skid row study - Municipality of Anchorage

skid row study - Municipality of Anchorage

H- June 27. 1979 g~^ m ■ Downtown Derelicts *~*t\/ take The situation has existed for ITtiOUlTEone thing to say that "I ^ Anchorage .__u».,n, ne...

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H-

June 27. 1979

g~^ m

■ Downtown Derelicts

*~*t\/ take

The situation has existed for

ITtiOUlTEone thing to say that "I ^ Anchorage .__u».,n, needs needs to 10 b be ITE

ScP'Cmber2, ,oft0

Some say it is «»
«■

roiv'

m>r

BEYOND 4th AVE:

'

Ale oh ^olutia, ALTERNATIVES TO PATTI

has stumped oi

lime being.

nobody know, w|,a[to

° """»■' ' Providing s,

hecom<

■"Beney

noi — ■

Rt

have

PHASE II

two week:

Those who

righpt the ,

ihe d

■??

bouT| do?en court, po

act on

skid row study

-d on a rewpainlK sended n._

unic

rooV

Bui what

imcs Staff Writer

"hat and and-

s

al officials budd!<

o< tnal court adminjsi

i 'h'Uveckinancfror n.

FINAL REPORT

lurn[ : out to be a m

nn ihey had i

"j i

usincssmen _.

-n away in disgust si

f waving drunks or pools of '" f«m of store,. pcrsons aiorr the avenue are constantly

^hed , imoxicated panholdcr, " "sleep next to overflow! m* ing < in »U- -ii.. . . . behind the

fense, ._.

" y? n"lves>h . ' . lon8-rilngesoiuiionlies with [l|[1 ! J I." L ■-. | h

found Fourth A

n.M of a larger ar"*|°

for more .ts

is

On Fourth Avenue

Officers' Attention ^ « rcte

[OW

MUNICIPALITY OF ANCHORAGE George M. Sullivan, Mayor

with the munit

and D

C

l0 ireatmen l0 allow all

O ni alternative. -Our i-

JANUARY 1981

ks

nn

.

UP ^d, Jnri c-

T

Municipality of Anchorage MEMORANDUM

DATE:

January 12,

TO:

Mayor

FROM:

Director,

SUBJECT:

1981

Department

FINAL REPORT ON PHASE

of

Health

"BEYOND

and

Environmental

4TH AVENUE:

ALTERNATIVES

Protection TO

MISERY,

II

As you are well aware, the Department of Health and Environmental Protection has sponsored a conference on the Downtown Public Inebriate problem. The conference, entitled "Beyond 4th Avenue: Alternatives to Misery, Phase II" was held January 7 and 9, 1981.

A select Committee including representatives from the alcohol treatment system, the social service system, the courts, police, elected officials, business leaders and the public was assembled to hear testimony from expert witnesses and the public. At the end of the public phase, the Committee reviewed all the testimony with the assistance of Dr. Leonard Blumberg, a nationally respected expert on urban skid row problems from Philadephia. As a result of those discussions, the Committee has developed the following series of policy recommendations for consideration by your office and the Assembly: 1.

We

should

clean

up

4th Avenue.

2.

We support quickly amending legislation to existing voluntary commitment (procedures)

streamline the looking to innova

tive methods.

3.

We

should

"Drunk

in

not,

4.

Comprehensive

5.

The

hours

should

be

at

this

of

services

recriminalization of

the

be provided. liquor distributors

in Anchorage

reduced.

There

7.

There should continue

should

the

be

more

policy

visible

to be

law enforcement.

a group like

statements

-

91-010(5/78)

consider

should

operation of

6.

implement

time,

Public."

1

-

this

suggested.

that helps

Additionally, the panel developed suggested considerations for implementing most of the recommendations. They are listed in Section V. This report includes background information, sum maries of expert and public testimony, a description of the pro cess used by the Committee in developing these reconunendations and other information developed in the conference. Respectfully submitted,

Robert A. Director

(Bert)

Hall

RAH.l

-

2

-

BEYOND

4TH

AVENUE:

ALTERNATIVES

PHASE

JANUARY, FINAL

TABLE

OF

TO

MISERY

II

1981

REPORT

CONTENTS

SECTIONS

I. II.

III.

PAGES

Introduction and

Summary of

The Committee

the Downtown Public

on

a.

Description

b.

Names

c.

Attendance

Committee's

Charge

4

Inebriate

5

and Affiliations

The Process

Used to Develop Consensus Recommendations

IV.

Names

and Affiliations

of Witnesses,

V.

Final

Committee Recommendations

Policy

7 January 7,

1981

9

11

ATTACHMENTS

A.

Text of Mayor's

B.

Schedule

of

Staff

D.

Schedule

January 7,

1981

19

Friday,

Friday,

January

January

9,

9,

1981

Testimony

Transcript of January

9,

Dr. 1981,

20

1981,

Committee Session E.

15

Wednesday,

1981

Summary of of

Wednesday,

Expert Witnesses,

January 7, C.

Speech,

32

Leonard

Blumberg's

Morning Address

Friday,

and

Summary

of Testimony

34

F.

Independent Recommendations

G.

Press Clippings

H.

Background Material Sent to Downtown Public Inebriate

of

Dr.

Leonard Blumberg

51

54

-

3

Committee

-

on

The

SECTION

I

Introduction

At 8:30

a.m.

Bert Hall

on January 7,

convened

the

Public Inebriates. from the alcohol system,

the

Anchorage

The Panel,

police,

of

future efforts

the

the

elected

of

process

for

unworkable.

We

remarks,

solving

all know,

this

for

to hear

charged

is

One of my expectations,

for the courts

in

shown

in

The

from

be

text of

A.

-

Committee

problem.

that

the

4

-

Some

the existing

cumbersome and

therefore,

is

laws

that you

to make

adequately with

recommendations of

large part,

The complete

Attachment

testimony

probably require

the

the

foundations

Municipal policy on how to further deal with

inebriate."

business

that can guide

to existing State

to deal more

from 4th Avenue.

Committee will,

service

the

critical

instance,

involuntary commitment

will recommend amendments possible

Downtown

representatives

officials,

recommended policies

in

the

social

recommendations you develop will

legislation.

people

composed

on

the public.

in his opening

"to provide a set of our

Committee

the public was assembled

the expert witnesses and

The Mayor,

Municipal Health Director,

treatment system,

courts,

leaders and

1981,

of

the

the public

the Mayor's speech

is

it

SECTION THE

II

COMMITTEE ON

DOWNTOWN

PUBLIC

INEBRIATE

The membership on the Committee was chosen from a variety of

disciplines representing the balance of skills and perspectives necessary to develop an acceptable policy on the public

inebriate/skid row problem. Individuals were chosen from each discipline to insure a balanced panel, who were responsible for receiving public testimony and expert opinion toward the goal of developing a series of recommendations for the Mayor's review. Discipline 1.

Business

Name

Frank VanZant

Anchorage Chamber of Commerce 2.

Medical Community

Francis Phillips, M.D. Alcoholism Treatment Specialist Consultant

3.

Alcoholism Programs

Dr.

Raymond

Dexter,

Director

Salvation Army Comprehensive

Alcoholism Services 4.

Criminal Justice System

5.

Public Safety

Allen Bailey, Municipal Prosecutor Municipal Department of Law Brian Porter, Chief of Police Anchorage Police Department Ron Otte,

Field Operations

Anchorage Police Department 6.

Public Defender

Brant McGee, Asst. Public Defender Alaska Public Defender Agency

7.

Alaska State Legislature

Senator Arliss

8.

Rural Alaskan

Henry Oyoumyk

9.

CHAR

Robert Johnson

10.

Anchorage Assembly

Don

11.

Downtown Merchants

William Pargeter

-

Sturgulewski

Smith

5

-

Anchorage Health Commission

William Orfitelli

13.

State

George Mundell, Alaska State Office of Alcoholism and Drug Abuse

14.

Planning

12.

of

Alaska

Lilly McGarvey

Mike Meehan, Department

15.

Social

Services

Jewell

Jones,

Department

Moderator:

Director of

Planning Director

of

Social

Services

Robert A. (Bert) Hall, Director Department of Health and Environmental Protection

Some of the Committee members were unable to attend the full day session. the following summary describes only those sessions missed. Arliss

Sturgulewski

Wednesday

Friday, Brian

Porter

-

all

3:00

day

to 5:00

p.m.

Wednesday and Friday, substituted for full

Ron Otte session

Mike Meehan

Wednesday

-

8:30

a.m.

to

2:30

p.m.

Frank VanZant

Wednesday

-

1:30

p.m.

to

3:00

p.m.

Allen

Friday

Bailey

-

6

-

-

8:30

a.m.

to

11:30

a.m.

two

SECTION

PROCESS

FOR

III

ARRIVING

AT

CONSENSUS

The Committee on posed

POLICY RECOMMENDATIONS

the Downtown Public Inebriate problem was com

of a wide range of

disciplines

intent of developing broad-based dations

The

for

the Mayor and

first day,

witnesses.

the Assembly's

the schedule of

give

their views

the

and public witnesses The

On

mony presented

set of

is

Bert Hall,

the

during

consensus

topics.

Committee. described

schedule of witnesses

Friday morning,

testimony from expert

is

in

the Wednesday

policy

the

sented

some

testimony was

additional

the

factual

data

his

presented

Division

is

on Wednesday

and

to

his

included was

in

-

7

for

and

the

of

to

testi

arrive

Mayor's

Health

by

that

Dr. he

at

a

review.

and

as

Blumberg.

felt

could

the critical

visit

Attachment by

the

E.

be

useful

points

A sum

Testimony

Behavioral

C.

He pre

interviews

in Anchorage.

in Attachment

-

report.

the Moderator.

summarized

is presented

this

expert

review the

testimony on Wednesday and during

comments

staff

IV of

hearings

summarized

he personally conducted during mary of

the

to

in Attachment B.

in the Committee's deliberation as well raised during

testimony of

Department

Environmental Protection served as

the completion asked

Section

recommendations of

testimony

public was

Committee reconvened

the Director

The Wednesday

the The

shown

to present

Following

expert witnesses,

to

the

consideration.

the experts was asked

to the Committee on assigned of

interests with

consensus policy recommen

the Committee heard

Each of

and

Health

The Committee was divided

into three groups.

issues or policy statements sent to

that

it

the Mayor for his review.

the different groups acting

as

Each group listed

felt should be Dr.

Blumberg

ders for the

three groups.

three committee lists they would address

During

the

close

Each group discussed

the future of

of

as

recor

the

in

that

the day.

the Committee

the policy questions developed question of

served

The group then synthesized

the afternoon session,

three groups.

The

into seven basic policy questions

before

and

circulated among

a resource person.

Department's Behavioral Health Division staff

addressed

the

again divided

implications of

the morning.

the Committee

and

The

into

two of

last

the efforts

to

resolve the public

inebriate problem was assigned

to each group.

Dr.

circulated

a

Blumberg

person and

again

among

the

groups

the Behavioral Health Division

as

staff

resource

served

as

recorders.

Toward

the end

reviewed

the

discussions.

of

the

policy

day,

the Committee met

recommendations

arising

The Moderator worked with

seven consensus statements. the Moderator

in organizing

sented

in Attachment

D.

the

Following the development of

consensus

asked

specific

He

agreed.

Blumberg

if

They are

he

had

summarized

-

8

days

to

which was

activities

statements,

group

develop to

is

pre

the panel

recommendations

P.

and

small

the Committee

in Attachment

-

a whole

from the

A draft schedule

assist

Dr.

as

to make.

SECTION NAMES

IV

AND AFFILIATION GIVING

BEYOND 4TH AVENUE:

1.

Robert

Johnson

2.

Marie McDonald

Cabaret Hotel

OF

TESTIMONY

INDIVIDUALS FOR

ALTERNATIVES TO MISERY, JANUARY 6, 1981

PHASE

and Restaurant Owners Association,

II

Anchorage

Emergency Services Supervisor, Salvation Array Clitheroe Center 3.

Ralph Amouak Regional Technical

Officer

Cook Inlet Native Association 4.

Jerry

Reagan

Police Officer 5.

Rinna

Poshen

Regional Technical Officer, ANCADA Anchorage Association for Stranded Rural 6.

Leonard Nugen,

Alaskans

Director

Studio Club 7.

Judge Ralph Moody Presiding Judge

Third Judicial State 8.

of

District

Alaska

Pat Anderson,

Chairman of

the

Board

Bean's Cafe 9.

User of

4th

10.

User

4th Avenue

11.

Mike Hansen Community Service Patrol Salvation Army Clitheroe

of

Avenue

Center

12.

Phillip Briggs, Assistant Superintendent Sixth Avenue State Correctional Center

13.

Gladys

Thompson

Community

Support

Project

-

for

9

-

the

Mentally

111

14.

Dr. Bernie Segal Center for Alcohol University of

Addiction Studies

Alaska,

Anchorage

15.

Ken Hume, Executive Director Downtown Merchants Association

16.

Bob Spindee Division of

17.

18.

Corrections

Maureen McDonald Anchorage Association Cliff

20.

21.

22.

23.

Stranded

Rural

on Alcohol

and

Commission

Gilbert Hendrickson Anchorage Association

for Stranded

John Purcell Alaska Native Commission

Barbara Lewis Resident of Southeast

on Alcohol

Rural

and

Elliott Robinson, New Start Center,

State

Howard Scammon Alaska Council on

the Prevention of

Pat

Sharrock,

Alcohol

Division of

25.

Fred Morgan Public Citizen

26.

Pat Hiebert Public Citizen

27.

William Kalfas Cabaret Hotel and

28.

Abuse

Alaskans

Drug

Abuse

Corrections

Alcohol

Director

Beverage

Drug

Alaska

Abuse 24.

Alaskans

Kompkoff

Alaska Native 19.

for

Control

Board

Restaurant Association

Maxine Whaley Anchorage Resident

-

10

-

and

Drug

SECTION

CONSENSUS OF

COMMITTEE

ON

Seven propositions

Committee during

THE

or policy

into

After discussion,

following statements

to

THE

PUBLIC

issues

were

session.

three groups

formulate a draft response body.

STATEMENTS

DOWNTOWN

the morning

Committee divided

V

the Mayor and

tapes of

We

2.

should

the

the

issue and

to forward

the Assembly.

the

The

the Committee's responses the Conference.

clean up 4th Avenue?

clean

up

4th Avenue.

"Should we streamline the

involuntary commitment procedures?"

We support quickly amending

existing

the

the afternoon,

the Committee agreed

are taken verbatum from the

to

by

for consideration by the entire

first;

"Do we want

developed

to discuss

policy issues are presented

1.

