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Contents
Acknowledgements ......................................................................................................................... 3
Key Terms and Abbreviations ......................................................................................................... 4
Introduction ...................................................................................................................................... 5
Marijuana Data Discovery and Gap Analysis Project .................................................................. 7
Our Approach ........................................................................................................................... 8
Stakeholder Interviews ............................................................................................................. 9
Structure of Our Findings ....................................................................................................... 10
Understanding the Legislative Requirements and Categories ...................................................... 11
Legislative Categories and Definitions ...................................................................................... 11
Understanding Scoring and Prioritization ...................................................................................... 12
Understanding the Capability and Valuation Scoring ................................................................ 12
Recommendation Prioritization .................................................................................................. 13
Collection Capability and Strategic Value ................................................................................. 14
Capability Assessment and Recommendation Summary ......................................................... 15
Marijuana-initiated Contacts by Law Enforcement ................................................................. 16
Marijuana Criminal Arrest Data .............................................................................................. 16
Comprehensive School Data.................................................................................................. 16
Drug Endangered Children - Specifically for Marijuana ......................................................... 17
Diversion to Minors ................................................................................................................. 17
Marijuana Related Traffic Accidents ...................................................................................... 18
Out-of-State Diversion ............................................................................................................ 18
Marijuana Site Operational Crime Statistics ........................................................................... 19
Marijuana Transfer Using Parcel Services ............................................................................. 19
Probation Infractions Related to Marijuana ............................................................................ 20
Data on Emergency Room Visits and Poison Control ........................................................... 20
Outdoor Marijuana Cultivation ................................................................................................ 20
Organized Crime / Money Laundering ................................................................................... 21
Marijuana Patterns of Use and Health Effects ....................................................................... 21
Enterprise Recommendations ....................................................................................................... 22
Streamline Data Collection ........................................................................................................ 22
Data Advisory Board .................................................................................................................. 23
Clarity of Statutory Definitions ................................................................................................... 24
Supplemental Recommendations.................................................................................................. 25
Priority Areas ............................................................................................................................. 25
Purpose | People | Potential | Transform
1
Acknowledgements
This report was produced by Rebound Solutions with support from The Keystone
Center and the Center for Research Strategies. Our team wants to thank both
state and local officials for their support in the production of this report.
Definition
CDE
CDHPE
CDHS
CCIS
DOJ
US Department of Justice
HCPF
NIBRS
OIT
ONDCP
Youth / Under-age
Amendment 64
Introduction
Colorado is one of the first states to legalize recreational marijuana through a
constitutional amendment (Amendment 64) in 2012 and has recently
implemented a regulatory and legal framework. Colorado has established clear
priorities since the passage of the constitutional amendment even though
recreational marijuana is still considered illegal by federal standards. These
priorities in Colorado are aligned to the U.S. Department of Justice and include:
1. Promote the health, safety, and well-being of Colorados youth. Specifically
build measures and systems to protect diversion of recreational marijuana
to under-age youth (defined as under the age of 21).
2. Prevent criminal diversion of marijuana from states where it is legal under
state law in some form to other states.
3. Prevent drugged driving and the exacerbation of other adverse public
health consequences associated with marijuana use.
4. Prevent revenue from the sale of marijuana from going to criminal
enterprises, gangs, and cartels or for being used as a cover for other
criminal activities.
5. Prevent violence and the use of firearms in the cultivation and distribution
of marijuana.
6. Prevent the growing of marijuana on public lands and the attendant public
safety and environmental dangers posed by marijuana production on public
lands.
7. Prevent marijuana possession or use on federal property.
In order to ensure these priorities are met, revenue from recreational marijuana
directly supports the necessary costs of a rigorous regulatory framework. Costs
include supports for law enforcement, educational outreach programming, public
health and awareness campaigns, and other programmatic investments to help
meet these priorities. As part of this framework, Colorado requires a highly robust
data management system that can both capture relevant information and provide
the necessary analytical capabilities to measure the effectiveness of these
investments. Colorados goal is to build a data management system which also
incorporates a performance management capability that allows for the specific
targeting of funding, supports and understanding of the systems effectiveness in
protecting youth, public health and public safety. This basic concept of
effectively leveraging data is illustrated in the Figure 1.0 below:
The ability to address the key questions above first depends on identification of
necessary data across the State. These data can be used to establish the
operational baselines that address the basic questions on the left side of the
illustration in Figure 1.0. With established baselines, the State can then analyze
the data to determine where there is need and evaluate if investments are
making an impact on the baselines. Figure 1.1 better illustrates this example
with protecting youth, Colorados top strategic priority.
Figure 1.1: Baseline, Prioritization and Selection
The Marijuana Data Discovery and Gap Analysis project was conducted over a
nine week period in June and July 2014 using the following approach to discover
data collection requirements and capabilities through interviews, research, and
Purpose | People | Potential | Transform
8
Stakeholder Interviews
In order to examine state agency readiness to collect data and report on trends in
response to the legalization of adult-use marijuana and conduct a comprehensive
data discovery and gap analysis, the project team met with a variety of
departmental and external subject matter experts in order to:
Elicit a better understanding of agency use of data in existing reporting.
Gather information on requirements for data collection within each agency
or external organization.
Initially identify and document as-is data collection and reporting
capabilities in agencies, and readiness for statutory reporting
requirements.
The project team met with representatives specifically identified in the following
agencies and reached out to a number of additional departmental and subject
matter experts recommended during the discovery, interview and evaluation
process. A list of stakeholders interviewed is included in Appendix A. A list of
interview questions is provided in Appendix B.
