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This probably has more to do with the risk that underage cashiers (or servers in restaurants) will sell alcohol to their fellow underage customers, whereas 18-year-olds are (theoretically) more mature and also probably easier to prosecute.
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In Ohio there is almost no penalty for someone under 18 selling to a minor(at least for the employee). When I was a cashier and under 18(8 or so years ago), I knew the details, but that is the gist of it.