In

INEBRIATE

legislation

involuntary commitment

to streamline

(procedures)

looking

the

to

inno

vative methods.

3.

"Should we recriminalize

We should not, "Drunk

4.

in

time,

consider recriminalization of

Public."

"Should comprehensive services

Comprehensive

5.

at this

"Drunk in Public?"

"Should

be provided?"

services should

be provided.

availability of alcohol

-

11

-

be

reduced?"

The hours of operation of Anchorage

6.

"Should

There

7.

"Where

There

should

be

stronger

should

be

more

do we go

should

clarifications, present a

1.

We

more

should

policy

2.

We

to

be

enforcement.

statements

They are

complete

up

liquor outlets

not

or

like

this

included in

this

in

the

report

considerations

account of

that helps

suggested.

included

amplifications

clean

a group

information

the

policy

as

designed

Committee's

to

work.

4th Avenue.

Consideration should the

law

from here?"

additional

recommendations.

in

law enforcement?"

visible

continue

the

liquor distributors

reduced.

there

implement

There was

be

the

in

be given the

to

reducing

the concentration of

area.

support quickly amending

legislation

existing voluntary commitment

to

(procedures)

streamline

the

looking

innova

to

tive methods.

a.

The commitment process development of should

b.

be drafted

A statewide

be

streamlined

to accomplish

treatment

be developed.

through

commitment procedures.

for

the

This may

the

Legislation

this.

system of protective

comprehensive should

civil

could

care "skid

also

centers row"

to provide

populations

require

additional

legislation.

c.

If

the

civil

commitment procedures

fail

criminal procedures

should

intervention,

the 4th Avenue population for

into protective

treatment.

-

12

through court

-

be

used

care

to

remove

or centers

3.

We

should

"Drunk

a.

not,

at this

time,

consider recriminalization of

in Public."

Nothing

is

legally wrong

Recriminalization would

with only

being be a

drunk

in public.

cosmetic

solution

to

the

problem.

b.

c.

Jails

are already over

would

be

Enough

d.

an

4.

DWI,

cost of

such an action

already

exists,

such

as

drinking

in

etc.

due process

serious

and moral

individual's

Comprehensive

a.

mechanism

Recriminalization raises the

and

prohibitive.

legal

public,

crowded,

rights

services

and

using

a

ethical

problems

regarding

questions

concerning

freedom.

should

A comprehensive array of

be developed

and

legal

be provided.

health

"systems

and

social

services

approach"

similar

to

include:

housing,

should

the

Yakima model.

b.

Elements of services,

the

system should

vocational

management skills,

detoxification, centers, An

d.

A comprehensive

emphasis

should

guaranteed

be

placed

system should funded

long-term

money

social and

and protective

recrational care

centers.

on prevention.

be managed

by local

funding

goals

and

and

by

state

a non-profit sources

with

commitment.

objectives.

The hours of operation of should

a.

bars,

training,

A comprehensive system must emphasize evaluation through measurable

5.

beer

job

referral,

short-term housing,

umbrella agency,

e.

information and

"hospices",

c.

rehabilitation,

medical

be

the liquor distributors

in Anchorage

reduced.

New zoning ordinances

can reduce

liquor outlets

area.

in

the

-

13

-

the concentration of

b.

The Municipality can acquire

"skid

row"

property by eminent

domain.

c.

The Comprehensive Plan should the

6.

There

encourage

liquor

should

Suggestions tools

be

There

in

a

July,

more

inspectors

continue

the

policy

should

near

acknowledge

Business District

commerce,

rather

than

be

to

be

a group

that

of

existing

the

like

this

suggested.

has

been done

and

nature

be

similar

current

nature

-

and

that helps

to what

14

street;

appropriate.

state

a

legal

laws;

and

the

-

the

off

local

of

statewide

additional

inebriates

where

statements

conference

the

foot patrolmen,

to enforce

alerted

the end

law enforcement.

support

suggested

statewide or

of

to get public

corrections

Committee

agencies

development

visible

included:

should

implement

The

more

to allow police

additional

the Central

industry.

additional ABC

7.

the

for

of

governmental

to

legislative this problem.

involved held

session,

in to

r

pfff

OF

"'■"■'•'' "■ ^ i/o

THE DOWNTOWN MERCHANT, THE

THESE

THE ANCHORAGE SKID-ROW PERSON IS MUCK YOUNGER

~::ZX 'Z \

THERE ARE

- 15

-

niCIORAGC HAS COMPLETED HIGH SCHOOL; AND, FROfi THIS GROUP, ONE OUT

C>uks

OTHER iJOTEABLE DIFFERENCES. OVER HALF T:;L ::.:P ?:?'■' rC"L'T.fT::M I".

POPULATION IN AflCHORAGE IS NATIVE OR OTHER MINORITY.

P.^oroHTiOM or tdial:: ;;: A::ciior.A3.:.... almost 60s of the skid-row

MIDDLE 50'S IN OTHER URBAN COfmilTIES.

ANCHORAGE IS BETWEEN 26 AND 35, COMPARED WITH THE LATE 10'S AND

ACCORDING TO SAMPLES TAKEN IN OTHER CITIES, THE AGE RANGE IN

POPULATIONS,

TO THE AGED OLDER PEOPLE THAT CHARACTERIZE f1OST URBAN SKID-ROW

OUR PROBLEMS ARE CREATED BY A GROUP OF PEOPLE WHO ARE NOT SIMILAR

DOWNTOWN CENTRAL BUSINESS DISTRICT.

ANCHORAGE FAMILY THAT WANTS TO ENJOY SHOPPING IN OUR DEVELOPING

PARAHEDIC, THE FIREMEN, THE POLICE OFFICER, AND ESPECIALLY THE

PROBLEMS ARE VISIBLE TO ALL OF US:

PROBLEMS THAN ANY OTHER GROUP OF ITS SIZE IN OCR COMMUNITY,

GROUP OVER THE YEARS HAS CREATED MORE VISIBLE SOCIAL AND ECONOMIC

THIS SMALL

OUR SKID-ROW

POPULATION IS ESTIHATED TO BE EETWEEN 6 AND 700 PEOPLE,

HUNDRED YARDS AWAY FROM WHERE WE SIT RIGHT NOW.

YOU ALL KNOW THAT THE SKID ROW 1,1 ANCHORAGE IS NOT HOPE THAN A

ANCHORAGE :S NO EXCEPTION,

ALCOHOL HAS ALWAYS BEEN CONSIDERED TO BE ONE OF THE MOST

SERIOUS PROBLEMS THAT THIS GROUP FACES.

SOCIETY.

OF AGED, HOMELESS PEOPLE WHO HAVE REACHED THE BOTTOM STRATA OF

SKID ROWS AROUND THE COUNTRY ARE GENERALLY THOUGHT OF AS COLLECTIONS

"BEYOfID ^TH AVENUE: ALTERNATIVES TO fliSERY, PHASE II"

r'AVGR GEORGE ,Y:. SULLIVAn

'"'DC\' I *.: ^

Attachment A

MOST OF THIS IS CHARACTERIZED BY HEAVY DRINKING.

DOWNTOWN MERCHANTS

I HAVE

WOULD PREFER TO AVOID IT ENTIRELY SO DON'T COME DOWNTOWN.

f

Ifl 1979, IT IS

r

-

16

-

SERVICES AHD THE COST OF THE POLICE PERSONNEL.

LAST YEAR WE SPENT

THE STREET, THIS SUM INCLUDES THE PROVISION OF MEDICAL AND SOCIAL

DOLLARS ON THIS GROUP OR ALMOST $20,000 PER EACH PUBLIC INEBRIATE ON

ESTIMATED THAT THE CITY AND THE STATE SPENT APPROXIMATELY 1.7 PILLION

COSTS OF PROVIDING SERVICES TG THIS POPULATION.

MERCHANTS, HY STAFF INFORMS ME THAT WE HAVE DEVELOPED PRELIMINARY

WHILE WE'RE UNABLE TO ESTIMATE THE REVENUES LOST TO THE DOWNTOWN

f

ALTHOUGH, IT

TOLD SOME TOURIST ENJOY IT FOR A SHORT TIKE!

TO SEE OUR SKID-ROW POPULATION IN ITS NIGHTLY PARADE.

PEOPLE REFUSE TO BE PUT ON THE 4TH AVENUE SIDE BECAUSE THEY DON'T WA"T

HEARD THAT IN THIS HOTEL WHERE YOU ARE HAVING THIS CONFERENCE MANY

THEY

PARENTS OF YOUNG CHILDREN DON'T LIKE TO HAVE TO

EXPLAIN WHAT IS WRONG WITH THAT HAN LYING ON THE PAVEMENT.

DOWNTOWN DRUNKS.

BECAUSE THEY DON'T LIKE TO SEE OR IN SOME CASES BE ACCOSTED BY THESE

COMPLAIN OF REVENUES LOST BY PEOPLE NOT SHOPPING IN DOWNTOWN STORES

THIS CITY MILLIONS AND MILLIONS OF DOLLARS,

THE 90 TO 100 HARD CORE PUBLIC INEBRIATES ON 4TH AVENUE HAVE COST

INEBRIATE" - VISIBLE TO ALL.

ABOUT ONE OUT OF SEVEN WOULD BE CHARACTERIZED AS "CHRONIC PUBLIC

WHILE THE TOTAL NUMBER OF PEOPLE ON SKID ROW IS CLOSE TO 700, ONLY

SKID-ROW POPULATION.

BUT FOR SOME REASON, THEY HAVE COME INTO THE DOWNWARD SPIRAL OF THE

OWN DREADS AND FOR BECOMING PRODUCTIVE PEM3ERS OF OUR COMMUNITY,

r

["

WE? HA! F THF ^OUP HAS ;\T.fl,".F

THIS IS A GROUP OF PEOPLE WITH A GREAT POTENTIAL FOR REALIZING THEIR

FROM STFADY WORK OR ODD

Or FIVE HAS COMPLETED SOME COLLEGE.

PUBLIC INEBRIATE, THE r.OST VISIBLE PART Or ^?, ALCCHGLIC POPULATION

f

HAS BEEM VISIBLY K'P^CTED EU7 NOT ENOUGH POSITIVE CHANGE HAG OCCURRED:

["

THE MUNICIPALITY HAS EEEN TRVIN2 TO DO SOMETHING ABOUT THIS PROBLEM FOR YEARS.

SOME SIGNIFICANT INROADS HAVE BEEN MADE.

FOR EXAMPLE:

THE COMMUNITY SERVICE PATROL HAS FREED UP THE FOOT PATROLMAN TO PERFC; OTHER PUBLIC PROTECTION SERVICES RATHER THAN HANDLING THE DRUNK ON 4TH AVENUE,

WE HAVE FUNDED A CENTER CALLED BEAN'S CAFE WHERE THE

SKID-ROW POPULATION CAN COiiE INTO A WARM, HEALTHY ENVIRONMENT FOR A

NUTRITIOUS MEAL,

WE HAVE PROVIDED ADDITIONAL SLEEP-OFF BEDS A1r-ED AT

MEETING THE NEEDS OF THE "WET DRUNK", THE FALLING DOWN, INCAPACITATED

DRUNK WHO BY BEING SEVERELY DEBILITATED COULD END UP ENDANGERING HIS OWN LIFE.

BUT WE HAVE FOUND THAT THESE EFFORTS ARE NOT ENOUGH,

THEY APPEAR TO

BE PIECEMEAL AND, OFTEN TIMES, NOT AS EFFECTIVE AS THEY SHOULD BE, OUR EFFORTS, AS A COMMUNITY, HAVE BEEN HONEST AND HUMANE EFFORTS, HOWEVER, THEY HAVE JUST NOT PRODUCED THE KINDS OF RESULTS THAT OUR

CITIZENS WANT,

THE NUMBER OF COMPLAINTS THAT I RECEIVE HAS NOT GONE

DOWN - PEOPLE ARE STILL VERY CONCERNED.

ITS TI ME TO RETHINK THE

I

PROBLEM -- ITS TIME THAT WE COLLECTED THE EXPERTS ONCE AGAIN AND HAVE

p

THEM REVIEW THEIR THOUGHTS WITH THE COMMUNITY.

r p

TO MAKE THIS HAPPEN,

A SPECIAL COMMITTEE FOR THE PUBLIC-INEBRIATE PROGRAM IN DOWNTOWN

ANCHORAGE HAS EEEN CONVENED. THIS COMMITTEE WILL HEAR THE TESTIMONY OF THE EXPERTS, AS WELL AS THE PUBLIC.

WITH ALL OF THIS INFORMATION

'

AND WITH THE HELP OF THE HEALTH DEPARTMENT AND OUR TECHNICAL■COMSULTAI

["

DR. LEONARD BLUHBERG, I EXPECT THE COMMITTEE TO PROVIDE A SET OF RECOMMENDED POLICIES THAT CAN GUIDE OUR FUTURE EFFORTS IN SOLVING

THIS CRITICAL PROBLEM.

SOME OF THE RECOMMENDATIONS YOU DEVELOP WILL -

17

-

EXISTING PROCESS FOR INVOLUNTARY CO.'-f-liTP.EKT IS C!JHEERSC;:E AND UNWORKABLE,

ONE OF MY EXPECTATIOMSTHEREFCRE, IS THAT YOU WILL STATC.

RECOMMEND AMENDMENTS TO EX1STING/LAW TO MAKE IT POSSIBLE FOR THE COURTS TO DEAL fiCRE ADEQUATELY WITH PEOPLE FRCtf i|TH AVENUE,

THE

RECOMMENDATIONS OF THE COMMITTEE WILL, IN LARGE PART, BE THE FOUNDATIONS OF THE MUNICIPAL POLICY ON HOW TO FURTHER DEAL WITH THE PUBLIC INEBRIATE,

NINETY HARD CORE PUBLIC INEBRIATES CANNOT OVERSHADOW OUR EFFORTS

AT REVITALIZING DOWNTOWN ANCHORAGE.

I AM DEPENDING UPON THIS

COMMITTEE TO SIFT THROUGH THE EXPERT AND PUBLIC TESTIMONY AND DISTILL FROM IT A SERIES OF POLICY RECOMMENDATIONS.

THROUGH YOUR EFFORTS, I

AM CONVINCED THAT WE CAi! HAVE A POSITIVE, LONG-TERM IfiPACT ON THE ANCHORAGE SKID-ROW.

-■■ 18

-

ATTACHMENT

B

SCHEDULE FOR

BEYOND 4TH AVENUE:

ALTERNATIVES TO MISERY, January

8:35

-

8:50

a.m.

