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National Youth Anti-Drug Media Campaign
Phase 1 (Report No. 1)
4. CASE STUDIES
Tucson, Arizona
Two site visits have been made to Tucson. The first baseline visit occurred during the week of December 15-18, 1997. The first followup visit took place during the week of April 13-17, 1998.
Austin, Texas, was selected as a comparison site for Tucson, Arizona, because both cities have similar demographic and community characteristics. The quantitative data collected from in-school surveys completed by students in both Tucson and Austin also showed similar patterns at baseline. These patterns, displayed in Exhibit 4-1 at the end of Section 4, further demonstrate that Austin constitutes a reasonable comparison site for Tucson. Exhibit 4-12 summarizes youth, parent, and community findings for both sites.
The remainder of this site-visit report describes data collected in Tucson at baseline and at followup 4 months later, as well as key results collected in Austin during the followup visit.
Baseline Picture
Ongoing Anti-Drug Activities in the Community
Arizona TV and radio stations have shown support for drug prevention efforts by airing PSAs. Recently, the Arizona Broadcasters Association reported that TV stations in the State ran a median of 126 PSAs per week and radio stations ran a median of 82 per week. Of these PSAs, which varied in length and could have been part of a newscast, 100 percent of the television spots and 87 percent of radio spots addressed the topic of drug use/abuse.
A wide variety of prevention programs exist in the Tucson area. These include programs sponsored by health and human service agencies, a statewide initiative called CHAMPS (Champs Have a Model Positive Peer Skills); Community Partnership of Southern Arizona-funded projects (CODAC Behavioral Health Services, Information and Referral, La Frontera Center, Luz Social Services, Inc., Parents Anonymous, Pima Youth Partnership, Providence Services Corporation, Tucson AIDS Project, Tucson Association for Child Care, Tucson Council on Alcoholism and Drug Dependence); a nonprofit prevention agency (Project YES), the Federal Office of Juvenile Justice and Delinquency Prevention program focused in gang prevention (Our Town); law enforcement-sponsored programs (D.A.R.E., Pima County Juvenile Court); school-based programs (Project TARGET, the Family and Children Services Program of the Tucson Indian Center, and a sting operation funded by the Robert Wood Johnson Foundation that targets stores selling cigarettes to minors). Additional programs include border projects sponsored by the Arizona-Mexico Border Health Foundation (Juntos Unidos/United Together; Puentes de Amistad/Bridges of Friendship; Companeros, Vecinos and Guia).
Trends in the Tucson Community
Key events in the Tucson area over the past several years include: the constant influx of illegal immigrants crossing the border from Nogales, Mexico into Tucson, the first contact point in the mainland for drug trafficking; and the recent legalization of marijuana for medical purposes in Arizona.
When asked about recent events that might have affected awareness or attitudes regarding drugs, several community respondents described the 1997 death of a 12-year-old girl from a heroin overdose. Through media attention to this event, the community was made aware of the multi-generational aspects of drug use. The incident also heightened awareness of drug use by youth, creating tension that some Tucson residents feel has led to parents "getting tough" with their children regarding drug use. Other recent drug-related events that have been publicized by the media and/or have generated formal community discussion include the case of a high school security guard in Nogales who was caught dealing drugs, and an incident in which two youth were killed during a drug deal at a local shopping center.
Drug Awareness and Behavior Reported by Youth and Parents
Separate focus groups were held with youth and parents. Youth in grades 4-6 were aware of illegal drugs and they reported learning about them from their parents, from the D.A.R.E. program, and from other students and neighbors who talk about drugs and/or use them. Most of these children have been cautioned about the dangers of drugs by their parents, and recognized that, as one student stated, "drugs can kill you." Youth in grades 7-9 were very knowledgeable about various illegal drugs and ways they could obtain them in their own neighborhoods. These students learned about drugs from a variety of sources that include teachers, school programs, parents, and friends. They also cited movies, television programs, and commercials as a major source of information about drugs. When asked what makes people stop using drugs, middle school youth responded that parents and law enforcement officials could intervene sometimes by placing youth in a juvenile detention center.
