The Shop on the The Shop on the Corner: How Outlet Corner: How Outlet

Location Affects Location Affects Alcohol ProblemsAlcohol Problems

Bridget Freisthler and Bridget Freisthler and Kathryn StewartKathryn Stewart

Prevention Research CenterPrevention Research CenterUnderage Drinking Enforcement Training Underage Drinking Enforcement Training

CenterCenter6th Annual National Leadership Conference6th Annual National Leadership Conference

August 17-20, 2005August 17-20, 2005

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practical guidancepractical guidance

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Organization of Organization of PresentationPresentation

Why do outlets cause problems?Why do outlets cause problems? Availability TheoryAvailability Theory Social Disorganization TheorySocial Disorganization Theory Routine Activities TheoryRoutine Activities Theory

What problems do outlets cause?What problems do outlets cause? For adultsFor adults For children and underage youthFor children and underage youth

Why alcohol outlets?Why alcohol outlets?

Alcohol AvailabilityAlcohol Availability More alcohol outlets means easier More alcohol outlets means easier

access to alcohol access to alcohol

Easier access to alcohol leads toEasier access to alcohol leads to Increased frequency of drinkingIncreased frequency of drinking Increased amount of alcohol consumedIncreased amount of alcohol consumed

More drinking may lead to more More drinking may lead to more problem behaviors among adultsproblem behaviors among adults

EvidenceEvidence

10% reduction in outlets is 10% reduction in outlets is associated with a 3% reduction in associated with a 3% reduction in alcohol sales alcohol sales (Gruenewald et al, 1993)(Gruenewald et al, 1993)

More restaurant that serve alcohol, More restaurant that serve alcohol, higher frequencies of driving drunk higher frequencies of driving drunk (Gruenewald et al., 2002)(Gruenewald et al., 2002)

More bars, more pedestrian injuries More bars, more pedestrian injuries when pedestrians had been drinking when pedestrians had been drinking (LaScala et al., 2000)(LaScala et al., 2000)

Why alcohol outlets? Why alcohol outlets? (cont.)(cont.)

Social DisorganizationSocial Disorganization Lack collective efficacy, support Lack collective efficacy, support

networks, and participation in local networks, and participation in local organizationsorganizations

Outlets act as independent contributorsOutlets act as independent contributors Along with residential instability, ethnic Along with residential instability, ethnic

heterogeniety, and impoverishmentheterogeniety, and impoverishment

May affect problems directly as a sign of May affect problems directly as a sign of lack of social control (thereby ‘sanctioning’ lack of social control (thereby ‘sanctioning’ bad behaviors)bad behaviors)

EvidenceEvidence

More on-premise outlets, more More on-premise outlets, more assaultive violence in cities assaultive violence in cities (Scribner et (Scribner et al., 1995)al., 1995)

More bars, more severe assaults as More bars, more severe assaults as measured by hospital discharges in measured by hospital discharges in zip codes zip codes (Lipton & Gruenewald, 2002)(Lipton & Gruenewald, 2002)

More on-premise outlets, more More on-premise outlets, more violent crime in neighborhood areas violent crime in neighborhood areas (Gorman et al., 2001)(Gorman et al., 2001)

Why alcohol outlets? Why alcohol outlets? (cont.)(cont.)

Routine ActivitiesRoutine Activities Convergence of suitable target, Convergence of suitable target,

motivated offender, and absence of motivated offender, and absence of effective guardians result in harmeffective guardians result in harm

Outlets may change “routine activities” Outlets may change “routine activities” for buying and consuming alcoholfor buying and consuming alcohol

EvidenceEvidence

On-premise outlets in local, not On-premise outlets in local, not lagged, areas related to violent lagged, areas related to violent crime crime (Gorman et al., 2001)(Gorman et al., 2001)

Type of outlet is differentially related Type of outlet is differentially related to problemsto problems Greater density of restaurants, more Greater density of restaurants, more

drunk drivingdrunk driving Greater density of bars, more violenceGreater density of bars, more violence

Summary for AdultsSummary for Adults

More restaurants that serve alcohol, More restaurants that serve alcohol, frequency of drinking, traffic crashes frequency of drinking, traffic crashes increaseincrease

More bars, higher rates of violence, More bars, higher rates of violence, violent crime, and alcohol-involved violent crime, and alcohol-involved pedestrian injuriespedestrian injuries

No strong evidence that density of No strong evidence that density of off-premise outlets and problems off-premise outlets and problems among adultsamong adults

Why alcohol outlets?Why alcohol outlets?