Welcome -

8:50

-

9:00

a.m.

Mayor's

7,

PHASE

II

1981

Bert

Hall

Speech

9:00 -

9:15 a.m.

Robert Johnson,

CHAR Representative

9:15 -

9:30 a.m.

Marie McDonald,

Salvation Army Clitheroe

Center

9:30

-

9:45 a.m.

9:45 - 10:00 10:00

a.m.

- 10:15 a.m.

Ralph Amouak, Health Department Cook Inlet Native Association

Officer Reagan,Anchorage Police Department Alaska Native Commission on Alcohol Drug

and

Abuse

10:15 -

10:30

a.m.

Ken Hume,

10:30 -

10:45

a.m.

Judge Moody, Court,

Downtown

Merchants

Presiding Judge,

State

of

Alaska,

Bean's

Association Superior

Anchorage

10:45

-

11:00

a.m.

Donna Whitman,

11:00

-

11:15

a.m.

Fourth Avenue

11:15

-

11:30

a.m.

Mike Hansen, Salvation Army Clitheroe Center, Community Service Patrol

11:30 -

11:45

a.m.

Phillip Briggs, Assistant Division of Corrections,

Users

Cafe

(2)

Superintendent, State of Alaska

11:45

-

1:30 p.m.

Lunch Break

1:30

-

1:45 p.m.

Dr. Segal, Center for Alcohol and Alcohol Addiction, University of Alaska

1:45

-

2:00 p.m.

Alaska Native Commission on Alcohol

and

Drug Abuse

2:00

-

2:15

p.m.

Vern Caulkins, Deputy Director, Division of Corrections, State of Alaska

3:00

-

5:00

p.m.

Public Testimony

-

19

-

ATTACHMENT SUMMARY

OF

C

TESTIMONY

FOR BEYOND

4TH

AVENUE:

ALTERNATIVES

TO

MISERY,

PHASE

II

Robert Johnson

Cabaret Hotel

and Restaurant Owners Association

Mr.

Johnson said that the Cabaret Owners had a stake in cleaning up skid row. He mentioned that skid row is unique. It is not in a run down area, nor isolated, but in the midst of a rebuilt and revitalizing downtown business area. He said He

that

noted

health

it

was

that

and

not

the a

not

new.

concept legal

of

the

problem

alcohol

was

the

problem being

result

of

court

a deci

sions. His first suggestion was to revise existing legisla tion regarding the involuntary commitment procedures. He felt they

should

be

removed

completely

from

the

court

system.

He

suggested establishing a screening panel made up of five individuals; a physician, a psychiatrist, a lay person, and two at large members, one from the Native community and one at large. This group would operate under the auspices of local government. If an individual is involved in incidents three times in twelve months, he will be subject to screening. On the third time, the person would not be subject to the action but rather the recommendation of the panel. The fourth time within twelve months, the panel would be able to commit the individual for up to 90 days. Every repetitive time from that instance on within a twelve month period, they could commit the individual for up to 180 days. At the first commitment, the individual would have the choice of private treatment, if it was available, and if he had the funds to pay for it. After the individual had been committed once, the individual would no longer have the free choice of selecting his or her own

treatment

agency.

He also discussed the Task Force recommendations of the Education Commission of the United States. Part of the funding for the Education Commission of the United States comes from DISCUS which is an alcoholism industry funded organization. He Task Force report

made several references and quotes including that alcohol abuse has a

relationship to daily living, and is not single problem but rather is interweaved

-

20

-

from the direct the result of a in society.

He also felt that there should be an increased emphasis on a program devoted to education at all levels. He quoted from the report stating that education holds a long-term best

hope and recommended a team work approach. He indicated they intend to launch a "Saints and Sinners Program" similar to one in San Francisco that would deal with the problems of alcohol abuse. This group would lend influence and support in the development of educational programs. Other quotations

he made from the Task Force report on Commission of the United States was:

the

Education

A.

changing existing laws and regulations of alcohol had little effect on the problem;

B.

the report to do with

C.

any plan must incorporate free choice so as to follow our democratic principles. There is no evidence that individ ual restrictions effect decision-making regarding the use of

the sale of

indicates the hours of availability have the stopping its consumption;

alcohol;

and

D.

unusual, unconventional programs are ineffective suggested that only education would work.

In

summary,

he

nothing

indicated

that CHAR recommends

viewed as a health problem and and that educational programs a benefit and there should be tion created.

taken out of focusing a Saints

that

the

and

alcohol

be

court system,

on prevention would be and Sinners organiza

Marie McDonald Emergency Services Supervisor, Salvation Army Clitheroe Center

Ms. McDonald provided some statistics from their program, the Salvation Army has a a readmission rate of 60% in the detoxi fication component. She felt that their biggest problem was

involved

in the provision of protective custody.

When place

ments are made by Salvation Army Clitheroe Center, they find that quickly the clients are back on 4th Avenue. She noted that the problem with clients on 4th Avenue is not always alcohol; in many cases, they were displaced persons from out

of town. She said there is a small percentage of people that come from the villages which return to the village. She also indicated that individuals who they know originally came from villages

time,

but

still

have been

in Anchorage over

claim the village as

their

Anchorage.

-

21

-

long

periods

home and

not

of

Ralph Amouak

Regional Technical Officer Cook Inlet Native Association

Mr. Amouak noted that CINA had formed a 4th Avenue Committee. He explained that Anchorage has approximately 12,000 Natives. He presented to the Committee a list of recommendations of the Committee and further indicated there were three areas that the Committee had focused on: 1) social; 2) medical; and 3) the "bar problem." Methods treating each individual as a person,

not

just an alcoholic

is

important.

He

suggested the City Administration and Mayor examine rezoning the area of the 4th Avenue bars and to increase the enfor cement of the regulation of bars by both the Municipality and

the State. He suggested that the Municipality creates zoning laws which prohibit bars being within 100 feet of one another. He suggested that the issue of the 4th Avenue problem be put to a public vote. The apparent intent of this was to solidify public support for active solutions or to see if the 4th Avenue problem was strictly a downtown business problem rather than a community-wide problem. He then described a process of "hand carrying" people through the urban system who are new to Anchorage from the bush. This type of outreach is what helps people avoid getting caught in the

4th Avenue

syndrome.

Jerry Reagan

Police Officer

Officer Reagan spoke as a private citizen and not as a repre sentative of the Police Department. Said he has been on the Police Force since 1969 and started on 4th Avenue. Things have changed a little bit from the standpoint that there are fewer bars, its not as rough for the police. He said that in 1969, there were more laws available to the officer to use in dealing with the drunks. For example, it was illegal to be drunk in public. Now, you can only be arrested for drinking in public. He indicated that the problem existed then and its still there today. He mentioned that there is no place to take "wet drunks" other than the Salvation Army facility.

He

appeared

solve

to be convinced

the problem.

that stricter

laws would

not help

Rinna Poshen Regional Technical Officer Anchorage Association for Stranded Rural Alaskans

Ms.

Poshen is a Regional Technical Officer with Alaska Native Commission on Alcohol and Drug Abuse. She stated that AASRA -

22

-

started in December of 1979 and has been meeting monthly since it began. She related her upbringing in the village of 500 and how living in Anchorage was somewhat of a traumatic experience. She said that people from the bush do not have

the urban survival skills to cope with a city such as Anchorage. She described the ASSRA program as trying to set up voluntary homes as well an orientation program and infor mation for people coming into the city. New arrivals would stay in one of the voluntary homes for three days. If their stay in Anchorage was longer than three days, they would be shifted from home to home. She related some incidents of

individuals coming into Anchorage who had no knowledge of the city or transportation and how they were lost and wandered the streets waiting

Leonard

for services.

Nugen

Director of the Studio Club

Mr.

Nugent related

the

fact that he has been working

in

the

field of alcohol for twenty-one years and is well aware of 4th Avenue and its problems. He felt there appeared to be loop holes between the courts, attorneys, and treatment

programs.

He cited an incident involving an individual who had been at their program for 23 days under court order and when the court order was released, the individual left. Mr. Nugent1s major thrust was the need for long-term care facil ity for the individuals on 4th Avenue. He stated that it was possible to remove a 4th Avenue, but it would merely appear somewhere else. He said, "Live for the next bottle—thats 4th Avenue." He said that he is currently discussing with Commissioner Helen Bierne the possibility of taking over the Ridgeview Correctional Center when the State no longer has need of it. He is supporting streamlined involuntary commit

ment procedures.

One of

the problems currently

is

the Studio

Club is trying to deal with these people in intermediate care and what they need is long-term care. He also talked about the Studio Club's contract for $433,000 for long-term care facility which is expected to open on March 15th. They anticipate being able to serve 30 individuals this contract year and expanding to 60 individuals in the second contract year.

Judge Ralph Moody

Presiding Judge, Third Judicial District

Judge Moody said in the mid 1940's, individuals with alcohol problems such as those described at 4th Avenue were placed on

the "honor farm" for up to 30 days. -

23

-

He said they were at

least healthy when they came back out. The State must recognize the need to give these individuals treatment and if they leave the treatment program to put them back in. However, the Court would have to hold appropriate hearings for the individual and view the process from the standpoint of protecting the individuals from killing themselves. Judge Moody further indicated there should be a number of different programs available, otherwise things are at an ad-hoc basis and are a waste of money and resources. He indicated we would need to pass laws through the Legislature and they would be challenged in the courts. However, if public sen timent still remains as it is, the courts would eventually have to recognize and bow to the sway of public will. The Judge, using the example of the mental health laws that were passed by the 1947 Territorial Legislature, indicated that at that time, there was a separate program for committing individuals. He said he was personlly reluctant to put indi viduals with such alcohol problems in jail as they were not responsible for themselves. He felt they should be given every chance available. He did not call them criminals and felt the worst thing that was being done was to tell them that they were ill and thus they receive sympathy. He said there is a need to require them to change their lives and to give up their drinking. He said it may be harsh but it is still the only thing that seems to work. He suggested he was not there advocating more business for the courts and if another method could be identified, he would be in support of

it.

He also supported

the

tary commitment procedures.

Pat

involun

Anderson

Chairman, Mr.

issue of streamlining the

Board for Bean's Cafe

Anderson presented

Cafe provides and

a

an

outline

of

brief historical

the

services

view of

that Bean's

how Bean's

came

into existence. He views Bean's as providing alternative services with no compensation required for users of the service. Alcohol is a problem and 4th Avenue is merely a manifestation of the problem. He said that approximately 60% of the individuals using Bean's Cafe are people with drinking problems, 40% are not public inebriates, and as much as 30% of this group may not use alcohol at all. He agreed with

many of the

statistics contained

in

the

background material

provided to the Committee. He indicated that one of the key features of Bean's Cafe is an attempt to stave off malnutri tion. He said that some have serious mental health problems and

are

able

to fit

into

the

social

structure

of

4th Avenue,

and that there is violence within and without on the duals that inhabit 4th Avenue. Many have behavioral

-

24

-

indivi

problems, few job skills, low educational experience, and

some are transient. He questioned the effect of closing bars at earlier hours and indicated that many of the individuals

know how to use the existing social services. a long-term approach of solving the problem.

He called for

Users of 4th Avenue

Two individuals who are the residents of 4th Avenue and who make use of Bean's Cafe, one, a young Native man who stated he had been on 4th Avenue since 1976, said that it is a very rough life. His drinking got heavier since he has been there. He said that using alcohol helps you lose your will. He said he became discouraged because it was difficult to find work, had little to do to pass the time and did not know how to associate with others. He said that in the summer it was not difficult to find a place to live but in the winter it was. He had no suggestions to make and stated that people at Bean's Cafe helps out a great deal. He also stated that the focus, should from his perspective be on the individual helping themselves or wanting

to have help.

The second individual, a Caucasian indicated that housing was a problem for him at times because he had no place to go and since he was not religiously oriented, he did not want to have to attend religious services every night. He said that in the winter time, a buddy system usually operates on the

Avenue where one person has a place and others crowd

into it. He said that sleeping and wearing the same clothes was not pleasant—"when you have to go for a job interview it is dif ficult if you smell bad like you just came from the jungle." When asked what the impact was, he said he resented it. He said he had gotten involved with the court system and went to treatment and

then stayed

in Anchorage

for 9 months.

He

said, "just to survive, it became necessary to drink." He said many of the people on the Avenue want to get off but don't know how. He estimated that 60% that drink would like help or get rehabilitated. He indicated that one of the things that is important in going into treatment is to get help in getting a job so that you have something once you come out of

treatment.

Mike Hansen Community Service Patrol

Salvation Army Clitheroe Center

Mr. Hansen said there are several different groups or sub groups within the 4th Avenue crowd. He said that while the

public inebriate population was relatively stable,

-

25

-

there were

also some individuals who were recreational/binge drinkers who become part of the 4th Avenue picture. There are some who are not drinkers at all, but have mental health problems, limited coping skills and no place else to go and use the Avenue for socialization. He recounted that, in some cases, the individuals have suffered organic brain syndrome and little can be done to help them. He indicated that at times all the Service Patrol can offer is symptomatic treatment for things such as cuts, bruises, and are not allowed to take individuals against their will. He said that many drink in the alleys and go into the bars to warm up. He said that he viewed 4th Avenue as a small piece of what the overall alco hol problem in the community is. He supported more stream lined involuntary commitment procedures, and better enforce ment of ABC Regulations. Phillip Briggs Sixth Avenue State Correctional Center

Mr. Briggs indicated that many of the individuals that are public inebriates are brought into the institution primarily under misdemeanor charges. He said the largest impact aside from space that the inebriates have on the jail are their medical needs. They present a medical problem and also pre sent a problem for the guards and for inmates, in terms of safety. He said they do alot of detoxification at the jail and if the individuals are seriously in trouble, they have to be shipped to the hospitals. He said the cost to the city for each public inebriate housed is $27.50 a day and esti mated the city's monthly bill at between $800 and $1,000 for these services. Many of the individuals that come in are unable to answer questions but staff is familiar with repeaters and recognize them as do the medical staff. He estimated that 80% of the individuals brought into the jail have alcohol problems and that at least 15% of these are folks from 4th Avenue. He indicated that counseling staff of the jail try to work with them and the treatment programs and during the winter time. Individuals with charges plead not guilty and as a result spend longer periods of time in jail than they would have if they would plead guilty. He said they do this in order to stay in where they are protected from the elements and have food and shelter during the winter months. In many cases, during the winter time, they see cases of frost bite, open wounds and infection. Medical staff spend most of their time dealing with public inebriates. Gladys Thompson Community Support Project

for

the

Mentally

111

Ms. Thompson said that their project dealt with issues of individuals such as those typified by and

that mental

health

costs

for

-

26

incarceration

-

the broader 4th Avenue of an individ-

ual within a mental

health setting

run as

high as $200 per

day. She said the Committee avoid a narrow approach and look at the broader issues of alcohol disabled individuals as well as the mentally ill and the need for a community support system. She said that the initial emphasis of their group started on housing but over a period of time discovered there was a need for medical and other types of services including outreach and supportive care. Her main question was—who was responsible for these types of people, especially the ones that do not meet the criteria for API and who have no place to go and no one to go to? These individuals often have limited skills and therefore are unable to secure employment. If they receive financial assistance, they may be beaten up or taken advantage of for their money. She suggested that some process be set up for humane treatment system and won dered what would happen as far as outsiders coming in and raise the residency issue. She also asked the question of how one assumes responsibility, through court commitment, through guardianship, etc. She then cited various laws which is the Social Security Act, licensing a family facility, etc. Her main thrust was a need for a central core services agency.