Colorado Department of Public Safety/CDPS, including the Division of
Criminal Justice/DCJ
Colorado Department of Public Health and Environment/CDPHE
Statutory Category
Statutory Definition
Marijuana-Initiated Contacts by
Law Enforcement
Diversion to Minors
Out-of-State Diversion
Probation Data
Probation data
11
Money Laundering
Organized Crime
Low
No consistent
capability to collect
and report the data
requested.
Collection
Capability
Medium
High
Limited and
inconsistent capability
to collect and report
the data requested.
Sufficient capability to
collect and report data
requested.
Instrumental in
establishing public
policy.
Collection of these
data can be used to
establish a baseline.
These data may be
able to be used for
longitudinal, analytical
and or predictive
modeling.
Recommendation Prioritization
For the specific legislatively required data elements and the specific primary
impact of the data on Colorados strategic protection areas, we have defined the
prioritization of recommendations based upon the following criteria:
Strategic value. The value of the data collection is scored as High. These data
are critical for setting a baseline, building evaluative, predictive, or longitudinal
analysis.
Cross spectrum strategic value. Data that can be used across the three
primary objectives to protect kids, health, and public safety.
Federal impact. The data are helpful in showing how Colorados efforts to
mitigate the impacts from Recreational Marijuana.
Specific impact. The data are potentially lifesaving in nature. This information
can be used to dramatically protect kids and the community.
Dependency. The data are a critical or fundamental requirement for performing
analysis.
Statutory
Category
Primary Strategic
Impact
Capability to
Collect Today
Strategic
Value
Marijuana-initiated
Contacts by Law
Enforcement
Public Safety
Low
Medium
Marijuana Criminal
Arrest Data
Public Safety
Medium
High
Comprehensive
School Data
Protecting Youth
Low
High
Drug Endangered
Children
Protecting Youth
Low
High
Diversion to Minors
Protecting Youth
Medium
High
Marijuana Related
Traffic Accidents
Public Safety
Medium
High
Out-of-State
Diversion
Public Safety
Medium
High
Marijuana Site
Operational Crime
Statistics
Public Safety
Medium
High
Marijuana Transfer
Using Parcel
Services
Public Safety
Medium
Medium
Probation
Infractions Related
to Marijuana
Public Safety
Medium
Low
Statutory
Category
Primary Strategic
Impact
Capability to
Collect Today
Strategic
Value
Data on Emergency
Room Visits and
Poison Control
Public Health
Medium
High
Outdoor Marijuana
Cultivation
Public Safety
Medium
Medium
Organized Crime /
Money Laundering
Public Safety
Medium
High
Marijuana Patterns
of Use and Health
Effects by County
Public Health
Low
High
Marijuana Patterns
of Use and Health
Effects by
Race / Ethnicity
Public Health
High
High
Medical Research
Public Health
High
High
Adverse Health
Impacts
Public Health
Medium
High
marijuana patterns of use and health effects as well as the current investment in
aggregating medical research findings.
Marijuana-initiated Contacts by Law Enforcement
There is not a current capability in Colorado to collect marijuana-initiated
contacts by law enforcement. The recommendation of the Amendment 64 Task
Force included use of the term marijuana related incidents but the legislative
language in SB 13-283 refers to marijuana initiated contacts which is not a term
or definition typically used in law enforcement. Since implementation of
Amendment 64, some local law enforcement agencies and the Colorado State
Patrol have created reports or modified records management systems to enable
a minimal capability to identify and track marijuana related incidents. This data
collection is limited by several factors including the lack of a clear definition of
marijuana-initiated contacts, a lack of local or statewide reporting systems to
capture an initiated incident, and a lack of uniform and consistent reporting that
would allow for comparison of information. The recommendation around this
specific provision would be to convene local law enforcement officials to better
determine tracking of a marijuana related incident including methods to uniformly
identify an incident and to specifically capture data. Alternatively, we recommend
striking it as a data collection point and using the predictive, longitudinal data
analysis recommended in the local level impacts section of this report to analyze
crime and disorder data. Either action will require modification to the existing
legislation.
Marijuana Criminal Arrest Data
The capability in the State to collect marijuana criminal arrest data is limited.
Currently, incident and arrest data from NIBRS are broken down by race into five
levels of marijuana drug offenses. NIBRS, though, is unable to report data by
ethnicity, amounts or arrests by judicial district. We recommend convening law
enforcement officials to determine the level of detail required and the most
efficient means of capturing data related to amounts and whether this is a
necessary data element for analysis. Relative to judicial district reporting, we
recommend changing this requirement. We suggest using the CCIS OIR data
field which provides municipal and county information. However, if the State
wishes to access judicial district information, this category would need to be
added into CCIS.
Comprehensive School Data
The capability in the State to collect comprehensive school data for marijuana
use is very limited. Currently drug-related suspensions, expulsions, and police
referrals can be collected, but data are reported for all drugs and not broken
down specifically for marijuana. In addition, law enforcement referrals and
standards for reporting at the local school level are inconsistent leading to a lack
of uniform reporting. Given the high priority of preventing youth from using
marijuana, the recommendations would be that the State changes the existing
school district reporting to require the collection of information specific to
Purpose | People | Potential | Transform
16
marijuana. This would require modification of the School Finance Act as well as a
requirement that all school districts capture the requisite information. HB12-1345,
the School Finance Act, also mandates that both local law enforcement and
district attorneys collect data on criminal justice contacts with students and to
report those data annually to the Colorado Department of Public Safety/Division
of Criminal Justice (DCJ). This legislation was originally passed to collect data on
student race and ethnicity for school referrals to law enforcement. Currently,
there is no required reporting by specific drug offense but these reports do
provide a means to include a marijuana data category. The legislation is
scheduled to sunset in 2016. A need was also identified for additional school staff
trainings and resources to properly identify marijuana use.
