Alcohol Harm
Reduction
Strategy
2012
Contents
1.0
– Introduction
... 2
2.0
– Purpose and scope
... 3
3.0
– Background and context
... 4
4.0
– Strategic alignment
... 9
5.0
– Aims and activities
... 10
6.0
– Alcohol Harm Reduction Strategy
... 11
7.0
– The programme plan
... 13
8.0
– Evaluation and monitoring
... 20
9.0
– Other considerations
... 25
10.0
– Glossary
... 27
Auckland is a vibrant and bustling city with many bars, restaurants, pubs and
cafes which adds to its vibrant and social atmosphere.
The hospitality, winery and tourism industries make a large contribution to Auckland’s economy. However, over the past years there has been an increasing level of community concern over the visible growth in alcohol-related harm in communities and the significant social and economic cost that this is incurring both locally and nationally.
Auckland Council understands the need to ensure there is balance between adding value to the social and economic environment of Auckland and minimising alcohol-related harm in communities.
2.0 Purpose and scope
What is alcohol-related harm?
Alcohol-related harm is a broad term used to encompass a range of negative effects resulting from consumption of alcohol. It includes anti-social behaviour that is disorderly, threatening, offensive or violent and criminal behaviour that results in injury or death. It encompasses assaults, road crashes or personal accidents that are attributed to the consumption of alcohol; lost productivity, absenteeism and accidents, and long term health consequences as a result of excessive consumption of alcohol.
Why have an alcohol harm
reduction strategy?
• To inform and guide Auckland Council staff, units' and departments' work in relation to alcohol.
• To reduce alcohol-related harm in our communities and create a safe healthy city where alcohol-related activities can be enjoyed with minimal risk of harm to Auckland communities.
• To achieve the Mayor’s vision of the world’s most liveable city.
Who is this strategy for?
This document is primarily directed at Auckland Council, in its various roles as employer, landlord, asset owner, regulator and community service provider. It will also inform central government legislators and departments such as the New Zealand Police, health and education sectors as well as non-government agencies, community organisations and the alcohol industry/sector on what Auckland Council is committed to in relation to alcohol.
The strategy will also clarify the roles and responsibilities of a range of external parties who will contribute to the shared goals of council alcohol-related work and signal opportunities to partner with Auckland Council.
What does this strategy intend to do?
This strategy establishes overarching direction through the aim of ‘a safe and healthy city where there is minimal risk of harm to Auckland communities from alcohol-related activities.’ It shows how Auckland Council’s alcohol harm reduction activities link into the Mayor’s vision and the strategic direction of the Auckland Plan. It discusses intended impacts of Auckland Council activities and ensures consistency in work related to alcohol and alcohol-related harm. It will embed and deliver a coordinated, consistent and systematic approach to reducing alcohol-related harm in our communities.What does the strategy include?
The strategy describes the policy intent, scope, aims, work streams and timescales of Auckland Council’s alcohol harm reduction activities. This strategy includes evaluation and monitoring indicators and measures to ensure Auckland Council’s alcohol harm reduction activities continue to be relevant and effective. It does not include details of specific non-regulatory projects or funding for alcohol-related harm reduction. (Please see section nine for more details).3.0 Background
New Zealand is recognised as having a permissive drinking environment which
is reflected in both our culture and our legislation. Drinking is seen as socially
acceptable and alcohol remains part of, or even a feature of, contemporary
New Zealand society. For many, it is a symbol of hospitality and it is
commonly used on occasions to celebrate important events in people’s lives.
Quick facts
• As at June 2011, there were 3346 licensed premises within the Auckland region (excluding special licences, caterers and conveyances). Sixty-one per cent of the licensed premises were on-licences (2052), 26 per cent were off-licences (874) and 13 per cent were club licences (420).
• Over 80 per cent of the adult population in New Zealand drink alcohol “occasionally”. Seven out of 10 (71.6 per cent) secondary school students reported having drunk alcohol and 60 per cent of youth classifying themselves as current drinkers (Adolescent Health Research Group, 2008).
• According to the Alcohol Use in New Zealand (2007-08) Survey; approximately 10.7 per cent of 16-64 year olds reported consuming more than six drinks (for a male or four drinks for a female) at least once a week.
• Almost 24 per cent of Māori drinkers consumed more than the recommended guidelines at least weekly in the past year (Ministry of Health, 2009). Pacific peoples are more likely to abstain than the general population, but from 1996/97 to 2007/08 there has been a significant increase in the prevalence of drinking for both Pacific men and women (Ministry of Health, 2009).
Economic
• Over 480 million litres of alcoholic beverages were put into the New Zealand marketplace in 2008; the equivalent of 9.5 litres of pure alcohol for every person over the age of 15 in New Zealand. • There is roughly $85 million being spent on retail
alcohol sales per week in New Zealand. Industries associated with alcohol contribute billions of dollars to the national economy each year.
• Nationally, over 80,000 people are employed in alcohol-related industries.
• There is also a high economic cost to society from alcohol-related harm. Estimates of the total cost to society from alcohol-related harm are between $1 billion and $4 billion per year (Easton, 2002). This includes costs of approximately $655 million in the health sector alone and an estimated cost to the economy of approximately $1.17 billion per year from lost productivity.
Health
Drinking responsibly is key to reducing alcohol-related health impacts. However, when alcohol is misused the resulting harms can be considerable. These include physical and mental health problems, injuries and death while under the influence of alcohol (including on the roads), drowning, violence, unplanned pregnancies and foetal abnormalities (Ministry of Health, 2009). Within the health sector, alcohol is recognised as a major contributor to preventable diseases, injury and accident. • In a report published in February 2011, the World
Health Organisation (WHO) identified alcohol as the leading risk factor for disease burden in the
Western Pacific (which includes New Zealand). WHO estimates that the harmful use of alcohol results in 2.5 million deaths globally each year.
• Alcohol is classified as a group 1 carcinogen (along with tobacco and asbestos), and contributes directly to over 60 different disorders and diseases.
