Issue Date: November Interventions in schools to prevent and reduce alcohol use among children and young people. NICE public health guidance 7

Transcription

1 Issue Date: November 2007 Interventions in schools to prevent and reduce alcohol use among children and young people NICE public health guidance 7

2 NICE public health guidance 7 Interventions in schools to prevent and reduce alcohol use among children and young people Ordering information You can download the following documents from The NICE guidance (this document) which includes all the recommendations, details of how they were developed and evidence statements. A quick reference guide for professionals and the public. Supporting documents, including an evidence review and an economic analysis. For printed copies of the quick reference guide, phone the NHS Response Line on and quote N1346. This guidance represents the views of the Institute and was arrived at after careful consideration of the evidence available. Those working in the NHS, local authorities, the wider public, voluntary and community sectors should take it into account when carrying out their professional, managerial or voluntary duties. National Institute for Health and Clinical Excellence MidCity Place 71 High Holborn London WC1V 6NA National Institute for Health and Clinical Excellence, All rights reserved. This material may be freely reproduced for educational and not-for-profit purposes. No reproduction by or for commercial organisations, or for commercial purposes, is allowed without the express written permission of the Institute. 2

3 Introduction The Department of Health (DH) asked the National Institute for Health and Clinical Excellence (NICE or the Institute) to produce public health guidance for use in primary and secondary schools on sensible alcohol consumption. The guidance also covers pupil referral units, secure training units, local authority secure units and further education colleges. It is for teachers, school governors and practitioners with health and wellbeing as part of their remit, working in education, local authorities, the NHS and the wider public, voluntary and community sectors. It may also be of interest to children and young people, their families and other members of the public. The Public Health Interventions Advisory Committee (PHIAC) has considered a review of the evidence, an economic appraisal, stakeholder comments and the results of fieldwork in developing these recommendations. Details of PHIAC membership are given in appendix A. The methods used to develop the guidance are summarised in appendix B. Supporting documents used in the preparation of this document are listed in appendix E. Full details of the evidence collated, including fieldwork data and stakeholder comments, are available on the NICE website, along with a list of the stakeholders involved and the Institute s supporting process and methods manuals. The website address is: This guidance was developed using the NICE public health intervention process. 3

4 Contents 1 Recommendations Public health need and practice Considerations Implementation Recommendations for research Updating the recommendations Related NICE guidance References...21 Appendix A: membership of the Public Health Interventions Advisory Committee (PHIAC), the NICE Project Team and external contractors...24 Appendix B: summary of the methods used to develop this guidance...29 Appendix C: the evidence...38 Appendix D: gaps in the evidence...42 Appendix E: supporting documents

5 1 Recommendations This document constitutes the Institute s formal guidance on interventions in schools to prevent and reduce alcohol use among children and young people. It also looks at how to link these interventions with community initiatives, including those run by children s services. The evidence statements that underpin the recommendations are listed in appendix C. There are no national guidelines on what constitutes safe and sensible alcohol consumption for children and young people, so the recommendations focus on: encouraging children not to drink, delaying the age at which young people start drinking and reducing the harm it can cause among those who do drink. Practitioners will need to use their professional judgement to determine the type of content needed for education programmes aimed at different groups. They will also need to judge whether or not a child or young person is drinking harmful amounts of alcohol. For the purposes of this guidance, schools include: state-sector, special and independent primary and secondary schools city technology colleges, academies and grammar schools pupil referral units, secure training and local authority secure units further education colleges. School-based education and advice Recommendation 1 Who is the target population? Children and young people in schools. Who should take action? Head teachers, teachers, school governors and others who work in (or with) schools including: school nurses, counsellors, healthy school leads, personal, 5

6 social and health education (PSHE) coordinators in primary schools and personal, social, health and economic (PSHE) education coordinators in secondary schools. What action should they take? Ensure alcohol education is an integral part of the national science, PSHE and PSHE education curricula, in line with Department for Children, Schools and Families (DCSF) guidance. Ensure alcohol education is tailored for different age groups and takes different learning needs into account (based, for example, on individual, social and environmental factors). It should aim to encourage children not to drink, delay the age at which young people start drinking and reduce the harm it can cause among those who do drink. Education programmes should: increase knowledge of the potential damage alcohol use can cause physically, mentally and socially (including the legal consequences) provide the opportunity to explore attitudes to and perceptions of alcohol use help develop decision-making, assertiveness, coping and verbal/non-verbal skills help develop self-esteem increase awareness of how the media, advertisements, role models and the views of parents, peers and society can influence alcohol consumption. Introduce a whole school approach to alcohol, in line with DCSF guidance. It should involve staff, parents and pupils and cover everything from policy development and the school environment to the professional development of (and support for) staff. Where appropriate, offer parents or carers information about where they can get help to develop their parenting skills. (This includes problem- 6

