Country
re p o r t s
Alicia Rodríguez-Martos
A case study on alcohol policy
and the alcohol industry in
Spain
Background
Spain is a traditional wine producing country, being the
third largest wine producer in the world and also the third
largest beer producer in the EU (World Advertising Research
Council 2005). Wine alone accounts for 0.73% of the GDP,
and Spain has been considered the country where wine production contributes most to its wealth (Recasens 2003). The
alcohol industry is one of the 10 main industrial sectors of
Spain, with its well-known and highly appreciated production of wine, cava, sherry, brandy, and recently, beer. From
an economic point of view, the alcohol industry accounts
for 20% of the sales of the food industry, with a turnover of
around €11 billion. The alcohol sector includes 4050 work
centres throughout the country and 52 000 people are directly employed by the sector. (Federación Agroalimentaria
2004.)
Spaniards spent €7.4 billion buying alcohol in 2003 (3.5%
more than in the previous year). Beer accounted for 62.3%
of sales, and 68.4% of the alcoholic beverages were sold by
the hospitality sector (Observatorio Español sobre Drogas
2005).
Since the 1980s, Spain has decreased its per capita alcohol
consumption by 25%, mainly at the expense of wine. From
almost 14 l/capita/year in the mid seventies, consumption
dropped to around 9–10 l/capita/year in the mid nineties
and has remained within these ranges (World Advertising
Research Council 2005), with a parallel decrease in the
mortality rate from liver cirrhosis. The most dramatic drop
relates to daily consumption, which dropped from 57% in
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Spain
1980 (Encuesta ICSA GALLUP 1984) to
exhibit a drinking pattern of bingeing at
14% in 2003, though this drop was un-
the weekends in public places or enter-
evenly distributed depending on the age
tainment centres. The so-called “botel-
group (20.8% in the 35–64 group and 5.9%
lón” – big bottle – phenomenon (crowds
in the 15–34 group) (Observatorio Español
of youths meeting in open scenes at the
sobre Drogas 2004).
weekend evenings and nights to drink self-
Nevertheless, consumption is still far
prepared mixed beverages, eat some crisps
too high at 14.7l/drinker/year, discount-
and chat) has mobilized municipalities,
ing the 23.4% population of previous-year
mainly because of the claims about noise
abstainers (Anderson & Baumberg 2006).
and nuisances by the neighbourhoods. Al-
The health sector is alarmed mainly by
though youths describe these gatherings
consumption among young people and the
as a way of being integrated into the peer
contribution of alcohol to overall mortal-
group, they also admit looking for some
ity (around 6%), with over 36% of fatally
level of intoxication. Full drunkenness
injured drivers being under the effects
is mostly considered accidental, unfortu-
of alcohol. Moreover, from an economic
nately a rather frequent one. Ethyl coma,
point of view, alcohol-related costs add up
violence, and traffic accidents are a major
to over €3.6 billion (Portella et al. 1998),
cause for concern.
60% as indirect cost.
The traditional Mediterranean drinking
Around two thirds of the general popu-
pattern is slowly being complemented, if
lation (15–64 year-olds) report having con-
not substituted by a more harmful pattern,
sumed alcoholic beverages in the previous
with drinking (often bingeing) concentrat-
year (76.6%, in 2003). Figures have been
ed at the weekends, outside mealtimes and
quite stable since the nineties. Among ado­
on public premises. Nevertheless, there is
lescents, the percentage of previous-year
still a significant social tolerance towards
consumers is higher than among adults
alcohol consumption (not to drunkenness)
(81%) and their consumption, which had
and a very low perception of risk. Citizens'
altogether diminished during the nineties,
concern about the botellón is more be-
went up again within a 2-year period (the
cause of the noise and dirt than because of
percentage of those having got drunk in
the health aspects of this practice.
the previous month increased from 24.4%,
For the producers, Spaniards drink too
in 2002 to 34.8% in 2004, with a mean fre-
little, while the wine sector, in particular,
quency of 2.7 intoxication episodes in the
is losing sales, mainly in the hospitality
last 30 days). Thirteen per cent of boys and
business, which the sector attributes to
11.5% of girls declared drinking above sen-
both changes in drinking patterns and to
sible limits, percentages which are above
drink-driving campaigns. For the health
those in the adult population (5.3%) and
sector, alcohol poses too great a burden
higher than in previous periods (Observa-
to society, and consumption should be
torio Español sobre Drogas 2005).
reduced. So, too much or too little? It de-
In spite of the reduction in per capita
pends which side you are looking from.
consumption, Spain does have an alcohol
In both cases, stakeholders claim their
problem, especially among youths, who
right to influence alcohol policy. NGOs
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try to prevent alcohol-related harm, while
Alcohol policy had been neglected be-
industry stakeholders try to protect and
fore the 1990s. The first National Plan on
further develop their business, and there-
Drugs (1985) focussed only on illegal drugs
fore lobby for an alcohol policy that better
and it was not till the mid-1990s that alco-
fits their aims. The problem comes when
hol was put on the agenda both by the Na-
these stakeholders pretend to be moved by
tional Plan on Drugs and the General Di-
the objective of protecting health and try
rectorate of Public Health, at the Ministry
to influence alcohol policy obviating their
of Health, although school-based preven-
conflict of interests.
tive programmes run since the 1980s had
Alcohol policy
always had a special focus on alcohol.
