CONTENTS

Foreword ………………………………………………………………………….3

Introduction to Gaps Analysis ………………………………………………….5

Issues to be addressed at a National level
Industry Responsibility …………………………………………………...6
Advertising of Alcohol …………………………………………………...7
Short Term Funding ………………………………………………………8
Drug Education Funding ………………………………………………….9

Countywide Issues
Better Education And Communications ………………………………….11
Engagement with Parents ………………………………………..11
Information Materials ……………………………………………13
Lack of Evidence of What Works ……………………………….14
Alcohol and Sex …………………………………………………15
Training ………………………………………………………….15
Targeted Interactive Resources …………………………………16
Ethnic, Cultural and Religious Diversity ………………………...16

Improving Health And Treatment Services

Substance Misuse Services for Young People ……………………………17

Strategic Ownership ………………………………………………………17
Support for Young People at Risk ………………………………………..18
Screening And Brief Interventions ……………………………………….19

Combating Alcohol-Related Crime And Disorder
Alternative Activities ……………………………………………………..20
Rural Issues ………………………………………………………………21
Test Purchase Operations …………………………………………………19

Working With The Alcohol Industry
Support to Retailers ………………………………………………………22

Making it Happen ………………………………………………………………..23

Bibliography ……………………………………………………………………...25

ANALYSIS OF GAPS AND DRAFT RECOMMENDATIONS FOR SERVICE IMPROVEMENTS

Foreword

Alcohol plays an important role in our society, culture and economy, the vast majority of people consume it without causing harm to themselves or the wider community. However, where alcohol is misused, it can have a devastating impact on individuals and wider communities. The cost of alcohol related harms is around £20bn a year. This includes health disorders as a result of binge and chronic drinking, crime and anti-social behaviour in town and city centres, reduction in workplace productivity and the impact of alcohol misuse on individuals and families. The cost to family and social networks cannot be quantified, and includes domestic violence and children affected by parents with alcohol problems.

In March 2004, the Government published it’s Alcohol Harm Reduction Strategy for England. The aim of the strategy is to prevent any increase in alcohol-related harms through the following approaches;

Better education and communication

Improving health and treatment services

Combating alcohol - related crime and disorder

Working with the alcohol industry

Recent research carried out by the Public Health North West Alcohol Strategy Group, revealed that the burden of alcohol misuse that is attributed to the North West is disproportionately high; “We have among the highest levels of alcohol consumption in the country and, correspondingly, among the highest rates of alcohol-related mortality” (Taking Measures 2004). The allocation of alcohol-related harms varies significantly between districts and population groups. The findings reflect the national picture in that young people are identified as a group most at risk.

Research carried out with young people across Lancashire by the Alcohol - Protecting Children and Improving Communities Project (Alcohol Project) illustrated that 61% of young people between the ages of 9 and 13 drink alcohol. The majority of this group admitted to drinking on a weekly basis. National statistics demonstrate that young people under the age of 16 are drinking twice as much today as they did ten years ago (Alcohol Harm Reduction Strategy for England 2004) and that by the age of 13 drinkers outnumber non-drinkers (Boreham, R & Shaw (Eds) 2001).

Young people’s drinking is linked to a range of impacts on society, long and short-term health, accidents, violence, suicide, relationship problems, effects on school performance and sexual behaviour. It has the potential to severely affect the life chances of young people in the short and long term.

In response to growing levels of alcohol misuse by young people and its impact on communities, this document will identify gaps in service provision and will relate to the key approaches outlined in the Government strategy. The report aims to highlight barriers to agencies working together to support young people and will include draft recommendations for service improvements.

INTRODUCTION TO GAPS ANALYSIS

Gaps in provision have been identified through meeting with representatives from a variety of young people’s services throughout the county. In order to research the impact that young people’s drinking has on communities, we have also consulted with parents, retailers and young people themselves. Members of the business community were offered the opportunity to share their views through an open forum during an awareness raising conference. The opinions of parents and young people were sought through focus groups and countywide consultation exercises.

Barriers to young people accessing support were also identified through contributions from the Alcohol Project’s Steering Group, which consists of representatives from the following agencies:

Lancashire Children’s Fund

Lancashire Constabulary

Lancashire Drug Action Team

LCC Policy Unit

Primary Care Trust

School’s Advisory Service

Social Services

Trading Standards

Voluntary Sector

Youth and Community

Youth Offending Team

This report attempts to give an overview of issues raised through countywide consultation, it does not presume to give detailed accounts of specific issues relating to individual service providers. The report is inescapably limited by two main obstacles; the immense geographical area covered, which incorporates both urban and rural concerns and the lack of resources; the project consists of just two staff members.

It is envisaged that the majority of the issues raised in this document can be tackled through recommendations made by the Alcohol Project. However, it is important to acknowledge at this juncture that the following barriers can only be addressed at a national level.