Alcohol AvailabilityAlcohol Availability More alcohol outlets means easier access More alcohol outlets means easier access

to alcohol to alcohol

Easier access to alcohol leads toEasier access to alcohol leads to Increased frequency of drinkingIncreased frequency of drinking Increased amount of alcohol consumedIncreased amount of alcohol consumed

More drinking may lead toMore drinking may lead to Higher rates of child maltreatment (parents’ Higher rates of child maltreatment (parents’

drinking)drinking) Assaults, accidents, traffic crashes (youth Assaults, accidents, traffic crashes (youth

drinking)drinking)

EvidenceEvidence

At the state level At the state level (Markowitz & Grossman, (Markowitz & Grossman, 1998)1998) Higher alcohol taxes related to lower levels Higher alcohol taxes related to lower levels

of severe physical abuse towards childrenof severe physical abuse towards children Reduction of outlets per 1,000 people Reduction of outlets per 1,000 people

decreased probability of severe violence by decreased probability of severe violence by 4%4%

Higher availability around college Higher availability around college campuses, more heavy drinking, campuses, more heavy drinking, frequent drinking, and alcohol-related frequent drinking, and alcohol-related problems problems (Weitzman et al., 2003)(Weitzman et al., 2003)

Why alcohol outlets? Why alcohol outlets? (cont.)(cont.)

Social DisorganizationSocial Disorganization Outlets as independent contributorsOutlets as independent contributors

May affect maltreatment directly as a sign of May affect maltreatment directly as a sign of lack of social control (thereby ‘sanctioning’ lack of social control (thereby ‘sanctioning’ physically abusive behaviors)physically abusive behaviors)

May affect maltreatment indirectly through May affect maltreatment indirectly through disrupting social ties, networks, and support disrupting social ties, networks, and support (thereby causing neglect)(thereby causing neglect)

Outlets may act as “attractors” of various Outlets may act as “attractors” of various other criminal behaviors (e.g., drug sales)other criminal behaviors (e.g., drug sales)

EvidenceEvidence

At ecological level, alcohol outlet At ecological level, alcohol outlet density independently contributes to density independently contributes to rates of maltreatment rates of maltreatment (Freisthler, 2003)(Freisthler, 2003)

Off-premise outlets related to violent Off-premise outlets related to violent assaults among youth assaults among youth (Alaniz et al.,1998)(Alaniz et al.,1998)

Off-premise outlets related to Off-premise outlets related to injuries from accidents, assaults, and injuries from accidents, assaults, and traffic crashes traffic crashes (Gruenewald et al., (Gruenewald et al., unpublished)unpublished)

Why alcohol outlets? Why alcohol outlets? (cont.)(cont.)

Routine Activities for parental drinkingRoutine Activities for parental drinking Convergence of suitable target (child), Convergence of suitable target (child),

motivated offender (parent or other adult), motivated offender (parent or other adult), and absence of effective guardians and absence of effective guardians (neighbors) result in harm to children(neighbors) result in harm to children

Outlets may change parents “routine Outlets may change parents “routine activities” for buying and consuming activities” for buying and consuming alcoholalcohol

At bars, may increase likelihood of neglect At bars, may increase likelihood of neglect At off-premise outlets, may increase likelihood At off-premise outlets, may increase likelihood

of physical abuseof physical abuse

Why alcohol outlets? Why alcohol outlets? (cont.)(cont.)

