Marijuana Community Impact Study
Executive Summary
In December of 2016, the Pueblo County Commissioners contracted with the newly-established Institute of Cannabis Research (ICR) at Colorado State University - Pueblo to study the impacts of legal cannabis on Pueblo County. In the years since 2012, the year that Colorado voters approved Amendment 64, Pueblo has opened the door wider to legal cannabis than many other Colorado counties. In addition to licensing medical and retail cannabis dispensaries, Pueblo County has also approved cannabis grows and cannabis product development companies. It is reasonable to assume that newly legalized cannabis dispensaries, grows, and product development companies will have a significant impact on Pueblo County. Rather than operating in the dark, the Pueblo County Commissioners requested an Impact Study from the Institute of Cannabis Research that focuses on the following subject areas:
Scope of Services and Impact Study Team Researchers
Demographics
Investigator: Timothy McGettigan, PhD
Poverty and Homelessness
Investigator: Timothy McGettigan, PhD
Education
Investigators: Tim Peters, PhD
Jobs
Investigators: Brad Gilbreath, PhD and Patrick Radigan, PhD
Crime and Prison Populations
Investigator: Jennifer Schlosser-Couch, PhD
Public Health & Health Care System
Investigators: Joe Franta, PhD, Leslie Murtagh, PhD, Jacinda Heintzelman, PhD, Lisa Persons, PhD
Community Attitudes
Investigators: Carol Langer, PhD, Fawn Amber-Montoya, PhD, Colleen Hackett, PhD
Impacts on Social Services
Investigator: Arlene Reilly-Sandoval, PhD
Impact Study Principal Investigators
Jane Fraser and Leonardo Bedoyavalencia - Energy & Water
Aun Hassan and Mike Wakefield - Economic Impacts
Brian Vandenheuvel - Hemp Buffer Zones
Joe Franta and Tim McGettigan - Social Impacts
Impact Study researchers began meeting on a weekly basis in January, 2017, and continued meeting throughout the balance of the Spring 2017 semester. Regular meetings helped Impact Study researchers maintain a shared vision while working on individual reports. Regular meetings also enabled Impact Study researchers to share insights about common problems and helped researchers remain in step with the agreed-upon timetable.
After Impact Study researchers submitted final drafts of their individual reports the ICR Steering Committee appointed an Impact Study Finalization Committee. The Finalization Committee coordinated the process of transforming individual reports from investigators from more than a dozen disciplines into a unified final report.
Summaries of Individual Reports
1 - Demographics, Timothy McGettigan, PhD
In his research on demographics, Timothy McGettigan, PhD notes that cannabis has not been legal long enough to have a major impact on Pueblo County’s demography. Puebloans have demonstrated a clear pattern of voter support for legal cannabis, which is consistent with nationwide trends. So far, the demographic impacts of legal cannabis on Pueblo have been modest. Since the passage of Amendment 20, Pueblo’s population has increased at much the same rate as prior to legalization. There is no evidence that legal cannabis has reduced Pueblo’s population.
There is evidence of increased migration to Pueblo since the passage of Amendment 64. Opinion is divided about whether migrants have had a positive or negative impact on Pueblo. Educational achievement in Pueblo still lags behind the rest of Colorado. To combat that deficit, Pueblo County has instituted the world’s first cannabis tax funded college scholarships.
Household income in Pueblo falls well below incomes in Colorado’s more affluent counties. Jobs created by the legal cannabis industry should help Puebloans narrow stark income gaps.
The National Survey on Drug Use and Health recently revealed that cannabis use has declined steeply among 12- to 17-year-olds. While adolescent use has been declining, cannabis use among elderly Americans has increased dramatically.
2 - Poverty and Homelessness, Timothy McGettigan, PhD
In his investigation of poverty and homelessness, Timothy McGettigan discovered that since the passage of Amendment 64, poverty has neither increased nor decreased in Pueblo. Poverty rates are persistently higher in Pueblo than in the rest of Colorado. Thus far, legal cannabis has neither reduced, nor increased poverty disparities between Pueblo and more affluent Colorado counties.
There is evidence that homelessness has increased in Pueblo in recent years. The 2017 Point in Time Study indicates that Pueblo has much higher rates of homelessness than other Colorado counties. Some have argued that legal cannabis is the cause of exploding rates of homelessness in Pueblo, but there is no scientific evidence to support that argument.
Counterintuitively, Colorado’s economic boom may itself be the cause of increases in homelessness. Front Range wages have not kept pace with the cost of living and hourly wage earners are having a difficult time affording shelter. Also, while homelessness among military veterans has been decreasing all across the US, it has been increasing in Colorado. This might be due to veterans who are migrating to Colorado to obtain legal cannabis as a PTSD medication.
