ERIC ED440168: Lessons from the Field: Profiling City Alcohol, Tobacco & Other Drug Problems.

43 Pages·1999·1.3 MB·English

by  ERIC

DOCUMENT RESUME
UD 033 458
ED 440 168
Lessons from the Field: Profiling City Alcohol, Tobacco &
TITLE
Other Drug Problems.
Drug Strategies, Washington, DC.
INSTITUTION
Robert Wood Johnson Foundation, Princeton, NJ.
SPONS AGENCY
1999-00-00
PUB DATE
NOTE
41p.
Drug Strategies, 1575 Eye St., NW, Suite 210, Washington, DC
AVAILABLE FROM
20005. Tel: [phone]. For full text:
http://www.drugstrategies.org/citylessons/index.html.
Non-Classroom (055)
Guides
PUB TYPE
MF01/PCO2 Plus Postage.
EDRS PRICE
*Alcohol Abuse; Drinking; *Drug Abuse; *Evaluation Methods;
DESCRIPTORS
*Measurement Techniques; Profiles; Smoking; *Tobacco; *Urban
Areas
ABSTRACT
This document is a guide to producing city profiles of
alcohol, tobacco, and other drug problems. Adequate data are necessary to
design interventions and local drug strategies tailored to the area, and
profiles meet this need. Although each city is unique, the steps required to
produce a profile are predictable. The guide describes five essential phases
for producing city profiles of alcohol, tobacco, and other drugs. It connects
the goals for each project phase to specific steps, including key decisions,
(1) getting
challenges, and strategies related to each goal. The phases are:
(4), producing the
(3) investigating programs;
(2) gathering data;
started;
report; and (5) looking ahead. The guide also contains examples of standard
forms that Drug Strategies has found useful in conducting profile research.
(Contains 51 references.)
(SLD)
Reproductions supplied by EDRS are the best that can be made
from the original document.
r
A
U.S. DEPARTMENT OF EDUCATION
Office of Educational Research and Improvement
PERMISSION TO REPRODUCE AND
/
EDUCATIONAL RESOURCES INFORMATION
DISSEMINATE THIS MATERIAL HAS
CENTER (ERIC)
BEEN GRANTED BY
This document has been reproduced as
received from the person or organization
originating it.
ROWjAA
nil.
Minor changes have been made to
improve reproduction quality.
Points of view or opinions stated in this
TO THE EDUCATIONAL RESOURCES
document do not necessarily represent
INFORMATION CENTER (ERIC)
official OERI position or policy.
1
0
'THE FHEL1
D)
L1hNG C
00
BACC
O
MS
CDTHER) TD)RIDS FMCD'aL,
2
Lessons from the Field, prepared
by Drug Strategies, was made
possible by a grant from the
Robert Wood Johnson Foundation.
Drug Strategies is supported by grants from:
Abell Foundation
Bonderman Family Foundation
Carnegie Corporation of New York
Annie E. Casey Foundation
Edna McConnell Clark Foundation
Fannie Mae Foundation
William T. Grant Foundation
Miriam & Peter Haas Fund
Robert Wood Johnson Foundation
Henry J. Kaiser Family Foundation
Kansas Health Foundation
Joseph P. Kennedy, Jr. Foundation
John S. & James L. Knight Foundation
John D. & Catherine T. MacArthur Foundation
Open Society Institute
Spencer Foundation
STAR Alliance for Drug-Free Youth
TA LE OF C e NTEIrqTS
Introduction
I.
1
II.
Why Prepare a City Profile on Drug Abuse?
2
III.
Getting Started
4
Gathering Data
IV.
14
Investigating Promising Programs
28
V.
VI.
Producing the Report
32
VII.
Looking Ahead
35
Bibliography
36
3
GTV i,CDID)U,OgLu-'0C,G9
o
have
In recent years, private and public groups
abuse
Although alcohol, tobacco and other drug
drug-related
developed fundamental tools for studying
effects are
problems are of national importance, the
by the
data at the local level, including seminal guides
substance abuse
felt most keenly at the local level, where
and Join
Brandeis University Institute for Health Policy
and whole
damages individuals, families, neighborhoods
Abuse
Together and by the National Institute on Drug
reduce sub-
communities. As American cities struggle to
efforts to
(NIDA). These documents have simplified
its related harmsfrom
stance abuse and ameliorate
the
study alcohol, tobacco and other drug indicators at
HIV/AIDS
child abuse and neglect to transmission of
problems by
local level, capturing the complexity of the
the local nature of drug use
new research confirming
disciplines.