• It has been estimated that there are around 1000 alcohol-attributed deaths per year in New Zealand (Ministry of Health, 2009).
• Accident Compensation Corporation (ACC) estimate up to 22 per cent of all claims each year had alcohol as a contributing factor. This equates to approximately $650 million per year.
• For the 2010/11 fiscal year, there were approximately 3600 alcohol-related presentations to emergency departments (ED) across the Auckland region. The total number of general ED presentations for the same period was 292,000.
• The most common cause for alcohol-related emergency department (ED) presentations during the 2010/11 fiscal year was intoxication, followed by general injury. There were six recorded deaths in Auckland EDs where alcohol use was coded as the main contributing factor.
• Sixty one per cent of alcohol-related presentation to ED in 2010/2011 were male and 42 per cent were under the age of 24 years (District Health Board Data, 2011). Figure one shows the distribution of alcohol-related presentations to Auckland emergency departments across the three district health boards by gender.
Number of pr
esentations
1600 1400 1200 1000 800 600 400 200 0 Counties Manukau DHB Auckland DHB Waitemata DHBDistrict Health Board
Male Female
Figure 1:
Auckland regional alcohol-related presentations to emergency departments by DHB and
gender fiscal year 2010-2011
• While Europeans had the highest percentage for alcohol-related hospital presentations; Māori and Pacific People had proportionately higher presentation rates.
Socio-environmental impact
Criminal offending
• Police estimate that approximately a third of all criminal offending is alcohol-related. This includes 49.5 per cent of homicides, 34 per cent of family violence incidents and 20 per cent of sexual offences (Ministry of Health, 2009).
Alcohol-related traffic issues
• In 2008, there were 29,739 drunk drivers convicted nationally, 31 per cent of which had already had previous drink driving convictions. The highest prosecution rates were for those aged 17 to 20 years.
• In 2009, alcohol and/or drugs were a contributing factor in 113 fatal traffic crashes, 420 serious injury crashes and 1107 minor injury crashes. These crashes resulted in 138 deaths, 576 serious injuries and 1743 minor injuries. For every 100 alcohol or drug-impaired drivers or riders killed in road crashes, 54 of their passengers and 27 sober road users die with them (NZTA, 2010).
• Between 2006 and 2010, alcohol was a factor in 29 per cent of fatal and serious injury crashes and 17 per cent of all injury crashes on Auckland’s local roads and 26 per cent of fatal and serious injury crashes and 12 per cent of all injury crashes on Auckland’s state highways (NZTA, 2011). A driver over the legal limit (80mg of alcohol per 100ml of blood) is sixteen times more likely to be involved in a fatal crash than a sober driver.
Figure 2:
Auckland regional alcohol-related presentations to emergency departments
by ethnicity fiscal year 2010-2011
European Māori Pacific People Asian Unknown Other
Area Local roads State highways
Percentage of all injury crashes where alcohol was a factor
Percentage of fatal and serious crashes where alcohol was a factor
Percentage of all injury crashes where alcohol was a factor
Percentage of fatal and serious crashes where alcohol was a factor
Rural north 21% 38% 15% 25% Urban north 15% 24% 9% 28% Urban west 16% 27% 14% 31% Urban central 14% 25% 11% 29% Rural south 21% 33% 11% 12% Urban south 21% 34% 13% 26%
Gulf Islands 44% 40% N/A N/A
Liquor ban breaches
• There are approximately 2342 permanent liquor bans in the Auckland region. In 2010, Police recorded 3735 offences for breach of liquor bans across Auckland. This data provides an indication of the issues associated with drinking in public; however, as the enforcement of liquor bans is one of many policing activities, the level of enforcement will be influenced by a variety of factors such as other operational demands on police.
Legislative context
The Local Government Act 2002 states that the purpose of local government is “to promote the social, economic, environmental, and cultural well-being of communities, in the present and for the future”.
The sale, supply and consumption of alcohol directly or indirectly impacts on all of these well-beings, and as such, is integrally linked to the core business of Auckland Council.
In August 2008, the Law Commission commenced a comprehensive review of New Zealand’s alcohol laws. In April 2010, the commission published its final report, entitled 'Alcohol in Our Lives: Curbing the Harm'. The report summarised the key issues raised through the submission process and presented the commission’s final recommendations to the government.
The recommendations were to repeal and replace the Sale of Liquor Act (SOLA) 1989 with a new statute called the Alcohol Harm Reduction Act, which has increased emphasis on supply control, demand reduction and problem limitation to reduce alcohol-related harm.
The Alcohol Reform Bill, which was introduced to Parliament on 8 November 2010, is the government’s legislative response to the commission’s work. The purpose of the Bill is to establish a new system of control over the sale and supply of alcohol.
The policy objectives of the Bill are to reduce excessive drinking by young people and adults, reduce the harm caused by alcohol use, including crime, disorder, public nuisance and negative public health outcomes. It will also support safe and responsible sale, supply and consumption of alcohol, improve community input into local alcohol licensing decisions and improve the operation of the alcohol licensing system. Once passed, the Bill will repeal and replace the Sale of Liquor Act 1989 (SOLA) with the Sale and Supply of Alcohol Act. The Act will empower territorial authorities to develop local alcohol policies, which licensing decision-makers will be required to consider when making licensing decisions. This will provide Auckland Council with a significant opportunity to develop new policy to address the widespread concerns about alcohol-related harm and contribute to the Mayor’s vision to make Auckland the world’s most liveable city.
4.0 Strategic alignment
Mayor’s vision
The Mayor sets and promotes the vision for Auckland, leading Auckland to reach its full potential. The Mayor’s vision for Auckland is to ‘create the world’s most liveable city’.
The Auckland Plan
The Auckland Plan sets a strategy for how the Mayor’s vision of ‘the world’s most liveable city’ can be realised. It includes long-term social, economic, environmental and cultural objectives for Auckland and its communities, and identifies fifteen strategic directions. Each one of these are accompanied by priorities for action and have specific targets.
