4. CASE STUDIES

Washington, D.C.

Two site visits have been made to Washington, D.C. The baseline visit occurred during late December 1997 and early January 1998. An intermediate site visit took place during late March and early April 1998.

Birmingham, Alabama, was selected as a comparison site for Washington, D.C., because both cities have similar demographic and community characteristics. The quantitative data collected from in-school surveys completed by students in both Washington, D.C., and Birmingham also showed similar patterns at baseline. These patterns, displayed in Exhibit 4-1 at the end of Section 4, further demonstrate that Birmingham constitutes a reasonable comparison site for Washington, D.C. Exhibit 4-13 summarizes youth, parent, and community findings for both sites.

The purpose of this report is to describe key data collected in Washington, D.C, at baseline and 3 months later at the intermediate site visit. Some key information collected in Birmingham at the intermediate site visit also is presented.

Baseline Picture

Ongoing Anti-Drug Activities in the Community

The major drug prevention programs operating at baseline in metropolitan Washington, D.C. include the following:

• The D.C. Community Prevention Partnership, one of Washington, D.C.'s leading substance abuse and violence prevention agencies, empowers individuals, families, businesses, institutions, and neighborhoods in D.C. to work against substance abuse and violence. Its youth programs include Youth Action Teams (to involve youth in prevention activities throughout the city), Black Pearls (for adolescent African American girls), Southwest Youth Empowerment Teams (for youth in public housing communities), and College Prep (to help high school seniors prepare for and apply for college).

  A wide range of school-based programs is provided. The D.A.R.E. program, mentioned by nearly all key informants, provides a standardized prevention curriculum to a large number of elementary and middle school students. Other important programs include peer mediation/conflict resolution; Ready, Set, Go; Just Say No; Safe; MORE clubs; peer mediation; student assistance programs; poster contests; special assemblies; School Community Coalition (Fairfax County); conflict resolution programs; drug and alcohol zero use policies; and life skills training programs.

• The Metropolitan Police Boys and Girls' Club, operating 10 clubhouses across Washington, D.C., offers culturally sensitive programs and activities to keep youth out of trouble.
• Various local health departments operate community-based parenting and mini-grant programs that focus on strengthening families.
• Law enforcement agencies operate prevention programs such as speaker programs; RAP, Inc.; SANDS (Sports Activities Not Drugs); Cadet Explorers; and COPS in the Community.
• Boys and Girls' Clubs provide a wide range of recreational and educational activities, including drug abuse prevention programs.
• The faith community operates a variety of community- and neighborhood-based programs to meet the needs of parishioners.
• The Elks, the largest fraternal group involved in drug awareness programs, distributes drug education materials to schools, libraries, Boy Scout troops, and other organizations. A local lodge produces a 30-minute public television program called "Know the Enemy," which presents drug awareness information and airs 20 to 25 times a month.
• The Latin American Youth Center, a teenage youth leadership group, is located in a heavily Latino area of Washington and offers ESL and acculturation activities to middle school and high school students
.
• Young Urban Voices, a multicultural youth leadership group, focuses on leadership development. Participants produce a newsletter and learn advocacy skills.
• The Northwest Youth Alliance, composed primarily of white teenagers, participates in art and cultural activities.

Trends in the Washington, D.C., Community

In the past 30 years, Washington, D.C. has experienced a steady flow of middle-class residents, especially African-Americans, from the city to the suburbs. The African Americans left behind are disproportionately poor, undereducated, and underemployed. That migration was in part due to a changing job market, as major employers (including Federal agencies) relocated to the suburbs. The decline of jobs in the city has contributed to the deterioration of many parts of the District.

Drug use in the Washington, D.C. area reportedly has become more risky in recent years due to uncertainty about the purity of drugs, increased drug-related violence, and the spread of HIV associated with intravenous drug use. The use of marijuana is high and on the rise, especially among youth, and the availability and use of high-quality, low-cost heroin is rising. Cocaine and crack-cocaine use are declining except among juveniles in low-income neighborhoods. Heroin has become the "glamour" drug in Washington, D.C. among young, upper-middle-class adults ages 20-25.

