Legal Drinking Age Summary Review Prepared fr the AADAC Cmmissin Bard Darlene James and Susan Huttn AADAC Plicy & Business Planning Nvember 2005
LEGAL DRINKING AGE Summary Review Nvember 2005 Issue In spring 2004, the Legislative Assembly f Alberta supprted a private member s mtin t increase the LDA t age 19. This mtin was put frward t prevent teenage deaths in alchl-related traffic accidents. This paper prvides an update n research relating t the legal drinking age and AADAC's psitin n this issue relative t ther stakehlders. It is intended t assist the members f the Cmmissin Bard in their review f AADAC s Psitin n the Legal Drinking Age. Backgrund The legal drinking age (LDA) is an alchl cntrl measure designed t restrict access t alchl, prevent underage drinking and assciated alchl-related harm. In 1971, in keeping with a Nrth American shift t align the LDA with age f majrity, Alberta lwered the LDA frm age 21 t 18. In 1976, the AADAC Cmmissin Bard apprved a plicy supprting a legal drinking age f 18. This was based n the lack f cnclusive evidence indicating that a higher LDA was effective in reducing underage alchl cnsumptin and related prblems. Since the 1980s, mst Canadian prvinces and territries have raised the LDA t age 19 and in all American states, the minimum drinking age was raised t age 21. a Over the past three decades, arguments have been advanced peridically in the Legislature t raise the LDA in Alberta t 19 r higher. This paper cnsiders the mst recent literature cncerning the effect f raising the LDA n yuth drinking and assciated harm. It presents cmmn arguments and evidence assciated with the issue. The discussin sectin summarizes main findings. An verview f rganizatinal psitins regarding the LDA is presented in Appendix A. a The Unifrm Drinking Age Act was adpted by the federal gvernment July 17, 1984. The US Gvernment mandated that states must cmply with the Act t receive benefits frm Federal Highway Aid Act, and by 1988, all states had established a minimum legal drinking age f 21. AADAC Plicy & Business Planning (Nvember 2005) Page 2 f 20
Argument: Increasing the legal drinking age will decrease drinking and driving and alchl-related traffic cllisins amng yuth. Impaired driving by peple f all ages is a significant cause f mrtality and mrbidity in all prvinces and territries in Canada. It cntinues t be an issue f public cncern, despite the psitive and declining trend ver 20 years in the prevalence f impaired driving. 1 Alchl-related mtr-vehicle accidents are a serius prblem amng yung drivers, and raising the LDA is seen as ne mechanism t decrease the number f yung peple wh are injured r killed in traffic cllisins. 2,3,4 The perceptin amng Canadians is that drinking and driving is cmmn amng yung peple. Hwever, the Traffic Injury Research Fundatin pints ut that teenage drivers are much less likely t have driven after drinking than ther age grups. In 2004, 11.8% f drivers aged 16 t 19 reprted driving within tw hurs f drinking cmpared t 27.8% f drivers aged 25-34. Teenage drivers accunt fr abut 5% f all impaired driving tips in Canada; far less than any ther age grup. 5 Canadian data reveals minr variatins in self-reprted drinking and driving behaviurs amng students, despite prvincial differences in the legal drinking age. In Alberta (2002) 16% f students (grades 7 t 12) wh drank in the past year reprted driving within an hur after having tw r mre drinks. The majrity f these students (91%) were under the legal drinking age. 6 In Ontari (2003) 14% f students (grades 10 t 12) with a driver s license reprted driving within an hur f cnsuming tw r mre drinks, and 29% said they had been passengers with a driver wh had been drinking. 7 In Nva Sctia (2002) 15% f students (grades 7, 9, 10, 12) with a driver s license drve a mtr vehicle within ne hur f having tw r mre drinks, and 23% f students reprted being passengers in a mtr vehicle accident with an alchl-impaired driver. 8 In New Brunswick (2002), 9% f students (grades 7, 9, 10, 12) reprted driving within an hur f cnsuming tw r mre drinks, and 26% f students said they had been a passenger in a vehicle driven by an impaired driver. Being a passenger with an impaired driver became mre cmmn as students gt lder. 9 Despite having the mst punitive impaired driving laws in Canada, results frm the Manitba student survey (2005) shw that 19% f males and 14% f females with a valid driver's licence had driven within ne hur after cnsuming tw r mre drinks. In additin, 5% f students withut a driver's license reprted this behaviur. Clse t 25% f Manitba students reprted being passengers in a vehicle driven by smene wh had been drinking. 10 AADAC Plicy & Business Planning (Nvember 2005) Page 3 f 20