High school students reported learning about drugs from many of the same sources as younger students; they also mentioned other youth whose parents condone their drug use or use drugs themselves. Despite acknowledging their thorough knowledge of drug risks, non-urban teenagers cited the following reasons for using drugs: personal problems, the availability of drugs, curiosity, peer pressure, and having fun.
Parents observed that all children get the same message about drugs, yet some get involved with drugs and others do not. They noted that paying attention to children is critical to reducing the chances that they will try drugs, and they offered numerous suggestions of ways parents could build youths' self-esteem and knowledge in order to discourage drug use.
Community Drug Problems as Perceived by Community Key Informants
All key informants agreed that Tucson has a serious drug problem that is augmented by its proximity to the Mexican border. Drugs are very accessible in Tucson, making their cost lower than in other states, and a high level of tolerance for marijuana use has led to the prevalence of what one respondent termed "the marijuana culture" of the city. Community informants also described drug use and abuse among youth as a serious problem, evident by the volume of drug trade in the community, the incidence of usage in the home, and the increase in young people's willingness to talk about their drug use. Drugs most frequently used by youth of all ages include alcohol, marijuana, and tobacco; some cite inhalants such as spray paint, glue, and gasoline.
Informants identified different patterns in drug accessibility, preference, and use between teenagers and younger children. Teenagers reportedly have better access to drugs, use more drugs, and experience more advanced stages of chemical dependency. While younger children are using "gateway" drugs such as cigarettes, alcohol, and marijuana, older teenagers often use cocaine or methamphetamine in addition. The consensus of most informants was that children in Tucson are using drugs at younger ages than ever before, and that some drugs, particularly marijuana, are available in the elementary and middle schools. A wide variety of drugs is available in high schools, especially in neighborhoods in south Tucson, where dealers stand on the street corners. Some youth obtain drugs from friends, siblings, parents, and other family members. Informants agreed that the use of drugs in both urban and rural areas varies in relation to the availability of alternate activities.
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. The majority had seen one or more of five anti-tobacco commercials produced by the Arizona Tobacco Education and Prevention Program (Department of Health and Human Services), to support an intensive media campaign it launched in January 1996. This campaign creates TV, radio, and print ads in both English and Spanish, which feature intense, humorous, or graphic images along with the campaign slogan: "Tobacco. Tumor causing, Teeth Staining, Smelly, Puking Habit." Respondents viewed the campaign as potentially very effective in developing a mindset in children over time that tobacco is dangerous.
Community informants recalled a few other anti-drug TV commercials (created by Mothers Against Drunk Driving or PDFA), but stressed that they had seen fewer ads than in years past which target drugs other than tobacco. Most felt that more attention should be focused on other drugs. One respondent applauded the strategy of emphasizing aesthetics that is employed in the State-sponsored anti-tobacco campaign, asserting that such an approach would benefit other anti-drug presentations. Several key informants said that previous campaigns have been too humorous-drawbacks cited to this approach were that it trivializes the drug problem to children or that it lacks the sophistication needed to appeal to teenagers and adults. If campaigns do not "talk down" to youth, respondents felt that they could influence non-users to avoid starting to use drugs, although they would not stop those who are already using. Respondents felt the task of the ads was to create the perception in youth that drugs are "uncool" before they are faced with the opportunity to try them. Some thought that some posters and television ads gave mixed messages. One respondent cautioned that the majority of young people are not drug users, but that the media portrayal of drug proliferation actually makes them believe they are in the minority if they do not use drugs.
All informants agreed that a media campaign could be an effective component of a larger, community-coordinated effort that would offer education and treatment services, address the root causes of drug use, and offer solutions to meet young people's needs. They stressed the need for coordinating ads with available drug treatment services. They added that the media, though useful in creating awareness, could not provide what youth at risk for drug abuse often need the most --
a nurturing person to become involved in their lives and positive activities to occupy their time and energy.