incorporating data from a wide range of
that
trends and a prevailing philosophy of government
putting
favors locally-devised approaches are increasingly
"profiles" of
Since 1995, Drug Strategies has published
policies in the spot-
city leaders and their drug control
alcohol, tobacco and other drug problems in seven states
by the National
light. During the 1990s, data collected
independent
and three cities. These studies provide an
in
Institute of Justice (NIJ) on drug use among arrestees
of substance abuse
assessment of the nature and extent
the country revealed sharp differ-
numerous cities across
rel-
and the effectiveness of local responses, pointing out
time. Effective local respons-
ences by location and over
society, health
evant trends in drug use, crime, cost to
concludes, must be informed by a clear-
es to drugs, NIJ
policy and health status. The profiles have broken new
circumstances of each region, state,
er appreciation of the
ground in agency collaboration, produced important
The importance of
county and city in the country.
media
policy recommendations and received significant
research
tracking local trends is already shaping major
attention.
efforts, including the National Household Survey on
state-by-
Drug Abuse, whose 1999 results will include
Tobacco and
Lessons from the Field: Profiling City Alcohol,
state estimates for the first time.
Other Drug Problems is a step-by-step guide based on
made
Drug Strategies' own experience. This project was
identifying
At the same time, leaders of diverse cities are
possible by a grant from the Robert Wood Johnson
and challenges that they face in
some common themes
Foundation. In preparing Lessons from the Field, Drug
confronting drug abuse. At its annual conference in
draft of the
Strategies consulted numerous experts, and a
adopted reso-
June 1999, the U.S. Conference of Mayors
distinguished individuals list-
report was reviewed by the
medical
lutions calling for full funding of AIDS-related
grateful for
ed on the inside back cover. While we are
substance abuse treatment services
care; full parity for
solely
their insight and wisdom, Drug Strategies is
under health insurance plans; earmarking treatment
responsible for the content of this report.
drug
funds to expand city programs; providing adequate
and establishing effective drug
treatment in state prisons;
of Mayors is also calling for the
courts. The Conference
and
establishment of State Substance Abuse Prevention
lead-
Treatment Planning Councils that would give city
coordinating state substance
ers a seat at the table in
abuse services.
4
LESSONS FROM THE FIELD
trag
C z
@llTY7
AsusE?
CD1M DRUG
A NATIONAL PROBLEM, BUT LOCAL IMPACTS
THE URBAN-SUBURBAN DIVIDE.
The
Drug abuse is a nationwide problem. Alcohol, tobacco
contemporary United States is the product of
and other drugs cost Americans
decades of public policies promoting suburban
an estimated $400 bil-
prosper-
ity at the expense of the central city. Shrinking
lion a year in health care, welfare, crime, automobile
core
accidents and lost productivity. The
cities, economically and politically weakened,
consequences of
are sur-
drug abuse, however, are felt
rounded by comparatively affluentand politically
most acutely in individual
neighborhoods, and policy
potentindependent suburbs. Strapped for
responses play out in local
resources,
settings that vary enormously.
the cities nevertheless bear the brunt of social
burdens in
their metropolitan regions. Washington, D.C., for
example, is home to just 10
LOCATION MATTERS.
percent of the Washington
Drug popularity varies substan-
tially across the country. For example, beginning
metropolitan area's population, but
accounts for about
in
1990, cocaine use declined rapidly
two-thirds of the region's expenditures for social
among arrestees in
services
Washington, D.C., plateaued
such as Medicaid, housing assistance, and drug
at a high rate in Atlanta,
abuse
treatment.
and rose gradually in Denver. In Omaha and
San
Antonio, however, cocaine use has
never become a signif-
icant epidemic. In many
The greater reliance on public
western cities methampheta-
programs in cities (as
mine use has steadily increased
opposed to purchasing services with private
among arrestees since
resources or
1990, while eastern and southern cities register
through private insurance coverage) feeds the
very little
misconcep-
methamphetamine use.
tion that drug abuse is essentially
an inner-city, minority
problem confined to people
on the margins of society.
