[Congressional Record Volume 143, Number 41 (Wednesday, April 9, 1997)]
[Senate]
[Pages S2920-S2925]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]

      By Mr. GRASSLEY (for himself, Mr. DeWine, Mr. Daschle, Mr. Biden, 
        Mr. D'Amato, Mr. Shelby, Mr. Kohl, Mr. Graham, Mr. Cleland, Mr. 
        Hatch, Mr. Harkin, Mr. Thurmond, Mr. Stevens, Mr. Durbin, Mr. 
        Hutchinson, Mr. Abraham, Mr. Reid, Mr. Feingold, and Mrs. 
        Murray):
  S. 536. A bill to amend the National Narcotics Leadership Act of 1988 
to establish a program to support and encourage local communities that 
first demonstrate a comprehensive, long-term commitment to reduce 
substance abuse among youth, and for other purposes; to the Committee 
on the Judiciary.


                 the drug-free communities act of 1997

  Mr. GRASSLEY. Mr. President, as you know the issue of drug use by our 
children is very important to me. I believe that we must do whatever we 
can to protect our children from the harmful effects of illegal drugs. 
The survey by the Partnership for a Drug-Free America recently released 
showed that children continue to cite their parents as a reliable 
source of information about the dangers of drugs. This confirms a 1996 
study by the Center on Addiction and Substance Abuse which showed that 
the extent parents shouldered responsibility for their kids resisting 
drugs was a key indicator of whether or not their child experimented 
with drugs. Not Presidents, not Federal officials, not television, but 
parents and others who play an integral role in a child's life make the 
difference.
  Today, in conjunction with 13 of my fellow Senators, we are 
introducing the Drug Free Communities Act of 1997. This act will take 
funds currently being spent for less productive areas of the Federal 
drug control budget and route them to community coalitions with proven 
track records. Seeking to make the most efficient use of taxpayer 
dollars, Federal grants will match funding efforts from the private 
sector and the local community.
  It will put resources in the hands of those who make a difference; of 
the people that our children say their opinions they respect. It puts 
the resources at the community level, where parents, teachers, coaches, 
and community leaders can use these resources to educate our children 
about the evils of drug use.
  There are four key features to this legislation, features that make 
it different from existing funding opportunities. First, communities 
must take the initiative. In order to receive support, a community 
coalition must demonstrate that there is a long-term commitment to 
address teen-drug use by having a sustainable coalition that includes 
the involvement of representatives from a wide variety of community 
activists.
  In addition, every coalition must show that it will be around for a 
while. Community coalitions must be in existence for at least 6 months 
prior to applying for funds provided for in this bill, and they are 
only eligible to receive support if they can match these donations 
dollar for dollar with non-Federal funding, up to $100,000 per 
coalition.
  The third key feature of this legislation is an assurance that the 
funds for this bill will come from existing legislation. We plan on 
working closely

[[Page S2921]]

with the members of the Appropriations Committee to find appropriate 
off-sets within the current $16 billion Federal drug control budget.
  An advisory commission, consisting of local community leaders, and 
State and National experts in the field of substance abuse, will 
oversee the implementation of the program at the Office of National 
Drug Control Policy. They will insure the funds are directed to 
communities and programs that make a difference in the lives of our 
children.
  At other times I've talked about the statistics--how drug use is up 
again this year among teens, and how emergency room admissions are 
rising after years of decline, and other depressing statistics. But the 
bill we introduce today is in support of organizations that are on the 
front lines, making a difference in the lives of our children. I urge 
my fellow members to join my colleagues and me in supporting this 
legislation for our children.
  Mr. President, I ask unanimous consent that the text of the bill be 
printed in the Record.
  There being no objection, the bill was ordered to be printed in the 
Record, as follows:

                                 S. 536

       Be it enacted by the Senate and House of Representatives of 
     the United States of America in Congress assembled,

     SECTION 1. SHORT TITLE.

       This Act may be cited as the ``Drug-Free Communities Act of 
     1997''.

     SEC. 2. NATIONAL DRUG CONTROL PROGRAM.

       (a) In General.--The National Narcotics Leadership Act of 
     1988 (21 U.S.C. 1501 et seq.) is amended--
       (1) by inserting between sections 1001 and 1002 the 
     following:

         ``CHAPTER 1--OFFICE OF NATIONAL DRUG CONTROL POLICY'';

     and
       (2) by adding at the end the following:

                   ``CHAPTER 2--DRUG-FREE COMMUNITIES

     ``SEC. 1021. FINDINGS.

