 122 0 174 0 304

V= Victim

P = Participant

K‐ 6 Grades 7 ‐ 9 Grades 10‐12 Total




26

CURRENTALABAMAPROGRAMS

The Alabama Alcohol Beverage Control (ABC) Board’s Law Enforcement Division works to

prevent the sale and distribution of alcohol to minors. In 2012, the Alabama ABC Board’s Law

Enforcement Division Statewide Underage Drinking Enforcement program was rewarded an

$185,000 grant by Governor Bentley to assist in the prevention of the sale or distribution of alcohol to

minors (Alabama Department of Economic and Community Affairs, 2012).

Alabama ABC Board’s Law Enforcement Division for Underage Drinking is trained to

conduct surveillance of locations suspected of selling alcohol to minors, trained to spot fake

identifications used in alcohol purchases and to recognize other signs of violations by underage

consumers. The person who makes a sale to a minor is subject to arrest and prosecution while the

business will face fines and penalties from the Alabama ABC Board (Alabama Department of

Economic and Community Affairs, 2012).

One of the programs that is successful in Alabama is the Alabama Responsible Vendor Act,

which became effective in October 1990. This Act requires standardized training for employees

involved in the sale or service of alcohol in Alabama. The purpose of passing the Alabama

Responsible Vendor Act is to eliminate the sale and consumption of alcohol among adolescents and

young adults under 21 along with reducing intoxication, accidents, injuries, and deaths in Alabama

that are related to intoxication while driving. The beverage vendors are encouraged to participate in

the program as well as be more aware and alert to selling alcohol to adolescents and young adults.

Participating and complying with the practices in the program can restrict or reduce any sanction that

could be imposed in administrative proceedings by the Alabama ABC Board.

“Benefits of participating in the program are:

• Protection of the beverage licensee in the event that a trained employee sells/serves an

underage customer without the knowledge, consent or participation of the owner

• Reducing the risk of dram shop lawsuits by effectively training employees

• Improving the business relationship with local communities by preventing problem

situations that can lead to fines and bad press

• Making communities safer by refusing sales and service to underage and intoxicated

customers” (Alabama Alcoholic Beverage Control Board, 2013)

Several counties in Alabama have local programs that provide information to the communities


27

concerning underage drinking. Operation Save Teens is located in Anniston, Alabama and is a

statewide program that is sponsored and endorsed by the Alabama ABC Board. It was created to

educate the community about the dangers of drugs and to try to reduce the problem of underage

drinking. The educational portion is 90 minutes of multi-media with investigators showing actual

video footage of the result of adolescents and young adults using drugs and alcohol and the dangers

associated with the underage drinking (Alabama Alcoholic Beverage Control Board).

Alabama has a Mothers Against Drunk Driving (MADD) chapter and also a Council on

Substance Abuse (COSA). Both organizations target adolescents and young adults and are advocates

against driving while intoxicated. Autauga County has the Peers Are Staying Straight Youth

Coalition program (PASS). This program addresses underage drinking issues, which include the

dangers of excessive alcohol consumption. The program is funded through the United Way, but the

majority of the workers are volunteers (PASS, 2013). Other local agencies have programs that

educate adolescents and young adults to the dangers of underage drinking. However, the Alabama

ABC Board programs are statewide. Facts about underage drinking relate to the public statewide.

Facts about underage drinking and the effects that alcohol can cause to an individual are

presented by the Alabama ABC Board in “Alcohol Poisoning - Know the Facts!” (Alabama

Alcoholic Beverage Control Board, 2013). Below are a few alarming facts:

drinking excessive alcohol can cause alcohol poisoning;

a person’s blood alcohol content can rise while a person is passed out,

a person who has passed out from alcohol consumption may die,

a person can choke on his or her own vomit.


28

RECOMMENDATIONS

After much research and analysis, this team suggests the following recommendations to deter

underage drinking:

Recommendation One

The Alabama ABC Board should expand their current website in order to educate and inform

the community about the dangers of underage drinking. The website should include links to news

stories and community programs. The State of Georgia has an excellent website that can be used as a

model, http://www.children.georgia.gov/enforcement-underage-drinking-laws-links. The website has

many features, including grant information, which covers funding opportunities, grant writing and

daily tips for applying for grants. The site also has crisis resources, training, initiatives, trend

information, brochures, videos and fact sheets.