Data frm the U.S. (where the LDA is 21) indicate high rates f impaired driving by yuth. In 2002, 22% f students in grade 12 reprted drinking and driving and 33% reprted being a passenger in a vehicle driven by smene wh had been drinking. 11 A recent Canadian study suggests the likelihd f being a passenger with an intxicated driver is highest fr individuals 15 t 29 years. In British Clumbia, Quebec and Alberta, ne in ten peple in this age grup had been passengers f a drunk driver. The study als fund that thse wh were passengers with an impaired driver als reprted engaging in ther risk behaviurs such as heavy drinking, smking and having multiple sexual partners. 12 Canadian trends shw that since 1995, the percentage f teen drivers with a psitive bld alchl cntent (BAC) invlved in fatality cllisins is lwer than that f lder drivers. In 2002, 44% f fatally injured drivers in Canada wh were drinking r impaired were aged 20-25 years; a grup that has legal access t alchl in all prvinces and territries in Canada. 13 The rate f drinking drivers aged 16 t 24 invlved in casualty cllisins (injury r fatality) decreased in Alberta frm 1998 t 2003 (see Table 1). 14 This ccurred despite a cnsistent LDA. Over time, the decrease in alchl-related casualty cllisins is mst nticeable amng drivers aged 18 and 19. Table 1: Alberta Drinking Drivers in Casualty Cllisins, 1998-2003* Rate per 1000 Licensed Drivers Age 1998 1999 2000 2001 2002 2003 16 0.8 0.5 0.8 0.7 0.4 0.5 17 1.5 1.0 1.0 0.9 1.0 0.8 18 2.3 2.4 2.2 2.1 1.5 1.5 19 2.6 2.4 1.8 1.8 1.5 1.5 20 1.9 2.5 1.5 2.1 1.8 1.4 21 2.1 1.7 1.3 2.0 1.8 1.2 22 2.0 1.6 0.9 2.0 1.8 1.5 23 1.4 1.1 1.5 1.0 1.1 1.4 24 1.5 1.2 1.3 1.0 1.0 1.0 * Surce: Alberta Transprtatin (mst recent data is available by individual age) AADAC Plicy & Business Planning (Nvember 2005) Page 4 f 20
Statistics reprted by Alberta Infrastructure and Transprtatin (2004) shw that amng licensed drivers, males are mre likely than females t be invlved in alchl-related traffic cllisins, and yung adult males (18 t 24) are the mst likely t have been drinking r t be impaired prir t an injury r fatality cllisin. 15 Legal drinking age legislatin is ne f the mst well studied alchl cntrl plicies in the United States. Findings frm a recent and cmprehensive review f the research frm 1960-2000 suggests there is strng evidence than the increase in the LDA t age 21 resulted in a decrease in impaired driving and alchl-related traffic accidents and fatalities invlving yung peple. The review ntes that the evidence is nt entirely cnsistent, in that there are high quality studies that shwed n effect frm this plicy change, but the prepnderance f evidence is favurable. 16 Decreases in yuth drinking and driving have been attributed t varius factrs: changes in the ppulatin age distributin (i.e., decrease in number f yung peple), increased enfrcement f the LDA and impaired driving laws, cntinuing educatin/infrmatin campaigns, shifting scial nrms abut impaired driving, gasline and insurance price fluctuatins, frmal anti-drinking and driving effrts that affect drivers f all ages, reduced bld alchl cntent (BAC) and zer tlerance BAC standards fr yung drivers, and graduated driver licensing prgrams. 3, 16,17,18,19,20,21,22 In 2002 Alberta intrduced a graduated licensing system with a zer tlerance BAC fr new drivers. In ther jurisdictins these prgrams have demnstrated psitive results fr driver safety and reduced invlvement in mtr vehicle cllisins. 23 An LDA plicy reinfrced by zer tlerance BAC fr yung drivers has been shwn t be effective in reducing yuth drinking and driving fatalities. Hwever, the impact f the LDA plicy and the strict enfrcement n this utcme cannt be fully separated. 24 Drug-impaired driving by yuth is a grwing prblem in Canada. Changes t the legal drinking age will nt impact this behaviur. In a 2004 survey f Canadian drivers, 2.1% reprted that during the previus year, they had driven within tw hurs f using cannabis. Half f these drivers were under age 30. Results frm the Ontari Student Drug Use Survey (2003) shwed that almst 20% f high schl drivers acknwledged driving within ne hur f using cannabis and 23% f students reprted being a passenger in a car driven by smene using drugs. In Nva Sctia (2002), mre than 30% f grade 12 students with a driver's license reprted driving within ne hur after using cannabis. AADAC Plicy & Business Planning (Nvember 2005) Page 5 f 20
