Ask the Scholar
Document scope · 1 page
Scholar
Ask about this object, its catalog metadata, its source description, or the page inventory.
For page-specific OCR and visual context, open one of the page chats.
Scholar Source Context
Document identity
localId
323154579
label
National Conference of State Legislators 3/10/89 [OA 8747] [2]
core
doc
dtoType
document
citationUrl
pageCount
1
Source metadata
id
323154579
contentType
document
title
National Conference of State Legislators 3/10/89 [OA 8747] [2]
citationUrl
identifierLocal
13873-008
collections
Records of the White House Office of Speechwriting (George H. W. Bush Administration)
Mark Davis Subject Files
imageCount
1
hasImages
yes
source
import
hasTranscription
no
Source extras
naId
323154579
levelOfDescription
fileUnit
recordType
description
ocrSource
nara-archive
Single page context
seq
1
pageIndex
0
type
document
mediaId
c44a4b5343c58131
ocrText
Originally Processed With FOIA(s):
foia Number:
S
FOIA
MARKER
This is not a textual record. This is used as an
administrative marker by the George Bush Presidential
Library Staff.
Record Group/Collection:
George H.W. Bush Presidential Records
Collection/Office of Origin:
Speechwriting, White House Office of
Series:
Davis, Mark, Files
Subseries:
Subject File, 1989-1991
OA/ID Number:
13873
Folder ID Number:
13873-008
Folder Title:
National Conference of State Legislators, 3/10/89[2]
Stack:
Row:
Section:
Shelf:
Position:
G
19
2
6
6
National Conference of State Legislatures
A Guide to Programs and Services
NORTH DAKOTA RHODE ISLAND ALASKA NEVADA OREGON MAINE IDAHO
WHAT NCSL IS
The National Conference of State Legis-
Researching legislators' questions about
Encouraging the exchange of informa-
latures is a non-partisan organization creat-
hundreds of problems from AIDS to tax-
tion among states on policy issues as well
ed to serve the legislators and staffs of the
ation, pollution to child welfare;
as the internal management of the legisla-
nation's 50 states, its commonwealths and
Representing the states' interests before
ture itself; and
territories. NCSL provides research, tech-
the Congress and federal agencies, and
Providing the opportunity for legislators
nical assistance, and the opportunity for
analyzing the effects of federal actions on
and staff to meet, study issues and develop
policymakers to exchange ideas on the
the states;
policy recommendations through the
most pressing state issues. NCSL also is an
Assembly on the Legislature and the State-
effective and respected representative for
Federal Assembly.
the interests of state governments before
NCSL's Denver office offers state legis-
Congress and federal agencies.
lators and staff information and research
The dramatic shift of power from Wash-
on issues particularly appropriate to state
ington, D.C. to the states has increased the
government action; the Washington, D.C.
scope of responsibilities confronting state
office concentrates on lobbying for state
legislatures. Lawmakers want to know how
interests and tracking federal government
to shape policies that will work for their
actions that affect the states.
states and constituents. For 14 years, the
Appropriations from the individual legis-
National Conference of State Legislatures
latures provide NCSL's main funding, but
has served lawmakers and their staffs by:
federal agencies and private foundations
(including the Foundation for State Legis-
Helping individual legislators become
latures) provide financial help for specific
more expert in their areas of interest, and
projects.
therefore more effective lawmakers;
Giving legislators and their staffs a
chance to learn about creative solutions to
and the latest thinking on the tough
problems of the day;
Offering training for legislative leaders
in management, policy development and
intergovernmental relations;
Offering training for both new and
experienced legislative staff members in
computer use, bill drafting, budget
development and research;
PENNSYLVANIA MARYLAND MISSOURI TENNESSEE MISSISSIPPI MONTANA
WHAT NCSL PROVIDES
Information and Assistance
documents, journal articles, 50-state sur-
programs, plus issue briefs, budget briefs
Special Services for Leaders
veys and statistical data in spreadsheet
and special analyses of the impact on the
Meetings and Seminars
format, research reports, and research cur-
states of developments (such as Gramm-
Congressional Lobbying
rently under way. LEGISNET is a free, com-
Rudman-Hollings) that are not themselves
Publications
puterized research data base available to all
grants in aid.
Special Services for Staff
state legislators and their staff, who may
Videos
query the system by means of terminals in
Special Services for Leaders
their own offices; or on request, NCSL staff
Managing a legislative body is a challenge
Information and Assistance
in the best of circumstances, and NCSL is
Along with general information about
there to help leaders meet that challenge.
the issues confronting them, legislators
NCSL conducts a Symposium for New
need to know what other states and the
Leaders every two years in January, where
federal government are doing in any given
participants discuss managing the legisla-
policy area. Last year NCSL answered more
tive process, policy development and
than 12,000 requests for information and
intergovernmental relations. Every January
made numerous on-site trips to assist states
in Washington at the annual Leader to
in solving policy problems.
Leader meeting, state legislative leaders get
The Conference tailors its assistance to
together with congressional leaders, cabi-
the needs of an individual legislature. This
net officers and key administration officials
may mean sending skilled professional
to exchange views on pressing state-federal
NCSL staff to work directly with law-
issues.
makers or legislative staffers, making
The Conference also provides leaders an
arrangements for expert witnesses to tes-
opportunity for informal roundtable dis-
tify before a legislative committee, con-
will do the searching. Requests for infor-
cussions twice a year. Leaders receive
ducting special workshops on a topic
mation not found in LEGISNET often lead
several publications that provide timely
confronting a legislature, conducting need-
to new research or 50-state surveys. NCSL
policy information, including the monthly
ed training programs for legislators and
staff members answer more than 12,000
Leaders' Letter, a directory of leaders in
staff, or responding to an individual legis-
requests for information each year.
other states, a guide to legislative leader-
lator's request for information.
NCSL and the National Governors'
ship, and all State Legislative Reports
NCSL can provide, through its LEGIS-
Association jointly manage a computerized
covering legislative management and
NET system, abstracts of thousands of
service providing detailed information and
procedures.
legislative research reports, public policy
projections on about 90 percent of the
At the request of legislative leaders,
federal funds going to each state, called
NCSL conducts thorough studies of
Federal Funds Information for States
procedural issues, rules reform, budget
(FFIS). FFIS is offered on a subscription
procedures and information systems, and
basis. Subscribers receive reports three
arranges workshops to link veteran leaders
times a year tracking the allocations for
willing to share their experience with
each state in more than 240 grant-in-aid
others.
NEW HAMPSHIRE WASHINGTON MINNESOTA MICHIGAN ARIZONA KANSAS
Special Services for Staff
sional staff members get together at NCSL's
with letters and phone calls to federal
NCSL offers a wealth of learning and
Annual Meeting, five days jampacked with
officials.
professional development opportunities
informative sessions and nationally known
for legislative staffers, whether new or
speakers on current issues confronting the
Publications
experienced. The secrets of such skills as
states.
Ten times a year, NCSL publishes State
computer use, bill drafting, legal research,
Legislatures magazine. Like the organiza-
and press relations are all examined in
State-Federal Relations
tion's numerous other publications, this
regular and special staff workshops, held
NCSL's state-federal relations effort is
national magazine of state government and
the year round.
policy is sent free of charge to all legisla-
NCSL conducts an annual seminar to
Regulatio
tors and their staff members, and is for sale
help staff directors and supervisors
Child
to the general public. Conference Report,
improve their management skills, and
Enforcem
a quarterly newsletter, describes the activi-
another to help new staff people sharpen
ties of NCSL members and staff. Federal
their skills in research, program evaluation,
Update, published 15 times a year, informs
fiscal analysis, bill drafting and other legis-
legislators and staff about federal legisla-
lative procedures.
tion, executive regulations, court decisions
Staff members can get together and share
and other federal matters that concern the
common problems and information in one
states.
of NCSL's nine professional staff organiza-
NCSL offers a great many specialized
tions for legislative clerks and secretaries,
publications, from books to brief sum-
computer users, leadership staff, legal
maries of developments to thorough
services staff, research librarians, program
studies of a number of policy areas. State
evaluators, fiscal officers, security person-
Legislative Reports, which focus on current
nel and researchers.
issues, are published 12 to 18 times a year.
designed to take maximum advantage of its
State-Federal Issue Briefs are written about
Meetings and Seminars
principal assets in lobbying-the political
30 times a year. All are available to legisla-
Legislators and staff have dozens of
link between state lawmakers and mem-
tors on request. Ask the Marketing Depart-
opportunities a year to attend NCSL meet-
bers of Congress, and the information the
ment in the Denver office for the current
ings on subjects as varied as the drug
Conference develops on state approaches
publications catalog.
problem, economic development, long-
to issues. Members of the State-Federal
term health care, water allocation, minori-
Assembly and other legislators testify regu-
Videos
ty education, state tax policy, telecom-
larly before Congress on a variety of issues.
With the aid of the Foundation for State
munications and asbestos safety. These
State legislators frequently meet in Wash-
Legislatures, NCSL has produced a number
meetings are announced six to eight weeks
ington with their congressmen and mem-
of timely, short videotapes. They are avail-
ahead of time in the Conference Calendar
bers of the administration to voice NCSL's
able free to legislators and staff on two-
and other NCSL publications.
concern about federal issues. And each
week loan, and can be rented or purchased
And in late July or early August every
year, hundreds of state legislators respond
by others. See the listing in the current pub-
year, thousands of legislators and profes-
to appeals through NCSL Action Alerts
lications catalog.
SOUTH dakota NEW MEXICO COLORADO LOUISIANA VIRGINIA DELAWARE
HOW IT WORKS
The organization is governed by seven
smoking? legislative staff salaries? waste
major forum for the exchange of ideas and
officers who are members of a 54-member
recycling? etc., etc.). They also plan and
information among state legislatures.
executive committee elected yearly and
provide help of various kinds to legisla-
Working through several standing commit-
composed of legislators and staff members.
tures, and frequently produce special
tees on a set of topics ranging from arts and
For information on nearly any subject,
publications.
tourism through economic development
all it takes is a phone call to either the
In addition, at least one person on the
and fiscal matters to science and technol-
Denver or the Washington, D.C. office to
NCSL staff is assigned to each state to serve
ogy, AOL members (appointed for two-
get in touch with an NCSL research staff
year terms) meet three times a year, twice
member assigned to one of several general
LEGISNET
in selected state capitals and once at the
subject areas-
Annual Meeting in the summer. The issues
to be dealt with are chosen by the commit-
Agriculture and energy; arts, tourism and
tee members.
cultural resources; education, labor and job
Like the AOL, the State-Federal Assembly
training; environment, science and natur-
(SFA), composed of legislator appointees
al resources; federal budget; federal taxa-
from each of the states, works through
tion; fiscal affairs; health and human
committees. The SFA, which also meets
services; law and criminal justice; pen-
three times a year, focuses on federal
sions; trade and economic development;
matters and their impact on state govern-
transportation and communications; and
ment operations. The SFA develops policy
legislative management.
positions on a wide range of state-federal
issues for the approval of the entire Con-
In each of these fields, staff members do
ference. These policy resolutions, once
research and can answer specific questions
adopted, serve as the basis for the organiza-
(for example, what are states doing about
tion's lobbying efforts before Congress and
special education? AIDS? child support?
the administration. Those efforts regularly
as liaison between the Conference and that
include legislators' testimony before con-
state's legislature. These "state assign-
gressional committees and frequent meet-
ment" people are listed in the January issue
ings with members of Congress and the
of State Legislatures magazine and in
administration.
LEGISNET.
The Assembly on the Legislature
and the State-Federal Assembly
NCSL's Assembly on the Legislature
(AOL), a joint undertaking of state law-
makers and legislative staff members, is a
SOUTH CAROLINA NEW JERSEY OKLAHOMA WYOMING FLORIDA GEORGIA
THESE ARE SOME OF NCSL'S ACCOMPLISHMENTS FOR STATES IN 1988:
Conducted workshops in Arkansas, Iowa,
Recommended creation of a Puerto Rican
Helped Arkansas, Louisiana, South Caro-
Maine, New Hampshire, North Carolina
Senate Budget Office and staff reorganiza-
lina and Oregon reform their education
and Pennsylvania on long-term care,
tion and established evaluation procedures
process, establish an agenda for education
Medicaid, catastrophic care and alterna-
at Puerto Rico's request. This project was
and provide oversight of their reforms.
tives to institutionalization.
conducted with the Congressional Budget
Office and the Congressional Research
Revised and updated Mason's Manual of
Helped develop a plan to assist Iowa in
Service.
Legislative Procedures, which will be pub-
keeping abused children out of foster care
lished and available to legislators in Jan-
and with their families. This program
uary, with the assistance of the legislatures'
promises to become a national model.
clerks and secretaries.
Worked with the North Carolina Mental
Developed a congressional lobbying strate-
Health Study Commission to develop a
gy with various public interest groups
comprehensive plan for adult mental
to change the Supreme Court ruling on
health care and to create the Child Mental
National Bellas Hess so states can collect
Health and Youth Substance Abuse Plan.
sales tax on mail order sales. Currently,
some $2.4 billion in state sales tax goes
Shared our expertise with the Arizona Joint
uncollected nationally.
Select Committee on State Revenues and
Expenditures to develop sound criteria for
Conducted 75 national meetings and semi-
evaluating the state tax system in order to
nars on topics ranging from asbestos clean-
eliminate a structural deficit.
up to child support enforcement to teen-
age pregnancy to telecommunications.
Evaluated legislative procedures at the
Recommended revisions of the personnel
request of the Alaska House and recom-
policies of the Connecticut Legislature, as
Published 22 books and reports on subjects
mended improvements to streamline the
well as a new staff structure and a fair and
such as state tax reform, low birthweight
process.
equitable pay scale for employees, at the
babies, art design legislation, mental health
request of the Joint Committee on Legisla-
and others.
tive Management.
Mailed over 3,000 documents requested by
people who searched LEGISNET, NCSL's
on-line information system.
Defeated major pre-emption attempts by
Congress in banking and corporate
takeovers.
MASSACHUSETTS PUERTO RICO ARKANSAS NEW YORK HAWAII UTAH OHIO
NATIONAL CONFERENCE OF STATE LEGISLATURES
Assembly on the
Members All Legislators and Staff from the 50 States,
State-Federal Assembly
Legislature (AOL)
Commonwealths and Territories
(SFA)
The Capitol-to-Capitol
Governing Body 54-Member Executive Committee Comprised
The State-Federal
Connection
Connection
of Legislators and Staff
AOL is a legislative forum
for the exchange of ideas
Staff Professional Researchers, Editors and Lobbyists in the
The SFA consists of a
and information among
Denver and Washington, D.C. Offices
steering committee and 11
standing committees that
states. AOL committees and
formulate policies
task forces consist of
legislators and legislative
Services to States
concerning states' interests
Staff Sections
before Congress and
staffers, and oversee NCSL
federal agencies. The SFA
projects and publications
NCSL staff provides
NCSL provides training,
also informs legislatures of
and recommend state
services to individual
professional growth
developments in state-
action on the following
legislators and staff,
opportunities, and
federal relations.
topics:
committees, and other
information sharing for
Committees include the
legislative bodies. Services
legislative staff. NCSL has a
following:
Arts, Tourism and
include the following:
Legislative Staff
Cultural Resources
Coordinating Committee
Children, Families and
Answering information
Agriculture, Food Policy
and nine staff sections that
and Rural Development
Social Services
requests
sponsor meetings, training
Commerce, Labor and
Criminal Justice
Technical assistance in
and publications. They are:
Economic Development
the states
Regulation
American Society of
Education
Fiscal Affairs and
Publications (State
Legislative Clerks and
Oversight
Legislatures magazine,
Energy
Secretaries
Environment
Legislative Organization
Conference Report, books.
National Association of
Federal Budget and
and Management
research reports,
Legislative Fiscal Officers
Taxation
Science, Technology and
newsletters)
Legal Services Staff
Resource Planning
Conferences, seminars,
Government Operations
Section
and Pensions
State Government Issues
training sessions
Legislative Program
Health and Human
and Organization
Videotapes
Evaluation Section
Services
Education
Representing states'
Legislative Research
International Trade
State-Local Relations
interests before Congress
Librarians Staff Section
Law and Justice
Reapportionment
and federal agencies
National Legislative
Transportation and
Service and Security
Communications
Association
Leadership Staff Section
Research and Committee
Staff Section
Computer Applications
Staff Section
NORTH CAROLINA VERMONT ALABAMA KENTUCKY WISCONSIN CALIFORNIA
1988-89 EXECUTIVE COMMITTEE
Nunez
Daniels
Martin
Strickland
King
O'Donnell
Andreason
Total membership of the Executive
AT-LARGE LEGISLATOR MEMBERS
Representative Alma Stallworth,
Committee is 54 members: seven
Speaker William Barrett, Nebraska
Michigan
officers, 21 at-large legislator members,
Senator Robert Connor, Delaware
Assembly Majority Leader James R.
eight regional legislator members, four
Senator Denton Darrington, Idaho
Tallon Jr., New York
ex-officio members, and 14 legislative
House Speaker Pro Tem Lois M.
Senator Diane Watson, California
staff members.
DeBerry, Tennessee
Representative Wilhelmina Delco, Texas
REGIONAL LEGISLATOR MEMBERS
House Majority Caucus Chair Pauline
Eastern Region
Executive Director: William T. Pound
Eisenstadt, New Mexico
House Deputy Majority Leader Teresalee
Senator Hugh Farley, New York
Burtinuson, Connecticut
OFFICERS
House Minority Leader Art Hamilton,
Representative James M. Burd,
President: Senate President Pro Tem
Arizona
Pennsylvania
Samuel Nunez Jr., Louisiana
Senator Kelly Haney, Oklahoma
President-Elect: House Minority Leader
Representative Shirley Hankins,
Midwest Region
Lee Daniels, Illinois
Washington
Senator James B. Dunn, South Dakota
Vice President: Speaker John Martin,
Senate Majority Floor Leader Joseph
Senator Bill Hutchins, Iowa
Maine
Harrison, Indiana
Immediate Past President: Senate
Representative Alex Harvin, South
Southern Region
President Ted Strickland, Colorado
Carolina
Representative Charles W. Capps Jr.,
Staff Chair: Betty King, Secretary of the
Speaker Richard Kloubec, North Dakota
Mississippi
Senate, Texas
Assemblywoman Gwen Moore,
Senator Douglas Henry Jr., Tennessee
Staff Vice Chair: Patrick J. O'Donnell,
California
Clerk of the Legislature, Nebraska
House Majority Whip Robert O'Donnell,
Western Region
Immediate Past Staff Chair: John
Pennsylvania
Senate President Pro Tem Lawrence E.
Andreason, Legislative Budget Director,
Speaker Vern Riffe, Ohio
Jacobsen, Nevada
Idaho
Representative Patricia Skinner, New
Senator Anthony K.U. Chang, Hawaii
Hampshire
House Administration Leader Calvin
Smyre, Georgia
WEST VIRGINIA CONNECTICUT ILLINOIS NEBRASKA INDIANA TEXAS IOWA
LEGISLATIVE STAFF MEMBERS
Mr. John Turcotte, Executive Director,
FOR MORE INFORMATION:
Joint Committee on Performance
Mr. Terry Anderson, Director,
Evaluation and Expenditure Review,
National Conference of State Legislatures
Legislative Research Council, South
Mississippi
1050 17th Street, Suite 2100
Dakota
Mr. Jeffrey Wice, Special Counsel to the
Denver, CO 80265
Mr. Mark D. Ausmus, General Counsel,
Speaker, New York
303-623-7800
Office of the Speaker, Missouri
Ms. Shelley Bates, Special Assistant to
444 North Capitol Street, N.W., Suite 500
the Speaker, California
Washington, D.C. 20001
Ms. Lynda C. Davis, Director, Library
202-624-5400
and Information Services, Maryland
Ms. Sally C. Diamond, Director,
Legislative Council, Maine
Ms. Sylvia Duke, Administrative
Assistant to the President Pro Tem,
Louisiana
Mr. Ted Ferris, Director, Joint
Legislative Budget Committee, Arizona
Mr. James C. Heckman, Deputy
Director, House Fiscal Agency, Michigan
Mr. George Moser, Executive Director,
House Legal and Fiscal Division,
Oklahoma
EX-OFFICIO
Mr. Donald A. Rhodes, Director,
Legislative Counsel Bureau, Nevada
SFA Chair
Mr. Donald J. Schneider, Chief Clerk of
Speaker Gibson "Gib" Lewis, Texas
the Senate, Wisconsin
Mr. Wayne W. Todd Jr., Senate
CSG Chair
Sergeant-at-Arms, Florida
Senate President Arnold Christensen,
Utah
AOL Chair
House of Delegates Assistant Majority
Floor Leader Nancy Kopp, Maryland
AOL Staff Chair
Mr. William Russell, Chief Counsel,
Vermont
ria-w
a1324na--w
r W bc-druguse:1150aes 1d 2-28 0658
(complete writethru - updating, adding reaction)
By TAMARA HENRY
WASHINGTON (UPI) - Use of crack cocaine has declined among high
school seniors for the first time because of changing attitudes and
Tuesday. increased knowledge about the drug's harmful effects, a survey said
The 1988 National High School Senior Survey, conducted by The
University of Michigan's Institute for Social Research, found use of all
college. drugs generally declined among American students in high school and
Overall, the proportion of seniors using any illicit drug during
the prior year fell from 42 percent in 1987 to 39 percent in 1988. This
compares with 54 percent in 1979, the peak year.
But the study's director, Lloyd Johnston, said the drop. in the use
of crack a highly addictive smokeable derivative of cocaine is ''one
of the most important findings'' of the survey of some 16,000 to 17,000
seniors in 135 high schools nationwide. The survey also uses
representative sample of college students and young adults one to 11
years beyond hi. n school.
"This is great news, that our high school seniors are listening,
that more are heeding the perils of drug use,'' said Education Secretary
Lauro Cavazos. "However, too many of our youth, especially those that
never become seniors the dropouts - still risk their health and their
future by using drugs.''
The survey, the 14th in a series of national surveys funded by the
National Institute on Drug Abuse, an arm of the Department of Health and
Human Services, showed that 4.8 percent of all seniors between 1987 and
1988 reported ever using crack, compared with 5.6 percent in the
previous year. Annual use of crack fell from 4 percent to 3.1 percent,
after having leveled off between 1986 and 1987.
Johnston, who warned in last year's report of an increase in crack
use from 4 percent to 5.6 percent in 1987, said crack use showed a
decline in 1988 among college students, as well, though not a
statistically significant one - from 2 percent to 1.4 percent but
there was little change among the 19- to 29-year-olds, from 3 - percent to
3. 1 percent.
"We can safely 53y that this decrease suggests that nigh school
seniors, a very important population to the Future of our country, are
hearing the messages about cocaine's dangers and are avoiding drug use
in general, said Charles Schuster, director of the National Institute
on Drug Abuse.
"While crack cocaine is readily available, seniors appear to be
continue use.
concerned about its addictive qualities and are less likely to try or
Other key findings of the survey include:
Marijuana use continued its long-term, gradual decline. About
one-third of all high school seniors reported some marijuana use,
compared with the peak year of 1979 when half of all seniors reported
some use. Current daily marijuana use dropped from 10.7 percent in 1978
to 2.7 percent in 1988.
Cocaine use dropped between 1986 and 1988 from 13 percent to B
percent. Among college students, only 10 percent reported using the
drug in 1988, compared with 17 percent in 1986. Cocaine use also fell
among all high school graduates aged 19 to 28 from 20 percent annual
prevalence in 1986 to 14 percent in 1988.
Heroin use remained at 0.5 percent, the same percentage the past
nine years.
Alcohol use dropped for the first time in several years. Current
drinkers'' - seniors who had one or more drinks in the past 30 days
declined from 66 percent to 64 percent.
-
Cigarette smoking stands at 29 percent in 1988, with 18 percent of
all seniors smoking daily.
upi 02-28-89 11:51 aes
- 11 -
Blue Ribbon Schools continues the School Recognition Program, which in
alternate years recognizes outstanding elementary and secondary schools.
Schools are selected following an evaluation of their applications and
on-site observations that focus on the school's philosophy, goals,
organization, leadership, curriculum, instruction, student achievement,
community relations, and efforts to maintain high quality programs and make
improvements. The request includes an increase of $211,000 to cover the
increase in costs of making on-site visits and other program activities.
4. Drug-Free Schools and Communities
(BA in millions)
1990
1988
1989
Request
State and Local Grants
$191.5
$287.7
$297.5
Teacher Training
---
7.0
7.2
National Programs:
Institutions of Higher Education.
17.8
27.8
28.7
Federal Activities
7.8
12.2
12.6
Programs for Indian Youth
2.2
3.5
3.6
Programs for Native Hawaiians
0.4
0.7
0.7
Regional Centers
10.0
15.6
16.2
Total
229.8 1/
354.5
366.6
367 in
1/ Amounts for individual activities do not conform to statutory set-asides,
because of the requirements of appropriations language.
Bush
BUDUCT
The Department of Education is strongly committed to helping States and
localities get drugs out of schools and off college campuses. The proposed
funding increase for the Drug-Free Schools and Communities Act will provide
follows: resources to help reach this goal. Under the Act, funds are allocated as
State and local programs (82.8%) -- Funds are allocated to States and
Territories on the basis of school-aged population. From each State grant,
30 percent is reserved for local programs administered from the Governor's
office. The remaining 70 percent is administered by the State educational
agency, which in turn must redistribute at least 90 percent of its share to
local educational agencies. Provisions to ensure program accountability were
strengthened by P.L. 100-297.
Grants to Institutions of Higher Education (8%) -- Competitive awards are made
to public and private institutions of higher education. At least 50 percent
of the funds are used to develop and implement programs of drug abuse
education and prevention for college students. The remainder of the funds are
used for teacher training, summer institutes and workshops, and model
demonstration programs designed to assist elementary and secondary schools.
JIBS WITH Busit PLANK
- 12 -
Federal Activities (3.5%) -- Funds are available for communicating the
the developing and disseminating audio-visual and other curricular materials at
dangers of drug and alcohol use to students at all educational levels;
identifying research and development priorities; and providing information
elementary and secondary levels; providing technical assistance;
on drug abuse education and prevention to the Department of Health and
Human Services for its clearinghouse under the Public Health Service
The Department has used Federal Activities funds to support a Network Act. of
Drug-Free Colleges and Universities, establish a program to recognize
schools with exemplary programs to combat drug abuse, support the
that follows the principles outlined in Schools Without Drugs, and fund
"Challenge" campaign, which enlists schools in a fight against drug abuse
education programs. The Department completed, with the Department of
discretionary grants for the development of comprehensive drug and alcohol
Health and Human Services, a congressionally mandated study of the
Schools and is now carrying out a study of the implementation of the Drug-Free
effectiveness of existing programs of drug abuse education and prevention
national distribution of anti-drug abuse videocassettes appropriate for
and Communities Act. The Department also funded the production and
children at various age levels.
Programs for Indian Youth (1%) -- Funds under this program are transferred
to the Bureau of Indian Affairs and used to plan, conduct, and administer
by or under contract with the Bureau.
programs for Indian children in elementary and secondary schools operated
Programs for Hawaiian Natives (.2%) -- Funds have been awarded
by Governor of Hawaii, to plan, conduct, and administer programs for
Kamehameha the Schools/Bernice Pauahi Bishop Estate, an organization to designated the
Hawaiian Natives.
Regional Centers (4.5%) -- Five regional centers have been established to
train school teams in effective approaches to drug and alcohol abuse
prevention; assist State educational agencies in coordinating and
of strengthening programs; assist local educational agencies and institutions
higher education in developing training programs for educational
and personnel; and evaluate and disseminate information on effective programs
strategies.
Teacher Training programs, which were recently authorized under
Anti-Drug are used Abuse Act of 1988, receive a separate appropriation. These the funds
to establish, expand, or enhance programs to educate
abuse administrators, counselors, and other educational personnel about teachers, drug
education and prevention.
1989. Drug-Free Schools programs received a 54 percent appropriations increase in
The Department proposes an additional 3.4 percent increase in 1990.
2/27/89
Dick Weatherby 3pm
GRAnts
Plus pop. %
$500,000 to every state
80% non-DISCRETIONALY
20% DISCRETIONARY
(1) CRACK TASK FORCE
(2) "DEMONSTRATION project"-
STATEWIDE DRUG PROS. units,
(3) STATEWIDE DIVERSION
CbAd DOCTORS, bas pharm.)
(4) DRUG ABUSE ED. PROGRAMS
(5) STATEWIDE PROS, Units
(6) PRISONS?
*
proceeds of state & local agencis that
also, fed. law agencies can share
Cooperate assets in SEIZURE + FORFEITURE OF
unders of millions of Dodnes
Male the duy dealers puy
for law enformed
PRESIDENT BUSH
MARCH 3, 1989
PAGE 5
And yet, well before the end of the century, the oceans of
the world had seen the last slaving ship set sail. World
intolerance grew until slaving ships could no longer find an open
port. world. ThE indibnation OF A Eew committed people mood the
Today, the oceans and airways of the world are transporting
a different kind of trade that results in a more subtle form of
five
slavery My friends, we will not defeat the drug lords tomorrow.
We will not defeat them next year or in the year after that. a But
with the brave cooperation of our neighboring nations, we will
fight, and we will not stop at any point short of victory
SCAVE-HOLDERS of TODAY.
DRUGS ARE THE
This is the message I want Dick Thornburgh to convey to the
Justice Ministers of Latin America. I am confident that Dick
will do a splendid job. And I want him to know that he leaves
with the heartfelt thanks of us all.
#
#
#
STATES Mrs MUST
TOUGHEW CAW
LOOK AT DRUG FACT. - HEET
TAKE AWAY
- How many STATES REVOKE LICENSES -
CA BUSH CALLS on ALL STATES
$ 4,1B.
DRUO - DRIEWTED P. FACT Any BUDGET
FED, DEATH PEWALTY
INCLUDES STATE + LOCAL
STATES All Four
= - BREAK DOWN $4. I BiLLiON
- PRiSON $ FOR FED. PRISONS.
- EDUCATION $ TO STATE DEPTS of
ED.
BENNETT people
WASHINGTON
2/28/89
Natt Groc. of Conening
624-5300
Milan JONES (JUSTICE) 624-5360
Martinez
SURVEY fact sheet
TASK FORCE - Cono. / Sewaina
Davis/Dooley
March 2, 1989
3 p.m.
REMARKS: NATIONAL CONFERENCE OF STATE LEGISLATORS
OLD EXECUTIVE OFFICE BUILDING/RM 450
MARCH 10, 1989
?
Thank you Sammy Nunez (Noo-nez). Thank you Lee Daniels.
Thank you all.
The last time I spoke to you, we were in the middle of
America, in the middle of summer, and in the midst of a tough
campaign year.
Fate has smiled on us since that July day in Indianapolis.
Then, we were all candidates. Today, everyone in this room is a
winner. For those of you who are Republicans, I hope my
coattails were of use. For those of you who are Democrats, I
claim absolutely no credit whatsoever
In all sincerity, I want to congratulate every legislative
leader in this room, Democratic as well as Republican. You won
more than a political victory. You won the highest honor of all
-- the opportunity to serve your state and your country.
2
The problems that confront our country as we near the end of
this century often seem bigger than our ability to solve them.
And they are -- if we face these problems as only partisan
Democrats or Republicans, as parochial members of a region, or a
faction, or an interest group. But by working together, as
Americans, we can lick any problem -- no matter how big, how
complex or how deeply rooted it may be.
True, there are always naysayers who say that we will never
clean up the environment; that we will never shelter the
homeless; never solve the age-old affliction of mankind --
poverty -- poverty of knowledge and skills, poverty of
opportunity, poverty of hope.
But the cynics never take into account one of the great
success stories of our times -- state government. In this
decade, power flowed from Washington to Austin, to Springfield,
to Sacramento and to every other state capital. With this power
came new responsibilities. And history will remember that you
met your broadened responsibilities with distinction.
I know funds at all levels of government are tight. I know
you are called upon to make hard choices, as I am. But, by and
large, you are meeting the challenge of a frugal age by devising
creative new solutions to the age-old problems of care and
concern for the very young, the very elderly, the disadvantaged
and the dispossessed.
3
So whenever I see a problem that some say is insurmountable,
I draw inspiration from what you are already doing in the states.
The resilience of state government in the 1980s vindicates
the wisdom of the Founding Fathers, and forever discredits those
who would have Washington do it all. Let me assure you: I will
preserve and protect a healthy balance, a sharing of power,
between the states and Washington.
As you know, one policy area clearly designated as a prime
responsibility of the federal government is our national defense.
So perhaps the appeal I am going to make to you today will be all
the more unprecedented. The time has come for me to enlist your
energy and expertise in a different kind of national security
crisis -- the threat of drug abuse to the health and the very
future of our nation.
Crack. Heroin. P.C.P. These drugs are a plague that leave
shattered minds, ruined bodies and wasted potential in their
wake. No state in the Union is immune to this plague. Drug
crimes have claimed thousands of lives, and turned whole
communities upside down from the Eastern Seaboard to the Pacific
Coast. It is becoming apparent that our struggle against the
drug trade is more than the moral equivalent of war.
It is war.
4
As with every battle this country has ever fought, we are
all in this together -- as Americans. And as with any war, we
must have a strategy. Our strategy is four-pronged: law
enforcement -- interdiction -- rehabilitation -- and prevention
through education.
I am pleased to see so how many state governments have
formed intrastate drug task forces, and interstate panels to
share resources and intelligence. Every state should be
encouraged to join this common effort.
The federal government, just like the states, is motivated
by a new get-tough attitude on drugs. We've stiffened the
federal sentence for drug trafficking to a maximum of life.
We've toughened penalties for drug dealers who use children to
deal drugs, or who sell drugs to children. And if you commit a
drug-related murder, or slay a law enforcement officer, the
toughest sentence you can receive is the toughest sentence there
is -- death.
We've also increased our resources as we've stiffened
sentences. Since 1981, the federal anti-drug budget has grown by
nearly 370 percent. But more was needed, so I am asking the
Congress for $6 billion for our anti-drug program in 1990 -- a 21
percent increase over 1989, and a 47 percent increase over 1988.
More than $4 billion will be spent to provide grants to state and
local law enforcement agencies, to beef up federal enforcement,
and to enhance our prosecution, detention and intelligence
capabilities
+ Ampted in Jan
tobe eltiminated
which was sebudula
As. com.
5
SUSTAINM the
This includes an allocation of $150 million for the
Department of Justice drug grant program to help state and local
Moore
law enforcement agencies in catching criminals and warning kids
away from drugs.
Your
Another shining example of federal and state cooperation is
the seizure and forfeiture of assets from drug dealers. State
agencies that cooperate in drug cases will share the benefits
NOT new
from the sale of yachts, planes and autos used in drug deals. To
convert the profits of vice to finance our war against the
multi-billion dollar drug empire is more than good financial
sense. It is sweet irony and swift justice
And speaking of justice, I call upon you to scrutinize
state anti-drug laws, looking for ways to tighten them.
should
In this war against drugs, we can draw inspiration from the
words that inspired a nation at war almost fifty years ago, words
that are just as fitting today. If I may paraphrase Winston
Churchill, we must fight the drug lords on the beaches and the
streets, we shall fight in the schools, we shall interdict them
in the skies and on the high seas. We shall never surrender, not
until the last playground is free of drugs, the last pusher
behind bars.
6
Pehaps the classroom will be the most decisive battleground.
16%
Toward this end, I am proposing a $1.1 billion allocation for
drug education. Some $367 million of this will go to the
$ 12m.
Department of Education budget, to help keep drugs out of our
schools, campuses and neighborhoods. Our mission is as difficult
as it is simple: to keep kids off of drugs and out of trouble.
You will be able to take the lead in this effort, since more than
80 percent of the funds of this program will be allocated to the
16%
states and territories.
As you may have heard, we can already take heart from some
good news from the classrooms of America. According to the 1988
National High School Senior Survey, the proportion of seniors
using illicit drugs during the prior year fell from 42 percent in
1987 to 39 percent in 1988. This compares with the peak year of
1979, when an astounding 54 percent of all American high school
seniors abused drugs.