In fact, the 1998 National Household Survey
STATES CAN SET THE TONE.
on Drug
States have broad dis-
cretion in setting and implementing policy. The
Abuse found virtually no difference between
wide
metropoli-
tan and non-metropolitan areas with respect to
range of penalties for drug offenses is a case in point.
past
While cocaine use trends
month cocaine use and past month heavy alcohol
may have been similar in
use.
Omaha and San Antonio, their
Nor is alcohol and other drug abuse relegated
state drug laws differ sig-
to an
nificantly. In Nebraska, cocaine possession carries
"underclass" of impoverished, unemployed Americans.
a
maximum penalty of five
Although those who are unemployed have higher
years in prison, while in Texas
rates of
the same offense could bring
heavy smoking, drinking and illicit drug
a life sentence.
use, most
Americans who smoke heavily, abuse alcohol
or who use
illicit drugs are employed, according
State policies can also diverge widely with
to the National
respect to legal
Household Survey on Drug Abuse. In 1998, for
drugs, as in the arena of excise taxation. Research
exam-
has
ple, 87 percent of the 9.7 million adults in the
shown that raising the price of alcohol and tobacco
labor
force who reported current (past month)
through excise tax increases
use of illicit
can be an effective preven-
drugs held full- or part-time employment. With
tion strategy, especially with
respect to youth, who are
respect
to current heavy alcohol use, the 1998 survey findings
more sensitive to price increases. But excise tax
rates
are even more pronounced: 92 percent of 10.3 million
vary considerably by stateand therefore by city
as well.
heavy drinking adults in the labor force
For example, a six-pack of beer sold in Honolulu
were working,
is sub-
meaning that for every heavy drinker without
ject to Hawaii's excise tax of 52(t; the
a job,
same beer sold in
there are a dozen heavy drinkers who
St. Louis, Missouri (home of Anheuser-Busch)
are employed.
would be
subject to only 3,:t in state excise taxation. And
a pack of
SIMILAR PROBLEMS, UNIQUE CITIES
cigarettes sold in Detroit is subject
to Michigan's excise
tax of 75tt, compared to only 2.5ct per pack in
Cities differ from their suburban neighbors, and
can also
Richmond, Virginia (home of Phillip Morris).
Clearly,
find themselves in widely divergent
contexts, depending
even cities that may otherwise seem very similar
may face
on the political culture of their states and the state laws
quite different situations in confronting substance
that are brought to bear. Perhaps
abuse,
most important, cities
depending on the policies adopted by their
also differ remarkably from
states.
one another, each with its
own particular history and spirit. In the words of
Kenneth T. Jackson, a leading historian of American
5
DRUG STRATEGIES
exactly
An important caveat: because no two cities are
intelli-
cities: "Unlike the mass-produced suburbs, no
alike, no single set of guidelines will apply in all cases.
Baltimore for Chicago,
gent observer could mistake
The goal, rather, is to establish a framework for asking
Minneapolis for Milwaukee, Los Angeles for Houston,
the right questions, even though the answers are bound
The old downtown can give
or Portland for Memphis.
to differ.
metropolitan residents, including suburbanites, a sense of
place, a sense of uniqueness, and a sense of belonging."
GUIDE TO THE GUIDE
A
Clearly, national and even state-level data are inadequate
profiles
Lessons from the Field is a guide to producing city
required to shape local
to capture the crucial distinctions
of alcohol, tobacco and other drug problems. Each
drug strategies. Strategies well-suited to a certain city at
cityand therefore each profileis unique, reflecting
effective in other locales or at
a certain time may be less
local trends, policies and programs, power structures,
other phases of a drug's popularity. Also, success in one
funding streams and agency priorities. Nonetheless,
alleviate the need for
aspect of drug control may not
the steps required to produce a profile are predictable.
emphasis in other areas. For example, the decline in
chal-
Lessons from the Field anticipates the decisions and
cities since the early
new, young crack users in many
lenges faced at each phase of the profile process. The
1990s does not change the fact that numerous older
guide also offers strategies for increasing the likelihood
addicted; they need drug
users have already become
that legislators, officials and the public will embrace the
treatment, not prevention programs.
profile and its recommendations.
MEETING THE NEED:
This guide describes five essential
PROJECT PHASES.
phases for producing city profiles of alcohol, tobacco and
HOW-TO GUIDE FOR CITIES
A
other drugs. It connects the goals for each project phase
trends
In recognition of the need to illuminate local drug
decisions, challenges and
to specific steps, including key
and to fashion responses suited to local realities, Drug
strategies related to each goal.
