Implementing a Standard Enforcement Seat Belt Law in Your State: A How-to GuideTABLE
OF CONTENTS
Introduction
How to Make Standard Enforcement Laws Work
The 4 steps for success
The key ingredients
Partnerships
Leadership
Step 1: Evaluate and Demonstrate the Law’s Effectiveness
Collect seat belt use data
Track enforcement activity
Determine public attitudes and perceptions
Harassment: a potentially major issue
Step 2: Get All Law Enforcement on Board
Tap into existing relationships
Make it easy to participate
Give law enforcement ownership
Define your enforcement effort
Repeated efforts mean sustained belt use
Step 3: Create a Promotional Plan with a Clear Enforcement Message
Choose your theme
Define your audience and target your message
Use media professionals
Using earned media, paid media, PSAs
Localize your message
Sustain message delivery after media coverage ends
Consider pilot testing
Step 4: Stick to the Script—Enforcement and Publicity
Document problems and successes
Publicize your results
Implementing an Integrated Campaign
Resources
Appendix I: Standard Law State Contracts
Appendix II: Sample Timeline
Appendix III: Sample Driver/Passenger Seat Belt Observation Survey
Appendix IV: Sample In-Person/Public Opinion Survey
Appendix V: Sample In-Person/Public Opinion Survey (Spanish):
Apéndice V: Ejemplo de Formulario sobre Estudio de Opinión Pública
Appendix VI: Sample Checkpoint Report
Implementing a Standard Enforcement Seat Belt Law in Your State: A How-to GuideHow
to Make Standard Enforcement Laws Work
States that have passed and effectively implemented standard enforcement laws
have seen their seat belt use increase by anywhere from 10 to 18 percentage
points. Some states have sustained belt use in the mid and high 80 percent range
for several years.
The 4 steps for success
No two states have followed exactly the same approach in implementing their new
standard enforcement belt laws. But the states that have enjoyed the greatest
success have all taken four important steps that contributed significantly to
the progress they achieved. Here are those steps:
• Plan at the outset of your campaign to demonstrate the law’s effectiveness.
• Bring all law enforcement resources to bear on the effort.
• Create a promotional plan with a clear enforcement message.
• Stick to the script: enforce and publicize, again and again.
The key ingredients: enforcement and promotion
The basic idea is that two key ingredients are essential: enforcement actions by
police and publicity around the enforcement, so even those who never get
ticketed might change their behavior by observing others who are ticketed.
States that have successfully implemented standard laws and have seen seat belt
use rise dramatically emphasize that it is a combination of repeated high
visibility law enforcement and widespread promotion of enforcement efforts that
gets people to put their seat belts on—every time they get in a car.
Spotlight on: North Carolina
North Carolina’s ongoing “Click It or Ticket” campaign has propelled
statewide seat belt use to 82 percent—one of the highest in the nation.
Its strategy? A tandem approach of highly visible enforcement and intense
media coverage to hammer the point across that there will be no more
warnings for noncompliance with the seat belt law. In the Fall of 1993,
the “Click It or Ticket” campaign followed a combination
enforcement/education approach and saw seat belt use go up 17 percentage
points. In the spring of 1994, however, only the public information and
education component was employed, without enforcement. Belt use went down
8 percentage points and the combination model was validated as the most
effective strategy. At the beginning of 2000, the revitalization of “Click
It or Ticket” spurred increased seat belt use to above the 80% level
again. A
Partnerships can help spread the word
Take every opportunity to involve State leaders and partners in both the
planning and implementation phases of your campaign. Partners can provide not
only expertise and human resources, but can also expose more people to your
message.
Spotlight on: Michigan
Michigan’s approach to securing partners for its implementation campaign
was “Pitch a big tent—it’s amazing how many people will see something in
it for them.” The State partnered with various organizations with a stake
in seat belt and child passenger safety, even if the connection was not
immediately obvious. The Melody Farms Dairy because seat belts and safety
seats save kids—their main customers. The Michigan Petroleum Association
because dead customers don’t buy gasoline. The automobile manufacturers
because they’re the State’s largest employers. A State representative from
the inner city who could visualize increased safety for his own kids. The
State Chamber of Commerce because cutting employer costs due to vehicle
deaths and injuries is the same as raising profits. Michigan also
considered individuals to be as valuable as organizations. The State could
not win the support of the Detroit Conference of Baptist Ministers, but
the organization’s President became a spokesperson for the campaign. The
Detroit City Council did not endorse the standard law bill, but the City
Council President did. A
Leadership is crucial to success
The political, social and economic relationships that helped pass standard
enforcement laws were important during enforcement and promotion efforts as
well. As you will see, the support of State political leaders, law enforcement
agencies, and the partners and allies who pushed to get the legislation passed,
will be crucial to effectively implementing the law.
Spotlight on: North Carolina
North Carolina found that having the commitment of the Governor and other
State leaders was essential to the success of the “Click It or Ticket”
enforcement campaign. The Governor personally sent letters to all
enforcement, judicial, mayoral and injury prevention officials in the
State, emphasizing his 100 percent support of the effort and soliciting
their support. In a briefing prior to the launch, he reiterated his
backing of seat belt and child restraint law enforcement and stated that
he “would take the heat.” The Governor publicly announced the kickoff of
the campaign through all forms of media and when a mild backlash occurred
over enforcement efforts, he and other State leaders defused it by meeting
with politicians, newspaper editors, chiefs of police and other
influentials around the State.