Still, 39 percent is 39 percent more than I will accept.
How can we convince these teen-agers to leave drugs alone?
Let me tell you, Presidents usually do not speak in favor of
intolerance. But the day must soon come when this nation is
utterly intolerant of so-called casual drug abuse. Then, and
only then, will we be able to declare victory.
7
It is with this in mind that I hope the Senate soon confirms
Bill Bennett as the nation's drug czar. Bill's talent as an
educator, and his rapport with young people, will be of
particular help in communicating our attitude of zero tolerance
to the next generation.
Over the next four years, we will face many common
challenges -- to our environment, to our prosperity, to our
compassion for those who have yet to fully participate in the
American Dream. But we face no common domestic challenge as
grave or as urgent as that of drug abuse.
I pledge to work with you and your state governments in this
struggle. Just as war tested the courage and character of the
British people, so our people today are undergoing a test of
national will. We shall neither flag nor fail. We shall go on
to the end fighting the scourge of drug abuse.
we shall never
surrender. With your help, and your leadership at the state
level, I know that we will prevail.
Thank you.
#
#
#
THE WHITE HOUSE
Office of the Press Secretary
For Immediate Release
March 14, 1989
REMARKS BY THE PRESIDENT
TO THE INDEPENDENT INSURANCE AGENTS OF AMERICA
ANNUAL NATIONAL LEGISLATIVE CONFERENCE
Capital Hilton Hotel
Washington, D.C.
10:18 A.M. EST
THE PRESIDENT: Thank you all very, very much. Larry
understands -- (laughter) -- but if I look a little frantic, our dog
is expecting. (Laughter.) And if you think I look frantic, you
ought to see the Silver Fox. (Laughter.) That's Barbara.
(Applause.)
No, but I'm delighted to be here; appreciate that warm
welcome, complete with a few scattered Texas flags in the audience.
And it is an honor to be before this group.
In this city, the currency of status is measured in
titles, honorifics -- senator, ambassador, secretary. But in my
book, this group holds one of the most impressive titles of all --
entrepreneur. And I know that the hunger that you feel to own a firm
of your own, start from scratch, build it, watch it grow. And I know
the satisfaction of matching resources to needs and meeting deadlines
and meeting payrolls.
A few years after World War II, when I got out of
college, I moved out to west Texas, and a couple of years after that,
the early '50s, started my own business. And it was a very small
firm -- not too small to teach me the facts of economic life. But we
got started by risk-taking; got the business education by helping
others make that company grow. And our company was a high-risk
venture. There was new technology that was unproven, full of
half-starts and failures in that -- it was all called the off-shore
drilling business.
And we took a gamble and we invested in new technology.
And then we eventually succeeded in pioneering a new way to find
America's energy. And it wasn't always easy, even in the years that
the company did reasonably well. And I recall our despair one time
-- and some of you in your business know what I'm talking about when
you think of insurance - when one of those hurricanes swept through
the Gulf of Mexico and one-third of our company's assets were
invested in a brand new drilling rig, with brand new technology -- a
hurricane swept through the Gulf and I went out with our drilling
engineer and rented a little Piper -- maybe it was a twin engine
plane but anyway, in the aftermath of the hurricane, and looked
and looked and looked. And the rig had totally vanished. People had
been taken off before the storm, but the rig was gone. One-third of
the investment of our company totally disappeared.
But from that and other such similar events, I learned
some very important lessons. When that rig went down and people lost
their jobs, when we rebuilt, there was the satisfaction of seeing
people go back to work. And I saw the strain on the faces of the
family breadwinners, but I also saw the joy.
So Washington may not always appreciate the role of small
business in creating jobs. But I do and I think you know, I used
to get needled about the resume to bring to be President of the
United States. But like you, I think one of the most important
MORE
- 2 -
things is the private sector taking risks, competing, starting
small businesses. And I hope I never forget the lessons that I
learned as a small businessman.
I also appreciate this industry's role in society.
Without insurance, the loss of spouse could mean the loss of a home.
Without insurance the loss of a parent could keep a child from
attending college. We cannot offer protection against fate, but we
can prevent the compounding of a tragedy so that a death or an
illness doesn't leave a bitter legacy of poverty or dispair for a
whole family. You prevent that kind of double tragedy, and you add a
little bit of comfort to the grieving and predictability for those
who are victims of the unpredictable. So this is your service to
society. It's as crucial a service as that of any social welfare
agency. And you cannot continue to perform it if your industry is
hamstrung by excessive regulation. (Applause.)
And that's why we have worked to remove excessive
regulations the job's not done to free the creative energies of
small firms by ordering a review of more than 100 government
regulations. The task force on regulatory relief, which I chaired as
Vice President, saved the private sector more than 600 million
man-hours of paperwork and billions of dollars in government
compliance costs. And I want to work now to continue to work to free
small business of the remaining excesses of regulation. (Applause.)
My philosophy is this; that when it comes to necessary
regulation of business, I'm committed to letting the states take the
lead, not the federal government. (Applause.) Reducing the
regulatory burden is important. But we've got to take action on
other fronts as well, if we're able to keep if we're going to do
our part in keeping American small business strong.
And that's why I've also proposed a cut in the capital
gains tax rate. Most of our major trading partners do not tax
long-term capital gains. They understand that a high capital gains
tax unnecessarily hurts our competitive position by drying up the
formation of capital, business, and jobs.
In 1978, when the Congress cut the maximum tax rate on
capital gains, the result was an explosion of new companies and new
revenues. The critics were still out there, back in '78, saying if
you do this, you're going to lose revenues; if you do this, it's an
advantage for the rich. Didn't work out that way.
The Treasury estimates that the new cut that I am
proposing will add $4.8 billion to the revenue side in Fiscal Year
1990 alone. So let the critics carp. I am going to push for this
idea that will stimulate jobs, risk-taking, capital formation. And
it's good for the economy and it is not a special tax break for the
rich. (Applause.)
Small businesses with less than 500 employees employ more
than half of the U.S. workers. You understand this, but I don't
believe many people in the United States understand it. So any
onerous new burden on small business will also throw workers out of
their jobs. And it's for that reason that I oppose this kind of
mounting movement towards mandated employee benefits. (Applause.)
In an area of tight budgets, there's always the
temptation to drop the burden of social programs on the backs of the
employers. But these policies, borne, I would say, of the best of
intentions, can have unintended and counterproductive consequences.
It's up to business and labor to negotiate their differences. And
make no mistake I support the right of labor to negotiate as an
equal. But burdensome mandated benefits serve neither business, nor
labor.
We've seen what happens in other countries, where
mandated benefit programs create obstacles to productivitiy and
growth and, thus, to new job creation. We cannot build a better
America if we weigh down our own productive sector with mandated new
MORE
- 3 -
burdens.
And let me address one other area that concerns
business and that, perhaps, you in this room are much more sensitive your
to than others. And I'm talking about tort reform. Of course, there
are many litigants who deserve a jury's sympathy -- we can start from
when businesses are bankrupted, when mothers struggle to find an
that premise. But when local governments cannot install playgrounds,
obstetrician, when volunteer organizations -- boyscouts and
girlscouts and others -- have to pull back for fear of excessive
claims leveled against them, then it is time to consider limiting
some of these outrageous settlements. (Applause.)
Tort reform is critical to the health of businesses and
volunteer organizations alike. All of our policies are directed
toward a single goal -- building a better America. And to achieve
priorities, an attack on the deficit, hold the line on taxes -- no
this goal, my plan has four broad objectives: attention to urgent
private fail. sector, our nation would be mired in the past, doomed to
new taxes -- and an investment in the future. And without a strong
ready for change but who relishes the thought of it. And this
The entrepreneur is the man or the woman who is not only
thought leads me to speak to you in more general terms now about
presidency, the challenges I hope to meet, the accomplishments that my I
hope we can make for our country.
I'm a man of this century. I fought in the century's
mid-century of America's greatness. But I want to be a President who
greatest war and raised a family and built a business during the
is remembered for preparing our country for the next century. This
is my entrepreneurial definition of leadership -- to see the shape of
things to come and to prepare for that 21st century world only 11
swift and fast as a torrent. Change in the American family, in our
years away. By the year 2000, we will have experienced change as
work habits, change in technology and change in the world economy.
Change in the rate of change itself.
constantly. But the qualities on which it was founded are timeless
The makeup of our remarkable nation has been evolving
and true. And one of those constants is that we are an
entrepreneurial people, at our best when we are challenged and when
ve boldly face the future.
problems of the future today. A complacent society is doomed to
And so my agenda is this: to confront the emerging
comfortable decline. And we are not complacent. A dynamic society
is one that keeps pace with the times. So call it that if you will
-- a dynamic America. But recognize in the restless drive and vision
of the American entrepreneur our best qualities as a nation.
A complacent nation would take comfort that America is
free in a world at peace. But world events are moving too swiftly
for us to relax in set ways and to cling to smug assumptions. The
question we must answer is will American foreign policy be flexible
developments? enough to meet the emerging and potentially dramatic new world
And with this question in mind, I've asked all the
appropriate agencies --state Department, Defense, other agencies --
to reassess our foreign policy and defense strategy. And this
comprehensive review will set the basis for our future actions and
guide America into the next decade and toward the next century.
I see a couple of kids here. I believe they have a
chance to grow up in a more peaceful world. I believe we have, with
the changes in the Soviet Union, great challenge, but also great
opportunity. But the answer is not to rush in. The answer is to
take a prudent re-evaluation and then move forward with the
rest of the free world.
ieadership that only the United States of America can provide the
MORE
- 4 -
On economic policy, I've submitted to the Congress a
budget that is fiscally responsible. This budget does four things:
It substantially reduces the deficit, it includes no new taxes, it
--
(applause) -- it addresses key priorities, and it still provides for
important investments which will help make us more competitive in the
future.
My speech to Congress, incidentally, was accompanied by
193 pages of specific recommendations for the budget. And looking
back in the history books, if you will permit a comment about -- it
might side a little bit prideful -- we found that no other president
in recent history has presented quite so much information to Congress
at such an early date.
And I've also submitted a proposal to solve a festering
problem that threatens our future prosperity -- a plan to restore the
integrity of our nation's savings and loan institutions. It's an
enormous problem, and our plan has been well-received on both sides
of the aisle on Capitol Hill. I've asked the Congress to take action
within 45 days; challenged them, now that we've come up with the
proposal, to move forward. This problem requires prompt and prudent
action.
The changing nature of American society to more working
parents is putting pressure on our most basic social institution.
I'm talking about the family. How will we respond to this change?
We simply cannot afford to create some massive new entitlement
program. And that's why I am proposing a child care plan that
combines tax credits and private sector resources to offer parents a
choice. I want to empower parents, not government, to seek the best
and safest environment for their children. And the underpinning of my
plan is the family -- (applause) -- strength in the American family.
But many other areas of change. Homelessness affects a
small proportion of Americans, but concerns us all. I drove here
today or when you look out the window of the White House and see the
ragged, pathetic figures huddled over the steam grates of the
Ellipse, I see an affront to the American dream -- a national shame,
if you will. And we must seek the root causes of and devise the most
practical solutions for the homelessness.
The environment, once the concern of a far-sighted few,
is now a top priority of my administration at home and abroad. You
know, this isn't a conservative or a liberal question -- the question
of the environment. I think of Teddy Roosevelt as one of the great
conservationists, one of the great environmentalists. The time has
come to lay aside partisan approach to these enormous enviromental
questions. We must devise a global approach to the problem of ozone
depletion and global warming. We intend to make rapid progress on
acid rain and see that a new clean air bill is produced. And we've
already broken ground in joining with other nations to call for the
elimination of the CFCs in adopting a tough new policy on the export
of hazardous waste.
And there's drugs. The scourge of drug abuse will test
our resolve and a mettle as a people. I'll bet you if I could talk
to each one of you in a family setting, that you'd tell me the things
that concern you the most is the question of drugs -- how it's
affecting your schools; how it's affecting your own children or your
grandchildren. And I'm concerned, as well. And I'm asking the
Congress for $6 billion for our antidrug program in 1990 to beef up
drug education, rehabilitation, law enforcement and, yes,
interdiction.
And I'm also pleased that we have a strong, new drug
czar. I'm a little confused as to why, in the United States --
(laughter) -- we want a strong, new leader, we call him a czar.
(Laughter.) But nevertheless, that's -- I'll defer to the Congress
on this one. (Laughter and applause.) We've got a strong one. Call
him a leader, call him a czar -- Bill Bennett. And he's at my side,
shoulder-to-shoulder to guide and coordinate this all-out effort
MORE
- 5 -
against drugs. And it's not easy. When you look at the complexity
of the federal government and the number of the agencies that are
involved in this question of antinarcotics, it is a massive executive
coordinative job. And Bill Bennett will be superb as the first drug
czar.
And finally, I want to single out one area which in so
many ways is preeminently important to our nation. I am sure it is
of particular importance to your family. We have got to protect and
strengthen our schools. You and I know that education is our most
enduring legacy. And you and I know that education is nothing less
than the very heart and soul of our civilization. I want that
control to remain with the families and the PTA and the local school
boards and the states before the federal government when it comes to
the control of our educational process, of our curriculum. And I
will resist any effort to centralize all the answers for education
here in Washington, D.C.
But, you know, education is this enduring legacy. And as
we face a new decade and a new century, we also face a new challenge
to revitalize and restore the system that our forebears bequeathed to
us to ensure that American education is second to none. And I've
made a number of proposals to work towards this goal, work with the
states and the local to achieve that goal. Among them is my request
to reward those schools whose students show measurable progress is
educational achievement while maintaining a safe and drug-free
environment.
I've also asked for an annual fund of $100 million in new
appropriations to help create magnet schools to broaden the
educational choice of parents and students. And I've made many other
proposals, including programs to strengthen the historically black
colleges and universities, to reward our best teachers. And I appeal
to you to get active in your schools, to share your knowledge,
expertise and resources where it is most needed.
I've laid out in broad terms, then, this agenda for
building a better America. And, yes, it is ambitious, but it is no
less ambitious, no less dynamic than the American people themselves.
And as the businessmen and women, you can help me to fulfull this
agenda, to meet the challenges that face our country. By working
together, we can achieve absolutely anything. And so the problems
seem big at times out there, but believe me, never underestimate the
ability of the American people if we together set out sights on
achieving certain goals.
I need your help. I'm delighted to be here, and thank
you for inviting me. (Applause.)
END
10:41 A.M. EST
DAVIS I DOOLIEY
THE WHITE HOUSE
Office of the Press Secretary
For Immediate Release
March 10, 1989
REMARKS BY THE PRESIDENT
TO NATIONAL CONFERENCE OF STATE LEGISLATORS
Room 450
Old Executive Office Building
11:11 A.M. EST
THE PRESIDENT: Thank you very, very much. It's good to
see all of you. Listen, nice welcome, thank you. To our Secretary
-- Secretary Dole, my greetings. Delighted to see you here. And
Andy Card, and our -- ripped off right out of the ranks of one of
your states, the former speaker, Deb Anderson here, who I'm delighted
to see in her official duties. And I'm pleased to be here. And I
would like to thank the president and past officers for your gracious
invitiation -- Sammy Nunez, Lee Daniels, Ted Strickland. I thank all
of you.
The last time I spoke, we were in the middle of America,
in the middle of summer, and in the midst of a tough campaign year.
Fate has smiled since that July day in Indianapolis. Then, we were
all candidates. Probably everybody in this room -- maybe an
overstatement. Today everyone in this room is a winner. And for
those of you who are Republicans, you discerning devils, --
(laughter) -- there was a time -- I've got to admit, there was a time
when I thought I'd drag all of you down. But here we are.
(Laughter.) And for those of you who are Democrats, I'd like to
claim credit, but I can't figure out how at all. But anyway, well
done.
And in all sincerity, I do want to congratulate every
legislative leader in this room, Democrat and Republican alike,
because you did win more than a political victory. The highest honor
of all you won -- opportunity to serve. And I really still -- I feel
that way, have always felt that way about public service. And
certainly you do, or you wouldn't be here today.
The problems that confront our country as we near the end
of this century often seem bigger than our individual ability to
solve them. And they are big. And if we face these problems as only,
partisans -- Democrats or Republicans -- or parochial members of a
region, or a faction, or an interest group, we've got real problems.
But by working together, as Americans, we can, I believe, lick any
problem -- no matter how big, how complex or how deeply rooted it may
be.
There are always naysayers who believe we're going to
never clean up the environment or never shelter the homeless, never
end that old-age affliction of mankind, poverty -- poverty of
knowledge and skills, of opportunity, and the poverty of hope.
But the cynics never take into account one of the great
success stories of our times. And I am talking about state
government. In this decade, power flowed from Washington to Austin,
to Atlanta, to Sacramento and to every other state capital. And with
it came new responsibilities. I'm talking, of course, of the concept
of federalism. And history will remember that you met these
broadened responsibilities with distinction.
I know that funds at all levels of state government are
MORE
- 2 -
tight. All levels of federal government are tight. And I know that
you're called on every day to make the hard choices, as I am. But,
by and large, you are meeting the challenge of a frugal age by
devising creative new solutions to these age-old problems of care and
concern for the very young, the very elderly, the disadvantaged, the
dispossessed.
So whenever I see a problem that some say is
insurmountable, I draw inspiration from what you are already doing in
the states.
The resilience of the state government -- state
governments in the '80s vindicates, in my view, the wisdom of the
Founding Fathers, and forever discredits those who would have
Washington do it all. And let me assure you, I will preserve and
protect a healthy balance, a sharing of power, between the states and
Washington because I fervently believe that federalism works.
And I remember meetings that I had with governors at the
time of the campaign discussing the social issues. And I learned
more from the briefings -- this happened to be in a partisan context
of a campaign but I learned more from the briefing by the
governors than any of the people here in Washington to whom I had
access because I was Vice President. And I thought about why it made
such a difference and why I learned so much from them, and it was
because they're on the cutting edge; they are out there working with
you all to solve the problems, to figure out what works, to make the
changes. And so that may sound elementary to some, but I think you
must know what I mean governors have to deal in what works. And
they get that from you all with the representation you have give
in your districts.
As you know, one policy area clearly designated to us
here is national defense. And so perhaps the appeal I'm going to
make to you today will be all the more unprecedented. The time has
come for me to enlist your energy and expertise in another national
security crisis. And you know what it is and I know what it is and
the American people know what it is -- and I'm talking, of course,
about the threat of drug abuse to the health and the very future of
our nation.
I wish that each and every one of you could have been
with me yesterday in New York when I went to the DEA headquarters and
I talked with the widow of the fallen the latest victim of the
drug criminals at my side talked to the agents there. But the
best part was the meeting afterward, talking in a very private
setting to those agents who are undercover, couldn't be out there in
public, but who told me, case by case, of the problems they face.
And I don't want to get away from the text here too far, but the
thing that really impressed me -- and I expect some of you who have
had leadership roles in your states could talk to this is that the
culture has changed.
They say it used to be if you came in and identified
yourself as a Fed or a police officer of any sort and drew a weapon
on these people, they'd give up. And now they automatically shoot.
They go to the barricades. And there's some reasons for that. They
get the same penalty for killing a police officer as they get for
being caught with a certain amount of narcotics.
We've got to do something about that. Crack, heroin, PCP
-- these drugs are a plague that leave an aftermath of shattered
minds and, you know, totally wasted potential. No state in the Union
is immune to this plague. And drug crimes have claimed thousands of
lives, and having seen some of the barricaded crack houses that have
been knocked down by the battering rams of the police, it's
everywhere. Los Angeles I went out there one evening and took a
look with Daryl Gates at what his officers face every day, and I'll
tell you, it really drives it home.
MORE
- 3 -
As with every battle this country's ever fought, we are
in it together as Americans. And as with a war, we've got to have a
strategy, and ours is education, rehabilitation, law enforcement, and
then doing better in interdiction. I'm encouraged to see so many
state governments forming these intrastate drug task forces and
interstate panels to share resources and intelligence. And I would
appeal to every state to join these efforts. Every state should look
for ways to toughen its drug laws.
The federal government, just like the states, is animated
by a new get-tough attitude on drugs. And we've stiffened the
federal sentence for drug trafficking to a maximum of life. We've
toughened penalties for dealers who use children to deal drugs or
selll drugs to the kids. And if you commit a drug-related murder or
kill a cop, the toughest sentence you can receive is now the toughest
sentence there is, and that is the death penalty. And we've also
increased our resources as we've stiffened the sentences.
Since 1981, the federal antidrug budget has grown by
nearly 370 percent. But more was needed, so I'm asking the Congress
for $6 billion for our antidrug program in 1990 -- more than $4
billion will be spent to provide grants to the state and local law
enforcement agencies to beef up the federal enforcement, to enhance
our prosecution, detention, and intelligence capabilities. And this
includes sustaining the 150 million drug grant programs so that the
Department of Justice can help state and local law enforcement
agencies catch criminals and warn kids away from drugs.
Another shining example of federal and state cooperation
-- the seizure and forfeiture of assets from drug dealers. State
agencies that cooperate in drug cases will share the benefits from
the sale of yachts, planes, and cars in used drug deals. Again, my
experience yesterday the head of the DEA showed me a table -- $20
million of cash that they had taken in one -- that they had gotten in
one -- a part of it. I don't think all $20 million was on that
table, but a lot of it was -- in small bills, incidentally -- 20s,
10s, that kind of thing. They had taken this money in one -- caught
one truck loaded with $20 million and nobody claimed it. Nobody even
inquired about it. Obviously, they didn't want to get in too much
trouble. (Laughter.) But there was no undercover inquiry. That's
just the cost of doing business. So $20 million is down the tube and
go on about our business.
Same as they dump their airplanes in the water off the
Bahamas the cost of business. Three Cesnas and that's the cost of
getting the stuff in here.
But even with these programs, the campaign against drug
abuse will be hard-fought. It's a war and it's going to last for
years. And perhaps we should take inspiration from a nation at war
almost 50 years ago. As Britain faced an adversary that tested the
courage and character of its people, Winston Churchill vowed never to
surrender. And in today's war against the pushers, we must draw from
these same deep wells of national purpose to summon the spirit of
defiance.
Our single most important task is to keep the kids off of
drugs and out of trouble, and toward this end I am proposing a $1.1
billion allocation for drug education and prevention -- a 16 percent
increase over 1989. Some $367 million of this is going to go to the
drug-free schools and communities program to help keep the drugs out
of our schools, campuses and neighborhoods -- an increase of $12
million here. The programs are many. You're going to be able to
take the lead in this effort since more than 80 percent of the funds
of the drug-free schools and communities will be allocated to the
states and territories.
As you may have heard, we can already take heart from
some good news from the classrooms. According to the 1988 National
High School Senior Survey, the proportion of seniors using illicit
MORE
- 4 -
drugs during the prior year fell from 42 percent in '87 to 39 percent
-- a modest drop, but at least a decrease. This compares with the
peak year of '79, incidently, when an astounding 54 percent of all
American high school seniors used drugs.
Still, 39 percent is horrible. And we're going to spend
money to get the job done, but we need to change something. We've
got to have a national attitude of intolerance. Let me tell you,
presidents don't normally speak out in favor of intolerance, but the
day must soon come when the nation is utterly intolerant of this
casual drug abuse. Back to yesterday -- one of the undercover agents
telling me about the white collar use. This guy was down somewhere
on Wall Street and it was just considered normal in the firm in which
he was operating to -- at the end of the day, to offer to the people
doing the clerical work there some kind of line of cocaine if they
would stay for an extra few hours. I mean we've got to change that
whole toleration, that whole cultural identity that suggests that
this is the fast lane, or the easy way, or that it's okay.
Over the next four years we're going to face a lot of
common challenges. The environment -- I do want to do something on
that. With the help of the states I'm convinced we can here. To our
prosperity -- we're going to ask your forebearance as we call for
some tough measures to face down this federal budget deficit. To our
compassion -- for those who have yet to participate fully in the
American dream.
And the challenge of drug abuse is going to test our
resolve and our mettle as a people. So I just wanted to tell you and
pledge to you, leader to leader, that I want to work with you in the
state governments in this struggle. Bill Bennett, our new drug czar,
is charged with coming up with a national strategy, a national
direction in six months after he takes office. He'll be good, he'll
be tough. He's got a difficult assignment because of the way
government works. Picture in your own state governments -- it's a
little it's not a very neat and easy way to draw the organization
chart because he has to not only get the attention of the Defense
Department or the Attorney Generals without the standing, protocol
standing over them, he's got to get their attention and have us all
marching in the same direction.
So what that means is the President is going to have to
be shoulder-to-shoulder with Bill Bennett. And I'm prepared to spend
the time and devote the energy necessary to give it that stature
because it won't happen if it just bogs down in some kind of
bureaucratic turf fights over who's going to do what on interdiction,
or education, or crime-fighting, or whatever it is.
So I wanted to tell you we do want to work with the
states. War tested America and her allies in the '40s, and so our
people are undergoing a test of national will today. To paraphrase
Churchill again, we shall not flag or fail. We're going to go on to
end the fighting of this -- to keep going to win the fight against
the scurge of drugs. And I'm confident; I believe it can be done
because I sense a change in the country. I sense people -- it's more
than rhetoric now. I think it's into every community, every state,
and certainly all through the federal government.
So we're not going to give up on this one. We need your
help, we need your leadership, we need your ideals. I wish that we
had more funds to put in a program here or support of an initiative
there. But I don't want to mislead you. We're dealing in a time of
very constrained federal resources. So we've got to do a lot,
working with you and working with programs that I refer to as the
thousand points of light -- the willingness of one citizen out there
willing to help another.
And so thank you for what you're doing, thank you for
coming here to the White House. I'm delighted to see each and every
one of you. God bless you all. Thank you. (Applause.)
END
11:28 A.M. EST
Nolan E. Jones
Committee Director
Justice and Public Safety
National Governors' Association
HALL OF THE STATES
444 North Capitol Street
Washington, D.C.
20001
(202) 624-5360
GVERN
July 8, 1988
RS'
Volume 22
Number 28
Published by the
National
BULLETIN
Governors'
Association
States Step Up
Illinois is creating a multijurisdictional prosecu-
tion program, upgrading crime laboratories, creat-
ing a statewide computer network with informa-
Attacks on Drugs
tion on drug offenders, establishing an equipment
arsenal for local enforcement agencies, and set-
Through systemwide efforts, states
ting up treatment programs for drug-dependent
offenders.
are addressing the problem
The Michigan Model for Comprehensive School
aggressively and comprehensively
Health Education, initiated by Gov. James J. Blan-
chard in 1984, has taught more than 500,000 chil-
dren of the dangers of alcohol and drug abuse.
By Mark Miller
Treating substance abuse a part of a larger pattern
stablishing anti-drug campaigns as a fun-
that includes school failure, teenage pregnancy,
E
damental state government activity-
and delinquency, the program focuses on devel-
such as promoting economic growth or
ops strong self-concepts to help children resist
encouraging excellence in education-
peer pressure.
states are attacking drug abuse and drug traffick-
NGA's policy on drug abuse and drug trafficking
ing with comprehensive efforts involving preven-
states that "to be successful, a drug prevention
tion, enforcement, and treatment. For example:
campaign must be planned as an ongoing and
South Carolina Gov. Carroll A. Campbell Jr. re-
long-term commitment, and to be sustained it
cently announced the creation of the RAID Team
must be community-based. Governors can play a
(Retaliation Against Illegal Drugs), a strike force of
key role in mobilizing local coalitions that are just
law enforcement officials that will crack down on
as broad-based as the statewide alliance."
establishments where illegal drugs are bought
In line with this policy, the governors have taken
and sold; coordinate marijuana eradication ef-
the lead in coordinating drug abuse policy and
forts; and assist understaffed local law enforce-
pooling state resources for comprehensive and
ment agencies.
Continued on page 2
Governors, Lyng, Congressional Leaders Agree To Move Ahead
Quickly on Drought Assistance Bill for Farmers, Ranchers
G
overnors from
guage of current pro-
budget limits. NGA will
and the governors-are
year period, but the gov-
drought-stricken
grams can limit aid and
ask the Senate to consid-
on the same wavelength
ernor's proposal would
states met with U.S. Agri-
be unclear in some
er holding the agriculture
for dealing with the
allow farmers to receive
culture Secretary Richard
areas.
appropriations bill from
drought."
those payments "up
Lyng and congressional
Assistance should go to
the floor, so that it can
South Dakota Gov.
front."
agriculture leaders this
all farmers who have suf-
be made compatible
George S. Mickelson,
lowa Gov. Terry E.
week and agreed that
fered crop losses, re-
with drought assistance
committee vice chairman,
Branstad, chairman of
Congress should move
gardless of whether they
legislation.
stressed the importance
NGA's Task Force on
ahead quickly on com-
grow "program" crops or
North Dakota Gov.
of providing cash flow re-
Rural Development, said
prehensive drought as-
"non-program" crops.
George A. Sinner, chair-
lief to farmers. Gov.
that Congress was
sistance that will help all
Program crops are crops
man of NGA's Committee
Mickelson has proposed
"making a sincere effort
farmers hurt by the
such as wheat, which are
on Agriculture and Rural
a state program that
to deal with the
drought.
covered by existing agri-
Development, empha-
would help farmers re-
(drought) problem in an
Participants in the
cultural aid programs;
sized the importance of
structure their debts
effective way." Other gov-
meeting agreed that:
non-program crops, such
consensus on a "targeted
through a federal conser-
ernors attending were
Governors and Con-
as pinto beans and
level of support" for
vation reserve program
Minnesota Gov. Rudy
gress will work together
tomatoes, are not cov-
farmers suffering low
(Bulletin, April 22). The
Perpich, North Carolina
to develop bipartisan
ered under existing
crop yields. "I want to be
federal program pays
Gov. James G. Martin,
"core" legislation for
programs.
sure that everybody-
farmers and ranchers to
and Missouri Gov. John
drought assistance, be-
Aid to farmers may be
the leadership in Con-
take fragile farmland out
Ashcroft.
cause administrative lan-
constrained by federal
gress, the administration,
of production for a 10-
Continued on page 2
GOVERNORS' WEEKLY BULLETIN
2
Drug Abuse
health organizations, local government, and law
Continued from page I
enforcement agencies.
The group's philosophy is that long-term solu-
innovative programs. Governors have helped de-
tions to substance abuse are possible only
velop interagency cooperation, community par-
through the combined efforts of all major sectors
ticipation, state-level training for programs, and
in the community, supported by a collaborative
multijurisdictional task forces.
effort at the state level.
Cooperation, Coordination. The level of coop-
In January 1987, Kansas Gov. Mike Hayden
eration and coordination among state, local, and
launched Toward a Drug-Free Kansas, designed to
federal agencies, within states, and between
provide a comprehensive approach to alcohol and
states, has increased substantially since passage
drug education, prevention, treatment, and en-
of the Anti-Drug Abuse Act of 1986. At least 17
forcement. Several state agencies provide re-
states have created or expanded multijurisdic-
sources and training for numerous community
tional task forces, which allow a regional approach
anti-drug abuse programs.
to drug abuse and facilitate the sharing of person-
The campaign has established a Regents Uni-
nel, equipment, and information.
versity Task Force on Drug Abuse, which has de-
Minnesota has channeled all anti-drug abuse
veloped a 26-point plan to reduce and prevent
One of the most
funds, for narcotics control, treatment, and educa-
alcohol and drug abuse on college campuses by
popular education
tion, through a single coordinating agency, the
providing substance abuse education and sup-
State Planning Agency. Gov. Rudy Perpich's Inter-
port services to college students.
programs is DARE,
Agency Task Force on Criminal Justice Policy sets
which teaches
policy in all three areas. The planning agency
Drought Aid
worked with other agencies to prepare an admin-
students to avoid
Continued from page I
istrative spending plan for federal funds, consis-
Other states were
ministration support. "We
drugs by building
tent with task force policies.
represented by lieuten-
don't want legislation
self-esteem and self-
Like many other states' lead agencies, Rhode
ant governors, agriculture
just to talk about," said
Island Gov. Edward D. DiPrete's Interagency Task
commissioners, or gover-
Leahy. "We want some-
confidence.
Force on Drugs involves groups such as the state
nors' chiefs of staff, in-
thing that's going to
police, the attorney general's office, the Gover-
cluding Indiana, Kansas,
pass."
nor's Justice Commission, the Governor's Office of
Mississippi, Nebraska,
Governors also
Highway Safety, the state courts, the district attor-
New York, Ohio, Tennes-
pledged to help USDA
see, and Vermont.
ney's office, and the directors of state depart-
provide clear language
Agriculture Secretary
ments of health, education, corrections, transpor-
for assistance program
Lyng said he would con-
instruction. With other
tation, children and families, and mental health,
tinue to participate in bi-
meeting participants,
retardation, and hospitals. The state also has set
partisan efforts to devel-
they also discussed live-
up a special court to handle drug-related cases.
op drought assistance
stock assistance, USDA
Alabama's public safety department empha-
legislation, and said he
regulations on grazing or
sizes stopping the spread of drugs, and Gov. Guy
thought the President
haying in conservation
Hunt has increased the roles of the Alcoholic Bev-
would sign legislation
reserve areas, and the re-
erage Control (ABC) Board and the Marine Police
that is reasonable, com-
lease and/or shipment of
Division of the state conservation and natural re-
passionate, and helpful.
emergency water
sources department in the war on drugs. In 1987,
Senate Agriculture
supplies.
Committee Chairman
the public safety department confiscated almost
Participants also ap-
Patrick Leahy (D-Vt.) and
plauded Lyng's an-
twice as much marijuana as it did the year before,
House Agriculture Com-
nouncement that all live-
and total drug and property confiscations were up
mittee Chairman Kika de
stock farmers, whether or
138 percent. ABC agents have confiscated almost
la Garza (D-Texas), who
not they are in an offi-
$17 million worth of drugs and property, and ma-
attended the meeting
cially designated drought
rine police officers recently helped crack a drug
with other members of a
county, could participate
smuggling operation in which $20 million worth of
congressional task force
in emergency feed assis-
drugs and more than $400,000 worth of property
on the drought, both em-
tance programs.
were confiscated.
phasized the importance
On June 23, governors
of bipartisan cooperation
from 10 states met with
Community Groups. Besides coordinating the
on a bill that can win ad-
efforts of state agencies, states have also estab-
Lyng in Chicago, III.
lished organizations designed to encourage com-
July 8, 1988
munities to support and develop anti-drug abuse
Volume 22, Number 28
programs. Communities for a Drug-Free Colorado,
Published weekly, except for one week in December and one week in
August, by the National Governors' Association, 444 N. Capitol St.
initiated by Gov. Roy Romer in 1987, is a three-
N.W., Washington, D.C. 20001, (202) 624-5330. Opinions expressed
year project to reduce substance abuse through-
herein do not necessarily reflect NGA policy. Copyright 1988,
out the state. Co-chaired by the governor and Pat
National Governors' Association. Permission to reprint granted upon
request. The Governors' Weekly Bulletin (ISSN 0888-8647) is
Bowlen, owner of the Denver Broncos, the group
provided at no cost to governors' offices. Subscriptions for state
encourages the development of collaborative ef-
officials are $50 a year, subscriptions for others are $75 a year.
forts within communities that involve a broad
New Hampshire Gov. John H. Sununu, Chairman
range of public and private partners, including
Raymond C. Scheppach, Executive Director
Rae Young Bond, Director of Public Affairs
schools, families, businesses, community groups,
Alan Janesch, Managing Editor
GOVERNORS' WEEKLY BULLETIN
3
Massachusetts Gov. Michael Dukakis organized
wide. Participating agencies include the county
the Governor's Alliance Against Drugs, a five-year
district attorney's office, sheriff's department,
plan, in December 1984. The alliance is a coordi-
three city police departments, and the Milwaukee
nated statewide effort to mobilize communities to
Suburban Police Chiefs Association.
address the problem of student alcohol and drug
In Washington state, approximately $1.6 million
abuse. More than 300 communities currently par-
in federal funds in 1987 went to the state patrol's
ticipate, and more than $2.2 million in cash and in-
narcotics unit and crime laboratory system. An-
kind contributions have been collected. Commu-
other $1.6 million in federal funds went to local
nities are asked to create school/community advi-
units in the state. This funded 10 new regional,
sory councils chaired by school superintendents.
multijurisdictional task forces that target drug dis-
Through the alliance, drug and alcohol programs
tribution system and traffickers; a court program in
have been sponsored by state agencies, major
which visiting judges and pro-tem judges help
media outlets, private health care providers, pro-
local jurisdictions reduce backlogs of drug cases;
fessional and amateur sports organizations, police
training for law enforcement personnel in investi-
associations, and private corporations.
gation procedures and techniques; and training
In Ohio, ONTASC (Ohio Network: Training and
for prosecutors in asset forfeiture.