ISSUES TO BE ADDRESSED AT A NATIONAL LEVEL

Industry Responsibility

There is no doubt that the alcohol drinks market is a substantial part of the UK economy generating over £30bn annually and providing one million jobs. However, the alcohol industry must recognise it’s responsibility in helping to prevent and tackle alcohol related harms.

The irresponsible packaging and promotion of some drinks, with a particular focus on alcopops, has been repeatedly raised as an issue of concern by parents, young people and agencies alike. Alcopops were launched in the summer of 1995 and have become the fastest growing new drink of all time. Research carried out by the Health Education Authority has shown that “teenagers saw alcopops as being more appealing than traditional drinks, more refreshing, better tasting, less likely to taste of alcohol, trendier and more suitable for teenage girls,” in contrast, beer/lager/cider were seen overwhelmingly as “a drink for lads/men” (Health Education Authority 1997).

Although alcopops tend to become less popular as people grow older (Goddard, 1997) they are seen as an entry point into regular drinking due to sweetness, and lack of a strongly alcoholic taste. This is reflected in the fact that alcopops were cited as the most popular choice of drink by both girls and boys between the ages of 9 and 13 in our county-wide research (Figure 1). The appeal of ‘designer’ drinks is reinforced by the fact that the majority of young people surveyed revealed that they drink alcohol because of the ‘taste’.

Typical responses included;

“ they (alcopops) taste better than normal pop”

“they (alcopops) have different flavours that you don’t get in non-alcoholic drinks”

FIGURE 1

Consultation carried out by the Alcohol Project also revealed that many parents are not aware of the alcoholic content of alcopops (most alcopops have an alcohol content of around 5% which is stronger than normal strength beers).

Response

In order to begin the process of change in cultural attitudes towards alcohol, the drinks industry must take seriously it’s responsibility in regard to the marketing of it’s products. In response to the inappropriate marketing of some drinks, the Government strategy sets out proposals to engage the alcohol industry at both national and local level. Drinks producers will be strongly encouraged to sign up to a social responsibility charter which will include agreeing not to manufacture products irresponsibly including “products apparently targeted at under-age drinkers.” (Alcohol Harm Reduction Strategy for England 2004) .

At a local level the Alcohol Project has commissioned a marketing company to produce information materials aimed at both young people and parents. The alcoholic strength of alcopops as compared to other drinks will be a key message incorporated within these materials.

Advertising of Alcohol

The UK alcoholic drinks industry spends over £200m annually on advertising alcohol, but with this right comes certain responsibilities. The way in which alcohol is perceived to be glamorised and equated with sexual confidence and success through advertisements, has been identified as an issue of concern through consultation carried out with young people, parents and agencies. Advertisements for particular alcopop style drinks were highlighted by our focus group of 9 – 13 year olds as being specifically targeted at young people, as the group felt that they “make drinking look like fun” and “always show people partying and enjoying themselves”. Young people also highlighted the inappropriateness of the marketing of alcohol at sporting events.

The advertising and marketing of alcohol are subject to both statutory and self regulated codes of practice. The existing codes prohibit the following approaches:

the promotion of irresponsible consumption

the connection of alcohol with sexual and social success

advertising that is directed at or appeals to children and young people under 18

However, consultation on the Alcohol Harm Reduction Strategy highlighted “widespread concern at the way in which TV advertising appears to be in breach of the spirit, if not the letter, of existing codes”.

Response

It is hoped that the fundamental review of the advertising codes of practice overseen by Ofcom, will lead to less ambiguity in ensuring that advertisements do not target under 18s. Furthermore, it was recently announced that TV advertisers are to be banned from showing alcohol alongside themes that are likely to appeal to the under 18’s and that portray alcohol as an “aid to seduction” (BCAP guidance). Themes that will be forbidden will include “using personalities with strong youth appeal such as pop, TV or sports stars, teenage rebelliousness, and music and dance likely to appeal to that age group”. (BBC News online 17/03/2005) The new rules, which are currently under consultation, are due to be enforced from October 2005.

Research into the links between the advertising of alcohol and young people’s drinking patterns have so far proved inconclusive (Alcohol Harm Reduction Strategy for England). However, there is a recognised need for more research in this area. Conclusions drawn from such research could potentially lead to the lobbying of Government to enforce even stricter policies around alcohol advertising, including prohibiting the marketing of alcohol at sporting events, and possibly the ultimate ban of it.

At a local level the Alcohol Project has commissioned a radio station to disseminate messages aimed at raising public awareness of the risks associated with young people’s drinking. The campaign also aimed to encourage debate about our drinking culture. It is recommended that methods of funding and sustaining a national media campaign that balances the high profile given to alcohol by the industry are explored.