In the National Plan on Drugs for the
Spain's alcohol policy has been mostly
period 2000–2008, alcohol deserved spe-
quite weak, despite its noticeable improve-
cial attention, although priority was given
ment in recent years. A licence is needed
to prevention based on education. Among
to produce alcohol and a license is needed
specific areas of intervention, control
for the sector activities (hospitality sector),
measures on advertising and on the pro-
but no specific licence is necessary yet for
motion of alcoholic drinks to protect un-
selling alcohol. There are overall some
der-age people were announced. (National
sales restrictions concerning hours, days,
Plan on Drugs 2000–2008)
places, density of outlets, but they are not
In 2002, coinciding with Spain's hold-
mandatory for the whole country, and de-
ing of the European presidency, a large
pend on the regions, and sometimes on
international Conference on Youths, Night
the municipalities. The age limit for sell-
and Alcohol was celebrated in Madrid,
ing and serving alcohol is still officially
with extensive media coverage. Coincid-
16, although it has already increased to 18
ing with this Conference, a new law on
in all but 4 of the 17 autonomous regions.
the prevention of alcohol misuse was an-
Taxes on beer and spirits are very low and
nounced. The law foresaw interventions
there are no taxes on wine. Alcohol public-
in specific environments and areas of
ity has some countrywide restrictions re-
important relevance for prevention, such
lated to the content (e.g. no links between
as: the family, school, sports, leisure, the
alcohol and sexual success, not aimed at
work place, community, and in road safe-
or portraying minors). and to the alcohol
ty. The legal age for drinking should be 18
proof. The General Law on Publicity (Ley
throughout Spain and restrictions on pub-
34/1988) prohibits advertisements of al-
licity and other forms of marketing were
coholic beverages over 20º on TV, but has
going to become tougher than before. The
no restrictions for advertisements on the
draft law was discussed in the parliament,
radio. Printed media and billboards are
but never approved, despite the many and
allowed, with partial restrictions, depend-
successive amendments introduced.
ing on the region. Sponsorship is allowed.
Parallel to it, a Law on Vineyards and
Publicity restrictions depend also on re-
Wine (Ley 24/2003) was approved in 2003.
gional laws. Self-regulation is carried out
Starting with the sentence ”Wine and
by the regulatory body Autocontrol.
vineyard are inseparable from our culNORDIC STUDIES ON ALCOHOL AND DRUGS
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Spain
ture”, the law defines (title I, art. 2) wine
Prohibitions and limitations concerning
as ”the natural food exclusively obtained
the selling, serving and consumption of
by partial or total alcoholic fermentation
alcohol, in agreement with the evidence-
of fresh grapes, pressed or not, or from the
based strategies, are included (Chapter III).
grape must”.
No alcohol can be purchased by or served
This specific point (wine considered
to those aged under 18, and severe restric-
as food) was meant to avoid it being in-
tions are introduced concerning time and
cluded in the draft law on the prevention
places allowed to sell alcoholic beverages,
of alcohol misuse, if it should ever appear.
so that availability will be more difficult
The criteria for promotional campaigns, fi-
too. Outlets with off-premise sales of al-
nanced by public funds, are to recommend
cohol will need a special license. Chapter
the moderate and responsible consump-
IV of this Draft Bill is on publicity, promo-
tion of wine, and to inform and spread the
tion, and sponsorship. Youngsters under
benefits of wine as a nutriment within the
18 will not be a direct target of any type
Mediterranean diet.
of marketing. Besides the usual limita-
On September 25th 2006, the Draft
tions on the content and messages of ad-
Bill on Health Measures for the Protec-
vertisements, no publicity, promotion or
tion of Health and the Prevention of the
sponsorship will be authorised in places
Consumption of Alcoholic Beverages by
where drinking is not allowed. No type of
Minors (Borrador ... 2006), was issued by
publicity (direct or indirect) of alcoholic
the Ministry of Health, after having been
beverages will be permitted between 6 am
discussed by the Interterritorial Council
and 10 pm on TV or radio. No printed pub-
of Spain on October 11th 2006. The Draft
licity will be allowed in the front or back
Bill aims at the protection of minors from
pages, sports section or sections aimed
alcoholic beverages by promoting an in-
at minors in any type of publication. An-
ter-sectorial approach at national and re-
other novelty is the regulation of publicity
gional level, thus guaranteeing an effective
in public places where minors can be ex-
and sustainable policy. Although limited
posed (e.g., bus stops) and billboards will
to minors, it means an important break-
have to be placed at a distance of at least
through for the main alcohol policy. It fo-
500 m from schools. Offences and penal-
cuses on the population under 18, because
ties are regulated to enable the enforce-
this is the most vulnerable and also the
ment of the law.
one which has deserved special attention
In 1995, a road safety plan was approved
from the European Council (Council of the
including a number of measures aimed at
European Union 2001a; 2001b; 2001c).
reducing the incidence of driving under the
Moreover, it is a good way of promoting
influence of alcohol. In 1998, the legal BAC
an alcohol policy in a country with so
limit dropped from 0.8 to 0.5 for drivers in
many vested interests, as the protection
general, and to 0.3 for novice drivers and
of minors generates more consensus. The
professional drivers. Other measures and
Draft Bill includes in addition to health
more severe penalties for offenders have
promotion, education measures and strat-
been developed in recent years. A Spe-
egies to reduce the availability of alcohol.
cial Plan on Traffic Safety was approved
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in 2004, and there has been a steady in-
Priority actions for the period 2005–
crease in alcohol checkpoints. According
2008 are:
to the reformed Penal Code (Ley Orgánica
1. Reinforcing actions within the frame-
15/2003), drink driving can be considered
a crime deserving of a prison sentence.
work of the family.
2. Promoting sensitisation activities and
Penalty points and a modification of the
the collaboration of the mass media.
traffic law with tougher penalties for drink
3. Reinforcing Spanish participation in
driving have been approved (Ley 17/2005)
the European drug policy.
and have been in force since July 1st 2006.