Drug Endangered Children - Specifically for Marijuana
The capability in the State to collect data on drug endangered children
associated with marijuana is very limited. The State currently collects arrest data
for reckless endangerment and data in TRAILS related to substance abuse/
neglect by parents and/or substance abuse by the youth and/ or drug exposed
infants. The challenge with the data is that this information is not specific to
marijuana and arrest data are not broken down by specific offense. Given the
high priority of protecting youth, the recommendation is to modify TRAILS to
capture marijuana information. More statewide communication efforts are also
needed to educate stakeholders about the definition of drug endangered
children, recently defined in SB-13-278. From this work, identification of key
questions could be determined which would identify useful data for future
collection. Finally, there is a need for additional training and resources for human
services staff to better identify and recognize caregivers who are under the
influence of marijuana.
Diversion to Minors
The capability in the State to collect data on diversion to minors is adequate,
however, there are challenges. While the Department of Revenue has the ability
to track diversion through the point of sale and within the seed to sale tracking
systems for marijuana that comes from the regulated retail market, there are no
specific data collection tools that currently allow the State to track the diversion of
non-recreational marijuana to youth outside the point of sale system. NIBRs is
used to collect juvenile drug offense data but this information is not broken down
by drug category nor specifically for marijuana and it does not capture how a
minor obtained access. It also does not capture ethnicity. For youth between the
ages of 18 and 25, the National Survey on Drug Use and Health (NSDUH)
provides national and state-level data on the use of illicit drugs (including nonmedical use of prescription drugs) and mental health in the United States.
NSDUH is sponsored by the Substance Abuse and Mental Health Services
Administration (SAMHSA), an agency of the U.S. Public Health Service in
the U.S. Department of Health and Human Services (DHHS). Through the
NSDUH, estimates are available regarding the proportion of young adults (18+,
18-25 and 26+ years of age) who are using marijuana. While this data source
Purpose | People | Potential | Transform
17
enforcement agencies that voluntary report this information within federal data
sets (EPIC) and other federal collection sources (DEA, U.S. Forest Service,
National Guard and Rocky Mountain HIDTA) but there is no statewide data
system to capture local law enforcement outdoor cultivation seizures. This
reporting provides information for outdoor cultivation that has been identified but
does not capture the unknown, unreported and unregulated cultivation. It is
important to distinguish that there is a difference between illegal, unregulated
outdoor cultivation and legal, regulated cultivation as there is some outdoor
growing that occurs in the regulated market. There is no recommendation here
as existing data sources are based on federal data sets.
Organized Crime / Money Laundering
The capability in the State to collect data on organized crime and money
laundering is challenging. These data are being collected through state and
federal sources including NIBRS through CBI, the FBI, and the DEA. The
challenge with the state NIBRS data is that money laundering is not broken down
by offense. This is a federal data source that comes from ongoing investigations
and intelligence gathering which would not be public data. The new regulations
Colorado passed in HB 14-1398; Marijuana Financial Services Cooperatives that
create a bank co-op are intended to discourage potential illegal activity in
Colorado related to the regulated market. There is no recommendation here as
this is a federal data set.
Marijuana Patterns of Use and Health Effects
The capability in the State to collect data on marijuana patterns of use and health
effects is mixed. This information is being collected through a variety of state and
federal data sets including the National Survey on Drug Use and Health
NSDUH (SAMSHA), the Youth Risk Behavior Survey (YRBS known in
Colorado as the Healthy Kids Colorado survey), and Behavioral Risk Factor
Surveillance System (BRFSS). Data collection capacity exists within CDPHE,
CDHS through the Office of Behavioral Health DACODs system, and the Rocky
Mountain Poison Control Center. Given the high value of these data, the
recommendation is to continue to support existing surveillance and treatment
management systems, encouraging current efforts already underway to expand
marijuana related tracking. Surveillance surveys are national data collection
systems but Colorado specific questions can continue to be added as long as
there is funding. The Behavioral Risk Factor Surveillance System (BRFSS) can
serve as a way to capture use patterns for adults with treatment patterns being
derived from DACODs. Access and use of marijuana by youth can be monitored
through the Healthy Kids Colorado survey, with information reported by health
district rather than by county. One legislative change can be to adjust the
required reporting such that it reflects current data collection protocols.
Enterprise Recommendations
In addition to the legislatively required data collection capabilities and
recommendations described above, we identified specific enterprise-wide
recommendations that should be considered by the State that support improved
data collection at the State and local levels.
Figure 1.5 above illustrates the high level concept that shifts from a single
responsible agency to a distributed / longitudinal structure. While we are not
Purpose | People | Potential | Transform
22
Data Reference in
Legislation
Why an Issue?
Potential Recommendations
Marijuana Initiated
Contacts by law
enforcement by race
and ethnicity, and by
judicial district
Non-uniform interpretations of
drug endangered children among
human services and law
enforcement. TRAILS
captures/reports by drug category,
not by marijuana specifically.
Reckless endangerment charge in
NIBRS not defined by offense so
marijuana-specific data are not
available.
Probation Data
Non-uniform interpretation of
probation in this context (Marijuana offenders on
probation? Marijuana vis--vis
Supplemental Recommendations
Priority Areas
Youth Use and Prevalence
Preventing youth use and access to marijuana was consistently shared by law
enforcement and public health stakeholders as a top priority. Data collection and
reporting on youth use and access, exposure to advertising and understanding
youths perception of risk are extremely important in developing education,
awareness and prevention campaigns. In addition to the recommendations
outlined in the legislative requirements for youth regarding expansion of
surveillance and survey data, we recommend continued support of research and
evaluation that can measure the impact and effectiveness of prevention,
education and awareness investments.