Assistance for Schools and Communities) involves
Other programs that states have implemented:
skilled professionals from around the state who
Eradication. Hawaii has undertaken a vigorous
The governors have
provide school and agency personnel with inno-
program that eradicated $1 billion worth of mari-
vative strategies to enhance the lives of youth.
juana in 1987. Operation Green Harvest has coor-
taken the lead in
ONTASC uses teams of principals, teachers, par-
dinated the work of state and local police across
coordinating drug
ents, law enforcement officers, substance abuse
the state for several years. A new program, under
abuse policy and
specialists, and other school personnel. The pro-
which marijuana plants are sprayed from hovering
gram currently funds 37 programs for women and
helicopters, involves the cooperation of numer-
pooling state
girls that emphasize networks with other agencies
ous federal, state, and local agencies. The state
resources for
to provide outpatient treatment, residential treat-
also recently launched a coordinated federal,
comprehensive and
ment, domestic violence shelters, and prevention
state, and county drug interdiction program that
and education.
identifies methods used to ship drugs within the
innovative
Law Enforcement. State programs acknowl-
state and to mainland destinations.
programs.
edge the extent of the drug abuse problem in both
Education. One of the most popular education
urban and rural areas, with special attention on
programs in the country is DARE (Drug Abuse
the large cities. But drug abuse and drug traffick-
Resistance Education), taught by police officers to
ing are regionwide problems and reach all parts of
fifth and sixth grade students. The 17-week pro-
the states, especially with the trans-shipment of
gram, which was developed in Los Angeles in
drugs within states and into other states.
1983, teaches students to avoid drugs by building
States have recognized the toll that drug abuse
self-esteem and self-confidence. The DARE pro-
takes on rural areas as well as the large cities. In
gram in Los Angeles has grown from 10 officers to
Arkansas, for example, state treatment data indi-
80 who participate in every elementary school in
cate that the number of admissions for drug abuse
the city.
treatment in 1986 was highest in the state's south-
Illinois was the first state to implement DARE
eastern region, which is heavily agricultural and
statewide. Coordinated by the Illinois State Po-
contains only one major city.
lice, Board of Education, Department of Alco-
One way that cities have benefited from federal
holism and Substance Abuse, local educators, and
anti-drug abuse funds is through grants to regional
police officials, the state's pilot program involved
task forces. For example, drug enforcement efforts
86 schools, representing 46 school districts and
in Illinois are consolidated into the state police
8,500 students. Illinois officials also have led
department, with Metropolitan Enforcement
DARE training classes for officers from at least 11
Groups (MEGs) and task forces conducting local
states as well. The state, which has instructed
enforcement operations. A $1.47 million drug en-
more than 170 officers, has been made a DARE
forcement grant funded improvements at the Chi-
regional training center.
cago police department's crime laboratory, and
Virginia's DARE program, begun as a pilot proj-
$1.9 million was used to begin a multijurisdic-
ect in 1986 and implemented statewide in 1987,
tional prosecution program aimed at major drug
was initiated by the state police in cooperation
traffickers in the Chicago area.
with the Department of Education and local law
In Wisconsin, the Milwaukee County Metropoli-
enforcement agencies. The program, in which 90 of
tan Drug Enforcement Group was awarded $392,-
134 school districts participated in the past year,
939 of the $2.2 million in federal dollars for en-
has reached a total of 134,000 fifth- and sixth-
forcement available to governmental units in the
graders to date.
state in fiscal 1987. With state and local matches,
Prevention. In February 1988, Alabama Gov.
the group received a total of $523,919, which will
Hunt sponsored the state's first Governor's Con-
be used to identify, investigate, prosecute, and
ference on Drug Awareness, which provided more
convict major drug dealers and to reduce con-
than 2,000 young people and adults with current
trolled substances available in the Milwaukee
metropolitan area and, as a result, available state-
Continued on page 4
GOVERNORS WEEKLY BULLETIN
4
P
olicy Deadlines. Pro-
of the staff work on proj-
Drug Abuse
Briefly
posed policy state-
ects where there is signif-
Continued from page 3
ments that individual
icant similarity with busi-
information on drug abuse. In an attempt to offer
Stated
governors want to have
ness activities and
every young citizen in the state the same informa-
considered at NGA's Aug.
technology:" Examples:
tion, Gov. Hunt is also sponsoring regional confer
6-9 annual meeting have
procurement, motor vehi-
ences in rural areas.
been submitted to NGA
cle maintenance, and
Colorado's Communities for a Drug-Free Colo-
and are being reviewed
printing. Gov. Celeste's
remarks were included in
rado uses a combination of prevention strat-
by the appropriate
standing committees. In
proceedings of a confer-
egies, including curriculums for kindergarten to
accordance with NGA
ence held by the Center
12th grade students, programs for higher éduca-
rules, committee policy
for Urban and Public Af-
tion, alternative activities, information, peer
statements will be trans-
fairs at Wright State Uni-
leadership, early intervention, and referral
mitted to all governors
versity in Dayton, Ohio.
programs.
by no later than July 25-
I
nnovation Meeting.
Treatment. South Dakota Gov. George
at least 15 days before
Winners of national
Mickelson's office is working with the State
the meeting's closing
awards for innovation in
Board of Charities and Corrections to develop a
plenary session, to be
state and local govern-
statewide program for chemical dependency
held on Aug. 9.
ment will meet Nov. 9-11
treatment and counseling in the correctional sys-
L
oaned Executives.
for an innovations confer-
tem. When the program is fully implemented,
Working partnerships
ence in Australia and
each correctional facility will have an accredited
with the private sector
New Zealand. Co-spon-
chemical dependency program.
are the key to the suc-
sored by the Academy
cess of many major state
for State and Local Gov-
The Colorado health department's alcohol and
initiatives, Ohio Gov.
ernment's International
drug abuse division licenses approximately 150
Richard F. Celeste said at
Center and the Australian
public and private substance abuse programs in
a conference on loaned
Local Government Asso-
the state. The division contracts with 38 communi-
executives. "Those of us
ciation, the conference
ty agencies to provide a range of services focusing
in state government
will include panel ses-
on three populations-low-income persons who
should make more effort
sions on human services,
could not otherwise afford treatment, chronic se-
to draw upon the tre-
education, and training;
vere and socially unstable individuals who cannot
mendous wealth of ex-
infrastructure and trans-
afford or access private treatment, and publicly
pertise, resources of ex-
portation; pollution con-
intoxicated persons who can be taken to a non-
perience, and
trol; and local economic
understanding that exist
development. Also
hospital detoxification facility for withdrawal, eval-
in
private busi-
scheduled are sessions
uation, and referral.
nesses," said Gov. Celes-
on the innovation trans-
In fiscal 1988, the Massachusetts public health
te. "I encourage the de-
fer process and the fos-
departments alcohol and rehabilitation division
velopment of ongoing
tering of an organiza-
funded 385 residential and ambulatory programs.
loaned executive pro-
tional climate that
Ninety-six percent of the divisions' funding goes
grams." A guide from the
encourages innovation in
to direct service, including alcohol and drug de-
Coalition to Improve
the delivery of public
toxification, halfway houses and therapeutic com-
Management in State
services. Other meetings
munities, ambulatory and residential youth pro-
and Local Government,
and site visits will be
to which NGA lent its co-
held between Nov. 2-14.
grams, outpatient counseling, methadone ser-
operation, says that loan-
For more information,
vices, driving under the influence programs, and
ed executives can per-
contact the center, (202)
prevention training programs.
form "a substantial part
638-1445.
Mark Miller is an editor in NGA's public affairs office.
GVERNORS WEEKLY BULLETIN
National Governors' Association
Hall of the States
444 North Capitol Street
Washington. D.C. 20001
On the Inside
States Step Up Attack
On Nation's Drug Problem
Governors Review Recommendations
To Aid Drought-Stricken States
ADDRESS CORRECTION REQUESTED
A HISTORY ON NGA INVOLVEMENT IN DRUG ISSUE
In the summer of 1982, NGA adopted the first policy on drug control,
calling for a national strategy with federal involvement.
In the fall 1982, NGA along with the National Criminal Justice
Association (NCJA) convened an ad hoc group of Governors' staff, state
policymakers and state law enforcement officials to assess states' drug
control needs and to deliberate a state role in the national drug
control strategy.
Also in the fall of 1982, the Reagan Administration issued a status
report on the national drug control effort, calling for an increased
intergovernmental cooperation and the creation of formal relationship
with NGA through a "Governors' Project".
In the fall of 1983, NGA with the NCJA conducted a special seminar on
the use of the military in drug control, and issued a final report
calling for increased assistance from the Department of Defense and an
enhanced role for the National Guard.
In the winter of 1983, a special session on drug abuse issues was held
at the NGA winter meeting with the Attorney General, the Director of
the FBI and the DEA. NGA adopted a National drug control policy.
As a part of the "Governors' Project", a grant was received from the
Department of Justice to conduct an extensive study of state drug
control laws and procedures which resulted in a special report on state
drug laws. The study was conducted by the NCJA from spring 1984
through summer 1985.
In the fall of 1985 through summer 1988, NCJA conducted a project to
develop self-help instructional curriculum on assets seizure and
forfeiture for state implementation. Pilot programs were conducted in
Maryland and Illinois.
In the winter of 1986 through spring 1987, NCJA with NGA participation,
conducted a regional seminar series in several states on legislative
options for drug laws enforcement.
In the winter 1986 through winter 1987, NCJA conducted a study of
controlled substances acts. A guide for states was released.
In the fall of 1987, NGA and NCJA commenced a two-year project to
develop information for states on options for treating drug-dependent
offenders.
*The National Criminal Justice Association serves as staff for the
Committee on Justice and Public Safety.
3/3/89 THE white HOUSE
washington
SENATE JuDiciARy CommiTTEE
Strom Thumond: Cooney
DEATH penalty
\
BARNA Day
233-4000
233-274
# 900
9861
MIX
TASK FORCE ON
ALCOHOL AND DRUG ABUSE
CHAIR
T
he problems of drug and alcohol
abuse are problems of shattered lives
MARTHA LAYNE COLLINS
and wasted opportunities. They are indi-
Governor of Kentucky
vidual in nature, yet public in their effects.
The victims suffer the despair of de-
cline and dependence: some 127,385 die
every year (Fein 1984). Their families suf-
TASK FORCE MEMBERS
fer turmoil and pain. Some cannot hold
together under the strain. Others suffer
grief at the loss of a son or daughter. a
STEVE COWPER
husband or wife, a brother or sister.
Governor of Alaska
The public pays directly in higher
EVAN MECHAM
health care costs, lost productivity in the
Governor of Arizona
economy and in more money for law en-
forcement; it pays indirectly because drug
TERRY BRANSTAD
and alcohol addiction strike at the very
Governor of Iou'a
heart of society's resilience today and its
JAMES J. BLANCHARD
potential for tomorrow.
Governor of Michigan
The magnitude of these problems of
individual suffering and public loss is
TED SCHWINDEN
clear in the numbers. Sixty percent of all
Governor of Montana
illegal drugs produced in the world are
JAMES G. MARTIN
consumed in the United States (de Bernar-
Governor of North Carolina
do 1987). A 1986 CBS News poll indicated
that about two-thirds of the public viewed
RAFAEL HERNANDEZ-COLON
drugs as a serious problem in their com-
Governor of Puerto Rico
munities, and in a 1984 Roper opinion
EDWARD D. DiPRETE
poll drugs and crime were ranked as the
Governor of Rhode Island
problems Americans most wanted gov-
ernment to address (Carroll 1985). More
NED RAY McWHERTER
than $110 billion is grossed annually from
Governor of Tennessee
the illegal sale of drugs-more than the
WILLIAM P. CLEMENTS JR.
total American farmers earn for all crops
Governor of Texas
and more than double the combined
profits of all Fortune 500 Companies (de
TOMMY THOMPSON
Bernardo 1987).
Governor of Wisconsin
Nearly 96 million men and women-
more than two-thirds of the nation's adult
population-use alcoholic beverages.
Most have learned to use these beverages
without ill effects. However, roughly 10
million people have become problem
drinkers or alcoholics (Fein 1984).
Alcoholism affects more than one-third
of the nation's families, with devastating
effects. Research has shown that:
Children raised by alcoholic parents are
four times more likely to become alco-
holics than children from non-alcoholic
homes.
PAGE 98
Thirty-seven percent of children whose
Sixty-five percent of those entering the
parents were alcoholics grew up to he-
full-time workforce for the first time have
come alcoholics and 21 percent of them
used illegal drugs. and about 10 percent
the workforce has alcohol or drug abuse
married alcoholics.
problems, which results in a 25 percent 10
50 percent loss in productivity (de Bernar-
Adult children of alcoholics were twice
do 1987).
as likely [() experience depression or
other mental health problems. While the
Twenty percent of the annual national
impact on individuals is often tragic. the
expenditure for hospital care and 12 per-
costs to their unborn children, their fami-
cent of the national health expenditures
lies. and to society as a whole are even
for adults derives directly from alcohol
more staggering. (Fein 1984)
abuse (Fein 1984).
Impact on Young People
Blue Cross of Greater Philadelphia stud
ied 311,000 employees and found that al-
What makes the drug and alcohol prob-
cohol and other substance abusers used
lem even more alarming is its effect on
young people-the very future of society:
technically legal to use. "Crack." which is a
eight times as many hospital days as other
Drunken driving is the leading cause of
highly addictive form of smokable co-
workers did (Blue Cross 1981),
death among those fifteen to twenty-five
caine, has recently become one of the
years of age (National PTA Bulletin 1986).
most frequently used drugs in many ma-
In many schools. drug and alcohol use has
jor cities because it is cheap and readily
reached epidemic proportions. A chil-
available.
drens magazine found that one-third of
In 1982, almost 10,000 people suffered
fourth graders it surveyed reported
heroin overdoses and were admitted to
"some" to "a lot" of pressure to drink
emergency rooms in 820 hospitals in met-
alcoholic beverages (National Institute on
ropolitan areas (Graham 1985). There is
Drug Abuse 1984). And student leaders
also a major problem with the misuse of
report that teenage alcohol use is the sin-
legally prescribed drugs. It has been esti-
gle biggest problem facing schools
mated that in some states the diversion or
(National PTA Bulletin 1986).
misuse of prescription drugs constitutes
Furthermore, 62 percent of American
more than half the drug problem.
high school seniors try an illicit drug be-
fore they finish high school. one in twenty
The Cost to Society
high school seniors smoke marijuana
and/or drink alcohol daily, and about 40
The tremendous amount of human suffer-
percent of these seniors have used illicit
ing implied in these statistics is obvious.
drugs other than marijuana (National PTA
What is sometimes overlooked is the phe-
Bulletin 1986). There is a relationship be-
nomenal cost of this suffering in dollars
tween drug and alcohol use and the high
and cents. For example:
school dropout problem. In a Philadel-
phia study, dropouts were almost twice as
Drug abuse costs American business
likely to be frequent drug users as were
more than $60 billion a year in lost pro-
high school graduates: four in five drop-
ductivity, increased absenteeism, work-
outs used drugs regularly (U.S.
place accidents, rising medical costs, and
Department of Education 1986).
theft (de Bernardo 1987).
New drugs appear regularly The so-
called "designer drugs," which are made
by producing slight changes in the chem-
ical formula for controlled substances, are
growing in popularity because they are
PAGE 99 &
The Governor's Role
support
from the Governor
the success of
and alco olabuse prevention
plan of action. The Governor's
commitment to working
Of persons jailed for violent crime. 54
The drug problem has taken still an-
long-term sol
percent admit having been "pretty drunk"
other serious turn recently with the dis-
concerted action on a variety of
or "very drunk" when the crime was com-
covery that acquired immune deficiency
fronts is essential.
mitted (Bureau of Justice Statistics. January
syndrome (AIDS) is transmitted through
When state school
1983).
the sharing of needles by intravenous
systems, business and industry,
drug users. It has been estimated that ap-
and the forcement
Of prison inmates interviewed in a Ken-
proximately 25 percent of the intravenous
community canagree on
tucky Corrections Department study: 71
drug users in New York City carry the
specific strategies to combat the
percent admitted drug or alcohol depen-
AIDS virus (National Institute on Drug
drug abuse problem, the
dency (Carroll 1985).
Abuse 1987).
Governor can be the guiding
The seriousness of the drug and alco-
force in reducing barrier to
Forty-eight percent of all crimes (vio-
hol problem calls for nothing less than a
the nation's individual and
lent and non-violent) were committed
total commitment from all levels of gov-
collective productivity.
while "under the influence" (Bureau of
ernment to develop solutions. The solu-
Justice Statistics, March 1983).
tions must move beyond providing aid or
treatment for those individuals who have
Fetal alcohol syndrome, a set of birth
already developed alcohol and drug prob-
defects caused by consumption of alcohol
lems. They should focus on prevention
during pregnancy, is the third leading
strategies and recognize that many alco-
known cause of mental retardation, cost-
hol- and drug-related problems besides
ing at least $800,000 per child over his/her
dependence and addiction require atten-
lifetime (National Institute on Drug Abuse
tion. This means that it is necessary to
1983).
develop a comprehensive strategy de-
signed to:
Delay the onset of the use of mind-
altering substances, since early and heavy
involvement is a predictor of later
The Governor has established a Communities for a Drug Free Colora-
problems.
do program, which will focus on community-based education and
intervention activities. The Governor's Executive Council coordinates
Reduce health and situational problems
the program in an effort to stimulate and motivate the collaboration
that are directly related to the use of sub-
of private, public, and media resources to reduce substance abuse in
stances. such as drinking and driving, fetal
Colorado. The program will establish a statewide community part-
alcohol syndrome, and cirrhosis.
nership program in which Colorado's communities, parents, young
people, and school districts work cooperatively to prevent and reduce
Increase early detection of alcohol and
the illicit use and harmful effects of alcohol and drugs among youth.
drug problems at a point when treatment
The program will emphasize public-private partnerships. Key lead-
may be less costly and have a higher prob-
ers at state and local levels will be recruited to work with youth,
ability of success.
family, and school systems to plan and develop prevention and
intervention programs. Community meetings will be held and com-
Treat and restore the health and social
munity training teams will be selected. The teams will be trained in
functioning of individuals who are depen-
team building, action planning, resource development, and other key
dent on alcohol and other drugs.
areas, and will develop comprehensive programs to prevent and treat
substance abuse. A variety of support services will be initiated,
Although drug and alcohol problems
including an information clearinghouse, technical assistance and
may never be totally eliminated, there is
grants, public relations assistance, an ongoing incentive program,
much that can be done, and the develop-
and program evaluation.
ment of a strategy to tackle the problem is
essential.
PAGE 100
ELEMENTS OF A
STRATEGY
S
uccessful approaches to drug and alco-
hol problems require commitments to
long-term and comprehensive program-
ming. Prevention strategies must be aimed
at reducing supply and demand. In order
to be truly comprehensive. a state action
plan to reduce substance abuse problems
should have several characteristics.
First. drug and alcohol programming
must reach all sectors of society. Besides
programming aimed at the general pub-
lic, strategies must be tailored to meet the
special needs of minorities, women, chil-
dren, and the elderly. The planning pro-
cess should identify populations that are at
high risk. Planning should recognize that
programs that are highly successful with
one target population (e.g., teenagers)
may not be appropriate for another (e.g.,
younger children).
Second. all key community groups
should be actively involved in both plan-
ning and implementation. Every citizen
Champions Against Drugs is a cooperative effort between the state
has a role to play and should be encour-
and local governments, working with the private sector. The Governor
aged to assume responsibility for his or
has begun a prevention effort of public education and a community
her part in the solution, whether it be as
mobilization campaign. The public education program uses well-
an employee, employer, parent, friend, re-
known Kentucky athletes and citizens who speak out against alcohol
ligious leader. politician, school adminis-
and drug abuse. At the same time, the program encourages citizen
trator, policeman. teacher, judge, or social
involvement. The program uses a comprehensive four-pronged ap-
worker. State plans should encourage
proach: public awareness; education and training (with a special
widespread citizen involvement.
emphasis on youth leadership training); intervention and treatment;
Any overall strategy should include:
and law enforcement. A statewide council and seventeen regional
public awareness and education, training
action groups are working together to develop comprehensive strat-
and professional development, interven-
egies to address alcohol and drug problems at the state, regional, and
tion and treatment, and interdiction and
community levels. Champions has led to the creation of active citizen
law enforcement.
groups in sixty communities in the state, all supporting programs to
prevent the spread of drugs. Fifty "Just Say No" clubs also have been
formed to promote drug-free activities and positive peer pressure.
The program has unveiled a collector card series, featuring sports
stars and celebrities, that carries an individual message about sub-
stance abuse. Law enforcement officials will use the cards as a way to
discuss substance abuse and prevention.
Since Champions began in September 1986, eight major anti-drug
rallies have been held in the state and seven more are planned.
Sixteen public hearings are also planned statewide by Champions to
prepare recommendations and a legislative packet for presentation
to lawmakers of the 1988 Kentucky general assembly.
PAGE 101
Public Awarenes
and Education
IOWA
Although the terms "awareness" an
The Governor has established the Governor's Alliance on Drug Abuse
"education" are often used synonymousl
with a comprehensive three-point program including: drug educa-
they represent two discrete strategie
tion, treatment, and prevention; tougher penalties for drug pushers;
Awareness efforts seek to alert the publ:
and stronger enforcement of drug laws. In October 1986, eight
to the risks associated with drug and alce
correctional facilities were opened for individuals convicted of drunk
hol use. Awareness efforts can also teac
driving. These facilities offer a combination of treatment, supervised
wavs to reduce the risk of drug and alce
living, and employment opportunities.
hol problems, and let the public kno
about prevention, intervention, and trea
ment programs.
NEW IERSE
Education programs generally ar
more structured, last longer. and attem]
The Governor is calling for the creation of an Alliance for a Drug Free
to develop skills, increase knowledge. an
New Jersey. The alliance calls for business, law enforcement, re-
change attitudes. They often have an ult
ligious, education, and community leaders to establish a statewide
mate goal of changing behavior.
program against substance abuse. It plans to solicit New Jersey's 567
Research has demonstrated that aware
cities and towns in an effort to abolish drug abuse. The initiative will:
ness and education strategies are essenti:
organize and coordinate the efforts of schools, police, business
ingredients for prevention. This researc
groups, and other community organizations to fight drug abuse;
has begun to identify some effective pre
adopt comprehensive, effective drug abuse education programs in the
vention strategies.
schools, beginning in kindergarten and continuing through high
For example, these programs must:
school; adopt clear procedures for the intervention, treatment, and
discipline of students abusing alcohol and drugs; provide a compre-
Be comprehensive and intensive i
hensive drug abuse education and outreach program for parents; and
nature, begin early and continue throug
provide a comprehensive substance abuse community awareness
a lifetime, and be targeted to the tot:
program.
community
The program focuses heavily on the demand side, and seeks to
provide drug abuse education to every child in the New Jersey public
Be aimed at specific attitudes about a
school system. The program focuses on prevention, intervention, and
cohol and drugs, and at developing gener
treatment. Prevention programs are geared toward limiting the de-
al life skills, such as assertiveness, pee
mand for drugs through increased public awareness, community
resistance, problem-solving, communic:
activity and parental support. Intervention programs seek to identify
tion, and critical thinking.
drug abusers at the earliest point and encourage their participation
in an appropriate treatment program. The most important aspect
Target all youth and develop specialize
however, is the education, treatment, and rehabilitation of the young
strategies for those who are high-risk, e.g
people of New Jersey.
school dropouts and those who have
mental health problems or who are eco
nomically disadvantaged.
Integrate prevention activities into fam:
ly, school, and community life.
Studies are in progress on a number
school curriculums and community edu
cation programs. Preliminary results an
encouraging, but much more information
is needed. A comprehensive state plai
should recognize what is known abou
PAGE 102
"I see in my practice and
in my recovery meetings each
week the unbelievable
influence of chemical
dependency. To bring it into
focus, there are about 300
people in this room. Ten to
program effectiveness, seek reliable data
nity and parents through advisory and co-
fifteen percent of you are
on programs that might be implemented,
ordinating bodies.
chemically dependent. That
and include provisions to promote and
means that thirty to forty-five of
apply continued research.
Colleges and universities should devel-
you are chemically dependent,
A comprehensive plan will also recog-
op comprehensive campus alcohol and
you are alcobolics or drug
nize that education programs are needed
drug programs. This can include adopting
addicts.
Each of you will
by adults as well as children. Some of the
effective enforcement policies; incorpo-
directly influence four other
most notable achievements in prevention
rating alcohol and drug education into the
lives. That means that 120 to
today are occurring in part as a result of
general education curriculum; providing
180 people will be directly
health messages being targeted to the
ongoing campus awareness programs:
affected as a result of this
adult population. For example, per capita
and identifying and referring for treat-
chemical dependency. Not only
consumption of alcohol has declined con-
ment students, faculty, and staff who have
will you not be able to work
sistently over the past three years. A 1985
alcohol and drug problems.
but you won't be able to live.
Gallup survey found that 14 percent of all
State and local coalitions and agencies
That is a real overwbelming
adults planned to decrease their drinking
should provide substance abuse educa-
and overpowering
within the next year and 2 percent
tion programs for adults in a variety of
realization."
planned to quit altogether. In addition,
settings, including workplaces, religious
beverages with a lower alcohol content
institutions, health care facilities, civic or-
BURNS BRADY, M.D.
appear to be gaining in popularity.
Kentucky
ganizations, and community centers.
A comprehensive plan also recognizes
State departments of health and state
that education programs for all ages can
medical associations should encourage
be provided in a variety of settings besides
health departments, prenatal clinics, and
schools, including workplaces, religious
An alcohol and drug abuse prevention
obstetricians and gynecologists to provide
institutions, civic organizations, health
curriculum that begins in kindergarten
information and education about the risks
care facilities, and community centers.
and continues through high school, and
of alcohol and drug use during pregnancy
that is based on research and aimed at
and lactation.
behavioral changes. Peer resistance skills
State government should form a part-
Alliances for Education. State depart-
ments of education and alcohol and drug
training should be an integral component
nership with universities to identify and
agencies should form alliances with state-
of the curriculum.
appropriate funds for research to deter-
mine the causes and conditions of sub-
wide education associations and other
Ongoing alcohol and substance abuse
stance abuse, as well as the effectiveness of
groups to encourage and reinforce the
education and training for faculty and staff.
prevention strategies. This partnership
development of comprehensive pro-
should also address the dissemination of
grams for youth in local schools and to
advocate a stable funding base that en-
Education for parents that provides al-
these research findings so they can be
sures adequate resources are available to
cohol and drug information and parent-
used by state and local groups.
Television and radio stations and the
local schools and communities.
ing skills.
press should be encouraged to contribute
School boards should be encouraged
to develop comprehensive alcohol and
Peer education programs and leader-
their services toward public awareness ef-
forts. In fact, states may support federal
drug programs that consist of:
ship programs.
action to require the media to apply an
Identification, intervention, and referral
equal time doctrine to alcohol advertis-
A policy that clearly articulates the
schools' response to possession of alcohol
services for students, faculty, and staff who
ing. This would include the airing of
and other drugs by students and staff,
have alcohol and other drug problems.
health messages, produced by indepen-
dent health groups, on an equal basis with
which is communicated to the schools
Strategies to educate and involve the
alcohol advertising. The media can be a
and larger community and is consistently
larger community such as law enforce-
powerful ally in awareness and education
enforced.
ment, civic and service organizations, and
campaigns.
parent groups in a partnership for preven-
tion. Such programs must be planned and
carried out with input from the commu-
PAGE 103
State education departments,
alcobol and drug agencies,
education associations, and
other groups should form
alliances to develop
comprebensive substance
abuse programs in local
tively with clients. Prevention profession-
schools. It is also important to
als must also acquire specialized knowl-
advocate a stable funding
edge and skills. Developing competence
structure that ensures that
in both treatment and prevention is essen-
adequate resources are
available to local schools and
tial to progress in the drug and alcohol
abuse field.
communities.
Elements that can be included in devel-
oping an effective strategy include encour-
aging state higher education authorities.
professional licensure boards, and profes-
social services, religion, and health, are in
sional associations to work together to
key positions to identify and refer citizens
develop preparatory education and con-
who have alcohol and drug problems to
tinuing education for:
education and treatment programs. Train-
ing is needed for these key professional
school administrators, teachers. and
groups so they have the information and
counselors;
skills to detect possible substance abuse
Training and Professional
and to encourage individuals to seek help.
law enforcement and criminal justice
Development
These key groups can be reached
personnel;
through special information brochures
Professionals in the human services field
on alcohol and drug abuse treatment pro-
physicians, nurses, pharmacists. and
often deal with problems that involve
grams that can be given to clients; drug
other health care personnel;
drug and alcohol abuse. More often these
and alcohol abuse workshops offered dur-
professionals see only the results of the
ing professional meetings and confer-
social workers; and
chemical abuse problem (e.g., child
ences; and by integrating courses on alco-
abuse, marital discord, poor health, and
hol and drug abuse into preparatory
clergy and other religious leaders.
failing grades in school) and do not recog-
curriculums for these professions.
nize drug and alcohol dependence as the
Professional development is also a crit-
Such education should allow for an
client's primary problem. Professionals,
ical need within the substance abuse pro-
understanding of alcohol and drug abuse.
particularly in education, criminal justice,
fession. There is a lack of professionals
detection and recognition of substance
who are qualified in both prevention and
abusers, referral for treatment, and ex-
treatment. Mental health professionals are
posure to effective prevention
regularly called upon to provide counsel-
approaches.
ing for substance abusers. A mental health
States can also develop formal mecha-
professional who has not been trained in
nisms to ensure minimum competence
drug and alcohol abuse treatment may
and ethical practices by those who pro-
often fail to diagnose the client's substance
vide alcohol and drug prevention and
abuse problem. Drug and alcohol treat-
treatment services. These mechanisms
ment uses special techniques that must be
should define and promote a common
learned if professionals are to work effec-
body of knowledge and skills, develop
academic training groups for prevention
and treatment professionals, and ensure
the quality of services.
State governments should work coop-
eratively with appropriate statewide asso-
ciations and organizations to ensure that
judges, prosecuting attorneys, and proba-
tion, parole, and law enforcement officers
receive ongoing training about alcohol
and drug abuse and their roles in address-
ing these problems.
PAGE 104
Drug abuse costs American
business more than billion
in oductivity
increased absenteeism,
place accidents, rising
medical costs, and tbeft.
Intervention and Treatment
must often travel great distances or change
their place of residence to obtain the ser-
Intervention and treatment resources are
vices they need. Treatment programs for
percent of
an integral part of any comprehensive ac-
adolescents and other populations with
entering the full-time
tion plan. Prevention education and
special needs, e.g., women, minorities, se-
tbe first time
awareness programs help communities
nior citizens, the homeless, are in great
understand the need for drug and alcohol
demand. Services should include a family
about 10 p ercento
the
treatment services. Effective prevention
resource component, inpatient and out-
wor
programs also give professionals the
patient treatment, and long-term residen-
problems which
knowledge and skills to identify clients
tial programs.
percent to
who have drug and alcohol problems.
loss in uctivity.
Self-help groups such as Alcoholics
Anonymous have helped millions of sub-
Attention to Funding. Attention to
stance abusers. However, they do not pro-
funding in this area is essential, and addi-
A compi
vide the total answer. Very often interven-
tional commitment of state funds is often
sbould recognize
tion and treatment is needed to prepare
needed. In addition, insurance coverage
known about
the dependent person to accept what a
must be sought where it is not currently
effectiveness reliable
self-help group can offer. Many persons
provided. Both private insurance and
data on programs
who desperately need treatment are not
Medicaid reimbursements are appropri-
be implemented and include
able to recognize the problem in them-
ate funding sources. Studies show that
provisions to promote
selves and will not voluntarily join a self-
treatment is cost-effective. Drug and alco-
apply continued research.
hol abusers who have not received treat-
help group.
Intervention is a process of identifying
a person's substance abuse problem, com-
municating effectively with the individual
about the problem, and encouraging the
person to enter treatment if necessary.
Community settings where drug and alco-
hol problems tend to surface are ideal
ARKANSAS
locations for intervention. Drug-related
problems often present themselves in
The Governor recently announced the establishment of a pro-
schools (where students experience
fessorship on alcohol and drug abuse prevention and an endowed
school failure or discipline problems re-
chair on alcoholism and drug abuse studies at the University of
sulting from their use of substances), so-
Arkansas for Medical Sciences. The professorship was funded
cial service agencies (spouse and child
through a grant from the Arkansas Department of Human Services
abuse), health care facilities (medical
Alcohol and Drug Abuse Prevention Division (OADAP). The endowed
problems resulting from abuse), welfare
chair will be funded through a challenge grant from the same agency
and other benefit agencies (where alco-
and through funds raised from a temporary alcoholic beverage tax
hol and drug problems may contribute to
passed by the legislature.
the failure to seek and maintain a job), and
In addition, OADAP funds and supervises school- and community-
in the workplace (where evidence of alco-
based programs in the areas of primary prevention and drug and
hol and drug problems is seen in absen-
alcohol abuse education. Efforts are made to involve youth in all
teeism, increased sick leave and health
project planning and implementation. All programs are encouraged
insurance claims, accidents and de-
to recruit volunteers and community participation is heavily weighed
creased productivity). For effective inter-
when programs-are selected for funding.
vention, adequate treatment resources
must be available in the community.
At present, most communities do not
have a full range of drug and alcohol inter-
vention and treatment services. Clients
PAGE 105 a
Many communities have
discovered that a partnership
between schools, treatment
centers, parents, social
workers, and criminal justice
professionals has been a
particularly effective way to
identify and refer individuals.
If proper resources are invested in pre-
Agency Outreach. Policies and proce-
Stepped up enforcement.of
vention and early intervention, the payoff
dures of existing health and social service
laws and penalties for
could be increased tax revenues, greater
delivery systems should be reviewed to
drunk driving for example,
productivity, and a healthier citizenry.
determine their potential for identifying
have resulted in eased
A successful strategy to prevent drug
and referring clients for treatment of alco-
referrals to alcobo abuse
and alcohol abuse must include a variety
hol and drug problems.
education programs.
of elements.
Staff who interview clients for unem-
ployment compensation, AFDC, or other
Cooperation in Government. State ex-
benefits should be trained to detect possi-
ecutive and legislative branches of govern-
ble drug and alcohol abusers and to refer
ment drive up insurance costs by seeking
ment should work cooperatively to allo-
them to treatment. Staff in public health
treatment for other ailments caused by
cate adequate resources for the treatment
clinics, particularly those offering prenatal
their substance abuse.
and rehabilitation of drug- and alcohol-
services, should be trained as well.
In allocating resources, it is important
dependent citizens.