7 solving and communication skills, and advice on setting boundaries for their children and teaching them how to resist peer pressure.) Recommendation 2 Who is the target population? Children and young people in schools who are thought to be drinking harmful amounts of alcohol. Who should take action? Teachers, school nurses and school counsellors. What action should they take? Where appropriate, offer brief, one-to-one advice on the harmful effects of alcohol use, how to reduce the risks and where to find sources of support. Offer a follow-up consultation or make a referral to external services, where necessary. Where appropriate, make a direct referral to external services (without providing one-to-one advice). Follow best practice on child protection, consent and confidentiality. Where appropriate, involve parents or carers in the consultation and any referral to external services. Partnerships Recommendation 3 Who is the target population? Children and young people in schools. Who should take action? Head teachers, school governors, healthy school leads and school nurses. Extended school services, children s services (including the Children s Trust/children and young people s strategic partnership), primary care 7

8 trusts (PCTs), drug and alcohol action teams, crime disorder reduction partnerships, youth services, drug and alcohol services, the police and organisations in the voluntary and community sectors. What action should they take? Maintain and develop partnerships to: support alcohol education in schools as part of the national science, PSHE and PSHE education curricula ensure school interventions on alcohol use are integrated with community activities introduced as part of the Children and young people s plan find ways to consult with families (parents or carers, children and young people) about initiatives to reduce alcohol use and to involve them in those initiatives monitor and evaluate partnership working and incorporate good practice into planning. 8

9 2 Public health need and practice Alcohol use among children and young people is growing faster than the use of any other drug in the UK and it causes the most widespread problems. Alcohol is also the least regulated and most heavily marketed drug (Advisory Council on the Misuse of Drugs 2006). The number of children and young people aged who drink alcohol has fallen since However, those who do drink alcohol consume more and more often (HM Government 2007). In 2006, 21% of those aged who had drunk alcohol in the previous week consumed an average 11.4 units up from 5.3 units in Drinking prevalence increased with age: 3% of pupils aged 11 had drunk alcohol in the previous week compared with 41% of those aged 15 (The Information Centre for Health and Social Care 2007). Children and young people aged who regularly smoke or drink are much more likely than non-smokers and non-drinkers to use other drugs (Advisory Council on the Misuse of Drugs 2006). In 2003 in the UK, 8% of young people aged reported having unprotected sex after drinking alcohol (11% females, 6% males). Eleven per cent of all those in this age group who had (unprotected or protected) sex as a result of drinking alcohol subsequently regretted it (12% females, 9% males) (Hibbell et al. 2004). In 2000 in Britain, nearly 14% of young people aged were estimated to be either mildly (12.4%) or moderately (1.4%) dependent on alcohol, that is, they scored more than 4 on the Severity of alcohol dependence questionnaire (SAD Q) (Singleton et al. 2000). An analysis of data from the 1970 British birth cohort study (Viner and Taylor 2007) found that 17% of adolescent binge drinkers were dependent on alcohol at age 30 (compared to 11% of the remaining cohort); 43% exceeded the recommended weekly limits (compared to 30% of the remaining cohort); 24% were taking illicit drugs (compared to 16% of the remaining cohort). 9

10 Regular, heavy alcohol consumption and binge drinking are associated with physical health problems, anti-social behaviour, violence, accidents, suicide, injuries and road traffic accidents. Alcohol consumption can also have an impact on school performance and crime rates (British Medical Association 2007). Excessive alcohol consumption among adults is associated with 15,000 to 22,000 premature deaths annually. In 2005, 4160 people in England and Wales died from alcoholic liver disease (HM Government 2007). The risk of liver disease and conditions such as high blood pressure, coronary heart disease and stroke are significantly higher for adults who exceed the recommended limits on alcohol consumption (HM Government 2007). In , over 2500 children aged 0 14 years were admitted to hospital in England with a primary, alcohol-related diagnosis (The Information Centre for Health and Social Care 2006). Factors that may influence alcohol use among children and young people One or more of the following factors are common among children and young people who use drugs of any sort, including alcohol: Drug or alcohol misuse by parents or older siblings. Family conflict or poor and inconsistent parenting. Poor school attendance and poor educational attainment. Pre-existing behavioural problems. Living with a single or step-parent, being looked after or homeless. (Adapted from Institute of Alcohol Studies factsheet 2007.) 10