Relevant strategic directions
Relevant priorities How this strategy supports the strategic directions 1. Create a strong,
inclusive and equitable society that ensures opportunity for all Aucklanders
1. Put children and young people first
2. Improve the education, health and safety of Aucklanders, with a focus on those most in need
3. Strengthen communities
• Provides direction and information on the regulatory and non-regulatory activities of Auckland Council and will provide a coordinated, consistent approach to alcohol-related harm.
• Provides a strategy that will contribute to the health, safety and well-being of communities.
• Creates opportunities for a range of stakeholders from across the community to have input into the alcohol harm reduction activities of Auckland Council. • By working with and targeting specific higher risk
population groups to reduce inequities. 6. Develop an
economy that delivers opportunity and prosperity for all Aucklanders and New Zealand
1. Grow a business-friendly and well-functioning city 4. Enhance investment in people to grow skills and a local workforce
5. Develop a creative, vibrant international city
• Provides a region-wide approach to alcohol policy and planning which will provide a balance between the economic benefits and the social costs of the alcohol industry.
• Identifies ways that the Auckland Council can work proactively with business communities to achieve mutually beneficial outcomes in the area of alcohol harm reduction.
5.0 Aims and activities
This strategy is designed to help shape and influence Auckland Council’s
actions in relation to alcohol. The strategy identifies an overarching aim and
the values that underpin this work. It identifies the roles and broad activity
areas Auckland Council will undertake, the impacts of these activities and
how these can be measured and monitored over time.
Aim:
A safe and healthy city where there is minimal risk of harm to Auckland communities from alcohol-related activities.
Activities:
Auckland Council will work towards the reduction of alcohol-related harm in the community through:
1. Regulatory activities 2. Non-regulatory activities 3. Communication
4. Information and education
The Alcohol Harm Reduction
Strategy Values:
Auckland Council will effectively reduce alcohol-related harm in accordance with the following strategic values.
Bold leadership
Auckland Council will use its strategic position and influence both regionally and nationally to send a bold, clear and consistent message to both central
government and the community about alcohol-related harm and the need for a significant cultural shift to reduce the long term negative impacts of alcohol on our communities and society.
Strong partnering
Auckland Council will identify opportunities to work with others to maximise the effectiveness of alcohol harm reduction initiatives within Auckland. In doing this it will seek to minimise duplications and eliminate gaps to ensure efficiencies for Auckland Council and the community.
Empowering communities
Auckland Council will continue to work with local communities to build up their capacity for community development; it will engage with the community when making decisions about alcohol harm reduction and will empower and resource local communities to have a voice in regional and national alcohol-related decision making.
6.0 Alcohol Harm
Reduction Strategy
This diagram illustrates how this strategy links into the Mayor’s vision and the Auckland Plan’s strategic directions. It identifies the key activities Auckland Council is responsible for and the intended positive impacts that these activities will have on Auckland. These activities and associated impacts will all contribute to the overall strategic aim of ‘a safe and healthy city where there is minimal risk of harm to Auckland communities from alcohol-related activities.’Vision
Vision
The world's most liveable city
Strategic links to the Auckland Plan
Alcohol harm reduction strategic outcome
Alcohol harm reduction strategic outcome
A safe and healthy city where there is minimal risk of harm to Auckland communities from alcohol-related activities
Impacts
Impacts
Safe city
An Auckland where residents feel safe in their neighbourhoods
and public spaces
Fair & well informed
Effective, evidence based projects, planning and
implementation
Increased responsibility
Increased awareness of alcohol-related harm
and responsible use of alcohol by
alcohol-related industries
Healthy city
Increased awareness of alcohol-related harm and responsible use of
alcohol by residents
Activities
Activities
Regulatory • Regional & local planning • Policy • Bylaws • Liquor licensing • Regulation & enforcement • Advocacy • Consultation & engagement processes Information & education • Educational programmes • Appropriate data gathering and management • Research, monitoring and evaluation Communication • Messaging and social media • Appropriate and responsible communication and customer service • Clear and transparent rules • Advertising Non-regulatory • Host responsibility; funder and organiser of community events and functions, landlord, assetowner, employer and public transport provider
• Inter-sectorial projects and planning • Networks, partnerships
and collaboration with: - Central government - Government agencies - Industry - Community
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7.0 The programme
plan
Activity and roles
Activity Summary Responsibility and key contact Timeframe
Regulatory
Unitary Plan Auckland Council is responsible for regulating and granting consent for land-use to remedy, mitigate or avoid negative effects that activities may have on the environment. Auckland Council will ensure that the Unitary Plan considers issues such as safety, connectivity, transport, greater recognition of the different environment effects of alcohol outlets, as well as a balance of land use activities, without particular dominance from one activity.
Auckland Council will carefully plan the location of premises and consider drinking environments.
Consider the effect alcohol has on its other policies such as gambling venue policy, beach control bylaw, public places bylaw, and liquor trading hours.
Regional and Local Planning Manager Planning and Policy Manager Unitary Plan
Medium term/ Ongoing
Policy Auckland Council will complete research and
develop a Local Alcohol Policy and an Alcohol Control Policy, following the Alcohol Reform Bill requirements.
These policies will be regularly reviewed.
Community Policy and Planning Team Leader Regional Social Policy
Medium term (3 years)
Consultation and engagement processes
Auckland Council is both legislatively required and committed to ensuring the voice of the community is heard in council decision making processes. Auckland Council will undertake broad and meaningful community engagement and consultation.
Consultation and engagement is critical in ensuring democratic local governance and ensures relevant and sustainable projects and planning.
Community Policy and Planning Local Board Services
Community Development and Safety
Ongoing
Advocacy Auckland Council will continue to make
submissions to central government on alcohol-related legislation and will utilise relationships to influence and provide advice to government departments and ministers as opportunities arise.
Regional and Local Planning and Policy
Manager Policy and Planning Community Development, Arts and Culture (Community Development and Safety) Manager Community Development and Safety
Ongoing
Sole responsibility of Auckland Council Partnership/support or secondary role
Activity and roles
Activity Summary Responsibility and key contact Timeframe
Bylaws Auckland Council will develop an Alcohol
Control bylaw to enable council to create, amend and revoke liquor bans across the region.