       ``Congress finds the following:
       ``(1) Substance abuse among youth has more than doubled in 
     the 5-year period preceding 1996, with substantial increases 
     in the use of marijuana, inhalants, cocaine, methamphetamine, 
     LSD, and heroin.
       ``(2) The most dramatic increases in substance abuse has 
     occurred among 13- and 14-year-olds.
       ``(3) Casual or periodic substance abuse by youth of 1997 
     will contribute to hard core or chronic substance abuse by 
     the next generation of adults.
       ``(4) Substance abuse is at the core of other problems, 
     such as rising violent teenage and violent gang crime, 
     increasing health care costs, HIV infections, teenage 
     pregnancy, high school dropouts, and lower economic 
     productivity.
       ``(5) Increases in substance abuse among youth are due in 
     large part to an erosion of understanding by youth of the 
     high risks associated with substance abuse, and to the 
     softening of peer norms against use.
       ``(6)(A) Substance abuse is a preventable behavior and a 
     treatable disease; and
       ``(B)(i) during the 13-year period beginning with 1979, 
     monthly use of illegal drugs among youth 12 to 17 years of 
     age declined by over 70 percent; and
       ``(ii) data suggests that if parents would simply talk to 
     their children regularly about the dangers of substance 
     abuse, use among youth could be expected to decline by as 
     much as 30 percent.
       ``(7) Community anti-drug coalitions throughout the United 
     States are successfully developing and implementing 
     comprehensive, long-term strategies to reduce substance abuse 
     among youth on a sustained basis.
       ``(8) Intergovernmental cooperation and coordination 
     through national, State, and local or tribal leadership and 
     partnerships are critical to facilitate the reduction of 
     substance abuse among youth in communities throughout the 
     United States.

     ``SEC. 1022. PURPOSES.

       ``The purposes of this chapter are--
       ``(1) to reduce substance abuse among youth in communities 
     throughout the United States, and over time, to reduce 
     substance abuse among adults;
       ``(2) to strengthen collaboration among communities, the 
     Federal Government, and State, local, and tribal governments;
       ``(3) to enhance intergovernmental cooperation and 
     coordination on the issue of substance abuse among youth;
       ``(4) to serve as a catalyst for increased citizen 
     participation and greater collaboration among all sectors and 
     organizations of a community that first demonstrates a long-
     term commitment to reducing substance abuse among youth;
       ``(5) to rechannel resources from the fiscal year 1998 
     Federal drug control budget to provide technical assistance, 
     guidance, and financial support to communities that 
     demonstrate a long-term commitment in reducing substance 
     abuse among youth;
       ``(6) to disseminate to communities timely information 
     regarding the state-of-the-art practices and initiatives that 
     have proven to be effective in reducing substance abuse among 
     youth;
       ``(7) to enhance, not supplant, local community initiatives 
     for reducing substance abuse among youth; and
       ``(8) to encourage the creation of and support for 
     community anti-drug coalitions throughout the United States.

     ``SEC. 1023. DEFINITIONS.

       ``In this chapter:
       ``(1) Administrator.--The term `Administrator' means the 
     Administrator appointed by the Director under section 
     1031(c).
       ``(2) Advisory commission.--The term `Advisory Commission' 
     means the Advisory Commission established under section 1041.
       ``(3) Community.--The term `community' shall have the 
     meaning provided that term by the Administrator, in 
     consultation with the Advisory Commission.
       ``(4) Director.--The term `Director' means the Director of 
     the Office of National Drug Control Policy.
       ``(5) Eligible coalition.--The term `eligible coalition' 
     means a coalition that meets the applicable criteria under 
     section 1032(a).
       ``(6) Grant recipient.--The term `grant recipient' means 
     the recipient of a grant award under section 1032.
       ``(7) Nonprofit organization.--The term `nonprofit 
     organization' means an organization described under section 
     501(c)(3) of the Internal Revenue Code of 1986 that is exempt 
     from taxation under section 501(a) of the Internal Revenue 
     Code of 1986.
       ``(8) Program.--The term `Program' means the program 
     established under section 1031(a).
       ``(9) Substance abuse.--The term `substance abuse' means--
       ``(A) the illegal use or abuse of drugs, including 
     substances listed in schedules I through V of section 112 of 
     the Controlled Substances Act (21 U.S.C. 812);
       ``(B) the abuses of inhalants; and
       ``(C) the use of alcohol, tobacco, or other related product 
     prohibited by State or local law.
       ``(10) Youth.--The term `youth' shall have the meaning 
     provided that term by the Administrator, in consultation with 
     the Advisory Commission.

     ``SEC. 1024. AUTHORIZATION OF APPROPRIATIONS.

       ``(a) In General.--There are authorized to be appropriated 
     to the Office of National Drug Control Policy to carry out 
     this chapter--
       ``(1) $10,000,000 for fiscal year 1998;
       ``(2) $20,000,000 for fiscal year 1999;
       ``(3) $30,000,000 for fiscal year 2000;
       ``(4) $40,000,000 for fiscal year 2001; and
       ``(5) $43,500,000 for fiscal year 2002.
       ``(b) Administrative Costs.--Not more than the following 
     percentages of the amounts authorized under subsection (a) 
     may be used to pay administrative costs:
       ``(1) 10 percent for fiscal year 1998.
       ``(2) 6 percent for fiscal year 1999.
       ``(3) 4 percent for fiscal year 2000.
       ``(4) 3 percent for fiscal year 2001.
       ``(5) 3 percent for fiscal year 2002.

