July 13, 1998

TO:

Santa Clara County Violence Prevention Council

FROM:

Policy Sub-committee on Alcohol

SUBJECT:

Draft Alcohol Policy Recommendations

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Alcohol is the third leading cause of preventable death in the United States,:contributing to more
then 100,000 deaths annually. Many studies have found a consistent relationship between alcohol
consumption and violence — including homicides, assaults and trauma cases. Alcohol also

Contributes to the frequency and severity ofany violence that does occur. Alcohol increases the
likelihood Of aggression, and is the drug most clearly associated with violence.

Alcohol is the (illegal) drug ofchoice of youth in this country. According to State and Federal
surveys, alcohol is overwhelmingly and consistently the most widely used drug at all adolescent
age levels. Most people start drinking during early adolescence, and the earlier a child begins
alcohol use, the earlier he or she will exhibit problem behavior and become a heavy ^cohol-user
as an adult.

There is-a high correlation between adolescent alcohol consumption and crime, suicide, drowning
truancy, and driving under the influence. According to a USDHHA national survey, 28% ofhighschool seniors and 44% ofcollege situdents reported binge drinking (5+ drinks for men 4+ drinks
for women)as recently as two weeks before being surveyed. Researchers have described alcohol
as a "gateway drug:" Adolescent drinkers are more likely than non-drinkers to use illegal drugs
such as cocaine and heroin. Studies show that adults who were adolescent drinkers are six times
more likely to be regular cocaine users that adults who did not drink as adolescents.

The costs associated with alcohol use are enormous. As a result, reducing alcohol-related
■problems is a high priority of many communities throughout the United States. However,
traditional programs that have focused on educating young people about the risks of alcohol and
persuading them through deterrence, mass media, and other strategies to reduce or Piliminatp
alcohol use have had limited impact. These strategies, which have focused on individuals'

behaviors, typic^y have not incorporated broader, community-based strategies. The absence of
this connection limits opportunities for individual-based strategies to be successful.

The following policy recommendations are intended to contribute to an environmental approach
to the prevention of alcohol-related problems. Environmental-based prevention strategies
recognize that alcohol-related problems are the result of a complex interaction of individuals and

the environment within which they live. Through policy reform environmental prevention
strategies seek to change community norms, stmidards, and practices concerning alcohol.

These recommendations encourage the County to take the lead role to develop policies under its
jurisdiction. They also provide a mechanism to coordinate the training and education of countywide stakeholders to develop and implement proven strategies to reduce the incidence and
prevalence of alcohol problems.

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POLICY RECOMMENDATIONS
* Billboards

Billboard advertising is an issue ofgrowing concern to communities across America for the
following reasons;

Studies have shown that alcohol beverage advertising has a profound influence on creating
favorable attitudes about alcohol among youth.

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* These promotions subject-including our children-to involuntary and unavoidable forms of
solicitation.

Alcoholic beverages are heavily advertised. The alcohol beverage industry spends more than
$93 million annually for outdoor advertising.

* Childreii are often exposed to billboards advertising alcohol while walkiiig to school or playing
in their neighborhoods, and there is no practical way for parents to monitor or limit their exposure
to these public advertisements.

The proposed ordinance regulating outdoor advertising is a reasonable and necessary means to
protect and promote the heath, safety, and general welfare ofyouth in Santa Clara County.
What we can do now

We recommend that the County Board ofSupervisors develop and implement a County-Wide

policy to regulate outdoor (i.e., billboard) alcohol advertisements situated on County^repertyr^ LAAI
The Board could direct County Counsel to convene a broad-based constituency ofinterested
individuals to use a model ordinance specifically designed to regulate billboards ^d other forms
of outdoor alcohol advertisements.
With coordination and resources

The Board could direct County Counsel to coordinate the trmning and education of all municipal
planning departments and other interested community constituencies in Santa Clara County to use
this model to regulate all outdoor alcohol advertisements.

* Responsible Beverage Service(RBS)

We recognize that selling and serving ofalcohol is a legitimate activity and that the County seeks
to encourage safe and responsible alcohol practices in an environment which fosters the health and
safety ofour community.

