4. CASE STUDIES

Hartford, Connecticut

Two site visits have been made to Hartford. The first baseline visit occurred during December 1-5, 1997. The first followup visit took place during the week of March 30, 1998.

Harrisburg, Pennsylvania, was selected as a comparison site for Hartford, Connecticut, because both sites have similar demographic and community characteristics. The quantitative data collected from in-school surveys completed by students in both Hartford and Harrisburg also showed similar patterns at baseline. These patterns, displayed in Exhibit 4-1 at the end of Section 4, further demonstrate that Harrisburg constitutes a reasonable comparison site for Hartford. Exhibit 4-6 summarizes youth, parent, and community findings for both sites.

The remainder of this site profile will describe key baseline data collected in Hartford at baseline, followup data collected there 3 months later, and some key results collected in Harrisburg during the followup visit.

Baseline Picture

Ongoing Anti-Drug Activities in the Community

Two anti-drug media efforts were reported in the Hartford area: South Windsor youth have produced PSAs on drug and alcohol abuse for MTV and Nickelodeon with scripts written by middle and high school students, and Connecticut's Governor John Rowland and his wife have produced a TV PSA on drugs that runs statewide. Drugs Don't Work! also runs PDFA ads as a local partner.

The Connecticut Department of Mental Health and Addiction Services (DMHAS) is the single State agency devoted to addictions. DMHAS developed and funds five prevention resource links; these links collaborate among themselves and with DMHAS. The five are: Regional Action Councils (RAC), public-private partnerships to provide a continuum of care; the Connecticut Association of RAC Executives, the statewide collaborative; "The Center," a training institute on addictions located in East Hartford; Drugs Don't Work, which addresses substance abuse in the workplace, institutions of higher learning, and schools; and the Center for Cultural Literacy and Wellness, which strives to make prevention and treatment culturally appropriate. DMHAS also funds and supports Local Prevention Councils. Additionally, the D.A.R.E. and Safe Schools Programs are active in the Hartford area. The area also benefits from initiatives at the regional, country, town, and city levels.

Trends in the Hartford Community

Key trends that have had an impact on the Hartford area include: a 51 percent dropout rate between grades 9-12; increasing migration of professionals out of the city to the suburbs; the difficult assimilation of newly non-urban, ex-Hartford residents; a severe impact on the area's insurance business and its light industry as a result of the early 1990s recession; and the virtual disappearance of retail business in Hartford.

No salient recent events that might have affected awareness or attitudes regarding drugs were recorded at baseline.

Drug Awareness and Behavior Reported by Youth and Parents

Separate focus groups were held with youth and parents. Urban 4th-6th-graders and 7th-9th-graders were predominantly Hispanic; 10th-12th-graders were African American and Hispanic; and parent groups were African American, Hispanic, and white. Non-urban groups were all white. Urban youth in grades 4-6 were aware of illegal drugs prevalent in the city, but it was unclear whether they saw them or were told about them in school. Non-urban focus group youth spoke of seeing middle and high school students smoking and using drugs. Neither the urban nor the non-urban youth mentioned talking to peers or teachers about drugs, but both said their parents told them of the dangers of drugs. They also learned about drugs from television.

Urban youth in 7th-9th grades reported hearing about the risks and dangers of drug use from health class, school activities, and Mi Casa, an after-school program for youth; they all agreed that drugs were readily available at school. Non-urban youth in 7th-9th grades heard about the risks of drug use from friends, siblings, cousins, and D.A.R.E.; they felt their parents did not make an effort to explain the consequences of drug use to them. They agreed that it is easy to obtain drugs in middle and high school, and that younger children easily get drugs from family members. They reported that in high school, pot, Ecstasy, mushrooms, and acid are used. They also said they feel pressured to be drunk at school dances.

Urban 10th-12th graders said they have a hard time finding somewhere to go without alcohol present. They felt that the best way to get information on the risks of drugs would be a friend or a nonprofit program; some were frustrated or disappointed by drug education programs in school. Their chief source of information was firsthand observation of the effects of drug and alcohol abuse by their families and friends. They emphasized the importance of parental support to keep young people off drugs. Non-urban 10th-12th graders reported learning about drugs from TV, radio, magazines, and media ads. They also get information on the dangers of drugs from D.A.R.E., SADD, teen magazines, the Internet, and their parents. They had mixed opinions of parents' effectiveness in addressing drugs. They were aware of where to get drugs, saying that it is easy for high school youth to obtain drugs but hard for middle school youth to obtain alcohol. Marijuana is their drug of choice because it is easy to transport and it is easy to cover up its use.

Both urban and non-urban parents agreed with their children's assessment of how they learn about drugs; both stressed parental accountability; and both made many constructive suggestions about programs to help youth resist drugs. Parents also agreed that they need information on how to talk with their children about drugs.