Strategies produced Lessons from the Field: Profiling City
Alcohol, Tobacco and Other Drug Problems. City profiles
with
For each project phase, the guide provides a task list
help catalyze government
are valuable because they can
specific goals. This method can be applied in any city.
and community action against drug abuse; provide a
However, the challenges will be unique in each location;
blueprint for specific policies and initiatives; and serve as
it is not possible to anticipate all potential obstacles.
policy changes
report card or baseline for monitoring
Rather, based on past profile work, each chapter provides
and drug abuse trends. The guidance offered in Lessons
examples of challenges faced to help researchers identify
from the Field reflects Drug Strategies' experience in pro-
solutions to difficulties that may arise.
ducing three city profiles (Washington, D.C., Detroit,
P ROJ E C7 PHASES
and Santa Barbara) and seven state profiles, but also
draws on the expertise of those who have prepared pro-
files in other cities. Five years of city and state profile
work has allowed Drug Strategies to develop and to test
examples from profile
a reliable methodology. Using
projects in different cities, the goals of this guide are to:
Do. promote data-driven analysis of alcohol, tobacco and
other drug problems;
facilitate inter-agency collaboration in assessing and
responding to these problems;
The guide also includes examples of standard forms that
establish a standard methodology for profiling cities
00.
Drug Strategies has found useful in conducting profile
which is accessible to public and private institutions
research. Some researchers may want to replicate these
and partnerships; and
forms, while others may choose to modify them or to
0 describe methodological challenges and responsive
reject them altogether.
strategies.
0
6
LESSONS FROM THE FIELD
0 0 O.
I)
ecisions made at the start of the profile
process
THE COMPREHENSIVE APPROACH.
More
affect the scope of the research, the level of
cooper-
ambitiously, the objective of the profile project
may be
ation among participating agencies, and the effectiveness
to offer data-driven policy and program recommenda-
of the final product. The goals of this project phase
tions. Such recommendations will need
to flow from the
include: establishing objectives; securing funding; desig-
profile's findings on local drug trends and the
status of
nating project control; choosing advisors; and selecting
current programs in various fields, including prevention,
indicators.
treatment, and law enforcement. Drug Strategies' city
profiles are built with policy recommendations in mind;
ESTABLISHING OBJECTIVES
each report concludes with a section called "Looking
to
the Future" that is intended to
A profile's sponsor may have
serve as a blueprint for
any one of numerous objec-
change. Depending on the issue, recommendations
tives in mind, depending on the city, the
may
scope of its
be fairly general or quite specific, and
drug problems, the degree of local
meant to be
awareness and the
accomplished quickly or in the longer
term. They can
range of current responses. In general, a profile can be
touch on many areas, including availability and alloca-
produced in order to raise local
awareness about alcohol,
tion of funds; legislation and policies;
tobacco and other drug issues,
agency structure
or, more ambitiously, in
and objectives; direction of public and private initiatives;
order to propose specific policy and
program reforms.
inter-agency communication and collaboration; and
The decision as to which type of objective is
more
public-private partnerships.
appropriate for any given city will influence which of
two basic profiles types to produce: an indicator-only
Where Drug Strategies' concluding recommendations
report, or a more comprehensive report that includes
center on public policy, other profiles include recom-
analysis of local programs and policies and offers specific
policy recommendations.
mendations for individual as well
as community action.
Mission New Hope's 1994 Community Focus
on Drugs:
A Picture of Substance Abuse in Metro Atlanta culminates
THE INDICATOR-ONLY APPROACH.
In cities which
in a "Focus on Action" offering a checklist of individual
have never undertaken a broad
survey of alcohol, tobac-
actions to be taken in various realms, such
co and other drug problems, simply gathering the rele-
as business,
family and school.
vant data is an important objective. Presenting the data
clearly and in a single report
can help raise public aware-
The decision to include recommendations will require
ness and foster local action. The data can also serve as a
gathering qualitative data to help interpret trends
baseline against which to
measure progress in the follow-
revealed by quantitative data. Through interviews with
ing years. For example, the Regional Drug Initiative
all the relevant players (e.g.,
(RDI) in Portland, Oregon publishes
government agency officials,
an annual Drug
Impact Index that highlights county and
researchers, service providers, and advocates) the idea is
state trend data
for a dozen indicators. RDI's annual
to capture and make sense of the range of opinions
report has been
used as a model by many other drug prevention
about local problems and the strategies
to address them.
groups
To be both achievable and significant, policy
across the country, including Arlington, Texas; Decatur,
recommen-
dations must be grounded in a strong understanding of
Illinois; and Ventura County, California. The
success of
RDI's Index owes to its clarity of
the local terrain; otherwise, they risk being either unreal-
purpose, to provide
istically ambitious or unhelpfully timid.