Amng students in Manitba, clse t 20% f males and 15% f females reprted driving after using cannabis. In the U.S., data frm 2002 and 2003 shwed that 14% f yuth aged 16-20 drve under the influence f illicit drugs and 8% drve under the influence f bth alchl and illicit drugs. 25 Studies in Canada and arund the wrld have fund that after alchl, cannabis is the drug mst ften fund in drivers invlved in injury r fatality cllisins. A recent analysis f data frm the Atlantic student surveys (grades 10-12) fund that past year prevalence f driving while under the influence f cannabis (15.3%) was higher than driving under the influence f alchl (11.7%). Results als shwed that the risk f being invlved in a mtr vehicle cllisin was almst twice as high fr thse students under the influence f cannabis cmpared t students wh were nt driving while under the influence f this drug. 26 Cnclusin: Yuth drinking and driving is a serius issue but it is ne that must be placed in cntext with verall impaired driving incidents in Alberta. In 2002 10,186 Albertans were charged with impaired driving and in 2003/04, 6,308 persns lst their license as a result f an impaired driving cnvictin. 27,28 Alberta yuth d engage in drinking and driving, albeit less frequently than lder age chrts. Trends pint tward decreasing rates f impaired driving and alchl-related casualty cllisins in all age grups, including teens and yung adults. Althugh teens are less likely t be impaired, they lack experience bth with driving and with drinking alchl. This means that when the tw activities are cmbined, teens are at greater risk fr invlvement in casualty cllisins. Cnsistent declines in alchl-impaired driving have ccurred in Canada and Alberta ver the past 20 years. These declines have been attributed t a cmbinatin f factrs and a range f drinking and driving cuntermeasures; changes in legislatin, stricter enfrcement, alchl educatin and shifts in scial nrms. 29 Numerus factrs influence yuth behaviur, and as such, a cmbinatin f strategies will be mre effective in reducing impaired driving than any single plicy interventin. Alberta has taken psitive steps t address yuth drinking and driving with intrductin f a graduated licensing system. The effectiveness f this prgram has yet t be demnstrated, althugh evaluatin plans are in place. 30 The relatinship between drinking and driving and alchl-cntrl legislatin is cmplex. Based n research frm the United States, it seems that raising the LDA, in cmbinatin with ther strategies, may be a way t prtect yuth frm the acute cnsequences f drinking (namely injury r death resulting frm an alchl-related traffic cllisin). A similar cmprehensive analysis is nt available fr Canadian data alne, but indicatrs f impaired driving suggest that a ne-year increase in the LDA will have little if any AADAC Plicy & Business Planning (Nvember 2005) Page 6 f 20
effect n this behaviur. There is n questin that LDA legislatin is imprtant, but is nly ne part f a cmprehensive strategy t address yuth drinking and driving. Argument: Increasing the legal drinking age will lead t decreases in alchl cnsumptin, harmful drinking and ther alchl-related prblems. Alchl cnsumptin, heavy drinking and binge drinking increases with age, regardless f the established LDA. 31 Cnsumptin In 2002, 56% f Alberta students (grades 7-12) drank alchl in the past year (55% in grade 7 and 91.4% in grade 12). The majrity f students (98%) surveyed were under age 18. Amng Ontari students (2003), 66.2% reprted drinking. Alchl use increased frm 39.1% in grade 7 t 82.5% in grade 12. In 2002, 53.2% f students in New Brunswick (aged 11-19) reprted drinking during the past year. Alchl use increased frm 14% in grade 7 t 48% in grade 9, t 70% in grade 10 and 84% in grade 12. Amng students in Nva Sctia (2002), 51.7% reprted cnsuming alchl in the past year, and fr bth males and females, cnsumptin increased by grade level (frm 14% in grade 7 t 83% in grade 12). The majrity f students (58.8%) in grades 7-12 in Manitba (2005) reprted drinking during the past year. Almst 90% f students in Manitba wh were 17 had cnsumed alchl and clse t 80% f students aged 15 and 16 were current drinkers despite an LDA f 18 in Manitba. Cnsumptin f alchl increases by grade level (frm 22.6% in grade 7 t 83.7% in grade 12). The prprtin f students cnsuming alchl has declined since 1995. Prevalence f past year alchl cnsumptin in the U.S. (2002), where the legal drinking age is 21, ranges frm 38.1% amng students in grade 8 t 71.6% f students in grade 12, and 83.6% f students in cllege. Results frm the Canadian Addictin Survey (2004) shwed that prevalence f drinking is highest amng yung adults 18-24 years (90% in Canada, and 87% in Alberta). The percentage f yung adults wh reprt heavy and frequent drinking b (17.2% in Canada and 18.3% in Alberta) is mre than duble the percentage fr the ppulatin as a whle. 32 b Defined as cnsuming five r mre drinks per ccasin, ne r mre times per week. AADAC Plicy & Business Planning (Nvember 2005) Page 7 f 20