Drug use is not confined to struggling inner-city environments, or to any particular racial or ethnic group. The 1996 Maryland Adolescent Survey revealed that adolescents in Washington's Maryland suburbs (Montgomery and Prince George's Counties) reported a higher use rate for marijuana, crack-cocaine, and LSD than the national rate. Recent articles in the Washington Post documented drug use in non-urban Fairfax County, Virginia, which is noted for its affluence, high levels of education, good school systems, and relatively low crime rate. The articles noted that juvenile drug arrests in the Washington, D.C., metropolitan area generally rose from 1991 to 1996; the only exception was in Washington, D.C., itself, probably due to the District's population decline during that period, especially among males ages 15-29.

Drug Awareness and Behavior Reported by Youth and Parents

Youth and parents generally agreed that youth are quite knowledgeable about drugs. Both urban and non-urban 4th-6th graders reported that they obtain their information from school-based programs and parents. The urban children said that they also learn about drugs through television and movies, although the non-urban children said that the media was not an important source of information for them.

The 7th-9th graders reported that they obtained their information from school-based programs and friends. The youth in this age group reportedly receive little of their information from their parents.

The urban 10th-12th graders had received drug information from witnessing drug use in their neighborhoods, as well as from television and, to some extent, from their parents. The non-urban 10th-12th graders learned about drugs from schools, parents, and friends.

Urban parents emphasized that their children learn about drugs from witnessing drug activity and consequences firsthand. Non-urban parents noted that their children know about where to get and how to use illegal drugs, but not necessarily about the risks and dangers of using the drugs; for example, they reported that many youth believe that marijuana is not physically addicting. Both urban and non-urban parents voiced the concern that parents do not discuss drugs with their children as much as they should.

Community Drug Problems as Perceived by Community Key Informants

Many key informants reported that they considered the drug problem to be the most serious social problem in the community -- and they asserted that it is increasing. They implored that funds be increased for prevention, intervention, and treatment programs that are dealing with community-based drug problems (alcohol, tobacco, marijuana) and not the political drug of choice (cocaine or heroin), which often does not correspond to the most significant drug problem in the community. They reported that key weapons in fighting the drug problem are increasing parent involvement and helping parents and youth understand the dangers and risks of using drugs.

Informants related that elementary school children usually start with beer, wine, and cigarettes, which they obtain from their homes or older siblings. The primary motivation is curiosity. Also, inhalant use is more prevalent at this age because of accessibility. Middle school children are more vulnerable to peer pressure, and marijuana use begins at this level. Drugs are more accessible at this age and can be obtained through peers or older youth in their neighborhoods. By the time children reach high school, they are experimenting with a broader range of drugs and also tend to be poly-users. Access to drugs is very easy, especially at the high school level.

Many informants pointed out that drug use is more obvious in poorer neighborhoods because of the prevalence of drugs on the street. However, they added that there is more drug use in affluent areas, but it is hidden behind closed doors.

Some informants emphasized the importance of youth experiencing consequences for their drug activity; when there are no consequences, youth see anti-drug laws and norms "as a joke." They pointed out that one of the results of dropping the age of adult responsibility is that drug dealers recruit younger children to do the "running."

Most informants discussed the problem of lack of parent involvement in drug education and prevention. Some reported that parental denial of youth drug use and tolerance of the use of "soft" drugs are the biggest problems. Differences in parental attitudes were linked to class, ethnicity, family composition, and residence. Upper-class and middle-class parents were considered to be in greater denial than working and lower-class families. Wealthy families were described as wanting someone else to solve their problems.

Many informants were alarmed at the media's negative impact on youth. Television movies and movie videos glorify drugs, drug lifestyles, and violence. Television commercials advocate the use of alcohol. Radio was perceived to be almost exclusively negative, as the music promotes sex, drugs, and violence. Newspapers and magazines promote alcohol and cigarette use, as do billboards. School posters were rated as having some effect, but several informants mentioned the need to change them often.