An agreement between the Ministry
In 2005, Spain had its lowest number of
of Health (General Directorate of Public
traffic fatalities for 30 years, 5.2% less
Health and National Plan on Drugs) and
than in 2004, and the highest prevalence
the General Directorate of Traffic has been
of breathalysing checkpoints (143,628 in
launched with the main aim of preventing
the week prior to Christmas, within the
alcohol- and drug-related crashes through
Operation AD2005, organised by Tispol).
a series of preventive and health promo-
BAC-positive fatalities, although still high,
tion measures. At the beginning of 2006, a
have sharply diminished (from 51.3%, in
specific law on alcohol was announced by
1991 to 37.3%, in 2003), according to data
the Minister of Health, especially aimed at
from the National Institute of Toxicology
preventing the consumption of alcohol by
(Memoria ... 2003).
adolescents. With this aim, a critical analysis of the already existing regulations, e.g.
 National Plan on Drugs: Strategy for
the period 2005–2008
After reviewing the epidemiological data
and the state-of-the-art in the consumption
of alcohol and other drugs, the government
has evaluated the National Plan on Drugs
2000–2008, and redrafted the strategy for
the period 2005–2008. This redraft reflects
an increase in the consumption of alcohol
and other drugs, a reduction of the perception of risk, an increased perception of the
availability and an increase in harm related
to the use of alcohol and other drugs, while
the starting age has remained stable.
From the identified concerns derive the
bases for the new strategy for the years ahead.
A Sector Conference took place on March 7th
2005, including proposals from NGOs and
public institutions. From this Conference, an
Action Plan was derived, made up of 6 working axes, embodied by 68 actions.
on publicity and legal age limits, had to be
discussed. To begin with, the legal age for
selling and drinking alcohol would be 18,
statewide.
The role of the alcoholic
beverages industry
The drop in per capita consumption
(-26.7% for 1980–2003) and wine consumption (-52.7% for 1980–2003) (World
drink trends 2005), has meant and still
means a major cause of concern for the alcohol industry. Another cause for concern
is the approval of regulations that could
jeopardise the sales. The industry needs to
preserve and, if possible, increase its business.
Parallel to this, the many compensation
claims to the tobacco industry together
with a more critical view on the alcohol industry itself have also meant another type
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Spain
of threat to the sector. The alcoholic bever-
claims made on foods for “it could remove
ages industry has seen the need to engage
the scarce possibilities of the sector con-
in the field of prevention, its focus being
cerning communication and promotion”
on the promotion of “responsible” drink-
and counteract their efforts of 12 years
ing. The industry is desperately looking
to promote and disseminate studies on
for a friendly and trustworthy image.
health benefits linked to the consumption
This duality explains the industry
stakeholders' frontal opposition to new
of wine (Fundación para la investigación
del vino y nutrición).
regulations, controls, and to any increase
The results of their sponsored studies on
in taxes, and in general to every measure
the benefits of wine are presented at their
that could reduce the per capita consump-
own meetings (a recent medical study on
tion. While they are nevertheless engaged
the benefits of alcohol was done in collab-
in prevention aimed at the risky patterns
oration with FIVIN, and presented to the
shown by vulnerable or deviant individu-
media at the Agricultural Ministry).
als, as well as sponsoring research studies
(on the benefits) on alcohol.
In 2002, they were opposing the draft
law on the prevention of alcohol misuse
The following information illustrates
claiming a natural and agricultural origin
their attitudes and behaviours, and is taken
for wine. In 2003, they successfully lob-
mainly from the industry websites them-
bied for wine to be considered as a food
selves, the media and qualified sources of
(Law on Vineyards and Wine).
information.
At the Food Fair of 2004, stickers were
distributed with the slogan: “No to zero
 Wine producers
The wine producers are convinced that
they sell the “good” alcohol (Mediterranean diet) and consider themselves “pure”
for not being involved in claims about their
advertisements.
The Foundation for the Investigation of
Wine and Nutrition (Fundación para la investigación del vino y nutrición, FIVIN) is
a non-profit, private entity that was established 10 years ago with the aim of fighting for recognition of the health benefits of
wine and cava1 (Fundación para la investigación del vino y nutrición).
FIVIN, together with the Spanish Wine
Federation (Federación Española del Vino,
FEV), report that they have insisted on the
exclusion of wine from the Regulation of
the European Parliament and of the Council of 16 July 2003 on nutrition and health
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NORDIC STUDIES ON ALCOHOL AND DRUGS
tolerance. Wine is culture”.
FIVIN, together with the hospitality
sector, have questioned the government
policy on drink driving (Francàs 2004).
The “zero tolerance policy”, promoted by
the autonomous government of Catalonia,
and the intensification of checkpoints, for
example, have allegedly become a major
concern for the wine sector. The Hospitality Corporation of Catalonia has claimed
a sales reduction of 50% and a cava producer regretted that “nobody speaks about
driving under the influence of drugs, while
they attack wine, which is food”. Among
other opinions of the sector, “a responsible
drinking of 2–3 glasses of wine per meal
doesn't cause any problem” and “it's absurd to modify a moderate wine consumption…for it doesn't mean any risk for driving”. (Francàs 2004)
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The president of the Hospitality Cor-
launched in 1998 as a scientific body
poration of Catalonia considers that the
aimed at producing studies on the virtues
tough controls in Catalonia have caused a
of beer. The reports are meant to be dis-
psychosis among sensible consumers, and
tributed to governmental bodies, health
announced in the spring of 2005 the pro-
professionals, and consumers. With this
duction of smaller bottles (370 ml instead
aim in mind, they present their studies
of 750 ml), so that the customer does not
at Medical Colleges, scientific meetings
need to pay for the whole bottle he cannot
and distribute them generously to the me-
drink. The small format is also claimed
dia. Based on their own website (www.
to allow consumers to change the type of
cerveceros.org), we can highlight some of
wine for the second course and thereby
their studies' conclusions:
helping “to clarify any fear of responsible
“Beer contains functional ingredients
consumers to give a positive result at the
…”, that is “foods rich in some component
police check-points.” (Francàs 2004) A
that has important positive health proper-
study paid for by the wine sector around
ties with more than mere nutritional val-
this period showed that 3 glasses of wine
ue, such as for example reducing the risk
didn't give a positive BAC, even for wom-
of cancer, of circulatory problems, or of
en, and, consequently, didn't mean any
congenital malformations in the foetus.”
risk of being caught by the police (Francàs
2005).