11 Policy background Numerous government strategies and policies aim to prevent or reduce alcohol use among children and young people under 18 (see below). The 'Alcohol harm-reduction strategy for England' (Prime Minister s Strategy Unit 2004) and its update (HM Government 2007) say that schools should provide alcohol education as part of their citizenship, PSHE and PSHE education programmes. It is acknowledged that information-giving alone is unlikely to reduce consumption and interactive programmes are encouraged to develop the individual s personal skills. 'Drugs guidance for schools' (Department for Education and Skills 2004) states that drugs education is part of the statutory national science curriculum and should start in primary school. It also recommends that drugs education should be delivered in PSHE, PSHE education and citizenship classes. Alcohol education is an integral part of PSHE and PSHE education which, in turn, is a core part of the National Healthy Schools Programme. The National Healthy Schools Programme adopts a whole school approach to physical and emotional wellbeing ( National healthy school status a guide for schools [Department for Education and Skills 2005]). The drugs strategy (Home Office 2002) recognises the important role that schools can play in preventing and reducing drug use and its related harms. 'Choosing health: making healthier choices easier' (DH 2004a) stresses the need to raise awareness of the health risks associated with alcohol. The national service framework for children, young people and maternity services. Core standards (DH 2004b) states that all agencies should identify children and young people at risk of misusing drugs or alcohol and provide them with prevention and treatment services. 11

12 Local authority children s services, health bodies (including PCTs), schools, the police and other agencies are expected to develop and deliver the Children and young people s plan' by defining how the five outcomes from Every child matters will be met. This is part of their statutory obligation to cooperate to improve the wellbeing of children in their area (HM Government 2004a; 2004b). Every child matters: change for children. Young people and drugs (HM Government 2005) sets out how local authorities should prevent and reduce drug use among children and young people. Average alcohol consumption among children and young people is identified as a DH outcome indicator in Every child matters: change for children (HM Government 2004b) The number of young people misusing substances (including alcohol) is one of the new set of national indicators that will be used to monitor the performance of local authorities and their partners. This follows publication of the 2007 comprehensive spending review (HM Treasury 2007) and The new performance framework for local authorities and local authority partnerships (Department for Communities and Local Government 2007). From April 2008, local authorities will be required to negotiate local area agreements (LAAs) comprising up to 35 targets (plus statutory targets for early years and educational attainment) derived from this set of indicators. (They will also be free to agree local targets reflecting important local concerns.) 12

13 3 Considerations PHIAC took account of a number of factors and issues in making the recommendations. General issues 3.1 Under UK law, children and young people can consume different types of alcohol in different contexts, depending on their age. For instance, young people aged 16 or 17 may consume beer, cider or wine with a meal when under adult supervision on licensed premises. In all other circumstances, it is illegal for anyone under 18 to knowingly consume alcohol on licensed premises, or to buy or attempt to buy alcohol. It is important that schools take this legal framework into account when planning and delivering alcohol education and when developing partnerships to tackle alcohol issues (within and outside schools). 3.2 Different countries favour different approaches to alcohol education. For example, alcohol use is considered normal for a large proportion of the population in the UK where a harm reduction approach is favoured for young people. By contrast in the US, where most of the research on school-based interventions comes from, abstinence is encouraged among children and young people. 3.3 The renewed national alcohol strategy suggests that, more needs to be done to promote sensible drinking. Sensible drinking for adults is described as drinking in a way that is unlikely to cause yourself or others significant risk of harm (HM Government 2007). 3.4 There is no consensus about what constitutes safe and sensible levels of drinking for children and young people. In 2008, the government plans to provide guidance about what is and what is not safe and sensible in the light of the latest available evidence 13

14 from the UK and abroad (HM Government 2007). PHIAC did not, therefore, consider it part of its remit to define these levels. 3.5 In the absence of guidance on safe and sensible levels of alcohol consumption, PHIAC focused on encouraging children not to drink, delaying the age at which young people start drinking and reducing the harm it can cause among those who do drink. The second recommendation acknowledges that some young people may already be drinking harmful amounts of alcohol. 3.6 A number of social, cultural and economic factors have an influence on alcohol consumption among children, young people and parents. These include peer pressure, the alcohol industry, the media, and the availability and cost of alcohol. Education 3.7 While schools have an important role to play in combating harmful drinking, PHIAC acknowledged that they are limited in terms of what they can achieve (see 3.6 above). 3.8 The recommendations for schools are in line with existing guidance from the DCSF (Department for Education and Skills 2004). They support the National Healthy Schools Programme s whole school approach (Department for Education and Skills 2005). They also support standards one, four, five (DH 2004b) and nine of the National service framework for children, young people and maternity services (DH 2004c). 3.9 The recommendations support implementation of Every child matters: change for children (HM Government 2004b). This outlines a common assessment framework (CAF) or process to help professionals identify children and young people with specific needs (including those who are misusing alcohol). When a child or young person requires support, Every chiid matters: change for 14

