4. CASE STUDIES

Sioux City, Iowa

Two site visits have been made to Sioux City. The first baseline visit occurred during the week of December 15-19, 1997. The first followup visit took place during the week of March 23-27, 1998.

Duluth, Minnesota, was selected as a comparison site for Sioux City, Iowa, because both cities have similar demographic and community characteristics. The quantitative data collected from in-school surveys completed by students in both Sioux City and Duluth also showed similar patterns at baseline. These patterns, displayed in Exhibit 4-1 at the end of Section 4, further demonstrate that Duluth constitutes a reasonable comparison site for Sioux City. Exhibit 4-11 summarizes youth, parent, and community findings for both sites.

The remainder of this site visit report will describe data collected in Sioux City at baseline and 3 months later during followup, as well as some data collected in Duluth at followup.

Baseline Picture

Ongoing Anti-Drug Activities in the Community

The most well-known media prevention activity in place during baseline was the local television station's PSA campaign. This annual campaign, coined "Operation Kid-Vid," is a collaborative effort among local businesses, media, prevention programs and hospitals. It provides area youth the opportunity to speak out against the dangers of alcohol and other drugs and promote a drug-free lifestyle by developing ideas for a PSA. The youth who are selected are given the opportunity to help produce the PSA featuring their prevention concept in a storyboard format. This appeared to be a well-known and highly popular event in the Sioux City community.

In addition to the "Kid-Vid" campaign, the local media are regarded as active and involved members of the community who take their community service requirement quite seriously. The prevention community in Sioux City concurred that PSAs of various subjects are a constant in the area. Specifically, in terms of drug prevention, it appeared that the media ran local PSAs, such as those produced from Kid-Vid, or more generic national ads.

The Sioux City area offers a range of prevention programs. The most visible and prominent of these programs is Siouxland CARES, a community coalition that provides technical assistance and administrative support to smaller prevention programs in the area. The program also tracks the changing face of the drug problem in the community by compiling current data and reporting it back to the community. This program receives the support of community leaders and serves as a nexus for prevention assessment and programming.

There are numerous other prevention programs in the area. The school system (counselors, student/teacher assistance teams, mentoring programs, social health teams, action teams), and numerous neighborhood-based programs (Boys and Girls Club, Indian Youth of America, Siouxland Y, Boy/Girl Scouts, 4-H, Salvation Army) offer outreach to youth in the community. Also, civic organizations (Elks Club), community coalitions (Dakota County Interagency Team) and cultural centers (La Casa Latina) provide related services. St. Luke's Gordon Recovery Center provides numerous prevention programs, such as "Media and Advertising," "Tip Dart: Target Interactive Project-Drug/Alcohol Responsibility for Teens," and "Zero Tolerance/Driving Under the Influence." The center also distributes pamphlets and fact sheets, in addition to providing treatment services.

Trends in the Sioux City Community

A major employer in the area is the meat-packing industry. Due to the industry's reported recruitment near the Mexican border, the main employees in this industry are Hispanic. This changing demographic is reflected in the Sioux City public school system where minorities (mainly Hispanic) make up approximately 25percent of the students. This growing diversity is a common topic of conversation among informants, most of whom are proud of their city's increasing multiculturalism. However, when addressing the topic of increasing drug trafficking and gangs in the community, it is often the Hispanic community that is blamed.

Sioux City is located at the junction of the states of Iowa, Nebraska and South Dakota. This tri-state location provides the local law enforcement officials with the challenge of conflicting State legislation that is often easily manipulated by criminals who cross State lines. This, along with numerous waterways and interstate highways, places Sioux City in a precarious position with drug trafficking. Local officials are working to make tri-state policies that would facilitate cooperation across State lines.

One recent event mentioned by several informants that appeared to raise awareness in the community was a local arrest at a methamphetamine lab in the rural outskirts of Sioux City. Interestingly, a local law enforcement official involved with the arrest indicated that it did not involve a major confiscation of drugs, and that, in fact, the lab probably only produced enough to support one person's drug habit, without any profit. However, since the community reaction was so strong and widespread it appeared that the community saw it as a symbol of the gravity of the methamphetamine problem in the area.