Heavy Episdic r Binge Drinking c Binge drinking amng yuth has been identified as grwing ppulatin health cncern, natinally and internatinally. 4,19,33 In Canada, fr example, binge drinking by Ontari students decreased in the 1980s, increased in the 1990s and was stable but elevated by 2003. In 2003, 26.5% f Ontari students reprted binge drinking at least nce in the mnth befre the survey. This behaviur significantly increased with age (frm a lw f 5.8% in grade 7 t a high f 45.2% in grade 12). In Nva Sctia (2002), 28% f students reprted being drunk in the week befre the survey. Amng students in New Brunswick (2002), 69% reprted being intxicated in the past mnth. In Manitba (2005), 9.1% f students reprted weekly binge drinking and this behaviur increased by grade level. Recent surveillance findings frm the U.S. shw that drunkenness amng students increases with age; 14% in grade 8 cmpared t 35% in grade 10 and 48% in grade 12. The prevalence f binge drinking amng students in the United States ranges frm 12% f students in grade 8 t 50% f students attending cllege. Hazardus r Harmful Alchl Cnsumptin Studies shw that yuth wh cnsume alchl in a hazardus r harmful manner are mre likely t experience acute cnsequences including hangvers, accidents, arguments, unplanned sexual activity, schl absenteeism and vilence. Amng Alberta students surveyed in 2002, 13% reprted signs f alchl abuse (0.5% in grade 7 and 24.2% grade 12). In Ontari, 19% f students drank at hazardus levels, and there was an incremental increase in this behaviur each year between grade 8 (6%) and grade 11 (30%). Amng students in Nva Sctia (2002), 14% cnsumed alchl at least nce per week r mre. In New Brunswick (2002), 48% f students reprted frequent drinking (ne r mre times per week). Mre than 10% f Manitba students drank at least weekly, 5.4% reprted drinking at hazardus levels and abut 12% f male students in grade 12 shwed signs f alchl dependence. c Defined as a pattern f heavy, episdic drinking, r drinking t intxicatin where large quantities f alchl are cnsumed n a single drinking ccasin. There is n universal definitin f binge drinking in the research literature. This lack f cnsensus is particularly prnunced in relatin t patterns f drinking amng teens and yung adults. AADAC Plicy & Business Planning (Nvember 2005) Page 8 f 20
Rates f alchl abuse and dependence in the U.S. are clse t 6% fr yuth aged 12-17. In Eurpean cuntries, where the legal drinking age varies frm n set limit t age 18, public drunkenness is uncmmn and scially unacceptable. In the United States, a cmprehensive review f studies frm 1960-2000 fund a higher LDA resulted in an verall decrease in alchl cnsumptin by yuth. d Hwever, this relatinship was nt cnsistent acrss all studies, and the effect was nt evident fr cllege students, regardless that mst were under the legal drinking age f 21 years. The same review cited abve fund less cnclusive evidence f a relatinship between an increased LDA and decreased alchl-related health and scial prblems such as suicide, hmicide, vandalism, nn-traffic injuries, and disrderly cnduct amng yuth. Cnclusin: On the surface, it appears there is a relatinship between the LDA and the prevalence f alchl cnsumptin amng yuth. Hwever, there is little cnclusive evidence that this is the case. Underage drinking is cmmn, and patterns f harmful cnsumptin and assciated risk-taking amng yuth remain a cncern despite variatins in the LDA acrss Nrth American jurisdictins. Existing research des nt indicate that raising the LDA, in and f itself, is an effective health and safety initiative. Adlescents and yung adults in Nrth America are immersed in a brad scial milieu where alchl is readily available, use is widespread and cnsumptin is ften glamrized. In this cntext, the effectiveness f any ne strategy t reduce underage cnsumptin is limited. Mst yung peple d nt engage in harmful drinking and it may be mre cnstructive t target interventins t thse mst likely t drink harmfully and engage in risky practices. The legal drinking age is cnsidered a 'blunt' plicy instrument designed t reduce verall drinking levels in the entire ppulatin. Sme bservers have nted that there is little justificatin fr setting the age at 19 r 21 as the same arguments (prtectin, preventin, harm reductin) culd be used t raise the LDA t age 25 r even higher. 