15 children recommends that these services should be coordinated by a lead professional The new PSHE and PSHE education curricula, which are being introduced from September 2008, move away from an emphasis on content and instead promote concepts such as healthy lifestyles. They should be tailored to meet individual needs. Alcohol education involves promoting a healthy lifestyle as excessive alcohol use is linked to a range of health and social problems (see section 2) PHIAC acknowledged that alcohol use is the cultural norm among most adults in the UK. Some people believe it is normal and acceptable for young people under 18 to drink. Some individuals and groups find alcohol use among any age group unacceptable. It is important to take individual, social, cultural, economic and religious factors into account when delivering alcohol education programmes While some individuals may be more vulnerable than others (see section 2), it is inappropriate only to focus on those individuals. Children and young people from all backgrounds and in all types of school may drink harmful amounts of alcohol Those delivering alcohol education programmes need to have the trust and respect of the children and young people involved. They should have received validated training and be able to provide accurate information using appropriate techniques Work with children and young people who use alcohol may lead to confidentiality issues. Where a child or young person requires individual guidance and support, best practice guidelines on consent and confidentiality should be followed (DH 2001). Children and young people should be encouraged to involve their parents or carers and the best interests of the child or young person should be the primary concern. This is in line with the duty to safeguard and promote the welfare of pupils, imposed on all schools and colleges 15

16 of further education under the Education Act 2002 and Children Act 1989 (HM Government 2006). Evidence 3.15 The evidence on school-based interventions was not extensive and, as most of it was US-based, it has to be applied with caution. Common shortcomings include: non-validated surrogate outcome measures that are not relevant to English policy uncertainty whether studies were large enough to detect differences between groups inappropriate analyses for the study design used analyses which did not take baseline imbalances into account high attrition rates. Nevertheless, PHIAC considered that some evidence was of sufficient quality and sufficiently applicable to England to inform the recommendations Due to the limitations of the evidence, it was not possible to determine the differential effectiveness of the interventions in relation to disadvantaged and minority groups. In addition, it was not possible to determine what impact the recommendations may have on health inequalities As alcohol use is a sensitive issue associated with social values, self-reported data may be biased The economic analysis carried out to determine whether or not an intervention was cost effective in the long term was subject to uncertainties A number of studies evaluated the input of external contributors to school alcohol education programmes. However, there was a lack of evidence about which type of contribution worked best. The 16

17 literature focused mainly on stand-alone interventions (rather than those contributing to teacher-led programmes, or giving advice and support to schools). In addition, these studies had limited cultural relevance for England. As a result, PHIAC was unable to make any recommendations about the use of external contributors in schools The recommended interventions were not compared with other types of intervention because it was beyond the remit of this guidance to make such a comparison. (Examples of other types of intervention aimed at preventing or reducing alcohol use include targeted and indicated activities and those taking place outside educational establishments.) 3.21 Forthcoming NICE guidance on PSHE and PSHE education, with reference to sexual health behaviour and alcohol (due September 2009) may lead to additional recommendations on this topic. 4 Implementation NICE guidance can help: NHS organisations meet DH standards for public health as set out in the seventh domain of Standards for better health (updated in 2006). Performance against these standards is assessed by the Healthcare Commission, and forms part of the annual health check score awarded to local healthcare organisations. Local authorities (including social care and children s services) and NHS organisations meet the requirements of the government s National standards, local action, health and social care standards and planning framework Provide a focus for children s trusts, health and wellbeing partnerships and other multi-sector partnerships working on health within a local strategic partnership. Support schools aiming for healthy school status. 17

18 National and local organisations within the public sector meet government indicators and targets to improve health and reduce health inequalities. Local authorities fulfill their remit to promote the economic, social and environmental wellbeing of communities. Local NHS organisations, local authorities and other local public sector partners benefit from any identified cost savings, disinvestment opportunities or opportunities for re-directing resources. NICE has developed tools to help organisations implement this guidance. For details, see our website at 5 Recommendations for research PHIAC recommends that the following research questions should be addressed in order to improve the evidence relating to interventions in schools to prevent and reduce alcohol use among children and young people. 1. In relation to universal interventions delivered in English schools to prevent and reduce alcohol use among children and young people: How does effectiveness and cost effectiveness vary according to: the setting (for example, state sector schools, pupil referral units, further education colleges); who delivers the intervention (for example, teachers, peers); the target group (for example, in terms of age, gender, and those who engage in risky behaviour). What is the best way to ensure universal alcohol interventions do not lead to some children and young people increasing their intake of alcohol? How do the following factors influence effectiveness and cost effectiveness: method of delivery (for example, session format, learning materials); content; frequency and duration of followups; and parental/carer involvement? 18

