Surgeon General C. Everett Koop says that despite the wishes of almost the entire Senate, state and local governments are in a better position than the federal government to handle the nation's drunken drivers. Koop attended a news conference Monday at which several lawmakers handed the surgeon general a letter signed by 99 senators asking that he declare drunken driving a "national crisis." Koop acknowledged that intoxicated drivers are "the direct cause of far too many tragedies in our homes and neighborhoods." But he said he believed there was little the federal government can do.