Cannabis refugees have a real but unknown impact on homeless statistics in Pueblo. Cannabis refugees are people who cross state lines to acquire cannabis to treat their own or loved ones’ illnesses. The enduring federal prohibition on cannabis is the root cause of homeless cannabis refugees.
The most significant cause of homelessness in Pueblo is Black Hills Energy. In 2016 alone, Black Hills Energy disconnected utilities to more than 7,000 Pueblo homes. "It's the number one reason families are becoming homeless in our community," explained Posada director Anne Stattelman.
3 - Education, Tim Peters and Colleagues
The K12 Cannabis Study was initiated to find answers to questions related to K-12 education raised by the legalization of recreational cannabis in Colorado and in particular, Pueblo County and southern Colorado. Four areas of inquiry were studied. The first was a secondary data analysis of high school student use of, and perceptions towards, cannabis that compared changes in use and perceptions from 2013 to 2015 between communities in south central Colorado that permitted recreational cannabis sales and those communities that did not permit these sales. The second area is a descriptive study of regional administrators regarding marijuana prevention education efforts and policies within the school districts. The third is a pilot study to test a marijuana education curriculum, and the fourth, is planning and preparation activities to support restorative justice practices around marijuana offenses in Pueblo County Schools. The following report is organized into the four areas of inquiry and each will describe more fully the background, methods, results and conclusions of the individual efforts.
4 - Jobs, Brad Gilbreath, PhD and Patrick Radigan, PhD
This study focuses on the quality of jobs in Pueblo County’s hemp- and marijuana-related businesses. The study draws upon the work of job-quality researcher Arne Kalleberg to construct a thorough assessment of whether the legal cannabis industry is creating good jobs. Job quality will be assessed both objectively and from the perspective of those working in the industry. Our study is one of the first to explore the concept of job quality in the cannabis industry.
Other factors influencing job quality include hours of work, future prospects (promotion and job security), how hard or difficult the job is, job content (interest, prestige, independence), interpersonal relationships (Clark, 1998), and supervisor behavior and management practices (Seltzer & Numerof, 1988; Gilbreath & Benson, 2004). We plan to assess all of those factors in our study of job quality in the cannabis industry.
5 - Crime and Prison Populations, Jennifer Schlosser, PhD
Controversy continues to surround legalized cannabis in Colorado, and Pueblo County. The data presented here were gathered through a working relationship with the Pueblo County Sheriff’s Department and the City of Pueblo Police Department. The data include statistical information on various crimes conducted from 2010-2017 as well as the results of 20 individual interviews with city police officers.
In 2013, the Cole Memo stated that the Federal Government would not challenge Colorado’s ability to regulate the retail sale of marijuana under the condition that “state and local governments would implement strong, effective regulatory and enforcement systems to address public safety, public health, and other public interests” (Blake & Finlaw, 2014). In response, David Blake the Deputy Attorney General for Legal Policy and Government Affairs in Colorado and Jack Finlaw, the Chief Legal Counsel for Colorado Governor John Hickenlooper outlined in a report for the Harvard Law and Policy Review (2014) the issues that Colorado continues to face after legalization. Their report lists many questions, potential problems, and issues that states considering decriminalizing marijuana will face. As will be shown in this report, these agencies are expected to uphold both state and federal law in the maintenance of public safety, but are provided with little financial support and even less regulatory clarity.
6 - Public Health & Health Care System, Joe Franta, PhD, and Colleagues
(No report yet)
7 - Community Attitudes, Carol L. Langer, PhD, Fawn-Amber Montoya, PhD, and Maria A. Trujillo
Religion and Marijuana
Over the last few years, many states have changed their laws regarding the use of medicinal and recreational marijuana. These changes in legislation have increased the legal availability of marijuana. The purpose of this study is to examine whether or not a person’s religious beliefs and background have any correlation with their views on the use of medicinal and/or recreational marijuana.
Multiple studies have secured findings that support the notion that regular church attendance and a sense of security in religious beliefs were factors that contributed to whether or not an individual was likely to participate in the consumption of marijuana and other substances. The data in this study showed that 38% of church members reported trying marijuana, and 18% of church members reported using the substance more than six times in a month. In comparison, 47% of nonmembers reported trying marijuana at least once, while 25% reported using the substance more than six times in a month. This same study found that members of the Church of the Latter Day Saints had the lowest percentage of young members trying or being heavy users of all substances. Participants who were from the Episcopal and Presbyterian churches had the next lowest percentage of using marijuana heavily. The study showed that the fundamentalist religions and the most proscriptive of religions proved to be most effective in preventing the use of alcohol and substances, such as marijuana. The more liberal and prescriptive religions proved to be next most effective in preventing the use of marijuana.