         ``Subchapter I--Drug-Free Communities Support Program

     ``SEC. 1031. ESTABLISHMENT OF DRUG-FREE COMMUNITIES SUPPORT 
                   PROGRAM.

       ``(a) Establishment.--The Director shall establish a 
     program to support communities in the development and 
     implementation of comprehensive, long-term plans and programs 
     to prevent and treat substance abuse among youth.
       ``(b) Program.--In carrying out the Program, the Director 
     shall--
       ``(1) make and track grants to grant recipients;
       ``(2) provide for technical assistance and training, data 
     collection, and dissemination of information on state-of-the-
     art practices that the Administrator determines to be 
     effective in reducing substance abuse; and
       ``(3) provide for the general administration of the 
     Program.
       ``(c) Administration.--Not later than 30 days after 
     receiving recommendations from the Advisory Commission under 
     section 1042(a)(1), the Director shall appoint an 
     Administrator to carry out the Program.

     ``SEC. 1032. PROGRAM AUTHORIZATION.

       ``(a) Grant Eligibility.--To be eligible to receive an 
     initial grant or a renewal grant under this subchapter, a 
     coalition shall meet each of the following criteria:
       ``(1) Application.--The coalition shall submit an 
     application to the Administrator in accordance with section 
     1033(a)(2).
       ``(2) Major sector involvement.--
       ``(A) In general.--The coalition shall consist of 1 or more 
     representatives of each of the following categories:
       ``(i) Youth.
       ``(ii) Parents.
       ``(iii) Businesses.
       ``(iv) The media.
       ``(v) Schools.
       ``(vi) Organizations serving youth.
       ``(vii) Law enforcement.
       ``(viii) Religious organizations.
       ``(ix) Civic and fraternal groups.
       ``(x) Health care professionals.
       ``(xi) State, local, or tribal governmental agencies with 
     expertise in the field of substance abuse (including, if 
     applicable, the State authority with primary authority for 
     substance abuse).
       ``(xii) Other organizations involved in reducing substance 
     abuse.
       ``(B) Elected officials.--If feasible, in addition to 
     representatives from the categories listed in subparagraph 
     (A), the coalition shall have an elected official (or a 
     representative of an elected official) from--

[[Page S2922]]

       ``(i) the Federal Government; and
       ``(ii) the government of the appropriate State and 
     political subdivision thereof or the governing body or an 
     Indian tribe (as that term is defined in section 4(e) of the 
     Indian Self-Determination Act (25 U.S.C. 450b(e))).
       ``(C) Representation.--An individual who is a member of the 
     coalition may serve on the coalition as a representative of 
     not more than 1 category listed under subparagraph (A).
       ``(3) Commitment.--The coalition shall demonstrate, to the 
     satisfaction of the Administrator--
       ``(A) that the representatives of the coalition have worked 
     together on substance abuse reduction initiatives for a 
     period of not less than 6 months, acting through entities 
     such as task forces, subcommittees, or community boards; and
       ``(B) substantial participation from volunteer leaders in 
     the community involved (especially in cooperation with 
     individuals involved with youth such as parents, teachers, 
     coaches, youth workers, and members of the clergy).
       ``(4) Mission and strategies.--The coalition shall, with 
     respect to the community involved--
       ``(A) have as its principal mission the reduction of 
     substance abuse in a comprehensive and long-term manner, with 
     a primary focus on youth in the community;
       ``(B) describe and document the nature and extent of the 
     substance abuse problem in the community;
       ``(C)(i) provide a description of substance abuse 
     prevention and treatment programs and activities in existence 
     at the time of the grant application; and
       ``(ii) identify substance abuse programs and service gaps 
     in the community;
       ``(D) develop a strategic plan to reduce substance abuse 
     among youth in a comprehensive and long-term fashion; and
       ``(E) work to develop a consensus regarding the priorities 
     of the community to combat substance abuse among youth.
       ``(5) Sustainability.--The coalition shall demonstrate that 
     the coalition is an ongoing concern by demonstrating that the 
     coalition--
       ``(A) is--
       ``(i)(I) a nonprofit organization; or
       ``(II) an entity that the Administrator, in consultation 
     with the Advisory Commission, determines to be appropriate; 
     or
       ``(ii) part of, or is associated with, an established legal 
     entity;
       ``(B) receives financial support (including, in the 
     discretion of the Administrator, in-kind contributions) from 
     non-Federal sources; and
       ``(C) has a strategy to solicit substantial financial 
     support from non-Federal sources to ensure that the coalition 
     and the programs operated by the coalition are self-
     sustaining.
       ``(6) Accountability.--The coalition shall--
       ``(A) establish a system to measure and report outcomes--
       ``(i) consistent with common indicators and evaluation 
     protocols established by the Administrator, in consultation 
     with the Advisory Commission; and
       ``(ii) receives the approval of the Administrator;
        ``(B) conduct--
       ``(i) for an initial grant under this subchapter, an 
     initial benchmark survey of drug use among youth (or use 
     local surveys or performance measures available or accessible 
     in the community at the time of the grant application); and
       ``(ii) biennial surveys (or incorporate local surveys in 
     existence at the time of the evaluation) to measure the 
     progress and effectiveness of the coalition; and
       ``(C) provide assurances that the entity conducting an 
     evaluation under this paragraph, or from which the coalition 
     receives information, has experience--
       ``(i) in gathering data related to substance abuse among 
     youth; or
       ``(ii) in evaluating the effectiveness of community anti-
     drug coalitions.
       ``(b) Grant Amounts.--
       ``(1) In general.--
       ``(A) Grants.--
       ``(i) In general.--Subject to clause (iii), for a fiscal 
     year, the Administrator may grant to an eligible coalition 
     under this paragraph, an amount not to exceed the amount of 
     non-Federal funds raised by the coalition, including in-kind 
     contributions, for that fiscal year.
       ``(ii) Renewal grants.--Subject to clause (iii), the 
     Administrator may award a renewal grant to a grant recipient 
     under this subparagraph for each fiscal year following the 
     fiscal year for which an initial grant is awarded, in an 
     amount not to exceed the amount of non-Federal funds raised 
     by the coalition, including in-kind contributions, for that 
     fiscal year, during the 4-year period following the period of 
     the initial grant.
       ``(iii) Limitation.--The amount of a grant award under this 
     subparagraph may not exceed $100,000 for a fiscal year.
       ``(B) Coalition awards.--
       ``(i) In general.--Except as provided in clause (ii), the 
     Administrator may, with respect to a community, make a grant 
     to 1 eligible coalition that represents that community.
       ``(ii) Exception.--The Administrator may make a grant to 
     more than 1 eligible coalition that represents a community 
     if--