Agencies that provide child abuse and
to keep in mind the tremendous costs of
Special attention must be given to pop-
neglect services should screen for paren-
drug and alcohol abuse. Mechanisms to
ulations in greatest need and those who
tal alcohol and drug abuse and develop
identify those who are abusing, to inter-
traditionally have been underserved. An
a family service plan that includes
vene, and to provide effective treatment
adequate range of specialized treatment
treatment.
have great potential for reducing the total
services needs to be available and accessi-
costs to society.
ble to adolescents. This should include
Business Cooperation. State depart-
Employee assistance programs in the
inpatient and residential services, family
ments of commerce and labor and labor
workplace or student assistance programs
counseling, and outpatient transition care
management groups should promote and
in schools and colleges are examples of
and aftercare to support recovery.
support the efforts of business and indus-
early intervention programs that can save
Attention also should be given to indi-
try to develop employee assistance pro-
millions of dollars. These programs are
viduals in shelters for the homeless, since
grams that identify and refer troubled em-
cost-effective because employee or stu-
experience suggests that they have signifi-
ployees for treatment. States may wish to
dent "downtime" is reduced, health care
cant alcohol and drug problems.
explore tax incentives for businesses that
costs are controlled, and highly trained
States should explore the possibility of
implement such programs.
employees or very bright students are re-
changing laws that provide and regulate
tained. For example, in 1984 an employee
private and public health insurance to en-
Criminal Justice Response. States
assistance program jointly administered
sure that adequate and reasonable cover-
should conduct a thorough review of the
by AT&T and the Communication Workers
age for the treatment of alcohol and other
criminal justice system's response to alco-
of America cost the company $1.3 million,
drug problems is available. Laws may be
hol and drug abuse to determine the ade-
but saved the company $3.3 million (de
formulated to facilitate coverage for treat-
quacy of diversion and treatment options.
Bernardo 1987). The Commonwealth of
ment in the most cost-effective and appro-
Based on the findings, states may consider
Pennsylvania also has a program to help
priate setting, whether it be free-standing
the following steps to increase their po-
state employees with their substance
or hospital-based, inpatient or outpatient,
tential to provide treatment for individuals
abuse problems.
public or private.
who have alcohol and drug problems.
States should also explore alternative
Any individual who is detained for a
funding strategies, including Medicaid, to
criminal offense pending trial should be
provide the most cost-effective coverage
screened for alcohol and drug problems
for treating alcohol and drug-dependent
and referred to appropriate treatment.
adolescents and adults in an appropriate
States should develop adequate alcohol
and efficient setting to meet individual
and drug treatment programs for con-
needs.
victed felons. Treatment programs should
be available to the offender within the
correctional institution before the individ-
ual returns to the community. Participa-
tion in a community-based treatment pro-
gram may be made a condition of
PAGE 106
"Amy ran our family wben she
was addicted to drugs
My
father died from cancer-it
took two years for bim to die
and it was a very painful thing
for me but it wasn't nearly as
bad as watching my daughter
probation. Such treatment can substan-
die spiritually."
tially reduce the number of repeat of-
LOUIS FREEMAN
fenses for those crimes directly related to
Ohio
alcohol and/or drug dependence.
Judges should require parents sus-
pected of child abuse or neglect or other
domestic violence to be assessed for drug
States should cooperate and assist the
and alcohol problems. When a drug or
federal government whenever possible
alcohol problem is found, treatment
with interdiction. A unified effort of en-
could be required.
forcement is necessary to help the federal
Criminal justice services and other ju-
government carry out its responsibility.
venile service providers should work CO-
operatively to identify, intervene, and pro-
Identifying Offenders. In addition to
vide appropriate education, treatment,
interdicting the supply of drugs and
and follow-up for all youth identified
punishing drug offenders, the criminal
through the courts as having alcohol and
justice system can also identify and help
drug problems.
offenders who need drug and alcohol
Attention also must be paid to the prob-
treatment. Judges, attorneys, parole offi-
lem of substance abusers in state prison
Interdiction and Law
cers, and police are in key positions to
systems. A recent study completed by the
identify both youth and adult offenders
Enforcement
Kentucky Department of Corrections
who have drug and alcohol problems.
shows that 71 percent of prison inmates
Effective law enforcement is an important
One national program available in
identified themselves as alcohol- or drug-
influence in both the supply and the de-
many communities is aimed at treating
dependent (Carroll 1985). Programs to
mand for drugs. Drug dealers participate
criminal offenders who are substance
rehabilitate these offenders before they
in an illegal business that uses many of the
abusers. Treatment Alternative to Street
are released and provide appropriate fol-
same techniques of legitimate businesses.
Crime (TASC) is funded through the U.S.
low-up afterward have the potential to
The streets are the marketplace and all
Department of Justice with state and local
greatly reduce recidivism.
individuals are potential customers.
matching funds. This program attempts to
Enforcement of the minimum drinking
In attempts to control drug sales in
bring together the justice system, with its
age is another area where law enforce-
neighborhoods around the nation, law
legal sanctions that reflect concerns for
ment efforts are critical. Public support for
enforcement officials rely on several tools:
public safety and punishment, and the
strict enforcement is growing. Parents are
sentencing, forfeiture of assets, electronic
treatment community, with its emphasis
gaining greater appreciation of the ra-
surveillance, witness immunity and pro-
on therapeutic relationships that change
tionale behind this law: drunk driving is
the individual behavior of substance
tection, and reviewing currency transac-
the leading cause of death among young
tion reports and state revenue files. Any
abusers. Under TASC, community-based
people, and raising the drinking age has
efforts to strengthen and facilitate the use
treatment is made available to drug-de-
been correlated with a reduction in these
of these tools will enhance law enforce-
pendent individuals who would other-
fatalities. Public education about other
ment efforts. Some 708,400 suspects were
wise burden the community and the jus-
correlates of youthful drinking (van-
arrested on drug charges in 1984 (de Ber-
tice system with their criminal activities.
dalism, teenage pregnancy, other drug
nardo 1987).
Many communities across the nation
abuse, school failure) has also increased
One of the major law enforcement
have discovered that a partnership be-
support for effective enforcement efforts.
problems is trying to get a handle on the
tween schools, treatment centers, parents,
amount of drugs entering the United
social workers, and criminal justice pro-
States. Approximately 12 tons of heroin, 65
fessionals has been a particularly effective
tons of marijuana, and 150 tons of cocaine
way to identify and refer individuals.
entered the United States in 1986 (de Ber-
Stepped-up enforcement of laws and
nardo 1987). Preventing drugs from enter-
penalties for drunk driving for example,
ing the country is a federal responsibility.
have resulted in increased referrals to al-
The nation's borders must be patrolled for
cohol abuse education programs, which
all types of contraband, most of all drugs.
in turn has helped identify drug and alco-
hol problems in many offenders.
PAGE 107
The seriousness of the drug
and alcobol problem calls for
nothing less than a total
commitment from all levels of
government to develop
solutions.
Enforcing Laws, Stopping Supplies.
More aggressive investigation and pros-
An effective state strategy to enforce drug
ecution of drug traffickers.
Prevention strategies must be
laws and stop the drug supply should in-
aimed at reducing supply and
clude several elements. A 1985 report on
Greater resource commitments to drug
demand.
State Laws and Procedures Affecting Drug
law enforcement initiatives.
Trafficking Control by the National Crimi-
nal Justice Association and the National
Greater uniformity among state laws af-
Governors' Association calls for:
fecting the nature and extent of enforce-
Drunk driving is the leading
ment activities, prosecutorial procedures.
cause of death among fifteen-
Greater coordination among law en-
and penalities imposed on individuals
to twenty-five-year-olds.
forcement agencies at all levels of govern-
convicted of violating applicable laws.
ment.
Governors should commission law en-
forcement task forces to study ways to
improve the legal tools available for inter-
diction and prosecution.
States should adopt policies and proce-
MISSOURI
dures that control the diversion of pre-
scription drugs through a centralized re-
The Governor recently announced a six-part drug and alcohol abuse
porting system.
prevention/initiative designed to forge a partnership between state
Laws setting the minimum drinking
and local groups The plan, called 'MO says NO to Alcohol and Drug
age should be aggressively and consis-
Abuse provides a coordinated response to the problem of substance
tently enforced, especially at events where
abuse in the state: Among the initiative goals an e to: create local
underage drinking is most likely to occur,
responses to local: problems by forging a partnership between
such as rock concerts, sporting events.
schools and community groups; teach students about the dangers of
and establishments that cater to a younger
alcohol and drug abuse by improving the alcohol and drug abuse
adult or mixed-age clientele.
curriculum; and identify and treat young people: with substance
States also can pass legislation authoriz-
abuse problems through early intervention, efforts. The initiative is
ing the courts to suspend or revoke the
the work of a team of state government experts in health, public
driver's license of persons convicted of
safety, education, mental health and youth.
committing a traffic violation while under
the influence of alcohol and other drugs.
Reinstatement or return of license should
depend on the offender being screened
for alcohol and/or drug problems and
successfully completing treatment.
Legislation might be considered to es-
tablish the civil liability of individuals who
negligently sell or serve alcoholic bev-
erages to persons under the legal age, or
those who are visibly intoxicated and, as a
result, injure themselves or another.
States also may evaluate the role of alco-
holic beverage control authorities to en-
sure that protection of public health and
safety is their primary concern.
PAGE 108
AGENDA FOR
STATE ACTION
Develop a centralized system to collect
data about drug and alcohol problems in
the state in order to determine target pop-
ulation and what elements should be in
any comprehensive strategy.
Collect statistics on drug-related arrests,
accidents, deaths, school dropouts, sus-
pensions and expulsions. Insurance
claims, hospital admissions, and worker
compensation claims should be available
to begin planning.
Review current programs in the public
and private sector to understand current
prevention efforts and to determine what
areas need help or attention.
A
ny state can win the war against drug
and alcohol abuse with a serious com-
Identify the impact of drug and alcohol
mitment to a comprehensive plan and
abuse on the private sector, schools, and
strong leadership from its Governor. Any
other areas, and determine potential sav-
plan should include the elements of pre-
ings of prevention programs.
vention and education, training and pro-
fessional development, intervention and
Locate every agency of state government
treatment, and interdiction and law en-
that deals directly with drug and alcohol
forcement. The plan must also be realistic
abuse and review the ability. of each to
and allow all groups to work together.
carry out program responsibilities.
Strong leadership and support from
the Governor is a key to the success of any
Report all findings to the Governor to
Agenda for State Action. The Governor's
begin effective programs.
commitment to long-term solutions and
concerted action on a variety of fronts is
essential.
But where can a state begin? How can a
2
state find a workable solution to the sub-
stance abuse problem? Many programs
Find a Program
are already in place, but if more attention
That Works
needs to be focused there are some basic
steps that can be taken to succeed in the
Begin planning a comprehensive strat-
war against drug and alcohol abuse.
egy that includes the elements discussed
in this report. Any strategy must focus on
prevention and education as a way to get a
handle on the abuse problem. Programs
1
must be developed for all age groups, and
must involve students, parents, teachers,
Lay the Ground Work
business leaders, clergy, and law enforce-
ment.
Designate a clearinghouse for the infor-
mation, such as a task force, that will re-
port to the Governor on the nature of the
problem and development of the strategy.
PAGE 109 @
Youth Programs
Reach Out
Boy Scout Councils throughout
Kentucky are "Saying No to
Drugs" through their national
program, Drugs: A Deadly
Game. This educational
program includes a video,
Provide training and professional devel-
Identify current expenditures for on-
teacher's guide, and printed
opment for those involved in the prob-
going programs at the local, state, and
materials that could reach
lems of abuse. Training must sharpen the
federal level.
86,000 scouts. These materials
ability of teachers, judges, social workers,
are also available to schools
and others to spot problems early; ex-
Explore new funding sources within
and other organizations.
plore the various causes of abuse; discuss
state government for any new programs.
appropriate treatment for different age
The Northern Kentucky Division
groups and varying causes of the problem.
Seek support from the general assem-
of the Cincinnati Community
bly, businesses, and communities.
Chest bas adopted "Project
Enlist the media to assist in education
Charlie," a substance abuse
and prevention programs.
prevention program for
4
elementary school children. The
Identify those who need help through
emphasis is on early education
intervention and treatment. Social service
Rally Support for the Plan
and the development of positive
agencies must be more agressive in iden-
bebavior choices.
tifying problems related to abuse; the
Act as the key supporter for the compre-
criminal justice system should try to iden-
hensive prevention strategy. The Gover-
In several Kentucky counties,
tify those who require treatment; school
nor should be a central figure for mobiliz-
4-H Councils are working with
systems should also be aware of those
ing community and state government
the schools on drug abuse.
who have abuse problems.
cooperation.
Franklin County has 1,500
participants in a "Be Smart,
Involve law enforcement agencies. Ef-
Encourage state agencies to work to-
Don't Start" program for eight-
forts to control the supply and demand of
gether and cooperate in areas of preven-
to twelve-year-olds. In Graves
substance that are abused should be sup-
tion and treatment in addressing the
County, 400 children have
ported. Laws relating to drunk driving,
abuse problem.
participated in their local 4-H
sale of alcohol to minors, and illegal drug
program.
sales must be strictly carried out.
Rally local communities to get involved
statewide to carry out an effective strategy.
Encourage the federal government to
Boys Clubs of America's "DRUG
continue cracking down on illegal drug
Work with and find support in the busi-
FREE and Proud to Be!"
sales and smuggling.
ness community by stressing what an
program was adopted in
abuse-free workplace can mean to
Louisville, Ky., and more than
Dedicate more resources to enforce-
industry.
6,000 commitments have been
ment procedures.
obtained from youth who
The Governor should convey the
promise to stay drug free. Peer
strong message that drug and alcohol pre-
pressure to stay away from
3
vention can be accomplished. When state
drugs is a key element.
agencies, local communities, business
Find Funding for the Plan
and industry, and law enforcement come
In Kentucky, the Buddy and
together on a specific strategy for
Teen Buddy program is an
Determine funding needs and pri-
development, the Governor can be the
outgrowth of Boys Clubs of
orities for the strategic prevention plan
guiding force in reducing this barrier to
America's "Youth Helping Youth"
and consider funding sources.
the nation's individual and collective
program. This program targets
productivity.
inner-city youth. Building self-
esteem and positive behavioral
patterns are the main
objectives. The program works
with the local community
mental health center.
PAGE 110
STATE INITIATIVES
M
any states and Governors have al-
ready realized the seriousness of
substance abuse and its effects on the gen-
NORTHICAROLINA
eral population, and as a result they have
The Governor's Council on Alcohol and Drug Abuse Among Children
begun to implement programs and initia-
and Youth was established to create a new awareness of the problem
tives to deal with the problem.
in the state. The council is charged with reviewing the problem and
Several programs began with federal
making recommendations to the Governor on youth substance abuse
funds to support mental health and sub-
issues. It assesses mechanisms for coordinating state and local
stance abuse initiatives. However, numer-
resources; conducts public hearings; promotes local boards, coun-
ous states have taken the lead in dealing
cils, or commissions to identify model prevention, intervention, and
with the problem.
treatment efforts for possible statewide replication; and conducts
There are common characteristics that
public awareness activities.
run through many state programs which
The Governor challenged every local community to form a local
have already been discussed. The main
task force or coalition on substance abuse. A statewide conference
components of these programs are public
will be held in the fall of 1987 for local officials, law enforcement
awareness, education, and community in-
personnel, business leaders, education officials, health organiza-
volvement. In many cases, all segments of
tions and civic leaders to come together to share information and
the population are called upon to get in-
build a solid foundation for addressing the drug problem. At the
volved with the comprehensive plan.
forum, a booklet on state resource programs will be released that
The task force recently surveved the
will contain information on every anti-drug effort at the state level.
states for new programs in alcohol and
drug abuse prevention. Governors were
in the forefront of many of these efforts:
MASSACHUSETTS
only a few are highlighted in this report.
The Governor's Alliance Against Drugs, created in December 1984, is
A complete summary of all state programs
a coordinated statewide effort to mobilize communities to implement
can be found in the Supporting Works
drug and alcohol abuse prevention programs with a goal of drug-free
for this report.
schools by 1990.
The nationally acclaimed program, which began with eighteen
communities and has grown to nearly 300, requires each community
to form school-community advisory councils made up of education
and political leaders, law enforcement agencies, and the business
community. The councils help local school districts implement drug
and alcohol prevention curriculums from kindergarten through
twelfth grade; review and update school discipline codes; develop
written agreements between school and police officials on proce-
dures dealing with drug use and sale in and around schools; imple-
ment peer and parent education programs: and provide access to
community treatment resources for youngsters with substance abuse
problems.
PAGE 111
WORKS CONSULTED
Blue Cross of Greater Philadelphia. 1981.
National Criminal Justice Association and
U.S. Department of Education. 1986.
Joint Health Cost Containment Program
the National Governors' Association. 1985.
Schools Without Drugs. Washington. D.C.:
Utilization Report. Philadelphia, Pa.
State Laws and Procedures Affecting Drug
U.S. Department of Education.
Trafficking Control: A National Overview
Bureau of Justice Statistics. January 1983.
Washington, D.C.: National Criminal Jus-
West, L.J. 1984. Alcoholism and Related
Prisoners and Alcohol. Washington, D.C.:
tice Association.
Problems. Englewood Cliffs. N.J.: Prentice-
U.S. Department of Justice.
Hall.
National Institute on Alcohol Abuse and
Bureau of Justice Statistics. March 1983.
Alcoholism. 1981. Fourth Special Report to
Prisoners and Drugs. Washington, D.C.:
the U.S. Congress on Alcohol and Health.
U.S. Department of Justice.
Rockville, Md.: Alcohol, Drug Abuse and
Mental Health Administration.
Carroll, J.M. 1985. The Commonwealth at
Risk: A Report by the Governor's Task Force
National Institute on Alcohol Abuse and
on Drug and Alcohol Abuse Prevention.
Alcoholism. 1983. National Drug and Al-
Frankfort, Kentucky.
cobolism Treatment Utilization Survey,
Comprehensive Report. Rockville, Md.: U.S.
CBS News Poll. 1986. Drugs In America.
Alcohol, Drug Abuse, and Mental Health
New York.
Administration.
Cook, P.J. 1984. "The Economics of Alcohol
National Institute on Drug Abuse. 1983.
Consumption and Abuse." Alcobolism
Alcohol and Health. Rockville, Md.: U.S.
and Related Problems. 56-77. Englewood
Alcohol, Drug Abuse, and Mental Health
Cliffs, N.J.: Prentice-Hall.
Administration.
de Bernardo, M.A. 1987. Drug Abuse In the
National Institute on Drug Abuse. 1984.
Workplace: An Employer's Guide for Pre-
Use of Licit and Illicit Drugs by America's
vention. Washington, D.C.: U.S. Chamber
High School Students 1975-1984. Wash-
of Commerce.
ington, D.C.
Fein, R. 1984. Alcohol in America: The
National Institute on Drug Abuse. 1985.
Price We Pay! Newport Beach, Calif: Care
Drug Use Among American High School
Institute.
Students, College Students, and Other
Young Adults. Rockville, Md.: U.S. Alcohol,
Gallup Poll. 1985. Cited in The Common-
Drug Abuse and Mental Health Adminis-
wealth at Risk: A Report by the Governor's
tration.
Task Force on Drug and Alcohol Abuse
Prevention. Frankfort, Kentucky.
National Institute on Drug Abuse. 1987.
Technical Review Meeting on Needle Shar-
Graham, Robert. 1985. Testimony on Drug
ing Among Intravenous Drug Abusers: Na-
Trafficking and Border Interdiction. Wash-
tional and International Perspectives.
ington, D.C.: U.S. Congress. House Judici-
Rockville, Md.: U.S. Alcohol, Drug Abuse
ary Committee. Subcommittee on Crime.
and Mental Health Administration.
National Association of State Alcohol and
National PTA Bulletin. 1986. Drug and Al-
Drug Abuse Directors. 1984. Alcohol and
cohol Awareness Week. Chicago, Ill.: Par-
Drug Problem Costs, Programs and Ser-
ent Teacher Association.
vices. Washington, D.C.: National Associa-
tion of State Alcohol and Drug Abuse
Directors.
PAGE 112
THE
STATE
PRODUCTIVE
PEOPLE
PRODUCTIVE
POLICIES
NATIONAL
GOVERNORS'
ASSOCIATION
Task Force
on
Alcohol and
Drug Abuse
Chairman
Martha Layne Collins
Governor of Kentucky
TASK FORCE MEMBERS
Steve Cowper
Governor of Alaska
Evan Mecham
Governor of Arizona
Terry E. Branstad
Governor of Iowa
James J. Blanchard
Governor of Michigan
Ted Schwinden
Governor of Montana
James G. Martin
Governor of North Carolina
Rafael Hernandez-Colon
Governor of Puerto Rico
Edward D. DiPrete
Governor of Rhode Island
Ned Ray McWherter
Governor of Tennessee
William P. Clements Jr.
Governor of Texas
Tommy Thompson
Governor of Wisconsin
National Governors' Association
The National Governors' Association, founded in 1908, represents the Governors of the
fifty states, the Commonwealths of Puerto Rico and the Northern Mariana Islands, and the
territories of the Virgin Islands, Guam, and American Samoa. Its mission is to influence
the development and implementation of national policy and to apply creative leadership
to state problems.
NGA membership is organized into seven standing committees in major substantive
areas: Agriculture, Criminal Justice and Public Protection, Economic Development and
Technological Innovation, Energy and Environment, Human Resources, International
Trade and Foreign Relations, and Transportation, Commerce, and Communications.
Special committees and task forces are formed in response to principal concerns of the
Governors.
The Center for Policy Research serves as a vehicle for sharing knowledge of
innovative programs among the states and provides technical assistance to Governors.
The center manages a variety of federal grants and foundation-funded activities and state
demonstration programs in areas that include education, economic development, labor
market and occupation analysis, socioeconomic forecasting, health care financing
alternatives, job training, and state human resources management systems.
Office and Committee Staff Directors
Raymond C. Scheppach, Executive Director
Charles M. Cochran, Administration and Finance
Rae Young Bond, Public Affairs
Joan L. Wills, Research and Development
James L. Martin, State-Federal Relations
Barry Van Lare, State Services
Barbara L. Fontana, Agriculture
Nolan E. Jones, Criminal Justice and Public Protection
Richard B. Geltman, Economic Development and Technological Innovation
Thomas W. Curtis, Energy and Environment
Alicia C. Smith, Human Resources
Deirdre E. Curley, International Trade and Foreign Relations
Charilyn W. Cowan, Transportation, Commerce, and Communications
Cover Design by Marty Anderson, Design Group, Washington, D.C.
Copyright 1987 by the National Governors' Association.
National Governors' Association
Hall of the States
444 North Capitol Street, Suite 250
Washington, D.C. 20001-1572
(202) 624-5300
TABLE OF CONTENTS
Acknowledgements
1
PART ONE:
The Task Force
3
PART TWO: Alcohol and Drug Abuse Prevention: From
25
Knowledge to Action
PART THREE: Alcohol and Drug Abuse Prevention Programs in the
53
States
PART FOUR:
Additional Resources
77
ACKNOWLEDGEMENTS
There are many individuals and organizations who contributed to the development of these
supporting works for the Task Force on Alcohol and Drug Abuse Prevention. Substantive ideas
were gathered from groups and individuals whose works are not included in the report, but whose
suggestions are apparent.
First, Gwen Holden and the staff of the National Criminal Justice Association served as a
valuable resource and a source of constant inspiration during the development and production of
this report. They helped in editing, suggesting resource groups, and staging the Task Force Hearing
in Lexington, Kentucky.
Second, The Office of Substance Abuse Prevention (OSAP) was very helpful throughout this
project. Carl Hampton of that office assisted in getting witnesses for the Task Force Hearing in
Kentucky, and the National Governors' Association's winter meeting. Dr. Donnie Hassler of OSAP
has been a great help in seeing that the expert paper on "From Knowledge to Action," which is in this
report, was developed. She worked with the staff in putting together an outline and a final report
that offers advice on dealing with substance abuse prevention. The project staff is overall indebted
to Dr. Reed Bell and the OSAP staff.
Finally, the Kentucky staff of Mike Townsend and Barbara Stewart were of great assistance to the
Task Force. They not only assisted in preparing the report, but they developed the Task Force
Hearing in Lexington, Kentucky, and secured witnesses for the NGA winter meeting on the "Barriers
Project." The staff will be forever grateful to them.
Special thanks is owed to the following organizations and individuals who help provide
intellectual support for the ideas in these supporting works: Richard J. Klemp and John E. Shafer, Jr.
from the Miller Brewing Company; Kawala Brush of the Children of Alcoholics Foundation; Bill
Forman of General Electric Company; Fran Hurtado of Mothers Against Drunk Driving (MADD); Dr.
William Butynski of the National Association of State Alcohol and Drug Abuse Directors (NASADAD);
Dr. Jean Kirkpatrick of Women for Sobriety; Dr. Bill Braden of the Kentucky Association for
Counseling and Development; Barry Bertram of the Kentucky Commonwealth Attorneys Association;
Alex Brodrick of Volunteers of America; The American Public Health Association; and Dr. George R.
Ross of Possiblities Unlimited in Lexington, Kentucky.
Of course, in trying to think of the numerous people who helped us in the project, someone's
name will not be mentioned due to oversight. For this, we apologize.
1
PART ONE: The Task Force
3
TASK FORCE ON ALCOHOL AND DRUG ABUSE
Public Hearing
January 28, 1987, Lexington, Kentucky
Introduction
Kentucky Gov. Martha Layne Collins, chair of the Task Force on Alcohol and Drug Abuse,
convened a national public hearing in Lexington, Kentucky, on January 28, 1987. Joining Gov.
Collins were representatives of other Governors on the task force, including Dr. Robert Brock,
Michigan; Dr. Richard Freeman, Rhode Island; Bruce Marshburn, North Carolina; and Thomas F.
Miriello, North Carolina. Several Kentucky agency officials also participated, including Al Austin,
secretary of the Cabinet for Human Resources; Dennis Boyd, commissioner of the Department of
Mental Health and Mental Retardation Services; and Norma C. Miller, secretary of the Justice Cabinet.
At the hearing, the task force sought the advice and counsel of substance abuse experts with a
view toward hearing their recommendations for education and prevention, early intervention and
treatment, and law enforcement strategies that states can use to address alcohol and drug abuse.
This summary presents major recommendations from excerpts of testimony provided at the
hearing; and written statements submitted for the task force's consideration subsequent to the
hearing.
Dr. Reed Bell, Director, Office of Substance Abuse Prevention, U.S.
Department of Health and Human Services
The federal government responded to the problem of community drug abuse with
congressional passage of the Anti-Drug Abuse Act of 1986. President Ronald Reagan signed this act
into law on October 27, 1986. The act created the Office of Substance Abuse Prevention as part of
the Alcohol, Drug Abuse, and Mental Health Administration (ADAMHA) to complement the National
Institute of Alcohol Abuse and Alcoholism (NIAAA), the National Institute of Drug Abuse (NIDA), and
the National Institute of Mental Health. All of these agencies are within the U.S. Department of
Health and Human Services.
OSAP is located organizationally within the office of the administrator of ADAMHA and is
interrelated through that office with the treatment and prevention research that has gone on for
years in the other institutes which provide an excellent resource for OSAP. OSAP uses this base of
information to improve its efforts to prevent drug abuse.
5
After the law was signed the office held a National Strategy Conference. This is one of the first
times that the federal government has elected to invite the "grass roots" to come and help formulate
appropriate strategy nationally with an eye toward making prevention not only a new trial but a new
success. About 200 people attended the conference in Washington on December 15-16, 1986.
Different areas of substance abuse and prevention were addressed. This discussion led to the
structure of the office. The Office of the Director supervises four division operations: Information
Services, Community Assistance, Demonstration Programs, and Evaluation and Research.
Information Services. This division sorts out and integrates the acaringhouse activities of
NIAAA, NIDA, and other related substance abuse programs. It provides an effective source of
information on substance abuse through data bases and a telephone service. The division also
includes a publications unit that reviews all publications, improves them, and tries to make them
available to communities. In addition, the unit handles media and public affairs, which includes an
effort to use media personalities and entertainers to promote substance abuse prevention efforts
nationally.
Community Assistance. This division will facilitate work being done at the community level.
The division will focus on four groups: parents, youth, schools, and minority groups. Active parents
at the community level are a key factor in determining the effectiveness of prevention programs.
Youth are the second priority, based on the impact they can have on community substance abuse
prevention efforts. There is excitement about youth - their idealism, their openness - and about
mobilizing them in prevention efforts. They are willing to listen to anti-drug messages. The third
priority area is the schools. OSAP is working actively with the Department of Education to make its
research base available throughout the education system. The fourth area will focus on minority
groups, especially high-risk populations. An ombudsman for minority interests and groups will
serve within the office of the director.
Demonstration Programs. This division was mandated under the law and will be a $24.5
million program aimed at identifiable, high-risk groups. There will be three grants under this effort:
one targeted to comprehensive systems within the community; a second targeted to at-risk
populations; and a third targeted at prevention and early intervention. The division is looking for
community-based programs with demonstrated effectiveness in prevention and intervention
techniques to use as models in other communities. Much of this division's work will be devoted
toward evaluation and research of those particular efforts to discover what seems to work and what
can be done better.
Evaluation and Research. This division will focus on the findings of prevention research
carried out by the institutes. This information must be available to the agency and then made
available to communities so that the problems of prevention can be addressed more effectively.
The Office of Substance Abuse Prevention has $42 million for recognizing not only what works
in prevention, but to serve as a facilitator in helping those at the community level. Of course, $42
million is not enough to carry out national prevention programs. The organization, though, is
structured to assist states and communities that are addressing these problems. In a real sense,
OSAP is a special office, of prevention, and to address this issue it will work with states and
communities in every way in terms of information resources; in terms of information resources; in
terms of community assistance; to schools, to parent groups, to youth groups, to minorities, and to
special interests; and in terms of research and evaluation.
The operative philosophical blueprint for developing prevention strategies divides the
substance-abusing populations into categories of "easy" and "hard" and the "older" and "young"
These divisions are reflected in the schema below.
6
Easy
Hard
Young
Just Say No
High Risk Youth
Old
Workplace
Chronic Addiction
(20-40 years of age)
The workplace-effort, focused roughly on persons 20 years to 40 years of age, has been assigned
to the National Institute of Drug Abuse. This agency is working on the implementation of a drug-
free workplace initiative. Prevention efforts will focus on normative values in the workplace --
alcohol and drug abuse shouldn't be tolerated, particularly where they create safety problems,
performance problems, and, of course, health problems.
For some of the young group, there is the "Just Say No" effort. It is readily apparent that for a
large percentage of the young people, this is the right message.
Then there is a segment of high-risk youth who are considered difficult to serve. A "Just Say
No" message cannot simply be offered to this population. More active interventions are needed.
Finally, there is the older, hard-core narcotics population that has very serious substance abuse
problems. Efforts directed at these individuals also are being addressed by the National Institute
for Drug Abuse.
Dr. Merita Thompson, Department of Health Education, Eastern Kentucky
University
Within the context of substance abuse prevention programming in schools, it is important to
recognize that we must look at schools with an eye to their relationship with the rest of society.
Schools have a key role to play, but they often have been given too much blame for the problem and
too much responsibility for the solution. When you consider the possible impact of all the other
influences on a child's life, we cannot be surprised when classroom programs often do not show
immediate and drastic results. All of us will have an impact on the life of a child, and school has a
role to play, but it is a part of a larger picture.
By now, most major newspapers in the country have carried articles on the fact that we have
few drug prevention programs or schools that are proven to work. In reality, when one examines
the hundreds of studies that have been conducted to determine the effect of various programs and
approaches, most of the programs or evaluations are so flawed in design or implementation that the
safest statement we probably can make is that we have a lot to learn about what is best and what
works well, and drug education truly is in its infancy. Substance abuse prevention programs,
including those in schools, can fail in a number of ways, and it is important to look at those as we
consider what we understand about prevention programming for schools -- first in concept, then in
operations, then in implementation, and finally in evaluation.
Any program that is conceptualized without thought given to distinct populations and their
different needs and receptivity will be destined to have results that, at worst, fail, and at best, are
skewed or distorted. We must learn to plan for the different populations in any classroom in order
to expect the results that we are hoping for.
When programs are based on the theory that knowledge equals attitudes equals behavior, they
may err in many ways. We don't always know what knowledge results in what attitudes, or what
attitudes result in what behaviors.
In operationalization, knowledge selected in a program is very critical. It must be sufficient to
make people perceive they are at risk. For example, some curriculum guides spend time discussing
7
how beer is made, although that information probably doesn't help people make decisions about
their own choices regarding alcohol consumption.
In implementation. time is of critical importance. We know from research and experience that
programs that are more intense, that are longer in duration, tend to have better results. Yet, we
have programs that are very short, that are spattered and spotted, and would have no logical
sequence. The sequence of experience is very important. The readiness of a child at different
levels is a critical issue in choosing information and activities that will make that child perceive
himself or herself to be at risk. Inadequate teacher training in affective areas can lead to disastrous
results.
In evaluation, possible errors are too numerous to mention: there are problems with cross-
sectional versus longitudinal design; variables that are not controlled; evaluation instruments that do
not reflect content; and, particularly, behavior related to substance abuse that is not being evaluated.
One of the more important conceptual errors that also is an evaluation error is that other influences
may play a much more powerful role than what we are doing in the schools.
Major reviews of hundreds of studies have been conducted, and most studies have been found
to be flawed in one or more of these four areas, in such a way that logical, valid conclusions cannot
be drawn from them.
Is the logical choice then to throw up our hands and in frustration and cynicism, say drug
education does not work, and do nothing? No, we can't just wait until we understand the
phenomenon to do something about it. We have to take our best shots now.
We can proceed based on, at least, observation and experience, research into the etiology and
correlates of drug abuse, and findings on what has worked in acceptable research that we do have.
We can proceed and we must proceed in the schools. The importance of beginning any effort with
a plan for evaluation cannot be overstated.
To look, then, at what schools can and should do in the area of substance abuse prevention,
these goals should be addressed:
to delay the onset of use of substances;
to provide information and skills that will enable students to make low- risk, healthy decisions
now and later in life; and
to provide a process for effective intervention with high-risk, drug-abusing students.
Schools also should contribute to the development of a healthy self-image that is sufficiently
positive to enable a student to apply the information skills he gains in school. Schools can't take
full responsibility in that, but they have a contribution to make and a role to play. Needless to say,
these latter goals are appropriate also for faculty and staff at schools.
Our best shots in realizing these goals based on what we understand at this point in history, and
knowing that we are in infancy in research and understanding in many ways, are these:
First, there must be a planning process in schools that includes a team of people made up of
school personnel and representatives from community leaders, parents, and substance abuse
professionals.
Second, the planning team, the superintendent, and the school boards should take a global view
of prevention programs for schools. Curriculum and classroom instruction are important.
But so, too, are policies that are fair, consistent, and well-understood by students, personnel,
and parents, and that support the goals of prevention and intervention.
8
Third, a good prevention program also will provide for education for all teachers and others in
the school who have an impact on youth. Over time, in-service programs can reach all school
personnel if the commitment is there. The school can conduct or actively support drug-free
alternatives for young people, including recreational alternatives.
Fourth, perhaps no component will be more important than parent education. Of the
correlates of drug abuse, most of them involve the parent. If there are social correlates, most
of them relate to the parent .. parent involvement, parental drug abuse, parental expectations,
etc.
Every school has a population. that is at high risk for drug abuse, and schools need intervention
plans. Some student assistance programs have been found to be very effective with the high-risk
population -- kids who are children of alcoholics, low-achieving youngsters, kids who don't fit in, and
others. In addition, any good curriculum will result in identification of young people who are
abusing drugs in high-risk ways and need help and intervention.
It's not enough to react only punitively to their behaviors. Through personnel planning,
comprehensive discussion and planning of a process, and networking with parents and community
resources, any school in the nation can provide some degree of help and intervention to these high-
risk young people.
To truly evaluate a school prevention program is one of the most important needs. A data base
must be established and monitored continually for changes. And this needs to be done at the state
level and the community level.
The ultimate criterion is behavior. We will never really know about the efficacy of our school
programs until we monitor drug-related behaviors. But interpretation of such data must always be
tempered in reference to the school, with a realistic look at other influences on student choices, and
especially the prevailing attitudes and behaviors in the adult community.
The backdrops of a sound academic program and positive school climate are very important. A
sound, success-oriented academic program, in fact, may be the single most important component of
a substance abuse prevention program. Kids who achieve in school, expect to do well in school,
and have academic goals have significantly lower rates of substance abuse. A positive climate in
which a child feels valued and free to create and explore his or her own decisions is absolutely
essential.