Routine Activities for underage Routine Activities for underage youthyouth Outlets may change affect youth Outlets may change affect youth

drinking behaviors or problemsdrinking behaviors or problems Where youth purchase and consume alcoholWhere youth purchase and consume alcohol Likelihood of driving after drinking or riding Likelihood of driving after drinking or riding

with a drunk driving with a drunk driving

EvidenceEvidence

Differential association between Differential association between outlet type and maltreatment type outlet type and maltreatment type (Freisthler et al. 2004)(Freisthler et al. 2004) More bars, more neglectMore bars, more neglect More off-premise outlets, more physical More off-premise outlets, more physical

abuseabuse More bars, lower parental More bars, lower parental

monitoring, and more youth monitoring, and more youth deviance deviance (Freisthler & Byrnes, unpublished)(Freisthler & Byrnes, unpublished)

Evidence (cont.)Evidence (cont.)

Higher total outlet densityHigher total outlet density Increased frequency of driving drunk Increased frequency of driving drunk

for 15 -20 year oldsfor 15 -20 year olds Increased frequency of riding with a Increased frequency of riding with a

drunk driver (especially for females and drunk driver (especially for females and younger adolescents younger adolescents (Treno et al., 2003)(Treno et al., 2003)

Summary for Children and Summary for Children and YouthYouth

Generally more bars, higher rates of Generally more bars, higher rates of child maltreatmentchild maltreatment More bars, more neglectMore bars, more neglect More off-premise outlets, more physical More off-premise outlets, more physical

abuseabuse Outlets, particularly bars, may Outlets, particularly bars, may

reduce parental monitoring reduce parental monitoring behaviors, thus increasing behaviors, thus increasing opportunities to participate in opportunities to participate in deviant behaviorsdeviant behaviors

Summary (cont.)Summary (cont.)

More outlets, more drunk driving and More outlets, more drunk driving and riding with a drunk driver (15 – 20 riding with a drunk driver (15 – 20 years)years)

More off-premise outlets, more injuries More off-premise outlets, more injuries for accidents, assaults, and traffic for accidents, assaults, and traffic crashes among underage youth (18 – crashes among underage youth (18 – 20 years)20 years)

More outlets, increased heavy drinking, More outlets, increased heavy drinking, frequent drinking, and alcohol-related frequent drinking, and alcohol-related problems (college students)problems (college students)

ConclusionsConclusions

Alcohol availability may Alcohol availability may directlydirectly affect affect problems problems (e.g., social disorganization)(e.g., social disorganization)

Alcohol availability may Alcohol availability may indirectlyindirectly affect problems affect problems (e.g., through alcohol use)(e.g., through alcohol use)

Alcohol availability may both Alcohol availability may both directlydirectly (e.g., monitoring and supervision)(e.g., monitoring and supervision) and and indirectlyindirectly (e.g., lack of effective guardians)(e.g., lack of effective guardians) affect problems affect problems

Thus, regardless of how availability is Thus, regardless of how availability is reduced, likely to see problems reduced, likely to see problems decreasedecrease

How Communities How Communities Can Take Charge of Can Take Charge of

Outlet DensityOutlet Density

Outlet density is Outlet density is connected to connected to

alcohol problemsalcohol problemsWhat can we do about What can we do about

it?it?

Problems Created by Outlet Problems Created by Outlet DenistyDenisty

ViolenceViolence

Property crimesProperty crimes

Impaired drivingImpaired driving

Social disorderSocial disorder

Can also effect Can also effect local economylocal economyPart of the reason outlets are Part of the reason outlets are allowed to proliferate is that allowed to proliferate is that local governments want to local governments want to support small businessessupport small businesses

Problems created by Problems created by outlets canoutlets can

Create blightCreate blight Cause people who live nearby to Cause people who live nearby to

avoid area and take business avoid area and take business elsewhereelsewhere

Bring about economic declineBring about economic decline Make area less attractive to new Make area less attractive to new

businessesbusinesses

The ToolsThe Tools

All licensed establishments must conform All licensed establishments must conform to the rules set out by the state and to the rules set out by the state and community. community.

States have different laws and regulations States have different laws and regulations allowing for community control.allowing for community control.

There are ways to work within various There are ways to work within various legal frameworks.legal frameworks.