19 2. How does effectiveness and cost effectiveness vary according to whether an intervention is delivered alone or as part of a wider substance misuse intervention? 3. What are the most effective and cost effective ways of identifying children and young people in schools who are at significant risk from drinking harmful amounts of alcohol? 4. What is the best way to ensure universal alcohol interventions carried out in schools meet the needs of children and young people who are disadvantaged or from a minority group? 5. What is the incidence, prevalence and consequence of: short-term health and non-health-related outcomes resulting from alcohol use in childhood and adolescence (for example, absence from school, violence)? attributable long-term health and non-health outcomes (for example, poor academic achievement, convictions, violence, adult socioeconomic status)? 6 Updating the recommendations NICE public health guidance is updated as needed so that recommendations take into account important new information. We check for new evidence 2 and 4 years after publication, to decide whether all or part of the guidance should be updated. If important new evidence is published at other times, we may decide to update some recommendations at that time. 7 Related NICE guidance Published Community-based interventions to reduce substance misuse among vulnerable and disadvantaged children and young people. NICE public health guidance 4 (2007). Available from: 19

20 Under development Promoting the mental wellbeing of children in primary education. NICE public health guidance (due March 2008). Mass media and point of sales measures to prevent the uptake of smoking by children and young people. NICE public health guidance (due July 2008). Promoting the mental wellbeing of children in secondary education. NICE public health guidance (due June 2009). School, college and community-based personal, social and health education, focusing on sexual health and alcohol. NICE public health guidance (due September 2009). Alcohol use disorders: prevention and early identification in adults and adolescents. NICE public health guidance (due 2010). Alcohol use disorders: management in adults and adolescents. NICE clinical guideline (due 2010). 20

21 8 References Advisory Council on the Misuse of Drugs (2006) Pathways to problems: hazardous use of tobacco, alcohol and other drugs by young people in the UK and its implications for policy. London: Advisory Council on the Misuse of Drugs. British Medical Association (2007) Alcohol misuse [online]. Available from: Department for Communities and Local Government (2007) The new performance framework for local authorities and local authority partnerships: single set of national indicators. London: Department for Communities and Local Government. Department for Education and Skills (2004) Drugs guidance for schools. London: Department for Education and Skills. Department for Education and Skills (2005) National healthy school status a guide for schools. London: Department of Health. Department of Health (2001) Seeking consent: working with children. London: Department of Health. Department of Health (2004a) Choosing health: making healthier choices easier. London: Department of Health. Department of Health (2004b) National service framework for children, young people and maternity services. Core standards. London: Department of Health. Department of Health (2004c) National service framework for children, young people and maternity services. The mental health and psychological wellbeing of children and young people. London: Department of Health. Hibbell B, Andersson B, Bjarnason T et al. (2004) The ESPAD report 2003: alcohol and other drug use among students in 35 European countries. Stockholm: The Swedish Council for Information on Alcohol and Other Drugs. 21

22 HM Government (2004a) The children act London: The Stationery Office. HM Government (2004b) Every child matters: change for children. London: Department for Education and Skills. HM Government (2005) Every child matters: change for children. Young people and drugs. London: Department for Education and Skills. HM Government (2006) Working together to safeguard children. A guide to inter-agency working to safeguard and promote the welfare of children. London: The Stationery Office. HM Government (2007) Safe. Sensible. Social. The next steps in the national alcohol strategy. London: Department of Health. HM Treasury (2007) Meeting the aspirations of the British people: 2007 prebudget report and comprehensive spending review. Annex C public service agreements. London: The Stationery Office. Home Office (2002) Updated drug strategy London: Home Office. Institute of Alcohol Studies (2007) Adolescents and alcohol factsheet [online]. Available from: Prime Minister s Strategy Unit (2004) Alcohol harm-reduction strategy for England. London: Prime Minister s Strategy Unit. Singleton N, Bumpstead R, O Brien M et al. (2000) Psychiatric morbidity among adults living in private households. London: The Stationery Office. The Information Centre for Health and Social Care (2006) Hospital episode statistics [online]. Available from: [accessed 30 August 2007]. The Information Centre for Health and Social Care (2007) Smoking, drinking and drug use among young people in England in 2006: headline figures. London: The Information Centre for Health and Social Care. 22