"the reader with a sense of the severity and breadth of
the local drug problem. It gives
a general assessment of
the problem. It is not a technical
WEIGHING THE ADVANTAGES.
Comprehensive pro-
measurement or evalu-
files require considerable time and research, and
ation device." In recent years, RDI has complemented
are
therefore unlikely to be replicable
its presentation of indicators with advice
on an annual basis,
on who to con-
which is a great advantage of the indicator-only profile.
tact for more information and on what individuals
can
do, as well as with quotes
A third option represents a compromise between the
or brief narratives that under-
indicator-only and comprehensive approaches: conduct
score the significance of the indicator presented.
in-depth analysis of a select few indicators, probably all
DRUG STRATEGIES
Should the profile focus on the city or cover the
underage
1.
in one field (e.g., drug abuse and HIV/AIDS;
entire county or metropolitan area?
alcohol, tobacco and other drug use; courts and correc-
each
The answer will depend on several factors unique to
indi-
tions). Such a strategy, however, sacrifices both the
suffi-
situation. If a given city is sufficiently large and
cator-only profile's advantage of publicizing a wide range
charac-
ciently distinct in its socioeconomic and political
of indicators and the comprehensive profile's advantage
focus
teristics from its surrounding suburbs, a detailed
of drawing connections between different aspects of a
order. To provide the same
on the city itself may be in
city's drug problems. An excessively narrow focus on
that
level of attention across the various jurisdictions
certain indicators cannot paint the broad picture that
comprise the metropolitan area could expand the scope
tapped. For the
emerges when different data sources are
of the project considerably, while distracting from the
University of Maryland's Peter Reuter, "The truth ... is
intended focus. However well justified, a decision to
that each measure has certain strengths and limitations,
focus only on the city runs the risk of perpetuating the
each reveals different aspects of drug use, and policymak-
popular misconception that drug abuse is a uniquely
several indicators can
ers who integrate data from the
and in
urban problem of no great concern in the suburbs
drug use and
weave a consistent tale of American
introduc-
rural areas. To avoid this problem, the profile's
changes over time."
that justify report-
tory section can spell out the reasons
focus is in
ing only on the city, while noting that such a
The impact of an indicator-only effort should not be
that drug abuse is not an impor-
no way meant to imply
underestimated. Alcohol, tobacco and other drugs are
chosen to focus on
tant issue beyond city lines. Having
often considered separately, both by government agencies
realize that policies affecting
a city, it is also important to
and by concerned private groups. Such a wide scope of
the city's response to drug problems may be decided at
but
issues can be difficult to capture and explain briefly,
the county level rather than by the city government. In
doing so can bring a new level of focus, energy and col-
that case, taking such county initiatives into account
laboration to local efforts. Moreover, the absence of
would make sense, even if the profile's focus is to remain
explicit policy recommendations does not mean that
on the city itself.
indicator-only profiles cannot affect policy. The power
of indicators to focus community attention can set the
Alternatively, one may want to emphasize that alcohol,
policies that may not
stage for an examination of public
tobacco and other drug problems are not confined to a
happen otherwise. Finally, an indicator-only profile may
metropolitan area's main city, and that policy coordina-
toward a comprehen-
represent the important first step
The
tion among the area's several jurisdictions is critical.
sive profile, or serve as the baseline for future reports that
wider metropolitan area would then be the appropriate
will monitor the same indicators. The first report will be
subject of the profile. Mission New Hope's 1994
the most labor intensive: once procedures for informa-
of
Community Focus on Drugs reported on the impact
tion gathering and report production are in place, subse-
drugs throughout Atlanta's 11-county metropolitan area
chosen set of indica-
quent profiles can follow up on the
and stated explicitly that drug problems were not limited
decadeand eventu-
torsas RDI has been doing for a
suburban and rural counties as
to urban areas but affect
ally complement the annual indicator-only report with
well. Similarly, Drug Strategies' Santa Barbara Profile
analysis and recommendations in a comprehensive report
of Santa Barbara County
encompasses the southern half
produced every three or four years.