8 - Community Attitudes, Colleen Hackett, PhD
Parenting Practices, Attitudes, and Marijuana Education
Abstinence-based approaches are the prevailing ideology behind many drug education programs and mainstream messaging about illicit substances. Given that more than half of high school students are likely to experiment with drugs of any type, abstinence-based educational approaches are clearly not working (MTF 2014). Though this report is not an endorsement of teenage cannabis use, it does borrow from the latest drug education literature that attempts to stray from scare tactics and zero-tolerance approaches and to adopt a “smart” framework instead.
The following study starts with the research question: How are parents in Pueblo County talking to their teenage children about marijuana in a state that has legalized marijuana? This research intends to explore what parents’ general views on marijuana and cannabis products are, while additionally documenting what – if anything – parents teach their teenage child or children about marijuana. The study explores whether parents are adhering to an abstinence-only model, or if they are choosing to stray from traditional educational tactics.
9 - Impacts on Social Services, Arlene Reilly-Sandoval, PhD
In the past five years, laws centered around the possession, sale, and transfer of medicinal and recreational cannabis have changed drastically. This social impact study looked at the effect of cannabis legalization within the CPS system in Pueblo County, Colorado. The subject of cannabis legalization and child welfare is multi-faceted, and further complicated by issues such as poverty, unemployment, homelessness, availability of safety net benefits, and mental health challenges that are experienced by families referred to Pueblo County DSS for services.
In November of 2012, Colorado voters passed Amendment 64, allowing the recreational use of cannabis, and the sale of recreational cannabis in Colorado began in January 2014. The impact of cannabis on children has been a matter of major concern in the discussion of legalization of medical and recreational cannabis. The Colorado Department of Public Safety (2016) found that the trend for students reporting first use of marijuana has gradually declined in the past two survey administrations by about 6 percentage points (CDPS, 2016). Pueblo County had the highest incident in Colorado of high school and middle school youth reporting using marijuana in the last 30 days, with 32.1% and 22.8% respectively (CDPS, 2016). While the Colorado Department of Human Services Trails data does not track specific drugs or alcohol issues experienced by families referred to the agency, the Child Health Survey found that “…of parents with children ages 1-14, 4% reported using marijuana in the past month, and 7% reported having marijuana in the household” (CDPS, 2016, p. 71).
Currently, there is a lack of research on the specific topic of the impact of legalizing cannabis has on children and families in the CW System, such as how referrals and investigations are affected, the availability of treatment options, the education and training of caseworkers handling cases involving legal cannabis, and how to manage CW cases when the primary caregiver is using legal cannabis. More research is needed on these important topics.
Additional Reports from Impact Study Principal Investigators
1 - Energy & Water, Jane Fraser, PhD, and Leonardo Bedoyavalencia, PhD
Practices and opinions vary about the growth of cannabis. The industry is far from having established best practices to minimize the use of inputs such as water and electricity. A preliminary finding, based on interviews with six people involved in cannabis production, is that cannabis can be grown indoors with ½ gallon per plant per day; outdoor grows use more water. Energy use varies widely and interviews are continuing to determine the range of practices and usage. A Systems Dynamics model with seven sectors (demographics, housing, attractiveness, land use, business attractiveness, energy, and water) has been developed to analyze the region's energy and water demand variation when a new supply chain system in introduced.
We report on preliminary findings of a study of the impact of the legalization of cannabis on water and energy use in Pueblo County. First, we studied how much energy and water are needed to grow cannabis. Second, we created a systems dynamics model to project the effects under different scenarios.
2 - Economic Impacts, Aun Hassan, PhD, and Mike Wakefield, PhD
No report yet.
3 - Hemp Buffer Zones, Brian Vandenheuvel, PhD
Hybridization of High THC Cannabis (Marijuana) with Low THC Cannabis (Hemp) can result in crop loss for both growing operations. If genes that promote high levels of tetrahydrocannabinol (THC) are transferred by pollen from High THC Cannabis to Low THC Cannabis, the resulting seed could result in subsequent generations of plants that test over the permitted THC limit, requiring the crop to be destroyed and result in large investment losses (Small and Antle 2003). This is probably a less frequent occurrence because High THC Cannabis growers and Low THC Cannabis growers who are producing crops for cannabidiol (CBD) production normally eliminate male plants, or grow female clones, and the extent to which pollen from High THC or High CBD Cannabis cultivation represents a large pollen source is unknown and probably minimal. On the other hand, pollen from Low THC Cannabis hybridizing with High THC or High CBD Cannabis cultivation who depend on unfertilized flowers for their product is a major concern, as fertilized flowers and seed production in the High THC or High CBD production fields will significantly reduce the value of the crop. Both Low THC Hemp growers (industrial hemp) and High THC or High CBD growers are faced with a perennial problem of ensuring that their plants are adequately protected from contaminating pollen.