The brewers insist that beer is part of
the praised Mediterranean diet: “Wine and
The wine producers asked the Spanish
beer in moderation may form a part of a
General Directorate of Traffic to erase any
healthy diet like the Mediterranean diet…
reference to wine from the last Road Safe-
always in moderate amounts and without
ty Campaign, because they've stated that
substituting wine consumption.”
it does not cause any car accidents. Paral-
When it comes to youths, the beer sec-
lel to this, a market study on “Youths and
tor puts the blame on spirits and even
Wine in Spain” was presented (February
on wine, which should be the preferred
2006) at a sector fair. Among its conclu-
drinks for those attending “big bottle”
sions: wine is little consumed by those
gatherings, as opposed to “the family na-
under 35, because its use is considered to
ture that beer may have”. According to the
need some expertise and an effort is re-
Brewers of Spain, for young people, beer
quired to recover the wine's vanguard im-
is a “popular summer drink to quench the
age among youths and to encourage con-
thirst”… perceived as “refreshing … and
sumption. To this last aim, even the public
not as an alcoholic beverage for going out
institutions should make an effort. (Youths
at night…”
and Wine in Spain 2006.)
In 2002, the brewers of Spain presented,
in partnership with the General Directo-
 The brewers
The brewers2 have long been associated
in an alliance, the Brewers of Spain (Cerveceros de España), founded in 1922.
They sponsor a Beer and Health Centre,
rate of Nourishment (Ministry of Agriculture), the main conclusions of their studies in the form of a White Paper on Beer,
with the acknowledged aim of promoting
the responsible consumption of beer. The
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Spain
brewers consider themselves a responsible
consumption. The main guideline is “not
sector committed to society (Fundación
to worry about it but to deal with it”; “par-
Alcohol y Sociedad 2002). With this aim,
ents must inform their children from an
they have developed some educational
early age (6) about how to take responsible
and preventive activities, mainly aimed at
decisions regarding alcohol consumption”
youths. They also claim to guarantee the
(Pérez 2004).
protection of minors in their sales commu-
• Young people, Alcohol and Driving
nications.
(Jóvenes, alcohol y conducción)
In 1997, the Brewers of Spain, with the
Here are some examples of their self-re-
collaboration of ADIGRAM4 and the Royal
ported activities:
Automobile Club of Spain (RACE), reached
• Campaign “The Road Demands you to be
an agreement for the joint production of an
Alcohol Free (La carretera te pide sin)”
informative video on alcohol and driving,
This media campaign was first launched
responding to a European initiative pro-
in 2001 and is still ongoing in partnership
moted by The Amsterdam Group and the
with the main organizations committed
ERSF (European Road Safety Federation).
to traffic safety.3 With the aim of raising
This video was specifically aimed at and
awareness on the incompatibility of drink-
distributed to 5000 driving schools. The
ing and driving, drivers are recommended
campaign is ongoing.
to drink non-alcoholic beer.
• Code of Advertising Self-Regulation
While the spirits producers promote
The brewers have their own code of
designated driver alternatives, the brew-
conduct, the declared aim of which is to
ers support alternative beer: “If you have
avoid advertising to minors, advertising in
to drive, you'd better drink non-alcoholic
hours propitious to them, and to not asso-
beer”. According to the Brewers of Spain
ciate beverages with driving (sponsorship
General Management, the best prevention
and product placement seem to get around
tools are messages aimed at responsible
these limitations).
driving, because prohibition measures
mostly provoke a response opposite to the
In 2005, the first roundtable on Beer,
desired one. This Spanish brewers' cam-
Nourishment and Sports was held in Ma-
paign was selected by the EC to be includ-
drid, where the positive relationship be-
ed in the European Road Safety Charter
tween sports and beer was established.
and will be running for another 3 years.
The president of Brewers of Spain com-
• Parents have the last word (Los padres
mented on the brewers' support of sport
tienen la palabra)
via sponsorship, always respecting the
In 2004, the Brewers of Spain devel-
law and their self-regulation, so that they
oped, in co-operation with the University
don't participate in events related to driv-
of Valencia and with the support of the
ing or where minors are attending. The is-
Ministry of Agriculture, Fishing and Food,
sue of the magazine Cerveza y Salud (Beer
a parental guide with the aim of informing
and Health), where the event is reported
parents of 6–13-year-olds on the best way
also shows the picture of a football player
of establishing a dialogue about alcohol
drinking beer and stating that their doctors
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recommend them to include beer in their
diet (Cerveza y Salud 2005).