(South County) rather than just the main city itself.
Regardless of which type of profile
KEY QUESTIONS.
be com-
As a practical matter, the preferred focus may
is chosen, several key questions will need to be consid-
promised by a lack of available data, especially at the city
ered at the outset. Answers will vary by city, but some
level. Data that exist at the state, county or metropolitan
general suggestions can be kept in mind as the profile
available for the city. For example,
area level may not be
discussed below
process unfolds. All six of the questions
the federal Substance Abuse and Mental Health Services
profiles; for indicator-only
are relevant to comprehensive
Administration (SAMHSA) has published drug use
profiles, questions one, two and six will apply.
prevalence estimates for 25 metropolitan areas based on
8
LESSONS FROM THE FIELD
the 1991-1993 National Household Surveys.
However,
2.
Who are the target audiences for the report?
the report does not include
separate estimates for the
The target audiences should include concerned
city resi-
central cities within each metropolitan statistical
area
dents and all those with authority
to shape local alcohol,
(MSA), as defined by the U.S. Census Bureau.
When a
tobacco and other drug policies. This obviously includes
city accounts for only a small fraction of the population
the mayor, city council, board of education and
private
of its surrounding
county or metropolitan area, relying
school leaders, elected neighborhood
representatives, city
on data from the wider area to describe the city is prob-
government agencies, and non-governmental service and
lematic. Baltimore and St. Louis, for instance,
account-
advocacy organizations,
as well as local foundations and
ed for only 30 percent and 16
percent, respectively, of
other fenders, business leaders, citizen coalitions
and the
the total MSA populations considered in the
SAMHSA
media. Since state policies affect how cities
respond to
study, and the city of Atlanta comprises only
11 percent
drug problems, the
governor, state legislature, and key
of the population in its MSA. If reliable
city-level data
state agencies should also be targeted. If the profile
cov-
simply do not exist for
many key indicators, the profile's
ers the entire metropolitan area rather than just the city,
focus may have to shift
to the wider metropolitan area or
the leadership in all of the local jurisdictions
should be
county. Indeed, the level of government at which data
targeted, as well as any regional policy coordinating
bod-
are gathered usually corresponds to how funding is dis-
ies. The news media should also be targeted, both for
tributed: if a state provides funds
to counties (or to
the influence of their editorial opinions and their
capaci-
municipalities through counties) then data will probably
ty to reach other, broader audiences.
be gathered at the county level. If this is the
case, a pro-
file at the county level makes
more sense.
The profile should also target members of Congress
and
the relevant federal departments and agencies.
For
A city focus is more appropriate where the city
accounts
example, the federal Office of National Drug Control
for most of a county
or metropolitan area population.
Policy (ONDCP) funds 32 High Intensity
Drug
For example, because Portland, Oregon, is contained
Trafficking Area (HIDTA)
programs to coordinate feder-
entirely within Multnomah County and
accounts for
al, state and local drug control efforts in different
regions
nearly 80 percent of the county population,
county-level
of the country. Moreover, virtually
every school district
data provide a fair description of the city. Most of
the
in the nation receives funding from the
Department of
indicators presented in the Regional Drug
Initiative's
Education's Safe and Drug-Free Schools and
Drug Impact Index are based
on Multnomah County
Communities program. Other important federal
pro-
data. Similarly, El Paso, Texas,
accounts for nearly 90
grams that target local drug problems include the
percent of the total population in its MSA, so MSA data
Department of Health and Human Services' Targeted
will also provide a good picture of the city.
(Consult the
Treatment Capacity Expansion Program; the
U.S. Census Bureau's State and Metropolitan Area
Data
Department of Housing and Urban Development's
Book 1997-98 for information
on cities, counties, and
Public and Indian Housing Drug Elimination
Program;
MSAs nationwide.)
In some cases, the numbers alone
and the Department of Justice's Community
Oriented
are an insufficient guide. Although Detroit is Michigan's
Policing Services (COPS), Byrne Grants Program,
and
largest city, it comprises less than half the population
of
Operation Weed and Seed. Combined, these federal
Wayne County. Drug Strategies decided
to profile the
programs provide more than $1.5 billion annually in
city itselfhome to 1 million peoplerather than
try to
anti-drug funding to state and local
governments.
capture the diversity of the entire county.
