4. CASE STUDIES

Portland, Oregon

Two site visits have been made to Portland. The first baseline visit occurred during the week of December 1-5, 1997. The first followup visit took place during the week of April 6-10, 1998.

Spokane, Washington, was selected as a comparison site for Portland, Oregon, because both cities have similar demographic and community characteristics. The quantitative data collected from in-school surveys completed by students in both Portland and Spokane also showed similar patterns at baseline. These patterns, displayed in Exhibit 4-1 at the end of Section 4, further demonstrate that Spokane constitutes a reasonable comparison site for Portland. Exhibit 4-9 summarizes youth, parent, and community findings for both sites.

The remainder of this site visit report will describe data collected in Portland at baseline and at followup, as well as certain key results collected in Spokane during the followup visit.

Baseline Picture

Ongoing Anti-Drug Activities in the Community

Several ongoing anti-drug media efforts were reported in the Portland area. In 1996, the Partnership for a Drug-Free America named Portland's Regional Drug Initiative (RDI) as the State affiliate for the Partnership for a Drug-Free Oregon. Through RDI, all ads are distributed around the state. RDI sponsors a community-wide media program, some of which includes print ads locally created and produced by Portland teenagers to encourage a drug-free workplace.

Also running in Portland is the statewide anti-tobacco campaign whose ads are displayed on billboards and buses. The billboards are the primary source for the campaign and mainly use humor to change norms about smoking.

In June 1997 in Forest Grove, Oregon, a suburb 40 miles outside of Portland, Milton Creagh's "Enough Is Enough" campaign (a 1-week series of lectures presented in the school gym) reached 5,000citizens, the Chamber of Commerce, and many churches. The catalyst for this event was the death of several teenagers in a drug- and alcohol-related auto accident.

A wide variety of prevention programs exist in the Portland area. These include interfaith programs (Temple Beth Israel), civic organizations (Elks Drug Awareness Program and the Lions-Quest Program); drug prevention collaboratives (Community Coalition to Prevent Drug Abuse, RDI & Gresham Area Prevention Partnership); law enforcement-sponsored programs (D.A.R.E. and Community Policing); school-based programs (Safe and Drug-Free Schools of Portland, school-based health education classes, and parent resources/pilot programs for Portland public schools); and nonprofit prevention programs (RDI Youth Coalition, Big Brothers/Big Sisters-Urban League of Portland, and Portland House of Umoja).

Trends in the Portland Community

Portland is on a major north-south route linking the borders of Canada and Mexico. It is rumored that there is heavy trafficking in marijuana between the two borders of Oregon, including significant foot trade along ancient mountain trails. It is also believed that large quantities of marijuana are grown by groups in remote areas outside Portland. The drug trade is largely conducted by whites; some trafficking allegedly comes from gang members from Californian cities.

There appears to be a high societal acceptance of marijuana use in Portland. This is reflected in key findings from the 1996 Portland Public School Survey, which shows that since 1990, recent (past month) use of marijuana has tripled among 8thgraders, and increased 68 percent among 11thgraders.

When asked about recent events that might have affected awareness or attitudes regarding drugs, several community respondents reported that four youth in the Forest Grove community died in a drug- and alcohol-related auto accident in the summer of 1997. That accident was the impetus for Milton Creagh's visit to the Portland metropolitan area.

Drug Awareness and Behavior Reported by Youth and Parents

Separate focus groups were held with youth and parents. Youth in grades 4-6 reported no real direct knowledge of drug use among youth their age, but they said they did hear a lot of drug-related rumors regarding cigarettes and sometimes marijuana among their peers. The urban group reported awareness of drug use and gang violence in their neighborhoods. Youth in this age group reported that parents, teachers, or other adults simply told them, "don't do drugs; drugs are bad for you!"

Youth in grades 7-9 report more direct exposure to family drug abuse, or to friends and peers using alcohol and drugs at parties. These youth said these substances were available from older siblings, friends, and sometimes parents of peers. These groups reported learning about drugs from school health classes or D.A.R.E. programs and from their parents warning them about the dangers of drugs. Some 7th-9th graders said their parents would not bring up the subject of drugs. Urban 7th-9th graders mentioned they were confused when they saw adults campaigning for drug (marijuana) legalization. The non-urban youth focus group reported seeing drugs used in their neighborhoods.

Youth in grades 10-12 reported that their peers attend parties with no parents present mainly to drink alcohol. The urban high school students know youth who use marijuana, methamphetamine, mushrooms, LSD, cocaine, and crack-cocaine, while the non-urban group mentioned only methamphetamine, inhalants, and steroids among athletes. The urban group implied that drug use is common among all 10th-12th graders and that drugs are readily available anywhere. The non-urban high school students implied that it is the youth who are not involved with other activities that use drugs. The urban group reported that they learned about drugs primarily from school, and only the boys reported learning about the dangers of drugs from parents; the group perceived that half of parents use marijuana or have family members who are drug-addicted. The non-urban youth reported that most of their peers' parents are not strict enough and do not teach them about the dangers of drugs. They reported that drug education in health classes is minimal and that most of their peers learn about drugs from other youth in school who use drugs.