Auckland Council will continue to pass and enforce bylaws to protect the public from nuisance, to maintain public safety and to minimise the potential for offensive behaviour in public places.
Bylaws, Licensing and Compliance Manager Licensing and Compliance
Regional and Local Planning and Policy
Manager Policy and Planning
Medium term/ongoing
Liquor licensing (Supply control)
Auckland Council will raise licensees’ awareness of their responsibilities and assist licensees with meeting their responsibilities. Auckland Council will administer the functions of District Licensing Agency/Committee for the region and will issue licences and managers' certificates and monitor premises for compliance with the Sale of Liquor Act. Where breaches are detected, council will engage in the appropriate corrective action. As well as issuing licences council officers from Licensing and Compliance and from Community Development and Safety will be available to provide advice and guidance to licensees.
Licensing and Compliance Manager Licensing and Compliance
Ongoing
Regulation and enforcement
Auckland Council will ensure consistency and transparency of decision making both at officer and committee level and ensure service delivery processes are standardised and aligned across the city. Auckland Council is committed to communicating decisions that can be clearly demonstrated as lawful and evidence based, which add value to desired community outcomes.
Licensing and Compliance Manager Licensing and Compliance
Long term/ongoing
Non-regulatory
Host responsibility Funder, organiser of community events and functions:
Auckland Council will control and manage the use of alcohol at events to create a vibrant city while minimising alcohol-related harm. Auckland Council will consider the impact of alcohol at events, for example signage, sponsorship, and traffic/transport management. Auckland Council will
communicate and support, where appropriate, responsible alcohol consumption messages.
Events:
Community Development, Arts and Culture - Events
Manager Events
Ongoing
Employer:
Auckland Council is one of the largest employers in Auckland and therefore will model itself as a good employer by promoting host responsibility and alcohol-free events.
HR:
Human Resources Manager Human Resources
Transport provider:
Provide public transport as a safe alternative mode of travel to reduce drinking and driving.
Transport: Transport CCO
Activity and roles
Activity Summary Responsibility and key contact Timeframe
Host responsibility continued...
Landlord and asset owner:
As the owner of community facilities in Auckland, such as halls, community houses, and recreational centres, council will determine conditions and enforce compliance on the use of alcohol at these facilities.
Facilities:
Community Development, Arts and Culture (Community Facilities)
Manager Community Facilities Licensing and Compliance Manager Licensing and Compliance
Inter-sectorial projects and planning
Auckland Council will share information, align services and provide and support comprehensive complementary, outcomes-based programmes and projects that operate across council to help to reduce alcohol-related harm in Auckland communities. Auckland Council will continue to be actively involved in forums and networks and be a catalyst for collaboration amongst both service providers and industry stakeholders by facilitating, supporting and participating in regional and sub-regional forums and networks. These periodic gatherings should be focussed on informing and resourcing the sector.
Community Development, Arts and Culture (Community Development and safety) Manager Community Development and Safety
Ongoing
Medium to long term
Collaborate with the government and government agencies
Auckland Council will utilise its relationships and influence to inform and work with central government ministers and departments in the best interests of Auckland’s communities. Examples of this may include providing advice to the Ministry of Justice, via the Local Government Alcohol Reference Group or connecting directly with government ministers through the Auckland Social Policy Forum. Auckland Council will actively work in partnership with other government agencies such as the Police, District Health Boards, Ministry of Justice, Ministry of Social Development and Accident Compensation Corporation to help reduce alcohol-related harm.
Regional and Local Planning Manager Regional and Local Planning
Community Development, Arts and Culture (Community Development and Safety) Manager Community Development and Safety
Ongoing
Work with the hospitality Industry and key stakeholders involved in liquor service and retailing
Auckland Council will actively improve relationships with the alcohol industry. Acknowledging that alcohol manufacturing and supply are legitimate industries that contribute to the economy and the social context of the region; Auckland Council will work with key stakeholders in the industry, such as Hospitality Association of New Zealand (Hospitality NZ) and the Licensing Trusts to name a few, to promote responsible business practices.
Licensing and Compliance Manager Licensing and Compliance
Community Development, Arts and Culture (Community Development and Safety) Manager Community Development and Safety Regional and Local Planning Manager Regional and Local Planning
Activity and roles
Activity Summary Responsibility and key contact Timeframe
Collaborate with the community – community action and engagement
Auckland Council will work collaboratively with community groups to ensure sustainable practices to minimising alcohol-related harm. Auckland Council will provide tools to enable community groups and networks to find place-based local solutions to local problems. This may also encompass specific activities and projects targeted at geographic regions or locations such as The Waiheke Island Sensible Host initiative.
Auckland Council recognises that non-geographic communities have different needs and will respond to different approaches. Some programmes will be most effective if they are developed with and for these specific communities of interest. Auckland Council will help reduce inequalities through supporting and encouraging population specific initiatives. Target populations may include (but are not limited to) Māori, Pacific people, youth, students or parents.
Auckland Council will work with community groups and networks and continue to help fund, and support community based alcohol harm reduction projects and programmes.
Community Development, Arts and Culture (Community Development and Safety) Manager Community Development and Safety
Māori Strategy and Relations
Manager Māori Strategy and Relations
Regional Strategy and Community and Cultural Policy Manager Regional Strategy and Community and Cultural Policy
Ongoing
Communication
Messaging, media and social media
Auckland Council will ensure that there is consistent and appropriate messaging around the impact of alcohol on local communities from all levels of the organisational and political structure.
Auckland Council will use the free media and its own channels to promote media articles consistent with the principles of the strategy, highlighting its own work and initiatives in alcohol harm reduction.
Auckland Council will effectively utilise media and social media technologies to highlight the work that council is engaged in around alcohol harm reduction. Auckland Council will be responsive and available through allowing easy access to information and resources.