Curriculum is what most people think of when they think about prevention programs in schools
-- sequential, integrated, well-planned to be appropriate at appropriate times and in appropriate
ways. One avenue of drug education is drug information. Factual information often has been
used alone as the sole prevention effort. It often has been presented with a backdrop of moralizing
or scare tactics. It often has been selected and presented with no thought given to the target
subgroups in a classroom. And it often has been selected with no thought of its relative relationship
to behavior. Information is not the baby to be thrown out with the bath water. People need
factual information to help them perceive the risks and to understand their alternatives. It can have
a cumulative effect over time, and we haven't measured that well.
Building self-esteem has not been researched very well in relationship to specific drug-using
behaviors. But building self-esteem has been shown in many studies to evidence a decrease in
absenteeism, delinquency, and other cluster behaviors that are correlates of drug abuse. Time,
good planning, future training, and commitment can make this a valuable contribution to a school
program. Skill building in these areas has a new promise on the horizon, and the studies are
encouraging. The relationship among some of these efforts, especially assertiveness skills, peer
refusal skills, and decreasing smoking and decreasing alcohol use and marijuana use, especially at
some grade levels, is very heartening. We need to continue to monitor that, to continue to explore,
to continue to evaluate, for these other areas can also make a contribution to the school program in
9
valuable ways. Kids who have a direction tend to use substances less often, and thus career
education and self-improvement areas potentially can be important.
Decision making has a large base of support in health education literature. We don't know
exactly the best techniques to bring the best results in terms of teaching decision-making skills. But
it is essential that we move into that area. People do need decision-making skills. They need
problem-solving skills, and we can find the ways and evaluate the ways to best teach them.
Our best educa! onal approach is to incorporate as many of these as we can and not jump on
the bandwagon of one and exclude the others. Major points to keep in mind include:
Information about drugs is probably best done in combination with skill building in these areas
and self-esteem building, especially at the lower grades.
Students must have sound information to help them perceive their risks if they are to choose
wisely over time. However, information often is not enough by itself, and decision-making and
peer relationship skills are needed. A positive self-image will help them apply what they learn
and enact the decisions they choose.
We need to teach all of these, while continuously evaluating what we are doing and monitoring
the research as it is being reported.
Schools may purchase a program or choose to build their own curriculum, and there is value in
both. It is very important that the team planning be a part of that. Colleges and universities
need to provide information and skills for their general student body much as the public school
does. We are finding some interesting things about what they don't do in that area. From all
indications, substance abuse information for the general college population is at best three to
four hours in a health class, and, commonly, it is nothing at all.
Evaluation is lacking. It is needed in behavioral terms on college campuses, and it goes sadly
lacking on most. As with the local schools, colleges and universities need to establish a data base
that could be used for decision making and for evaluation; an intervention plan that ideally would
include a student assistance program; and a drug awareness program, not only for staff but for
faculty, also. It would be very helpful for a campus to have inservice programs for faculty and other
personnel. There is a surprising amount of ignorance among these individuals regarding substance
abuse among their students. And student housing staff probably do it best, but there is a great need
there.
Sadly, colleges and universities play a key role in another area, but don't often meet that very
well. They are charged with preparing professionals, especially in human service areas that require
a sound background in substance abuse. Most schools have never conducted a campus study of
the adequacy of substance abuse education for these professionals. Institutions of higher learning
need to assume more of a role in alcohol and drug abuse prevention research. That is within their
role and certainly the need is there.
James Neal, Director of Prevention Services, South Carolina Commission on
Alcohol and Drug Abuse
Each state has a designated lead agency for alcohol and/or drug abuse that is a member of the
National Association of State Alcohol and Drug Abuse Directors (NASADAD). Collectively, this
group contributes to major governmental efforts to prevent and treat the problems resulting from the
abuse of alcohol and other drugs.
NASADAD has recently recommended a strategy to reduce the demand for alcohol and other
drugs. It is a multifaceted strategy that calls for:
10
greater access to drug and alcohol treatment services;
a major commitment to comprehensive drug and alcohol prevention education programs in our
schools and in our communities;
greater public awareness and education that treatment and prevention programs are available;
more utilization of the well-established state networks for treatment and prevention programs;
and
expansion of private and public third-party reimbursement for treatment services to encourage
greater participation by the private sector.
Treatment is included as part of a prevention or demand reduction strategy. This is because
NASADAD, as well as many of its individual members, uses a public health concept of prevention.
This concept recognizes a continuum of services, and not sharp distinctions between primary
prevention, intervention, and treatment. Treatment, hence, is a vital part of prevention because of
this concept, and also because of the population of users that consumes most of the alcohol and
other drugs. For example, we know that there is a direct relationship between the amount of
alcohol available in society, the amount consumed by the population, and the incidence of alcohol-
related problems. Since about 20 percent of the alcohol-using population consumes almost 80
percent of the alcohol in this country, and this population presents the major concerns for
treatment, we also reduce the demand for the drug by treating these individuals and by having early
intervention programs.
The National Prevention Network (NPN) is an arm of NASADAD made up of the designated state
prevention coordinators from each state and territory. NPN recently addressed letters to the
Alcohol and Drug Abuse Mental Health Administration, the U.S. Department of Education, and the
U.S. Department of Justice calling for the development of a national prevention strategy that would
include several elements. First, the letter calls for a five-year prevention plan. It appears that our
response to the problems resulting from the use and abuse of alcohol and other drugs moves from
year to year, from drug to drug, and from population to population. That is not the way to do good
prevention planning. It is not the way to measure our results. So, it is essential for good long-
range planning in prevention to take place that recognizes that the drug scene does change, but that
there are some components that take time to put into place and to measure.
Second, this letter calls for the creation of a comprehensive system for prevention in schools
and communities, with emphasis on communities. We seem to have a tendency to want to focus all
our prevention efforts on adolescents within the schools because they are the easiest population for
us to target. We tend to forget that there are other communities that exist around schools. We
also tend to forget that we have about a 26 percent dropout rate in this country, so many adolescents
who are at the highest risk for abusing alcohol and other drugs are not in schools. Hence, we need
to recognize that we don't need an approach to the prevention of abuse of alcohol and other drugs
that focuses solely on the school population. We need a community approach that recognizes
school dropouts and other high-risk groups within the community, such as the elderly.
Other components the approach calls for include:
A consistent review of the funding process between the federal and state governments because
we tend to operate in isolation with different parts at each level of government going their own
way.
Use of existing networks because there are now many networks that are in possession of a great
deal of information and experience and are very willing to work in this area.
11
A balanced approach between alcohol and other drugs. The most recent efforts on the part of
the federal government have once again tended to focus on the so-called illicit drugs. While
these are certainly major concerns, we need to recognize that in this country our number one
drug of abuse has always been and still is alcohol. Hence, we need to have a balanced
prevention approach that addresses alcohol as well as other drugs.
A commitment to increased intervention and treatment services.
The adoption of a continuum of care con rept.
The creation of advisory bodies. We particularly recommend that states create a state-level
supply/demand reduction task force that would be composed of representatives from agencies
that are concerned about the supply of alcohol and other drugs and how such substances get
into society; representatives from health and human service agencies that are involved in
reducing substance demand; and representatives from citizen groups that are actively involved
in this field.
Comprehensive training and technical assistance programs.
A heightening of public awareness of the greater availability of effective prevention and
treatment approaches.
The objectives of alcohol and drug abuse education and prevention initiatives are to:
develop critical thinking skills and self-competency skills;
provide specific information about alcohol and other drugs;
instill information about healthy lifestyles;
increase self-awareness;
build self-esteem;
impart interpersonal relationship skills;
inform the advertising community about alcohol and drug abuse and help this community
recognize the influence they have on personal decisions regarding use;
communicate information about the supply of alcohol and other drugs and the impact that this
has on other public policies;
promote public policies that support healthy lifestyles; and
promote peer resistance skills.
The human body doesn't make any distinctions as to whether or not it has ingested an illicit
drug or a legal drug. Therefore, in some ways our prevention efforts need to clearly state that a
drug is a drug. However, in other ways, some distinctions must be made because our society
recognizes alcohol is frequently treated differently from other drugs. We also tend to treat nicotine
and caffeine differently from other drugs. We need to recognize these attitudinal and public policy
distinctions when we are planning prevention programs.
The South Carolina Commission on Alcohol and Drug Abuse is an independent state agency
governed by a board appointed by the Governor and confirmed by the Senate. This commission
12
recently adopted an Alcohol Policy Bill of Rights, which addresses many of the distinctions in
preventing the problems resulting from the use of our legal drug - alcohol.
The Alcohol Policy Bill of Rights is based upon four principles:
that abstinence is always an acceptable choice;
that alcohol consumption considered to be high risk is actively discouraged;
that alcohol consumption considered to be low risk is acceptable; and
that heavy alcohol consumption is discouraged in all situations.
Now, based upon those four principles, there are some six rights within the Alcohol Policy Bill
of Rights:
The right to warning and beverage ingredient labeling so that consumers know the potential
health risks of alcohol consumption; prominent displays of information; and elimination of
misleading alcohol advertising or equal time for public health counter-advertising.
The right to safe communities and roadways, including certain and swift enforcement of driving
while under the influence laws; mandated server intervention programs and liability
information; local and state alcohol beverage regulations that would control the number,
location, and types of alcoholic beverage outlets; adequate funding of alcoholic beverage
control commissions; and insurance incentives for safe and sober driving.
The right to health-enhancing alcohol pricing, which uses adequate tax increases to discourage
high-risk alcohol consumption, and equalized tax rates for all forms of alcoholic beverages;
The right to protect our youth by having adequate funding for alcohol prevention education
programs; adequate enforcement of the minimum purchase age law; and an end to alcohol
consumption promotions aimed at youth, particularly those promotional activities on colleges
and university campuses;
The right to safe workplaces, to put an end to the pressure to use alcohol as a part of
conducting business and the federal tax subsidies for corporate alcohol use, adequate funding
of employee assistance programs, and an end to government subsidies for alcohol within the
Armed Forces.
The right to health services, the right to effective, low-cost recovery services available to the
entire public, and assistance programs that would look at financial reimbursement and
emotional and medical support for the victims of alcohol-related incidents.
The components of an effective alcohol and drug education prevention strategy should be
under a public health concept that recognizes primary, secondary, and tertiary prevention, but also
recognizes the agent, the host, and the environment, and the interrelationship among those three.
We tend to focus most of our efforts toward the host by providing information and self-esteem
building, self-awareness, self-competency, coping skill and decision-making skills, and ignore the
environment in which those decisions take place. Hence, I think developing peer resistance skills
or social resistance skills, or what some people call inoculation skills, becomes a very, very important
part of host approaches to prevention. But, until we begin to look at policy issues that influence
the environment, the supply of alcohol and other drugs, and how people make decisions when they
relate to their environment about the use of alcohol and other drugs, then we have not really
developed a comprehensive strategy.
13
A tremendous amount of research has been done on effective prevention approaches to the
abuse of alcohol and other drugs, and new prevention strategies are always being discovered. We
know a lot about what works, and perhaps even more about what does not work in alcohol and
other drug abuse prevention.
Certainly, prevention programs that have been directed toward the schools provide 3 great deal
of information. We know, for example, that the approach that grew out of the Harry Anslinger era
of the thirties and forties, and moved onto the fifties and sixties, of trying to approach the problem
by providing information, and particularly information that had sort of a moral slant to it, does not
work. We know that information alone does not, in itself, change behavior. Information, though,
is the basis for changing behavior and hence is a very critical part of any approach to primary
prevention.
In alcohol and other drug prevention fields, we seem to have moved, particularly in the schools,
to trying to combine information with effective education approaches. The idea, here, is that if we
give young people information about a drug and then combine that information with some
experiences around decision making, then the student will make the right decision. The prevention
research has not shown that always to be true. This research is not in and of itself an indictment of
affective education approaches. It is more of an indictment about our state-of-the-art in prevention
and attempts to evaluate something as complex as human behavior and decision making.
There is another ingredient that is now appearing in substance abuse prevention strategies, that
started with smoking cessation programs but is now being applied to alcohol and other drugs. This
is delaying or preventing the onset of use through the development of peer resistance skills. The
"Just Say No" movement is part of that concept of saying no to drugs - "Be Smart, Don't Start, Just Say
No."
The research on peer resistance skills stresses the importance of being able to rehearse
situations in our minds or with other people so that when we are confronted with the situation, we
are more likely to say no. Hence, peer resistance skills are now part of the state-of-the-art
knowledge about alcohol and other drug abuse prevention.
There is a step, though, that has to occur beyond just saying no. Individuals need to know
why they want to say no and be able to articulate these values that support the decision. It is not
enough to be able to say no to drugs because that may not last.
Part of the state-of-the-art in alcohol and other drug abuse prevention has to be related to the
health promotion/public health movement. More and more we are beginning to address our
lifestyles and look at things like smoking, eating habits, and dealing with stress. What is the
appropriate government role in this field? The easy answer, of course, is to say that the appropriate
role of government is to provide more funds and more resources. There is, however, much more
that government can do. It is also a question of leadership and policy development. Specifically,
government has a responsibility to be a leader in examining public policy and the promotion of
supply/demand reduction. We need, for example, as part of our examination of public policy to
review the role of ABC commissions in this country; are such commissions oriented toward
protecting the public's health and safety, as was their original mission, or are they simply serving as
tax-collecting arms of state government?
Government also can have greater influence on universities and colleges, particularly the state-
funded institutions. We must look at ways to get state-funded institutions to incorporate training on
alcohol and drug abuse into their professional degrees. We do a terrible job in that area. It is a
shame that every state-supported institution doesn't offer a course on alcohol and drugs for
students, but, more importantly, offer training for people who are going into the professions.
So, too, it is important for state government to establish supply/demand reduction task forces.
For too long in our field, the people who have been involved with supply and interdiction have sat
14
on one side of the room, and the people who have been involved with demand reduction have sat
on the other side of the room. We need to move away from this artificial distinction. The
problems of alcohol and other drugs is one that needs the combined efforts of persons who are
concerned with reducing the supply, as well as persons who are concerned with reducing the
demand. These persons need to work together.
All populations are in need of information. Our health education efforts should not
discriminate yet, we need to recognize that there are some parts of our population, such as children
of alcoholics, that are at higher risk than others in terms of the abuse of alcohol and other drugs.
Schools can address this through student assistance programs that incorporate the identification
of high-risk populations into their goals. Every high school should have a student assistance
program that provides the administration with an alternative to the traditional sanctions that are
imposed when a student is caught in possession of or under the influence of alcohol and other
drugs. Student assistance programs allow for the student to be referred to a program that provides
an assessment and appropriate education or treatment services. Every school also should have an
employee assistance program to go along with a student assistance program, because while students
have problems with alcohol and drugs, so do faculty and staff.
There is a need, then, to recognize subpopulations, such as children of alcoholics, the elderly,
and populations that may be more prone to use and abuse of over-the-counter drugs. These
subpopulations need to be taken into account when designing programs.
Dr. Beny J. Primm, Executive Director, Addiction Research and Treatment
Corporation, Brooklyn, New York
An article in USA Today indicated that alcohol and drug abuse ranked number two for mental
health admissions in this country. This reflects how important this particular field is. What
influences alcohol and drug abuse admissions is unemployment. When unemployment is high,
alcohol and drug admissions to mental health institutions are great. When salaries are low, when
there is a period of recession, admissions to alcohol and drug abuse mental health facilities are
greater. So, it is tied in with economics and even sociological factors. Another factor all over our
country is closing wards and mental health institutions. In New York State alone in 1987, there will
be 7,000 people from mental health institutions who will be let out on the street. A number of them
become homeless: there are no places for them to go, and many certainly fall or succumb to the
problem of substance abuse on the street. Currently, only 100,000 people are in mental health
institutions, and this year the number will be reduced to far less than that.
Stress, too, is related to substance abuse. We have stress every day when we wake up, if we're
cold, if we're hungry, if we have problems with our work or unemployment, or too little of this or too
little of that. Most of us know how to cope with that stress. But many of us are never taught how
to cope with stress. And as a consequence, we end up falling prey to, of course, substance abuse.
One would think that stress is the lead reason for counseling, but it ends up being substance
abuse. This is another reason why states must do something about the treatment of substance
abuse. It is readily apparent how alcohol contributes to the poor health of all of our citizens. In
New York City, it is the fifth leading cause of death of everyone. In my community (black), it is the
second leading cause of death. The first leading cause of death is AIDS. The third leading cause of
death in my community is homicide. The fourth leading cause of death is drug dependence.
The use of crack is a serious problem in some communities such as New York. But if it's in
New York, it's going to be in your state sooner or later. It's just a matter of time. We are now
seeing kids buying crack at 10, 11, and 12 years of age. They smoke it on marijuana cigarettes or
smoke it on other cigarettes. Crack is a smokeable form of cocaine that gets to the brain in eight to
ten seconds, or less. The high is intense and rapid. It lasts three to five minutes, which means
people end up having to buy drugs very frequently. The crash is very intense so they need a
15
parachute drug to come down; they will likely take something like cognac or a heavy-bodied liquor
or one of the sedative hypnotic drugs to ease that crash. There is an intense craving secondary to
taking this drug and a rapid addiction, with severe medical and psychiatric problems resulting.
There is a treatment for cocaine-related problems, although there is no specific treatment for
crack. One thing to do is to take people away from the availability of the substance. There are
some chemotherapeutics that are being touted now as being helpful in the problem. But, if you
introduce someone to another type of drug, you can cause another kind of addictive behavior. For
cocaine treatment, one needs a short-term therapeutic community with ongoing, long-term follow-up
with these individuals. Some of the common personality factors associated with addicts include
problems of self-esteem and conflicting parental values. As an aside, if you have a mother or father
who is an alcoholic, or you are male whose father is an alcoholic, you have a 50 to 75 percent
chance of becoming an alcoholic. This would suggest that people who have a parental background
of alcoholism should stay away from alcohol altogether.
There are three different kinds of drug users. Experimental users may try various drugs once
or twice out of curiosity and then leave them alone and go on about their business. A study of high
school seniors in this country has shown that marijuana use really peaks at age 18. The study,
though, had a great many weaknesses, especially since it did not adequately address drug use among
dropouts. The states have to insist that the National Institute of Drug Abuse, which funds such
studies, begin to look at dropouts because they have a 67 percent greater chance of being involved
in substances than their cohort group of seniors in high school.
Another kind of user is the recreational drug user. This is where drugs are taken to get high
with friends at a party, and that is generally where things really start. These persons get used to a
crack high, they long for it, and they can't do without it.
The third kind is the regular drug user and the dependent user. They go on from the use of
gateway drugs - liquor, cigarettes, and marijuana are considered gateway drugs -- to harder, more
addictive drugs.
There are a number of phases of drug abuse. In the first phase, the gains outweigh the losses.
It is very difficult to get people into treatment when they are in this phase of drug abuse. The
second phase is where gains and losses are equal. We sometimes get people into treatment from
this phase who are generally forced into treatment by families or the court if they have a problem
with the law and are sentenced to a drug treatment program. But in the third phase, we get a lot of
people where the losses clearly outweigh the gains of taking drugs for many years.
What we need in this country and in every state is a social model of prevention. The
community needs to establish rules regarding chemical use -- when you can use these drugs; where
you can use them; when it is legitimate to use them; is it necessary to use them; what behavior should
be tolerated by individuals who do use chemicals; what behavior should not be tolerated? We also
need to establish a way to communicate these particular "rules" to the rest of the community so they
will know not to violate them, through the media, through schools, through churches, through the
family.
If we are going to be effective in trying to have a drug-free America, we first are going to have to
not glamorize or advertise the use of alcohol and certainly cigarettes. As an aside, the leading
cancer now among black women in this country is lung cancer. It now surpasses both uterine and
breast cancer as the leading cause of death.
Has the community established a system of accountability? In other words, through care, love,
and concern, through family, friends, employers, schools, and the courts, have we decided what's
okay in terms of behavior, in terms of chemical use, and decided what's not okay? And if somebody
gets in the "what's not okay" area, have we decided to get them back into the what's okay area so that
they can function in society and become taxpayers? It's really important that this occurs with all the
16
fervor that we can garner. We can do it through Alcoholics Anonymous; we can do it through
Narcotics Anonymous; we can do it through MADD and SADD and all those acronyms that have been
established. We must encourage social competency, where individuals themselves have clear values
that have been communicated to them by parents and teachers and police and the courts and
everybody else responsible for behavior. We must have emotional coping skills so that persons can
learn to deal with stress, and when they have a stressful problem, they know avenues to use to get
over that problem. Also important are good decision-making skills, communication skills, and
certainly alternative highs. We also have to teach people how to be high off life or high off their
productivity. This is really, really important.
One other point that is terribly important and is associated with the problem of substance abuse
is AIDS. In this country, as of January 19, 1987, 29,536 people had come down with AIDS,
including 422 pediatric cases. That's tremendous. About 25 percent of those cases were from
intravenous drug abusers, or the sexual partners of intravenous drug users. As a consequence, we
are seeing transmission from intravenous drug users to heterosexual society. You don't have to be
gay, nor do you have to be an intravenous drug user, to indeed come down with AIDS. In New
York City, it was reported that one in every ten citizens now are positive for the antibody to the virus
of AIDS. It also means that those people who are positive for the antibody are infectious. They
are without symptoms, and if they have sexual intimacies with a person of either sex, they could pass
on the virus and that person too will become positive for the virus. Twenty-five to 50 percent of
those people who have the positive antibody will go on to get the disease. Twenty-five to 50
percent -- that is a startling number. We now feel that in New York City, there are about 250,000 to
500,000 people who are positive for the antibody to the virus. In certain Central African countries,
i.e., the Central African Republic, Zaire, Rwanda, Uganda, as much as 5 to 10 percent of the
population is already positive for the virus. And they don't practice homosexual sex; the sex
distribution ratio is one to one, women to men. It has been reported that by 1991, at least in that
part of the world, approximately 5 million to 10 million people may die from AIDS. We have to
worry about that in this country, and not one state has been spared. There's a whole lot of denial
going on because people say that AIDS is a disease of homosexuals and that it is a disease of
intravenous drug users. We're going to see a great deal more of this problem and the issue must be
addressed.
One thing that is cause for concern, particularly for minorities in all of the major cities, is the
heterosexual cases of AIDS. Among whites in the country, only 1 percent of diagnosed cases have
been within heterosexuals. Among blacks, it is 12 percent. Among Hispanics, it is 3 percent of the
cases. It is important to look at this because probably what is happening is we have a lot of in-the-
closet gay or bisexual men, and we have a lot of in-the-closet intravenous drug users, where it takes a
year or longer to find out that one's sexual partner is using drugs or having a homosexual
relationship.
We have to come out in the open with this problem. The biggest killer of males between 20
and 49 in New York City is, indeed, AIDS. There is a disproportionate representation of races.
Ethnically, blacks make up 12 percent of the population in this country, and 25 percent of AIDS
victims; and Hispanics are about 8 percent, but make up 14 percent of that AIDs victims. And this
is because these minorities are disproportionately represented in the intravenous drug-using
categories.
The federal government has passed a law to give more money for drug treatment, although it's
been cut back somewhat. There is a "Catch-22," though, regarding funding for drug abuse. If we
had more money in New York City, we couldn't open more treatment programs because the people
who live in the communities wouldn't allow us. They don't want more expansion of treatment
programs, even though the problem is expanding greatly. If we could get over the resistance of
communities, then we could be able to do something about the problem of drug abuse in New York.
17
H. Leonard Boche, Executive Director, Minnesota Association of Treatment
Programs
The states have faithfully been the custodians of public policy, which has taken the long-term
view of alcohol and drug abuse problems while the federal government has declared intermittent all-
out war and armistice depending on the election calendar and/or the state of public panic that may
exist at any one time. The states are to be commended for their resolve and stability in the long-
term struggle to find effective responses to the alco' 1 and drug abuse problem.
A Comprehensive Viewpoint
It is necessary to adopt a comprehensive view in which the distinctions made between alcohol
and other psycho-active substances are seen as minimal. A generic approach is more consistent
with the experience of the patients we see. There is no nationally accepted language for this
viewpoint so we stumble about by using phrases like "substance abuse" or "chemical dependency"
while the federal government maintains separate institutes and provides no leadership for a
comprehensive approach. Again, it is the states that have been the innovators and have provided
the "big view." If this task force could help develop a national language for the generic approach to
alcohol and drug problems, it would be a historic achievement. During appropriation season there
is a strong temptation to pit prevention against treatment as if these two elements are antithetical.
That view is rejected here, for prevention and treatment are inseparably part of the same cloth. In
the history of civilization's efforts to deal with public health threats, it is found that treatment for the
disease often is found before means of prevention are discovered. It is not unusual for the means
of prevention to be learned from the experience and insights of treating the victims.
Commitment to treating the casualties of substance abuse gives credibility to prevention efforts.
In Minnesota, the credibility of school prevention programs soared when school districts established
employee assistance programs for administrative staff and faculty. Kids respond to consistency and
are quick to pick up on hypocrisy. Sound prevention programs aré built on the foundation of a
humane attitude that includes treatment of those who become dependent and addicted.
There are two cliches that are continually being reinforced as more data becomes available --
namely, treatment doesn't cost, it pays, and you can pay me now or you can pay me later.
The work of Holder and Hallen in the longitudinal study of Blue Cross subscribers in northern
California found that treatment of alcoholism resulted in significant reductions in utilization and cost
of all health care - not only for the alcoholic, but for the non-alcoholic family members as well.
Treatment of alcoholism was not just humanitarian, but it reduced the health care costs of alcoholics
and their families to the point of being less than the control group. The treatment of alcoholic
people didn't cost, it paid. (Harold Holder and Jerome B. Hallen, H-2 Inc., 211 N. Columbia Street,
Chapel Hill, N.C. 27514) Similar findings are reported by Gary Graham, M.D., medical director for
Kemper Insurance Group, Chicago, Illinois.
The 1985 report of the Chemical Abuse/Addiction Treatment Outcome Registry (CATOR)
prepared by the Medical Education and Research Foundation of the St. Paul-Ramsey Medical Center
reported on the six and twelve-month follow-up of nearly 3,000 persons treated for chemical
dependency. That report summarized their findings by stating, "In addition to the obvious benefits
to individual patients and their families, treatment programs appear to offer significant economic
rewards to local, state, and federal governments, as well as insurance providers and private industry."
(Norman G. Hoffmann, CATOR, 640 Jackson Street, St. Paul, Minnesota 55101)
The CATOR study further points out that society incurs substantial costs for persons who are
actively chemically dependent and that the drain of resources is curtailed when intervention occurs
and society invests in treatment.
18
A Continuum of Care
An effective treatment system is based on the understanding that recovery is a two-year process
in which the patient will use a variety of services with varying degrees of intensity. There is no
quick fix nor is there one miracle methodology that is so superior as to exclude consideration of
others. The programs that closely tie together formal treatment with self-help aftercare seem to be
most effective in helping people to recover.
The resulting continuum of care will have within it four functions: case finding and intervention
services; emergency services and detoxification; primary treatment; and aftercare.
Case Finding/Intervention Services. A broad range of community "gate keepers" often are
the people turned to in times of crises. Gate keepers who are sensitive to and knowledgeable about
substance abuse are often key actors in getting families and dependent people in touch with the
appropriate treatment resources. Formal intervention services are often crucial in helping the
person to accept help. Employee assistance programs have proved to be cost-effective for both
public and private employers. Rarely do people come for help "voluntarily," but rather accept help
as the result of a crisis. The task of intervention services is to channel the energy of a crisis into
constructive outcomes. This task becomes easier when the social stigma is reduced and there is a
cultural understanding that chemical dependency is a treatable condition.
Emergency Services/Detoxification. Toxicity resulting from an overdose of alcohol or other
drugs can be a life-threatening condition. The first task of a detoxification program is safety. It has
been found that specialized services for intoxicated persons serve their needs more efficiently than
do general purpose emergency services. The key to the management of the intoxicated person is
easy access to the service. The admission process must be quick and sure, operating under
standing orders that take into account the needs of the intoxicated person and administered by
people who have the ability to relate to the presenting person in a nonjudgmental manner. General
purpose emergency services tend not to meet these conditions.
Another major function of detoxification is to help the person to accept help and to refer the
person to appropriate services.
Primary Treatment. Primary treatment is that set of learning and therapeutic activities
following detoxification where the patient is introduced to his or her illness and given the tools to
stay sober. Two of the ingredients are hope and a discipline of recovery. The goal of primary
treatment is to prepare the person to effectively use an aftercare program. The one factor that
most clearly predicts success in treatment is the patient's willingness and ability to use the aftercare
services.
Primary treatment can be hospital-based, freestanding, residential, or outpatient. The level of
environmental control required for a particular patient is a hotly debated issue at this time. The
historic models relied very heavily on residential treatment, which was effective and economical.
Because health insurance providers would pay for treatment only if it were in a medical facility,
treatment moved into higher-cost settings in order to get payment for services. Now health care
planners are telling the field that residential chemical dependency treatment is too expensive and
that treatment has to be delivered on an outpatient basis. It must be pointed out that inpatient
chemical dependency treatment became expensive as the result of the health insurance industry's
insistence that treatment be more medical as a precondition for payment. The patient cannot be
permitted to be a pawn in this debate, but must be provided quality care, whether residential or
outpatient.
Aftercare. Aftercare is crucial to success in treatment, for it provides the framework for the
learning started in primary treatment to be internalized. For some patients more formal therapeutic
aftercare is indicated, while other patients will do well with self-help groups such as Alcoholics
Anonymous or Narcotics Anonymous.
19
Some patients will not have a home to return to, or, in some cases, the family will be so injured
that return to them would be ill-advised. These persons will benefit from residential aftercare or a
halfway house. Some patients need more time in a structured supportive setting in order to break
the pattern of chemical dependency and start life anew. The halfway house helps the person use
community resources appropriately and provides for the orderly reentry into the community.
Problem Solving
People who suffer from substance abuse develop lifestyles that are filled with problems, i.e., job,
family, court, financial, etc. The temptation is to look at these problems as the cause of the
substance abuse, when in fact, these problems may be the result of the illness. Major assistance in
problem solving needs to be made available to patients after they have established basic patterns of
sobriety. Problem-solving help given to actively using chemically dependent persons usually is
misapplied.
Basic Understanding of Alcoholism and Drug Abuse
Clinical observations, more recently supported by additional research, recognize that chemical
dependency is disproportionately found in certain family lines, as is true with diabetes. There is
new appreciation for the presence of a genetic component in the development of alcoholism. The
old adage that some people are born alcoholics seems to have a basis in fact.
We live in a drinking culture and that, coupled with the presence of prescribed and recreational
drugs, means that there is nearly universal exposure to psychoactive substances in the American
culture. This nearly universal. exposure, placed against a substantial genetic pool of persons
disposed toward uncontrolled use of such substances, results in a disease phenomenon.
Over the past 40 years, we have learned that the condition is treatable, that people do recover
and return to full productive lives, and that treatment doesn't cost, but rather it pays! Treatment
also creates the hope upon which prevention efforts can be built.
David L. Armstrong, Attorney General, Commonwealth of Kentucky
The crime of drug abuse is a crime that arouses great passion and emotion. But it is also an
economic crime, a crime of supply and demand. There are many ideas that relate to education and
prevention, as well as early intervention and treatment. These ideas are aimed at cutting off the
"demand" for drugs. But to complete the program, we also must work to cut off the "supply."
Staggering profits are the incentive for drug trafficking, and to eliminate the problem, we must
eliminate the profit. To confront and defeat alcohol and drug abuse, we need a multifaceted
approach to a complicated problem.
The following recommendations are based on years of discussions with law enforcement
professionals:
Law Enforcement Education. Law enforcement officers should be educated on alcohol
abuse. Through education, we can recondition law enforcement officers to deal more effectively
with drug and alcohol abuse. Presently, the training is inadequate. For example, in Kentucky, 400
hours of training are required for law enforcement officers. Out of that 400 hours, only four hours
are dedicated to substance abuse. We need to provide law enforcement officers with more
adequate training as to drug and alcohol abuse, and to provide updated training and information on
a regular basis so that they can be fully prepared to play an effective role in confronting alcohol and
drug abuse.
Judicial Training. Training on drug and alcohol abuse should be provided to prosecuting
attorneys and judges. This training, which could involve the attorney general's office in
cooperation with the state agency responsible for substance abuse programs, could be conducted on
20
an annual basis for local prosecutors and judges specific to identification, prevention, and early
intervention strategies. Also, information on diversion programs for offenders charged with drug
and alcohol abuse would be helpful to the local prosecutors and judges. The rationale for this type
of training would be that in an effort to identify, intervene, and direct the drug and/or alcohol
offender toward appropriate treatment, the attorneys, prosecutors, probation and parole officers,
and judges need to be more aware and up-to-date on drug and alcohol programs and strategies.
Dram Shop Laws. States should be encouraged to enact dram shop law. This would be
designed to reduce the serious injuries and deaths resulting from drunken driving by encouraging
retailers of alcohol to act responsibly in the conduct of their business. Incentives within the model
act could potentially encourage licensees not to serve minors and to intervene with problem drinkers
so that they do not become intoxicated and operate a motor vehicle. The Dram Shop Act also could
serve as a means to compensate innocent victims of drunken drivers. In many cases, innocent
victims have no recourse against intoxicated drivers because the driver may be "judgment-proof."
The Dram Shop Act would place the burden of compensation upon licensees who have acted
irresponsibly with knowledge that their actions directly endangered others. A "responsible business
practice defense" could be included to protect establishments against unfair lawsuits.
Elementary Education. Law enforcement officers responsible for drug law enforcement
could be utilized to make presentations to fifth and sixth grade students as to the legal consequences
of drug experimentation. It would seem important to reach the students at the elementary school
age, prior to the time when many of the students begin experimentation.
Drug and Alcohol Law Review. Laws proscribing the use of alcohol and drugs should be
reviewed for their adequacy. The sanctions prescribed by these laws may be adequate, but the
enforcement of these laws and imposition of the prescribed sanction may provide room for
improvement. It seems that too few drug offenders go to prison. Too few drug offenders are
required to attend drug treatment programs as a condition of probation.
To get tough on drug offenders, we need a unified approach. Police officers, prosecutors, and
judges need to work together to make examples of some of the more serious drug traffickers.
Usually, it is the street dealers, who are junkies themselves, who get busted. The big drug dealers
who are higher up the chain of distribution rarely get caught.
Law Enforcement Cooperation
Greater cooperative law enforcement efforts are needed among local, state, and federal law
enforcement officials. There needs to be regular meeting and exchange of information as to specific
cases and drug offenders, who are often on the move among jurisdictions. By comparing notes, law
enforcement agencies can help each other and bolster their cases. The suggested cooperative law
enforcement efforts to exchange information should be on the regional as well as statewide level.
Sometimes we hear of problems with turf battles and lack of trust between law enforcement
agencies. As a result, this regular cooperative exchange of information and meetings should be
strongly encouraged in each state so that we deal with the real enemy -- the drug trafficker.
Realigning Priorities
Police administrators need to consider realigning priorities to use a greater amount of their
limited resources for drug law enforcement so as to create a long-term effect. Of course, given the
competing law enforcement interests that each police administrator must confront, the basic need
here is additional funds to effectively provide drug law enforcement.
Asset Forfeiture Statutes
Better use of the asset forfeiture statutes is needed at both the state and local law enforcement
levels. These statutes can permit confiscation of property used to further the crime, as well as the
21
"fruits" of the crime. Examples would be confiscation of vehicles, property, bank accounts, drug
money, etc. Under forfeiture statutes, confiscation of these kinds of drug assets go to the law.
enforcement agency responsible for the enforcement of the drug laws against the particular offender.
Enforcement of forfeiture statutes is very important to take the profit out of crime. Also, it
provides one source of additional funding for drug law enforcement.
There also a federal forfeiture statute. If the cooperation among federal, state, and local
drug law enforc: ment agencies can be encouraged, this can be a strong tool in the effort to take the
profit out of drug crime.
Targeting Law Enforcement Resources
The law enforcement effort to more effectively reduce the supply of illegal drugs will not be
without its costs. State and local governments need more money to devote to drug law
enforcement. Specific needs include the following:
More manpower. For example, there are no more than sixty law enforcement officers in
Kentucky who work full time on drug law enforcement.