Behavioral Health Treatment Needs
There are not specific legislative requirements in SB13-283 that require reporting
of substance abuse data for marijuana use and treatment in the required 20062008 and 2014-2016 report timeframes. However, through national and state
data available through the Colorado Department of Human Services (CDHS) in
the Office of Behavioral Health, reports from treatment providers offer high
strategic value data to assess needs and support investments in substance
abuse treatment decision making. Data analysis of existing data sources could
be used to determine high risk populations to help cater educational and
outreach programs. In addition, more research is needed on the relationship for
adults and youth between alcohol and marijuana; or other drug use and
marijuana. This will give the State a better picture of substance abuse, treatment
and prevention needs in Colorado.
Multi-state comparison
As one of only two states in the U.S. that have legalized retail marijuana,
Colorado has become a laboratory for identifying, monitoring and regulating the
sale of marijuana. While Colorado had two years of experience with the
legalization of licensed medical marijuana businesses, cultivation facilities and
edible marijuana products under HB 10-1284, Colorado is faced with new
challenges associated with certifying retail marijuana stores, regulating grow
operations and enforcing laws surrounding the use and distribution of marijuana
in multiple forms. Even though Colorado is leading the way among states, there
are significant baselines for Colorado to compare marijuana statistics using
Federal data sources outlined in this report including criminal activity, usage
among adults and youth, and treatment statistics. National surveys such as the
YRBS/Healthy Kids Colorado survey can be used for comparison on usage
among youth across states. Since Colorado has legalized the sale of recreational
marijuana, comparisons on criminal statistics will have to be adjusted.
Recommendations include using the Data Advisory Board (recommended earlier)
to define research questions that will help Colorado understand its comparative
position to other states. These questions should be targeted for relevant and
consistent reporting. After these questions are defined, resources can be
identified to collect federal, other state, and independent data that are relevant
for comparison. This may require building additional reports or it may be simply
entail pulling data from existing sources.
Cross
Spectrum
Federal
Priority
Dependency
High
Yes
Yes
Yes
High
Yes
No
Yes
High
Yes
Yes
No
High
Yes
Yes
No
High
Yes
Yes
No
High
Yes
Yes
No
High
Yes
Yes
No
High
Yes
Yes
No
High
No
Yes
No
Name
High
Yes
Yes
No
High
No
Yes
No
High
Yes
Yes
No
R13: DUID
High
Yes
Yes
No
High
Yes
No
No
High
Yes
Yes
No
Enterprise Recommendations.
Primary Strategic
Impact
Capability to
Collect Today
Strategic Value
Data Governance
All
N/A
High
Legislative Definition
Clarification
All
N/A
High
Recommendation
Enterprise Recommendations
R1: Data Governance Model. Convene a governance authority to implement the
recommendations in this report. The formulation of this authority (board or
commission) should be endorsed by the Governor and have multi-jurisdictional
and cross competency representation. A project manager should be contracted
or hired to facilitate the administration of this group for the first year. This
resource can be housed in the Governors Office of Marijuana Coordination.
Formation of a data governance model will address the:
Significant effort required to prioritize, collect, and manage the data
collection efforts
Strong need for continued and formalized cross departmental
cooperation
Coordinated data collection and sharing efforts outlined in this report.
Level of
Effort
Risk
Cost
Agency
Medium
High
High
High
CDPS
Medium
Low
Low
Low
CDPS
Medium
Moderate
Moderate
Moderate
Multiple
Medium
Moderate
Moderate
Moderate
Policy
Medium
Moderate
Low
Moderate
CDPS
Low
High
High
High
CDPS / DOC
R22: Hemp
Low
Low
Low
Low
DOA
Name
Implementation Planning
This section provides a summary of the costs, timelines, resources, and other
requirements for implementation of the recommendations.
Moderate
High
No major effort.
Can be assumed by
existing resources.
Risks
No financial, political,
or operational risks.
Cost
Level of
Effort
Level of
Effort
Risk
Cost
Agency
High
Moderate
Low
Moderate
Marijuana
Coordination
Office
High
Low
Low
Low
Policy
High
High
Moderate
High
CDPS
High
High
High
High
CDE
High
Moderate
Low
Moderate
Multiple
High
High
Moderate
High
Multiple
High
High
Moderate
Moderate
Multiple
High
High
High
Moderate
CDPS
High
Moderate
Moderate
Moderate
CDPS
High
High
High
High
CDPHE/
HCPF (APCD)
High
Low
Low
Low
CDPS
High
High
Moderate
High
Multiple
R13: DUID
High
High
Moderate
High
Multiple
High
Moderate
Low
Low
CDHS
High
Moderate
Low
Moderate
CDPHE
Name
Level of Effort
Risk
R1: Data
Governance
Model
R2: Legislative
Requirements
R3: Criminal
Arrest
R4:
Comprehensive
School Data
R5: Drug
Endangered
Children
R6: Diversion to
Minors
R7: Marijuana
Related Traffic
Accidents
R8: Out-of-State
Diversion
R9: Marijuana
Site Operational
Crime Statistics
Name
Level of Effort
Risk
R10: Emergency
Room Visits /
Poison Control
R11: Organized
Crime / Money
Laundering
R13: DUID
R14: Treatment
Access
R15: Marijuana
Patterns of Use /
Health Effects
Implementation Considerations
We have summarized the following near-term activities for the state to consider in terms
of implementing the recommendations.
Cost Summary
R2: Legislative
Requirements
High. System costs for law enforcement system changes are the primary
costs. From 2009 CCIS integration requirements, we would estimate this
to be approximately $500,000. We assume training costs are minor since
it doesnt include Drug Recognition Training.
R4: Comprehensive
School Data
High. Assumption of system costs would be well over $1M for both
modifications within CDE as well as local school district systems. In
addition, project management and communication costs would be
required. Training for school districts to identify marijuana-related
incidents could be estimated at a training cost / district but we assume it
would be well over $250,000 year.