Drug Awareness and Behavior Reported by Youth and Parents

Separate focus groups were held with youth and parents. Elementary school youth did not appear to have much exposure to illegal drugs. When probed, most children discussed tobacco use by peers or their parent's alcoholism. The majority of these children had recently completed the D.A.R.E. program, often indicating that school is their primary source of drug prevention information. Middle school youth appeared more knowledgeable, often mentioning that they had encountered alcohol, marijuana, and inhalants; some made isolated references to other illegal drugs. High school youth listed a plethora of drugs including alcohol, marijuana, heroin, and methamphetamine. These youth indicated that they encountered these drugs regularly and that tobacco and marijuana were commonly smoked in the schools. Many discussed close friends who were abusing "hard" drugs. Alcohol appeared to be more prevalent in the rural areas where they discussed parties in the cornfields (to avoid law enforcement).

Parents' role in discussing drugs with their children ranged in degree from limited to highly involved. One respondent seemed to summarize the perceptions of all respondents by placing parents into four categories: (1) parents who have substance abuse problems of their own and do not care about their children's use; (2) parents who do not want their children to use drugs, but have other priorities and are too busy to talk with their children; (3) parents who are concerned, but do not have the knowledge and skills to talk with their children; and (4) parents who are educated, have skills, and are somewhat successful with discussing drugs with their children.

Community Drug Problems as Perceived by Community Key Informants

The perception of key informants was that alcohol, tobacco, marijuana, and methamphetamine are the drugs most commonly used by youth, and that use follows a natural progression, beginning with tobacco and alcohol in middle school and the use of illegal drugs in the high school years. Informants frequently commented that alcohol use was seen as a rite of passage for youth. Also, many informants expressed concern about parents who provided alcohol or drugs for their children on the premise that they use these substances within the house.

Generally, respondents perceived differences in drug use to be associated with economic levels rather than race, ethnicity, or specific neighborhoods in the city. Drug use may be more visible among minority populations, but the feeling was that the visibility is not necessarily indicative of differences in drug use. A few respondents commented that the use of inhalants seems to be more prevalent among Native Americans, but this, too, may be due to economic factors and the relative affordability of inhalants. One respondent mentioned that the use of crank and marijuana seems more prevalent among the Hispanic population.

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

During the baseline site visit key informants and focus group participants were asked to describe any anti-drug ads they had seen recently. The majority of informants were able to recall either national or local PSAs on television, and there was some recollection of PSAs on radio. A couple of informants mentioned that the newspaper provides crime statistics, covers drug-related arrests and accidents, and writes about drug prevention efforts, such as Red Ribbon Week, but no one recalled any anti-drug ads in the paper. In addition, a couple of informants said that they had seen ads in magazines, but they did not recall their content.

Although informants recalled some drug-related media efforts, they were doubtful of their effectiveness. They offered some suggestions to make ads more effective. Suggestions for improving anti-drug messages on TV related to time aired, stations targeted, and content of messages. Several respondents noted that youth receive mixed messages about drugs during prime time and suggested that anti-drug messages are needed during this time, perhaps as part of popular sitcoms. Some of the informants felt that ads would reach youth more often if they are aired on cable channels such as MTV and Nickelodeon, rather than on major networks.

Informants also suggested alternative media sources that they perceive as having more potential than TV. These suggestions included video games, the Internet, and interactive CD-ROMs. One informant felt that interactive CD-ROMs were an effective medium for parents and youth, providing a one-on-one experience that combines entertainment and education. Web sites on the Internet are also seen as having potential, provided that youth are given the opportunity and encouragement to access them. Most informants did not think the newspapers or radio were effective media sources because youth generally do not read the newspaper or listen to the radio; they listen to compact discs instead. While some parents read the newspaper, the feeling was that newspaper ads may not reach the parents who need to be targeted with drug-prevention messages.

Intermediate Findings Reported After Initiation of the ONDCP Media Campaign

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

Recent Local Events Affecting Awareness/Attitudes Toward Drugs

A number of local events were recalled that might impact youth and parents' attitudes toward drugs as well as their awareness of the Media Campaign. First, a number of informants mentioned crime incidents that were well covered in the local news. These included more arrests at methamphetamine labs, as well as the recent kidnapping and murder of a local youth that was believed to be associated with a drug debt.