Short Term Funding

Many of the services aimed at engaging and supporting young people in regard to substance misuse issues, are dependent on funding which is often at high risk of cessation. This issue has been repeatedly raised as having a significant impact on the quality of support received by young people for the following reasons;

Lack of continuity of service for young person

Not possible for agency to make long term plans

Stress on employees

Reduces efficiency of staff/project

Time spent identifying/applying for funding

Posts difficult to fill because of short term contracts

Insufficient staff retention rates

Problem of timelag between the end of one project, and the funding for it, and the beginning of the next

Funding often focused on targets rather than quality of service delivery

The Alcohol Project, which is funded by Lancashire Children’s Fund and underwritten by the County Council’s Crime and Disorder budget, is an example of a service that is reliant on short term funding and consequently subject to the restrictions listed above.

Response

The problem of short term funding can only be tackled through all local authorities lobbying central Government to mainstream substance misuse services for young people or to change the terms and conditions that often lead to delays, slippages within budgets, and operational problems (Cabinet Report - Services for Young People who Misuse Drugs/ Alcohol LCC 2005).

Drug Education Funding

Central Government took the decision to devolve drug education funding to schools as part of the Standards Fund in order to give schools greater control over their budgets. Consequently funds are no longer managed by the County Council’s School Effectiveness Service and ring fenced for drug education. The funding change also threatens the future of Teacher Advisers (Drug Education).

Alcohol education is a statutory requirement of the National Curriculum Science Order. In addition, schools are expected to use their personal, social and health education (PSHE) as a forum for extending their provision. Alcohol awareness can be dealt with through Citizenship lessons and alcohol also features as one of the key themes within the National Healthy School Standard.

Although the Department for Education and Skills recommend that drug education should begin in primary schools, the only statutory requirement is within the National Curriculum Science Order. The Local Education Authority can advise and encourage schools to prioritise drug education but the final decision rests with Head Teachers and Governing Bodies. Despite growing levels of underage drinking, teaching drug education outside the National Curriculum is not seen as a priority by some schools.

Response

“Drug and alcohol education should be taught at Key Stage 1, be mainstreamed, and revisited each year.” Graham Hatfield, Team Leader, School and Community Partnership Team. There is also the potential for substance misuse education to be mainstreamed as part of the citizenship curriculum, however this subject is only compulsory in secondary schools.

In order to promote access to drug and alcohol support, the School Effectiveness Service continue to ardently encourage schools to prioritise drug education. However, long term funding must be secured for Teacher Advisers responsible for drug education if this subject is to receive the prominence it clearly merits.

COUNTYWIDE ISSUES

BETTER EDUCATION AND COMMUNICATION

Engagement with Parents

Consultation with young people, parents and agencies across the county has led us to conclude that engagement with parents is essential in beginning the process of change in a culture of ‘drinking to get drunk.’ Our Lancashire-wide research with over 1,000 young people between the ages of 9 and 13 revealed that the vast majority of young people that drink alcohol gain access to it through parents (Figure 2) (only 5% of young people surveyed admitted to purchasing alcohol for themselves.)

FIGURE 2

The role of parents in young people’s drinking behaviour is complex. A survey undertaken by researchers at the University of Portsmouth found that English parents are far more permissive in their attitudes towards underage drinking when compared to Norway, France and Spain. In England, 40% of parents surveyed were unlikely to be strict about underage drinking. (University of Portsmouth 1998) Consultation with parents carried out by the Alcohol Project worryingly revealed that many parents don’t regard alcohol as a drug.

Research undertaken by the Alcohol Project shows that the main source that young people seek help and advice about alcohol from is parents. (see Figure 3) This pattern is reflected in the results of consultation carried out with young people from Lancashire Primary Schools (Report from the Primary Young People’s Conference on Drug, Alcohol and Tobacco Education; 2002 -2003) However, the majority of the parents that contributed to our focus group asserted that they don’t feel confident about talking to children about alcohol and related issues.

FIGURE 3

Draft Recommendations

i) Awareness Raising Campaign

In a culture where having a good time is equated with getting drunk, the process of changing attitudes can only be achieved through targeting parents. Parents would benefit from a high profile marketing campaign featuring awareness raising messages linking young people’s drinking with it’s potential impact on society, long and short term health, accidents, violence, education and sexual behaviour. Parents need to be made aware of the fact that alcohol is a powerful drug and of their responsibility in regard to instilling sensible attitudes towards drinking. Although the Alcohol Project, together with partner agencies, has already commissioned a local radio station (Rock FM) to broadcast awareness raising messages aimed at parents, this is just the beginning of what needs to be a prolonged and engaging campaign.

ii) Literature for Parents

Although there are examples of good practice, there needs to be more information and support available to parents with regard to alcohol issues. Awareness raising literature needs to make explicit the link between young people’s drinking and it’s potential impact on society; health, anti-social behaviour, school performance and teenage pregnancy. It is also essential that parents receive advice on how to discuss alcohol use with young people and how to access appropriate support agencies. Awareness raising resources aimed at parents should be made available in community settings.

The Alcohol Project has already begun to consult with parents through focus groups and questionnaires, in order to identify key messages and ascertain the most effective mediums for reaching this target group. The project has also recently commissioned a marketing company to begin the process of developing resources aimed at parents and carers.