Dr. Bernie Segal, Center for Alcohol Addiction Studies, University of Alaska, Anchorage

From a psychologist point of view, alcohol is not the problem but really a symptom. He said alcohol may or may not play a significant role in the problem. He indicated that the detoxification

program needs to be closer to where the action is, i.e., 4th Avenue. He indicated that drinking is used to avoid reality, and he suggested that the Committee look at the broader role of alcohol in the community rather than just alcohol on 4th Avenue. He cited the fact that almost 5 gallons of absolute alcohol per person over age 18 in Alaska is being consumed and this consumption is linked to auto fatalities, accidents, homocides, rapes, assaults, and other types of crimes of violence. He said alcohol is not just a Native problem. He suggested that consideration be given to the hours of availability, as alcohol is currently available 21 hours a day at the present time. He suggested rezoning as a possible way of dealing with the problem. He suggested moving the skid row population elsewhere was nothing but a cosmetic approach and did not deal with needs and issues of the human condition. He urged the creation of a transition center for individuals coming in from the bush and

needing

a

cultural

orientation.

He

also

stated

that

evi

dence points out that those individuals brought in under involuntary commitment or against their will do just as well in treatment outcome as individuals who enter voluntarily. He said that the treatment must oe comprehensive, must have a tangible benefit for the client.

-

27

-

Ken

Hume

Downtown Community Council Mr.

Hume,

a downtown merchant

for

ten years,

noted

that

there

will always be a skid row. He felt that we should treat these people differently than criminals but neither should we treat them as health patients. He felt that they should be arrested but they should be given treatment instead of jail. He felt that the Pt. Woronzof facility was a good place to treat these people because it was far from 4th Avenue area. He felt that the

treatment

capacity

at Wornozof

should

be

expanded

so

that

they could accept people who required treatment subsequent to their arrest. Mr. Hume noted that the walking policeman has been helpful and suggested that billy clubs be used to break bottles in inebriates pockets. He also noted that education should also be an important part of the Health Department's effort. Bob Spindee Division of Corrections Mr.

Spindee

noted

that

the

jails

are

full

and

the

situation

is

getting worse. The cost of a bed in a secure institution was prohibitive and that the 4th Avenue problem should be solved in a manner other than sending these people to jail, and was there fore opposed to recriminalization.

Maureen McDonald

Anchorage Association

for Stranded Rural Alaskans

Ms. McDonald, a social worker at the Alaska Native Medical Center, noted that many people become stranded in Anchroage because they pay their own way to Anchorage for medical services and ANS Hospital policy prohibits sending someone back who has paid their way there. She noted that often these people get robbed or lose their money and they are not used to urban ways. Mr. Smith asked if the old blue ticket policy of paying a person's way back would be helpful. Ms. McDonald replied that she felt it would. Cliff Kompkoff Alaska Native Commission on Alcohol Mr. Kompkoff, Anchorage is,

its go

easy to

4th

and Drug Abuse

with the Native Outreach Ministries, felt from a rural persons point of view, a big

to get Avenue

stranded here. where

they

When

start

this

happens,

drinking.

After

that city

they

tend

they

start

drinking, they begin not to care. He noted that young people tend to go to the Avenue for excitement and they also become stranded. He felt that we need social activities for these people.

-

28

-

and to

Gilbert Hendrickson Anchorage Association for Stranded Rural Alaskans Mr. Hendrickson felt that it was most important to provide transportation back to the villages for the people who become

stranded in Anchorage. He suggested that a transportation fund be started. If a person used this fund for transportation, he should pay it back. If he pays the fund back, then if the need arises again, he could again use that money. But if he did not pay back the money, he shouldn't be able to use the revolving loan

fund

again.

John Purcell

Alaska Native Commission on Alcohol Mr.

Purcell made a

series of

and Drug Abuse

suggestions.

They were:

1)

there

must be a prevention effort for the 4th Avenue problem aimed at stopping the flow of people to this region, 2) the efforts to work on 4th Avenue's problems must be coordinated so that we

don't just move the people from the core area of 4th Avenue to its peripheres, 3) if the downtown area was the subject of urban renewal, 4) if there was such a renewal, peripheral areas also needed

to have residential

Avenue problem,

6)

the

use

of

units,

5)

combating

peer group programs

the 4th

will

help,

7) the public must understand that it cannot drastically change behavior through legislation but rather this behavior can be changed over the long run through the changing of attitudes.

Barbara

Lewis

Resident of Southeast Alaska

Ms. Lewis noted that she was heartened by the prospect that action will be taken. She noted that she disliked the stereo typing of the 4th Avenue problem as a Native problem. She feels that there are numerous services available and they are being under utilized. She suggested that the Municipality look at funding interpreters. She felt that the blue ticket concept

prevents due process

as people

the

programs.

happening and school

would

not

understand

this should only be for criminals.

education

Elliott Robinson New Start Center,

what was

She supported

Division of Corrections

Mr. Robinson provided some statistics and antidotal information regarding his experiences with the 4th Avenue population. He noted that many of these people have been in jail or have fre

quent contacts with

institutions.

He

recommended

that

these

people be put to work through a public works program and he noted that employment has shown to have a very beneficial effect. He also pointed out that Alaska is one of only four

-

29

-

states in the country that does not provide money to prisoners when they are released from jail. He supported decreasing bar hours and was concerned that there were too many government regulations restricting the ability of public agencies to help clients. Howard

Scammon

Alaska Council on Prevention of Alcohol Mr.

Scammon

noted

that

all alcoholics but

the

those

people

who

that cause

and Drug Abuse

are

on

trouble

skid

row are

not

usually are.

He

also noted that the police have a problem with the parasites that prey upon these people. He noted that the people of the State of Alaska consume large amounts of alcohol and that there

were 2^ times the liquor stores per capita than the lower 48 and 4J/S times the bars per capita than the lower 48. He had written a series of Pat

recommendations.

Sharrock

Alcohol

Beverage Control Board

Mr. Sharrock clarified some of the statements made earlier. He noted that there was a high degree of cooperation at the State and local level. He also noted that the change of hours in Juneau was helpful to the South Franklin Street situation, simi lar to our 4th Avenue. Fred

Morgan

Public Citizen Among

Mr.

Morgan's

suggestions

house and combining the Citizen Bus Systems.

was

Community

setting

up

a

hospitality

Service Patrol

and Senior

Pat Hiebert Public Citizen

Ms.

Hiebert

She

noted

suggested

that

she

that skid

was

a

detox

row be moved nurse

in

1976

to and

a

better

area.

knew most

of

the public inebriates then. She noticed that many of them now are different people which indicates to her that some of the people inhabiting 4th Avenue are newcomeers to the scene. Among the programs that she felt we needed was a lodge type program and supported a long-term treatment program in the Matanuska Valley. She felt that we should have alternatives to drinking programs, felt the Municipality should condemn the property and have the businessmen locate elsewhere. She noted that drunk gfirls

were

prey

for

rapists.

-

30

-

William Kalfas Cabaret Hotel and Restaurant Association Mr.

Kalfas

is

the President of

CHAR.

He

noted

that

the

liquor industry would be glad to join forces with other ele ments in the community and that their concerns were also CHAR's concerns. He stated that he remembered prohibition and knows very few people that feel this idea could again work. He felt there should be a place close by for 4th Avenue people to go and use and suggest that we go and do something that will help. He felt that closing the bars at 2:00 a.m. will not help, but will create more bootleggers.

Maxine Whaley Anchorage Resident

Mrs. Whaley urged the Health Department to close down the bars for health reasons. She claimed that children are allowed in bars. She was opposed to the government "double talk" that allowed the problem to continue and supported the

destruction of

the

bars with

-

a hand

31

-

axe.

ATTACHMENT

D

SCHEDULE

BEYOND

4TH

AVENUE:

ALTERNATIVES JANUARY

8:30

a.m.

Committee

a.m.

MISERY,

reconvened changes

-

Format

recommendations

-

Positive

-

Propositions

-

Policy

assertions

statements

Review of

Summary of -

II

by Bert Hall

Review of

of

PHASE

1981

-

-

8:45

9,

TO

proposed

schedule

Testimony,

Additional

factual

- Clarification of

Dr.

Leonard

Blumberg

data

skid

row versus

alcoholism

issue

-

Summary of

-

Questions

10:15

a.m.

Break

10:25

a.m.

Committee

10:30

a.m.

Small

and

interviews

from Committee

reconvened

by Bert

Hall

Groups

- Committee

-

testimony

divides

into

Each group develops

a

three

list of

groups

issues

to

groups

as

be

addressed

-

Dr.

Blumberg

resource

-

circulates

among

person

Behavioral

Health

Division

staff

recorders

11:00

a.m.

Committee - Three

meets

small

as whole

group

-

32

lists

-

combined

serve

as

11:45 a.m.

Lunch

1:30 p.m.

Committee

1:35 p.m.

Small Groups -

Each of

the

reconvened by Bert Hall

these

Dr.

to each

Blumberg

resource

issue

circulates

prepared among

health Division

groups

as

staff

serve

recorders

3:00 p.m.

Break

3:15 p.m.

Group Reports -

a portion of

person

- Behavioral as

reviews

issues list

- Responses -

groups

Small

groups

- Committee

present

reviews

findings

- Committee develops 4:30 p.m.

Comments by Dr.

5:00 p.m.

Committee Discharged

conclusion

final

Blumberg

-

33

-

recommendations

ATTACHMENT

PRESENTATION

BY

I

to

thank

in

the

do want

the

staff

have

treated

kind

enough

LEONARD

me

to

is

and

I

to

radio

the

dations

My

begin,

and

then

personal air it

I

it

finished

and

that

I'm

Anything

less

than

if

do believe

context.

I

pieces

is

of

way

statistics on

that game accept

so

was

to

but

it to

to play

the

the

we

and

really

take

it,

spend

which

of

date

figure

cirrhosis

statistically

but

I

give

you

them as

kind

of

rough

-

34

I

was

the

at

the

I

I

raw

up

interview

got

back,

my

for me

to

process

so you

name

defending and

I

you.

lay

it

problem.

operate as

in

I

that

would

select One

is

like

two addi of

these

meaningful.

rest

ultimately

These want

figures of

writing

am charging

was

did

respect

recommen

when my

time

estimate

-

of

this

I

your

didn't

some

I

still

liver.

will

so

future

alcoholism

I

to

helpful.

the

a

and

and

of

out

for

middle

when

that

but

but

who

familiar

say with

circuit your

much

be

and

they

Anchorage,

asked

go

thats

as

may

become

inappropriate

man

way

Dexter,

inappropriate

the

and

Fedje

the

looking

to

was the

fool

in

fool

is

really

out

I

was

in

liked

want

short

is moral

data

I

Ray

on.

in

stop

could

recommendations

that

little

principal

adjusted

I

and

background material

pieces

get

had

don't

can't

tional

the

night

and

Ray

enjoy

I

that

I

if

thing

the

that man

with alot of

a

you

me

is

I

not

that

AVENUE

nicer

course,

us

one

4TH

Hall

be

really

responsibility

up

on you and

so

I

inappropriate

the moral

of

turns

happens when

Bert

really

program last

became necessary

comes

I

it

and

and

BEYOND

couldn't

you asked

recommendations

these

with

who

before

wife

there

recommendations

and

me

Since

Chugach Mountains,

Before

acknowledge

helpful

call

yes.

BLUMBERG AT

office,

with Anchorage. answer

and

E

on

statistics to

go

and

what

In

then

through

you

can

alcoholism

prevails and

then I will give you some other estimates which

are a

older.

In

little

the death rate

find, was

for

cirrhosis of

10.1 per hundred

thousand

for

what's being said

that

is

lower alcoholism some

extent

funny problems

with

these

since

fact of

that the

in

this the

this

age of

is

the

is

the

in part a

data

problem of

is

"problem in

country

a young

matter

alcoholism

alcoholism problem say,

them

you

can

in Alaska

whole

That

at

of

The other

the

of

the

hundred

datas

they

hundred

thousand

are

thousand

thousand.

Again,

country

a

it

is

United these

go

as

in

the

States things

the

have

some

are

sort

of

to

there

large popu

its

a

little off.

it as

a

rough,

not

the

I

say

some

to

as

great

as

States."

the

As

I

relatively young

that

there

but we

are

by

sex

aren't

simply

States is,

is

as

not

sort of

I

I

are

1970

3,110

per

per

hundred

to

the

prevalent

in

Alaska

ranks so

29th

that

would

general

notions

estimated

these

4,200

things

Now what

and

the

compared

Alaska

these

is

For Alaska,

saying

common

this

date.

country.

perspective.

through very quickly

so we

up

the United

we

1950.

speaks

alcoholism

alcoholism

rest of

in

for

what

whole

in

also

not quite and

age

So

population.

statistic which

rate per

so

total

Now

the

doesn't mean

a

Alaska has

large.

United

age,

it

to 14.3.

a

is

the

as

to

individuals who have alcoholism problems dealing with

that

because

take

could

This compares

population,

function of

the population.

take

from that raw statistic, the

I

For Alaska

country as a whole

than

they have

the

the

can

latest

alcoholism.

rate

lation and But

and you

the prevalance of

in the United States

are

the

which would probably be 1976 or 1977.

rough index of

a

liver,

we

like

frame

think we

in

the

can

to

of

as

do

see is

to

reference

need

in

our

discussion.

First of all, there

is

and

no magic

we must bullet

emphasize either

-

35

for

-

it

from

the

alcoholism

very or

beginning,

skid

row.