Altogether, the brewers promote beer
among youths. A study carried out by
professionals of the Chemist's Faculty in
Madrid and sponsored by the Beer and
Health Centre (Requejo & Ortega 1998),
comparing 18–35 youths drinking beer
versus drinking alcoholic beverages with
higher proof, showed that beer drinking is
associated with low alcohol consumption,
healthy nourishment and having altogether better nutrition and more energy. The
 The spirits producers
In 1977, the spirits industry created the
Spanish Federation of Producers (FEFBE),
which, in 1998, merged with distributors
(ADIGRAM) to build the Spanish Federation of Spirits (FEBE)5. The latter has organised itself around research and prevention activities as a typical 'social aspect
organization': the “Fundación Alcohol
y Sociedad” (FAS) (Foundation Alcohol
and Society), although some actions are
still directly taken by the industry (FEBE
or DIAGEO).
brewers' statements and marketing messages promote altogether the idea, common
among youths, that beer is a non- or almost
non-alcoholic beverage you just can drink
when thirsty. Their contribution to the prevention of impaired driving is, as a matter
of fact, a beer promotion campaign.
They refuse statutory regulations, having
opposed the generic measures included in
the draft law on the prevention of alcohol
misuse and asked for a different treatment
for beer as a low-proof beverage and the
only one with a non-alcoholic type.
Brewers are in favour of self-regulation,
which clearly fails to control their communication policy. Beer advertisements are
extremely appealing to youths, repeatedly
associating the golden drink with sexual
success, modernity, and even sports. The
promotional message within a ski pro-
 FEBE
The federation declares its commitment to
an active responsibility in fighting alcohol
abuse via warning against consumption in
at-risk groups such as minors, drivers and
pregnant women, promoting sensible and
responsible drinking, and working for an
effective marketing self-regulation. FEBE
supports education, information, and sensitisation as the main tools in developing
responsible attitudes and behaviours. Its
main declared commitment is, therefore,
embodied by:
1) the “reinforcement of ethical self-regulation of the publicity of spirits, with a
strict control through an independent
body (Autocontrol)6”, and
2) the creation of the Alcohol and Society
Foundation (FAS).
gramme sponsored by brewers was “San
Miguel, the beer which skis best”.
In Catalonia, a special beer which is the
first sponsor of all main cultural events,
seems to have the monopoly on sponsorship and product placement, and regularly
appears at the foreground. The main characters in soap operas drink it generously
(6–8 bottles on a two-person table).
 Control of Advertising, Self-regulation
In 1998, and as part of a “cleaning image”
operation, spirits producers invested 100
million pesetas (some 60 000 euros) in a
publicity campaign to call for responsible
drinking in order to stop the drop in sales.
Since then, every advertisement of alcoholic beverages has this warning message:
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Spain
Drink moderately, it's your responsibility.
on TV with the excuse that the mixture
FEBE claims that this message has been
contains less alcohol (mostly around 5º),
recognised as an alternative to official
when they clearly promote the contained
warning messages introduced by regional
spirit.
laws.
with AUTOCONTROL for the reinforce-
 FAS (Fundación Alcohol y Sociedad
– Alcohol and Society Foundation)
According to its website description (www.
ment of the sector's self-regulation. Ac-
alcoholysociedad.org), the foundation was
cording to them, there shouldn't be any
created in 2000 with the aim of liaising
concern about self-regulation taking into
with society in the search for comprehen-
account its double (pre-launch and after-
sive solutions…
FEBE has a code of conduct (1999) and,
since 2003, also a collaboration agreement
launch) control. The so-called voluntary
The commitment stems from the need
“copy advice” (pre-launch control) should
to address this matter on an objective ba-
be the reason for just 3 out of 180 claims
sis. Actually its first objective is “to dis-
received by AUTOCONTROL being relat-
close… the truth about the effects of alco-
ed to the spirits sector.
holic beverages… furthering realistic and
Worth highlighting is the fact that FEBE
viable solutions that are far removed from
has presented claims about illegal public-
demagogic approaches”. The foundation
ity (TV covert advertising of a brandy) by
states to be a rigorous and reliable centre
a producer who does not belong to their
of research and reflection. Its purpose is to
group of trustees. Another interesting par-
“provide support and guidance”… It un-
adox is that Bacardí, which belongs to the
dertakes specific campaigns “to mitigate
FEBE group and is a trustee of the Alcohol
the effects of the irresponsible consump-
and Society Foundation, circumvents the
tion of alcohol, fostering non-consumption
prohibition of publicity of >20º alcoholic
among high-risk groups (minors, motorists,
beverages on TV by publicizing already
and pregnant women) and expounding the
mixed drinks such as Cuba Libre, which is
need for a moderate, responsible, and sen-
a ready-to-drink mix of rum (40–50º proof)
sible use of alcoholic beverages amongst
and coke. Although its strength is 5º, eve-
the population as a whole, through educa-
rybody recognises the ingredients, because
tion and information”. (Fundación Alco-
this combination has been very popular for
hol y Sociedad)
decades and it is the mix drunk most by
The key to success will be the “trustwor-
people going out at the weekends, even for
thy” collaboration of all parties involved
youths engaged in outdoors drinking (bo-
(Administration, NGOs, parents, trade
tellón), where participants prepare them-
unions, political representatives, the sci-
selves combined drinks from big bottles
entific community, and the industry), and
of spirits and soft drinks. Other ready-to-
according to this view, those alliances are
drink cocktails (also known as alcopops),
actively sought.
Bacardi Breezer, J&B Twist, Ice Smirnoff,
etc., have also been advertised on TV de-
The board of Trustees is made up of the
main spirits companies.7
spite the prohibition of advertising spirits
436
NORDIC STUDIES ON ALCOHOL AND DRUGS
V O L . 2 3. 2 0 0 6 . 6
The FAS mission is overall the preven-
Spain
tion through education and “informa-
FEBE has attributed the recent state-
tion…free of demagogy, bias or manipula-
wide reduction in auto accidents among
tion”, and includes the statement of alco-
youths to this campaign, in which 671
holic beverages being closely linked to our
people took an active part.
habits and to the cultural history of Spain
(Fundación Alcohol y Sociedad).
