On Mass Media
Five years ago, Luchemos por la Vida, a small non profit, non-governmental organization, set this lofty goal and has, within this short time, developed 15 massive radio and TV campaigns on traffic safety to fit the particular needs of Argentines. With the passing of time, and the realization that estimated accident and mortality rates keep growing, people wonder... ARE MASS CAMPAIGNS ANY GOOD? This is a question that Luchemos is permanently asking, since reaching our purpose as an institution depends on the success of this effort and other efforts. There are several steps to evaluate the effectiveness of a campaign, and organized work demands a continued follow up to improve the tools we use in our work. Today we want to share with the community the results we have obtained, since they belong to all and not exclusively to our Association. The first step in evaluating effectiveness is to define objectives. Therefore it would be good to review the objectives from a historical perspective. A LITTLE HISTORY Given the objectives that started our Association: To promote the preservation of life in the traffic system through the prevention of traffic accidents in this field, our first "advertising" objective was to raise the level of concern and to create awareness of the severity of the problem of traffic accidents in our country, and give, at the same time, definite messages on the preservation of life on the road. In the first stages of our work (1990), only in exceptional and rare occasions did mass media approach this problem, and when they did, they usually showed it as a "police affair" and consequently, the general population ignored how serious the situation really was. (According to official estimates from the seventies, some 6,000 people died each year in traffic accidents, a number that rose to 7,500 at the beginning of 1992). We had to start with that message. We had to warn the community that 20 people died in traffic accidents each day, and that it could happen to anyone. At the same time, we had to emphasize that those accidents could have been prevented, and what could have been done to prevent them. In that first stage (1991 to 1992), radio, TV and graphic campaigns focused on sharing this information, which was always accompanied with positive messages on preventive behaviors (pedestrian priority, use of seat belts, children on back seats, etc.). That is, we gave precise information: - about the problem - about safe behaviors We avoided falling into the error of a certain publicity style which, no matter how much the presentation engages the audience's attention, gives an incomplete or ambiguous message, such as "Drive carefully". What can be perceived by some as "careful", may not be. There will always be those who think they are right when they are driving at 140 km/h, and that they are "cautious", because they "know what they are doing". During the second stage, from mid-1992 onward, messages were centered on spreading information and deepening awareness about the main factors that cause accidents and mortality in traffic (speeding, drinking and driving, night driving, and not wearing seat belts). These factors have been widely investigated in the developed world and were adapted in their presentation to our specific target community. DIVERSE RESOURCES FOR AN HETEROGENEOUS AUDIENCE Our challenge was this: could we transmit a short message, that would capture people's attention in the midst of existing diverse and sophisticated advertising; furthermore, could we give precise information that would encourage reflection and promote changes in behavior. And, could this be done with very limited funds. Deciding what themes to develop was no easy task. Our Association researched aspects particular to Argentina with regards to traffic safety. This research was added to scientific information, and the procedures and subjects dealt with in other countries. Our research included systematic observations, surveys and the experience from workshops with business people, students, teachers and intermediate agencies which served as a starting point to understand how Argentines behave in traffic and how to approach the task better. Deciding the plot line was not easy either. Through these years (mid-1992 and onward), we explored several attractive and comprehensible approaches. Our desire was that the majority of the population understand the message. At the same time, we would target a certain group of people who would identify with each campaign, because, though TV or radio spots are massively shown, the main target changes with the subject: it may be children; it may be the general population (pedestrian campaigns); teenagers (motorbike campaigns); vehicle drivers, etc. We had some humorous approaches ("Eggs", "Teacher"); musical approaches (Pedestrians' Rap; Bikes' Rap; "Safe Traffic"), fast and somehow shocking approaches ("Motorbikes"; "Speed"; "Children and night") or dramatic ones ("The jungle"; "No voice"). As international research on publicity shows, and we ourselves have experienced, population is not homogeneous. To capture each interest group's attention it is necessary to continually change the focus of the message without forgetting the importance of consistency and continuity in it. EVALUATING EFFECTIVENESS STEP BY STEP Having stated the campaigns' general purposes, we needed to do some follow up work to determine how effective they are. We needed to ascertain: - Was the message received? - Was the message understood? - As a result, are there changes of behavior related to the subject? There are different ways to evaluate these questions. Luchemos has been able to gather information on the first two, through informal surveys made when working with groups. As we said, the traffic safety awareness training carried out at schools, with adults in business firms and other agencies allowed us to understand how the