Moderate. System costs are the primary costs and we estimate this to be
around $25 to $50k.
R6: Diversion to
Minors
High. Primary costs are around system costs to change NIBRS this
would be a minor cost but integration with other local law enforcement
systems would likely be around $250k. Costs to develop and issue youth
surveys require systems development and communication. There are
also costs associated with data aggregation.
R8: Out-of-State
Diversion
R10: Emergency
Room Visits / Poison
Control
R13: DUID
High. Costs are associated with modification of CCIS and local law
enforcement systems (Recommendation 1). The major cost is
development of the training for Drug Recognition Experts in capturing the
data.
R14: Treatment
Access
R15: Marijuana
Patterns of Use /
Health Effects
Email/Phone
adrienne.russman@state.co.us
dianna.anderson@state.co.us
karin.mcgowan@state.co.us
kim.english@state.co.us
lewis.koski@state.co.us
melissa.wavelet@state.co.us
jjackson@greenwoodvillage.com
Stakeholders Interviewed
Name/ Title
Alice Wheet
Budget Analyst
Ann Renaud
Budget Analyst
Henry Sobanet
Director
Jack Finlaw
Chief Legal Counsel
Mattie Albert
Budget Analyst
Andrew Freedman
Director of Marijuana Coordination
Zachary Pierce
Policy Advisor
Barbara Brohl
Executive Director
Lewis Koski
Director
Department/Division
Email/Phone Number
alice.wheet@state.co.us
Governors Office
Governor Office/Policy
DOR
DOR/Marijuana
Enforcement Division
ann.renaud@state.co.us
henry.sobanet@state.co.us
jack.finlaw@state.co.us
mattie.albert@state.co.us
andrew.freedman@state.co.us
zachary.pierce@state.co.us
barbara.brohl@state.co.us
lewis.koski@state.co.us
Heather Copp
Deputy Director
Daria Serna
Director of Communications
Mia Tsuchimoto
DOR
DOR
DOR/Marijuana
Enforcement Division
Ron Kammerzell
Deputy Senior Director
Barbara Kelley
Executive Director
Reggie Bicha
Executive Director
Melissa Wavelet
Director
Office of Performance and Strategic
Outcomes
Patrick K. Fox, M.D.,
Acting Director/Deputy Director of
Clinical Services
Stan Paprocki
Director, Prevention and Early
Intervention
DOR/Enforcement
DORA
CDHS
CDHS/Office of
Performance and
Strategic Outcomes
CDHS/Office of
Behavioral Health
CDHS/Office of
Behavioral Health
daria.serna@state.co.us
mia.tsuchimoto@state.co.us
ron.kammerzell@state.co.us
barbara.kelley@state.co.us
reggie.bicha@state.co.us
melissa.wavelet@state.co.us
patrick.fox@state.co.us
stan.paprocki@state.co.us
chris.habgood@state.co.us
Chris Habgood
Director of Policy & Planning
CDHS/Office of
Behavioral Health
CDHS/Office of
Behavioral Health
marc.condojani@state.co.us
CDHS/Office of
Behavioral Health
Rebecca.helfand@state.co.us
OIT
dianna.anderson@state.co.us
Darrell Lingk
Director
CDOT/Transportation
Safety
darrell.lingk@state.co.us
Glenn Davis
Highway Safety Manager
CDOT/Highway Safety
glenn.davis@state.co.us
CDPHE
larry.wolk@state.co.us
Larry Wolk
Executive Director
Karin McGowan
Project Governance Team
Deputy Executive Director
Stan Hilkey
Executive Director
Kim English
Project Governance Team
Director
Peg Flick
Mitch Yergert
Director
CDPHE
CDPS
CDPS/Office of Research
and Statistics
CPDS/Division of
Criminal Justice
CDA/Division of Plant
Industry
karin.mcgowan@state.co.us
stan.hilkey@state.co.us
kim.english@state.co.us
Peg.flick@state.co.us
Mitchell.yergert@state.co.us
CDA/Division of Plant
Industry
Duane Sinning
Assistant Director
CDPHE/Medical
Marijuana Research
Grant Program
CDPHE/Public Education
Campaign
Ken Gershman
Manager
Ali Maffey
duane.sinning@state.co.us
Ken.Gershman@state.co.us
ali.maffey@state.co.us
Allison.hastey@state.co.us
Allison Hastey
Amy Dillon
Laura Gillim Ross
Laboratory Director
Ron Hyman
State Registrar and Director
Mike VanDyke
Chief
Ricky Tolliver
Manager
Tista Ghosh
Director
Disease Control and Environmental
Epidemiology Division
Leanne Emm
Associate Commissioner
Janelle Krueger
Manager
Dropout Prevention and Engagement
Jan Petro
Data Services Director
Sarah Mathew
Director of Health and Wellness
Matthew Durkin
Tom Raynes
Executive Director
Chris Halsor
Traffic Safety Resource Prosecutor
Christian Thurstone
Public Awareness/
Communication Campaign
contacts:
Allison Hastey
CDPHE
CDPHE/Healthy Kids
Colorado
amy.dillon@state.co.us
CDPHE/Laboratory
Services
laura.gillim-ross@state.co.us
CDPHE/Office of Vital
Statistics and Medical
Marijuana Registry
CDPHE/Environmental
Epidemiology,
Occupational Health, and
Toxicology Section
CDPHE/Health Surveys
and Analysis Unit
CDPHE/ Disease Control
and Environmental
Epidemiology
CDE
ronald.hyman@state.co.us
mike.vandyke@state.co.us
rickey.tolliver@state.co.us
Tista.ghosh@state.co.us
emm_l@cde.state.co.us
CDE/Choice and
Engagement Division
Krueger_j@cde.state.co.us
CDE/Information
Management Services
CDE/Innovation, Choice,
and Engagement Division
Attorney Generals Office
Petro_j@cde.state.co.us
matthew.durkin@state.co.us
CDAC
tom@cdac.state.co.us
CDAC
Denver Health and
Hospital Authority
Communications/Public
Information Group by
Agency
Mathew_s@cde.state.co.us
chris@cdac.state.co.us
Christian.thurstone@dhha.org
ali.maffey@state.co.us
Allison.hastey@state.co.us
Ali Maffey
CDPHE
Darla Hackworth
Colorado Bureau of
Investigations (CBI)
darla.hackworth@state.co.us
JP Burt
Kevin Wong
Katie Greene
Office of National Drug Control
Policy (ONDCP)
Colorado Association of
Chiefs of Police (CACP)
Marijuana Working Group
CIAC
RM-HIDTA
See Department of
Justice Priority Metrics
Data Document
mvasquez@erieco.gov
Jp.burt@state.co.us
kwong@rmhidta.org
kathryn_a._greene@ondcp.eop.gov
What Do We Have?