• “Alba Project” (Youth and alcohol)
FAS's other main topic is the prevention
 FAS main topics:
of underage consumption of alcoholic bev-
• “One Driver per Night”
erages, as quoted in its website; the project
The designated driver campaigns, which
Alba (2001–2004) was set up to tackle this
costs over 1 million euros each, are wel-
issue. It includes a research project (via
comed by the same hospitality sector that
surveys) to study the relationships be-
has strongly criticized the alcohol check-
tween minors and alcohol, and an educa-
points for ruining their business. Appar-
tional programme for schoolchildren. The
ently, a drop in wine consumption with
rationale for the programme was the belief
meals by drivers who decide not to drink
that education is the most effective way of
or drink less is a disaster (there is no com-
combating alcohol consumption among
pensation) and should be removed, but
adolescents.
disco-goers who play the designated driver
The goal was to provide youths with
role are apparently no menace to business
“objective, concise and realistic informa-
(the passengers drink to compensate for
tion; doing away with certain myths…”,
the driver's abstinence) and should be pro-
to provide them with “specific answers
moted. The designated driver campaign is
to their doubts, thereby enabling them to
exclusively concentrated on youths, the
reach their own reasoned conclusions on
same target to which sales are aimed. The
their own accord.” (Fundación Alcohol y
designated drivers “sacrifice” themselves
Sociedad)
that night and are compensated with a
As a result of the survey, the Foundation
prize. Allegedly drink driving by youths is
published a White Paper on the Relation-
the problem; not older drink drivers, not
ships between Alcohol and Adolescence
bingeing passengers.
in Spain (Fundación Alcohol y Sociedad
Designated driver campaigns have not
2002, with data of 2001) and a 2nd White
proven to be effective (Babor et al. 2003).
Paper was due to appear in 2005 with
Actually none of the published studies has
the results of the 4-year survey on 22 000
evaluated the reduction of alcohol-related
12–18 year olds (it was presented to the
injuries associated with them; passengers
media on May 30th 2006, but hasn't been
can indulge in drinking and even disturb
included in the FAS website yet). Worth
the driver, and the designated driver him-
mentioning is the information obtained
self does not modify his drinking behav-
by the first survey about the values which
iour outside the campaign (Ditter et al.
drive youth. Among them: the value of be-
2005). Nevertheless, sponsoring them is
ing “authentic” (“Be authentic”…, is this
mostly perceived by the society as a good
not the slogan of a gin brand?). The study
contribution to prevention.
report, which is aimed at teachers and
NORDIC STUDIES ON ALCOHOL AND DRUGS
V O L . 23. 2006 . 6
437
Spain
parents, promotes adolescents being intro-
• Responsible Hospitality (Responsible
duced to alcohol by their parents: actually,
Serving of Alcoholic Beverages – RSA)
the report says that adolescent problem
In July 2005, while the media were
drinkers come from families who don't
spreading the development of the RSA
consume alcohol and lack a model and
programme launched by the Health Agen-
information, “discovering the alcohol via
cy of Barcelona in 2001 and offering train-
their peer group in a problematic and even
ing trainers workshops open to all Spain,
traumatic way.” As a contrast, another way
the FAS claimed to be the first in offering a
of initiating alcohol consumption by ado-
programme to train the waiters in respon-
lescents is “associating their consumption
sible serving of alcoholic beverages within
behaviour with that of one of the adults
its new programme “Responsible Hospi-
who serves them as mirror and model…
tality” (Giralt 2005). The Hospitality Cor-
the normalisation of consumption is in-
poration of Catalonia, which had refused
duced by the family and transmitted to the
any back-up for the RSA of the Health
minors as a praxis associated with adult
Agency of Barcelona, as well as a Federa-
life”. (Fundación Alcohol y Sociedad
tion of Night Leisure are happy to collabo-
2002, pages 16, 18)
rate with the industry RSA programme for
The school programme Educational
Programme on Adolescents and Alcohol:
“business doesn't imply excessive consumption”.
Educating in Responsibility (Fundación
para la investigación del vino y nutrición)
has a clear informative and harm reduction approach, and is full of dubious concepts like “abuse”, “responsible consumption”, “intelligent decisions”, etc. Pupils,
teachers, and family are offered a guide.
Teachers are not obliged to be trained
and, in any case the didactic unit on alcohol (with plenty of information about
metabolism, intoxication, hangover, and
withdrawal syndrome) is delivered to the
pupils via the 2-hour workshop run by
an FAS trainer. There is no education on
lifestyle or values. Moreover the teachers'
 DIAGEO
DIAGEO (www.diageo.es), another trustee of FAS, is also launching 'prevention'
campaigns in partnership with companies
of the leisure sector. These expensive campaigns aimed at preserving alcohol as part
of a lifestyle but avoiding irresponsible
drinking are meant to reach the 18 to 25
year-old youths via the J&B promotional
channels. Diageo also organizes whisky
cruises within the promotional campaign
Nightology, reinvent the night (www.
nightology.com).
ments), with no mention of alcohol. Pupils
Relationships between the
alcohol industry and the
governmental organizations
are told that it's better not to consume al-
As with the god Janus, the industry has two
cohol if they are under 18 or have to drive.
faces when it comes to prevention. Actu-
The programme was first introduced in the
ally, the industry is 'winking to' some gov-
course of 2001/2002 and has been run in a
ernmental departments (industry, trade)
few regions.
while 'scowling' to others (health, treas-
guide has a whole unit devoted to publicity (from analysing to creating advertise-
438
NORDIC STUDIES ON ALCOHOL AND DRUGS
V O L . 2 3. 2 0 0 6 . 6
Spain
ury) and even alternatively opposing or
doba (February 2005), Málaga (June 2005),
supporting measures within the same gov-
and Jaén (July 2005).
ernmental department. Organised as social
The content of the agreements, common
aspects organizations or not, the whole al-
to there municipal agreements, embraces
cohol beverage industry claims a role in
four action areas:
defending the public good. This defence
1. education in responsible drinking
is understood as combating irresponsible
drinking patterns while maintaining and
• development
of
education
pro-
grammes for adolescents
even increasing the level of consumption
• development of the designated driv-
among the population. Put the blame on
er programme “A driver each night”
the drinker not on the drink.