More money. Funding is needed to coordinate various law enforcement agencies to encourage
cooperation, information sharing, and the compilation of information and regular dissemination
of this information to the local law enforcement agencies. The coordinating agency should go
around the state and conduct regional meetings with local law enforcement personnel to
provide a forum for this cooperative effort.
Equipment. More and newer equipment is needed, such as law enforcement vehicles that are
not readily identified as such, radios, and surveillance equipment.
Drug-Buy Money. This is needed to entice the offender, especially to get the large drug
traffickers, who usually deal in large sums of money. Larger drug-buy funds are needed to
entice the larger offenders.
Drug law enforcement personnel rely upon informants. Informants do not talk for free, and
often it is necessary to provide them money. Therefore, to make greater use of informants,
greater sources of informant compensation are needed.
Beverage Penalties. Alcohol Beverage Control administrators should render severe penalties
to licensees' repeated convictions for the sale of alcohol beverages to minors.
Undercover Programs. The development and coordination of programs for the exchange of
undercover police officers between local jurisdictions for major investigations should be
encouraged.
Prescription Drug Controls. Strong prescription drug laws should be enacted to discourage
the illegal use of prescription and designer drugs.
Law enforcement has made a beginning. Most state police departments have an effective
investigative team. Local police agencies also in many cases have developed units to concentrate on
the investigation of drug trafficking. But the problem has grown faster than the solution.
Drug abuse and drug enforcement are local problems that need to be solved locally. To solve
them, both federal and state financial assistance is needed. But that money is needed on the local
level, as this is where the problems are and where they can most quickly be identified and
confronted.
22
Today, there are some good examples of the team approach to this problem. The solution is
not an easy one. It takes commitment by many different people with many different ideas and skills.
It takes the commitment and solid prevention and education programs. It takes the commitment of
law enforcement to work together. It takes the commitment of solid intervention and treatment
programs. It takes the commitment of expanded funding. We can all work together to reduce the
supply of illegal drugs, take the profit out of drug crime, and ultimately win the battle against drug
abuse.
Alex Brodrick, Executive Director, Volunteers of America, Louisville/Lex-
ington, Kentucky
For too many years, drugs and alcohol have shattered lives, destroyed families, and ruined the
hopes and dreams of many in our country. In particular, alcoholism among the poor should be
cause for great concern. Those who have few or no advocates and those for who are all too easy to
overlook have felt the consequences of the failure to have treatment. It is the poor who feel the
critical blunt of disappearing resources and unattentive governments.
Only a few short years ago, approximately ten, the problems of alcoholism among the homeless
and poor were treated in Kentucky and other states of the nation through a network of programs
commonly known as state hospitals, detoxification centers, halfway houses, and residential treatment
centers. In each of the programs, treatment of alcoholism was available to all, and even the poorest
American could detoxify and find a rehabilitation center in which to continue his life-threatening
struggle for sobriety. While there were people on the streets, their numbers were lower and each of
them had the opportunity to receive help for their alcohol problems.
Today, most of those opportunities are gone. Our federal government has focused on
deinstitutionalization from state hospitals and put literally thousands of people on the street with no
place to go. The government has also decided that the judicious expenditure of federal dollars
does not include treatment services to the poor alcoholic, especially any type of intermediate or
long-term assistance in institutions or halfway houses. Unfortunately, many states followed suit and
quickly a fully developed network of detoxification programs, halfway houses, and institutions faded
from the scene. These were replaced by mandated health insurance for alcohol treatment,
increased outpatient alcohol services at comprehensive care centers, high-cost medical alcohol
treatment centers, and sophisticated attempts at prevention aimed at educating America about the
pitfalls of alcohol abuse. All these programs worked to some degree and continue working today,
but none of them took into account the poor or nearly poor person with an alcohol problem. With
the changes, those with money found increased opportunities for care and those without found "the
street" and no relief from the bottle. They became the disenfranchized poor.
More than 50 percent of the people on the street in our cities are suffering from alcoholism, and
an even larger percentage have serious alcohol problems. The population of those on the street
has increased dramatically in the last ten years. Our prison system and county jails are jammed
beyond capacity, and an increasing majority of the admissions to jails are for alcohol-related offenses.
The cost of jails increases as do services to street people, and more and more street people die daily
in dumpsters of heart failure, of liver disease, and of alcoholism. A serious look must be given to
alcoholism among the poor, for they are disenfranchised and have no strong lobby for their needs.
My recommendations include the following:
First, that the National Governors' Association choose to challenge government and their
allocation of resources;
Second, that the National Governors' Association take the unpopular position of proposing the
redevelopment of alcohol services to the poor;
23
Third, that the National Governors' Association consider the needs of those who are poor when
looking at recommendations for education, intervention treatment, and law enforcement; and
Fourth, the National Governors' Association take the lead in advocating for the poor in the
critical area of alcohol and substance abuse. If the lead is not taken by NGA, it may not be
taken at all, and the problems surrounding alcoholism, the poor, and the streets will continue to
take its tragic toll on the lives of our fellow Americans.
Judge Andy Devine, Juvenile Judge, Lucas County Juvenile Court, Toledo,
Ohio
Let us keep in mind Governors taking a lead role. A Governor has considerable power and
influence in the Legislature and over the various departments and the leadership of those
departments. If Governors have an understanding of the substance abuse problem, they can make
a very, very significant contribution toward turning this problem around.
Parents, too, must take a lead role. They are the most important ingredient, the most
important component of prevention of risk behaviors. Parents are the hub of the wheel.
Community commitment, too, is critical. They are the spokes of the wheel and include
schools, mental health institutions, churches, the police, the courts, and everybody else supporting
parents, understanding the role of parents, and helping them in this awesome task of rearing their
children. These "spokes" should not raise their children for them, but with them, and should hold
them accountable for their parenthood.
The juvenile court system can be used to mobilize parental accountability. If, for example, a
child is consistently truant and benign efforts to get that child back in school have failed, a brief stay
by the parent in the county jail typically will turn this situation around. We must say to parents, "it's
your job, not our job, nor the teacher's job, to get that kid in school every day on time."
In addition to establishing and assuring parental accountability and fostering and nurturing a
sense of community commitment, we must not wear out or burn out. It will take a lot of time and
bear a lot of heartache to change a risk behavior such as substance abuse. But, we've got to hang in
there if we are ever going to change it.
24
PART TWO: Alcohol and Drug Abuse Prevention: From
Knowledge to Action
Prepared by:
Judith E. Funkhouser
Associate Director for Program Development
Division of Communications Programs
Office for Substance Abuse Prevention
and
Sharon Low Amatetti
New Products Coordinator
National Clearinghouse for Alcohol and Drug Information
25
FORWARD
The concern over the nation's alcohol and other drug problems has reached every segment of
society. As a result of this national concern, the Anti-Drug Abuse Act of 1986 was signed into law
(P.L. 99-570), creating the Office for Substance Abuse Prevention (OSAP). This office directs the
federal effort in the prevention field by increasing knowledge about and promoting effective
strategies to deal with alcohol and drug problems.
In carrying out this responsibility, OSAP is pleased to have an opportunity to provide assistance
to the states through this collaborative effort with the National Governors' Association.
The success of prevention strategies will depend on the active and continuous involvement of
entire communities, using many support systems. Prevention cannot be accomplished solely within
the confines of a single organization. To elaborate, a support system within a community consists
of parents; youth; and federal, states and local governments working through schools, law
enforcement, human service, and health agencies. Other essential elements include sports and
entertainment personalities, media and print specialists, business and industry, and volunteer
organizations.
The models summarized in this document can simultaneously guide new efforts and provide a
framework for analyzing common and diverse experiences. The guidelines represent the consensus
of OSAP prevention strategies based on knowledge and evaluation of prevention efforts to date.
Like the theories and models that have contributed to formulations of the guidelines, I expect, these
principles will be expanded and refined in the future, based on the findings of new prevention
efforts.
As you read through this document, please be aware that evaluation efforts of existing and new
prevention models and strategies are underway. Problems can develop when untrained personnel
use untested and/or inappropriate materials. Such problems can be avoided by working with
community members to gather, organize, and review the problems in your state and communities
before adopting a prevention strategy.
OSAP will be updating this information as more evaluation is completed and will be expanding
the paper to include examples for booklets and other materials designed to promote drug-free
communities. We look forward to working with you toward this important goal.
Reed Bell, M.D.
Acting Director
Office for Substance Abuse Prevention
Alcohol, Drug Abuse, and Mental Health Administration
U.S. Department of Health and Human Services
27
INTRODUCTION
This paper was developed by the Alcohol, Drug Abuse, and Mental Health Administration's
Office for Substance Abuse Prevention (OSAP) to serve as a reference point for planning strategies to
combat alcohol and other drug problems in our states and communities. Following an "Overview of
Alcohol and Drug Problems" in our society, the "Background" of comprehensive prevention strategies
is elaborated.
"Theories and Models for Current Prevention Approaches" sets forth the rational bases from
which today's prevention strategies are derived. Because prevention is an evolutionary field that is
continually growing from the thinking and experiences of its planners and practitioners, the current
body of knowledge may be expected to expand even as it is applied in our states and communities.
The models summarized in this document can simultaneously guide new efforts and provide a
framework for analyzing common and diverse experiences.
Finally, this paper suggests specific "Guidelines" for planning strategies to prevent alcohol and
other drug problems. These guidelines represent the consensus of OSAP prevention strategists
based on their knowledge and evaluation of prevention efforts to date. Like the theories and
models that have contributed to formulation of the guidelines, the guidelines themselves may be
anticipated to be expanded and refined according to the experience of the new prevention efforts.
29
OVERVIEW OF ALCOHOL AND DRUG PROBLEMS
According to a recent epidemiological assessment, deaths resulting from substance addiction
account for an annual loss of more than 300,000 lives due to smoking; 100,000 lives due to alcohol
consumption; and 30,000 lives due to use of other drugs. Alcohol and drug problems may be
associated with acute use (e.g., automobile accidents), chronic use (e.g., liver cirrhosis), or a
behavioral pattern of chronic use known as dependency. In the past decade, a greater number of
teenagers have used alcohol and a variety of psychoactive drugs, and first use of these substances has
occurred at increasingly younger ages. Tobacco, alcohol, and marijuana are seen as "gateway"
drugs to later use of and greater involvement with a variety of substances that may lead to chemical
dependency.
The estimated annual cost to our society of alcohol and other drug problems (excluding
tobacco) is approximately $205 billion, of which $140 billion is attributed to alcohol abuse and $65
billion to abuse of other drugs. This represents approximately $850 per person in the United States
and includes costs for lost productivity, crimes, accidents, fires, treatment, and various indirect
expenses. This dollar estimate cannot begin to measure the personal and emotional suffering
experienced not only by the abuser, but also by family, friends, employers, and coworkers.
The lifetime cost of a single alcohol and drug abuser currently is estimated at $85,000 in lost
productivity and direct economic burdens on society; hence, prevention of drug abuse problems in
even one youth can have sizable economic returns. The lifetime cost of a single case of Fetal
Alcohol Syndrome is estimated at $596,000. Included in this estimate are expenditures for health
and education, together with losses in market and household productivity. Large economic benefits
from successful prevention efforts, therefore, can be realized.
OSAP has determined that the greatest savings by far can be realized by targeting youth and
those who influence their knowledge, attitudes, and behaviors. Research has demonstrated that:
Alcohol and other drug-using attitudes are formed during pre- and early adolescence.
Almost no use of cigarettes, alcohol, or illicit drugs (except cocaine and abused prescription
drugs) is initiated after age 25.
Life expectancy has increased for every age group in the U.S. except 16- to 24-year-olds.
For these reasons, this paper emphasizes strategies that are designed to prevent the use of
alcohol and other drugs by America's youth.
31
BACKGROUND
Over the years, researchers have identified multiple causes of alcohol and other drug-related
problems. Genetic, behavioral, personality, environmental, cultural, and economic variables at one
time or another have been examined independently as contributors to drug and alcohol abuse
problems. More recently, these variables have been viewed as interwoven components of a
complex pattern that requires comprehensive approaches. Accordingly, new emphasis is directed
to examining the personal and social characteristics of individuals, families, and groups in relation to
such societal or contextual factors as business structures and community "norms," standards, and
expectations. The result is the evolution of integrated prevention approaches that are, at the same
time, broad in scope and specific in their sensitivity to individual and cultural attributes.
Comprehensive and integrated prevention approaches are strongly recommended to develop
awareness and educational programs, to reinforce social and legal policies, and to promote social
and organizational structures that foster healthy, safe, and meaningful lifestyles. Such approaches
emphasize a shared responsibility for addressing alcohol and other drug abuse problems and the
need for long-term planning as well as for short-term crisis intervention. By definition,
comprehensive approaches acknowledge that individuals function within broad social and physical
environments and may be expected to respond differently to different interventions into their alcohol
and drug use patterns. For example, it is already well documented that:
License revocation is a more successful intervention than educational efforts for intoxicated
drivers.'
Increasing the price of alcohol has an impact on youth as well as on adults and on heavy
drinkers as well as on social drinkers.
Raising the minimum drinking age is effective in reducing alcohol-related traffic fatalities among
youth.
Laws providing sanctions for intoxicated drivers must be accompanied by extensive awareness
programs and enforcement efforts to be effective.
School-based programs are receiving mixed reviews in the literature, with some speculation that
delayed onset and decreased use result from activities that allow students to more correctly
assess their peers' attitudes toward smoking, drinking, and other drug-use and allow a social
norm of non-use to develop and be reinforced.
Comprehensive approaches also take into account the learning environments of individuals.
Television, for example, has become a familiar fixture in the home. Health promotion and
33
employee assistance programs are multiplying at our worksites. Schools and families appear to be
assuming increasing responsibility for health and social learning opportunities.
In short, for the times in which we live, to address a problem that affects every level of
individual and societal functioning, only approaches that work at every level can be expected to yield
positive results. Theories and models that work to support the development of comprehensive
approaches are presented in the following section.
34
THEORIES AND MODELS SUPPORTING
CURRENT PREVENTION APPROACHES
Models are derived from a body of research and allow us to generalize from one set of
circumstances to the next. The models and theories presented here derive from a base of
knowledge that, although usually associated with one or several researchers, has been expanded
upon by numerous other researchers and practitioners. The models and theories selected for
inclusion in this document appear to capture the latest thinking of the prevention field and should
prove useful both for developing prevention programs and for assessing prevention approaches and
products currently in the marketplace. Suggested guidelines developed by the Office for
Substance Abuse Prevention follow the presentation of these models.
Learning Models
Social Learning Theory and Modeling (Bandura)
Albert Bandura's "Social Learning Theory" builds on the work of B.F. Skinner, who originally
described the process of learning as a response to rewards and punishments. According to
Bandura's theory, learning is acquired and shaped by the positive and negative reinforcements
resulting from one's own behavior, as well as by observation of other people's behavior and its
consequences for them. Bandura also notes that the ability to anticipate both the consequences of
one's behavior and the attitudes of other persons toward such behavior develops as an individual
matures. This ability allows persons to self-regulate or internalize rewards and punishments and to
serve as agents of their own behavioral change.
Bandura recognized the potential for using "modeling" as a way of directing and changing
behavior. We observe the behavior of others in person, on television, and by means of other
communications media. The more attractive and competent a model is, the more likely others are
to adopt that model's behavior. "Near peers," who are slightly older than the target audience and
who resemble the target audience, often are used in educational programs to transmit messages by
depicting behavior and attitudes that young people would like to imitate.
Cognitive Inoculation, Behavioral Commitment, and Cognitive Dissonance (McGuire)
William McGuire has outlined procedures for developing and maintaining attitudes, values, and
beliefs that favor non-use of unhealthy substances. These procedures are called "pretreatments"
because they are applied before a behavior is adopted or experimented with and are not designed
for youth already using alcohol and other drugs.
35
"Cognitive Inoculation" is one of these pretreatments. Cognitive inoculation prescribes that
lessons concerning attitudes and beliefs about alcohol and other drugs be accompanied by a
discussion of the conflicting attitudes and beliefs that a student might encounter in the future. This
teaching method prepares students for, and thereby protects them from, pressure to adopt beliefs
and attitudes that may be unhealthy.
Another pretreatment approach requires that a "behavioral commitment" be made on the part of
the individual. Commitments can take the form of a private decision, a public announcement of
one's beliefs, active partic nation on the basis of the belief, and commitment based on awareness that
someone else is committed to the belief (external commitment). McGuire was surprised to find that
external commitment was stronger than a private commitment in most cases - convincing evidence
for the power of peer, parental, community, media, and societal support for non-use behavior among
youth.
In addition, McGuire found that, in general, people want their attitudes and beliefs to be
compatible with their behavior. If they are not, there is "cognitive dissonance" that a person will
want to eliminate. For instance, if an adolescent strongly values his or her athletic ability, to
successfully attach the belief that smoking marijuana diminishes this ability would create dissonance.
Resolution of dissonance would require the individual either to abstain from smoking marijuana or
to place a lower value on athletic ability. Connecting new beliefs about alcohol and other drugs to
existing cognitions, if used as a pretreatment or prevention measure, requires a clear understanding
of the cognitions students holds important.
Social Inoculation Theory (Evans)
Richard Evans' "Social Inoculation Theory" extends McGuire's theory to address the many social
influences, beliefs, and attitudes that create pressure on a young person to use alcohol and other
drugs. Such pressures might include, "If everyone is doing it, it can't be bad," or joining a group
that, by its use behavior, exerts pressure on the young group member. Students are instructed
about social pressures to use alcohol and drugs and are assisted with the development of skills to
resist the pressures. Mary programs based on the Social Inoculation Theory use modeling, as
suggested by Bandura, to teach peer resistance skills. Others encourage public commitments from
students as an added incentive to resist negative peer pressure and as positive social reinforcement
for the group as a whole.
Behavioral Development Models
Development Model (Erickson)
Eric Erickson argues that psychological development occurs in identifiable stages throughout
the life cycle. In order for one to develop a healthy personality, the psychosocial "crises" associated
with each stage of development must be successfully resolved. In the first year of life, for example,
a child must develop a sense of trust rather than mistrust. Similarly, autonomy (versus doubt) must
be developed in early childhood (2-3 years of age); initiative in play (4-5 years of age); and, industry,
during the elementary school years. Erickson argues that the major crisis to be dealt with in
adolescence is that associated with establishing identity and avoiding identity diffusion.
Adolescence is a period of transition. Erickson calls it a period of role confusion out of which
identity should emerge. The individual who has previously accepted his or her role as a child now
attempts to adopt some aspects of the adult. Certain adult behaviors, such as being sexually active,
smoking, and drinking alcohol, are considered deviant because they are essentially adult behaviors
exhibited at an earlier stage of the life cycle.
A second aspect of role confusion involves the adolescent's developing self-image. The
adolescent's body changes rapidly. The rapid physical change cause the young person to feel
36
clumsy and ill-at-ease. These physical and social changes often result in a poor self-image among
adolescents and in excessive concern about acceptance by others, especially peers.
The identity crisis also is marked by changing relationships with parents. As adolescents break
away from the previously close personal guidance of their parents or guardians, they seek support
elsewhere, usually with a peer group. In this developmental context, smoking and using alcohol
and other drugs may appear to the young person as a way of expressing a growing sense of
independence.
Behavioral Intention Theory (Fishbein and Ajzen)
Martin Fishbein and Icek Ajzen have developed a system of quantifying attitudes because, like
others, they believe that attitudes are logical determinants of behavior. Their theory states that,
when measured properly, attitudes and subjective norms held by an individual can be used as
predictors of behavioral intent and of behaviors. Attitudes are the beliefs a person holds about the
outcome of a behavior along with the value he or she places on that outcome. Subjective norms are
the individual's assumptions about the views of significant others regarding the behavior, along with
the individual's motivation to comply with these views.
In order for attitudes and subjective norms to be good predictors of behavior, their
measurement must be in terms of specific behavioral situations, e.g., a person drinks (action) beer
(target) in a car (context) on the weekend (time). Attitudes and subjective norms must be assessed
keeping the action, target, context, and time in clear focus. This measuring technique ensures that
the content of messages used to change attitudes is relevant to the target group and that adequate
attention is given to the strength of social influences on behavior. This theory provides a good
framework for understanding the important role that perceived social norms play in directing
behaviors. For example, adolescents generally perceive a prevalence of alcohol and drug use
among their peers that far exceeds actual consumption. Students who overestimate the use of
alcohol and other drugs may view use as "normal" and may be more accepting of such use.
Social Development Model (Hawkins)
David Hawkins and his colleagues have developed a "Social Development Model" that seeks to
address key risk factors for alcohol and other drug use at developmentally appropriate points.
Hawkins advocates providing a young person with opportunities for active involvement, skills for
successful participation, and a consistent system of rewards and punishments. According to the
Social Development Model, this practice will lead to the development of bonds of attachment,
commitment, and belief between young persons and the social units (families, school classrooms, or
groups of friends) in which they participate. The model also suggests that when a social unit's
expectations or norms for behavior are clear, young people will be less likely to violate these
expectations, particularly if they feel socially bonded to the unit.
According to the Social Development Model, prevention programs should seek to increase
opportunities for active involvement in family, school, and positive peer groups; ensure the
development of skills needed to perform successfully in childhood and adolescence; and ensure that
children's social environments provide clear expectations and consistent reinforcement for behavior.
Health Behavior Theory (Jessor and Perry)
The formulation of Richard Jessor and Cheryl Perry's "Health Behavior Theory" follows in the
tradition of Karl Lewin's Field Theory, which emphasizes the unique developmental history each
person brings to a situation and, at the same time, the similarities among people due to common
circumstances.
Like Lewin, Jessor and Perry take great care to specify the variables and relationships among
variables that influence behavior .. specifically, health behavior -- in order to address multiple
37
behaviors. Health is comprised of four domains: physical, psychological, social, and personal.
Because a single behavior can affect several of these health domains, their relationship must be
examined fully in terms of prevention strategies.
Jessor and Perry recommend two strategies for prevention: 1) weakening or eliminating
behaviors that compromise health; and 2) strengthening or introducing behaviors that enhance
health. These complementary strategies are the products of a prevention focus directed toward
achieving a balance in an individual's entire behavioral functioning. Because a covariation exists
among a number of health-compromising behaviors, i.e., adolescents engaged in one of severil risky
behaviors are more likely to be involved in others, preventing or eliminating any health-
compromising behavior may have an effect on other behaviors. The promotion of health-enhancing
behaviors includes the understanding that alcohol and other drug use may be serving as a way to
gain independence from parents; with this understanding, new and healthier behaviors that serve the
same purpose may be introduced.
Stages of Drug Involvement (Kandel)
Denise Kandel and her colleagues describe drug use as a process of clear-cut stages and largely
determined by a matrix of social relationships. Different influences are involved at different stages,
with situational and interpersonal factors most important for initiation into drug use behavior and
psychological factors most important for increased involvement or participation in that behavior.
Three specific stages of drug use described by the researchers are: 1) use of liquor, 2) use of
marijuana, and 3) use of other illicit drugs. Distinct predictors mark initiation into each stage of
use. The most important predictor of liquor use is the involvement of a youth in minor delinquent
activities. Young persons with beliefs and values favorable to marijuana use and also are associated
with friends who use marijuana are more likely to enter the second stage of drug use. Parental
factors, feelings of depression, and contact with drug-using peers are the primary predictors of illicit
drug use.
Misuse as a Deviant Response (Kaplan, Martin, and Robbins)
Kaplan, Martin and Robbins' model is an explanation of deviant behavior that, inasmuch as drug
use in adolescence is an example of deviance, provides one explanation for such use. The
researchers note that deviant responses are motivated by the adolescents' earlier development of
self-rejecting attitudes. These attitudes result from unhappy or unsatisfying normative participation
in a variety of interpersonal or social interactions.
According to the researchers, repeated self-devaluing experiences in membership groups will
take away personal motivation to conform with nominative patterns of behavior. When normative
patterns of behavior are no longer motivationally accepted responses, deviant patterns represent
alternative responses by which an individual can act effectively to boost self-esteem.
Drug use is more visible if it is prevalent among peers at school or in the neighborhood. An
individual's perception of the likelihood of self-enhancing consequences resulting from a particular
pattern of drug use also reflects such variables as perceived attitudes toward the pattern of drug use
held by positive and negative reference groups; the visibility of more or less prevalent adverse
consequences of use; the perceived compatibility of consequences and concomitants of the drug use
pattern with behavior appropriate to valued social roles that are not themselves the basis for one's
rejection; and the ability to justify use without experiencing overwhelming feelings of guilt.
Sensation-Seeking as an Explanation for Drug Use (Zuckerman)
Marvin Zuckerman's research has explored the relationship between an individual's need for
sensory stimulation and a host of behaviors, among them the use of alcohol and other drugs. He
38
observes that all individuals look for varied, novel, and complex experiences, but have different
optimal levels of arousal.
Stimulation serves different functions. Zuckerman found the primary functions to be: offering
thrills or adventure; providing new experiences; facilitating disinhibition; and reducing boredom.
Using alcohol or other drugs, eating, smoking cigarettes, and engaging in sexual activity are all
sources of sensory stimulation arousal. Individuals who have strong sensation-seeking tendencies
are more likely to engage in these activities and to a greater extent.
The most important demographic correlates with sensation seeking are age and sex. Thrill or
adventure-seeking and disinhibition-seeking declines after age 30. Males generally score higher on
all sensation-seeking scales except for experience-seeking. Zuckerman has found that persons who
experiment with a variety of drugs tend to score high on the sensation-seeking scale. Alcohol use
alone, however, tends to be associated with a narrower kind of sensation-seeking, that of the
disinhibition type.
Communications Models
Health Promotion and the Knowledge-Attitude-Behavior Continuum (Bettinghaus)
Erwin Bettinghaus expands the original knowledge-attitude-behavior continuum by including
research from Fishbein, McGuire, and others to suggest ways to improve health campaigns aimed at
avoiding, maintaining, increasing, changing, or adopting new behavior. Evaluations of such
campaigns have found that they are effective in gaining the attention and in arousing the interest of a
target audience. Bettinghaus suggests that the knowledge-attitude-behavior model can be improved
by using measures of behavioral intention (Fishbein) rather than generalized attitudes. In addition,
Bettinghaus advocates addressing countermeasures (anti-smoking efforts that compete with pro-
smoking print media messages); difficulty (losing fifty pounds is more difficult than reducing salt
intake by 10 percent); addictive properties (of tobacco, alcohol, and other drugs); and social
pressures (from peers). Finally, Bettinghaus proposes the use of McGuire's information processing
model, which argues that moving between the elements of the knowledge-attitude-behavior
continuous demands processing time on the part of individuals, as well as attention to a set of
elements within a communication matrix. The matrix includes, at least, addressing attention,
comprehension, yielding, retention, and action, while, at the same time, paying attention to the five
elements of the communications process (source, message, channel, receiver, and destination).
Communication-Behavior Change Model (Maccoby and Solomon)
Nathan Maccoby and Douglas Solomon have studied mechanisms used by mass media
campaigns to change behavior and have defined steps required to move a target population from
initial awareness of interest in a problem to the adoption and maintenance of advocated attitudes or
behavior. The first step involves attracting attention and focusing it on specific issues and
problems, a process referred to by mass media researchers as "agenda setting," which, for major
national campaigns, has been accomplished by broadcast media. Once a subject is on the public
agenda and is perceived as an important issue, a campaign must explain the issue in a way that is
personally relevant to individuals in the target audience; this step is referred to as "informing." The
population also must be given positive incentives to change behavior, as well as support and
encouragement to maintain new behavior ("motivation"). Once members of the population fully
understand their personal relationship to the problem, they must be taught how to modify risk-
related behaviors ("training"). Finally, if newly acquired habits are to be maintained, that
maintenance must be accomplished by self-control ("self-maintenance"). Self-cuing at appropriate
times and places is critical to the maintenance process.
Variables that exert an influence on each of these processes include the receiver's age, sex,
socioeconomic status, current health beliefs, and previous education. Prevention strategies must be
39
designed to take into account the full range of potential influences operating at the personal,
community, and economic levels.
Persuasion-Communications Model (McGuire)
William McGuire also has worked extensively on theory underlying communication campaigns.
He describes the components necessary to construct a communication capable of changing attitudes
and behavior, along with successive responses persons must make if they are to "yield" to the
communication.
A communication is comprised of five variables: 1) source -- the characteristics of the individual
from whom the message is perceived to be coming (which strongly influences the communication's
credibility and acceptability to the audience); 2) message -- the context, how it is presented and
organized, what is and is not included, and its length, speed of delivery, and other characteristics; 3)
channel - the medium through which the message is delivered, i.e., print, radio, or television; 4)
receivers - the target population; and 5) destination -- the type of behavior at which the
communication is aimed.
According to McGuire, the effectiveness of a communication campaign depends on its ability to
lead an audience through a successive twelve-step process:
1. Being exposed to the communication.
2. Attending to the communication.
3. Liking or becoming interested in the communication.
4. Comprehending the message.
5. Learning how to incorporate the target behavior in one's life.
6. Accepting or yielding to the change.
7. Remembering the content of the message and remembering that one has agreed to it.
8. Being able to retrieve the information from memory.
9. Making decisions based on the retrieval of the information.
10. Behaving in accord with the decision.
11. Experiencing reinforcement for the behavior.
12. Engaging in postbehavioral activities, such as reorganizing one's related beliefs.
Diffusion of Innovations (Rogers)
Prevention often entails the introduction of new health-related ideas to members of a social
system. The process by which new ideas or products are spread is called "diffusion." Everett
Rogers has studied the diffusion process and has observed processes that both facilitate and impede
diffusion.
It is not critical that an idea or product be original in order for it to be considered innovative.
Rather, it is the perceived or subjective newness of an idea to an individual that determines his or
her reaction to it. New ideas can be introduced from within the social system or from outside.
When introduced from outside, new ideas spread by selective contact change or through directed,
planned change. Either way, the rate of adoption of a new idea is influenced by several factors,
including: the degree to which the innovation is perceived as better than the idea it supersedes,
i.e., its relative advantage; the degree to which an innovation is perceived to be consistent with the
existing values, past experiences, and needs of the receiver, or its compatibility; the degree to which
an innovation is perceived as difficult to understand and use, or its complexity; the ability to test the
innovation before fully adopting it, or its trial ability; and the degree to which the results of the
innovation are visible to others.
Rogers notes that, if the stage of introducing a new idea is at the awareness or information level,
mass media channels are the most rapid and efficient mechanism. If, however, the stage is at the
attitude, the behavior change, or the "adoption point," then an interpersonal, face-to-face
40
interchange is much more effective. The most successful diffusion occurs when mass media are
used to build awareness and reinforce newly adopted attitudes and behavior in conjunction with
face-to-face interchanges for trying, adopting, and maintaining new attitudes and behaviors.
Public Policy Models
Price Policies and Prevention
Other researchers are looking at the macroeconomic, environmental determinants of tobacco
and alcohol consumption. For instance, two recent alcohol consumption studies, one by Cook and
Tauchen and the other by Grossman, Coate, and Arluck, present the strongest evidence to date that
consumption is responsive to changes in the price of liquor. Cook and Tauchen (1982) found that
an increase in the liquor excise tax by a dollar per proof gallon reduces the cirrhosis mortality rate by
5.4 percent in the short run and by perhaps twice as much in the long run. (Liver cirrhosis rate
provides a reliable measure for estimating chronic excess consumption.) This important finding
addresses the skepticism that consumption by heavy drinkers, because it is habitual or addictive in
nature, also is insensitive to increased taxation. Cook and Tauchen's findings suggest that, while
heavy consumers of alcohol may adjust by purchasing less expensive brands, their overall rate of
consumption also declines in response to increased taxes.
Grossman and his colleagues (1984) found results compatible with those of Cook and Trauchen
and demonstrated that price sensitivity effects are particularly prevalent among young people. The
researchers found that a ten-cent increase in the cost of a six-pack of beer, a thirty-cent increase in
the cost of a fifth of liquor, and a one-year increase in the legal age for purchase of beer had
approximately the same impact on consumption. Similarly, Cook's work shows the connection
between even small increases in excise taxes on hard liquor and reductions in fatality rates to
alcohol-impaired driving and cirrhosis.
Minimum Drinking Age
Research also indicates that lowering the minimum age for purchase of alcohol is associated
with an increased rate of automobile crashes among young people. Conversely, increasing the
minimum age of purchase reduces the rate of automobile crashes among young people.
Cook and Tauchen (1984) analyzed auto fatality rates for young people during the eight years
between 1970 and 1977 in the forty-eight contiguous states, along with levels of availability of alcohol
to young people in those states. They concluded that a reduction in the minimum legal drinking
age from 21 to 18 years for all alcoholic beverages would increase the rate of auto fatalities for
people between 18 and 20 years of age by about 7 percent and by somewhat less for 16- and 17-year-
olds.
Coate and Grossman also examined the effects of minimum legal drinking ages on alcohol
consumption by young people ages 16 to 21 and found that frequency of consumption of beer, the
most popular alcoholic beverage among youth, is inversely related to the minimum legal age for its
purchase and consumption. The researchers estimated that a uniform minimum drinking age of 21
for beer in all states would have reduced the number of youths who drank beer four to seven times a
week during the sample period by 28 percent and the number who drank one to three times a week
by 11 percent.
Other Restrictions on Availability
Research into the physical availability of alcoholic beverages and other drugs has resulted in
varying findings but generally supports the hypothesis that a reduction in availability is correlated
with lower use rates and incidence of related problems.
41
MOVING FORWARD: SUGGESTED
PREVENTION GUIDELINES
Based on current research findings, the Office for Substance Abuse Prevention has developed
the following guidelines for prevention planners. Taken together, the guidelines direct planners to
the most important starting points for prevention efforts.
Target High-Risk Families
According to several researchers who have conducted longitudinal studies or reviewed state-of-
the-art literature, youth raised in certain "family" environments are at high risk for becoming involved
with use of alcohol and other drugs. Different environments appear to protect young people from
involvement. High-risk factors include the following:
families in which one or more adults are engaged in alcohol abuse or illegal drug use;
families with permissive attitudes toward adolescent alcohol and drug use;
families experiencing major stressors that can include separation or divorce, economic
hardship, discrimination, or recent losses; and
families who cannot adequately provide a protective environment for their children and
adolescents.
These families may not have the ability to teach age-appropriate mental, physical, emotional, and
social skills; the ability to foster positive communication patterns, self-efficiency, and family bonding;
the ability to deal with stress and overcome feelings of powerlessness, helplessness, and
meaninglessness; or the ability to foster and promote prosocial bonding with schools, non-using and
low risk-taking peers, and religious organizations.
Families that appear to be better protected against engaging in health-compromising behaviors
appear to have many of these characteristics in common:
higher economic status;
lack of parental alcoholism, criminality, and mental illness;
children spaced at least two years apart;
at least one involved adult caretaker (not necessarily a parent or guardian);
43
closeness and warmth combined with consistent rules and discipline and clear roles and
responsibilities;
literate parents who value and encourage education and prosocial bonding at school; and
families who have access to financial resources, e.g., through employment.
Parents who generally are cautious about drugs, do not engage their children in drug-taking
behaviors, such as lighting cigarettes or opening beers, do not approve of alcohol or other drug use
by youth, do not tolerate intoxication or illegal drug use by adults, do not use drugs to solve
problems, and do not role-model high-risk alcohol or other drug- taking behaviors, create more
protective environments for their offspring. A protective environment also is characterized by the
nurturing factors listed above, such as closeness, involvement, and appropriate discipline.
While it appears that some young people may be influenced by peer pressure to engage in
alcohol and other drug-taking behavior even though they do not want to, other research suggests
that some young people may be predisposed to engage in health-compromising behaviors when peer
pressure is exerted. One study, for instance, found that the greater one's willingness to conform to
antisocial peer pressure, the stronger the association between perceived pressures and self-reported
misconduct and antisocial behaviors. Other researchers have found that there are certain
individuals who are more predisposed to become engaged in risk-taking behavior that, during
adolescence, often is associated with alcohol and other drug use. These youths have been
described as "sensation-seekers" and presumably have low thresholds for boredom and routine, as
well as special needs.