Historically, many oflF-sale and on-sale alcohol establishments have required increased levels of

service fi-om law enforcement agencies, resulting from alcohol- related problems such as public
disturbances, physical altercations, drunkenness and drunk driving, drug use, loitering, public

nudity, and underage drinking.
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This recommendation is intended to promote a healthy business enviromrient by establishing
consistent standards for the safe operation of retail alcohol outlets to prevent alcohol-related
problems.
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What we can do now

We recommend that the county Bo^d of Supervisors direct County Counsel to establish Countywide policy to require both oh-site drinking establishments ^d retail dcohol outlets (e.g.,
convenience stores, supermarkets, liquor stores, restaurants ect. ) to estaiblish responsible-server,
■ policies and to train all employees in responsible beverage service techniques. This policy would

apply to all unincorporated County property, the SCC Fair, and activities sanctioned by the
coimty such as festivals or street fairs.
With coordination and resources

The Board of Supervisors could direct County Counsel to coordinate the training and education
of all municipal planning departments in Santa Clara County to develop their own specific RBS
ordinances.

* Zoning Ordinances
Conditional Use Permit (CUP) Ordinances

Public-health research has demonstrated that the more alcohol is available, the more people drink;
and that when people drink more, they create more alcohol-related problems. There is evidence
that alcohol availability can negatively affect community norms and behavior. We are more aware
that alcohol is a dangerous drug and are now using strategies to reduce alcohol availability where
there are public health and safety concerns.

When Alcohol Beverage Control (ABC) systems were established in 1933, each state defined

local power and authority over liquor licensing. Currently, California's licensing system relies
primarily on State authority. However, there is an exception to the strong ABC powers in
Califdmia which provides bona fide opportunities for local action. Under the California Business

& Professional Code # 23790, the ABC may not issue a liquor license if it violates an existing
local zoning ordinance. City and county governments have the constitutional authority to regulate
land use to protect the health, welfare, and safety of citizens. Active zoning laws for retail alcohol
business are generally called Conditional Use Permit (CUP) Ordinances arid are used to give the
surroimding community extra security before a potential license is granted.
What we can do now

We recommend that the County Board of Supervisors direct County Counsel to review its
existing commercial- zoning district ordinances (CUP) for licensed alcohol establishmerits on

unincorporated County property (both on-sale and off-sale premises). This review will consider
the general provisions presently in place to determine if they are weak or out dated. The County
can establish the strongest possible active-review process to guard against over concentration or
undue concentration of outlets.

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With coordination and resources

The County Board of Supervisors could direct County Counsel to coordinate the training and
education of all municipal planning departments in Santa Clara County in the use of model
ordinances such as the CXJP or the City of Oakl^ds'"Deemed Approved" ordinance to develop
ordinances that meet their specific needs.
* Sponsorship

As alcohol sales have declined, the alcohol industry has turned to the mechanism oftargeting
specific populations to ensure their bottom line—higher profits. "Targeted marketing" involves the
development and strategic placement,ofihessages designed to reach a specific population such as
yOuth, Latinos, Afiican Americans," women, etc. The alcohol industry is effective at what they do.
and have mastered the development ofimages and slogans to promote their products.

The alcohol industry would like to associate their products with everyones identity. By wearing a
logo t-shirt, a baseball cap, or countless other promotional items, they send a message: power,
speed, skill, and joy will be yours if you use their products.
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Concerts, county and community fairs. Cultural, and artistic events present sponsorship
opportunities to the alcohol industry which allow them to expose young people to alcohol

advertising and promotion. Although the industry insists that its intention is to target legal
drinkers, large numbers ofthose who attend these events are under 21. Furthermore, alcohol

consumption and intoxication has been related to violence at festivals sponsored by the alcohol
industry.
What we can do now

We recommend that the County Board of Supervisors establish a County-wide policy to prohibit
alcohol sponsorship at the County Fair; on all other County owned property; and at all Countysponsored events. This policy should include provisions to prohibit the distribution of promotional
items and.the prohibition ofbrand name associated with the events.
With coordination and resources

The County Board of Supervisors could direct County Counsel to coordinate the training and
education of all special-eyent sponsors, municipal planning departments, and other interested
community constituencies in Santa Clara County to develop their own promotional and
sponsorship policies and training; and to provide technical assistance on the availability of
alternative sponsorships.
* Advertising

Regulating storerwindow advertising of alcohol products
Advertisements for alcohol products saturate our environment. These displays bombard everyone
passing by. This problem is more prevalent in less affluent ethnic communities. A study has shown
there are five times more advertisements in Latino Communities.