34 d Included in this analysis were three Canadian studies deemed t be f high methdlgical quality. One study frm Trnt reprted a significant decline in self-reprted alchl cnsumptin when the LDA was lwered in Ontari frm 21 t 18 (cntrary t expectatins). A secnd study that included all 10 prvinces fund n change in yuth cnsumptin when the LDA was lwered. The third investigatin, which was cnfined t Ontari, shwed n change in alchl cnsumptin when the LDA was increased t age 19. AADAC Plicy & Business Planning (Nvember 2005) Page 9 f 20
Argument: Increasing the legal drinking age will decrease yuth access t alchl. While legal drinking age legislatin is meant t prevent underage yuth frm purchasing and cnsuming alchl, access remains high. 35 Almst 87% f Alberta students (grades 7 t 12) reprted access t alchl. The majrity f students surveyed (98%) were under age 18. 52% f students in New Brunswick said they drank at a tavern, bar r ther licensed establishment during the past year. Mst students were under the LDA f 19. 66% f students in Ontari reprted easy access t alchl. Students in Manitba reprted that they 'get' alchl frm friends (51%) r that they 'buy' alchl frm friends (42%). Hwever, 9% reprted purchasing alchl frm a licensed utlet, such as a liqur stre, bar r restaurant. Abut 25% reprted that their parents purchased alchl fr them and 20% reprted that an lder sibling had purchased alchl fr them. Yunger students ften reprt stealing alchl frm hme. Abut 95% f U.S. students in grade 12 reprt access t alchl despite an LDA f 21. 36 Studies frm the United States suggest yung peple are able t btain alchl frm a variety f cmmercial, nn-cmmercial r scial surces. Research shws that parties, friends, and adult purchasers are the mst cmmn surces f alchl amng adlescents. Hwever, grcery stres and licensed utlets are als used. Purchase surveys indicate than anywhere frm 30 t 90 percent f cmmercial utlets will sell alchl t a minr depending n gegraphic lcatin.,37 A recent reprt frm the American Medical Assciatin indicates underage yuth have little difficulty btaining alchl. Nearly 50% f teens in the United States, especially girls, reprted that they are able t access alchl. Mst teens reprted it was easy t get alchl frm their hmes withut their parents' knwledge, and clse t ne-third reprted it was easy t btain alchl frm their wn parents r frm parents f a friend. The pll als indicated that clse t 20% f parents with children aged 12-20 agreed that teens shuld be able t drink at hme, and 8% f parents said they allwed their child and his/her friends t drink with supervisin. 38 Despite a legal drinking age f 21 in all American States, ecnmic analyses estimated that underage drinkers (12-20 years) accunted fr 19.7% f cnsumer expenditures fr alchl. This is cnsidered a cnservative estimate because the survey data used in the analyses excluded high risk grups such as thse nt attending schl, yuth in the military, thse wh are hmeless and yung peple living in institutins. 11 AADAC Plicy & Business Planning (Nvember 2005) Page 10 f 20
Accrding t the Canada Safety Cuncil, raising the legal drinking age is unlikely t result in a decrease in underage drinking. It may be safer t let yung peple drink in cntrlled envirnments such as restaurants, pubs and ther places than at 'free fr all' parties held in the bush r in private hmes. Sme evidence suggests that raising the LDA may cause underage yuth t mve their alchl cnsumptin frm cmmercial drinking lcatins t mre islated and less prtected settings, and that it can encurage a shift in alchl purchases frm licensed t unlicensed vendrs. Mst Canadian yuth drink at hme, at parties r at scial events rather than in licensed venues. Drinking in unlicensed setting is widespread regardless f the LDA and raising the LDA des nt appear t affect this practice. Yuth drinking is nt nly influenced by alchl cntrl laws but als by persnal characteristics, family envirnment, peer behaviurs, scial situatins, and cultural nrms and attitudes related t alchl use. 2,4,39,40,41 Aside frm the legal drinking age, ppulatin-based alchl cntrl measures prven effective in reducing yuth access t alchl include pricing strategies (e.g., higher alchl taxes), licensing limits n the number f alchl utlets, restrictins n the times/cnditins f alchlic beverage sales, cntrls ver alchl advertising, spnsrship and inducement. 