Marijuana-Initiated
Contacts by Law
Enforcement
Diversion to Minors
Out-of-State Diversion
Federal Data
EPIC (Seizure Reports)
RM HIDTA Reports
Comprehensive School
Data
ICON
Outdoor Marijuana
Cultivation
EPIC
DEA
U.S. Forest Service
Bureau of Land Management
National Guard
Department of Natural Resources
Local Law Enforcement Data
NIBRS / CBI
FBI
DEA
Probation Infractions
Related to Marijuana
Marijuana
Patterns of
Use and
Health
Effects
Subcategory
What Do We Have?
By County
Adults - County-specific
data; only state-wide
data available
Race / Ethnicity
Adults - County-specific
data; only state-wide
data available
Medical
Research
Implementation August
2014
Adverse Health
Impacts
CDPHE
All Payer Claims Database
Hospital Discharge and E.R. Data
DACODs data substance abuse
Behavioral Risk Factors
Rocky Mountain Poison Control
Center
Implementation FY
2014/2015
MarijuanaInitiated
Contacts by
Law
Enforcement
Marijuana
Criminal
Arrest Data
Comprehensi
ve School
Data
Drug
Endangered
Children Specifically
Data
Priority
Gaps Today
Recommendations
Clear definition of
marijuanainitiated contacts
State-Wide
Reporting System
Uniform and
Consistent
Reporting
High
Ability to report
amounts of
marijuana.
Incidents and
arrests by judicial
district.
High
High
Medium
new definition of
drug endangered
children
for Marijuana
Diversion to
Minors
Marijuana
Related
Traffic
Accidents
High
High
Out-of-State
Diversion
High
Marijuana Site
Operational
High
NIBRS juvenile
offenses are not
broken down by
specific drug
category.
Ability to
understand
patterns of
diversion to
minors from
regulated and
unregulated
market.
Comprehensive
system to report
data broken by
down by
marijuana
EPIC is a
voluntary
reporting system
Underreporting of
data
Federal Data
Sources (DEA,
U.S. Postal
Service, RMHIDTA)
State-Wide
Reporting System
Inconsistent or no
uniform reporting
by victim and by
law enforcement
Crime
Statistics
Marijuana
Transfer
Using Parcel
Services
Probation
Infractions
Related to
Marijuana
Data on
Emergency
Room Visits
and Poison
Control
Outdoor
Marijuana
Cultivation
Organized
Crime / Money
Laundering
Low
This is a federal
responsibility for
data collection
EPIC is a
voluntary reporting
system
No data on private
parcel carriers
(UPS, FedEx, etc)
Low
Clear definition of
probation data for
marijuana
reporting. Specific
marijuana-related
data.
Query capable
data system.
High
DAWN no longer
funded and is
voluntary.
Hospital reporting
is voluntary.
Medium
State-Wide
Reporting System
Federal Data
Source
High
Federal Data
Source
NIBRS data not
broken down by
offense.
