Final answer:
Sam may not report underage smoking and drinking due to fear of retribution, doubt about the effectiveness of intervention, the perception of community acceptance, and empathy with the youths' limited recreational options.
Step-by-step explanation:
Sam may not report the underage smoking and drinking he observes in the park for several reasons. Firstly, there may be fear of retribution or negative consequences from the youths or others in the community if he is seen as an informant. Additionally, Sam might believe that reporting the issue will not lead to a constructive solution, especially because the closure of the community centre and youth club means there are fewer alternatives for the young people. The phenomenon known as the Broken Window Theory suggests that visible signs of disorder and misconduct, such as those Sam witnesses, can lead to an increase in crime. This theory may make Sam feel that intervention might not be effective in improving the situation. Moreover, there could be a sense of community acceptance of this behavior, diminishing the urgency to report it. Lastly, Sam may feel empathetic towards the youths, understanding they have limited recreational options and may not see the activity as seriously problematic.