Depending on their geographic location
or other special
circumstances, certain cities may have important audi-
ences unique to them. For instance, daily life in El Paso,
Texas, is affected significantly by Mexico's Ciudad
Juarez,
which lies just across the border. The
strong cultural and
commercial ties between these two cities
mean that the
9.
DRUG STRATEGIES
office
spend more time on the streets and less time in the
residents and leaders of Ciudad Juarez would be an
with paperwork.
tobacco and
important audience for a profile on alcohol,
other drugs in El Paso. Similarly, the entire U.S.
Which public perceptions and priorities will the
4.
Congress is an important audience for Drug Strategies'
profile aim to change?
Facing Facts: Drugs and the Future of Washington, D.C.
already well
It may not become clear until the profile is
for
This is because Congress has ultimate responsibility
under way which perceptions and priorities merit the
governing the nation's capital, in effect serving as
considerably depend-
most attention, and these may vary
local legislature for Washington,
a combined state and
Still, two broad possibilities can be kept
ing on locale.
D.C.
in mind. First, be prepared to find intense local concern
problems, even if politi-
over alcohol and tobacco-related
Which funding streams, agencies and
3.
cal and media attention has been concentrated on illicit
programs will be examined?
drugs. The legal status of the alcohol and tobacco indus-
have a
Because alcohol, tobacco and other drug problems
tries, combined with their economic muscle, lobbying
wide impact, numerous public agencies are involved,
and public relations efforts, can deflect public attention
including those responsible for health, education, alcohol
from local alcohol and tobacco-related problems, espe-
and tobacco sales licensing, law enforcement, and crimi-
cially when illicit drugs dominate the news. For exam-
nal justice. A city's health department alone may be
ple, crack cocaine and related crime have shaped national
responding to drug abuse on several fronts: prevention
perceptions of Washington, D.C., but local experts cau-
and treatment programs; HIV/AIDS testing and coun-
tioned against overlooking the considerable harm caused
seling; tobacco control; maternal and newborn health;
Strategies'
in the District by alcohol and tobacco. Drug
also
and drug use prevalence surveys. Drug abuse issues
Detroit and Santa Barbara advisors echoed this concern,
affect the work of local agencies responsible for foster
and all three profiles devote significant attention to alco-
public housing, homelessness,
care, job training, welfare,
hol and tobacco issues.
mental health, and recreation. Certain functions may be
handled at the county rather than the city level. In
Second, be prepared to place criminal justice approaches
Detroit, for example, arrestees are held in Wayne County
that
to drug abuse into a broader community context
jails, and the provision of drug abuse treatment for jail
emphasizes the need for effective prevention and treat-
inmates is a county role.
spending on
ment. At every level of government,
enforcement has come to dominate American drug con-
Ideally, agencies will already be collaborating on pro-
trol efforts; at least three-quarters of the roughly $40 bil-
of their different man-
grams in ways that take advantage
lion in annual federal, state and local anti-drug spending
Manhattan's Midtown
dates and areas of expertise.
drug prices are current-
goes into enforcement. Yet illicit
Community Court, for example, provides on-site social
ly near their all-time lows, and police chiefs themselves
services such as counseling, health care, education and
believe that far more should be done in terms of preven-
alcohol or other drug
treatment for defendants with
tion and treatment. A 1996 national survey conducted
problems. Street Outreach Services (SOS), a joint proj-
by Peter D. Hart Research Associates for Drug Strategies
pairs coun-
ect with the New York Police Department,
found that police chiefs by a more than two-to-one mar-
selors from the court with officers on patrol. Together,
gin favor expanding prevention and treatment efforts
SOS teams identify and find treatment for homeless
rather than escalating enforcement (big-city police chiefs
individuals, alcoholics and other drug addicts. Public-
favor enhancing prevention and treatment by a six-to-
private partnerships should also be examined. In Santa
one margin).
Barbara, police bring intoxicated individuals who other-
wise would be charged with disorderly conduct or first-
Research has shown drug prevention and treatment to be
time driving-under-the-influence offenses to a Sobering
cost-effective crime-control measures. The 1994
Center run by a nonprofit organization, Thresholds to
California Drug and Alcohol Treatment Assessment
Recovery. The Sobering Center allows police officers to
10
LESSONS FROM THE FIELD