       ``(I) the population of the community exceeds 2,000,000 
     individuals;
       ``(II) the eligible coalitions demonstrate that the 
     coalitions are collaborating with one another; and
       ``(III) each of the coalitions has independently met the 
     requirements set forth in section 1032(a).

       ``(2) Rural coalition grants.--
       ``(A) In general.--
       ``(i) In general.--In addition to awarding grants under 
     paragraph (1), to stimulate the development of coalitions in 
     sparsely populated and rural areas, the Administrator, in 
     consultation with the Advisory Commission, may award a grant 
     in accordance with this section to a coalition that 
     represents a county with a population that does not exceed 
     30,000 individuals. In awarding a grant under this paragraph, 
     the Administrator, in consultation with the Advisory 
     Commission, may waive any requirement under subsection (a) if 
     the Administrator, in consultation with the Advisory 
     Commission, considers that waiver to be appropriate.
       ``(ii) Matching requirement.--Subject to subparagraph (C), 
     for a fiscal year, the Administrator may grant to an eligible 
     coalition under this paragraph, an amount not to exceed the 
     amount of non-Federal funds raised by the coalition, 
     including in-kind contributions, for that fiscal year.
       ``(B) Renewal grants.--The Administrator may award a 
     renewal grant to an eligible coalition that is a grant 
     recipient under this paragraph for each fiscal year following 
     the fiscal year for which an initial grant is awarded, in an 
     amount not to exceed the amount of non-Federal funds raised 
     by the coalition, including in-kind contributions, during the 
     4-year period following the period of the initial grant.
       ``(C) Limitations.--
       ``(i) Amount.--The amount of a grant award under this 
     paragraph shall not exceed $50,000 for a fiscal year.
       ``(ii) Awards.--With respect to a county referred to in 
     subparagraph (A), the Administrator may award a grant under 
     this section to not more than 1 eligible coalition that 
     represents the county.

     ``SEC. 1033. INFORMATION COLLECTION AND DISSEMINATION WITH 
                   RESPECT TO GRANT RECIPIENTS.