population at large grew in awareness of issues related to traffic safety, such as the number of accident fatalities and driving risks. In addition to informal surveys, there were new resources: systematic observation of traffic behavior patterns; formal surveys and tests. Results demonstrate that information was received and understood in 100% of the campaigns. Some have had more impact than others, but none of them failed to be received, or to be understood. Now, as a result of these campaigns, most of the adult population knows how serious the problem of traffic accidents is; knows the fatality figure of 20 per day; and is aware that accidents have specific causes and therefore, can be avoided. This situation is very different from that of the early 90's, when the presentation of the problem was received by the public as something strange and hard to believe. Hightened awareness has developed interest in traffic-related subjects, and has created an increasing demand for reform. Mass media accompanies this change, and devotes more and more time to the subject. As an example of this, let us see a detailed analysis of the results obtained in some of the subjects approached. BUCKLE UP TO LIVE Before starting the seat belt campaign, Luchemos undertook a "systematic observation" of the reality of seat belt use among drivers and front seat occupants in Buenos Aires. Use was only 1.3% among drivers and 1% among occupants. In March 1992, after a first and very simple campaign on radio and TV, percentages went up to 3.1% and 2.2% respectively. After decree law 692/2 was passed and the first long term campaign ("Eggs") was over, the percentage was 38%. (See graph for December 1992). Now the percentage is 39%, though it reached a peak of 80% in summer 1995/96, according to statistics for controls made at specific checkpoints along route No. 2 of Buenos Aires province. Hence, when serious police controls are combined with effective massive teaching on traffic safety, results are excellent. The campaigns of 1992 ("Eggs"), and 1993, 1994 and 1995 showed with different images what happens when kinetic energy acts in a sudden loss of acceleration (crash). They were not only informing, but concisely informing what the purpose of wearing a seat belt was. How many lives have been saved because the person was wearing a seat belt? We cannot know that here. Probably many. In countries that have official records of mortality and traffic accidents, traffic reports were studied over a period of time, which showed an inverse correlation between accidents and the use of a seat belt; all of this means that when more people use seat belts, there are fewer deaths and injuries in traffic accidents, and there are actually fewer traffic accidents. In Argentina, over a total of 7579 traffic accident fatalities occurred in 1998, it is estimated that approximately 1,100 people died because they were not wearing a seat belt. That is the exclusive reason why our Association has given priority to this matter in awareness and massive educational campaigns. The success we have had so far encourages us not to give up. Our work saves lives! PEDESTRIAN PRIORITY When we started our work, the concept of pedestrian priority was something non-existent or foreign; something only possible in the First World, but certainly not in our country. Observations showed that the number of vehicle drivers who yielded to pedestrians on streets and corners was insignificant (0.3%). The message was clear: pedestrian priority did not exist. When the corner or the crosswalk is not a place where the pedestrian has the privilege to cross, he will cross the street at the place where it is easier for him, or just wherever he likes. This situation creates confusion for both drivers and pedestrians, has the potential to cause accidents and a certain increase in fatality figures. But there is hope. Since our first campaign aimed at pedestrians (November, 1991), respect for pedestrian priority has grown, though slowly, and at the present time has reached 17%. This is still a low percentage, but is proof that the population is becoming more receptive of educational messages. There has been no other explanation for the change. Pedestrian priority is starting in Argentina. We are still very far from an ideal situation; there are many who "keep forgetting" that the person who walks in the city has a right to cross first. But the population at large knows, and has learned or remembered (with the popular "Pay attention" rap) the place and the right that belongs to pedestrians. Now, governmental authorities need to really take it in their hands to enforce the observance of this law (something that seems to be far from happening, considering the meager number of 37 records of violations taken in July, 1996). And we need to continue our educational work. DON'T DRINK AND DRIVE When Luchemos started its work in the community through meetings, workshops and other activities, it was not uncommon to hear that alcohol was not a serious problem in our country; at least, many thought so, convinced that drinking and driving was only a problem when the person was really drunk, intoxicated. But in fact, in research conducted by our Association on the subject of eating habits and driving, 33% of drivers drove after drinking alcohol. Presently, the testimonies gathered through our work with children, youth and adults show that this concept has changed notably. It is exceptional now to hear someone who underestimates the problem of drinking and driving, or defends the possibility of drinking, and driving safely afterwards. In 1996 an unexpected public debate started when a city government agent supported a government decision that allowed a taxi driver to continue his business, after having been convicted and fined of ten traffic violations in the previous year. His comment, "Driving after having a couple of extra drinks is