The Midwest HIDTA has implemented a local methamphetamine campaign that appears to consist mainly of posters for the schools. In addition, many of the local TV and radio stations have either matched the funds provided by ONDCP and aired more ads, or donated the money back to the community. The local radio station KGLI, following the format of the "Kid-Vid" program used in other cities, is allowing middle school students to produce radio PSAs. Most of the informants involved in prevention were aware of the generosity of the local stations in relation to the campaign, which also increased their awareness of the Media Campaign.

Many of the Sioux City schools had engaged an Iowan to speak to the students about drugs. Mentioned in particular was a speaker named Pop Right, an athlete who is a recovered drug abuser. His presentation appeared to be well-publicized in the community and was strongly supported by the school system.

Youths' and Parents' Reactions to the ONDCP Media Campaign

During the intermediate site visit, separate focus groups were held with youth and parents. The majority of youth were able to recall most, if not all, of the ads included in the Media Campaign and noted seeing them frequently (from once to several times daily). The youth often were able to repeat the dialogue, as well as explain the message. They summarized the messages of the ads as follows: parents should talk to their children more about drugs; drugs contain "nasty stuff" (i.e., the ad described as "the coffee and battery acid" ad); and don't use drugs because they can kill you (i.e., the Drowning and 911 ads).

While all age groups recalled the ads similarly, they had different impressions about the potential effectiveness of these ads for their age groups. The elementary school children believed they would have an impact on others their age and possibly make them think about what they would do if someone offered them drugs. The middle school students were more doubtful about the effectiveness of these ads, often relating that they do not watch advertisements or that they make fun of the ads when they see them.

The majority of high school students expressed that, at this point in their lives, they have already learned about the risks and dangers of illegal drugs and made decisions about whether to use or not; they doubted that an advertisement would have any influence on them. A number of high school students described the anti-drug messages as remote. An urban high school student in Sioux City stated "It's like a nickel a day to save the starving families in Rwanda. I have a nickel a day; I don't pay 'em because you're not connected with what's going on. It's no way involved in your life. You just let it go in one ear and out the other." Two other participants in the same group said, "It has to be more real than just on TV because everyone knows TV's not real," and "TV is not teaching them. If something happens to their friend or interview someone like it's personal, then [they] will listen."

Parents appeared to be highly aware of the commercials associated with the Media Campaign. They recalled that the ads that appeared to be directed at parents carried a message to remind them to talk to their children. They agreed that ads were probably more effective for younger children who were more impressionable. In terms of impact on parents, many commented that they could not speak for the entire parent community, but a few commented that they found the parent-focused ads to be a good initiator for a drug dialogue with their own children. They also thought future ads should be more graphic, use local youth, and focus on local programs and news events that are relevant to the Sioux City community.

Key Informants' Responses to the ONDCP Media Campaign

Many leaders of community organizations that were interviewed at baseline were re-interviewed during the followup site visit to learn about their awareness of the Media Campaign. Researchers also interviewed new informants that were not reached during baseline, but who play a role in local prevention efforts.

Those interviewed appeared to be highly aware of the Media Campaign. As one prevention leader stated, "you would have to be living under a rock in order to not have noticed the campaign." The ads generally mentioned included Frying Pan; Drowning; Noses; Long Way Home; Burbs; and ads described as "another missed opportunity" and "young girl/playing with matches."

Billboards were mentioned less frequently. A handful recalled one that asked "Have you talked to your kids about pot?" and the majority mentioned Cannabis Stupida. A number of informants were confused by this billboard and did not deem it clear or effective. For example, a local business leader remarked that his business' billboard was featured next to Cannabis Stupida and he has had community members make negative comments to him without realizing that it is an anti-drug message.

Most informants were aware of the ONDCP Media Campaign, yet frequently they perceived that local agencies were the sponsors. This is partly due to Gateway (Waitt Family Foundation) and UPS's highly visible and generous involvement with the campaign there.

Frequency and airtime did not seem to be an issue. Those who have seen the ads felt that they are run both frequently enough and at times where they are most likely to be seen. Several commented on seeing an ad during the Super Bowl.

Community response has been generally positive. Interviewees reported hearing their neighbors speak about the ads at church and at various social events. Impressions regarding the impact of the ads varied depending on the presumed target audience. When ads seemed to be speaking to the parents they were viewed as having the most impact. Several people referred to the "missed moment" ad and its impact on them personally.