       ``(a) Coalition Information.--
       ``(1) General auditing authority.--For the purpose of audit 
     and examination, the Administrator--
       ``(A) shall have access to any books, documents, papers, 
     and records that are pertinent to any grant or grant renewal 
     request under this chapter; and
       ``(B) may periodically request information from a grant 
     recipient to ensure that the grant recipient meets the 
     applicable criteria under section 1032(a).
       ``(2) Application process.--The Administrator shall issue 
     regulations regarding, with respect to the grants awarded 
     under section 1032, the application process, grant renewal, 
     and suspension or withholding of renewal grants. Each 
     application under this paragraph shall be in writing and 
     shall be subject to review by the Administrator.
       ``(3) Reporting.--The Administrator shall, to the maximum 
     extent practicable and in a manner consistent with applicable 
     law, minimize reporting requirements by a grant recipient and 
     expedite any application for a renewal grant made under this 
     subchapter.
       ``(b) Data Collection and Dissemination.--
       ``(1) In general.--The Administrator may collect data 
     from--
       ``(A) national substance abuse organizations that work with 
     eligible coalitions, community anti-drug coalitions, 
     departments or agencies of the Federal Government, or State 
     or local governments and the governing bodies of Indian 
     tribes; and
       ``(B) any other entity or organization that carries out 
     activities that relate to the purposes of the Program.
       ``(2) Activities of administrator.--The Administrator may--
       ``(A) evaluate the utility of specific initiatives relating 
     to the purposes of the Program;
       ``(B) engage in research and development activities related 
     to the Program; and
       ``(C) disseminate information described in this subsection 
     to--
       ``(i) eligible coalitions and other substance abuse 
     organizations; and
       ``(ii) the general public.

     ``SEC. 1034. TECHNICAL ASSISTANCE AND TRAINING.

       ``(a) In General.--
       ``(1) Technical assistance and agreements.--With respect to 
     any grant recipient or other organization, the Administrator 
     may--
       ``(A) offer technical assistance and training; and
       ``(B) enter into contracts and cooperative agreements.
       ``(2) Coordination of programs.--The Administrator may 
     facilitate the coordination of programs between a grant 
     recipient and other organizations and entities.
       ``(b) Training.--The Administrator may provide training to 
     any representative designated by a grant recipient in--
       ``(1) coalition building;
       ``(2) task force development;
       ``(3) mediation and facilitation, direct service, 
     assessment and evaluation; or
       ``(4) any other activity related to the purposes of the 
     Program.

                  ``Subchapter II--Advisory Commission

     ``SEC. 1041. ESTABLISHMENT OF ADVISORY COMMISSION.

       ``(a) Establishment.--There is established a commission to 
     be known as the `Advisory Commission on Drug-Free 
     Communities'.

[[Page S2923]]

       ``(b) Purpose.--The Advisory Commission shall advise, 
     consult with, and make recommendations to the Administrator 
     concerning matters related to the activities carried out 
     under the Program.

     ``SEC. 1042. DUTIES.

       ``(a) In General.--The Advisory Commission--
       ``(1) shall, not later than 30 days after its first 
     meeting, make recommendations to the Director regarding the 
     selection of an Administrator;
       ``(2) may review any grant, contract, or cooperative 
     agreement proposed to be made by the Program;
       ``(3) may make recommendations to the Administrator 
     regarding the activities of the Program;
       ``(4) may review any policy or criteria established by the 
     Administrator to carry out the Program;
       ``(5) may--
       ``(A) collect, by correspondence or by personal 
     investigation, information concerning initiatives, studies, 
     services, programs, or other activities of coalitions or 
     organizations working in the field of substance abuse in the 
     United States or any other country; and
       ``(B) with the approval of the Administrator, make the 
     information referred to in subparagraph (A) available through 
     appropriate publications or other methods for the benefit of 
     eligible coalitions and the general public; and
       ``(6) may appoint subcommittees and convene workshops and 
     conferences.
       ``(b) Recommendations.--If the Administrator rejects any 
     recommendation of the Advisory Commission under subsection 
     (a)(1), the Administrator shall notify the Advisory 
     Commission and the Director in writing of the reasons for the 
     rejection not later than 15 days after receiving the 
     recommendation.
       ``(c) Conflict of Interest.--A member of the Advisory 
     Commission shall recuse himself or herself from any decision 
     that would constitute a conflict of interest.

     ``SEC. 1043. MEMBERSHIP.

       ``(a) In General.--The President shall appoint 15 members 
     to the Advisory Commission as follows:
       ``(1) 6 members shall be appointed from the general public 
     and shall include leaders--
       ``(A) in fields of youth development, public policy, law, 
     or business; or
       ``(B) of nonprofit organizations or private foundations 
     that fund substance abuse programs.
       ``(2) 6 members shall be appointed from the leading 
     representatives of national substance abuse reduction 
     organizations, of which no fewer than 4 members shall have 
     extensive training or experience in drug prevention.
       ``(3) 3 members shall be appointed from the leading 
     representatives of State substance abuse reduction 
     organizations.
       ``(b) Chairperson.--The Advisory Commission shall elect a 
     chairperson or cochairpersons from among its members.
       ``(c) Ex Officio Members.--The ex officio membership of the 
     Advisory Commission shall consist of any 2 officers or 
     employees of the United States that the Director determines 
     to be necessary for the Advisory Commission to effectively 
     carry out its functions.

     ``SEC. 1044. COMPENSATION.