According to the researchers, the act of engaging in excessive risk-taking behavior can help
individuals assert personal control of their lives; express opposition to adult authority and
conventional society; deal with anxiety, frustration, inadequacy, and failure; gain admission to a peer
group and demonstrate identification with a youth subculture; confirm personal identity; affirm
maturity; and mark a developmental transition into young adulthood.
Developmentally, risk-taking behavior serves an important function for adolescents. They are
breaking away from the family to establish their independence and identity, to establish a support
group outside of the family to which they want to "belong," and to establish "adult-like" behavior.
Many would suggest that modern society provides few alternative ways for youth to establish
their identity and maturity. Many rites of passage, evident in earlier societies, no longer exist.
Others would argue that those who engage in excessive risk-taking behaviors do so because of
personality systems characterized by lower value on academic achievement, higher value on
independence, greater social criticism and alienation, lower self-esteem, orientation to an external
source of control, greater attitudinal tolerance of deviance, and lesser religiosity.
The researchers strongly suggest that there is a "psychosocial" readiness among some young
people to engage in antisocial and excessive risk-taking behaviors. This does not mean that the
adolescents are aiming for risk, but rather are choosing behaviors because of how the behaviors
make them feel de thrilled, socially adequate, or stimulated. Young people, themselves, do not
perceive many of these behaviors as "risky" or "antisocial."
Start Prevention Early
Even though there have been few studies that focus on childhood and pre-adolescent
predictors of alcohol and other drug use, we do know that the age of initial use has been declining.
For instance, by age 13, 30 percent of boys and 22 percent of girls classify themselves as "drinkers."
A 1987 Weekly Reader survey showed that peer pressure can begin as early as fourth grade. This
report found that while pressure to use marijuana had decreased from what it was in 1983, the level
of peer pressure had remained unchanged for alcohol -- ranging from 36 percent of students
44
experiencing such peer pressure in fourth grade to 51 percent in sixth grade and 76 percent in
grades seven and twelve.
Children in kindergarten through sixth grade have been found to have greater expectations that
they will use alcohol and other drugs if the adults in their families are users of illegal substances and
cigarettes or abusers of alcohol and if these adults engage their children in "drug-taking behavior,"
which may include asking the children to light cigarettes, pour and serve alcoholic beverages, or get
medicines. Another study of 133 families in New York found that parental characteristics measured
during children's first three years could discriminate those children who later were using alcohol and
other drugs at age 16 or older.
Many studies have found that early involvement by youth in alcohol and other drug use
increases the likelihood of future problems with alcohol and other drugs. One researcher who has
followed youth over a long period of time found that early use of alcohol, for instance, represents a
"watershed" crossed in relation to later involvement in a wide range of problematic behaviors.
Others have found that those who exhibit antisocial behavior, e.g., excessive shyness or
aggressiveness, in the early elementary ages should be targeted for prevention efforts even though
approximately half of these children will not develop alcohol or other drug problems or engage in
juvenile delinquent acts. Of these children, those who have alcohol-abusing or illegal-drug-using
parents should be a primary target.
Conversely, alcohol and other drug use in early adolescence is more frequently associated with
antisocial acts. Early initiation also is linked to a higher risk for more extensive use of alcohol and
other drugs. The earlier the onset of any drug use, the greater the involvement in other drug use
and the greater the frequency of use. Early initiation into drug use increases the probability of
extensive and persistent involvement in the use of drugs and the probability of involvement in
deviant activities such as crime and selling drugs.
As Erickson pointed out, prevention strategies that do begin early must be developmentally
appropriate. Kids under the age of 12 think in concrete, as opposed to abstract, terms: If root beer
doesn't contain beer and ginger ale doesn't contain ale, then why should wine coolers contain wine?
It is important to communicate with children under age 12 in terms they understand and through
agents with whom they feel comfortable.
Most researchers conclude that since the "family" is the main socializing agent for children,
families should be involved in childhood, pre-adolescent, and early adolescent prevention efforts.
Establish and Sustain Non-Use Norms for Youth
According to one researcher, permissive parental attitudes toward drug use as perceived by
youth may be of equal or greater importance than actual parental drug use in determining much drug
use by adolescents. A researcher studying the effectiveness of school-based programs found that
once young people found out that "not everyone was smoking and that smoking was considered by
peers to be unacceptable," a decrease in smoking behavior occurred.
Conformity to peers is often considered one of the hallmarks of adolescent behavior. Early
adolescents' need for affiliation with a group of peers is manifested by conformity to group norms,
and the group itself is strengthened when members exert conformity pressures on each other. One
study found that young people generally are less likely to be pressured into behavior they perceive as
antisocial. The problem arises in the ambivalence of peers, communities, and society as a whole
concerning what constitutes antisocial behavior: is alcohol and other drug use considered "normal"
or antisocial, acceptable for youth or unacceptable for youth?
Peer modeling and peer norms have significant effects on adolescent drinking, and adolescent
drinking results in a higher probability of using other illegal drugs such as marijuana and cocaine.
Several researchers have found that social influence is a matter of setting and enforcing standards for
45
conduct. Therefore, whether an adolescent uses alcohol or other drugs depends a great deal on
whether drinking is approved and sanctioned by other people, including parents or guardians, peers,
other role models, and the media. In general, the researchers suggest that parental norms about
drinking and the drinking behaviors of peers are important predictors of use. These findings
suggest that prevention efforts take the form of teaching parents to establish non-use norms and of
making adolescents more aware of the fact that most young people do not use cigarettes, alcohol, or
other drugs.
In addition, researchers have found that the more pressure adolescents perceive from friends to
engage in alcohol and other drug use, the more frequent is their self-reported involvement in these
behaviors. Alternatively, the stronger the perceived pressures are against alcohol and other drug
use, the more adolescents reportedly refrain from using these substances. The implication is that
because of the bidirectional nature of peer pressure, peers are potentially prosocial influences -- thus
the term, "positive peer pressure."
Assess the Needs and Target the Efforts
According to many researchers and clinicians, alcohol and other drug use by youth meets a
wide range of needs that may have to be examined before launching a prevention or intervention
program. Needs may be psychological or social and include the desire to anesthetize oneself from
feelings associated with stressful life events; to assert one's maturity, masculinity, toughness, or
individuality; to gain group acceptance and feelings of social adequacy or to avoid peer pressure; to
compensate for lack of other skills; or to relax, relieve boredom, or celebrate. In some cultures, use
of alcohol and other drugs are often used by young people to demonstrate a "higher" status, e.g., a
scotch drinker versus a beer drinker. Many young people believe that use of alcohol and/or other
drugs gives them a sense of control over their lives, especially in environments in which they have
little control. Alcohol and other drugs also have been used throughout history as self-medication.
Today's fourth, fifth, and sixth graders believe that the main reasons kids start to use drugs, including
alcohol, are to fit in, feel older, have a good time, and avoid feeling bad.
Understanding the expectations that young people hold about the function of alcohol and drug
use will be helpful. For instance, researchers have found that young people who believe that their
parents expect them to drink or use other drugs are more likely to do so. Youth who believe that
drug-taking is expected behavior may, therefore, be at especially high risk. When explored with
young people, the need to "fit in" is often translated as "since everyone is doing them, I want to also."
Effective programs address the myth that everyone is using alcohol and other drugs, as well as other
misconceptions.
Once community leaders and young people understand the reasons why young people are using
alcohol and other drugs, they can be brought together to discuss alternatives as part of a prevention
strategy. When one group of high school students was asked to think of a different way to engage
in risk-taking behavior, they suggested watching the movie "Jaws" in a crowded pool with their peers!
Take a Broad, Environmental Approach
Prevention activities operate in complex social and economic environments in which many
variables interact with each other over time. When variables are studied in isolation, it becomes
difficult to explore the precise linkage between action and effect, or to assess the impact of
concurrently operating prevention efforts.
We know that a variety of factors influence the consumption of alcohol and other drugs by
youth and adults alike. These include genetic and biological predisposition; family practices,
attitudes, and norms; socialization patterns, peer behaviors, and contacts; community practices
(including early use patterns) and norms, as well as the price of alcohol and other drugs; the
economic and educational levels of the community; exposure to media and other messages that
encourage use; laws about use (such as the legal drinking age or sanctions for use of illegal drugs set
46
by states); policies determining the availability of substances; and policies and practices that
encourage and reward help-seeking behaviors. Consumption by youth also is influenced by role
modeling of older siblings, parents, doctors, actors, rock stars, and others.
Although incomplete, the preceding list points to the need for integrated programs with
enduring, coordinated, and persuasive strategies that address the many domains of environmental
influence on youth and their older role models. Single-target prevention approaches are not
successful and cannot possibly compete with the daily contact young people have with many
different people, télevision, music, and reading materials. It is the daily contact through which
young people develop their lifestyles and the context in which alcohol and other drug use must be
examined.
Prevention efforts in the past have placed the greater emphasis on personalized motives and
causes for alcohol and other drug use and as a result have often lost sight of the larger environmental
determinants of use. That is, alcohol and drug use among youth is frequently labeled as an
individual problem instead of as a social problem. However, when one begins to readdress use as a
social problem, solutions take a different shape. For instance, teaching how to "Just Say No" may be
even more effective if directed at communities instead of individuals. Families, schools, churches
and synagogues, scout troops, boys' and girls' clubs, housing projects, chambers of commerce, and
entire communities can make a commitment to "saying no" and to promoting health, safety, and
meaningful lifestyles.
As discussed in the models and theories, these efforts must increase awareness; change
attitudes; develop skills; provide training and alternatives; allow for trial, adoption, and practice of
new behaviors with support from family, friends, classmates, coworkers, and the community; and
continually reinforce healthy lifestyles-- whether new or brought forward from childhood. Entire
communities can gather information about the problem as it appears in their community, make a
commitment to supporting a drug-free community, set goals and objectives, identify resources, and
plan rewards and celebrations for meeting their goals.
The importance of a well-rounded approach to prevention cannot be overemphasized; a
problem attacked from many directions has a better chance of being solved than does a problem
addressed from a single-solution orientation.
47
NEEDS ASSESSMENT
Before planning a prevention effort, a good deal of information is needed. This information
includes the level of alcohol and other drug problems in the community and existing prevention and
intervention programs.
Assessment involves judging or determining the importance, size, or value of something. If you
find that an alcohol or drug problem does exist in your community - and most communities will -- it
is important to take an in-depth look at your community and make some judgments and decisions
about how to proceed with your prevention efforts. Needs assessment can help uncover concerns
of highest priority. It can also help to define objectives, which may help uncover concerns of
highest government priority. The objectives should be established within the framework of overall
goals.
The common goal of prevention and intervention efforts is to reduce the incidence of alcohol-
and other drug-related problems. Prevention measures are addressed to large populations,
including those who may not yet drink or take other drugs. Intervention strategies are targeted to
more discrete groups of individuals:
those who consume alcoholic beverages either heavily, frequently, or under conditions that
endanger health, life, or property;
those who abuse prescription or over-the-counter drugs either alone or in combination with
other drugs, including alcohol; and
those who use illegal drugs, including underage youth who use alcohol.
The specific goal of intervention is to help these people obtain early treatment or to modify their
behavior to eliminate or minimize the risk of developing further problems. The specific goal of
prevention programs, on the other hand, is to prevent problems before any symptoms have
occurred. Interpretation and emphasis often determine whether a particular measure is defined as
prevention or as intervention.
Questions you might ask to assess the needs of your community include:
1. What do community members know about alcohol and drugs? What are their attitudes
toward these substances? How many people use them and how much do they use? Breaking
these data out by age, sex, ethnicity, income, and other demographic characteristics of respondents
provides a clearer picture of the community.
49
2. Where, when, and with whom do community members use alcohol and other drugs? In
other words, what is the context of use? Sometimes aiming a prevention effort at the context of a
problem is more effective than aiming it at individual users.
3. Which high-risk factors for use of alcohol and drugs by youth, and for abuse by adults, are
relevant to your community members? For instance, it may be important to ascertain the family
norms, consumption patterns, and attitudes of different peer groups, as well as the community
attitudes concerning the use of alcohol and other drugs by minors.
4. Is there a significant population, such as children of alcoholics or illegal drug users, that
may require more intensive efforts?
5. What and who are the credible and respected sources of information in your community?
Answers to many of these questions are sometimes attainable from state departments of health,
alcohol and drug abuse, mental health, education, and transportation. University consultants from
a variety of disciplines and private research companies often supply information as well. Further
information on conducting a needs assessment can be obtained from the National Clearinghouse for
Alcohol and Drug Information at (301) 468-2600.
50
CONCLUSIONS
Public opinion polls and other measures show that adults and young people alike are aware of
the seriousness of the alcohol and drug problem in this country. Having raised the public's
consciousness to these issues, prevention can now move forward.
One thing that appears certain is that the causes of alcohol and other drug use are complex.
For that reason, confronting the problem from a single direction is not likely to be effective.
Community members and groups need to work together to make a difference and to form a united
voice against alcohol and drug use by their youth. More than thirty five national voluntary and
professional associations representing approximately 30 million people have made a commitment to
preventing alcohol and other drug problems among the nation's youth.
These efforts can be enhanced by state and local governments. States and localities need to be
involved in community needs assessment. Development of mutual common strategies will
complement the efforts of community members and groups. The support of multiple governmental
agencies, particularly educational institutions, will be required. And finally, the focus on
community prevention efforts may require the reallocation of state and local resources toward this
end.
Resources
Health Education Quarterly, Volume 12, Number 2, Summer 1985.
Journal of Children in Contemporary Society, Volume 18, Number 1 and 2, Fall/Winter 1985.
Journal of School Health, Volume 56, Number 9, November 1986.
National Institute on Alcohol Abuse and Alcoholism. Sixth Special Report to the U.S. Congress on
Alcoholism and Health, January 1987.
National Institute on Drug Abuse. Preventing Adolescent Drug Abuse: Intervention Strategies,
Research Monograph #47, 1983.
Preventive Medicine, An International Journal Devoted to Practice and Theory, Volume 15, No. 5,
September 1986.
51
PART THREE:
Alcohol and Drug Abuse Prevention Programs
in the States
53
INTRODUCTION
The task force chair, Governor Martha Layne Collins, sent a survey letter to each Governor
requesting information on state drug strategies, effective state initiatives in alcohol and drug abuse
prevention, and the name of the state program coordinator for substance abuse programs.
Information was received from many states. Information on substance abuse programs in
states that did not respond to the survey letter was collected from several reports, including the 1984
Task Force on Substance Abuse Prevention report by the National Conference of Lieutenant
Governors. This report involves an extensive review of state and local programs.
Information also was provided by the National Association of State Alcohol and Drug Abuse
Directors (NASADAD). A 1985 study that NASADAD conducted for the National Institute on Alcohol
Abuse and Alcoholism and the National Institute on Drug Abuse, "An Analysis of State Alcohol and
Drug Abuse Profile Data," was very helpful.
55
SUMMARY OF ALCOHOL AND DRUG
ABUSE PROGRAMS IN THE STATES
Alabama
The Alabama Department of Mental Health acts as the sole funding and rulemaking authority for
programs in the state. Its prevention section works with local volunteer and private, non-profit
programs to provide a variety of activities.
The prevention section is the primary state agency working with alcohol and drug education
programs in the schools. There are a total of thirty-one programs statewide that have prevention
activities. The majority of programs on the local level are run by community mental health centers.
In addition to developing school curricula, the state prevention section has worked with the
Office of Highway and Traffic Safety to provide information to junior and senior high classes. The
department also has initiated alcohol projects on college campuses along with the state's Alcohol
Beverage Control Board.
The prevention section also works with parent/teacher groups, establishing a statewide parents'
consortium. There are also programs for the elderly and specialized workshops for professional
groups. For more information, contact:
Division of Mental Illness and Substance
Abuse Community Programs
200 Interstate Park Drive, Box 3710
Montgomery, Alabama 36193
Mary Lee Rice, Director
(205) 271-9253
Alaska
State law mandates that programs funded by the State Office of Alcoholism and Drug Abuse
(SOADA) receive grants-in-aid. SOADA-funded grant recipients are required to demonstrate that
local planning and input have gone into the development of the program. A local policy or advisory
board is required for all projects.
Community program grants require a minimum of 10 percent in financial match in order to
receive state funds. With many local programs, the required match is 50 percent or more.
Programs are held accountable through annual on-site evaluations and biannual fiscal audits. For
more information, contact:
57
State Office of Alcoholism and Drug Abuse
Department of Health and Social Services
Post Office Box H-05-F
Juneau, Alaska 99811-0607
Matthew Felix, Coordinator
(907) 586-6201
Arizona
Drug and alcohol abuse programs in the state are funded and supervised by separate sections
under the state Department of Health Services. Local programs are required to provide matching
funds for state contracts.
Programs are funded according to the priority populations of children and adolescents, women,
parents and families, minorities, and the elderly. Department funds support five types of prevention
programming: education and training, media, community development, alternatives, and program
consultation. Each local recipient of funds provides a variety of programs aimed at specific target
groups. Programs are required to perform process and outcome evaluations, using individualized
evaluation designs. For more information, contact:
Alcohol Abuse Section
Division of Behavioral Health
701 East Jefferson
Suite 400A
Phoenix, Arizona 80534
Michael Schwegler
(602) 255-1152
Arkansas
The Governor of Arkansas recently announced the establishment of a Professorship on Alcohol
and Drug Abuse Prevention and an endowed Chair on Alcoholism and Drug Abuse Studies at the
University of Arkansas for Medical Sciences. The professorship is in the College of Pharmacy and
was made possible through a grant from the Arkansas Department of Human Services' Alcohol and
Drug Abuse Prevention (OADAP) division. The endowed chair will be in the College of Medicine
and was made possible through a challenge grant from OADAP. Other funds for this Chair will be
raised from a temporary, legislatively imposed alcohol beverage tax.
In addition, OADAP funds and supervises school and community-based programs in the areas of
primary prevention and education of drug and alcohol abuse. Efforts are made to involve youth in
all project planning and implementation. All programs are encouraged to recruit volunteers, and
community participation is heavily weighed when programs are selected for funding. For more
information, contact:
Office on Alcohol and Drug Prevention
1515 West 7th Street, Suite 310
Little Rock, Arkansas 72202
Paul T. Behnke, Director
(501) 371-2604
California
The state's Department of Alcohol and Drug Programs is divided into alcohol and drug divisions.
Most of the federal and state dollars for prevention are distributed to the state's fifty-eight counties,
which in turn administer and fund local programs.
58
Both divisions are involved in prevention activities as well. The department as a whole
coordinates a statewide parent/community prevention effort, including networking, parent training,
information dissemination, and media campaigns. The department is also responsible for
monitoring county-operated school and community-based projects.
There are 636 programs in the state of California that provide some type of drug abuse and/or
alcoholism prevention services. They range from treatment facilities to school-based groups to
community groups. For more information, contact:
Division of Alcohol Programs
111 Capitol Mall
Sacramento, California 95814
Susan B. Blacksher, Chief
Colorado
The Alcohol and Drug Abuse Division of the Colorado Department of Health is the funding
authority for prevention programs in the state. It has developed a statewide service delivery system
offering many strategies directed at such target populations as high-risk youth, ethnic minorities, and
women.
There are school programs, community-based projects, and worksite programs, providing
various degrees of information, education, intervention, and alternatives. For more information,
contact:
Communities for a Drug-Free Colorado
136 State Capitol
Denver, Colorado 80203
Julie Fagan, Project Director
(303) 866-2885
Connecticut
The Alcohol and Drug Abuse Commission, a free-standing state agency, is responsible for
funding and overseeing programs in the state. Funds are distributed on a statewide basis.
Drug and alcohol education is mandated, but there are no specifications for curricula. For
more information, contact:
Alcohol and Drug Commission
999 Asylum Avenue
Hartford, Connecticut 06105
Donald J. McConnell, Executive Director
(203) 566-4145
Delaware
The Bureau of Alcoholism and Drug Abuse, part of the Department of Health and Social
Services' Division of Mental Health, funds and oversees programs.
The state's primary prevention contractor, the Resource Center, is charged with providing
assistance to and networking activities of the state's parent groups and SADD chapters. There are
more than thirty-five parent groups and fifteen SADD chapters in Delaware. In addition, some
schools use the "Here's Looking at You Two" K-12 curriculum. For more information, contact:
59
Bureau of Alcoholism and Drug Abuse
Connecticut Building, 2nd Floor
1901 North DuPont Highway
New Castle, Delaware 19720
Sara Taylor Allshouse, Bureau Chief
(302) 421-6101
Florida
The state authority oversees funding and program requirements for prevention efforts in
Florida.
A full range of programs can be found, ranging from parents groups to school-based substance
abuse prevention programs.
Founded in 1979, the Florida Informed Parents organization is composed of eighty-six parent
groups, with membership totalling about 10,000. Focusing on school-age drug use, the
organization provides workshops, conferences, and parent peer groups. The Florida State Cabinet
has commended the organization for its work in coordinating the Chemical People program in
Florida. Florida Informed Parents demonstrates the unique value of the parent movement,
coordinating law enforcement, schools, churches, and civic groups in working toward a common
goal of drug-free youth. The group's philosophy is that a community must work together to
establish a policy that drug use is not acceptable for its young people, and that policy must be clearly
communicated to the youth. For more information, contact:
Alcohol and Drug Abuse Program
1317 Winewood Boulevard
Tallahassee, Florida 32301
Linda Lewis, Administrator
(904) 488-0900
Georgia
The Department of Human Resources is the sole funding authority for drug and alcohol abuse
programs. The department distributes federal block grant dollars to local mental health agencies.
The Alcohol and Drug Services Section provides technical assistance to local programs.
In addition, the Prevention Unit of the Division of Mental Health and Mental Retardation has
developed a program for school-age children. Life Skills for Mental Health teaches youth problem-
solving skills and ways to handle pressure to use drugs. Twenty-six community mental health
centers across the state have teams trained to conduct workshops and follow-up for teachers, and
other youth workers to learn to use the program. For more information, contact:
Alcohol and Drug Services Section
878 Peach Street, Northeast
Suite 319
Atlanta, Georgia 30309
Patricia Redmond
(404) 894-4785
Hawaii
The Alcohol and Drug Abuse Branch of the Department of Health is the single state authority for
funding. Part of the Division of Mental Health, the branch works with the Office of Primary
Prevention to review program proposals and to monitor existing programs.
60
Funds for prevention programs are distributed on a statewide basis to private contractors. The
state branch does program planning, development, and coordination.
Alcohol and drug education is not mandated, but some schools use a K-12 curriculum through
the state Department of Education. There are also seventeen Chemical People task forces
throughout the state. For more information, contact:
Alcohol and Drug Abuse Branch
Honolulu, Hawaii 96801
Joyce Ingram-Chin, Branch Chief
(808) 548-4280
Idaho
The Substance Abuse Section of the Department of Health and Welfare directly funds the three
programs. The programs' main focus is on reducing the incidence of alcohol and substance abuse
problems in youth.
The remainder of the state's programs are funded and administered on the county level. For
more information, contact:
Bureau of Substance Abuse
Department of Health and Welfare
450 West State Street
Boise, Idaho 83720
Ray Winterowd, Chief
(208) 334-5935
Illinois
Drug and alcohol programs currently are administered by separate agencies in the state
government. The two oversee funding and set standards and operate out of regional offices.
Programs are operated at the local level by various local government entities and private, non-profit
agencies.
Illinois has a strong community-based system of programs, which include agencies, teen peer
leadership groups, and parent groups. Standard treatment programs are supported by stringent
DUI laws, a narcotics trafficking confiscation law, and treatment alternatives to incarceration.
As a result of the "Chemical People" project, at least ninety-six community task forces have been
formed, bringing the state total of community and parent organizations to about 180. For more
information, contact:
Illinois Alcoholism and Drug Dependence Association
628 East Adams
Suite 204
Springfield, Illinois 62701
James Long
(217) 528-7335
Indiana
The Division of Addiction Services of the Department of Mental Health directly funds local
prevention programming through requests for proposals. Local programs. must be incorporated
and can be profit or non-profit. Program efforts are coordinated by the state on a regional basis.
61
The division, in conjunction with the state Department of Public Instruction, has developed a
curriculum guide for drug and alcohol education. Such education is mandated at the elementary
level and is offered as anelective at the secondary level. For more information, contact:
Division of Addiction Services
117 East Washington Street
Indianapolis, Indiana 46204-3647
Joseph E. Mills III
Iowa
The Governor of Iowa has established the "Governor's Alliance on Drug Abuse" with a three-
point comprehensive program including drug education, treatment, and prevention; tougher
penalties for drug pushers; and stronger enforcement of drug laws. In October 1986, eight
correctional facilities were opened for individuals convicted of operating a motor vehicle while
intoxicated. These facilities offer a combination of treatment, supervised living, and employment
opportunities. For more information, contact:
Iowa Department of Public Health
Lucas State Office Building
Des Moines, Iowa 50319
Mary Ellis, Director
(515) 281-5605
Kansas
Programs are funded by a single state agency, the Department of Social and Rehabilitation
Services/Alcohol and Drug Abuse Services. The prevention division offers program development
for community-based programs and agencies, school programs, technical assistance, training and
staff development for parent support groups, and family health promotion. The agency also offers
employee assistance programs and conducts public information campaigns.
While not advocating a particular model curriculum, the state does use the School Team
approach developed by the U.S. Department of Education, including "teaming the athletic peer
group." The state agency also coordinates Students Against Driving Drunk chapters. For more
information, contact:
Alcohol and Drug Abuse Services
Biddle Building, Topeka State Hospital
2700 West 6th Street
Topeka, Kansas 66606
Commissioner
(913) 296-3925
Kentucky
"Champions Against Drugs," the prevention initiative of the Kentucky Governor, is a public
education and community mobilization campaign. The public education portion utilizes Kentucky
sports figures and other well-known individuals to speak out against alcohol and drug abuse and to
encourage citizens to become involved in prevention programs. Statewide, seventeen regional
action groups currently are working to develop comprehensive strategies to address alcohol and
drug problems at the state, regional, and community levels. The four-pronged approach to
comprehensive programming includes public awareness, education and training (with a special
emphasis on youth leadership training), intervention and treatment, and law enforcement. The
program emphasizes collaboration at the state and community levels to build on and expand existing
62
service networks. The law enforcement component will conduct sixteen public hearings across the
state and prepare recommendations and a legislative packet to present to state legislators during the
1987 session. There are more than sixty communities in Kentucky that have active citizen groups
supporting programs to prevent the spread of drug problems, and there are at least fifty "Just Say No"
clubs promoting drug-free activities and positive peer pressure for youth. For more information,
contact:
Division of Substance Abuse
275 East Main Street
1st Floor, East Wing
Frankfort, Kentucky 40621
Michael Townsend, Director
(502) 564-2880
Louisiana
The Department of Health and Human Resources' Office of Prevention and Recovery from
Alcohol and Drug Abuse provides alcohol and drug abuse prevention and treatment services through
a number of facilities and programs, including:
promotion and participation in major statewide substance abuse prevention campaigns,
including Substance Abuse Awareness Week, Drunk and Drugged Driving Awareness Week, Be
Smart Don't Start, Fetal Alcohol Syndrome Awareness Week, and Operation Prom/Graduation.
six halfway houses for individuals recovering from substance abuse.
six community-based outpatient treatment programs for drug and alcohol abuse funded through
contracts. One of these programs (in Lake Charles, Louisiana) serves primarily adolescents and
provides extensive prevention and early intervention services.
four inpatient treatment facilities. Two of these facilities (one in Shreveport and one in Lake
Charles) also provide detoxification services.
twenty-four state-operated outpatient treatment clinics located throughout the state. Clinics
provide substance abuse treatment, prevention, and early intervention services. For more
information, contact:
Office of Prevention and Recovery from
Alcohol and Drug Abuse
2744 B Wooddale Boulevard
Baton Rouge, Louisiana 70805
Rupert Richardson
(504) 922-0721
Maine
The Office of Alcoholism and Drug Abuse Prevention coordinates efforts in the state. In
addition, three other state agencies are involved in prevention activities.
The Maine Alcohol and Drug Abuse Clearinghouse is a function of the Department of Human
Services' Bureau of Health, Division of Health Education. It serves as a central source for
information about alcohol and other drugs, substance abuse prevention, treatment, research, and
education. The clearinghouse also provides technical assistance and consultation in prevention
program development. For more information, contact:
63
Division of Alcohol and Drug Education Services
Stevens School Complex
State House, Station 57
Augusta, Maine 04333
Carl D. Mowatt, Director
(207) 289-3876
Maryland
Programming in the state is funded and supervised by separate sections within the Department
of Health and Mental Hygiene. In addition to the programs listed in this section, there are a
number of Chemical People task forces, many SADD chapters, and "Tough Love" groups.
The Alcohol and Drug Abuse Prevention Program also funds an additional twenty-six community
development prevention programs statewide. Activities range from school-based prevention, peer
leadership, parent education, and grass-roots networking. Regional coordinators cover the state to
plan, coordinate, and advocate local services. The state office operates a direct elementary school-
based effort, the "Kool Pat -- Little Moe" decisionmaking program. For more information, contact:
Alcoholism Control Administration
201 West Preston Street, 4th Floor
Baltimore, Maryland 21201
Darlind Davis, Assistant Director
(301) 225-6555
Massachusetts
The Governor of Massachusetts created the "Governor's Alliance Against Drugs" in December
1984. The program is a coordinated statewide effort that has mobilized communities to confront
the issue of student drug and alcohol abuse. In its first year, the alliance enlisted the support of
more than 200 Massachusetts communities in an effort to combat substance abuse among young
people. The program entails counseling services for youth and their families, teacher
training/program development, regional primary prevention centers, youth residential treatment, and
identification of high-risk youths. For more information, contact:
Governor's Alliance Against Drugs
1 Ashburton Place, Room 2131
Boston, Massachusetts 02108
Marianne Lee, Deputy Director
Drug Program Coordinator
Michigan
The major prevention licensing category is called CAIT, reflecting the state's priorities of
community change, alternatives, information, and training. Licensed programs include private,
state, and locally supported efforts. The types of services offered range from community-based
information activities to school-based education programs and Alcohol Highway Safety Education
services.
Michigan recently completed a five-year prevention plan, developed at the state-level with input
from local programs and communities through the state Prevention Advisory Council. The plan
focuses on state and local efforts in six major "core" services, including preschool education, school
health curriculum, parent/teacher peer training, community-based prevention services, mass media
influence, and employee health promotion.
64
Current state policy requires that any new state funding allocated to prevention be utilized for
the improvement or development of the services described in the plan. For more information,
contact:
Office of Substance Abuse Services
3423 North Logan Street
Lansing, Michigan 48909
Robert Brook, Administrator
(517) 373-8603
Minnesota
The Chemical Dependency Program Division of the Department of Human Services is the single
state authority for drug and alcohol programs. The office administers federal block grants and state
funds. While some programs must participate in the proposal request process yearly, the office also
funds long-term projects on a three-year basis.
There are many programs for the state's sizeable Native American population, for which there is
a citizens' advisory board. The state office is currently working on special projects for Spanish-
speaking citizens.
While the Chemical Dependency Program Division does not license, it does provide technical
assistance to local programs. It has established the Minnesota Prevention Resource Center to work
with local programs, including providing "seed" money for new projects. There are about 415
chemical abuse prevention task forces in Minnesota.
Minnesota has an extensive school drug/alcohol. education program, which is supervised by the
state Department of Education. Alcohol and drug education is mandated, and the state reimburses
school districts for their programs. Many schools work with the Prevention Resource Center on
program development. For more information, contact:
Chemical Dependency Program Division
444 Lafayette Road
St. Paul, Minnesota 55155
Cynthia Turnure, Director
(612) 296-4610
Mississippi
The Division of Alcohol and Drug Abuse of the Department of Mental Health funds programs
throughout the state on a regional basis. The programs include community mental health centers,
free-standing programs, state hospitals, and state universities. The division also supports an in-
house clearinghouse with written materials and a film library. Specialized prevention activities also
are planned at the state level. For more information, contact:
Division of Alcohol and Drug Abuse.
1500 Woolfolk Building
Jackson, Mississippi 39201
Anne D. Robertson, Director
(601) 359-1297
Missouri
The Governor recently announced a six-part drug and alcohol abuse initiative designed to forge
a partnership between state and local groups toward preventing drug and alcohol abuse. The plan,
65
called "MO say NO to Alcohol and Drug Abuse," provides a coordinated response to the problem of
substance abuse in the state. Among the initiative's goals are creating local responses to local
problems by forging a partnership between schools and community groups; teaching students about
the dangers of alcohol and drug abuse by improving the alcohol and drug abuse curriculum; and
identifying and treating young people with drug problems through early intervention efforts. The
initiative is the work of a team of state government experts in the areas of health, public safety,
schools, mental health, and youth. For more information, contact:
Division of Alcoholism and Drug Abuse
Department of Mental Health
1915 South Ridge Drive
Jefferson City, Missouri 65102
Lois Olson, Director
(314) 751-4942
Montana
Programs in the state are funded and supervised by the Alcohol and Drug Abuse Division of the
Department of Institutions. The state is divided into five regions. Every outpatient chemical
dependency program provides some type of prevention and/or early intervention activity on an on-
going basis.
An on-going program brings parents and teenagers together in both peer groups and family
units. Three areas of discussion deal with drinking and driving, alcohol and drug use, and their
effects. Parents and teens focus on solving problems, expressing feelings, making decisions, and
communicating.
A structured group therapy experience for first offense adolescent drug and alcohol abusers
uses peer relationships to aid them in changing their lifestyles. The program is intended to be an
alternative to suspension/expulsion or incarceration. Consisting of eight two-hour sessions over an
eight-week period, the groups work on heightening self-esteem, improving communication skills,
fostering interpersonal relationships, and aiding members in setting personal goals. For more
information, contact:
Alcohol and Drug Abuse Division
1539 11th Avenue
Helena, Montana 59624
Bob Anderson, Administrator
(406) 444-3904
Nebraska
The Division on Alcoholism and Drug Abuse of the Department of Public Institutions is the
single state funding authority for prevention programs. The division was created when two separate
commissions were consolidated by legislative mandate several years ago. The division funds only
prevention programs; regional governing boards fund only treatment programs.
Alcohol and drug education is mandated, but the state's school districts may implement it as
they choose. The division has worked with the state Department of Education to develop a
curriculum, "Decisions About Alcohol and Other Drugs," which is available to state schools. In
addition, the state authority has produced a videotape, "Resisting Pressures to Drink and Drive."
For more information, contact:
66
Division on Alcoholism and Drug Abuse
P.O. Box 94728
Lincoln, Nebraska 68509-4728
Cecilia Doughty Willis, Director
(402) 471-2851
Nevada
Programs are funded and supervised by the Bureau of Alcohol and Drug Abuse of the
Department of Human Resources. The bureau also has set up tutoring programs on Indian
reservations and in juvenile probation centers. It distributes a newsletter, the "Alcothon," has
organized Families Anonymous and Tough Love groups, has a resource library, and provides
technical assistance to local programs.
The bureau provides training and curriculum materials to the state's public and private schools,
including the "Starting Early" and "Alcohol Awareness" programs for junior and senior high schools
and the "Positive Action" program.
There are also twelve Chemical People task forces located throughout the state. For more
information, contact:
Bureau of Alcohol and Drug Abuse
505 East King Street, Room 500
Carson City, Nevada 89710
Richard Ham, Chief
(702) 885-4790
New Hampshire
Substance abuse programs are divided between treatment and intervention programs. For those
who are at risk to develop a potentially serious substance abuse problem, intervention programs are
appropriate. When the individual and/or family is directly affected by substance abuse or
addiction, treatment services are involved.
The state. owns and operates a halfway house for recovering male alcoholics. Other services
are provided through contracts with non-profit agencies and organizations. Public funding
supports outpatient counseling at twenty-one separate locations throughout the state, two twenty-
eight-day residential programs for the treatment of alcoholism, beds purchased in two therapeutic
communities that treat the multi-problem substance abuser, funding of seven crisis intervention
centers developed to care for the publicly inebriated, and financial support for one halfway house
for women.