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

Ads produced by the Partnership for a Drug-Free America have aired in the Washington, D.C. area. Several ads have aired in which the captain of the Washington, D.C. professional soccer team gives various prevention-oriented messages, such as avoiding drugs and staying in school. One key informant remembered a DWI prevention ad in which a man talks about the fees he has to pay and the time lost in court due to his DWI conviction.

One key informant discussed a trend in local media news coverage over the past year. In response to community complaints that news coverage focused on negative events and bad news, one of the major TV stations began focusing more on positive stories and less on violence and drug problems. The informant believed that these stories would give young people more positive images of their community, as well as their future, but it "pulls attention away from violence and its connection with drugs, so that drugs don't seem to be a problem any more."

The Maryland Governor's Office is conducting an anti-drug media campaign that began in the fall of 1997. It relies on donated airtime and resources for PSAs, and the Lieutenant Governor is involved in a series of meetings and appearances with local agencies.

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 the Washington, D.C. area 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

A number of key informants referred to a growing awareness that heroin use has spread to the suburbs. For example, an elementary school teacher overdosed on heroin in January 1998. Students complain about marijuana smoke filling the halls of schools. Middle-class neighborhoods are littered with marijuana rolling papers and blunts.

Youths' and Parents' Reactions to the ONDCP Media Campaign

The following television ads were remembered by youth and parent focus groups: Frying Pan; Long Way Home; Drowning; Teeth; Alex/Straight A's; Burbs; and others described as "fried egg," "missed opportunity," "role playing to say `no' to drugs," "Latina woman who lost her children because of drugs," "McGruff ads," "baby shot," "boy who uses marijuana cuts his hand," "boy at basketball court who says no to marijuana," "little girl who knows what to say about matches and other hazards but not drugs," "head coughing from cigarettes," "red dog party (no alcohol)," "deteriorating liver," "listing of youth killed by drunk drivers," "talk to your kids about drugs," "marijuana at your child's friend's house," and "boy on sofa."

Radio ads remembered included the "Nah" commercial, Michael Jordan's mother talking about inhalants, a youth keeping marijuana in a friend's drawer, ad encouraging parents to talk to their children about drugs, a 15-year-old with brain damage from inhalants, a Black girl who wants to be a teacher, this is your life, and sound off on drugs.

Billboard ads remembered included a student in a graduation gown saying "there are better things to go do than drugs," a bright yellow billboard asking parents if they were waiting for their children to ask them about pot, what are you waiting for to talk about drugs with your children, puppet on strings, an orchestra and the headline "what you do when not on drugs," Just Say No to Drugs, and pregnant women should not use drugs or alcohol.

The youth focus group participants at all grade levels were very aware of the anti-drug television commercials. The Frying Pan ad was recalled by nearly all participants, and was characterized as having a "powerful message." Other ads recalled favorably by the youth were Free Ride and the "nah" radio ad. They perceived that the messages of the ads were that drugs hurt everyone, drugs are very dangerous, and life on drugs is boring. Posters and billboards were remembered by very few youth. They reported that commercials that relate youths' personal stories about drugs and their effects are more likely to "make people stop and think."

The parent focus group participants recalled an extensive list of television commercials and a few radio ads. They perceived that the messages of the ads were to say no to drugs and that parents should take a more active role in talking with their children. Rarely were the parents able to identify PDFA or ONDCP as the sponsor of the ads. They felt that commercials showing the actual effects of the drugs on the brain and body were the best; they considered the graphic commercial showing the woman taking off her eyelashes, hair, and makeup to be effective. They also liked the ads about parents needing to be aware and involved. They pointed out that what is shocking to adults may not be shocking to youth, who are desensitized by the news. Some parents remembered seeing billboards and bumper stickers but could not remember what they said. One parent concluded by saying "ONDCP is doing its job, I just hope the family and community are doing theirs."