Licensing and Compliance Manager Licensing and Compliance
Community Development, Arts and Culture (Community Development and Safety) Manager Community Development and Safety Community Development, Arts and Culture (Events) Manager Events
Communications and Public Affairs
Manager Communications and Public Affairs Long term/ongoing Appropriate and responsible communication and customer service
Auckland Council will develop and provide tools and channels that support responsible alcohol consumption.
Auckland Council will ensure that council staff have accurate and relevant information to effectively direct customer enquiries to either the correct source of information or the correct person to quickly address their needs. Auckland Council will strive to also include good news stories and the celebration of successful alcohol-related harm reduction projects.
Communications and Public Affairs
Manager Communications and Public Affairs
Customer Service Manager Customer Service Licensing and Compliance Manager Licensing and Compliance
Activity and roles
Activity Summary Responsibility and key contact Timeframe
Clear and transparent rules
Auckland Council will ensure there is regional consistency and provide clear and practical messaging and working. Local variance is acceptable provided it is clear which areas are covered by area-specific rules, that the rules are consistently applied and that potential cross boundary impacts are considered. External stakeholders and the community will be able to have access to a description of the rules and processes under which decisions are made. Examples of how council will demonstrate this include consistent definitions used within the Unitary Plan, bylaws and local alcohol policy once these are developed. Auckland Council will provide information on the website that clearly articulates the criteria for granting a liquor licence.
Regional and Local Planning Manager Planning and Policy Licensing and Compliance Manager Licensing and Compliance
Medium term/ ongoing
Advertising Auckland Council will ensure responsible
advertising and sponsorship practices pertaining to alcohol in the areas it controls. Auckland Council will use its judgement and discretion in relation to advertising and sponsorship by alcohol-related companies or products in the areas it controls.
Auckland Council will also aim to ensure alcohol sponsorship is not used at events or activities aimed at children and youth.
Community Development, Arts and Culture (Community Development and Safety) Manager Community Development and Safety Community Development, Arts and Culture (Events) Manager Events
Communications and Public Affairs
Manager Communications and Public Affairs
Ongoing
Information and education
Educational programmes
Auckland Council will work towards increasing awareness of harm in our communities and promote a balanced approach to alcohol that will contribute to a vibrant, economically successful city while minimising the harm to communities from the misuse of alcohol. Auckland Council will continue to run, participate in and promote a wide range of educational initiatives targeted at licensees, youth, parents and the general public to promote the responsible use of alcohol. Many of these projects are funded (or partially funded) by external agencies such as the Ministry of Justice, Ministry of Health, Accident Compensation Corporation and the Ministry of Transport. The Alcohol Advisory Council of New Zealand. Auckland Council will support these where it is appropriate.
Community Development, Arts and Culture (Community Development and Safety) Manager Community Development and Safety Licensing and Compliance Manager Licensing and Compliance Medium term/ ongoing Appropriate data gathering and management
Auckland Council will collect and share appropriate and relevant data and statistics for each area and indicator. For example, this may include collaborative data collection and management of consumption behaviour, health and injury data, licence density data, liquor ban data and breaches of licence conditions.
Research, Investigations and Monitoring Unit
Manager Research, Investigations and Monitoring
Licensing and Compliance Manager Licensing and Compliance
Activity and roles
Activity Summary Responsibility and key contact Timeframe
Research, monitoring and evaluation
Auckland Council will ensure effective practise and programmes through monitoring and evaluating planning, regulation and programmes to minimise alcohol-related harm.
Each unit will individually ensure projects and planning are evaluated and monitored to ensure we achieve the best outcomes for the communities of Auckland.
Auckland Council will work towards developing consistent work processes and procedures to increase the effectiveness of projects and planning. Auckland Council will strive to monitor the success of procedures and structures related to its alcohol functions. Data and statistics have been gathered through this alcohol programme of work and can be used as part of a base line to monitor and assess the changes in alcohol-related harm for Auckland.
Research, Investigations and Monitoring Unit
Manager Research, Investigations and Monitoring
Ongoing
Other agency activities
Community policing / drinking and driving
NZ Police enforce liquor bans as well as deal with drinking and driving and violent offences linked with alcohol. NZ Police are also stakeholders and participants in various community groups, activities and projects regionally and nationally. Auckland Council will actively partner with NZ Police for data management, analysis, enforcement and community services/projects.
NZ Police
Public Health and District Health Boards
Medical officers of health report on-licence applications and their officers’ visit on-licence premises in relation to host responsibility and smoke-free compliance issues. Public health also has a role in alcohol and public health initiatives, projects and planning. Ministry of Health are a funder of several alcohol initiatives.
Auckland Council will actively partner with Public Health Organisations and District Health Boards for data sharing, analysis and collaborative projects.
Auckland District Health Board Waitemata District Health Board Counties Manukau District Health Board
Auckland Regional Public Health Service
Mental Health Foundation
Accident prevention Accident Compensation Corporation (ACC) are actively involved in safety and accident/injury prevention as well as alcohol/drunk driving initiatives with several other agencies such as NZ Police and Ministry of Health.
Auckland Council will actively partner with ACC in information campaigns, events and project such as injury prevention as well as share information and data.
Accident Compensation Corporation
Fire NZ Fire Service have a statutory role under the Sale of Liquor Act and are especially interested in fire safety issues in licensed premises. They are actively involved in marketing and fire safety and information campaigns to reduce alcohol-related harm.
Auckland Council will actively partner with NZ Fire Service to share information and data.
Activity and roles
Activity Summary Responsibility and key contact Timeframe
School based information and general education – changing the social norm
Health Promoting Schools, the Ministry of Health, Ministry of Social Development, Ministry of Education and several other agencies are involved in school based education and general alcohol education and information campaigns for the community. Police Youth Education Service visit schools and may be another vehicle for delivery of alcohol education to schools.
Auckland Council will liaise (as appropriate) with agencies to assist with evidence based education, advocacy and information campaigning relating to alcohol-related harm.