Community Drug Problems as Perceived by Community Key Informants

Key informants interviewed perceived drug use and abuse as a significant problem in the greater Hartford area; one service provider called the problem "epidemic." Most informants said it is very easy for youth in all grades to obtain drugs. They named marijuana, alcohol, and tobacco as the most common drugs, and agreed that, in their opinion, while there is little difference in drug use among racial or ethnic groups, usage patterns differ among socioeconomic groups. Wealthier youth from the suburbs have the money and transportation to obtain harder, more sophisticated drugs, they said, while urban communities have more drug selling. They saw younger youth using marijuana, and older ones using crack-cocaine because it is cheaper. There was agreement that youth are experimenting with alcohol, inhalants, and marijuana at an earlier age. There was also broad consensus that youth use drugs due to loneliness and feelings of neglect, that they have a "hole in the soul" that needs attention. Most felt that parents were aware of the community's drug problem but were in denial about their own children's use. Informants generally expressed difficulty in involving parents in drug prevention efforts.

Awareness of Anti-Drug Advertising Prior to the ONDCP Media Campaign

During the baseline site visit, key informants were asked to describe any anti-drug ads they had seen on TV, radio, or in local newspapers and magazines. Most key informants were able to recall seeing PSAs, including those from the Salvation Army, The More You Know campaign, and the Church of Latter-Day Saints. Two non-urban service providers recalled PDFA's fried egg ad. One youth worker had heard about Red Ribbon Week on TV and radio. None recalled any print PSAs. Only one informant said that the PSAs were shown often enough to catch the attention of their intended audience; most felt that pro-drug ads were more frequent.

Most believed that PSAs have the potential to be effective in changing attitudes, but under certain conditions. They suggested ads of increased variety; a "social marketing approach;" ads in after-school time slots and set to music that young people of varying ages like; ads containing more information and more realistic pictures; and airing ads on cable network channels.

Intermediate Findings Reported After Initiation of the ONDCP Media Campaign

The purpose of this section is to present information on respondents' views of changes related to drug awareness/attitudes in Hartford since baseline and their awareness and views regarding the Media Campaign shortly after it had been implemented in their community.

Recent Local Events Affecting Awareness/Attitudes Toward Drugs

Key informants reported several recent events that might influence youth's and parents' attitudes toward drug use and awareness of the Media Campaign: in a non-urban town, a teenager's party caused more than $10,000 worth of damage while his parents were away; a student athlete was involved in a drug-related crash; a large group of people in their twenties were arrested on drug-related charges in the city; and there were a number of alcohol-related overdoses at area universities.

Youths' and Parents' Reactions to the ONDCP Media Campaign

Focus groups were held with 7th-9th and 10th-12th graders during the following visit in Hartford. Urban and non-urban youth recalled the following TV ads: Frying Pan; Drowning; one showing a little brother and his role model (Spanish); others described as brother died/why I don't want to do it (Spanish), father and son, the fried egg ad, party girl, and a mother denying her daughter's marijuana use (Spanish). Non-urban 7th-9th graders reported hearing "just say naah" on the radio; both they and their urban counterparts reported seeing Cannabis Stupida billboard ads. None recalled any newspaper ads. The non-urban middle school students admitted that they frequently laugh at the ads, and their urban counterparts said that they change the channel when the ads come on. In general, students in this age group did not think the ads would affect the thinking of those already using drugs or encourage them to change their behavior. As one student said, "people don't want to stop if they have already started."

With the exception of some non-urban 10th-12th graders who did not understanding the Drowning ad, all correctly understood the ad messages. Most of the youth said the ads would not affect thinking or intent to act. High school students reported that what matters the most for them is "what their friends say, not what they see on a commercial." Youth offered several recommendations on how to improve the ads: "show that drugs are deadly," "use local kids in the ads," "air more Spanish ads," "place the ads during the soap operas on the Spanish TV stations," "show the physical effects of drug use," "use teens to speak to teens," "show the ads more frequently," and "target younger kids in the ads."

Urban parents recalled many ads on Spanish TV; they clearly understood the ads as showing that strong family bonds are important and that parents need to talk to their children before someone else does. They recalled seeing Drowning; Frying Pan; and others described as the "fried egg ad" and "teacher"; none had seen billboard or newspaper ads or heard radio ads. Non-urban parents had seen the following: Drowning; Frying Pan; Burbs; and ads described as "party girl," "birthday/inhalants," and "teacher"; they correctly understood the ads' messages. One non-urban parent also commented that the Burbs ad had "enlightened" her because the youth in the ad was the same age as her own son.

No parents recalled billboard, newspaper, or radio ads. Most urban parents agreed that the ads served as an opportunity to talk with their children, but a few noted that in some cultures parents are not supposed to talk about drugs until a child is 21 "because those subjects are taboo." A few non-urban parents used the ads as an opportunity to talk about drugs with their children.