Key Informants' Responses to the ONDCP Media Campaign

A few of the key informants were aware of the Media Campaign, but most were either totally unaware of the Media Campaign or were aware in a general way that a campaign was going on and did not recall having seen or heard any ads. Many informants reported that they watched little television and rarely listened to the radio. Two were involved in the Media Campaign or the kickoff. A few informants knew the Media Campaign was sponsored by either the Partnership for a Drug Free America or ONDCP, but the majority could not recall the sponsor. Most of the informants said that constant reminders that drugs destroy families and kill people are needed, although one said that the ads were run too often. The informants were not aware of any community reaction to the Media Campaign.

The general consensus was that the ads should show the graphic and actual consequences of drug use because youth often think they are indestructible. Respondents' suggestions for improvements included: show anti-drug commercials at school assemblies and in movie theaters before movies start; place posters in emergency rooms, neighborhood health clinics, recreational centers, libraries, and any place where youth congregate; and produce and air television shows with anti-drug themes.

The respondents indicated that minority-owned media outlets might reach more minority youth because those youth might be more likely to watch and listen to the minority-owned outlets. However, the general response was that the message counts more than the person delivering it.

Media Representatives' Reactions to the ONDCP Media Campaign

Representatives of television and radio stations and newspapers reported that the ads were well-received and other staff were talking about them, although they had received no comments or feedback from the public. In general, the media representatives said that the ads were delivering a good message but should explain more about what the actual effects of drugs are on the body and brain, as well as on a person's actions.

Television and radio station representatives reported that PSAs usually are not aired during prime time because the slots are too expensive. Traffic decisions are often made on the basis of benefit to the community; critical issues such as drug abuse, foster care, and special community events are more likely to be shown often. The minority-owned stations (the Latino television station and African American radio and television stations) are particularly focused on public service and community education, although the commercial station contacted (ABC) has an educational component, sponsors a charity, and runs ads for special children's projects.

The African-American radio station and the Latino newspaper reported that they experienced an increase in anti-drug activities and ads since the beginning of the Media Campaign. The other media representatives reported that there was no increase in anti-drug activities or ads.

Followup Findings in Comparison Site of Birmingham, Alabama

In the comparison site of Birmingham, several events in early 1998 might have increased awareness of the drug problem. A high-profile murder trial of four youth had been in the news. The defendants, the oldest of whom is 19, were on trial for the murder of one of the youths' father, his girlfriends, and two small girls. At the time of the interim site visit, there had not yet been testimony implicating the role of drugs in the case, but it was widely believed that drugs played a major role in the four youths' behavior leading up to the murders.

In addition, there has been a recent increase in juvenile crime and gang-related problems in the city of Birmingham, much of which is related to drug and alcohol use and trafficking. A Birmingham community development organization, in conjunction with local media leaders, is developing an anti-drug media campaign for the Birmingham area that will include video, television, radio, and print ads. The Birmingham Times (a minority-owned newspaper) has begun a series of articles and editorials addressing drug and alcohol abuse issues in the inner city community.

Outside the city, a county task force is sponsoring sting operations to curb drug and alcohol use. Strategies being used include road blocks and license checks; the use of helicopters to detect drivers who may be under the influence of drugs or alcohol; and the use of "drug dogs" to sniff school lockers for drugs. Finally, the Alabama Beverage Control Board has begun creating anti-alcohol posters and posting them throughout Alabama.

In general, key informants believed that media ads could change youths' behavior and attitudes regarding alcohol and drug use. However, the ads need to be frequent, realistic, consistent with other societal messages, and relevant to the target audience. Some informants felt that parents and peers have a greater effect than the media.

Key informants and focus group participants were not aware of the Media Campaign. However, a few informants had seen some anti-drug PSAs that they felt were not effective because the messages were short, infrequent, and inconsistent with other messages which promote (or at least do not discourage) drug and alcohol use.

Summary of Intermediate Findings

Although the Birmingham area has a variety of ongoing prevention and treatment programs, as does the Washington, D.C. area, there is only minimal anti-drug focus in the media. The lack of awareness of any anti-drug ads in Birmingham was in stark contrast to the high awareness of ads in Washington, D.C., where some key informants and nearly all focus group participants recalled numerous ads and made specific recommendations on what they liked and how to improve the Media Campaign.

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