Urban parents report that youth learn about drugs from their parents because the drug culture is so pervasive in their community. They also believe that parents have no choice but to use the opportunity to talk to their children about drugs when local drug violence incidents are mentioned by their children. They reported that the presence of drug violence is so strong, that most youth do not expect to live long, and that youth are stressed out or fearful about drug violence and death. Non-urban parents report that most parents do not talk to their children about drugs because they are nervous, they do not know what to say, and they are unaware of the pervasiveness of adult use. They reported that youth usually obtain their information about the dangers of drugs from their peers at school, and that their children are also constantly stressed about the drug violence and gang violence in schools.

Community Drug Problems as Perceived by Community Key Informants

Key informants reported that drug use is widespread and a serious problem for the Portland metropolitan area. The informants unanimously agreed that alcohol is the most serious problem among youth, with marijuana being a close second. They also believed that alcohol has been related to many youths' deaths.

Informants reported that while the community perceives that drugs are more prevalent in the African American communities, a recent survey of schools in the MSA shows that the drug problem does not differ by race, ethnicity, socioeconomic status, or urban/rural residence. The State population-based surveys also support these findings.

Community informants perceive that drugs are available to all age groups and neighborhoods. They believe that younger youth obtain drugs from older siblings rather than from their peers. They reported that drug activity is a problem among all youth today because of a lack of supervision in households where both parents work. They also perceive that gang activity is on the increase in some Portland neighborhoods.

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

The perception among all respondents is that there have been some excellent anti-drug ads, but they are not shown often enough or at the right times. Community informants believe the ads are not effective in the face of the overwhelming and constant pro-drug messages promoted by mainstream media programming. The consensus was that Budweiser ads, sports events, and action movies all promote and glamorize substance use. Many youth listen to alternative radio and read the alternative press. Current drug-related efforts do not reach youth through these media.

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 Portland 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

Four local events increased awareness of the local drug problem in Portland since the baseline site visit. First, there was a large-scale marijuana arrest in Forest Grove, a rural-suburb of Portland. Second, a well-known anti-drug speaker, Tom Johnson, addressed the community. Third, the five measures of legalization that were part of a pending ballot to legalize marijuana were in the forefront of the media. Finally, a number of drug-related crime stories have recently dominated the press. Although informants could not recall specific stories, their impression was that the news was constantly covering drug-related crimes.

In direct response to the Media Campaign, a press conference was planned for the week following the intermediate site visit. The speakers included a representative from the local sheriff's department and a U.S. Senator. The conference was coordinated by the Regional Drug Initiative and focused on the forthcoming five measures of legalization that are sending youth the wrong message. Program participants, with help from RDI, emphasized that the Media Campaign presents an important and exemplary message to the community. Local youth participated in the program and discussed media messages that they believe are effective with their peers.

Youths' and Parents' Reactions to the ONDCP Media Campaign

Separate focus groups were held with youth and parents. The urban elementary school group had limited recall of anti-drug ads and identified the message of such ads by the old adage, "Just Say No." The non-urban elementary school group often confused pro-drug ads with anti-drug messages. Although they viewed drug messages as telling them that drugs were bad, they often had incorrect interpretation of specific ads. These groups said that they received a lot of their anti-drug information from D.A.R.E. rather than anti-drug commercials.

The urban middle school group (all boys) identified four different types of anti-drug ads they had seen on TV and billboards. They were able to identify the intended meaning of the ads, but described the ads as "stupid" or "unrealistic." The non-urban middle school group reported that anti-drug ads "are never on." The urban 7th-9th graders reported that anti-drug ads cannot change youths' opinions. However, they did emphasize that they would like to see ads of this nature present more facts about consequences of drug use. The non-urban 7th-9th graders reported that some of their peers might listen to these ads, but others will choose to ignore them.

High school youth reported a high level of exposure to anti-drug messages in the media. Some of them had screened Media Campaign ads through their affiliation with RDI. They reported seeing ads mostly on TV and billboards but had limited exposure to radio ads. They were able to clearly interpret the intended anti-drug messages in the ads they saw. Moreover, they reported that the ads could provide a "mental image about drugs that can stay with you." They also reported that the recent ads educate through humor, and that some youth their age seek out the ads, hear the slogans repeated by peers, or hear talk about the ads from fellow students.

The urban parents reported minimal exposure to anti-drug messages in general, explaining that the television ads are shown infrequently or too late at night. The non-urban parents were able to recall several ads from a variety of advertising mediums and readily identified their intended meanings. Both groups felt the ads were important in spreading the message about the dangers of drugs, and that they constitute an important tool in "breaking the ice" with their children. They reported, however, that the ads did not change their ideas about drugs in any appreciable way. Parents in Portland recommended that future ads feature community youth, be appropriate for their regional area, include representation of minority groups, and address the serious issues of heavy marijuana use and parental use of drugs in the presence of their children.