Seven Crisis Intervention sites are located in the state. The primary audience of these sites are
individuals who are suffering intoxification from alcohol and who are not in a medical emergency.
The staff is composed of volunteers who are specifically training in the management of the inebriate
and Emergency Medical Technicians. For more information, contact:
Office of Alcohol and Drug Abuse Prevention
Health and Human Services Building
#6 Hazen Drive
Concord, New Hampshire 03301-6525
Geraldine Sylvester, Director
(603) 271-4627
67
New Jersey
The Governor of New Jersey is calling for the creation of an "Alliance for a Drug Free New
Jersey." The alliance calls for business, law enforcement, religious, education, and community
leaders to establish a statewide program against substance abuse. It plans to solicit New Jersey's
567 cities and towns in an effort to abolish drug abuse. The aims of the alliance include:
organizing and coordinating the efforts of school, police, business groups, and other community
organization to fight drug abuse;
adopting a K through 12 drug abuse education program in the schools that have been
determined to be comprehensive and effective;
adopting clear procedures for the intervention, treatment, and discipline of students abusing
alcohol and drugs;
providing a comprehensive drug abuse education and outreach program for parents; and
providing a comprehensive substance abuse community awareness program.
The program focuses heavily on the demand side and seeks to make sure that every child in the
New Jersey public school system receives drug abuse education. The primary strategies focus on
prevention, intervention, and treatment. Prevention programs are geared toward limiting the
demand for drugs through increased public awareness, community activity, and parental support.
Intervention programs seek to identify drug abusers at the earliest point and encourage their
participation in appropriate treatment programs. For more information, contact:
Division of Alcoholism
Department of Health
129 East Hanover Street
Trenton, New Jersey 08625
Riley W. Regan, Director
(609) 292-8949
Division of Narcotic/Drug Abuse Control
129 East Hanover Street
Trenton, New Jersey 08625
Richard J. Russo, Director
(609) 292-5760
New Mexico
Programs in the state are funded and supervised by the Behavioral Health Services Division of
the Health and Environment Department There is a heavy emphasis on community involvement,
particularly for youth and the elderly. Many community agencies sponsor an alternative prevention
education drop-in center for youth ages 6 to 19. In addition, there are programs for the elderly.
Several Native American groups have specialized programs for their members. For more
information, contact:
Drug Abuse Bureau
P.O. Box 968
Santa Fe, New Mexico 87504
Ron Coss, Acting Chief
68
Alcoholism Bureau
P.O. Box 968
Santa Fe, New Mexico 87504
Arturo Rangel, Chief
(505) 827-2587
New York
Programs in the state are funded and overseen by the Division of Substance Abuse Services of
the Office of Alcoholism and Substance Abuse. Prevention programs are funded through the
counties, which then sub-contract to non-profit community-based and school-based agencies.
Funding is provided for about 146 prevention programs, with assistance to another fifty-six
community groups.
There are also county councils on alcoholism that provide information and referral services as
well as prevention and education programming. In addition, there are programs that receive state
and local funding under a local assistance formula, and that do not report to the division.
The division centrally operates a Fetal Alcohol Syndrome/Alcohol Related Birth Defects
prevention and education program as well as statewide information and awareness campaigns. For
more information, contact:
Division of Alcoholism and Alcohol Abuse
194 Washington Avenue
Albany, New York 12210
Robert V. Shear, Director
(518) 474-5417
North Carolina
The Governor has created the Governor's Council on Alcohol and Drug Abuse Among Children
and Youth to bring to the state a new awareness of this problem. The council is charged with
reviewing and making recommendations to the Governor on youth substance abuse issues. It
reviews and recommends mechanisms for coordination of state and local resources; conducts public
hearings; promotes local boards, councils, or commissions to identify model prevention,
intervention, and treatment efforts for possible statewide replication; and conducts public awareness
activities.
The Governor challenged every local community to form a local task force or coalition on
substance abuse. A statewide conference will be held in the fall for local officials, law enforcement
personnel, business leaders, education officials, health organizations, and civic leaders to share
information and build a solid foundation for addressing the drug problem. At the forum, a booklet
with information on every anti-drug effort at the state level will be released.
The Office of Alcohol and Drug Services, of the Department of Human Resources' Division of
Mental Health, Mental Retardation, and Substance Abuse Services is the single state agency for drug
and alcohol programs.
Prevention programming on the local level is carried out by area mental health agencies, which
either provide direct services or contract with private, non-profit agencies.
Drug and alcohol education is mandated in state schools. The Office of Alcohol and Drug
Services works cooperatively with the state Department of Education to implement curricula. For
more information, contact:
69
Alcohol and Drug Abuse Services
Division of Mental Health, Mental Retardation and Substance Abuse Services
325 North Salisbury Street
Raleigh, North Carolina 27611
Tom Miriello, Deputy Director
(919) 733-4670
Nort" Dakota
The Division of Alcoholism and Drug Abuse of the Department of Human Services funds and
supervises programs in the state. The state is divided into regions for program administration.
Activities sponsored by the division include media campaigns focused on youth and responsible
adult drinking, with special campaigns around the holidays offering alternatives to alcoholic
beverages and responsible drinking and driving. Youth media campaigns and educational programs
focus on peer group resistance and individual responsibility. In addition, the division provides
curriculum guides, speakers, and information resources. For more information, contact:
Division of Alcoholism and Drug Abuse
State Capitol, Judicial Wing
Bismarck, North Dakota 58505
John J. Allen, Director
(701) 224-2769
Ohio
Alcohol and drug abuse programming in the state is overseen by two authorities. The Bureau
of Alcohol Abuse and Alcoholism Recovery awards state and federal funds, coordinates programs,
and sets standards. It also funds the state's alcoholism counselors certification program and
sponsors the annual Teenage Institute for the prevention of alcohol and other drug abuse. The
Bureau of Drug Abuse provides similar supervision and support for drug programs.
Planning, implementation, and coordination of alcoholism programs on the local level is done
by twelve regional councils, made up of citizens from each region. For more information, contact:
Department of Mental Health
Office of Education and Training
30 East Broad Street, 13th Floor
Columbus, Ohio 43215
(614) 466-9902
Oklahoma
The state Department of Mental Health is the single state authority funding and overseeing drug
and alcohol abuse programs. The department is divided into divisions for the administration of
programs. Prevention programming is funded on the basis of statewide pilot demonstration
projects that must submit competitive bids.
Drug and alcohol education is not mandated in the state, and no one curriculum is endorsed.
For more information, contact:
70
Alcohol and Drug Programs
P.O. Box 53277, Capitol Station
Oklahoma City, Oklahoma 73152
Tom Stanitis, Director
(405) 521-0044
Oregon
Prevention services in the state are funded and supervised by the Office of Programs for Alcohol
and Drug Problems, Division of Mental Health, Department of Human Resources. Rules and
guidelines are established by the state. Management of services is done jointly between state and
county governments.
State funding guidelines recommend that programs be targeted toward elderly, adolescents,
children of alcohol and drug abusers, and women. Programs at the local level include student
assistance, peer counseling, and school prevention curriculum. There are also DUI education and
treatment programs, media campaigns, prescription drug abuse prevention efforts, employee
assistance programs, Channel One projects, and facilitation of parent groups to fight drug abuse.
For more information, contact:
Programs for Alcohol and Drug Problems
301 Public Service Building
Salem, Oregon 97310
Jeffrey N. Kushner, Assistant Director
(503) 378-2163
Pennsylvania
The Drug and Alcohol System was primarily a treatment-based system until 1980. With the
onset of the federal block grants, Pennsylvania was required to spend 20 percent of all federal funds
on prevention or early intervention services. In addition, the Office of Drug and Alcohol Programs
(ODAP) established a policy that required at least 10 percent of all state monies to be used for
prevention services. With a $42 million appropriation, ODAP spends approximately $4.2 million on
prevention and early intervention services.
The majority of the $4.2 million is allocated to the Single County Authorities or county agencies
to develop and implement prevention/intervention programs that meet the needs of Pennsylvania's
diverse population. However, ODAP retains some of these funds to enable it to develop and
implement special statewide initiatives such as Teen Pregnancy, Underage Drinking and Driving
Programs, and Student Assistance Programs. In addition, interagency contracts have been
established and continued with the Departments of Education, Corrections, and Public Welfare to
develop and implement programs for school-age children and criminal justice clients.
The office also has obtained grants from the Pennsylvania Commission on Crime and
Delinquency and the Department of Transportation to support efforts for juvenile offenders with
drug and alcohol problems, and for Driving While Under the Influence offenders. For more
information, contact:
Office of Drug and Alcohol Programs
P.O. Box 90
Harrisburg, Pennsylvania 17108
Jeannien Peterson, Deputy Secretary
(717) 787-9857
71
Rhode Island
The Division of Substance Abuse of the Department of Mental Health, Retardation, and
Hospitals is the single state authority for funding and supervision of prevention programs. The
division funds local private, non-profit contractors on an annual basis and provides training services,
community assistance, and information materials There are also seventeen parent groups, many
having grown out of the Chemical People program.
The Division of Alcohol and Drug Abuse is the single state funding authority. It funds and
oversees three regional resource centers, which coordinate local efforts. The division also directly
funds some local programs. It has targeted school curriculum development, working with state
schools to implement alcohol and drug education. The division also contracts with local treatment
facilities that provide some prevention information. For more information, contact:
Division of Substance Abuse
Substance Abuse Administration Building
Cranston, Rhode Island 02920
William Pimentel, Assistant Director
(401) 464-2091
South Carolina
The South Carolina Commission on Alcohol and Drug Abuse provides funding and technical
support for the state's prevention programming. On the local level, programs are administered by
county commissions of alcohol and drug abuse.
The state has developed several model programs that are used locally. These include the
School Intervention Program which began in 1978. The program involves local commissions and
school districts in an effort to reduce alcohol and drug abuse and/or anti-social behaviors among
students in grades 7 to 12.
Other programs include the Counseling and Referral Elective, a type of employee assistance
program, and the Alcohol/Drug Safety Action Program, an intervention system designed to reach the
drinking driver and the minor drug offender with educational and counseling rehabilitation. Under
the program, a first-offense DUI violator may receive a provisional license, and contingent upon
successful completion of the drug program, an offender may be eligible for expungement of his or
her arrest record.
The commission also has established the Addictions Coordinators Network, which includes nine
primary prevention services projects, two prevention volunteers projects, and four community-based
prevention projects. For more information, contact:
Commission on Alcohol/Drug Abuse
3700 Forest Drive
Columbia, South Carolina 29204
William J. McCord, Director
(803) 734-9520
South Dakota
The state addresses alcohol and drug abuse problems through the assignment of responsibilities
to those state agencies that have the appropriate jurisdiction and expertise. The agency most
directly responsible takes the initiative. When areas overlap and involve a number of agencies,
coordination of roles takes place among involved state, local, and federal agencies.
72
According to South Dakota law, mandatory posting of warnings in all places selling alcoholic
beverages must advise the dangers of drinking alcohol while pregnant or nursing a baby.
These are- several programs for substance abuse prevention in the state; among them is
"Solutions," which is composed of teenagers who use theater and group discussion to help young
people and adults deal with problems that involve alcohol and drug abuse. These groups are
trained to develop scenes that an audience may identify with in order to help people clarify their
values concerning social issues. The goal is to help people think through and make decisions
beneficial to their health and well-being.
Another program is the school team approach training, where the primary objective is to assist
participating schools in prevention and reducing drug and alcohol abuse and associated disruptive
behaviors. This is facilitated by encouraging and enhancing the development of a cooperative
systems management approach to school governance in which the entire community assumes
responsibility for problems and takes part in solution; and by facilitating the creation and
maintenance of a positive school environment to reduce disruptive behavior. For more
information, contact:
Division of Alcohol and Drug Abuse Services
Joe Foss Building
Pierre, South Dakota 57501
Bob Anderson, Director
(605) 773-3123
Tennessee
The Department of Mental Health and Mental Retardation has been designated the sole
authority in the state for alcohol and drug programs. The Division of Alcohol and Drug Services
administers funds and oversees programs development.
On the local level, needs assessments are carried out by regional planning boards, which
include service division contracts directly with local programs for services. Community mental
health centers do about three-fifths of the programming
Drug and alcohol education is required by the state, and both the state Department of
Education and the division offer curricula. In addition, the division offers teacher training for its K-
6 curriculum.
The parent movement in the state is fairly new. There are about eight active groups, including
MADD and RID chapters. For more information, contact:
State Planning Office
309 John Sever State Office Building
500 Charlotte Avenue
Nashville, Tennessee 37219-5082
Carol White, Federal Affairs Coordinator
(615) 741-1676
Texas
Drug and alcohol abuse prevention programs are funded and overseen by two separate state
agencies. The Commission on Alcoholism administers programs through regional authorities. The
state is divided into twenty-four regions.
73
The Drug Abuse Prevention Division of the Department of Community Affairs handles drug
programming Both agencies provide technical assistance, training, and program planning and
development. For more information, contact:
Commission on Alcoholism
1705 Guadalupe Street
Austin, Texas 78701
Ross A. Newby, Director
(512) 463-5510
Drug Abuse Prevention Division
2015 South 1H 35
Austin, Texas 78741
Jim Bradley, Director
(512) 463-5510
Utah
The State Division of Alcoholism and Drugs coordinates education, prevention, and training
programming statewide. It oversees planning and contracting for programs at the local level,
providing links with other state-level agencies (such as mental health, aging, education, PTA, and the
legislature) and also provides limited direct services.
Prevention programming is decentralized, with most programs provided by local schools,
counties, courts, and private organizations. The state is divided into planning districts for funding
and administration.
Direct services provided by the division include mass media campaigns, model curriculum
development, audio-visual lending library, research and evaluation, and training. In addition, it
sponsors the statewide Governor's Youth Council on Alcohol. For more information, contact:
Division of Alcoholism and Drugs
120 North 200 West, 4th Floor
Salt Lake City, Utah 84103
F. Leon Povey, Director
(801) 538-3939
Vermont
The Alcohol and Drug Abuse Division Intervention Program provides funds and oversees
prevention efforts in the state. Nine regionally based intervention specialists, supported by central
staff, plan, develop, follow up, and evaluate a variety of prevention programs jointly with local
individuals and groups. Programs are aimed at the general public, schools, workers, and grass-roots
organizations.
The division funds about ninety rural, community-based programs each year. In addition, it
plans statewide initiatives such as public service announcements and other large-scale projects. For
more information, contact:
Office of Alcohol and Drug Abuse Programs
103 South Main Street
Waterbury, Vermont 05676
Richard Powell II, Director
(802) 241-2170
74
Virginia
The Virginia program is a statewide initiative designed to train student leaders to develop
school-based peer resistance programs for prevention of alcohol and drug abuse and for the
reduction of alcohol-related accidents among teens. Major features include state training for more
than 400 youth and 200 adults, and fifteen regional conferences and two state conferences on
alcohol and drug abuse.
In 1986, the state developed a pilot Drug Abuse Resistance Education program. The primary
focus is teaching elementary students general skills for coping with life and instructing students in
ways to apply these skills to specific events that may threaten their general health. The program is
funded by a grant from the Criminal Justice Service for $69,000 and is a cooperative effort between
the State Police and the Department of Education. A uniformed police officer is assigned to teach
the program fulltime in the classroom. For more information, contact:
Division Office of Substance Abuse Services
P.O. Box 1797
Richmond, Virginia 23214
Wayne Thacker, Director
(804) 786-3906
Washington
The Prevention/Early Intervention Program of the Bureau of Alcohol and Drug Abuse
Prevention allots funds to thirty-five county units for the development of local plans. These county
plans must be geared toward three types of projects: comprehensive K-12 school-based curriculum
that includes knowledge, decisionmaking, coping skills, and self-esteem; student assistance programs;
and community organization, which includes parent education and support groups.
The focus of the programs is establishing a partnership between state, county, schools, youth,
parents, service organizations, business and industry, churches, etc. For more information, contact:
Bureau of Alcohol and Substance Abuse
Mail Stop OB-44W
Olympia, Washington 98504
Glen Miller, Director
(206) 753-5866
Wisconsin
The Department of Health and Social Services' Office of Alcohol and Other Drug Abuse is the
single state authority for prevention programs. Wisconsin has experienced a growth in the areas of
community development core group citizen initiatives. This model has become the basis for alcohol
and other drug abuse prevention in social policy formulation, citizen/parent action, school
curriculum, and intervention programs.
Volunteer involvement has grown at the community and state level, as well as in the workplace
and in the Native American reservation community.
There are more than sixty public school districts that have prevention and early intervention
programs. For more information, contact:
75
Office of Alcohol and Other Drug Abuse
P.O. Box 7851
Madison, Wisconsin 53707
Larry Monson, Director
(608) 266-2717
West Virginia
The Division on Alcoholism and Drug Abuse, of the Department of Health, is the single state
agency for alcoholism and drug abuse programs. It contracts with fourteen comprehensive
community behavioral health centers to provide services.
Prevention activities include working with schools, participating in MADD and SADD groups,
coordinating Chemical People task forces, and conducting media campaigns.
The division funds several innovative programs and public awareness campaigns, including
D.A.N.C.E. (Drugs are Not Constructive Entertainment), a media campaign and social events for
teens; and prevention and early intervention for high-risk populations, specifically family members of
alcohol abusers and high school students in driver education classes. Other programs are Project
Integrity, a training program for dealing with substance abuse problems of the elderly; peer facilitator
training for junior high, high school, and college students; the Natural Helpers Project; and the
Youth Outdoor Development Project, a summer employment/personal development program for
high-risk youth. For more information, contact:
Division of Alcohol and Drug Abuse
State Capitol
1800 Washington Street East
Charleston, West Virginia 25305
Jack Clohan, Jr., Director
(304) 348-2276
Wyoming
The Office of Substance Abuse Programs, which is within the Division of Community Programs,
funds and oversees prevention activities in the state. Programs are administered at the local level by
both mental health agencies and free-standing substance abuse agencies. State funding is based on
the number of hours of staff time expended rather than on a per capita basis.
There are about twenty-five agencies in the state that provide some degree of prevention
service. Each agency devises annual program goals and strategies to meet local needs. For more
information, contact:
Office of Substance Abuse Programs
2300 Capitol Avenue
Cheyenne, Wyoming 82202
Jean DeFratis, Director
(307) 777-7115, ext. 6494
76
PART FOUR: Additional Resources
77
City Responses To Drug Abuse
This is an annotated listing of drug abuse prevention programs in the Mayors' Clearinghouse on
Drug Control. The listing includes community education programs, police-school programs,
treatment and counseling programs, municipal employee programs, and community task forces or
advisory commissions on substance abuse programs. These listings were last updated in November
1986. For further information on the Mayors' Clearinghouse, contact:
United States Conference of Mayors
1620 Eye Street, N.W., 4th Floor
Washington, D.C. 20006
(202) 293-7330
Alcohol and Drug Abuse Prevention Education: Survey of The States
This report is the product of a joint effort by the National Association of State Boards of
Education's (NASBE), Alcohol Education Guidelines Project in collaboration with the Connecticut
State Department of Education. This report discusses a policy framework and implementation of
alcohol and drug abuse prevention programs in K-12 school programs. It also relates to teaching,
monitoring and evaluating programs, and staffing programs in the state education agency. For
further information, contact:
The Alcohol Education Guidelines Project
National Association of State Boards of Education
701 North Fairfax Street, Suite 340
Alexandria, Virginia 22314
(703) 684-4000
American Bar Association Policy Recommendation on Youth Alcohol and
Drug Problems
This report was adopted by the American Bar Association House of Delegates in July 1985.
The report makes recommendations for policy changes dealing with youth and substance abuse
prevention. Recommendations are in the areas of: illegal sales of alcohol to minors; youth drug
paraphernalia law; dram shop and host liability; child custody and visitation; consent to treatment;
and child abuse and neglect laws. For further information, contact:
American Bar Association
Section of Individual Rights and Responsibilities
1800 M Street, N.W.
Washington, D.C. 20036
(202) 331-2273
Strategies for Controlling Adolescent Drug Use
This report from the Rand Corporation by J. Michael Polich, Phyllis L. Ellickson, Peter Renter
and James P. Kahan, which gives a detailed analysis of drug use prevention techniques that could
curtail drug abuse or prevent the onset of drug use by young people. For further information,
contact:
The Rand Corporation
1700 Main Street
P.O. Box 2138
Santa Monica, California 90406-2138
(213) 393-0411
78
Drug Use Among American High School Students, College Students, and
Other Young Adults
This is a study of national trends in drug use among the youth. It gives data on different drugs
in different geographical locations and the current trends for drug use. This document is usually
updated every two or three years. For further information, contact:
National Institute on Drug Abuse
Alcohol, Drug Abuse, and Mental Health Administration
U.S. Department of Health and Human Services
5600 Fishers Lane
Rockville, Maryland 20857
(301) 443-6480
State Laws and Procedures Affecting Drug Trafficking Control: A National
Overview
This unique report looks into the aspects of state laws affecting the investigation and
prosecution of individuals involved in drug trafficking and related activity. The report covers ten
areas: bail, sentencing, forfeiture, group criminality (encompassing conspiracy and racketeering),
electronic surveillance, witness immunity and protection, grand juries, currency transaction
reporting, state revenue files access, and intergovernmental cooperation (including the sharing of
intelligence and statistical data). : For further information, contact:
The National Criminal Justice Association
444 North Capitol Street, N.W., Suite 608
Washington, D.C. 20001
(202) 347-4900
State Resources And Services Related To Alcohol And Drug Abuse Problems
This is a profile of state alcohol and drug abuse programs. The information is categorized by:
funding levels and sources; client admission characteristics; availability of other treatment-related
data; top policy issues; major unmet needs; and significant changes in treatment and/or prevention
services. For further information, contact:
The National Association of State Alcohol and Drug Abuse Directors, Inc.
444 North Capitol Street, N.W., Suite 520
Washington, D.C. 20001
(202) 783-6868
79
1
on
TOTO
m
REMARKS: NATIONAL CONFERENCE OF STATE LEGISLATURES
OLD EXECUTIVE OFFICE BUILDING/RM 450
MARCH 10, 1989
I AM VERY PLEASED TO BE HERE. I WOULD LIKE TO THANK
THE PRESENT AND PAST OFFICERS FOR YOUR GRACIOUS INVITATION
-- SAMMY NUNEZ (Noo-nez), LEE DANIELS, TED STRICKLAND.
THANK YOU ALL.
THE LAST TIME I SPOKE TO YOU, WE WERE IN THE MIDDLE
OF AMERICA, IN THE MIDDLE OF SUMMER, AND IN THE MIDST OF A
TOUGH CAMPAIGN YEAR.
2
FATE HAS SMILED ON US SINCE THAT JULY DAY IN
INDIANAPOLIS. THEN, WE WERE ALL CANDIDATES. TODAY,
EVERYONE IN THIS ROOM IS A WINNER. FOR THOSE OF YOU WHO
ARE REPUBLICANS, YOU DISCERNING DEVILS, THERE WAS A TIME
WHEN I THOUGHT I'D DRAG ALL OF YOU DOWN BUT, NO, HERE WE
ARE! FOR THOSE OF YOU WHO ARE DEMOCRATS, I CLAIM
ABSOLUTELY NO CREDIT WHATSOEVER
BUT "WELL DONE."
IN ALL SINCERITY, I WANT TO CONGRATULATE EVERY
LEGISLATIVE LEADER IN THIS ROOM, DEMOCRATIC AS WELL AS
REPUBLICAN. You WON MORE THAN A POLITICAL VICTORY.
3
You WON THE HIGHEST HONOR OF ALL -- THE OPPORTUNITY TO
SERVE.
THE PROBLEMS THAT CONFRONT OUR COUNTRY AS WE NEAR THE
END OF THIS CENTURY OFTEN SEEM BIGGER THAN OUR ABILITY TO
SOLVE THEM. AND THEY ARE -- IF WE FACE THESE PROBLEMS AS
ONLY PARTISAN DEMOCRATS OR REPUBLICANS, AS PAROCHIAL
MEMBERS OF A REGION, OR A FACTION, OR AN INTEREST GROUP.
BUT BY WORKING TOGETHER, AS AMERICANS, WE CAN LICK ANY
PROBLEM -- NO MATTER HOW BIG, HOW COMPLEX OR HOW DEEPLY
ROOTED IT MAY BE.
4
TRUE, THERE ARE ALWAYS NAYSAYERS WHO BELIEVE WE WILL
NEVER CLEAN UP THE ENVIRONMENT; THAT WE WILL NEVER SHELTER
THE HOMELESS; THAT WE WILL NEVER END THAT AGE-OLD
AFFLICTION OF MANKIND, POVERTY -- POVERTY OF KNOWLEDGE AND
SKILLS, POVERTY OF OPPORTUNITY, POVERTY OF HOPE.
BUT THE CYNICS NEVER TAKE INTO ACCOUNT ONE OF THE
GREAT SUCCESS STORIES OF OUR TIMES -- STATE GOVERNMENT.
IN THIS DECADE, POWER FLOWED FROM WASHINGTON TO AUSTIN, TO
ATLANTA, TO SACRAMENTO AND TO EVERY OTHER STATE CAPITAL.
5
WITH THIS POWER CAME NEW RESPONSIBILITIES. AND HISTORY
WILL REMEMBER THAT YOU MET YOUR BROADENED RESPONSIBILITIES
WITH DISTINCTION.
I KNOW FUNDS AT ALL LEVELS OF GOVERNMENT ARE TIGHT.
I KNOW YOU ARE CALLED UPON TO MAKE HARD CHOICES, AS I AM.
BUT, BY AND LARGE, YOU ARE MEETING THE CHALLENGE OF A
FRUGAL AGE BY DEVISING CREATIVE NEW SOLUTIONS TO THE
AGE-OLD PROBLEMS OF CARE AND CONCERN FOR THE VERY YOUNG,
THE VERY ELDERLY, THE DISADVANTAGED AND THE DISPOSSESSED.
6
So WHENEVER I SEE A PROBLEM THAT SOME SAY IS
INSURMOUNTABLE, I DRAW INSPIRATION FROM WHAT YOU ARE
ALREADY DOING IN THE STATES.
THE RESILIENCE OF STATE GOVERNMENT IN THE 1980s
VINDICATES THE WISDOM OF THE FOUNDING FATHERS, AND FOREVER
DISCREDITS THOSE WHO WOULD HAVE WASHINGTON DO IT ALL. LET
ME ASSURE YOU: I WILL PRESERVE AND PROTECT A HEALTHY
BALANCE, A SHARING OF POWER, BETWEEN THE STATES AND
WASHINGTON. FEDERALISM WORKS.
7
I REMEMBER MEETINGS I HAD YEARS AGO WITH GOVERNORS
DISCUSSING THE SOCIAL ISSUES. I LEARNED A LOT. THE
STATES ARE ON THE CUTTING EDGE. GOVERNORS MUST DEAL IN
WHAT WORKS.
As YOU KNOW, ONE POLICY AREA CLEARLY DESIGNATED AS A
PRIME RESPONSIBILITY OF THE FEDERAL GOVERNMENT IS OUR
NATIONAL DEFENSE. So PERHAPS THE APPEAL I AM GOING TO
MAKE TO YOU TODAY WILL BE ALL THE MORE UNPRECEDENTED.
8
THE TIME HAS COME FOR ME TO ENLIST YOUR ENERGY AND
EXPERTISE IN A DIFFERENT KIND OF NATIONAL SECURITY CRISIS
-- THE THREAT OF DRUG ABUSE TO THE HEALTH AND THE VERY
FUTURE OF OUR NATION.
CRACK. HEROIN. P.C.P. THESE DRUGS ARE A PLAGUE
THAT LEAVES AN AFTERMATH OF SHATTERED MINDS, RUINED BODIES
AND WASTED POTENTIAL. No STATE IN THE UNION IS IMMUNE TO
THIS PLAGUE. DRUG CRIMES HAVE CLAIMED THOUSANDS OF LIVES,
AND TURNED WHOLE COMMUNITIES UPSIDE DOWN FROM THE EASTERN
SEABOARD TO THE PACIFIC COAST.
9
IT IS BECOMING APPARENT THAT OUR STRUGGLE AGAINST THE DRUG
TRADE IS THE MORAL EQUIVALENT OF WAR.
As WITH EVERY BATTLE THIS COUNTRY HAS EVER FOUGHT, WE
ARE ALL IN THIS TOGETHER -- AS AMERICANS. AND AS WITH ANY
WAR, WE MUST HAVE A STRATEGY. OUR STRATEGY IS
FOUR-PRONGED: 1) EDUCATION; 2) REHABILITATION; 3) LAW
ENFORCEMENT; AND 4) INTERDICTION.
I AM ENCOURAGED TO SEE so MANY STATE GOVERNMENTS
FORMING INTRA-STATE DRUG TASK FORCES, AND INTER-STATE
PANELS TO SHARE RESOURCES AND INTELLIGENCE.
10
EVERY STATE SHOULD JOIN THIS COMMON EFFORT. AND EVERY
STATE SHOULD LOOK FOR WAYS TO TOUGHEN ITS DRUG LAWS.
THE FEDERAL GOVERNMENT, JUST LIKE THE STATES, IS
ANIMATED BY A NEW GET-TOUGH ATTITUDE ON DRUGS. WE'VE
STIFFENED THE FEDERAL SENTENCE FOR DRUG TRAFFICKING TO A
MAXIMUM OF LIFE. WE'VE TOUGHENED PENALTIES FOR DRUG
DEALERS WHO USE CHILDREN TO DEAL DRUGS, OR WHO SELL DRUGS
To CHILDREN. AND IF YOU COMMIT A DRUG-RELATED MURDER, OR
KILL A COP, THE TOUGHEST SENTENCE YOU CAN RECEIVE IS THE
TOUGHEST SENTENCE THERE IS -- DEATH.
11
WE'VE ALSO INCREASED OUR RESOURCES AS WE'VE STIFFENED
SENTENCES. SINCE 1981, THE FEDERAL ANTI-DRUG BUDGET HAS
GROWN BY NEARLY 370 PERCENT. BUT MORE WAS NEEDED, SO I AM
ASKING THE CONGRESS FOR $6 BILLION FOR OUR ANTI-DRUG
PROGRAM IN 1990. MORE THAN $4 BILLION WILL BE SPENT TO
PROVIDE GRANTS TO STATE AND LOCAL LAW ENFORCEMENT
AGENCIES, TO BEEF UP FEDERAL ENFORCEMENT, AND TO ENHANCE
OUR PROSECUTION, DETENTION AND INTELLIGENCE
CAPABILITIES
12
THIS INCLUDES SUSTAINING THE $150 MILLION DRUG GRANT
PROGRAM, so THAT THE DEPARTMENT OF JUSTICE CAN HELP STATE
AND LOCAL LAW ENFORCEMENT AGENCIES CATCH CRIMINALS AND
WARN KIDS AWAY FROM DRUGS.
ANOTHER SHINING EXAMPLE OF FEDERAL AND STATE
COOPERATION IS THE SEIZURE AND FORFEITURE OF ASSETS FROM
DRUG DEALERS. STATE AGENCIES THAT COOPERATE IN DRUG CASES
WILL SHARE THE BENEFITS FROM THE SALE OF YACHTS, PLANES
AND CARS USED IN DRUG DEALS.
13
To CONVERT THE PROFITS OF VICE TO FINANCE OUR WAR AGAINST
THE MULTI-BILLION DOLLAR DRUG EMPIRE IS MORE THAN GOOD
FINANCIAL SENSE. IT IS SWIFT JUSTICE
EVEN WITH THESE PROGRAMS, THE CAMPAIGN AGAINST DRUG
ABUSE WILL BE A HARD-FOUGHT WAR THAT WILL LAST FOR YEARS.
PERHAPS WE SHOULD TAKE INSPIRATION FROM A NATION AT
WAR ALMOST FIFTY YEARS AGO. As BRITAIN FACED AN ADVERSARY
THAT TESTED THE COURAGE AND CHARACTER OF ITS PEOPLE,
WINSTON CHURCHILL VOWED TO NEVER SURRENDER.
14
IN TODAY'S WAR AGAINST THE PUSHERS, WE MUST -- AS A PEOPLE
-- DRAW FROM THESE SAME DEEP WELLS OF NATIONAL PURPOSE TO
SUMMON A SPIRIT OF DEFIANCE.
BUT OUR SINGLE, MOST IMPORTANT TASK IS TO KEEP KIDS
OFF DRUGS AND OUT OF TROUBLE. TOWARD THIS END, I AM
PROPOSING A $1.1 BILLION ALLOCATION FOR DRUG EDUCATION AND
PREVENTION -- A 16 PERCENT INCREASE OVER 1989.
15
SOME $367 MILLION OF THIS WILL GO TO THE DRUG FREE SCHOOLS
AND COMMUNITIES PROGRAM, TO HELP KEEP DRUGS OUT OF OUR
SCHOOLS, CAMPUSES AND NEIGHBORHOODS -- AN INCREASE OF $12
MILLION.
THE PROGRAMS ARE MANY. You WILL BE ABLE TO TAKE THE
LEAD IN THIS EFFORT, SINCE MORE THAN 80 PERCENT OF THE
FUNDS OF THE DRUG FREE SCHOOLS AND COMMUNITIES PROGRAM
WILL BE ALLOCATED TO THE STATES AND TERRITORIES.
As YOU MAY HAVE HEARD, WE CAN ALREADY TAKE HEART FROM
SOME GOOD NEWS FROM THE CLASSROOMS OF AMERICA.
16
ACCORDING TO THE 1988 NATIONAL HIGH SCHOOL SENIOR SURVEY,
THE PROPORTION OF SENIORS USING ILLICIT DRUGS DURING THE
PRIOR YEAR FELL FROM 42 PERCENT IN 1987 TO 39 PERCENT IN
1988. THIS COMPARES WITH THE PEAK YEAR OF 1979, WHEN AN
ASTOUNDING 54 PERCENT OF ALL AMERICAN HIGH SCHOOL SENIORS
USED DRUGS.
STILL, 39 PERCENT IS TOO MUCH. WE WILL SPEND MONEY
TO GET THE JOB DONE, BUT WE NEED SOMETHING MORE -- AN
ATTITUDE OF INTOLERANCE.
17
LET ME TELL YOU, PRESIDENTS USUALLY DO NOT SPEAK IN
FAVOR OF INTOLERANCE. BUT THE DAY MUST SOON COME WHEN
THIS NATION IS UTTERLY INTOLERANT OF SO-CALLED CASUAL DRUG
ABUSE. THEN, AND ONLY THEN, WILL WE BE ABLE TO DECLARE
VICTORY.
OVER THE NEXT FOUR YEARS, WE WILL FACE MANY COMMON
CHALLENGES -- TO OUR ENVIRONMENT, TO OUR PROSPERITY, TO
OUR COMPASSION FOR THOSE WHO HAVE YET TO FULLY PARTICIPATE
IN THE AMERICAN DREAM. THE CHALLENGE OF DRUG ABUSE WILL
TEST OUR RESOLVE AND OUR METTLE AS A PEOPLE.
18
I PLEDGE, LEADER TO LEADER, TO WORK WITH YOU AND YOUR
STATE GOVERNMENTS IN THIS STRUGGLE. BILL BENNETT AND I
WILL LEAD THE FIGHT AGAINST DRUGS ON ALL FRONTS. JUST AS
WAR TESTED AMERICA AND OUR ALLIES IN THE 1940s, SO OUR
PEOPLE ARE UNDERGOING A TEST OF OUR NATIONAL WILL TODAY.
To PARAPHRASE CHURCHILL, WE SHALL NOT FLAG OR FAIL. WE
SHALL GO ON TO THE END FIGHTING THE SCOURGE OF DRUG ABUSE,
WITH GROWING CONFIDENCE AND GROWING STRENGTH
WE
SHALL NEVER SURRENDER.
19
WITH YOUR HELP, AND YOUR LEADERSHIP IN THE STATES, I KNOW
THAT WE SHALL ALSO PREVAIL.
THANK YOU.
###