Liquor licensing powers Liquor licensing powers through state or local through state or local

licensing boards:licensing boards: Rules that set minimum distances Rules that set minimum distances

between alcohol outletsbetween alcohol outlets Limits on new licenses for areas that Limits on new licenses for areas that

already have outlets too close already have outlets too close togethertogether

Not issuing a new license when a Not issuing a new license when a location goes out of businesslocation goes out of business

Permanently close outlets that Permanently close outlets that repeatedly violate liquor laws repeatedly violate liquor laws

Problem:Problem:

State agencies not State agencies not always responsive to always responsive to

local needs.local needs.

Local land use regulations Local land use regulations and zoning and regulatory and zoning and regulatory

powers powers ““Conditional Use Permits”Conditional Use Permits” ““Deemed Approved” OrdinancesDeemed Approved” Ordinances ““Public Convenience or Necessity” Public Convenience or Necessity”

guidelines that minimize the ability of guidelines that minimize the ability of license applicants to overcome local license applicants to overcome local ordinancesordinances

Definition of “Full Service Restaurant” Definition of “Full Service Restaurant” and issuance of cabaret permits that and issuance of cabaret permits that make it difficult for establishments to make it difficult for establishments to evade requirements for stand-alone bars.evade requirements for stand-alone bars.

Local land use regulations Local land use regulations and zoning and regulatory and zoning and regulatory

powers (cont.)powers (cont.) Restrictions on the definition of Restrictions on the definition of

“Entertainment Zones” “Entertainment Zones” Use of “Nuisance Abatement” Use of “Nuisance Abatement”

ordinances ordinances Use of local health codes to control Use of local health codes to control

outlets that also serve food.outlets that also serve food.

Examples of Local Examples of Local ControlControl

CaliforniaCaliforniaA bill to give cities more authority to require liquor A bill to give cities more authority to require liquor stores to comply with city zoning laws. According to stores to comply with city zoning laws. According to The Pasadena Star NewsThe Pasadena Star News, “Under current law, cities , “Under current law, cities or counties can only enforce zoning ordinances that or counties can only enforce zoning ordinances that were present when the liquor license was issued. The were present when the liquor license was issued. The proposed legislation would enable cities to enforce proposed legislation would enable cities to enforce new ordinances and also allow liquor store owners new ordinances and also allow liquor store owners reasonable time to comply with the changes or sell.” reasonable time to comply with the changes or sell.”

ColoradoColoradoA bill would allow local liquor boards to reconsider A bill would allow local liquor boards to reconsider alcohol licenses for problem establishments. This alcohol licenses for problem establishments. This legislation would give communities the ability to go legislation would give communities the ability to go after establishments that “bait and switch”—seeking after establishments that “bait and switch”—seeking liquor licenses as family restaurants, then morphing liquor licenses as family restaurants, then morphing into late-night clubs. into late-night clubs.

California Example: California Example: The Caldera BillThe Caldera Bill

Gives local municipalities control Gives local municipalities control over the number of alcohol outletsover the number of alcohol outlets

If over-saturated, local authorities If over-saturated, local authorities must consider each new applicationmust consider each new application

If high crime rate, must consider If high crime rate, must consider each new applicationeach new application

Must deny application unless there Must deny application unless there is a compelling need.is a compelling need.

ABC must honor local decisionsABC must honor local decisions

Definition of “Public Definition of “Public Convenience or Necessity”Convenience or Necessity”

A way for applicants to get approval A way for applicants to get approval of proposed new licenseof proposed new license

In theory, applies when there is a In theory, applies when there is a compelling need for a new outletcompelling need for a new outlet

Often, granted without real needOften, granted without real need

In PracticeIn Practice

Some localities are oversaturatedSome localities are oversaturated Local governments lean towards Local governments lean towards

approval unless it can be approval unless it can be demonstrated that the license will demonstrated that the license will create problemscreate problems

The burden of proof should be on the The burden of proof should be on the applicant to show the need for applicant to show the need for another outlet or that outlet will another outlet or that outlet will benefit the communitybenefit the community

Sample mandatory criteria Sample mandatory criteria for rejection of applicationfor rejection of application

Area already drawing excessive law Area already drawing excessive law enforcement resourcesenforcement resources

Elevated rates of alcohol-related crime Elevated rates of alcohol-related crime (disturbing the peace, public (disturbing the peace, public intoxication, prostitution, vandalism, intoxication, prostitution, vandalism, graffiti, etc.)graffiti, etc.)