29

RecommendationTwo

Continuing under the umbrella of community, the Alabama ABC Board should launch a

public service announcement regarding the consequences of drinking to be played at movie theaters

before the movie begins. The announcement can also be released to churches, community and school

organizations, and news agencies. For example, the 2 young 2 drink campaign addresses alcohol

poisoning. 2 young 2 drink, which was developed by the Texas Alcoholic Beverage Commission

(TABC) with grant funds, has an excellent website, www.2young2drink.com, featuring plenty of

public service announcements and educational resources. It is another example that can be used in the

potential development of an Alabama ABC Board underage drinking deterrent website.

It is 30 minutes in length, which is perfect for a church and school seminar scenario, but it can

also be used in shorter segments at the movie theater, local news media outlets, YMCAs and on social

media sites such as Facebook and Twitter.

RecommendationThree

The Alabama ABC Board can join with other agencies to combine resources to create

workshops for parents and the community. The Alabama ABC Board can expand its existing program

Operation Save Teens, which is currently a statewide program that speaks to groups of adolescents

and young adults. For example, Alabama ABC Board can collaborate with the Alabama Department

of Mental Health to maximize grant money directed toward deterring underage drinking. In addition,

the Council on Substance Abuse (COSA) is an active partnership organization working to reduce

alcohol and drug problems through community prevention efforts and already has programs in place.

More information can be found on their website, www.cosancadd.org. City Councils, Boys and Girls

Clubs, the Alabama State Department of Education, County Education Boards and Parent Teacher

Associations (PTAs) can also collaborate to create events geared to alcohol and drug-free adolescent

and young adults entertainment, such as dances, picnics, and seasonal events such as haunted

hayrides at Halloween.

RecommendationFour

The Alabama ABC Board can launch a competition among schools and local churches to

determine which group or organization can create the best underage drinking deterrent advertisement,

video, DVD, flyer or poster. Entries would be submitted to the Alabama ABC Board for review based

on the criteria set by the agency. The winning art would be honored by their entry becoming a public


30

service broadcast to be distributed statewide. The groups or organizations would design a campaign,

which could be filmed in one of the studios operated by several State Agencies, and then

disseminated to churches, television and other media outlets. Additional prizes or funding can come

from private hospitals and rehabilitation programs along with suppliers in the alcohol industry.

RecommendationFive

An annual appropriation can be requested from the Education Trust Fund (ETF). Funds are

not guaranteed; however, educating students, parents and the community to deter underage drinking

is a valid expenditure and critical reason for requesting funds. In addition, court fees or costs can be

earmarked in the law for the Alabama ABC Board to receive and can be used to fund education or

activities related to the prevention of underage drinking. It is an option that the Alabama ABC Board

is encouraged to pursue federal grants and additional funding that may be available through the

Department of Finance to aid in the prevention of underage drinking and to promote awareness of this

critical issue.


31

CONCLUSION

The Underage Drinking Team would like to thank the Alabama ABC Board for allowing us

the opportunity to research the critical issue of underage drinking in Alabama and offer viable

solution recommendations to help prevent underage drinking among adolescents and young adults.

We commend the Alabama ABC Board for its continuing dedication to find solutions to deter

underage drinking. Most recently, a joint law enforcement operation to prevent underage drinking and

alcohol sales was conducted at Lake Martin. Officers of the Alabama Marine Police, Alabama ABC

Board, Alabama Wildlife and Freshwater Fisheries Division and Wind Creek State Park participated

in the detail, which used underage operatives to purchase alcohol from targeted businesses. This

supports that we need to begin a more thorough outreach at a much younger age.

In summary, our research into other states showed that Alabama is not alone in its efforts to

deter underage drinking. The realization that underage drinking can affect everyone, not just the

underage drinker, indicates that this is not simply an individual issue or even a community issue. It is

a national issue. However, by collaborating with other state agencies, schools, community,

organizations and churches and by utilizing electronic media and expanding existing websites in

addition to pursuing potentially available funds. The Alabama ABC Board can make great strides to

deter underage drinking presently as well as in the future.