There

is

we

a people

as

no magical

solution,

have

to

not only

hundred

let me

hadn't developed

any

We

a

are

not

not only

and

not

I'll

using

don't

I

its

medical

some

under

the

present

Furthermore, when we

think

if

adopted,

is

success

in

of

to

the

I

the

You

ten,

know

upset

about

the

and

don't

think we

range

as

Next,

I

well

would

for me at

for

charge

about

what

about

the

this

to

do

panel

about

row

area

not what

what

we

I'm

and

got

an

to

really a

cri

I'm

here

for.

that

to

programs

I

you

solutions

as

before

think

to

to

that

need

like

for

know,

inappropriate

you

do

is

the

that

are

extremely can't

believe

expect

in

think down

Anchorage

are

the

pretty

I

can

well

understand

casual

but

I

think

do

is

in

it

long

perspective.

distinction which

row and

understand

in

36

Avenue fact

-

is

alcoholism.

academic.

4th

-

is

that,

I

and

not

than

than

the

it

I

I

its

said

other

the

as

be

its

skid

more

up

but

unless

be

range

think

may

Avenue

need

is,

what

is

is,

area

make

they

Anchorage

time perspective,

4th

You

should

to

is

of

a

that

really

I

think

citizenry of

between

which

skid

but

Avenue

Century

for

programs

success

program

the

studied

over a

some proposed

what

Avenue"

expect

short

like

least,

distinction

the

4th

as

I

fifteen years,

that

19th

games,

it

whatever

but

4th

year.

have

I'm sharing

but

services

need do

the

these

to work out

intend

might,

first

five,

and

I

a

can't

whatever one.

pike

asked

comments

"what

You

radical

terms

to

in perspective—what was

Earthquake.

in

circumstances—thats

there

think

in

I

for well

do.

alcoholism

such

back

what

tique of

to make

since

prescribing

I

afraid

and

answers,

either.

suggestions

don't

ready made

I'm not

your problem and present

that

model

citizenry

can give you

you

answers

prescribe,

no

this day but

assure

recommendations

Anchorage and and

in

telling Anchorage

give

are

develop answers

this question, years,

there

It

is

important

This

relevant.

it

to

talk

area,

in

other

what

is

inevitably

a Its

essentially words

talk

happens.

We

intend to talk not only about skid

talk about alcoholism as not really.

They

though they were

interlock,

are conceptually and

in

row but we

they

the

intermesh,

reality somewhat

same and but

two

intend to also they're

they really

different

phenomenons.

Alcoholism

then

is

a chronic

excessive

serious organic psychological

notice

introduce the phenomenon,

So you

can

its quite

have

have

is

is

that

get

how to

and

the

central

talking

talking

for whom

who

persons

use

about

about

is

it

becomes

alcoholics.

That's

means

when you put

push alcohol

to

focus

need

to

confront

have

an

alcohol

having

an

to make

had

half

dozen

a

focus

side

for

things

thing

life,

or

believe and

then

I

so

is

"more

long

there

is

a

prefer

to

talk

people

37

have

-

a

what

in

how to

a

ridicu

alcoholic.

what we

alcohol

they

and

are

it

You

alcohol problem

is that

confront. about

an

problem

them

the they

They

people

as

alcoholic with

to

things

normal."

labeling

sure

and

who

what we need

as

to

than

but

that other

need

rather

-

terms

as

use

live.

obviously what

they

really quite when

and

are

but

who

to

point.

drinks

an

a

extreme

addiction,

lives,

lives

which

things

problem

people their

their

is

an

the

inclined

organic

treatment

of

is

lifestyle

alcohol

this person

that

a

make

simply

notion of

one's

idea

I'll

be

into

we

and

I would

fact

is

but

the critical

I'm not

some

I

the

the way people

it and

problem

alcohol

alcoholics. do have

of

Alcoholism

upon

the

it

to discuss

focuses

could have a variety of

I

has

the

other

central

in order

life

the

the

become central,

You

the disease concept.

only,

and extreme way obviously,

I'm not

consequences.

focus of

is

ridiculous

somebody

thereafter;

it,

which has

tell people you don't need

irrevelant.

somebody who

statement which You can

but what I

concept of disease

in which alcohol

alcohol

into a big debate on whether alcoholism

disease or not here

are

social

that I don't necessarily use

don't want to get

lous

and

use of

is

alcohol.

but

Most of

those

the

Avenue

4th

understand

And

with

as

now skid

area I

usually

houses.

Usually

usually,

there

area or

agencies,

agency

and I

in

slave market will the

of

shops,

which

really

skid

people

are

call

them

areas ness

and

in

if I'm

homeless

say

is

country

variety of

see

row it

means

as

to

they

row

Its

urban

last

is a

me

a

human

human

that

says I

this

the

something

condition

find

-

men

home

a

normal.

this has

have

skid

to

be

busi

but

done

area.

more

than

an

area.

people

what

all

skid

a

which

about

it.

Indeed,

the

I

over

through

Human

in

row

That's

row area

an

row-like

these

been

goes

we

skid

reason why

as

-

is

that's

area

not

These

central

there

there

on

pawn

and

area and

well

38

areas

that,

the

to

a

up

unstable,

as

skid

called

minimize

is

the

employment

banks,

together.

downtown

there's

condition

you

don't

in

talking

its

Blood

"Wow",

but

residential

downtown

twenty years

processes, and

the

I'm

48

cheap

tneir

sociologist,

because

confronted

is

in

flop

about people

working come

is

cheap

residentially

to

happen and

the

to

live

slave market you

houses. of

are

adjacent

a

the

And

family

employment

when

about

use.

tend

skid

as

of

extre

institutions

temporary

talk

flop

downtown

that

for

row projects.

Skid

of

they usually

be

called

as

always,

about—talking

So when Anchorage

want

to

to

term you

these

not

temporary

rest

characteristic

row but

edge

has

talking

the

are

the

where

happen

course

down on

the

I

the

they

jargon

Incidentally,

jargon

things.

the

specialized

in

to

approved

family,

and

places,

has

live

concentration of

the

a

one

socially

number

of

banks.

normally occur

to

number

transients,

area.

a

so

don't

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housing,

jargon,

so

high the

the

thats

places are

of

into

know what block,

a

are

Anchorage

two

outside

cheap eating

slip

are

outside

live

there

blood

the

area

in

facilities

poor quality

are

nearby;

somebody

living

its

these

an

people

problems

use

that

row—its

These

cheap and

or

say

mely poor people context.

alcohol

I

condition

poor sec-

tions of than I

I

dare

find

urban area. If

you

think of

say,

if

you

look

people

who are

than

we

is

have

it

from my

or

really more

one

will if

of

the

benefit

we

can't

back home on that

is

honest

some

clearly

benefit

that's

call

the

as

the

area.

to

who will

benefit,

they

are

not

unimportant

For

the

question,

benefiting

deny, fit

I

and

to

they

They

the

various

will

see

in

be

this

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red

terms

4th

And you

eye

what goes

are

and

less and

calls

are

be

better

blunt,

send

special,

to

me

and

stand

that's

to wrong,

benefit and

there

easier is

that

said

its

users

are

to pin the

lady

distributed

this—who

lets

the police

the

area?

into our mix.

then

that

of

Avenue

from

stand

they

benefit?

degrees.

certainly don't deny

humanitarian

I

a

what

them

reported

talked

the

terrible

and

I

general

and

I

Now

when

area,

we

beneficiary

say

and

they

here.

who

the general

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area

to

is

Post Office who

are

the

condition as much

saying

Its

lady who

here.

in

human

I'm not

the Greenwood Hotel—the

come down

dif

only difference

skid

then

the

benefit

users of

hate

to

not much

emerge

about

part of

that

I

to

other,

Now

obvious

the

going

downtown business people

its

at

a

about

than

down but

other day down

is

The

So

has

begins

benefits.

rapes on

do

each

major

The

are

Anchorage,

doesn't occur

is

it

I'm saying

that

call

we

distributed

the

the

I

see

plane

the

of

better

area.

that

with

all

understand what

I

something.

don't mistake me, we must

row.

something

other

that

by doing

to

skid

you

which

it

should

from doing

sections

areas

lifestyle

an

as

questions

be

those

experience

simply

what

poorest

because

typed

concern

like:

know Anchorage much

on 4th Avenue.

it

and

than

Now the present questions

type

research

a

lived

stereo

the

around

living

being

don't stereo

which we

And

You all

do.

ferent is

the

as

-

second

that while

public will

considerations

The

There

39

benefit, well.

-

I

are is

a

lot of

that

we

people

do

businessmen will there do

are

not

bene

humanistic

not deny,

I

don't

suggest are a

that

less

to

they have

no

and

humanity

us

Now

I'm

they

economics,

be

I'm

I

right,

do

job at

say

this

all

across

out

but

I

is

like

are

is

to

said

I

the

on

what

the

this

of

in

therefore they

terms

denying

are

of

the

a

if

we

don't

So

their

lecturer

its

its

is

the process.

is

what

so

in

they

There

think

think

but

complex recognize

not merely

we

caught

to

try

said and

with

her

that

are

doing.

You may

That

Lets

I

drink

and

what

tionist

and

I

make

a

This

comes

I

saw a

going What

them

a

saw as to

I'm

drawing

few minor

the

fought

things

was

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so

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here. am

not

literature

-

of

the

I

have 19th

we

her the

repeal

So

she

no

I

don't a

drink

prohibi

between moderation because

very

your

saying.

and

I

what

its

is

"What

against

repeal,

drink

what

end,

really

the

it,

part

40

at

confused

enjoy

-

I

but with

not

"I

to

distinction

the

as

leave

was

she

want

in

I

that.

said

it

delivering

person

said

was

not get

but

not

I'm not

minor

wanted

"we

understand

highlights.

message

charge,

I'm

I

Anchorage.

to

lady who

That's

As

summarize what

issues

what's

people

and

to

to

the

the

little

review of

comments.

I'm likely

heavily

siderable

is

highlight

you

prohibitionist."

prohibition.

I

ethical

and

in

it

say

and

summarize

fountains."

responsibility." us

is

start

prohibition,

laid

job

board.

water

message was; of

point

to

important was need

opening

think

an

problem

my

to

the

of

that

trap

be

failed

which Anchorage

to do

the

ethics

have

beings.

own humanity

essentially

the

out

reject

to

are

person

money

that

obviously.

What my

issues

would

say

this

the

of

benefit

human

they may

in

trying

is

think we I

I

their

involve

part

these

lecture.

I

and

people

with

making

caught

not

to

are

reject what

going

are

think whatever

to

trying

that ethics

my

concerned

concern

problem which does

All

business

They don't deny

don't want

what

say

less

human

beings

solution. I

downtown

human and

tendency

human

when

done

and a

con

Centry.

In

any

case, water fountains—given that then the first major issue

was the question of long-term institutionalization.

There was

no support that I could detect for recriminalization but was an advocacy and discussion of

there

incarceration which was

justified in terms of involuntary treatment.

Using a medical

model, you are sick and you should go to the hospital and if you don't go to a hospital, we may have to send you to the

hospital. model.

This is the medical

Sometimes

involuntary medical treatment

this was referred

to as protective custody or

there was a demand that they, meaning the people we're talking

about, the 4th Avenue people, being required, and of course the key word is "required;1 custody.

to change their way of life or stay in

At one point the Prosecuting Attorney,

Mr.

Bailey

used the term "secured detox" which struck me as a detox center

with bars on it. that context.

I'm not sure what secured means otherwise in

Some chose

to advocate voluntary commitment,

there was also in my discussions some discussion of the lega lity of the involuntary concept. number of points.

This was challenged on a

First of all,

the Law will act differen

tially against Native Alaskans and therefore this is a basis

for coming to Court. and the argument as

something harmful

Secondly,

that on First Amendment grounds

I understand

it was

that unless you do

to others you cannot be locked up.

must have clear standards before confinement and

The State

the State must

pick the least restrictive grounds for confinement.

I throw

this out so that you understand that there are legal questions we

touched on

those yesterday but

they really

addressed, maybe not here but elsewhere.

still

Thirdly,

have

to be

individual

commitment under civil proceedings deprives a person of due process rights such as a hearing and proceedings denies

the penal

impartial

aspect when

that

if such

Civil

in fact we are dealing

with involuntary confinement for behavior. suggested

trial.

Lastly,

it was

involuntary commitments do take place,

suit will be entered under Section 1983 of the U.S. damages for intentional violation of civil

-

41

-

rights.

Code for I'm only

a

your repertoire

is

that all

of

here I'm not

this discussion of

clearly

consider

he

there will

said

away at

it

the

legalities

be

this

and

the

that's another point of used.

And

First

there

secondly,

respect There

to

was

are as

the

well

was

sale

of

was

beverages

to

from

of

bars

not

in

from

the

bars.

are relatively which

in

revoking

licenses

for

Board

required

is

bars

through

suggested

coupon

system

here we get a question

of

beverages. the

area.

condemn

the

to

maybe

restrain

There

through

the

how

the

it

com

can be

with

a

and

a

who

as

there

sell

Johnson

Avenue

to

The

was

And not

bottle

for

a group

back where

a whole

behavior.

special

is

in

jargon

around

is

secondly

drinking

the

social

question of

raised,

the Alcohol

law says

that

orderly

business

establishment.

reduce

and we

zoning should

and

was

number

of

-

the

the

the of

-

the

is It

someone Greenland

consumption.

focused

consumption

points

that

Iceland,

question of

eminent

42

lastly

liquor all

all

high concentration of

and use

they

ritual

the

to

now

was

used.

consumed

is

they

alcoholic

opposition

bottle

suggestions

right

beverages.

effective and

there

gang

actions with

service

hours,

stores

available

there

were

be

4th

liquor

availability

Thirdly,

the

phrase Mr.

that

an

variety of

the

of

liquor violations

licensing that

law and

alcoholic

versus

heavy

bottle

or mentioned

to me

the

Bottle gangs

maintaining

the

I simply say

those

persons

the

to maintain

was discussed

would

inconspicious

involved

Control

this

together

is

if you keep beating

discussions of

limiting

most

but

people getting

when

back off.

hours

keeping

penalizing

that

to

that

of

believe was

argument

the

gangs,

I

you want

understand

of

intoxicated

liabilities, related

actions or

advocacy of

advocacy of

towards

am saying

Judge Moody did

but

dispensing

disagreement on whether there

will

I

involuntary commitment.

advocacy

as

this.

eventually

view

there were

the

of

courts

What

commitment,

court challenges

the courts will

munity wants

threatening you.

there.

domain,

around of

what

So this

alcoholic

to

do

about

First

of

all,

clear

the

area

and

permit another such area tionable

to develop elsewhere

in a less objec

area.