Long term levels of high concentrationLong term levels of high concentration Proximity to schools, churches, parks, Proximity to schools, churches, parks,

residences, etc.residences, etc.

Risk/Benefit Risk/Benefit AnalysisAnalysis

Can be used to judge Can be used to judge applicationsapplications

BenefitsBenefits

Employment gainEmployment gain TaxesTaxes Unique business additionUnique business addition Upgrading an areaUpgrading an area Possible cultural or entertainment Possible cultural or entertainment

valuevalue Long-term economic development Long-term economic development

goalsgoals

RisksRisks Law enforcement calls for serviceLaw enforcement calls for service Ratio of all police calls to alcohol-related callsRatio of all police calls to alcohol-related calls Level of law enforcement capacityLevel of law enforcement capacity Health indicators: alcoholism rates, Health indicators: alcoholism rates,

homelessnesshomelessness Percentage of youth in vicinityPercentage of youth in vicinity Alternative business uses available Alternative business uses available Duplication of existing servicesDuplication of existing services Business operations (percentage of alcohol vs. Business operations (percentage of alcohol vs.

other items, underage staff, late-night sales, other items, underage staff, late-night sales, etc.)etc.)

The Key:The Key:

The burden of proof The burden of proof is on the applicant to is on the applicant to show benefit – not on show benefit – not on

the community to the community to show risk.show risk.

Getting StartedGetting Started Learn how local control works in your stateLearn how local control works in your state

Find out what land-use policies already Find out what land-use policies already exist in your city exist in your city

Determine preliminary goalsDetermine preliminary goals

Identify alliesIdentify allies

Gather and analyze dataGather and analyze data

Find Out What Land-Use Find Out What Land-Use Policies Already Exist in Your Policies Already Exist in Your

City City Active zoning:Active zoning: allows for case-by-case allows for case-by-case

review of permit applications. Creates formal review of permit applications. Creates formal opportunities for public input and increases opportunities for public input and increases the ability to ensure that proposed land-use the ability to ensure that proposed land-use reflects local conditions. reflects local conditions.

Passive zoning:Passive zoning: establishes general establishes general requirements for permits (views permit “as a requirements for permits (views permit “as a right”). If applicant meets these, permit right”). If applicant meets these, permit generally is granted. Cities with passive generally is granted. Cities with passive zoning review offer little opportunity for zoning review offer little opportunity for community review of proposed land uses. community review of proposed land uses.

Determine Preliminary Determine Preliminary GoalsGoals

Limiting the number or concentration of alcohol Limiting the number or concentration of alcohol outlets in specific parts of your city outlets in specific parts of your city

Reducing alcohol-related problems, such as Reducing alcohol-related problems, such as underage drinking or alcohol-related violence underage drinking or alcohol-related violence

Changing the practices at one or more problem Changing the practices at one or more problem alcohol outlets alcohol outlets

Making businesses that sell alcohol more Making businesses that sell alcohol more responsive to community members’ concerns responsive to community members’ concerns

Ensuring active public review of business Ensuring active public review of business permits sought by alcohol outlets permits sought by alcohol outlets

Ensure Solid Follow-Ensure Solid Follow-Through Through

and Enforcementand Enforcement Follow-up with city staff to learn which Follow-up with city staff to learn which

agency has responsibility for enforcementagency has responsibility for enforcement Mobilize community members to assist law Mobilize community members to assist law

enforcement and city staff in monitoring enforcement and city staff in monitoring outlets. outlets.

Work with problem retailers to help them Work with problem retailers to help them comply with ordinances. comply with ordinances.

Educate merchants about the new Educate merchants about the new conditions to which they are accountable. conditions to which they are accountable.

Be vigilant: Sustain your group’s efforts. Be vigilant: Sustain your group’s efforts. Be on guard against zoning variances. Be on guard against zoning variances.

Additional ResourcesAdditional Resources

www.marininstitute.orgwww.marininstitute.org

www.publicstrategies.orgwww.publicstrategies.org

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www.prev.orgwww.prev.org