Ministry of Health District Health Boards Child and Youth against Alcohol and Drugs
Counselling and treatment
Regional District Health Board Alcohol and Drug Services, Alcoholics Anonymous (AA) and other public and private counselling/ therapy services provide confidential advice and assistance to the public about alcohol and alcohol addiction.
The Alcohol Drug Helpline deliver advice on their helpline (0800 787 797) offering brief information and advice to callers with concerns about their own or others drinking. They are also a useful stakeholder for referrals from Police or Health services that have contact with hazardous or harmful drinkers. Auckland Council will work with these agencies to share information and data.
AA
Mental Health Foundation Community Alcohol and Drug Services
Alcohol-Drug Helpline
Hospitality industry The hospitality industry includes bars, restaurants, cafés, sports clubs, events and industry support services.
Hospitality NZ is a support service to the industry and provides advice, advocacy services, guidelines and resources on employment, liquor licensing and general hospitality issues.
Auckland Council will actively work with the hospitality and alcohol industry to reduce alcohol-related harm through networking, sharing of information and data and provide rules and regulations.
Hospitality New Zealand Restaurant Association New Zealand
Sports Club Association New Zealand
8.0 Evaluation and
monitoring
This section provides guidance on evaluating and monitoring Auckland
Council’s alcohol-related activities. It lists the activity, the possible methods of
evaluation and monitoring and the possible indicators council could consider
when measuring effectiveness of the alcohol harm reduction activities.
Each individual unit and department currently has their own evaluation and monitoring systems. All units and departments will use this strategy as a guideline for their alcohol harm reduction work. As projects are developed, units will complete a project definition form (or equivalent) which links the unit’s projects to this strategy. It is then recommended all work be reviewed, monitored and evaluated at least every three years and more frequently where appropriate, using some of the evaluation and monitoring methods and indicators provided.
Auckland Council will develop and maintain appropriate IT systems and mechanisms to monitor, store and share information and statistics that can be used to monitor success and inform future decision making.
The monitoring and evaluation table outlines council activities and relevant impacts for that activity, as well as the potential method and relevant indicators designed to measure council’s progress or effectiveness.
Activity Potential method Indicators Regional and Local Planning • Data gathering • Surveys • IT systems and mechanisms to monitor, store and share information over time
• Crime Prevention Through Environmental Design
• Impact Assessments.
• Environmental harm statistics – amount of environmental harm / damage; noise, litter, traffic, property damage • Safety surveys – perceptions of safety • Quality of life surveys - perceptions of safety / health • Crime statistics • Liquor ban/breach of liquor ban statistics • Noise complaints • Number of breaches of liquor licensing requirements • Health statistics • Number of alcohol-related issues and impacts mentioned/actioned in city planning • Number of submissions / objections. Policy • Data gathering
• Surveys
• IT systems and mechanisms to monitor, store and share information over time
• Crime Prevention Through Environmental Design • Impact Assessments. • Safety surveys – perceptions of safety • Quality of life surveys - perceptions of safety / health • Crime statistics • Liquor ban / breach of liquor ban statistics • Noise complaints • Number of breaches of liquor licensing requirements • Health statistics • Liquor licence density • Number of submissions / objections. Consultation and engagement processes • Data gathering • Surveys. • Number of information points and access levels • Number of multi-language information / communication • Number and quality of consultation and engagement. Advocacy • Data gathering • Surveys. • Number of submissions to central government • Number of successful advocacy campaigns • Number of partnered projects / campaigns • Amount of messaging and information sharing. Bylaws • Data gathering • Surveys • IT systems and mechanisms to monitor, store and share information over time.
• Number new / old / removed liquor bans geographically • Number of liquor ban breaches. Liquor licensing (Supply control) • Data gathering • Surveys • IT systems and mechanisms to monitor, store and share information over time.
• Number of new / old / removed on / off licences • Assessment of liquor licensing density data • Recording opening hours • Demographic / social deprivation mapping • Number of inspections / complaints / community objections • Feedback on levels of service provision.
Regulatory
Relevant impacts:Safe city; an Auckland where residents feel safe in their neighbourhoods and public spaces
Healthy city; increased awareness of alcohol-related harm and responsible use of alcohol by residents
Increased responsibility; increased awareness of alcohol-related harm and responsible use of alcohol by alcohol-related industries
Activity Potential method Indicators Regulation and enforcement • Data gathering • Surveys • IT systems and mechanisms to monitor, store and share information over time.
• Safety surveys • Quality of life surveys • Crime statistics • Health statistics • Liquor ban / breach of liquor ban statistics • Noise complaints • Number of breaches of liquor licensing requirements.
Activity Potential Method Indicators
Host Responsibility; Funder, organiser of community events and functions, employer, transport provider, Landlord and Asset owner • Data gathering • Surveys • IT systems and mechanisms to monitor, store and share information over time.
• Number of alcohol free events
• Number of special licences requested for events • Number of late bus services
• Transport surveys - number of positive / negative comments / public opinion
• Numbers using public transport
• Number of community facilities that provide alcohol • Survey and data collection on safety measures where
alcohol is served at events • Number of inspections. Inter-sectorial project and planning • Data gathering • Surveys • Crime Prevention Through Environmental Design • Impact Assessments. • Number of inter-sectorial projects council-wide • Number of projects that contribute to the reduction of alcohol-related harm • Number of activities, consultations, campaigns, workshops, open discussions with agencies / organisations – feedback from participants • Levels of information sharing and analysis. Collaboration with
the government and government agencies
• Data gathering • Surveys
• IT systems and mechanisms to monitor, store and share information over time.
• Number of partnered projects that contribute to the reduction of alcohol-related harm
• Number of activities, consultations, campaigns, workshops, open discussions with government agencies – feedback from participants • Levels of information sharing and analysis. Working with
the Alcohol and hospitality industry
• Data gathering • Surveys
• IT systems and mechanisms to monitor, store and share information over time.
• Number of activities, consultations, campaigns, workshops, open discussions with industry
• Number of visits and inspections, information sharing, communication and contact with industry.