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 Tucson since baseline, as well as 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
The majority of key informants were unable to recall a recent local event that might affect community attitudes toward drugs. However, two recent events were reported that might influence youths' and parents' attitudes toward drug use and awareness of the Media Campaign: a methamphetamine campaign was launched by the National Coast Guard Methamphetamine Control Strategy; and there recently was a large, high-profile drug arrest and confiscation of a truckload of marijuana on Interstate 19.
Youths' and Parents' Reactions to the ONDCP Media Campaign
Separate focus groups were held with youth and parents. Elementary school children reported very good recall of TV commercials, especially anti-tobacco ads. Middle school children were also very aware of anti-drug commercials shown regularly at school on Channel 1 and during after-school programs they watched at home. Middle school children recalled seeing a greater variety of drugs depicted in the ads-they particularly responded to ads that have targeted methamphetamines and discussed how battery acid and drain cleaner are primary ingredients for street drugs. The message the ads portrayed was reported as "Don't use drugs because they are disgusting, and try to focus on your future." High school students reported seeing and hearing a wide variety of anti-drug commercials at regular intervals on television and radio. These older students claimed that the commercials might make them think twice about using hard drugs like crack-cocaine and methamphetamine, and described the message as self-explanatory: "Don't use drugs because they can be dangerous." These students suggested that the ads are most effective with young children and those that have little education about drugs.
Both urban and non-urban parents were aware of ads on major TV networks, Spanish-speaking television stations, radio stations, and area billboards. They were also aware of posters in the schools. Parents had a general awareness of the anti-drug messages that were aired and they recalled a wide variety of drug ads. Some reported that the ads made them think of the importance of talking to their children about drug use and visiting school to find out more information. Parents agreed that the ads provide positive information, that the accompanying toll-free referral numbers are particularly helpful, and that the commercials provide them with a natural lead-in for a discussion with their children.
Key Informants' Responses to the ONDCP Media Campaign
Representatives of community organizations, interviewed during the baseline visit, were reinterviewed in the followup site visit to learn about their awareness and views regarding the Media Campaign. Informants reported different levels of awareness of the Media Campaign --
some had direct involvement in it, others had read about it in a substance abuse journal, and others were not aware of it at all. Radio and television were the most frequently mentioned media noted by key informants who were familiar with the Media Campaign. Most of the radio ads recounted by those interviewed were part of the anti-tobacco campaign sponsored by Arizona's Tobacco Education and Prevention Program. Television ad mentions included both State-sponsored anti-tobacco ads and Media Campaign anti-drug ads. Anti-tobacco ads described include the following: "Dog Urinates on a Cigarette"; "Girl is thrown out of a concert due to her cigarette breath"; "I run --
I don't smoke"; "What I learned from smoking, I learned from my mother"; and "boy has negative response to girl's smoking and a 12-year-old speaks to him." Ads in the Media Campaign that were remembered were the Frying Pan ad and one described as "my brother/my hero." One key informant recalled seeing the billboard for Cannabis Stupida.
Most of the interviewees had limited or no awareness of the ads' sponsors, though ad sponsorship was clearly recognized by those who had a direct relationship with the Media Campaign. Key informants aware of the Media Campaign reported the ads had sufficient exposure on television programming directed toward youth. They also mentioned that the ads were frequently run on Spanish-speaking TV and radio programs. Informants with direct knowledge of the minority community stressed the need for Spanish-language broadcasting of anti-drug messages to reach this portion of the target audience.
The Pima County Prevention Partnership did report receiving continuous telephone calls for information and referrals. A staff member described calls from grandparents who have seen the Media Campaign ads.
Key informants offered several suggestions to enhance the Media Campaign's effectiveness: that billboard ads be displayed on buses (since many people depend on mass transit); that ads include a local number that refers audience members to counselors, rather than a recorded message; that ads specifically targeting youth include alternative activities, counselors and treatment as part of the prevention/intervention effort; that some ads promote communication between parents and youth; and that ONDCP distribute posters and other publicity materials to the schools. Despite the fact that some respondents saw physically graphic advertisements as powerful and effective, others suggested making ads less graphic, as some people find the anti-smoking ads offensive. Most of the key informants interviewed were able to recall seeing some parts of the Media Campaign and they believed that it could change attitudes about drugs. However, they cautioned that this could only occur with the help of appropriate timing, content, dissemination, and community involvement.