One suggestion was

closer to where

rather be and

come

Secondly,

I'll

there was

a

back

to

reminder

the Alaskan Natives would

the Alaskan Natives

that

after

all,

4th

later.

Avenue

old Anchorage, I'm not quite

sure

I have a historical

from 1950 which suggested

they laid out called

the

"bohunks"

account

town

made provision for a tell me where

for

that

revealed

In

I gather

"red

"red

light"

any

that.

case,

Anchorage

emerge, the

and

is

Apparently,

what

over

would the

a

happened

it

the

love

showed

a

and

it was

clear

But

this

and

street dropped

know

is,

what happened

something about Avenue even

the

if we

who

down

to

4th

are

used I've

just

both

all

on

the

Avenue

of

the

from the

process

that

the

is

other

that the

people

the has

old

begins

side

I

what

Does

of the

Anchorage

was

looking

street

crowded

on

street

the

I

And

would

this

that might

to

fascinating

of

their dress.

bank,

into

then

pictures

of

can

not discussed.

absolutely

these people?

nothing.

somebody

seen pictures on

one

sides

they also

literature

its

question

picture,

natural

did

that

the

not Natives,

the

but

they

which was provided

the

collection of

almost

half

in

existed

those

street,

that

nobody

redeveloped.

have a

crowded

were Caucasians

to

street which

to

years.

at,

was

to

if

that I don't have

statement

what happened

street when

I

was

it

And

district was

insight

Anchorage but

there

saloon across

and

of

district.

that when

for what

foreign laborers and

light"

it might give me some

urban process

what old Anchorage means here.

they also made provisions

which

is

I

like

tell

happen

I don't know but

since to

us

to 4th

raise

this

question.

Thirdly about

in

the

this

same area

area—what about

we're dealing other

-

43

areas

-

with in

the

about city

what

to do

that are

skid row like? ination?

Is

this an evidence of prejudice and discrim

This question was raised

pumped very hard

to me,

specifically and I

but only once have I been able

of a place otherwise I

just get generalities.

to get

the name

Somebody men

tioned Chilkoot Charlies and apparently the people who use that

facility are pretty skid row-like.

If

the question

there

is,

while I

understand

beating and knifing and violence of drunkenness around I don't know whether been told

like.

told.

there were

now if

that

I'm simply reporting

I'm not

into a debate,

suggestions made

in Muldoon—nobody gave me the

can't give

Fourthly,

them

of

is so and what

is

I have

skid

row

the

suggestion was made

by sociologist

unique -

not any of

area.

It

kind

for fun, who use

the

all

these

is a recreational may not be

over

but

area

larger than

jackrolling drunk and

so at

of

There

any one

is stealing

I walked

you

see

stretched

the

answer

are

what

is

is

he

meant

has by

but

are

time,

down out

been the

less

its one which so

jackroll

beating

so

really

they

to have come

number of

the

them

pockets

-

a

up

and

parasites.

there

populations users

is

First of I

judged

drunks—

their money when they are

in

his

fun.

down

population of

permanent.

all

is

that 4th Avenue

there

streets

44

its

called parasites which

jackrolled.

-

a

the

their jack or

it means

necessarily. man

some

those places

observed

fun we want

people who

sometimes

a

of

that and

People come down

there were people who were this

this.

there were

the place

those who are more or

was meant by

names

it was

among other things. the

that

on

to you.

observed

all,

a great deal

You can make up your mind yourself but I'm telling you

Secondly,

I

then

in that area and a good deal

that facility and its so.

is

the case,

then we are dealing with an area which

what I have been

bars

that is

Or

first

number of are

but

not

cities

ripped

prostitutes,

out

and and

these

Secondly,

people

from

to have a good

time,

make

it

home.

They

part

of

the

of

the

holiday, seen

Now

1.

see

visitors—they are

them,

we

see

them

as

the

not part

but

they

come

from out

a moral

for a

to

the

the

as

point"

was

relief

a moral want

really

to

can't

of

to question what from community

results

to

people

a

one

very

to

in

of

loped

network of

to me.

of

That

agencies

influence.

If

fractionated going

-

as

kind are the

different

made

at

of

early.

is,

not

a

five

State

there

in

a critical

next

the

incompetent,

45

be

are

of

to generate

-

this

4th Avenue

a

years,

must

must

the

with case

the

show

be

deve

coordinated

operating

that's

of

services

to

the

competent people

network of

is

and

and

recommendations:

Within

Anchorage

on

were

critical

several

needs

variety

the

beginning

public

made

there

services

of

who live

rights

Legislation.

This

And

the

that

social

alcoholism programs

programs

a

and

That was

suggested

bureaucratic

at

same

were

alcohol

services.

don't

in

going

summary

a point which

there

"Alaska's

this

those.

be made

that

the

in

alternations few of

First,

is

is

holiday -

point

citizenry.

develops

nobody

You

for

a

conformity.

is

cooperative

and

it.

in

for

intelligently) there

come

down

I

conversations

a

and

because

won't

fifth

that

weekend

town

who have

under

from out

a

the

quite

discussion

for

name

(I

that has

of

down

call

Its

the

were

citizens

my

we

of

down

don't quite

to

toward

now,

points

rest

sort

sometimes

come

used

recommendations

of

and

who

town who

come down

they do.

there

as

Anchorage

of

in

names

pressure

come

sociologists

back

town and

Right

really

although

transients as

the

ever

of

drink heavily are

people who

vacation,

name

parts

scenery.

Thirdly,

be

area

other

and

a minimum of then what

ineffective legislative

set of vote of

no confidence. understand my Avenue,

2.

the

to

is

be

3.

it was

it was

deported.

The

elsewhere I

to

would the

money

so

they

would

be

on

called

is

Alaskans

that

State.

lower

48

the

about

4th

challenges next

paralegals

civil

that

make

own.

but

rights

on

of

five years

4th Avenue

those

rather

than

cases

this

and

of dependent

skid

including sume

support

row area

munity under

be

the

matter to

the

another

for

is

what

we

a

a

who

it

If

call

it.

Alaskans.

adults.

one

social

Seeing

it

then

Back

seemed

I'm

agencies

to

I'm

trying

to

people

who

The

this

kind

of

conceived

as

technical

community

way

to

local

put

it,

in effect becomes

what we

do,

it

was

accept

the

responsibility

-

observed,

46

-

a

this

parental

the

for

parentus"

but

is

to

tell

all

live

in

I pre com

a which the

model

model.

community

some

edi-

adults

variety.

"in

to

handle

help—a whole

model

its

the

not

the mentally deficient,

notion was

they

for Native

need

parental

some

happened

category of dependent

ill,

me

although,

Again,

the

asked to

while,

is.

this

be

subsistence

deportation,

would

of

person

minimal little

users

ticketing"

ticket

into a debate.

core

as

"green

somebody

enough

and

who

guardian using would

a

the mentally

children

also

rural

heard.

Create

And

them back home,

you

I

was

This

this—I'm not

what

residents

used

it

what

the

was

that's

that's

sending

that

with

toralizing

need

done

other

within

to get

to giving

could

their

anybody else village

term

respond

in

that

of

be

I

sooner.

to protect

suggested

the

place

not

someway and

suggested

should

if

there.

Thirdly,

how

not dealing,

variety

relatively

to help obviously live

really

a whole

met

pike or

Secondly,

are

informant with what

implicit

which have down

So we

people.

will This

No

was

also referred

to

in

drink heavily but are

Next,

there

was

tion programs we

have

about

shifted

discussion of In

spite of

skid

in

the

and

its

and

for

it

that told

examine

the

required

the

that

one of

their and

while

a

and

in

be

fully

alcohol

and of Alaska

under

certain

is

drivers

bottle

of

com going beer

not necessary

Alaska)

it was

but

the

and

this

to

infor

inappropriate

behavior.

industry of The

can work out

helpful,

continuing

intoxicated

common

long-term nature.

we

this

A

and

see

can or

to

we're

and

cooperation attitude

programs

for

it"

and

in

those

expressed

that are going

the

liquor

was

to

industry

testify as enemies but as parts of

community.

Next, as

was

liquor

did not come in here the

at

hard

(people made

to

a

the

should

abstinence

as

(1)

significance of

not uncommon

driving

from the

"look if

be useful

and

highway

this

age

.

we

conceptionally.

education

the

as

becomes

programs:

some education because

programs of

it

while driving

pulling

behavior and dangerous

A promise

do

a

4th Avenue

people of Anchorage

it was

they were me

we

alcohol

moderation

they went down

mant

4.

if

so

how

insensibly

and

intermixed

that

say

almost

to

confused

(2)

highways

row

notice

to get

ments

as

skid

And

things

like drinking

the

abuse.

or preven

as

tend

not

themselves.

educational

children at an early

(3)

or may

it out

conditions,

down

for

alcoholism,

educational

lifestyle of

to me

and

who may

that we lay

even

then of

funded;

educate

alcohol

they are

into maturity;

Federal

of

these

indoctrination of up

care

development

fact

them separate

development

those

from a discussion of

the

talk because

of

unable to

alcohol

row area,

keep

the

terms

there was

social

a discussion of police

agencies.

There was

-

47

-

the

in

the

advocacy

of

jail perceived stricter

enforcement and dominant thing

recriminalization was mentioned but it was a but

afford personnel

the statement

time and

that

the jails

the police can't

are already crowded.

So

if you recriminalize you simply set the change for a whole

series of new kinds of things. frightfully expensive. and

releasing

Hotel—this scene

Build more jails which are

The problems related

people.

Better policing

is certainly one of

that we

heard

about.

the

The

need

for

the police with

alcohol

Next,

services

the

nearer

the detox

facilities.

facilities

Expand

to provide sleep-off

term facilities. "gate money"

so

There was

somewhere else.

It

was

suggestion

coming out of

suggested

people coming

in

to stay other

than

row

for

the

to

first

simply move

long-

that we jail

need

are less

they got some money need

to

several

this was meant that to Anchorage had

into

the

4th Avenue

a place skid

area.

Expand

the

persons

transport

system,

(presumably Natives,

elsewhere rather separate

than drift

facilities

counseling and

to

not

them,

so

that

incoming

necessarily)

those who need

among

the

even

if

mentioned. the

Teach minimum

job skills

area.

-

48

-

Use alcohol

they are simi

terribly well.

resident population

That really wasn't spelled out very well I'm not

live

Different kinds of

these people don't mix

ask me what he meant because

might

the 4th Avenue area.

facilities,

Develop peer group programs

within

but

for transient families.

in what's in

itself.

presumably

for transients,

people needing different

lar

time

expand

that we

hospitality houses by which I gather

relocate

Woronzof program

likely to drift on the Avenue because go

close

row area or expand

facilities,

the

that people

continuing

Specifically,

the Pt.

the rape

programs.

skid

existing facilities and services.

the Green Leaf

implications of

cooperation of

relocate

of

to jail keeping

sure,

but

and don't

it was

through employment

6.

Alright now, Natives

the

sixth major

toeuro Alaskans,

white people because I

but

in cultural

Avenue

above If

and

we

you asked

somewhat

to

then

the

is,

the

me

See,

the

health

tact

times.

In

The

in

that

the

too.

their

I

need

grants

to

talking

is

the

because

funds

of 4th the

Alaskan point

of

view.

good

a mixed

deal

and

First

of

the

remi

of

that

all

and

away

in

publicly those

as

v/ell

services

in

how to

included

funded

are

cultural also

-

but

49

-

a

(I'm

all

the

to work with

I'm

told

have.

don't

They

assistance

incoming

Natives

Temporary

housing,

it

city,

in

simply

because

a deve

by alcohol.

the

differences.

not

of

traumatized

technical

that

a

devel

for

drunk

they

its

only the

a

for

in

impacted is

not

problem.

need

pretty

so

is

formula

advice

is

think as

been

problems

for programs

to make

programs,

programs

the

Corporations

Alaskans

adjustment be

told,

Avenue

a Native

guy who

from 4th Avenue.

assistance

should

there

the

precon-

that have

problem or

and

families

Welfare

social

not

help

Thus,

contracts

4th

understand

need

in

drowned on 4th Avenue.

that

It's

exist

people

Alaskan

families

Euro

didn't

any mysterious

I'm

the

is

do

about

Social

intensive

use

terms

of

I get.

being

Euro

assist

need,

instruction

Natives

this.

really

that a

is

to

They

transport,

existing

racial

than

Much

a proud

problem.

to

be guided

Natives

a

talked

programs

The Native the

Euro its

saying

either

general

families

have

will

but

are

own programs.

there

for more

tradition

they don't have

addition

time,

of

problems

they are

alcoholism.

lopment of In

a

welfare

they

that

Natives but

oping

and

what

Natives

treating

from

They say

Native problem

community

in

two different views

were

picture

it

rather

frontier.

and

effect,

to put

aware

Native people,

relationship of

Euro Alaskans

very

Euro Alaskans make

of

The

be

confusing

niscence

cast down

the

There are

to

reconunenations

use

don't want

terms.

ought

I

topic.

The

reporting)

because skills

the

and

in

knowledge

developed

among

their

times

without

tion no

right,

way

of

7.

the

thats

of

onto

things

Somebody

people going about of

the

beer

towns

of

me to

parks

and

expressed

to

the

the in

be

used

come

the,

They

Avenue

We

I

in

need

when

to

get

out

all what

got mentioned

parks the

city

drunk

as

(and but

on

being a

to

I

and

to

of

done

weekends.

sold

in

substitute

for

the Native

villages

my

of

and

about

and

was

the

young talking

with a

kegs

concern

cities

and

the

Some

youth.

aren't

nearby

booze

There

about.

smaller

and

otherwise

things

There

the

they have

Avenue.

they

elsewhere)

institu

stranded.

talked

presume

some

home,

alcohol

be

context

the

then

4th

kinds was

the

got

become

were

needs

I

transport

they

into

in

Anchorage

think

altenatives

screen

drugs

State

both

of

something

getting

about

apparently

home.

that

told

Natives

recreation

me

then

Alaska Native Hospital

Youth.

for

can

consent

4th

for

and

not

the

the the

need

Alcohol

people.

getting

they drift

is

own

there

this

and is

Euro Alaskan

population.

Okay, people

this

represents

telling

me

and

summary

this

is

-

v/hat

50

-

what I

see.