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. Researchers met with staff at all of the local TV stations, the most prominent radio stations, and the local newspaper.

The Sioux City media community takes pride in its strong commitment to airing PSAs as frequently as possible, depending on fiscal pressures and perceived community need. These PSAs are both national and local, and cover a number of different subject areas, including drug abuse. Several local TV and radio stations are donating the fees paid by ONDCP for airtime to local community-based prevention programs, but they are not sure how much longer they can afford to run these ads in commercial spots and donate the money.

A prominent concern among the prevention community in Sioux City is that paying for airtime will limit the opportunities for PSAs of nonprofit agencies who cannot compete for time paid for by the Federal Government. In response, some media informants indicated that they were not comfortable with the ads being paid for, since they thought stations should comply with their community service requirements and air them free of charge. However, the Media Campaign ads did not decrease airtime for other PSAs because they were filling paid time slots, not PSA time slots. One station manager pointed out that no matter how seriously they take community service, "this is still a business, we could not run ads at this rate for very long and continue to make a profit." So it appeared that local PSAs were not being negatively impacted by ONDCP's payment policy, despite valid concerns from the local community.

Followup Findings in Comparison Site of Duluth, Minnesota

At baseline Sioux City, Iowa, and Duluth, Minnesota, reported similar drug problems and concerns involving youth use of alcohol, marijuana, methamphetamine, and inhalants. However, it is worth noting that at followup, key community respondents, youth, and parents reported different levels of awareness of drug prevention efforts and advertising campaign activities.

When asked about recent local events that might have changed community awareness about drugs, Duluth had very little to report. The main issue appeared to be the possible loss of 20 community police officers due to a change in funding. Apparently, this was resolved with the implementation of a local tax. The concern about losing law enforcement official is reflective of the fears of violence in Duluth, and the more serious spectrum of gang- and drug-related crime in larger neighboring cities such as Chicago and Minneapolis-St.Paul. Some informants also mentioned recent Alcohol Compliance checks conducted by police departments in both Duluth and Minneapolis-St.Paul. This check found that over half the stores sold alcohol and tobacco to underage youth. Informants suggested that local law enforcement is hesitant to crack down on the small businesses due to their reliance on local merchant support for the D.A.R.E. program. Duluth also held a town meeting with over 80 people in attendance, in support of the Bill Moyers TV special.

The majority of key informants had little information to offer about specific national advertisements they had seen recently. Few of those interviewed were aware that the national Media Campaign existed at all, though some key informants recalled older ads that no longer run locally, or the occasional national spot that airs (presumably as a PSA run by a local or network affiliate station).

In focus groups with youth, there was very limited awareness of the Media Campaign. Some youth remembered random ads, such as the old "fried egg" ad or the NBC-TV "More You Know" campaign. Specifically, youth were able to recall three of the Media Campaign ads: Burbs, Drowning and Alex/Straight A's.

Parents were also relatively unaware of the Media Campaign. Most of them admitted to consuming very little media. However, they did recall two anti-drug ads, one of which, Burbs, was a Media Campaign ad. This ad depicts a non-urban teenager and tells parents that only 40 percent of youth who smoke marijuana live in urban areas. The ad seemed to create confusion; the mother in the focus group who explained the ad misinterpreted it, seeing it as a pro-drug advertisement encouraging young people to smoke marijuana. Parents agreed that more anti-drug ads are needed to combat the successful advertising campaigns launched by alcohol and tobacco companies.

Summary of Intermediate Findings

It is evident that Duluth, which was not targeted by the Media Campaign, perceived very little or no change in anti-drug messages and little awareness of the Media Campaign in the period beginning at baseline and ending with the followup 3 months later.

In Sioux City, a selected target site for the Media Campaign, a different picture was presented. Key community informants were aware of the Media Campaign and were able to recall specific ads, explain their messages, and provide suggestions for improvements. Parents and youth also had a high level of awareness of the Media Campaign and were often able to describe a plethora of ads and their messages. These groups of community members provided numerous suggestions for improving the effectiveness of the Media Campaign from their perspective. The parallel data collection efforts in both Sioux City and Duluth illustrate the increased awareness of drug prevention in Sioux City as compared with Duluth.