21,41 Increased cmmunity-level enfrcement f the bth the legal drinking age and retailer cmpliance with alchl licensing have been shwn effective in reducing yuth drinking, and in sme cases binge drinking by yuth. 16,37 The LDA in the majrity f Canadian prvinces and territries is 19. This includes Alberta s gegraphic neighburs. BC, Saskatchewan, and the Nrthwest Territries. The LDA in the U.S. is 21, including the brder state f Mntana. These jurisdictins have n plans t change their LDA. Althugh cncerns exist abut yuth visiting Alberta t circumvent the legal drinking age, research is needed n the extent f this prblem. It has been suggested that a unifrm LDA acrss gegraphical bundaries wuld reduce this activity, but a first step wuld be t determine the extent f crss brder purchase and cnsumptin patterns. Public supprt fr alchl plicies restricting access t alchl is crrelated with age and frequency f use; that is, yunger drinkers and frequent heavy drinkers are less likely t supprt these restrictins. 42 Canadian supprt fr increasing the LDA has decreased ver time (frm 49.7% in 1989 t 38.3% in 1994 and 34.5% in 2004), especially amng heavy drinkers, yuth and peple living n the prairies. 43,44 AADAC Plicy & Business Planning (Nvember 2005) Page 11 f 20
Results frm the 2004 Canadian Addictin Survey fund that Albertans are almst equally divided in their supprt fr maintaining (48.7%) r increasing (45.7%) the legal drinking age. Research and experience frm the United States indicates that increasing the LDA is nly effective if accmpanied by clear cmmunicatin f a change in legislatin 2, 16,19,21, 21,45 and meaningful enfrcement f the law. Research frm Manitba suggests the use f false identificatin and failure f retailers t check identificatin may be cntributing t yuth access t alchl. In 2002, the Alberta Gaming and Liqur Cmmissin (AGLC) implemented the Under 25 Initiative, which increased enfrcement t prevent minrs frm purchasing alchl. Annual audits f retailer cmpliance shwed an increase frm 23% in 2002 t 67% in 2003. 46 T date, there has nt been an evaluatin f this prgram t assess the effects f strnger enfrcement n yuth access t alchl in Alberta. Cnclusin: Restricting cmmercial access t alchl by raising the LDA is nt necessarily an effective means f reducing alchl use amng yuth. Studies shw that yuth have access t alchl, largely thrugh infrmal means such as family and friends, but they als purchase alchl in licensed venues. The prevalence f underage drinking remains high despite variatins in the LDA acrss Nrth American jurisdictins. Yuth drinking ccurs mst ften in unregulated settings, and it has been suggested that increasing the LDA will cause yuth t mve their alchl cnsumptin t even less restricted r unsupervised venues. Yuth drinking is nt nly affected by alchl cntrl laws but als influenced by persnal characteristics, family envirnment, peer assciatins, scial situatins, and cultural attitudes and nrms related t alchl use. In Alberta, there is sme public supprt fr raising the LDA. Hwever, thse mst impacted by the legislative change are the least likely t favur it. Evidence supprts strnger enfrcement f existing LDA plicies rather than changes in legislatin t reduce underage drinking. Argument: Raising the legal drinking age may have unintended cnsequences, including criminalizatin f a segment f the yuth ppulatin and the substitutin f ther drug use fr cnsumptin f alchl. Experience shws that raising the LDA requires increased enfrcement resurces. AADAC Plicy & Business Planning (Nvember 2005) Page 12 f 20
Bth U.S. and Canadian studies shw evidence f underage students prcuring false identificatin t purchase alchl. 16 There des nt appear t be any new evidence that suggests raising the LDA will lead t increased cmpensatry drug use. It can be argued that a cnsistent age f majrity cnfers adult rights, freedms and privileges at a unifrm age. Having an LDA cnsistent with the age f majrity reflects the definitin f adult status. As individuals mature, they assume mre respnsibility fr their actins. Cnclusin: The LDA in Alberta is cnsistent with the age f majrity in Alberta. Increasing the LDA t age 19 will penalize a segment f sciety that des nt engage in harmful alchl cnsumptin r high-risk behaviurs. Raising the LDA in Alberta will als require mre resurces t enfrce and increase awareness abut the new law. Psitin Statements n the Legal Drinking Age Held by Other Organizatins The fllwing rganizatins were cntacted t determine their psitin n the legal drinking age. Further details are fund in Appendix A. Organizatins Reprting N LDA Plicy r Psitin (alphabetical listing) Addictins Fundatin f Manitba Alberta Assciatin f Plice Chiefs Alberta Centre fr Injury Cntrl Research Alberta Federatin f Plice Assciatins Alberta Public Health Assciatin Alberta Schl Bards Assciatin Canadian Assciatin f Chiefs f Plice Canadian Centre n Substance Abuse Canadian Medical Assciatin Centre fr Addictins Research f British Clumbia Health Sciences Assciatin f Alberta Institute f Health Ecnmics Organizatins Supprting an Increase in the LDA (listed alphabetically) AADAC Plicy & Business Planning (Nvember 2005) Page 13 f 20