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Advertising has been shown to influence youth's perception ofthe acceptability and desirability of
alcoholic beverages. Constraining alcohol advertising is a regulatory alternative that is gaining
increasing attention today. However, Santa Clara County has a strong ordinance with a low
priority on enforcement.
What we can do now

We recommend that the County Board of Supervisors enforce its existing policy which regulates
window signs on all on-and ofF-site dcohol establishments on unincorporated County property, to
restrict permanent and temporary signs to a maximum of10% of window coverage or ICQ square
feet(which ever is the lowest amount).
With coordination and resources

The County Board of Supervisors could direct County Counsel to coordinate the training and
education of all municipal planning departments to amend their sign ordinances in accordance
with County standards. The Board could also direct the coordination of a County-wide lawenforcement effort to enforce these policies..

Alcohol Taxes

Most states, including California, do not permit local jurisdictions to impose alcohol taxes; this
authority resides with the state! However, rese^ch has shown that raising taxes on alcohol is the
single most effective strategy for decreasing alcohol-related problems among young people.
Various studies have established that increases in price reduce drinking— particularly among youth
because, this group is more sensitive to beverage prices. One study showed that raising the cost of
beer by 10 cents decreases consumption as much as raising the drinking age by one year.
The following recommendation is consistent with the 1990 Santa Clara County Board of
Supervisors' position on supporting proposition 134(the Alcohol Tax Initiative).
What we can do now

We recommend that the County Board of Supervisors adopt a formal position to reform alcohol
tax policy at the State and Federal level. This policy would:
* Adjust beer and distilled-spirit taxes for past inflation

Failure to maintain the real value ofalcohol taxes is one reason why alcohol prices have been
dropping steadily.

* Index alcohol prices to the consumer price index

This will eliminate the erosive impact offuture inflation so that alcohol taxes increase each year at
the same rate as inflation.

* Equalize taxes across beverages by alcohol content

Taxes on distilled spirits are substantially higher than taxes on beer and wine, even though beer
and wine pose similar dangers to public health and safety.

With coordination and resources

The County Board ofSupervisors could direct staffto support alcohol-tax policy reforms
throughout the County and direct staffto coordinate the training and education of all
municipalities in Santa Clara County on alcohol-tax policy reform.

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* Supporting the enforcement of existing pro-health and safety laws

The alcohol industry has succeeded in protecting its economic interests, despite the adverse
impact ofits products on public health and widespread public support for alcohol policy reform.
This powerful and iirfluential industry consistently challenges and erodes existing alcohol policies
designed to protect health and safety. Yet, the strength ofcommunities and their elected

representatives lies in their commitment to fundamental societal change. Government plays a
critical rOle in alcohol policy and its decisions have profound implications for the prevention of
alcohol-related problems.
What we can do now

We recommend that the County Board of Supervisors adopt a formal position to challenge
alcohol industry legislative efforts designed to erode existing laws that protect the health and
safety ofcounty residents.
With coordination and additional resources

The County Board of Supervisors could direct County Counsel to Coordinate the training and
education ofgovernmental and other interested community constituencies to support and
advocate for stricter enforcement of existing alcohol and other drug policies which protect public
health and safety.

* Increased funding for prevention and early intervention
Prevention seeks to address a problem before it begins and looks at all the factors which affect

those who use alcohol and other drugs. Alcohol and other drug problems impose not only
fin^cial costs to society but, more importantly, cause real pain and suffering among those
afflicted. Youth often suffer particularly serious consequences because alcohol and other drugs
prevent them from reaching their intellectual, social, and emotional potential. Identi^g alcohol
and other drug problems among youth and making resources available to meet their needs must be
made a high priority.
What we can do now

We recommend that the County Board of Supervisors adopt a formal position to prioritize the
^ding of proven and promising prevention and early intervention strategies to reduce the
incidence and prevalence ofalcohol and other drug-related problems in Santa Clara County.
With coordination and additional resources

The County Board of Supervisors could direct advocacy efforts at the State and national level to
request for additional funding for alcohol and other drug prevention efforts.

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