• development of different dissemination and training programmes
 The “good” face
It is clear that the industry is doing its best
to liaise with the local, regional and state
governments, offering its resources and
strategies for the prevention of the harm
related to the “bad use” of the goods they
produce and sell.
The brewers – mainly the Spirits Federation – are committed to a dialogue with the
public powers and have decided to act on
their role of social responsibility, investing
every possible effort and resource to fight
the harm derived from the “improper” and
“abusive” use of alcohol. They invest a lot
of effort in meeting governmental organizations and key professionals trying to get
them on board.
Their contribution to preventive and
research activities is often welcomed by
politicians, especially by those who are
less aware of the biases derived from the
industry's vested interests or by departments related to the business or the alcohol sector.
Between 2004 and 2005, general collaboration agreements were signed between
FEBE and important municipalities such
as Barcelona (January 2004), Tarragona
(February 2004), Palma de Mallorca (May
2004), Granada (September 2004), Cór-
for improving the knowledge of the
consumption habits and treatment,
if needed, aimed at the sectors concerned
2. research studies on alcohol and society
• studies and research on alcohol and
its effects on health and society in
general
• the opinion of the FAS will be taken
into account in regard to research
studies on the effects of alcohol,
3. persecution and control of fraud to the
consumer
• monitoring, persecution, complaint
and penalty in any case of fraud or
deceit
4. monitoring and control of publicity
messages
• control of publicity messages prior
to their broadcasting or introduction
to the customer with the aim of guaranteeing, at any time, their adequacy
to the regulations in force
The industry is selling convenient prevention: one that does not jeopardise the
business nor challenge public opinion. A
“wet culture” is compatible with accepting the philosophy of “responsible drinking”, and the prevention offered by the
NORDIC STUDIES ON ALCOHOL AND DRUGS
V O L . 23. 2006 . 6
439
Spain
industry is therefore easily accepted with
Chamber (in the Parliament), whose presi-
the best intention. Moreover, taking into
dent considers this strategy as the key axis
account the major cost of any campaign or
for traffic safety. The critical voices of the
prevention programme and the permanent
health sector are mistrusted and do not
shortage of public funds, the sponsored
find their way through to the relevant au-
activities are something to consider.
thorities.
The alcohol industry and its alter ego
In summary, some governmental and
FAS have been successful in collaborat-
private organizations believe that some
ing with several municipalities, autono-
public benefits can be expected from pre-
mous governments, with transport and
vention provided by the industry, although
traffic safety authorities, driving schools
the types of chosen interventions belong to
and private traffic organizations. Worth
the least effective approaches according to
mentioning is the fact that these collabo-
the international scientific evidence base
rations do not usually involve the health
(Babor et al. 2003).
sector, and have been a source of conflict
between departments. This also explains
the unequal implementation of the industry programmes even in municipalities
with signed-up agreements.
The FAS designated-driver campaign
and the school prevention programme are
 The “bad” face
When it comes to taxes, controls and every
strategy aimed at reducing the per capita
consumption, the industry systematically
shows its “bad” face to those concerned
with prevention.
probably the most widespread activities,
although they don't cover all the national
territory. The school programme has to
compete with governmental non-mandatory prevention programmes. Both being
free, the main difference is that the latter
has to be run by the teachers in several sessions and the industry programme is run
by a FAS trainer in just two 1-hour workshops.
The designated driver campaign is the
most supported initiative. In a country
where traffic accidents kill 4000–5000
people each year (almost 40% of fatalities
related to alcohol) this support is not surprising, even if the offer comes from the
industry. In the desperate need to curb
this bloodshed, the expected possibility
of saving a single life is welcomed by the
main traffic authorities as well as the Commission on Traffic Safety of the Deputies
440
NORDIC STUDIES ON ALCOHOL AND DRUGS
 The industry and taxes
The industry is firmly fighting against any
increase in taxes. Wine producers and the
Ministry of Agriculture are against wine
taxes. The brewers feel it is unfair to be
charged for their low alcoholic products,
and the spirits producers have the feeling
that they already pay too much. In 2005,
there was a major discussion on measures to compensate the health care deficit. FEBE claimed that increasing the VAT
on alcohol would mean an improper and
non-justified discrimination which would
penalise the majority of responsible drinkers and would not help in preventing the
harm related to alcohol abuse. According to
FEBE, taxes are not a useful tool to address
health policies and would represent a very
low amount of revenue that would not
compensate for the health system deficit.
V O L . 2 3. 2 0 0 6 . 6
Spain
Moreover, it would mean a dramatic loss
duct, of claims not being upheld by the
of jobs. Their reasons seem to have been
self-regulatory body or advertisements be-
convincing, because a special increase in
ing removed too late, in the case of upheld
the petrol taxes has been earmarked to pay
claims.
for the health system.