While parents were more aware of anti-drug ads than they had been during the baseline visit, they were not aware of their origin or the sponsorship of these ads. Many of the urban parents, who were Hispanic, said that having commercials in both Spanish and English raises the awareness of parents who speak only one of the two languages. The non-urban parents focused on holding parents more accountable for their children, rather than relying on ads to change behavior. Parents, in general, agreed that if anti-drug ads were going to be effective, they had to be shown frequently, show real-life consequences of using drugs, and provide a greater focus on parenting skills and better communication between parents and children.

Key Informants' Responses to the ONDCP Media Campaign

Representatives of community organizations interviewed during the baseline visit were re-interviewed in the followup site visit to learn about their awareness and views regarding the Media Campaign. Not quite half of the informants were aware of the Media Campaign, though most remembered seeing the ONDCP paid ads. TV was the most frequently mentioned of the media, followed by radio. Only two key informants recalled a newspaper ad. Recall of the following TV ads was reported: Drowning; Frying Pan; O'Connor; Burbs; and ads described as "teacher," "let's meet at four," "peer pressure," and "average kid." Radio ads mentioned were described as "birthday/inhalants," "gameshow," "teacher," and "just say naah." Six informants recalled seeing billboards in the area: Cannabis Stupida, and one described as "are you waiting for your kids to talk to you about marijuana?"

Most community respondents thought that the sponsors of the ads were one of the following: PDFA; ONDCP; Drugs Don't Work!; ONDCP/PDFA; or PDFA/Drugs Don't Work!

Most informants saw the ads as "part of package" to keep young people off drugs, and felt the ads would be more effective if they told parents how to talk to their children and served as an avenue for more information. Other respondents urged that the ads would be more effective with more strategic collaboration and the development of comprehensive programming. They also recommended that the ads be more on youths' levels and come out of their own experiences-"true, credible, reality-based messages."

Only one informant said that minority ownership would make the ads more credible; most felt ownership was less important than the effectiveness, demographic appropriateness, and credibility of the message used.

Media Representatives' Reactions to the ONDCP Media Campaign

Representatives of the media were interviewed to obtain their assessment of the community's response to the Media Campaign. The radio station's representative reported using one-for-one advertising for the Media Campaign, and using the same ads in the match as with the paid campaign. The TV stations reported not providing a one-for-one match or being confused about the match. The media representatives said that the paid ads did not displace any other anti-drug ads; one TV station representative reported the paid ads had displaced PSAs for other causes. Only one TV executive said that they moved other ads out of their rotation to make room for the ONDCP ads; no other changes were reported.

None of the media representatives reported any public response to the ads. Their own responses were generally positive but they were unsure whether the Media Campaign would change things. Two informants singled out Frying Pan; one said the Media Campaign "did a great job" and that the ads are "hitting the mark."

Media trafficking decisions varied slightly: the radio station reported no set philosophy on PSAs; the two TV stations said PSAs run in their unsold inventory by rotation. One station said it gave priority to youth- and education-related ads. Neither TV station had an anti-drug ad strategy.

Followup Findings in Comparison Site of Harrisburg, PA

While Hartford and Harrisburg reported roughly comparable drug problems and concerns during the baseline visits, it is worth noting that at followup, key community respondents, youth, and parents reported substantially different levels of awareness of drug prevention activities and the Media Campaign in their communities at the followup visits 3 months later.

Only one event had occurred in Harrisburg since the baseline visit that might have increased awareness of the drug problem: the local newspaper published an article discussing the results of a national drug use survey that found parents unaware of the extent of their children's drug use. The article was repeatedly mentioned by key informants.

Among community representatives interviewed, there was no awareness of any media campaign focusing on drug problems. There was recall of several anti-drug TV ads, with 11 different messages; sponsors were rarely remembered. No radio ads and only one billboard ad were recalled; the local newspaper does not run PSAs. No key informant was involved in supportive activities.

Focus group characteristics duplicated those of Hartford, except that urban 4th-6th and 7th-9th grade groups had some African American participants. None of the youth in the focus groups were aware of any media campaign about drugs. Urban students in general and non-urban 10th-12th grade students were most aware of anti-drug ads on TV; no other media were mentioned by youth. Likewise, parents' responses reflected no awareness of any anti-drug media campaign. Parents were able to describe fewer ads than youth, but they comprehended the messages of those they saw. Parents felt the ads were too general to be effective.

Summary of Intermediate Findings

It is clear that in Harrisburg, Pennsylvania, which was not targeted by the Media Campaign, there was no awareness of any change in anti-drug messages or a media campaign from the time of baseline data collection to the time of the followup 3 months later. In Hartford, one of the 12 target markets for the ONDCP Media Campaign, a very different picture is presented. Key community influencers were aware of the Media Campaign, recalled specific ads and messages, and made recommendations on how to improve it. Media representatives were also aware of the Media Campaign and provided useful suggestions on how to work better with the broadcast industry in their community as new ads are planned and launched. Youth of all ages and parents reported a high level of awareness of the Media Campaign ads, particularly those on TV and radio and, to a lesser extent, those displayed on billboards. They, too, provided substantial recall of specific messages, and offered concrete recommendations on how to improve the Media Campaign in the future.