32

REFERENCES

Indiana Coalition to Reduce Underage Drinking. (2013). Retrieved from Indiana Coalition to Reduce

Underage Drinking: http://www.icrud.org/about/index.html

Alabama Alcoholic Beverage Control Board. (2012). Adolescents and Alcohol. Adolescents and

Alcohol... You Be the Judge. Montgomery, Alabama, United States: Alabama Alcoholic

Beverage Control Board.

Alabama Alcoholic Beverage Control Board. (2013). A Guide to Achieving & Maintaining

Certification. Montgomery, Alabama, United States of America: Alabama Alcohol Beverage

Control Board.

Alabama Alcoholic Beverage Control Board. (2013). Know The Facts! Alcohol Poisoning. Retrieved

from Alabama Alcoholic Beverage Control Board: www.abcboard.alabama.gov

Alabama Department of Economic and Community Affairs. (2012, February 16). Bentley awards

grant to reduce underage drinking. Retrieved 2013, from Office of the Governor:

http://www.media.alabama.gov/AgencyTemplates/adeca/adeca_pr4.aspx?id=6159

Alabama Department of Mental Health. (2012, June). Underage Drinking in Alabama. Underage

Drinking in Alabama Prevention Factsheet. Montgomery, Alabama, United States: Alabama

Department of Mental Health.

American Medical Association. (n.d.). Underage Drinking is a D.U.M.B. Decision. Retrieved from

American Medical Association: http://www.alcoholpolicymd.com/pdf/brain3.pdf

Center for Disease Control and Prevention. (2012, November 12). Facts Sheet - Binge Drinking.

Retrieved from Center for Disease Control and Prevention: http://www.cdc.gov/alcohol/fact-

sheets/binge-drinking.htm

Pacific Institute for Research and Evaluation. (2011, September). Underage Drinking in Alabama The

Facts. Retrieved from Underage Drinking Enforcement Training Center:

http://www.udetc.org/factsheets/AL.pdf

Pacific Institute for Research and Evaluation. (2011, September). Underage Drinking in Indiana The

Facts. Retrieved from Underage Drinking Enforcement Training Center:

http://www.udetc.org/factsheets/IN.pdf

Pacific Institute for Research and Evaluation. (2011, September). Underage Drinking in South


33

Carolina The Facts. Retrieved from Underage Drinking Enforcement Training Center:

http://www.udetc.org/factsheets/SC.pdf

PASS. (2013). PASS The NOBLE Idea. Prattville, Alabama, United States of America.

Pressit. (2013, April 17). Georgia Governor’s Office Awards Grant to Prevent Underage Drinking.

Retrieved April 2013, from Pressitt Release: http://pressitt.com/newsroom/SEO-

Company/smnr/Governors-Office-Awards-Grant-to-Prevent-Underage-Drinking/23437

Pride Surveys. (2010, July 7). Reports on Student Behavior & Perceptions. Retrieved March 2013,

from Pride Surveys: http://www.pridesurveys.com/index.php/reports-on-student-behavior-

perceptions-2/

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Services Directory. Retrieved from Tennessee Department of Mental Health and Substance

Abuse Services: http://tn.gov/mental/A&D/PREVEN~1.PDF

The Council on Alcohol and Drugs. (2011). Regional Alcohol Abuse Prevention Initiatives. Retrieved

from Stop Alcohol Under 21:

http://www.stopalcoholunder21.org/fileadmin/_temp_/AAPI_Fact_Sheet.pdf

The International Institute for Alcohol Awareness. (2012). Underage Drinking in Georgia The Facts.

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http://health.state.ga.us/pdfs/prevention/Underage%20Drinking%20in%20Georgia.pdf

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http://www.indexjournal.com/main.asp?SectionID=4&SubSectionID=40&ArticleID=6557

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Brief. Washington: U.S. Department of Health and Human Services.

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gress_2012.pdf

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Prevention and Reduction of Underage Drinking. Retrieved from Stop Underage Drinking:


34

https://www.stopalcoholabuse.gov/resources/reporttocongress/RTC2012.aspx

Underage Drinking Enforcement Training Center. (2011, September). Underage Drinking in

Tennessee The Facts. Retrieved from Underage Drinking Enforcement Training Center:

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Administration. Retrieved from http://www.samhsa.gov/statesinbrief

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