Marijuana
Patterns of
Use and
Health
Effects
Subcategory
Recommendation
By County
Race / Ethnicity
Medical
Research
Adverse Health
Impacts
Statutory Category
Marijuana-Initiated Contacts
by Law Enforcement
No - N/A
Yes*
FBI / CBI
Crime in the United States Number and Rates of Arrests, Drug
Abuse Violations, and Driving Under the Influence
Marijuana or Amount Specific
Not by Race / Ethnicity
Not by Judicial District
http://www2.fbi.gov/ucr/cius2006/arrests/index.html
o From the FBI Crime in the United States 2006, Drug
Abuse Violates in Detail (Sale/Manufacturing and
Possession)
o DOES distinguish marijuana-related arrests
o NOT broken down by state, only by region
o NOT broken down by ethnicity/race
http://www2.fbi.gov/ucr/cius2006/data/table_69.html
o From the FBI Crime in the United States, includes Drug
Abuse Violations and Driving Under the Influence Arrests
by State for 2006
o Not broken down by marijuana
http://www2.fbi.gov/ucr/cius2006/data/table_30.html
o From the FBI Crime in the United States 2006, Includes
Number and Rates of Arrests, includes Drug Abuse
Violations and Driving Under the Influence
o Broken down by region, NOT by state
o Not broken down by marijuana
Yes*
CDE
Annual Data on Suspensions, Expulsions, Referrals to Law
Enforcement, and Other Action Taken
Not Marijuana Specific
Not School Specific
http://www.cde.state.co.us/cdereval/2012-2013sditrenddata
o
o
o
Yes*
SAMSHA
Not Marijuana Specific
Yes
SAMSHA
Marijuana Specific, By Age Group and State
Diversion Minors
http://samhsa.gov/data/NSDUH/2k06State/NSDUHsae2006/Exc
elTabs/NSDUHsaeTabs2006.pdf
o From SAMSHA, Marijuana Use in the Past Year,
Marijuana Use in the Past Month, Perceptions of Great
Risk of Smoking Marijuana Once a Month, First Use of
Marijuana
o By Age Group and State, Annual Averages Based on 2005
and 2006 NSDUHs
Yes
CDOT
Drugged Driving - Marijuana Specific
Number of DREs trained
FARS
Multiple code categories for marijuana
http://www.coloradodot.info/programs/alcohol-and-impaireddriving/druggeddriving/assets/DruggedDrivingFactSheet082011
.pdf
o Drugged Driving in Colorado Facts for 2007
o Number of DREs in Colorado 2005 2010
o http://www.colorado.gov/cs/Satellite/StatePatrolMain/CBON/1251593175672
o DUI/D Stats from Colorado State Patrol, 2004-2008, not
broken down by marijuana
Yes
El Paso Intelligence Center
National Seizure System
US Postal Service
RM HIDTA
Out-of-State Diversion
N/A No
Yes
El Paso Intelligence Center
National Seizure System
U.S. Postal Inspection Services
RMHIDTA
Yes*
ICON
Not Marijuana Specific
Yes*
OBH
Rocky Mountain Poison Control
Not Marijuana Specific
Hospital Admission and Discharge Data
Not Marijuana Specific
Outdoor Marijuana
Cultivation
Yes*
Bureau of Land Management
Department of Natural Resources
EPIC Seizure Database, voluntary reporting
Yes*
NIBRS
25-1.5-110
Monitor changes in drug use patterns, broken down by county and jurisdictional
district
25-1.5-110
Monitor emerging science and medical information relevant to the health
effects associated with marijuana use
SB 14-215
Report on the effectiveness of the eighteen-month public education and
awareness campaign
SB 14-215
For grantee programs, describe strategies, outcomes achieved/
proposed and information relating to program success in reducing or
preventing the use of marijuana and alcohol and the misuse of
prescription drugs by youth who are twelve to nineteen years of age.
SB 283
Retail Marijuana Public Health Advisory Committee: will be compiling
evidence on the health impacts of marijuana related to young
children and adolescents, pregnancy/breastfeeding, respiratory and
cardiovascular health, injuries and dosage.
Surveillance
25-1.5-110
May collect data that
reports adverse health
events involving marijuana
use from the all-payer
claims database, hospital
discharge data, and
behavioral risk factors
Requires interface with CO
Hospital Association and
CIVHC
24-33.5-516
Reporting by CO Dept of
Public Safety
Data on emergency room visits
related to the use of marijuana
and the outcomes of those
visits, including information
from Colorado poison control
center
Areas highlighted in yellow represent data sources where data are collected
and/or that data sharing agreements are underway, but information regarding
marijuana is currently limited (e.g., data may be collected for all drugs without a
specific breakdown available for marijuana)
Areas highlighted in red represent data sources where data related to marijuana
are not currently available or must be obtained through request from another
agency source.
DATA EXPANSION
The Colorado Department of Public Health and Environment has added marijuanarelated questions to several of its population-based surveillance systems including:
The Behavioral Risk Factor Surveillance System which monitors the selfreported health status, disease prevalence and risk behaviors of Colorados
adults
The Pregnancy Risk Assessment Monitoring System which monitors
behaviors before, after and during pregnancy
The Child Health Survey which monitors behaviors and experiences for young
Colorado children between the ages of 1 and 14 years
The Healthy Kids Colorado Survey which focuses on middle and high school
aged youth
The Attitudes and Behavior Survey on Tobacco and Health which monitors
self-reported health-related attitudes and behaviors
Mental
Health
Centers
Drug Abuse
Treatment
Programs
Current use of
marijuana is a
checkbox
(Yes/No)
Questions
related to
impairment do
not specify
connection to
specific drugs
Options are
included for
primary,
secondary and
tertiary drug type
and use in the
past 30 days
including
marijuana
County
Child
Welfare
Agencies
Risk
profiling
focuses on
substance
abuse
generically
Currently no
substance
abuse
assessments
in use
Legislative
Reporting
24-33.5516
Reporting
by CO
Dept of
Public
Safety
Data related
to drugendangered
children,
specifically
for marijuana
Requires
data sharing
with CO Dept
of Public
Safety
Areas highlighted in green represent data sources that are readily available,
relatively complete and specific in terms of indicating marijuana-related patterns
Areas highlighted in yellow represent data sources where data are collected
and/or that data sharing agreements are underway, but information regarding
marijuana is currently limited (e.g., data may be collected for all drugs without a
specific breakdown available for marijuana)
Areas highlighted in red represent data sources where data related to marijuana
are not currently available or must be obtained through request from another
agency source.
DATA CHALLENGES
Behavioral Health
Mental Health Centers collect information on whether or not clients are currently
using marijuana but this is just a checkbox option.
Purpose | People | Potential | Transform
61
Child Welfare
Child Welfare agencies collect information for child welfare cases that focuses
generically on: 1) substance abuse/ neglect by parent and/or 2) substance
abuse by the youth and/ or 3) drug exposed infant. Specific types of drugs
involved not always identified in TRAILS.
Able to identify the number of child abuse and referrals or child fatalities related
to substance abuse, but data system does not break it down by drug type.
Department of Youth Corrections
The State Youth Corrections Facilities use the CCAR (for behavioral health
assessments), the SUS1A (for substance abuse assessments), and the
Adolescent Self-Assessment Profile (ASAP) assessment tool.