Collaboration with the Community – community action and engagement • Surveys • Qualitative research • Impact Assessments. • Number of activities, consultations, engagement, campaigns, workshops, open discussions with community and community groups – participant feedback • Number of support services provided – participant feedback.
Non-regulatory
Relevant impacts:Safe city; an Auckland where residents feel safe in their neighbourhoods and public spaces
Healthy city; increased awareness of alcohol-related harm and responsible use of alcohol by residents
Increased responsibility; increased awareness of alcohol-related harm and responsible use of alcohol by alcohol-related industries
Activity Potential Method Indicators
Messaging and social media
• Information gathering. • Information levels via social media / website – user numbers / hits on alcohol pages on website / number of comments / blogs / media releases sent • Readers / community feedback • Number of positive messaging / media releases • Number of information points / methods used • Number of multi-language information / communication. Appropriate and responsible communication and customer service • Data gathering • Surveys. • Information levels • Number of positive messaging • Number of information points and access • Number of multi-language information / communication • Number of satisfied customers / number of complaints. Clear and transparent rules • Data gathering • Surveys. • Customer satisfaction / complaints / feedback • Availability of rules and regulations – access points and clarity • Amount of information requests • Amount of definitions and processes available to the public.
Advertising • Data gathering. • Number of events or functions with / without alcohol advertising or sponsorship
• Number of times alcohol is / is not advertised on community facilities, in reserves and on public transport
• Number of complaints / enquiries.
Communication
Relevant impacts:
Increased responsibility; increased awareness of alcohol-related harm and responsible use of alcohol by alcohol-related industries
Fair and well informed; effective evidence based projects, planning and implementation
Activity Potential Method Indicators
Education programmes • Data gathering. • Number of education projects, programmes • Partnership / agency / external organisation feedback • Feedback from licensees, public, agency, external
organisations on information availability • Number of capacity building initiatives
• Communications log – amount of information and statistics circulated / published
• Quality and impact of capacity building initiatives. Appropriate data gathering and management / research monitoring and evaluation • Data gathering • Assessment. • Number of projects and programmes / plans monitored, evaluated, assessed for effectiveness • Number of research projects commissioned
• Number of units and departments that have processes in place – feedback.
Information and Education
Relevant impacts:
Increased responsibility; increased awareness of alcohol-related harm and responsible use of alcohol by alcohol-related industries
Evaluation of this strategy
An evaluation of this Alcohol Harm Reduction Strategy will take place every three years. This will involve an examination of the relevance, practical use and effectiveness of the strategy. The strategy will be assessed and updated to ensure it is linked to the Auckland Plan and local board plans, council activities and responsibilities in relation to alcohol.
This strategy and the associated intended impacts will be evaluated using the relevant indicators
identified above to review and assess progress towards the aim of ‘A safe and healthy city where there is minimal risk of harm to Auckland communities from alcohol-related activities.’
The evaluation also provides an opportunity to collate data from on-going research, council activities, projects and plans to further improve our work in reducing alcohol-related harm in our communities.
9.0 Other considerations
A number of other issues and matters to consider have been identified
through internal stakeholder engagement and through the development
process of this strategy. This section lists those considerations and
details a response for each.
No specific projects are mentioned or
committed to in this document.
Response:
Some departments and units are still developing action planning documents, timeframes and determining their commitment to funding and therefore full details of specific projects are not listed or discussed in this document. The details of projects and planning will be the sole charge of the unit or department.
This strategy is a high level document and does not go into project level detail. This also ensures this document does not date quickly.
Priorities, demand and resourcing.
Response:
There will be times when limited resources and/or competing demands mean that council will need to prioritise its actions around alcohol-related harm. The priority for action will be determined by how closely a proposed activity aligns with the identified priorities and relevant strategic directions identified in the Auckland Plan. The more of these priorities that an activity aligns with or contributes towards, the stronger the priority council will place on this activity. It will be up to the individual department and unit to use evidence based information to decide which projects get priority and funding.
Influence of the Alcohol Reform Bill
on Auckland Council activities
Response:
Auckland Council is currently waiting for the Alcohol Reform Bill to be enacted and therefore the exact impact on council’s alcohol harm reduction activities are yet to be confirmed.
Alcohol harm reduction activities
The Alcohol Reform Bill gives Territorial Authorities (TAs) the discretion to adopt a local alcohol policy (LAP). The LAP requires a special consultative procedure to consult with the wider community, Police, licensing inspectors and medical officers of health.
Once the Bill is enacted, council will need to follow the provisions of the statute in developing a LAP. The Bill currently sets out the matters that must be given regard to before producing a draft LAP including; the number, location and operating hours of licences, demographic information of residents and visitors, and health indicators. The Bill sets out the matters that may be contained in a policy, including; provisions relating to the concentration, location and operating hours (including one-way door policies) of alcohol outlets. Once adopted, the LAP would be statutorily recognised and taken into account in licensing decisions.
Licensing bodies
The Alcohol Reform Bill if enacted as it presently stands, will replace the District Licencing Agencies with the District Licencing Committee (DLC) and will expand its powers and functions to include the determination of all licence applications (whether opposed or unopposed) and manager's certificates in the first instance. It replaces the Liquor Licensing Authority with the Alcohol Regulatory and Licensing Authority (ARLA). The ARLA will consider applications referred to it by the DLC and any appeals to decision makers made by the DLC.
Fees:
The Bill would allow the Governor-General to make regulations to prescribe maximum or minimum licensing fees and annual fees payable to ARLA and/or TAs.
There are limited consultation requirements before making any regulations and the Bill also allows the Governor-General, by Order in council, to authorise TAs to prescribe their own fees by a bylaw. Fees may be set on a full cost recovery basis, and may distinguish between different premises based on matters such as patron capacity, trading hours, the licensee’s previous conduct. The regulation must be reviewed every five years.
Conflict in advertising and
sponsorship of alcohol
Response:
Auckland Council events are sometimes sponsored by alcohol companies and currently the alcohol industry can (and does) advertise on buses, at events and in parks and council facilities.