I

heard Anchorage

ATTACHMENT

"BEYOND 4TH AVENUE:

RECOMMENDATIONS

The Committee Blumberg, and

a

OF

on

the

ALTERNATIVES

TO MISERY,

JANUARY

9,

LEONARD

BLUMBERG

to

the

recommendations

on

Inebriate

Municipal

Protection on

PHASE

II"

1981

Downtown Public

consultant

Environmental

sent his

DR.

F

the

how to

asked

Department

4th

Avenue

solve

the

Dr.

of Health

problem,

Anchorage

to pre skid

row

problem.

Dr.

Blumberg

pared a were

the

1.

separate

similar

cases

were

to

set of those

recommendations

There

Dr.

his

should

not

This

Blumberg

is

is

developed

were

be

his

not

a wise

personally

opposed

fact,

legalistic

on

He

very much

is

the

tionalization

care

depriving

He

emphatically be

in

people

cleared

of

them

"giving

voluntary

treatment.

their

supports through

-

in

some

the

but

had

pre

cases, in

some

Committee

that

opinions.

of

being

drunk

in

compulsory

to go to

to

a

treatment

jail.

hand.

institu

This

might

Compulsory

someone

a

life

sen

plan."

favor of or

to

slight of

like

installment

in

could

is

he

policy.

people

sending

that

Committee,

reminded

social

in

tence

which,

own personal

center,

a

the

He

you compel

considered

saying

recriminalization

institutionalization

4.

by

If

you are

by

recommendations

tional izat ion.

be

3.

remarks

radically different.

public.

2.

introduced

need

freedom of

cleaning the

51

We

long-term

right

-

up of

4th

to

be

institu very

gentle

liberty.

Avenue.

eminent

The

domain,

area among

other alternatives. appraisal

5.

of

The government must assure a fair

property value.

The police should vigorously enforce existing laws on alco

hol use in public, on sales in liquor stores to intoxicated people,

up to

the limit of the law.

to put breathalizer

institution. person

6.

as

tests

at

the

An extreme proposal

entrance

to an

This doesn't catch the bartender,

he's

going

is

but the

in.

The health codes should be enforced health code should be a tight,

stringently.

The

strong code and should be

enforced.

7.

Housing quality codes should be stringently enforced.

8.

Licensing should be changed secure or renew a license

9.

to make

industry has a stake

in making

be

sure be

the rights of

things go right. imposed.

This must be

the poor and

those of

the

equal.

Allow the economic processes of prevail.

sale or dispensing of

it clear that the liquor

Reasonable closing hours should well-to-do

it more difficult to

for retail

alcoholic beverages,

equitably applied:

10.

to make

the urban centers

Construct Project 80's and

locate some of

facilities adjacent to the skid row area. between B and C Streets.

Those

to the

Clear 4th Avenue

facilities,

between

the

Project 80 facilities, will upgrade their establishments to attract gain

11.

the different clientele or obtain

through

their capital

increased property values.

Develop a series of laws or codes which makes

the resump

tion of skid row activity more difficult, perhaps through selective

land

use

ordinances.

-

52

-

12.

Develop new Native-owned and managed housing and drinking facilities elsewhere as on

the

skid

row area.

substitutes Financing

to

may

facilities currently

involve some

subsidies.

13.

Native corporations of the 4th Avenue

could

be

interested

buildings and

selling Native crafts, museums

14.

There should planned

15.

16.

clean

to

Develop Native

them to

some

centers

for

other positive uses.

service network with good

pre

row-like

up

with

establishments

the

assistance

skid

elsewhere

of

row:

in

CHAR.

housing,

employ

etc.

comparable

Look

and

institutions off

programs oriented

people

alliance

in niatriarchial

between Natives

intensive work with

probability of

into

developed

20.

skid

Develop educational

More

convert

buying out

evaluation.

Anchorage

strong

19.

social

on

or

18.

a

Put pressure

ment,

17.

be

in

ending

using by

Dr.

or

and

testing

skid

village

Alaskan

Runaways

row

in

the

a new alcohol

elders

cultures.

cjoverment

runaways.

up on

toward

is

A

essential.

have

a

high

future.

treatment

theory

Shipley.

Develop industry and employment,

with

an

eye

toward

stable

jobs.

21.

Develop alternative to provide

22.

23.

recreation

something

Stringent enforcement

Develop

BS.45

neighborhood

other

on

unskilled

53

social

-

men

and

drinking.

drunk driving

based

-

than

for

laws.

service

case

work.

women

ATTACHMENT

PRESS

The

following

published

Times.

in

press

the

the Anchorage Daily News and

sion stations

for use

news

also

is

CLIPPINGS

clippings regarding

An announcement sent

story

G

as

to all

local

Conference were

the Anchorage

radio and

televi

a Public Service Announcement or a

attached.

-

54

-

opinion

Anchorage Daily News ■

Anchorage Daily News Winner, 1978 Pulitzer Prize Gold Medal tor Public Service Kalherine Fanning

Gerald E. Grilly

Editor and Publisher

General Manager

Stan Abbott

Clay Haswell

Executive Editor

Managing Editor Editor *nd PvOlitflvr. 1*41 to IM1

Fouft4«d in I9« by Hoemtfi C drown

Fourth Avenue needs solutions The Fourth Avenue dilemma has cropped up again. Same song, next verse. Which means the problem is still with us, only it keeps getting worse. Drunks fighting in the streets, drunks sleeping in alleys, drunks panhan dling shoppers. -

The problem haunts merchants who see their trade suffering, and it upsets tourists whose hotels are within walking distance. Unfortunately, attempts to cure the situation have never worked. The hard-core public Inebrietes on Fourth Avenue have been allotted much money and attention. Street sweeps by Anchorage police have failed, they only crowd the Jails and provide no incentive for positive change. . likewise, social programs have met with little success.

' Service organizations bave tried valiantly, and expensive

ly, to motivate these inebriates into a different lifestyle.

But many bounce back to the street in a short time.

So it seems reasonable to look somewhere else for a

magic solution.

Several years ago, a perceptive report was done for the municipality showing that Fourth Avenue was a happy home for most of these people. The. street gave them friends and an identity. There was very little need to change their behavior patterns:

If the drunks can't be changed, perhaps the municipali

ty could alter their hang-outs? That is what annoys downtown business the most anyway.

One way could be making liquor less accessible, for

instance, by cutting the hours of liquor sales. Few communities have such liberal rules on bar openings.

Drinks can be dispensed here for 21 hours a day. Maybe sale of liquor to drunks in package stores could

be more strictly regulated, and serving drinks to the already slushed could be more tightly controlled. There might be an economic pinch — but who knows? If liquor business slows down maybe the problem would

move elsewhere. If such solutions don't seem reasonable, maybe other

cities could suggest some answers. It is worth looking for a new approach anyway, since we haven't been able to lick the problem so far.

-55-

Friday, January 9,1981

a-10

CHAR develops alternate

proposal to Skid Row I •'■'-TV- • '•■:■*.■>:'■ : II£

An organization representing local bar own-

N

*Jt£&S$Fk °P its own proposal on how to combat Skid Row alcoholismand is hopeful.of

*« ^

?d at ^ ^ hdd

,to 15 days, which is what I'm sure you

.

he proposal includes a "streamlining of the -E~ 1^™^ £^*«* Period,"

; wvoiuntary.commitraent process," a sookesnuin

■*- for the group said. Robert 3ert Jo

'.



-;

of^ the local chapter^ of the •

care

for the panel's

•5*nson said.

-

iimu

71;

~ »•■*•*'»'*» wmuj ujett,

have the courts as an appeallate

tiwuison said.

Tlie (bar owners) recognize^hat something has .^ ~—«& •■no.

iSoS

: toi»-*!»-- We don't have a crisis situation here tft ha Anna. ■ (Da >)i..tt u_.._ «. _».i

|Jl\H,t3eQulfi 8XK1 IBB

; yetbut t'ssafeto^sayi^uldbecoineacrisSL"

assembly.

y. to get help from the

to lobby in JXS

1

d

ud help us, "Johnson said.

fin ?5i? haswb2ut m ^erobers statewide and, 60 locaUy, which represents■ about oi»*alf rf Ancnorage s bars. w

toyolves; setting up a coro,'^'

-56-

cbmroitment

SS"1 P^eram .regarding alcoholism, Johi

matteriVVv -ihss; s.rrJ.Z.zz■;■..<-.
■••''■ ■••K. ^■'•"•i-.'f!' j^;-. ■ ', V,

;

CHAR also has recommendations on a public

^A Blue Ribbon Committee that last week studied Anchorage's SHd Row problem recommendeda reduction in the number of hours each day-that alcoholic beverages can be sold. Johnson, who sat on the lft-member committee, wasthe only dissenter on the issue ^ Johnson said CHAR has not fmished studying legal problems that may be associated with the proposal, which^^ involves taking the problem of repeated pubUc drunkenness away fromthe 00l58!.JP»^JW*taB'tt "complete^ a health" il". experts on

TOb prdUminary

g««Mston) with attorneys indicates that«>S

relations) effort — mat's

^2% !££1JLP"* ^#^ way> te^ to

^reason to penalize another 119 bar wraera."

-.**** /*-rt

■ .-■

• _ ■; ••-. -v^-.;-..■•--5.;..v ««•■ ■ •

:«. •- -..■'

wants bar Jriours

A committee struggling to solve'

the "Fourth:-' Avenue problem" ' agreed Friday to recommend limit-;

ing the houifcfears"and liquor stores."

are open as one way to eliminate An

'"■

Other recommendations: • '... v. ■: body of primarily Native Alaskans

— Clean up — "change" — the"; "' set up to help visiting rural Alaskans ..,,., •;.... three-block skid row- area from A ." stranded in Anchorage. Streetto D streets on Fourth Avenue: *r;~Have more."visible" — not

by,.-perhaps,

"reducing the con-, ' necessarily more "stringent*'^Taw

enforcement.:! i\''lJ?J.Z~S-,b%££Z;~.l centration" of liquor establishments! -'-— Keep working on the problem. ■ —:; "Quickly" work toward A Committee on the Downtown" Public Inebriate wound up a two-day amending existing legislation to give . The committee recommended meet ing again in six months with its con courts the ability to provide treat meeting Friday at the Holiday Inn on sultant, nationally recognized expert ment after due process. ". Fourth Avenue and C Street with this on skid row problems, Dr. Leonard -> Reject the idea that being and six other recommendations for , drunk in public is a crime. ' .. ■ Blumberg, a sociology professor and Mayor George M. Sullivan. - v";! —Support the notion of providing ' author from Temple University in Across the street, as the mayor's services to the denizens of Fourth Philadelphia; . ,! *..\."X'. -; 15-member committee; broke for The committee was appointed by hinch, four men'lounged at noon' Avenue. This would include organi the- mayor, and includes doctors, around a bottle in frontot,th£t_Mon-:; zations such as the Association for (See DRINKING, page A-3) .. tanaClub. :<;r"rtr. ,y.':.j v Stranded Rural Alaskans, a private The committee backed off;re commending specific hours for bars

chorage's skid row.^

-•>.• ■. ■*.■' .* = •„

mm-.

and liquor stores. It noted that' after, the dry of Juneau required its bars7

and liquor stores to close at 2 a.m,., Mondays through Thursdays, police'



calls fell 31 percent, ambulance calls .^Continued from page A-l) ., ^.- "f r^'2 went down 38 percent and street pa-^ ;i)usinessmen and state legislators. " ■

troi calls fell 22 percent. '•"■"

,

mously.

.

; • I ■:. I

• , •

■\'j>:.



...

', «■■■••■• ♦•.■••■

•;;-;:>.-»v.

He suggested that the solution to

the problem today lies, in part,, in

^o-x; *•■- At hearings before the committee l"earlier in the; week,. Johnson prok posed creating a five-member

The recommendation to limit bar and liquor store hours was opposed by 'Robert. Johnson of the Cabaret Hbteland Restaurant Workers Asso ciation. It was the 'only recom mendation which did not pass unani-:

..

"■■ -

passing laws that would force drunks to participate in rehabilitation pro grams and advocated streamlining ..screening panel to sift through cases ; involuntary commitment proce . involving downtown drunks. Under dures. ~ -, • . his plan, the.panel could order invol-, • v^-EIliott Robinson of the state cor untary commitment of any person rections division New Start Center involved in four incidents in one told committee members that em -1~t+4\ M 4 -A. v* -M-

In

other.- testimony,

Superior __

e mid 1940s people with al-

-cohojprflblernj similar; to. those of

^^Adte were, placed 30d

-57-

ployment has helped straighten out many Fourth Avenue drinkers.

-*-£-Maxine' Whaley, an. Anchorage

'resident, urged the state-.Health De

partment to closed down skid row

bars for halth reasons. " —Maureen Btewett .

:

wutv

J"

■«>'•-■•■:, j-~*""*"«^ tunj^majfiw stair anoiner

,,; ■[;[$$<:■, yOnprfajm^^y^^^^

heh

; ««"oayinn."inewi

on

V S^wT/flat's what a parade ofcounse--^ have'cost this city' ni

witHpfpbiemir;

kers. Moody suggested reviewing the involuntary commitment lavtaand i trying a few of them out in th£ tourt «> system. Although they mlgHi be K*

e downtown dnmk problem b

committee called together by

dpal officials to work

th

--^ —. ,«.„ to :

commitments reh»HnMtn~

Uv »«««neeasiope done" to help thosev*\' piecemeal and oftentimes twt as ef^to^feaYnK'A
':

V■

V., ' t

- SS2ra^^i»v^^

challenged on a constitutional &sis.

the judge sa^ p^c senUmenSmay be strong enough to support thlfti. Others testified about the life «as.> ing violence on Fourth Avenw and

*#M» expects^"th^ Sn^^S?Swn& *'?;^yw wwniuwn areas ana Keep*--called to the area.

V» "-J^i^&M^ ; !; ■ : ""fy°r w?orge Sulilvan kicked off i;.^/ the .experts

!,*£*•'" number fof times poliS are

watch« Jfe ^oter watclj on the operations v hfhnm «nH ii/.IT/.^-.»,

IS

" Two Fourth Avenue regukP told

■ I

:

and t the' oublic ■< to^ Jtwrsa^U^upi'stores,';-:^:-..^ ^ the committee they UvVof Sle ' • theaJWay rheetirt^ with a speech pn5u»»# up wim a set 6f i&omnilSdatI ^^rhe heSd?nS

Committee to

'skid row' solutions the pressure on elected officials,

briate problem."' "-*•"- •-"••'?••"•>. Health officials have listed 10 pol

perts to help solve the problem of public drunks in the downtown busi-

need to answer in order to address the problem. ' -i'

Mayor George Sullivan is putting

local business people and health ex

nessdistrict.

r ■

r' '■■■

'.