Key Informants' Responses to the ONDCP Media Campaign

The Regional Drug Initiative, the organization whose phone number was posted on the ONDCP Media Campaign ads, reported a significant response from the community to the recent ads. They reported an influx of calls, especially in response to the "Grandparent" print ads. The response was larger than they anticipated, and they reported sending out information to parents, grandparents and youth in Portland and the surrounding areas. As a result, RDI has begun keeping record of all the calls they receive.

Community informants from Portland were more aware of the general existence of the ONDCP Media Campaign than they were of specific television and radio ads. Many of the respondents reported that they did not watch television with any regularity, and they did not recall many specific television ads. However, the ad most frequently mentioned by all respondents was the "fried egg" ad. Even those who watch very little television had consistent recall of this ad. Some informants also reported seeing "an ad about small children and peer influences [where] there is a message to parents to raise awareness about this topic," and "an ad about the toxic ingredients in methamphetamines." Respondents did not recall any specific radio ads.

Informants recalled seeing billboards with regularity, especially Cannabis Stupida and a "billboard asking parents if they had taken the time to talk with their kids about drugs." They believed that the use of billboards was quite effective in spreading the anti-drug message. Moreover, the print ads were also noted with frequency, with some citing the ad contrasting the protective care gorillas bestow upon their young vs. humans, and one referred to as the "grandparent" ad. Print ads also prompted the majority of call-in responses to RDI, especially from parents and grandparents who were responding to the "grandparent" ad. One respondent reported specifically that the print ads were well done, large, readily detectable and run with frequency.

Sponsorship was more clearly recognized by those interviewed who had a direct relationship with RDI. Most of the other interviewees had little, if any, awareness of the sponsor; some mentioned D.A.R.E., or Partnership for a Drug-Free America.

Community respondents recommended that the billboard and print ads continue to be used and that ads be used to promote communication between parents and youth, as well as to provide referral numbers. Several of those interviewed reported that some teenagers may respond only to seeing their peers hurt. One respondent commented that the Asian audience may respond to ads if the language is very direct and overt with no hidden message. Informants also suggested airing ads that show that there are many teenagers who are doing well and not using drugs. They also noted the need to air commercials frequently and to continue posting phone numbers so further information can be obtained.

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. On the whole, media representatives reported that children's issues are an important topic and that their stations always air anti-drug PSAs targeting youth. All media representatives reported that their station or newspaper ran prevention ads on a regular basis. One TV station manager did mention that his station avoids airing anti-drug ads with celebrities, noting that "research has shown this to be ineffective with youth." That station's preference is to use peer group members to reach teenagers.

One TV station and a local newspaper received the Media Campaign contracts. Both continue to broadcast and run the ads and related PSAs. Other media representatives were not affiliated directly with the Media Campaign. No specific PSAs that are aired were mentioned by either the TV station or newspaper manager. All of the media representatives interviewed who had seen the ads reported that the ads were professionally done and offer a variety of anti-drug messages. Those affiliated with the Media Campaign reported no changes in their pro bono policies for advertising.

Followup Findings in Comparison Site of Spokane, Washington

While Spokane and Portland reported similar drug problems and concerns during baseline visits, at the followup site visit, key community respondents, youth, and parents reported very different levels of awareness of drug prevention activities and advertising campaign efforts in their community at the followup visit.

A few events that may have increased awareness of drugs in Spokane include a continuation of serial murders, which involve women in high-risk (drug using) lifestyles. Also, respondents mentioned Red Ribbon Week, a districtwide event where youth learn about drugs, and Self-Esteem Month when the motto is that "drugs take a back seat." More generally, informants mentioned news stories or fatalities that were related to drugs, alcohol, or gang crimes.

The majority of ads and media efforts remembered by key informants were either from national media youth-related campaigns, local youth-related campaigns, or old PDFA or Ad Council ads such as the "fried egg" ad. A number of informants also mentioned ads from a local anti-drinking and driving campaign sponsored by the Greater Spokane Substance Abuse Council (GSSAC).

In separate focus groups with youth and parents there was limited awareness of any anti-drug media campaigns except for the GSSAC anti-drinking and driving ads and old national ads such as the "fried egg" ad. The GSSAC ads were reported as powerful and "hitting home." Youth also reported that anti-drug commercials are only effective for younger "kids," and "don't show what happens from using drugs." Parents reported seeing the GSSAC ads and old national ads like "the girl diving into the swimming pool." They noted that anti-drug commercials do allow parents to broach the subject of drugs with their children, and sometimes make them think about the topic more seriously.

Summary of Intermediate Findings

It is clear that in Spokane, which was not targeted by the Media Campaign, there was very little 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.

In Portland, one of the 12 target sites for the ONDCP Media Campaign, very different levels of awareness occurred. Not only did youth and parents mention specific ads more readily, but community support activities, such as a press conference held by a local sheriff's department representative and U.S. Senator, were launched. Overall, there was a significant increase in individual and community awareness in Portland about the issue of drugs and the Media Campaign.