       ``(a) In General.--Members of the Advisory Commission who 
     are officers or employees of the United States shall not 
     receive any additional compensation for service on the 
     Advisory Commission. The remaining members of the Advisory 
     Commission shall receive, for each day (including travel 
     time) that they are engaged in the performance of the 
     functions of the Advisory Commission, compensation at rates 
     not to exceed the daily equivalent to the annual rate of 
     basic pay payable for grade GS-10 of the General Schedule.
       ``(b) Travel Expenses.--Each member of the Advisory 
     Commission shall receive travel expenses, including per diem 
     in lieu of subsistence, in accordance with sections 5702 and 
     5703 of title 5, United States Code.

     ``SEC. 1045. TERMS OF OFFICE.

       ``(a) In General.--Subject to subsection (b), the term of 
     office of a member of the Advisory Commission shall be 3 
     years, except that, as designated at the time of 
     appointment--
       ``(1) of the initial members appointed under section 
     1043(a)(1), 2 shall be appointed for a term of 2 years;
       ``(2) of the initial members appointed under section 
     1043(a)(2), 2 shall be appointed for a term of 2 years; and
       ``(3) of the initial members appointed under section 
     1043(a)(3), 1 shall be appointed for a term of 1 year.
       ``(b) Vacancies.--Any member appointed to fill a vacancy 
     for an unexpired term of a member shall serve for the 
     remainder of the unexpired term. A member of the Advisory 
     Commission may serve after the expiration of such member's 
     term until a successor has been appointed and taken office.

     ``SEC. 1046. MEETINGS.

       ``(a) In General.--After its initial meeting, the Advisory 
     Commission shall meet at the call of the Chairperson (or 
     Cochairpersons) of the Advisory Commission or a majority of 
     its members or upon the request of the Director or 
     Administrator of the Program for which the Advisory 
     Commission is established.
       ``(b) Quorum.--8 members of the Advisory Commission shall 
     constitute a quorum.

     ``SEC. 1047. STAFF.

       ``The Advisory Commission may elect an executive secretary 
     to facilitate the conduct of business of the Advisory 
     Commission. The Administrator shall make available to the 
     Advisory Commission such staff, information, and other 
     assistance permitted by law as the Advisory Commission may 
     reasonably require to carry out the functions of the Advisory 
     Commission.

     ``SEC. 1048. TERMINATION.

       ``The Advisory Commission shall terminate on the date that 
     is 5 years after the date of the enactment of this 
     chapter.''.
       (b) References.--Each reference in Federal law to subtitle 
     A of the Anti-Drug Abuse Act of 1988, with the exception of 
     section 1001 of such subtitle, in any provision of law that 
     is in effect on the day before the date of enactment of this 
     Act shall be deemed to be a reference to chapter 1 of the 
     National Narcotics Leadership Act of 1988 (as so designated 
     by this section).

  Mr. DeWINE. Mr. President, I am very proud to join the Senator from 
Iowa in being an original cosponsor of the drug-free communities 
legislation.
  In the last 5 years, substance abuse by America's young people has 
more than doubled. Even more troubling, it is taking place at younger 
and younger ages.
  We need to turn this around. And this is a challenge that requires 
the involvement of the whole community--young people, their parents, 
schools, businesspeople, the media, law enforcement, religious 
organizations, civic and fraternal groups, as well as professionals in 
the area of drug abuse treatment.
  Community-based antidrug coalitions have proven their worth in the 
fight against drug abuse. I'm thinking of groups like the Madison 
County Prevention Assistance Coalition Team--or PACT--in Madison 
County, OH. PACT was established in a rural area in central Ohio in 
1991, and rapidly inspired over 50 local substance abuse prevention 
initiatives.
  What PACT did was mobilize the community. Middle school students 
acted as mentors and role models for third graders. Teachers in Head 
Start taught their students about drug abuse prevention. A local church 
held a father-son retreat.
  A research team from Miami University found that Madison County's 
alcohol-related crime dropped by 50 percent. And students are reporting 
a decline in the use and availability of alcohol and other drugs.
  The key is mobilizing the community. The bill we're introducing today 
will help tap into this resource--by redirecting Federal funding to 
community coalitions that have developed comprehensive programs to 
educate children about the dangers of drugs. A similar bill was 
introduced in the House by Representatives Portman, Hastert, Rangel, 
and Levin.
  This bill will channel funds from the fiscal year 1998 drug control 
budget--in the form of matching grants--to community coalitions with 
proven track records. It will enhance programs that work, without 
allocating new funds.
  I think this is exactly the type of legislation we need. It's a 
sensible and cost-effective approach to solving a major problem. And I 
will join my colleague from Iowa in working for its enactment.
  Mr. BIDEN. Mr. President, I am pleased to join in introducing today 
with Senator Grassley and others the Drug-Free Communities Act of 1997. 
This legislation will help take an important step forward toward a goal 
we all share--keeping kids away from drugs and drugs away from kids.
  This 5 year, $140 million authorization to fund local antidrug 
prevention efforts could be an important catalyst to getting local 
groups together to plan, coordinate, and carry out the wide variety of 
drug prevention treatment activities we all know are necessary to 
reverse the rise of drug abuse among our children. By unleashing the 
talents and energy of local coalitions of local businesses, schools, 
law enforcement, religious organizations, doctors, and others we can 
build community-wide and community-based drug prevention efforts.
  For all these reasons, I am pleased to offer my support for the 
concept embodied in this legislation. But, I must offer two important 
conditions to my support for this bill. First, as potentially valuable 
as antidrug coalitions can be, I do not believe it would be wise for us 
to ``rob Peter to pay Paul'' by trying to fund this drug prevention 
effort by cutting funding for other, worthy drug prevention efforts. It 
is my