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. One Spanish-speaking television station has aired paid Media Campaign ads with a negotiated agreement to run a matched free PSA with each ad bought. Representatives from this station were impressed with the quality of the ads included in the Media Campaign, and they reported that the airing of these ads had not affected the station's pro bono policies for advertising. Though other local TV station representatives interviewed have not aired paid Media Campaign ads, they agreed that their stations placed importance on airing programs, PSAs and ads that support the anti-drug message and educate the public.
Media station representatives said that they had not monitored public response to the Media Campaign ads to date, though they did note that on occasion people call for further information or for a referral number. There has been little positive or negative public feedback available regarding anti-drug messages in general, but this could be attributed to the lack of a system to record such calls. The PIMA County Prevention Partnership, however, mentioned that it has received continuous calls requesting information and referrals in response to the ad urging grandparents to get involved with their grandchildren to prevent their drug use (described as "the power of Grandma").
Media trafficking decisions were found to be influenced by a variety of factors including time available (varies seasonally), content and quality of the ad, subjective choices made by the PSA director, and the decision to run a range of different topics that include a mixture of local and national sources.
Followup Findings in Comparison Site of Austin, Texas
While Austin, Texas, and Tucson, Arizona, reported similar drug problems and concerns during the baseline visits, it is worth noting that at the followup visit, key community respondents, youth, and parents reported very different levels of awareness of drug prevention activities and advertising campaign efforts in their community.
Only a couple of events have occurred in Austin since the baseline visit that might have increased awareness of the drug problem: a local TV station panel discussion of community individuals who work in some capacity with substance abuse issues, aired during the week of the Bill Moyers s TV special; and a sting operation called "Operation Big Dog," resulting in the arrest of over 500 Austin gang members. One informant attended the Central Texas Youth Summit in early April, and reported that the topics chosen by more than 2,000 high school students for the event were, interestingly enough, "violence" and "teen pregnancy," rather than "drug and alcohol abuse." He viewed this as an indication of the general lack of interest in the topic in Austin, and commented that "no link between substance use and violence is being made in most people's minds."
Among community representatives interviewed, only one was aware of the national Media Campaign focusing on drug problems and youth. This respondent worked at an organization in a suburb of Austin devoted to youth chemical dependency prevention, and maintained a bulletin board displaying clippings of Media Campaign ads from the local newspaper. Community informants were able to recall at most only one or two anti-drug advertisements, and often remembered no specific ads at all.
In separate focus groups with youth and parents, there was no awareness of any media campaign about drugs. Outside of a few PSAs already being shown about drugs, ads for McGruff, the Crime Dog, and recollections of older ads from the Reagan-era "Just Say No" campaign, there was no mention of any new campaign effort. The most familiar with anti-drug ads were Hispanic focus group participants who watch the Spanish channel and could recall ads they had seen on it.
Summary of Intermediate Findings
It is clear that in Austin, which was not targeted by the Media Campaign, there was very little awareness of any change in anti-drug messages from the time of baseline data collection to the followup visit. In Tucson, one of the 12 target markets for the Media Campaign, a much higher level of awareness of the Media Campaign and its specific messages is evident in discussions with both parents and youth. The majority of key community influentials had at least some familiarity with the Media Campaign and were often involved in support activities to supplement it, including: the creation and dissemination of supplemental information on alcohol and drugs, extensive media communication, newspaper article submissions, speaking engagements in local schools, and coordination with the local teen court.
Media representatives were aware of the Media Campaign and provided useful suggestions on how it could 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 both the highly successful anti-tobacco campaign, which has been operating since January 1996, and the Media Campaign, which has been in place only since January 1998. They particularly provided good recall of specific messages from TV and radio commercials and offered concrete recommendations on how to improve the campaign in the future.