In 2001, 6,692,436 alcohol advertise-
Financial authorities are more prone to
ments were shown, mainly (2,050,131) in
seeing the benefits of the market, the many
open scenarios (billboards, etc) and on TV
jobs related to the sector and the contribution
(1,994,346) (Nelson-Sofres 2001). Beer is
of the increased alcohol taxes to the RPI.
the most advertised beverage on TV and
Altogether, the alcohol industry rep-
in cinemas, while spirits prevail in open
resents an important part of the Spanish
settings. Spirits cannot be advertised on
economy, creating employment and eco-
TV but they have no limitations on the ra-
nomic benefits, including revenues from
dio, which has a lot of youth programmes
taxes. The government itself is therefore
sponsored by spirits brands. DJs mix pro-
interested in protecting and promoting the
motional messages with their comments
sector, mainly the wine and cava produc-
on music and leisure, creating a complic-
tion and marketing. The Agricultural Min-
ite atmosphere.
istry has succeeded in having wine defined
The industry sponsors lots of youth
as food, and public funds can be devoted
events (rock concerts, sports competitions,
to its promotional campaigns. The agricul-
etc), bombarding with media advertise-
ture authorities and corporations mistrust
ments and altogether promoting a lifestyle
most initiatives aimed at the prevention of
where alcohol has a central role. Diageo,
alcohol-related harm, easily understood
which claims to be committed to preven-
by them as a shift towards intolerance and
tion (“…use your head”), is organizing
'dry' laws. The trade and financial authori-
boat cruises (Nightology Boat) that an-
ties see more benefits than risks in alcohol,
nounce endless nights of surprises, sensa-
and they are opposed to effective preven-
tions, and pleasure, including innovative
tion strategies that would reduce the per
whisky cocktails.
capita consumption.
Some soap operas are colonized by brew-
The industry's “bad face” for the health
ers via sponsorship, product placement,
sector is not seen as ugly by the business
and script-dialogues, including negative
and trade sector.
images of sobriety. (A joke within a series
“he is as useless as a non-alcoholic beer.”)
 The industry and marketing strategies
Both brewers and spirits producers are
convinced of the effectiveness of self-regulation and do their best to block regulatory
initiatives, as they did during the discussion process of the draft law on the misuse
of alcohol. Nevertheless, the daily reality
provides overwhelming evidence of a too
frequent breaking of their codes of con-
Publicity and sponsorship are of course
welcomed by the media and the organisers
of sponsored events.
Claims presented to the Court or other
governmental departments, mostly by
consumers'
organizations,
have
more
chance than those presented to Autocontrol, although advertisements are cleverly
designed or placed at the edge of legality.
NORDIC STUDIES ON ALCOHOL AND DRUGS
V O L . 23. 2006 . 6
441
Spain
In conclusion
department, and even some health pro-
In conclusion, the industry is trying to
fessionals). The Mediterranean diet is
have its voice heard in the Spanish alcohol
praised, also in medical congresses, in
policy and to some extent is succeeding in
terms of food and nutrition. The contribu-
doing so, in spite of its clearly contradic-
tion of the wine sector to the alcohol policy
tory behaviour and the intended counter-
operates clearly in the sense of educating
balance of NGOs.
about the healthy properties of moderate
In the government, although all the de-
wine consumption. Therefore, their main
partments want to curb alcohol problems,
investment is in the research related to
there is no full consensus about the best
those benefits, and they have a clear inter-
strategies for reaching this goal. The Min-
est in wine being considered as food.
istry of Health has clear ideas about how to
The beer sector has tried to jump on the
proceed. The General Directorate of Public
Mediterranean diet wagon, and also in-
Health is involved in the group Alcohol
vests in research into the health benefits
and Health of the European DG Sanco and
of beer, besides being engaged in some
it is working for an effective reduction of
educational programmes and in defending
the risks related to alcohol consumption.
their own self-regulation code.
The most recent example of its work has
The spirits sector is mainly interested in
been the Draft Bill on health protection
having a role in alcohol policy that con-
and prevention of the consumption of al-
tributes to prevention through educational
coholic beverages by minors, with clear
and visible campaigns, most of them run
measures to reduce alcohol availability.
by its social aspect organization, FAS. One
The Home Office is also in favour of ef-
of the sector's aims is the reinforcement of
fective measures, and was involved in the
self-regulation and ethical codes as an al-
previous draft law, when the National Plan
ternative to statutory regulation.
on Drugs belonged to this ministry (nowa-
All in all, the alcohol beverages industry
days it belongs to the Ministry of Health).
intensively tries to demonstrate its capabil-
Other ministries have other views (mainly
ity to contribute to a better alcohol policy
the Ministry of Agriculture, but also the
with responsible marketing and educating
Ministry of Industry, Tourism and Trade)
responsible consumers. Availability, taxes
that reflect a conflict of interests. For them
or curbing per capita consumption are be-
the problem is not about availability, but
yond its prevention strategies.
Concerning the role of the alcohol in-
about individual behaviour; therefore the
emphasis on the need to promote respon-
dustry, “Spain is not different”.
sible drinking.
The wine sector, in particular, has the
strength of a broad support (agricultural
industry, hospitality sector, the treasury
442
NORDIC STUDIES ON ALCOHOL AND DRUGS
V O L . 2 3. 2 0 0 6 . 6
Alicia Rodríguez-Martos, MD, PHD
Public Health Agency of Barcelona
Spain
E-mail: [email protected]
Spain
Notes
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1) Cava: is a type of wine produced according to the “champenoise” method, with
a second fermentation in the bottle after
adding sugar and yeast. Cava is the Spanish
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(Champagne) where it was developed.
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autonomous region of Catalonia, where this
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V O L . 2 3. 2 0 0 6 . 6