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understanding that the other sponsors of this legislation in both the 
House and the Senate share this view, and I look forward to working 
with them to find the modest dollars necessary to fund this effort.
  Second, it is also my understanding that the sponsors of this 
legislation are continuing to work with the Drug Director to iron out 
the bureaucratic details of how this effort will be undertaken at the 
Federal level. I am confident that none of the sponsors of this bill 
have any desire to establish any new layers of wasteful bureaucracy, so 
I look forward to working with them to pass the most efficient, 
effective effort possible.
  This bill offers a key example of the bipartisan support for drug 
prevention and drug treatment efforts which exists at the grassroots 
level throughout our Nation. In the weeks and months ahead, I look 
forward to working with my colleagues in the same bipartisan fashion.
  As my colleagues have heard me note on numerous occasions--our Nation 
stands on the edge of the ``baby boomerang''--with 39 million American 
children under the age of 10, the greatest number since the 1960's. We 
must prepare for these 39 million as they enter their teen years when 
they will be at their greatest likelihood of falling prey to drugs and 
crime. If we do not, we will pay for our lack of foresight with what 
could be the most severe epidemic of youth drug abuse, youth violence, 
and youth crime our Nation has ever suffered.
  Preparing each of these 39 million American children means giving 
them the techniques and the desire to stay away from drugs--in short, 
drug prevention. The Drug-Free Communities Act of 1997 is one of what 
must be many elements of a comprehensive, nationwide drug prevention 
effort. I am pleased to cosponsor this legislation and I look forward 
to passing it into law.
  Mr. D'AMATO. Mr. President, I join my colleagues in the introduction 
of the Drug Free Communities Act and urge its passage. This bill 
responds to a distressing increase in teenage drug use by providing 
startup funding and technical assistance to community coalitions that 
work together to prevent drug use.
  According to the University of Michigan's 1996 Monitoring the Future 
study, more than half of all high school students use illicit drugs by 
the time they graduate. The Office of National Drug Control Policy 
cited in their strategy report that nearly 1 in 4 high school seniors 
used marijuana on a past-month basis in 1996.
  The age for which children start using drugs is declining. While the 
number of teenagers using marijuana increased 37 percent from 1994 to 
1995, the age of first use declined from 17.8 years of age in 1987 to 
16.3 years of age in 1994. There was also a drop in age for first use 
of cocaine from 23.3 years to 19 years old. Drug use is starting at an 
early age.
  Drug abuse costs this country approximately $67 billion a year in 
social, health and criminal costs. But the 14,000 drug-related deaths 
each year cannot be calculated in costs. The destruction of lives of 
the drug users, their families, friends, and neighbors is inevitable.
  The need to correct the trend is imperative and it is communities 
that can do it. Community coalitions are essential for an effective 
prevention program. It is the community groups that see the problem 
first hand and know what is needed in that area to stop children from 
using drugs.
  This bill will provide the incentive for community action groups to 
work together for the sole purpose of drug prevention. Groups 
representing youths, parents, businesses, schools, law enforcement, 
religious organizations, health professionals, as well as government 
agencies will be expected to prepare a strategy and implement it--
together. But the community must be organized first, prior to receiving 
grant funds, in order for the coalition to prove a long-term 
commitment.
  The grants will be distributed to organized community coalitions that 
have matching funds and those funds cannot be derived from the Federal 
Government. This requirement ensures that the coalition has support and 
can be sustained after the grant sunsets. This will not be another 
Federal program, but rather a means to support organized coalitions 
that devise and implement a comprehensive antidrug campaign while they 
get off the ground.
  Several groups in my State have already endorsed this proposal 
including the Syracuse Police Department, the mayor of Syracuse and 
agencies in Onondaga County. Respected national organizations that deal 
with drug and alcohol abuse have also endorsed the proposal including 
DARE, Mothers Against Drunk Driving, Partnership for a Drug-Free 
America, and Empower America, among others.
  This is a comprehensive strategy to a problem that is best dealt with 
at the local level. I urge my colleagues to closely review the merits 
of this bill and support its passage. Our communities need it.
  Mr. GRAHAM. Mr. President, I rise today as a proud cosponsor of the 
Drug Free Communities Act.
  The objective of this bill is to protect our greatest national 
resource--our children--from the deadly scourge of drug abuse. And it 
protects them in a way that has been proven through the centuries--by 
strengthening communities. This bill gives local communities the 
support they need to keep drugs away from their young people. And it 
allows them to use it in a way that has proven to be effective in their 
community, and not as some Washington bureaucrat dictates.
  Unfortunately, recent studies of drug use in America demonstrate the 
need for a program such as this. The statistics on substance abuse 
among our Nation's children are particularly disturbing:
  According to the University of Michigan's 1996 study ``Monitoring the 
Future,'' half of all high school students have tried some type of 
illicit drug by the time they graduate. Drug use among eighth graders 
has risen 150 percent in the last 5 years. Overall, drug use for 
children between the ages of 12 and 17 has increased more than 100 
percent, from 5.3 percent in 1992 to 10.9 percent in 1995.
  The drug most often used by these children continues to be marijuana. 
More children are smoking marijuana and they are starting to do so at a 
younger age. According to the ``Monitoring the Future'' study, almost 
25 percent of high school seniors had used marijuana during the 
previous month. Between 1994 and 1995, the rate of use among 12- to 17-
year-olds increased 37 percent, from 6 percent to over 8 percent.
  And the use of marijuana often leads to the use of stronger and more 
dangerous drugs. A study completed by Columbia University's Center on 
Addiction and Substance Abuse found that children who smoke marijuana 
are 85 times more likely to try cocaine than children who have never 
tried marijuana.
  The use of cocaine and heroin among our children is also on the 
increase. Among high school seniors in 1996, over 7 percent had tried 
cocaine at some time. And the number of younger children experimenting 
with these drugs is alarming. During the last 5 years, heroin use among 
8th to 12th graders and the number of 8th graders who had tried cocaine 
had doubled.
  So what can we do to help our youth reject the temptation to use 
drugs? We can help families to convince kids that they must never even 
try illegal drugs.
  That is why I am proud to be a cosponsor of the Drug-Free Communities 
Act of 1997, which we are here to introduce today. This bill will help 
communities reduce drug use among youth by providing matching grants of 
up to $100,000 to community coalitions for the establishment of 
programs designed to prevent and treat substance abuse in young people. 
These grants will be used to provide support to local communities who 
have proven their long-term commitment to reducing drug use among 
youth. It includes provisions for an advisory commission of substance 
abuse experts to oversee the program, to ensure that grants go only to 
those programs that have demonstrated success in keeping our children 
and grandchildren off drugs.
  There are several reasons why every Member of Congress should support 
this bill:
  This program helps local communities in a way that is consistent with 
the 1997 strategy of the Office of National Drug Control Policy. The 
No. 1 goal of the strategy is to encourage