While the three Prevention, Intervention, or Treatment (PIT) levels are recorded
in TRAILS, item-level results are not entered into TRAILS (hard copies kept in
youth files).
o Drug of Choice data is available in Trails for youth with T level
substance abuse treatment needs. This data dates back to August 31,
2005, and allows DYC to sort by substance.
o To truly measure the impact of marijuana legalization, DYC would
minimally need to monitor Drug of Choice data for several years (3-5).
DYC staff record Drug/Alcohol (DA) treatment plans and services youth receive
into TRAILS when youth are in state-operated facilities and on parole. DA
services and service detail are entered as sessions into TRAILS, and can be
counted/ measured. However, limitations include session-type variations. Other
limitations include measuring treatment service duration, frequency, and dosage.
DSM diagnoses are recorded in TRAILS, which contain cannabis disorders and
poly drug use disorders. The Division has attempted to analyze this data in the
past, and has faced data validity and reliability issues.
No substance abuse assessments are currently administered within the JDbased SB94 agencies.
DATA EXPANSION OPPORTUNITIES
Funding to implement a consistent and uniform substance abuse screening and
assessment process and instrument across the Colorado juvenile justice system.
This would include staff training and infrastructure building and would allow for
item-level data for both the Substance Use Survey (SUS-1a) and the Adolescent
Self-Assessment Profile (ASAP) assessments.
An opportunity for a more robust level-system to replace the 3 PIT levels, in
relation to substance abuse treatment. The adult system uses a 7-tier
categorization.
Important for Office of Behavioral Health to understand attitudes within
communities and perceived risks but the infrastructure currently doesn't exist.
Would want to focus on availability and access, how easy is it to get, and how
this relates to substance abuse treatment trends.
Discussions are underway to report on the manner in which local Youth Corrections
agencies (under the SB94 program) will report the expenditure of state dollars allocated
under the Marijuana Tax (SB 215) program for marijuana-related programming.
CO DEPARTMENT OF EDUCATION
Program Monitoring
SB 14-215
For each school year, local districts report to the Colorado Department of Education on the number of suspensions
and expulsion by type of Incident and by the race/ethnicity and gender of students involved. Drug offenses are not
broken down by drug category, or specifically for marijuana. Because a student could be suspended more than one
time in a school year or could be suspended and later expelled, data reporting reflect the number of students by
incident. Unduplicated counts of students are also tracked.
Areas highlighted in green represent data sources that are readily available,
relatively complete and specific in terms of indicating marijuana-related patterns
Areas highlighted in yellow represent data sources where data are collected
and/or that data sharing agreements are underway, but information regarding
marijuana is currently limited (e.g., data may be collected for all drugs without a
specific breakdown available for marijuana)
Areas highlighted in red represent data sources where data related to marijuana
are not currently available or must be obtained through request from another
agency source.
DATA EXPANSION OPPORTUNITIES (based on stakeholder interviews)
School districts currently report Information on student suspensions/expulsions
only generically for all drugs at the current time. Local districts have discretion in
determining the criteria for suspensions/expulsions.
The Colorado Department of Education believes that it will need to have
legislation to amend the statute to require that districts differentiate the type of
drug resulting in the suspension/expulsion as part of their mandated reporting.
The Colorado Department of Education is aware of challenges that unfunded
mandates create for school district reporting. If the reporting is voluntary, it tends
to be underreported and could potentially entail quality problems. Having a
statute mandating reporting would assure that the reporting is more complete.
One caution relates to the concern that school district personnel may not have
the knowledge to properly identify drug type in use.
Reporting under SB 12-046 is inconsistent and incomplete. No funding is
available to support this reporting system. School Resource Officers/local law
enforcement can submit raw data to the Colorado Department of Criminal
Justice, which may or may not include drug category, or can use the online DCJ
form which does request drug category, broken down by marijuana. This
information is submitted to the Colorado Department of Criminal Justice but has
not been analyzed. This legislation is set up for a review in 2016.
For the data reporting to be efficient and reliable, funding will be required for
training, professional development and infrastructure development costs.
Data Sharing
Program Reporting
CO DEPARTMENT OF TRANSPORTATION
Traffic accidents and serious injuries
related to being under the influence of
marijuana
Areas highlighted in green represent data sources that are readily available,
relatively complete and specific in terms of indicating marijuana-related patterns
Areas highlighted in yellow represent data sources where data are collected and/or
that data sharing agreements are underway, but information regarding marijuana is
currently limited (e.g., data may be collected for all drugs without a specific
breakdown available for marijuana)
Areas highlighted in red represent data sources where data related to marijuana are
not currently available or must be obtained through request from another agency
source.
Areas highlighted in green represent data sources that are readily available,
relatively complete and specific in terms of indicating marijuana-related patterns
Purpose | People | Potential | Transform
69
Areas highlighted in yellow represent data sources where data are collected
and/or that data sharing agreements are underway, but information regarding
marijuana is currently limited (e.g., data may be collected for all drugs without a
specific breakdown available for marijuana)
Areas highlighted in red represent data sources where data related to marijuana
are not currently available or must be obtained through request from another
agency source.
DATA EXPANSION OPPORTUNITIES (based on stakeholder interviews)
As drug use and its consequences vary considerably among localities, developing data
that are useful at the community level will be helpful in both understanding local
problems and identifying approaches to mitigate the harm to both public health and
public safety. SAMHSA is currently working to develop a community early warning and
monitoring system to track substance use and problem indicators at the local level. And
finally, expanding understanding of patterns and risks associated with drugged driving
will support better public safety efforts. ONDCP has partnered with National Highway
Traffic Safety Administration and the National Institute on Drug Abuse to support driver
simulator research to examine driving impairment as a result of marijuana and combined
marijuana and alcohol use and correlate it with the results of oral fluid testing to identify
behavioral indicators of impairment.