The Alberta Medical Assciatin des nt have a plicy statement per se but their current psitin is based n activities, bard and gverning bdy reslutins ver the years. They have supprted varius bills and initiatives t raise the LDA t 19. The Alberta Mtr Assciatin plicy supprts raising the LDA t 19 (Statement f Plicy 2003-2004, Plicy 6.6). The riginal plicy was adpted in 1988. The Canadian Autmbile Assciatin plicy states, Prvincial gvernments are urged t crdinate their legal drinking ages t reduce the practice f crss-brder drinking and driving (O-91, R-01). (CAA Statement f Plicy 2003-2004, Recmmendatin 6.3.10, Crdinatin f Legal Drinking Ages). Organizatins Supprting Maintenance f the LDA (listed alphabetically) The Canada Safety Cuncil (CSC) des nt have a frmal plicy n this issue. In a statement f pinin, they nte that raising the drinking age in Canada culd cause mre prblems than it slves. At issue are prblems f cmpliance with minimum age drinking laws in the United States, increases in cannabis yuth amng yuth, zer permissible alchl levels already in place acrss Canada, and the need t better understand what mtivates yung peple t drink t excess. The CSC states; "Canada needs smart slutins that aim fr lng-term imprvements. Based n credible research and analysis f the situatin as a whle, they must take int accunt human psychlgy, cst effectiveness and ptential impacts." Summary Arguments fr Raising the LDA Decrease in alchl-related traffic accidents amng yuth Decrease in yuth alchl cnsumptin and alchl-related harm Preventin f crss-brder drinking Part f a cmprehensive strategy t reduce yuth drinking Decrease in yuth access t alchl Arguments fr Maintaining the LDA Cnsistent with the age f majrity Mst yuth d nt drink harmfully Individuals age 18 are penalized t address the actins f a few Increased enfrcement requires additinal resurces Raising the LDA may frce mre yuth t drink in uncntrlled settings Effectiveness f existing prgrams such as the graduated licensing system and the AGLC yuth enfrcement initiative in reducing yuth drinking and driving require evaluatin AADAC Plicy & Business Planning (Nvember 2005) Page 14 f 20
Cnsistent with AADAC s apprach, which fcuses n strengthening the capacities f individuals and cmmunities t develp healthy appraches t alchl and drug use Drug-impaired driving by teens will be unaffected by a change in the legal drinking age Discussin This review fund n cmpelling justificatin fr raising the legal drinking age in Alberta. Findings shwed that the greatest effect frm raising the LDA (in the United States) is related t mtr vehicle accidents and fatalities amng yuth. Hwever, research als shws that drinking and driving is a behaviur that is evident in a small prtin f the ppulatin, and teens are the least likely t engage in impaired driving. As such, changing the legal drinking age des nt appear t be the best respnse t the issue f yuth drinking and driving. Rather, research and experience shw that a cmprehensive plicy apprach that includes alchl cntrl measures and targeted impaired driving cuntermeasures can be very effective. A higher LDA may result in decreased underage alchl cnsumptin. At the same time, yuth d drink and a sizeable minrity cnsume alchl in a manner that is harmful r hazardus. There is little evidence t demnstrate that an increase in the LDA will decrease harmful r hazardus drinking by yuth, r that an increased LDA will result in fewer negative cnsequences related t this pattern f alchl cnsumptin. The ptential benefits f an increased LDA must be weighed against ptential harm and cnsidered relative t unintended cnsequences. Fr example, increasing the LDA in an attempt t reduce alchl-related traffic accidents will punish the majrity f 18 year lds wh d nt drink and drive. This wuld nt be cnsistent with AADAC s apprach t preventin and treatment, which fcuses n strengthening the capacity f individuals and cmmunities t develp healthy appraches t alchl and ther drug use. In additin, yuth drinking ccurs in the larger cntext f alchl