something that could happen to anyone", was scorned by most members of the community. This scorn was an indication that the population is maturing as a result of our campaigns, which were (until 1996) the only message on the subject that most people had received. BAC control tests were announced in that year, more like a "diagnosis" than an effective control kind of test. That was the first time such a measure was taken in our country, in a sort of acknowledgement of the existence of the law which had been written and passed, but was in force only theoretically. We have no way to know how much the drinking and driving problem has decreased since we started our campaigns, because we have no real statistics on the situation before or after, but we do know that awareness, the first step to a change of habit, has grown considerably. - Children in back seats. - Change of speed according to road and weather conditions. - Traffic as a system made by all of us. - Night driving. - Safe bicycle riding. - Helmet use. Motorbike safe driving. Each of these subjects has been approached as deeply and accurately as possible, within the limited seconds allowed to us in the spots. To comment analytically the respective follow ups and results would take the whole space of this page and would prevent us from sharing other much valued information with our readers. But positive changes were noted in all of these areas. As an example, it may be mentioned that helmet use has increased among motorcyclists and bikers, and that they demonstrate a growing respect for the correct flow of traffic and the use of lights and reflective materials. As to night driving, there is a progressive change of behavior in drivers who program long trips, and many travel agencies that coordinate graduation trips have started promoting day-time trips, for greater safety. All of these subjects are important to the community and to traffic safety. To change such an individualistic and anarchic mindset as ours in relation to the traffic system implies a new way of thinking about our behavior as part of it. That is not a simple task, but it is possible. CAMPAIGNS ARE EFFECTIVE; WHY, THEN, DO MORTALITY RATES NOT DECREASE? That is a very common question from those who do not know the details of this issue. There are those who imagine that a significant change should be noted in the mortality rates. Among those countries that have brought about important changes, there is not a single case where those changes were caused only by massive educational campaigns. There is no central organism to gather information related to traffic accidents in our country. The National Registry of Traffic Records is not in full function yet. Hence, we do not know the exact reality of traffic accidents in our country. We only have partial figures which we can mathematically project, somehow globally and imprecisely. But though these projections are not hopeful, we need to keep in mind that: We do not know what the situation would have been, had not the campaigns be made; Decreasing accident rates will necessarily imply working on the three basic fields of Traffic Safety, which are, as Americans call them, the 3E's: Education, Engineering and Enforcement. Working on these three fields continually and intensely is indispensable to obtain results and achieve a safe and organized traffic system. We can summarize them by saying that engineering involves technology placed at the service of improvement of safety in roads and vehicles. Enforcement requires an effective police power and effective punishment for offenders. In every country of the world, there are two kinds of individuals: those that are willing to change, able to learn and modify behaviors, ready to accept and internalize the rules of community living; those that resist change, that need external control from society and punishment in case they break the rules, as a condition for adapting to change. Both individuals benefit from educational campaigns, since the former receive and accept proposals positively; and the latter have at least been made aware that rules exist, and that they will have to pay the consequences when they break them. Education includes our subject, traffic safety awareness on a national scale, from outside the formal educational structure. But it also involves two basic items: systematic traffic safety instruction in the elementary, high school and university levels of education; traffic safety instruction for drivers as a prerequisite to driving public transportation vehicles, cargo vehicles or private cars, motorbikes or bicycles. In short, massive traffic safety teaching campaigns are a very necessary, but NOT a thorough tool to decrease the high accident rates in our country. When effective, campaigns set the stage for the development of individual behavior changes in relation to the problem, but need to be accompanied by the development of effective programs in the other two fields mentioned, before any significant change in traffic safety may be observed. LUCHEMOS POR LA VIDA, from its place as a non governmental association, has created a community space for the development of non formal educational programs: proven campaigns, traffic safety teaching in elementary and high schools, traffic safety teaching for new drivers and professional drivers, or drivers seeking to renew their licenses, training for teenagers, training for public officials, etc. But designing policies that establish the conditions for consistent development and effective control in the areas of engineering, education and enforcement placed at the service of safety and life in our roads, is something that only the government can do. Public officials and non governmental organizations, working responsibly together, will be able to generate new conditions for a safe coexistence. (This article appeared originally on "Luchemos por la Vida" magazine, No. 6 - 1996).