ROANOKE TIMES
Copyright (c) 1996, Roanoke Times
DATE: Sunday, December 22, 1996 TAG: 9612240005
SECTION: HORIZON PAGE: 1 EDITION: METRO
DATELINE: WASHINGTON
SOURCE: MATTHEW L. WALD THE NEW YORK TIMES
The people who lead the national campaign against drunken driving say that something frustrating and sad has happened to their 15-year campaign: it has gotten old. The crusade helped cut the number of alcohol-related deaths by 40 percent, but the sermon seems to be wearing off, and the number of deaths is rising again.
There were 17,274 deaths on the roads last year related to alcohol, up from 16,580 in 1994, the first increase in the 1990s and by far the steepest increase since drunken driving became a national issue in the early 1980s. There are other, less tangible signs, too.
``It's harder and harder for us to get major media coverage,'' said Katherine Prescott, national president of Mothers Against Drunk Driving. She said grant money, once easy to get, has gone in the last few years to a succession of other worthy causes: rape victims, then child abuse victims and, most recently, victims of domestic violence. Membership in her group is steady, she said, with each crash death bringing new recruits, but fund-raising is off.
More subtly, the subject has slipped off the center of the conversational map. ``The important thing is, are everyday people talking about it?'' said Sandra J. Ball-Rokeach, a professor of communications and sociology at the Annenberg School of Communication at the University of Southern California. And right now, she continued, ``it's not really at the center of interpersonal discourse.''
Eternal vigilance, it seems, is the price of sobriety. And vigilance is not a strong point in the American character, or Jefferson wouldn't have made his observation about vigilance in the first place.
With drinking and driving, as with drugs and smoking, public health responds to a certain level of public hectoring, and then tends to suffer relapses when it stops.
A long campaign, waged with news stories about individual tragedies, by broadcast and print public service ads, and even by writing designated drivers into the scripts of television shows, resulted not just in stricter laws and law enforcement but in changed public norms.
``I can remember when it was just fine to leave a party half-smashed; that's not the case now,'' said Ball-Rokeach. But even some of that has slipped away; Ball-Rokeach said she recently heard someone at party, drink in hand, making a joke that probably wouldn't have been considered funny five years ago: the guest wanted to be a ``designated drinker.'' But in the current climate, the joke is acceptable, she said.
The cause-and-effect relationship here is murky. Are there more deaths, and more complacency, because the assignment editors and the people who choose public service ads now are less interested? Or is the loss of enthusiasm in the media a sign of society's having moved on, and thus an effect rather than a cause?
Dr. C. Everett Koop, who was President Reagan's surgeon general, said that the loss of public attention is the root of bad behavior, and that no one is focusing public attention now.
``If there is not an authoritative voice that continues to hammer away at a single problem, it tends to be missed,'' he said. Koop hammered away at tobacco, and the smoking rate was at 26 percent when he left office in 1989, he said, as against 30 percent now. In between were surgeons general who did not make a public assault on tobacco their cause, he said.
Dr. Jay A. Winsten, director of the Center for Health Communication at the Harvard School of Public Health, sees ``a direct relationship between media coverage and drunk driving fatalities.''
``There were two periods of unusually high media attention to drunk driving; the first was in 1983 and 1984, and it was largely the work of groups like MADD,'' he said. ``The second was in 1989, '90, '91 and '92, with a hefty representation of the designated driver.
``During each high-media period, alcohol-related traffic fatalities, correcting for vehicle miles driven, fell twice as rapidly as during the intervening low-media periods.''
The death rate per 100 million miles traveled - a standard measure of traffic - fell rapidly in the early 1980s, from 1.58 in 1982 to 1.28 in 1985. After a slight increase, the rate resumed a firm downward path after safety advocates popularized the designated driver, in 1988, from 1.17 that year to 0.70 in 1994. Last year, it rose to 0.72.
The rate continued to fall even after Congress allowed the speed limit to rise to 65 mph on rural interstates in 1987. The lifting of all federal speed limits last year would not yet be reflected in the accident statistics, experts say.
A major engine of the public attention has been public service announcements. At the Advertising Council, which produces many of them, Ruth A. Wooden, the president, said that, in part, the campaign worked its way out of a job. ``It's not at the top of the agenda now,'' she said of drunken driving, ``but in a way that's related to its success; it's a problem solved, in a way, and let's go on to something else.''
Except that it isn't really solved.
``If anybody would have told me 15 years ago that this many people, 17,000 people, would still be dying on the road, I would not have believed it,'' said Prescott of MADD, who said the driver who killed her son had had two convictions for drunken driving before that crash and two after. Now, she said, the problem may be down to a hard core of alcoholics who do not respond to public appeals.
But the mood in society does matter, other experts say. It affects the number of sobriety checkpoints the police erect, the odds that a judge or jury will send someone to jail or into a mandatory treatment program, and the likelihood that a bartender or host or fellow partygoer will take away someone's keys. None of these is easy to measure with statistics.
One more quantifiable trend is the passage of new laws; in the most recent legislative session, 11 states considered proposals to change the blood alcohol level that defines drunken driving from .10 to .08 percent; none approved the change.
There is no end to the campaign, said Winsten, like those against drugs and violence. ``These problems are never going to go away,'' he said. ``They need to be managed over time. When we turn our attention away from them, they're going to pop up.''
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