cnsumptin in the general ppulatin. Rather than an increase in the LDA, the prmtin f respnsible alchl use, regardless f age, wuld be f benefit. As nted by Giesbrecht and Greenfield, there is N single envirnmental strategy, despite its ptential effectiveness, [that] can be relied n t reduce the cmplex and multiple prblems related t alchl use. [instead] a cmbinatin f cmplementary strategies sme riented tward reducing availability and thers fcused n changing the scial envirnment f drinking ffer great prmise in reducing alchl-related prblems Drinking age legislatin is imprtant, but shuld nt be seen as a simple slutin t yuth alchl cnsumptin and impaired driving. A cmbinatin f strategies, including preventin, treatment, harm reductin and enfrcement are required t further reduce AADAC Plicy & Business Planning (Nvember 2005) Page 15 f 20
underage drinking and ther alchl-related harm amng yuth. Effective strategies include limiting access thrugh alchl pricing and taxatin, actively enfrcing prhibitin f sales t minrs, implementing a restricted system f licensing fr yung drivers, develping schl-based alchl plicies, and supprting educatin and public awareness t ensure alchl cntrl plicies are understandable and acceptable within the cmmunity. AADAC Plicy & Business Planning (Nvember 2005) Page 16 f 20
Appendix A Organizatins Reprting N LDA Plicy r Psitin Addictins Fundatin f Manitba: E-mail cmmunicatin (July 19, 2004), David Pattn, reprted that the AFM des nt have a current plicy n LDA. Alberta Assciatin f Plice Chiefs: Persnal cmmunicatins (Aug 17, 2004), Chief Marshall Chalmers, president f the AAPC indicated that the rganizatin des nt have a psitin r plicy n LDA in Alberta. Alberta Federatin f Plice Assciatins: E-mail cmmunicatin (July 19, 2004), Jn Netelenbs, Executive Directr AFPA, reprted that the AFPA has nt taken a frmal psitin n the issue. Alberta Schl Bards Assciatin: A dcument fund n the ASBA website indicated that the ASBA President requested a respnse frm the Minister f Learning in 2001 t a Directive fr Actin (9.D.01) supprting an increase in the LDA t 19. The dcument indicated that Minster s respnse supprted maintaining the LDA at 18 and that the gvernment appeared reslute in this psitin. It was recmmended that the Directin fr Actin be deleted. E-mail cmmunicatin (July 16, 2004), Bbbie Garner, Assciatin Affairs reprted that the ASBA handbk des nt cntain any plicies n LDA in Alberta. Canadian Assciatin f Chiefs f Plice: E-mail cmmunicatin (Aug 10, 2004), Peter Cuthbert reprted that he was unaware f any CACP cmmittee addressing the issue f underage drinking in Alberta r Canada and that since this is within Prvincial Statute, CACP wuld rarely get invlved. Canadian Centre n Substance Abuse: E-mail cmmunicatin (August 10, 2004), Chad Dubeau, Infrmatin Specialist, reprted that the CCSA des nt have an fficial plicy r psitin n the LDA in Ontari r Canada. Canadian Medical Assciatin: E-mail cmmunicatin (July 19,2004), Kelly Guglielmin, Infrmatin Services, reprted that the CMA des nt have a current plicy r psitin at this time. Health Sciences Assciatin f Alberta: E-mail cmmunicatin (Aug 9, 2004), Dug Meggisn, Plicy Analyst, HSAA, indicated that the unin des nt have a plicy n legal drinking age in Alberta. AADAC Plicy & Business Planning (Nvember 2005) Page 17 f 20
Organizatins Reprting Supprt Fr an Increased LDA Alberta Medical Assciatin: E-mail cmmunicatin (May 11, 2004), Shannn Rupnarian, Public Affairs, reprted that the AMA des nt have a plicy statement as such but that their current status is based n activities, bard and gverning bdy reslutins ver the years. They have supprted varius bills and initiatives t raise the LDA t 19. Alberta Mtr Assciatin: Statement f Plicy 2003-2004 (Plicy 6.6) states that the AMA supprts raising the LDA t 19. The plicy was adpted in 1988. E-mail cmmunicatin (May 15, 2004), with Kirsten Kelly, Advcacy and Cmmunity Services indicated that the AMA backgrund dcument is dated and that infrmatin used t frmulate plices in the 1980s may nt be applicable in 2004. The e-mail explained that releasing ld backgrund infrmatin might give members and the public the impressin that AMA is nt keeping current with relevant issues. Canadian Autmbile Assciatin: CAA Statement f Plicy 2003-2004, Recmmendatin 6.3.10, Crdinatin f Legal Drinking Ages: Prvincial gvernments are urged t crdinate their legal drinking ages t reduce the practice f crss-brder drinking and driving (O-91, R-01). AADAC Plicy & Business Planning (Nvember 2005) Page 18 f 20
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