[[Page S2925]]

America's youth to reject illegal drugs by assisting community 
coalitions to develop programs that will accomplish this goal. The 
grants provided for in the Drug Free Communities Act will establish a 
partnership between the Federal Government and local communities.
  There are safeguards to prevent abuse of the program. Only 
established groups that can provide matching funds will be eligible to 
receive funding. This ensures that only programs that have a proven 
track record of success in fighting drug abuse among our young people 
will receive funding.
  I urge my colleagues to join me in supporting this important bill. 
Our children's future depends on keeping them free of drugs, and this 
legislation will help those groups who can make a difference in the 
lives of our youth. There is no greater service that we can provide to 
our country than to keep our children drug-free.
  Mr. ABRAHAM. Mr. President, I am pleased to be an original cosponsor 
of the Drug Free Communities Act of 1997. This bill will lend a helping 
hand to local coalitions that are leading the fight against substance 
abuse.
  Few would argue that substance abuse, particularly among our youth, 
is a growing problem in communities across our Nation. Drug use among 
teens has increased sharply in recent years. There is reason to 
believe, however, that local coalitions, reflecting a broad cross-
section of the communities they serve, can do much to combat drug use 
among youths as well as adults.
  The Drug Free Communities Act would lend important assistance to 
these coalitions. Specifically, the bill would authorize grants of up 
to $100,000 to local coalitions whose principal mission is the 
reduction of substance abuse. To be eligible for a grant, a coalition 
must include representatives from the religious, business, law 
enforcement, education, parental, and health care communities, as well 
as local government officials, in the geographic region served by the 
coalition. To enhance coalition accountability--and thus to direct 
resources to the most successful coalitions--a participating coalition 
would be required to conduct an initial benchmark survey of drug use in 
its community, followed by biennal surveys. No new funding would be 
needed for the bill, as grant moneys would be drawn from the existing 
budget of the Office of National Drug Control Policy.
  In short, Mr. President, this bill recognizes that the efforts of 
local leaders are indispensable in the war on drugs. I am proud to 
support those efforts, and look forward to passage of this bill.
                                 ______