Currently the space on most buses / public transport is not owned by council and therefore, at this time, Auckland Council does not have authority to prohibit alcohol advertising on buses and public transport. Auckland Council in principle will commit to prohibiting alcohol advertising where the event or audience is aimed at children or young people.
Many events are currently sponsored by the alcohol industry therefore it would not be appropriate to prohibit the use of all alcohol advertising and sponsorship.
Auckland Council supports responsible use of alcohol and understands the need to ensure there is balance between adding value to the social and economic environment of Auckland and minimising alcohol-related harm in communities.
10.0 Glossary
Auckland Plan
The Auckland Plan is the overarching 30-year visionand strategy for Auckland. It will inform the long-term plan and will also give effect to other planning strategies include Area Spatial Plans and the Auckland Unitary Plan.
Deprivation index
Deprivation indices measure the level of deprivation in an area. The New Zealand Deprivation Index is a measure of the level of socio-economic deprivation in small geographic areas of New Zealand (mesh blocks). It is created using Census data for the several variables for example car and telephone access, unemployment, educational qualifications etc. The index ranges from 1 to 10. A score of 1 indicates that people are living in the least deprived 10 per cent (decile) of New Zealand and index 10 being the most deprived.
District Licensing Agency (DLA)
District Licensing Agencies (DLAs) are responsible for administration, monitoring and enforcement of liquor licences and managers’ certificates. In particular, DLAs issue liquor licences and managers' certificates when there is no opposition to the licence or certificate. For the Auckland region, Auckland Council is constituted as the Auckland DLA.
District plan
A district plan is a statutory planning document designed to manage land use and development in a particular area.
ED
Emergency department.
Licensed Premises
A premises that is licensed to sell or supply alcohol
Licensing trust
Licensing trusts are community controlled organisations that have authority to exercise control over liquor in a community. Any excess proceeds made by the Trust are put back into the community
Liquor ban/alcohol control
Liquor bans prohibit the consumption of liquor in certain public places. Liquor bans are created by local authorities, and enforced by the Police. The terms alcohol control and liquor ban are interchangeable.
Liquor Licensing Authority (LLA)
The Liquor Licensing Authority (LLA) is a tribunal administered by the Ministry of Justice. The LLA determines applications relating to liquor licences and manager's certificates that have been referred to it by a district licensing agency. The LLA also determines applications for suspension and cancellation of a licence or manager's certificate.
Local board plans
Local board plans are three year planning documents specific to each of Auckland’s 21 local boards.
Off-licence
Off licences are licensed to sell or supply alcohol to the public for consumption elsewhere (e.g. bottle store, supermarket). (see also on-licence and club licence).
One-way door policy
If a one-way door policy is in place at a licensed premises, after a certain time customers can remain at the premises until they leave, but once they leave they will not be allowed to re-enter. During this period, new customers will not be able to enter the premises.
On-licence
The term on-licence describes an establishment that is licensed to sell or supply alcohol for consumption on the premises, such as a pub, bar, nightclub or café.
SOLA
Sale of Liquor Act 1989.
Special licence
A licence where one can sell and supply liquor on a premises or conveyance (e.g. boat, train) at an occasion or event (or series of occasions or events) and is only valid for a specific timeframe (see also on-licence, off-licence and club off-licence).
Standard drink
A standard drink equals 10 grams of pure alcohol. One 330ml can of beer, a 100ml glass of table wine or a 30ml glass of straight spirits is generally regarded as a standard drink. However, this is dependant on the alcohol percentage.
Unitary Plan
The Auckland Unitary Plan is the resource management plan and is the principal regulatory tool to implement the Auckland Plan.
11.0 Reference list
Alcohol Advisory Council of New Zealand. (2005). Planning for Alcohol in the Community.
http://www.alac.org.nz/ PublicationsAndOrders.aspx
Alcohol Advisory Council of New Zealand and Ministry of Health. (2001). National Alcohol Strategy 2000-2003. Wellington: ALAC; Ministry of Health.
Auckland Council (2012). Local Alcohol Policy Research report. Auckland; New Zealand.
Babor, T. F., Caetano, R., Casswell, S., Edwards, G., Giesbrecht, N., Graham, K., Grube, J., Gruenewald, P., Hill, L., Holder, H., Homel, R., Österberg, E., Rehm, J., Room, R. and Rossow, I. (2003). Alcohol: No Ordinary Commodity-Research and Public Policy.
Oxford and London: Oxford University Press.
Conway, K., and Greenaway, S (2006) Research on alcohol-related harm in Auckland City. Centre for Social and Health Outcomes Research and Evaluation. Auckland, NZ.
Hill, L., Stewart, L. (1996). The Sale of Liquor Act 1989: reviewing regulatory practices.
Social Policy Journal of New Zealand. 7, Pp 174-190.
Law Commission. (2009). Alcohol in our lives; an issues paper on the reform of New Zealand’s Liquor Laws.
Matheson, A. (2005). Alcohol in Auckland: Reducing Associated Harm. Prepared for the Auckland Regional Public Health Service.
Ministry of Health. (2009). Alcohol Use in New Zealand: Key results of the 2007/08 New Zealand Alcohol and Drug Use Survey. Wellington: Ministry of Health. Pp 39-40.
New Zealand Law Commission (2010). Alcohol in our lives: Curbing the harm. A report on the review of the regulatory strategy for the supply and sale of liquor (Law Commission Report No. 114; NZLC R114). NZLC: Wellington.
New Zealand Transport Agency (2010). Briefing notes; road safety issues Auckland Region
New Zealand Transport Agency (2011). Briefing notes; crash analysis a safe system approach;
Auckland Region 2006-2010.
World Health Organization (2010). Global strategy to reduce the harmful use of alcohol p 10.
World Health Organization (2011) Global status report on alcohol and health.
ISSN 978-1-927216-09-5 (PrINt)
ISSN 978-1-927216-10-1 (ONlINe)