' Wednesday morning Sullivan will charge a committee of representa tives of those groups with the job of making recommendations for deal- ing with public inebriates.

. 'Wednesday afternoon the com

icy questions the committee will

Some of the questions: Would the dosing of downtown bars between 1 a.m. and 10 a.m. have any positive effect on the problem? Should public drunkeness be considered a crime? Should alcohol control laws restrict ing the sale of alcohol to intoxicated people be more strictly enforced? Other questions the committee

mittee will bear testimony on public drunkeness from experts, the drunks themselves and members of the pub will be asked to address are: Should lic. Thursday they will meet in a the area attractive to street drunks dosed work session to review the " be moved to another part of town? testimony, and on Friday Sullivan How will public drunks affect Proj wants them to make recommenda-' ect 80s facilities? What is the possi , tions. ..>-■■■ :.•.'■. .'■.•.-,. >■ ■ :'"• bility of a drunk park where public ■"'- The three-day conference, spon inebriates can go out of the public sored by the municipal health der view? partment, is a follow-up to the sesIn a background paper prepared . sion held in Anchorage in October for committee members, the munici . 1979 with Dr. Leonard Blumberg of pality findings show Anchorage's - Philadelphia, a national authority on "skid row"' population to be younger skid row populations. . than most similar groups in other cit . Blumberg will be on hand during ies and made up of- more females. - this second three-day conference to The report says 57 percent, ot the group is estimated to be native and help local leaders arrive at recom mendations. ' ..:':'. ;.-•■= ■■;■;.. other minorities, with 40* percent , Municipal health director Bert Hall told committee members, "The The- conference begins at .8:30 future of the central business district a.nx. Wednesday at the Holiday Inn. depends, in part, on how Anchorage - Public testimmony will be taken decides to approach the public ineWednesday afternoon.. >-•-..-. •«..

-59-

r »-:—•> tt»—>

rr^-\'.\ ■"

._

*r, ■«

**

busineSs /classified ads

Experts A second eanmut conference ftnlf
nldpal health offldato c»U '^An chorage downtown public Inebriate

problem", convenes here Wednesday

nMA1Snmlttee Including r^pesente- 5 ttves from the alcohol treatment sys-

tern, the nodal service system, the

O

business leaders will brainstorm the

PiibMc testimony wUl_be taken

Wednesday afternoon,followtagscheo-

uled^^rtaUons by' "expert witness■—; '— -

beat," the state court system, the

owner of a Fourth Avenue bar, Bean s Cafe,ardUwliwindustry. ^ ,

Dr. Leonard Bhunberg, "a natlonalIv resoected expert on urban sMdrow

pWmslromPhiladelphia." wflla*

Sst the commlttea In weighing the

testimony and bratnstormlng possible solutions, the munldpaltty says in a prepared statement.



_

In a background paper provided to

' fuesday, January o,1981

tlons'* members should be prepared to estimated to be Native and other confront. .. ,-,. • . ■• • , minorities, 40 percent Ottucaslan. Among them: . ' ' .._.. Ihe conference — titled "Beyond > • "SOiould existing alcohol control "Fourth Avenue: Alternatives to Mis laws regarding the sale of intoxicating ery, Phase IT.— wfll be held at the beverage to Intoxicated persons be Holiday ton. •• ,' ' more strongly enforced? . ■ ' ' • "Should additional funds be spent I The committee has been asked to ■ develop poUcy reconmiendattans for

onservtaeatoimbtetoebrlates? .



goers away from the central business district?

• "How are Individual rights weighed? Is it more important to aUow the public inebriate to fall into

the street or to protect the rights of

the downtown shopper who doesn t like tripping over a fallen public inebriate? • •'What is the possibility of a

• "Is there any validity to the •drunk park,' a plfice where public consideration by Mayor Geotge SuUl- : -^ van andtheAnchorage AssemWy > ^ suggestion that chrome public drunk- ; Inebriates can go tliat they consider •

committee members, the munidpaltty

reports findings that Anchorages

Tn letters to DTOsnectt b

ommlttee - >■ gmessbe recriminaliTWlT

Hlth

"skidrow" population Is

younger

AnchoraB* Dally News

'A-i

• "Should the skMrow populaUon be

moved to another part of town, and if

11 A.«^__. «J—*ll«— ItlV

than sunuar gnnipa u» »u«

their own and would be out of me public way?




bars between 2 a-m. and 10 a.m- have - any positive effect on the problem?

''-:■, • • "Art downtown merchants par^

y

Han also advises w'cominlttee'

there ere a number of "typical ques-

SoVn^c^^Wffl'thTpubUc' toebri-

tiallynsponsible for seeking active acUve flattyrespnsible solution to the problem, or is it inostiy

BtTUep conventioneers and theater; agovemmeintalrcsponslbility?"

ITietrO/business/

ads

■'*..

Anchorage Dally News" * Thursday, January 8, 1981

0-1

Fresh approach to Skid Row issue urged ByJOHNUNDBACK

Dally News reporter .'

.

\

,

' '!! *** lust to pass time. I

-Anchorage jh*»^M take a re don't like to see or in some newed look at battling prob- . cases be accosted by these, lems associated with Its Fourth . downtown drunks. . ■ Avenue Skid Row, a special.;, . "In 1979. It is estimated that : Blue Ribbon Qsnmlttee was - the dty and the state spent : told Wednesday by a group of < ' approximately 11.7 million dol * witnesses that included Mayor.;" lars on this group, or ^'nvrat George Sullivan. . :\- $20,000 for each public Inebriate -,



i

lost by people not shopping in

downtown stores'because they .

"Our SWd Row population la ' onthestreet/'headded. estimated to be between GOO '"This sum includes the prov-. and 700 people," Sullivan said.' ' Won of medical and social "This small group over the services and the cost of the

alcohol treatment system, the social service system, the courts, police, local legislators

ttan. has been visibly impacted,

but not enough positive change hasoccurred/' '. and business leaders — was While most speakers appointed recently for a second Wednesday agreed that the war' municipally sponsored confer->; agit against alcoholism needs be lhli d tto b ence on Anchorage's public Ine-'T. stepped up, viewpoints on what briateproblem. . ,.;•;■'V' ammunition should be used Hera to help the panel draw ,-*; were widespread, p

tm possible solutions is Leonard

Blumberg, a Philadelphlan who Is a nationally known expert on

urban SUd Row problems. The panel will meet again Friday.. ; Testimony from the mayor

highlighted Wednesday's meeting. "The 90 to 100 hard-core

public inebriates on Fourth Av

enue have cost this dty mil

Some speakers favored a beefup of public drunkenness laws and a cutback In bar hours, while others argued for comprehensive social programs aimed at alcoholism throughout

.•

. .,■!

"You literally live in the clothes you wear," the other Fourth Avenue resident said. "You smell Uke you came out ofthejunglesomewhera." The man was against courtordered rehabilitation pro "After you get through (with

we programs), you have no

other place to go but back down

'

to Fourth (Avenue)."

Leonard Nugent, now direc tor of the Studio dub alcohol

treatment program, said he used to be a public Inebriate In

Oregon, where be learned to be

an unobtrusive drunk.

"I knew how to do It where it

wasn't so obvious," he said. Such tactics could Include ob

taining fresh clothes from the

Salvation Army and sleeping

during the daytime In a nearby library, he said.

Howard Seaman, adminis

trative director of the Alaska Council on Prevention of Alco

hol and Drug Abuse, told the

the community. ■ panel he formerly was a Skid The witnesses testifying in* Row drunk In Los Angeles. He • eluded ded two proclaimed "Fourth told the committee his organi Avenue residents" and two adzation favors o municipal ordi - mlnistrattve directors of local nance "which would Dmlt on '. : alcoholism programs that told and off premises sale of alco

lions and mlllionj of dollars," Sullivan said. "Downtown mer the group they were former chants complain of revenues i ; Skid Row drunks. — .*u- ..... .....

dents told the group. Neither of

the men, one Native and one Caucasian, was Identified.

grams.

years has created more visible \ police personnel," Sullivan . social and economic problems" said. "Last year we spent a than any. other group of Its ska •'■'.: record amount for the provision In our community." ■ *\' of all alcoholism services. The The committee — which In- • public inebriate, the most visi dudes representatives tram the - ble part of our alcoholic populs*

don t have anything else to do," one of the Fourth Avenue rest-

holic beverages" to between the hours of 10 a.m. and 2a.m.

.

t real estate/classified ads

:

/

^

ilv Ntm/Mwc OHoft-

Pedestrians walk along Fourth Avenue at C Street as the' mended that the city clear Darts of Anchorage's Fourth afternoon son fades. A Philadelphia expert has recom- Avenue Skid Row. . .. ■•.';-.,

Cut liquor sale Hours, panel says ByJOHNLINDBACK

age

resulted In"fewer SHd Row

<<

should be reduced, a Blue uor must be closed between Ribbon Committee studying the hours of 5 a.m. and 8 a.m. Anchorage's Skid Row prob Discussion by committee lems urged Friday. members Indicated support That recommendation and for requiring those bualnes.vs six others — including' a to be dosed between 2 ajn. "cleanup of Fourth Avenue" andlOajn. ._■ \ • and "more visible law en "Anchorage is rather forcement," in the area — will unique to have the hours that be sent to Mayor George Sullfc we do," said William Orfitelli, van for his consideration. The a committee member repre mayor asked the 16-member senting the Municipal Health committee earlier this week to Commission. . _«••■ arrive at a list of recommen Johnson said that requiring dations during a two-day bars to close between 2 a.m. meeting at the Anchorage Hol and 10 a.m.,would have, cost iday Inn. the Sheraton Hotel, for examThe committee's ogly dis ple.-some $86,000 in lost revesenter on the bar hours issue . nue during December. Such a — though he was very vocal — regulation would affect ban was Robert Johnson, .a- local quets and parties and would, public relations man repre have a ripple effect on restau senting the Cabaret, Hotel and rants that cater to late-night Restaurant Association partyers. (CHAR): He argued following ."It would probably cost the Friday meeting that short- about 250 Jobs, right cB the er-hours would adversely y af~tet;lfc-Johnson aaid.~*Ttie ft business feet bi f far li liquor stores t dustry told me 510.1 have cut and bars throughout Anchor it in half jus\ to make sure a

age' because of serious Skid

Row problems in only one area of town. 'To me, what they're doing

fair figure is used." ■-. ■ ■ The- committee's recom- .

mentations, generalized pur

posely to leave the mayor and is they've got an ache in their Anchorage Assembly latitude finger, so they're doing a fron in determining specific polltal lobotomy," Johnson said. ' des,were: "When you cut hours you • A- "cleanup" of Fourth are naturally affecting those Avenue; The panel suggested businesses," he added, claim that "reducing the concentra ing "there have been many, tion" of establishments serv many studies that say the ing liquor be considered; hours have no relation to alco • Criminalization of public hol abuse." drunkenness: The panel urged Some committee members, that recriminalization of pub however, were encouraged by lic drunkenness should not be reports from Juneau that a considered "at this time;" cutback in bar hours there • Social services: A "com-

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at the expense

municipality

Daily News reporter problems for public agencies. . The number of hours local Though the noun differ in residents can purchase alco- Anchorage from bar to bar, all establishments serving liq nolle beverages each l

to serve

of the as

a

"resource person" for the committee.

He- recommended that at last part of 'Fourth Avenue, probably the block between B

and C Streets, be "cleared." He said several times during

the conference that cities suc cessful in dealing with Skid Row problems have used a combination of urban renewal and comprehensive social services. • • • ■ "One way to do it is under the right of eminent domain,'' he said, which is legal action whereby the city could go to

court to force'landowners to

Dr. Leonard Blumburg

' .

prehensive" group of services

should be provided for rehabil itating Skid Row drunks. Such . services could include employ ment agendes and a credit union, along with traditional

sell property at reasonable prices. "It means that if you're - going to come in under emi nent domain, you better be prepared to pay a lot of mon ey for It," he said. Blumberg argued against criminalization of public drunkenness and compelling Skid Row alcoholics to take

^-detoxificationprogramsv~ "* -v*. • Law enforcement: Law enforcement in the downtown area- should be "more visi

ble," the panel said, calling for consideration of 24-hour

coverage by patrolmen of a

three-block area downtown,,

and

• Statewide efforts: An-ad

hoc committee should be es tablished to study and pro

mote solutions to Skid Row

problems statewide.

The committee sought rec ommendations from Dr. Leon ard Blumberg, a professor at

Temple University in Phila delphia heralded as an expert on Skid Row problems. Blum

berg was brought to Anchor-

'part in sodal service pro-

gramsr ■ . "If you compel people to gq to a treatment center, you are " In fact putting them in jail," he said. Blumberg expressed support for a voluntary, long' term approach to institutional treatment. "We need to be very gentle about depriving people of their freedom or their liberty," he said. Blumberg'3 other recom mendations included "vigor ous" enforcement of laws re garding public consumption of alcohol and sale of liquor to the intoxicated, strict enforce ment of health codes and es tablishment of "reasonable" drinking hours.

TO:

PUBLICATION:

Tuesday,

January 6,

FROM:

Robert A. (Bert) Hall, Director Department of Health and Environmental Protection

SUBJECT:

ANNOUNCEMENT OF DOWNTOWN

CONTACT PERSON:

1980

CONFERENCE

PUBLIC

Brian Saylor

ON

THE ANCHORAGE

INEBRIATE

PROBLEM

(264-4758)

The Municipality of Anchorage, Department of Health and Environ mental Protection is sponsoring a follow-up conference on the Downtown Public Inebriate problem. The conference, entitled "Beyond 4th Avenue: Alternatives to Misery, Phase II" will be held at the Holiday Inn at "C" Street and 4th Avenue in the Fairbanks Room on Wednesday, January 7, 1981 beginning at 8:30 a.m.

A select Committee

including

representatives

from the

alcohol

treatment system, the sociai service system, the courts, police,

local legislators, and business leaders has been assembled to hear testimony from expert witnesses and the public. The public is

invited

to present

brief

statements

on Wednesday

afternoon

following the scheduled presentations. At the end of the public hearing phase, the Committee will review all the testimony with the assistance of Dr. Leonard Blumberg, a nationally respected expert on urban skidrow problems from Pniladephia. As a result of those discussions, the Committee has been charged to develop a series of policy recommendations for consideration by the Mayor and

the Assembly.

BS.20

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