Implementing a Standard Enforcement Seat Belt Law in Your State: A How-to GuideStep
1: Evaluate and Demonstrate the Law’s Effectiveness
Now that you have a standard seat belt law, you need to make sure you keep it.
The threat of repeal may continue long after the bill is passed, so you must
demonstrate that more people are wearing their seat belts as a result of the new
law and its enforcement. This information, given to the media, posted on roadway
signage, translated into estimated numbers of lives saved and injuries prevented
and other important messages, will show supporters and opponents alike that a
standard law is a lifesaving law with significant benefits.
Following a Selective Traffic Enforcement Program (STEP) model, i.e., patrol of
a designated area or location directed toward a particular problem, your
implementation effort can be tracked and evaluated in three areas:
• Seat belt use
• Enforcement activity
• Community attitudes and perceptions
Collect seat belt use data
There are several methods for collecting data on seat belt use in your community
or State, including observational surveys, telephone surveys and in-person
surveys. Keep in mind that, when using Federal funds, there are strict
guidelines to be followed regarding data collection. Consult your regional NHTSA
office for details on the guidelines that apply to your survey methods.
Observational surveys are the most accurate, and therefore credible, method of
determining seat belt use rates, as they collect information on what people
actually do, rather than what people say they do. Observational surveys should
be conducted before and after enforcement efforts, in exactly the same way each
time, using the same locations, directions of travel, days of the week and times
of day. See Appendix III for a sample seat belt observation form.
Telephone and in-person surveys can collect self-reported seat belt use rates,
which can reveal characteristics of groups with low use and their reasons for
not using seat belts. This knowledge can be useful in defining and shaping
educational and enforcement efforts. See Appendix IV for a sample in-person
survey form.
Spotlight on: Elmira, NY
Elmira is a medium-sized community in upstate New York that utilized the
STEP model in 1999 to enforce its standard seat belt law. A research firm
conducted baseline observational surveys one week before the 12-day
enforcement effort began, daily observations throughout the effort and
another set of surveys two weeks after the effort. Belt use was observed
during daylight hours at high traffic intersections representing a
cross-section of the community's traffic. At each intersection, trained
observers tracked 100 vehicles or for 30 minutes, whichever came first, on
both sides of the intersection, at the same time each day. Observations
were not conducted in bad weather. Observers were provided with detailed
schedules, procedures and easy-to-use reporting forms. Results of
observational surveys were posted on roadway feedback signs, which were
updated every day of the enforcement effort. A
Track enforcement activity
In reporting on the effectiveness of your standard law, it is helpful for
citizens to know that the new law is being actively enforced. Report enforcement
results, such as the number of citations for seat belt and child safety seat
violations, citations for other motor vehicle offenses, and number of criminal
arrests, to the media and post on roadway signage and partner web sites. The
media, partners, and supporters will also be interested in the number of
vehicles passing through checkpoints or enforcement zones, dedicated patrol
hours, and the number of officers participating in enforcement. See Appendix V
for a sample checkpoint report form.
Determine public attitudes and perceptions
Public opinion surveys can identify what was most effective in reaching the
public, determine longer-term shifts in attitudes and beliefs and measure the
level of community support for enforcement.
Spotlight on: Elmira, NY
A public relations firm hired to coordinate the STEP gathered information
about changing public attitudes and perceptions through surveys conducted
before and toward the conclusion of the enforcement effort. Questions
addressed residents' knowledge of the seat belt law, attitudes toward
enforcement, awareness of the STEP effort and themes associated with it,
perceived level of enforcement and reasons for not buckling up. Findings
of the opinion survey included: 90% of people were aware of the seat belt
enforcement program; perception that the law was being enforced increased
from 34% before the program to 77% afterwards; 61% reported going through
at least one checkpoint; and 79% favored seat belt law enforcement. A
Harassment: a potentially major issue for evaluation and demonstration
Some states, in attempting to pass standard seat belt laws, discover that
opponents of the law may be concerned about law enforcement using the law to
harass motorists. If this is a factor in your State, address the issue early and
up front and respect that it is emotionally charged. Bring together the law
enforcement and civil rights communities. Engage diverse community opinion and
invite community leaders to help plan and monitor enforcement efforts. Use the
evaluation process to address harassment concerns by including a mechanism for
collecting and analyzing information about the race/gender/age of motorists
stopped or ticketed, motorists' attitudes toward being stopped, or a method for
motorist feedback once the law is being enforced.
Look at other issues brought up by opponents during the process of passing the
law. These issues can surface again once the enforcement phase begins. Can any
of them be addressed in the planning process?
Spotlight on: Michigan
A lobbyist from Michigan's chapter of the American Civil Liberties Union
(ACLU) fiercely opposed the State's standard seat belt law. Upon passage,
the ACLU representative was asked to serve on the implementation team.
Having the ACLU involved in the design of the implementation strategy
ensured that potential concerns could be addressed through public
information and education activities and gave the ACLU a vantage point
from which to monitor enforcement of the law. ACLU participation also
helped to communicate that the law's proponents would not tolerate
harassment and would see to it that a three-year study amendment, a
provision of the law, would be conducted properly.
Spotlight on: New York State
To reach minority populations and address the issue of racial profiling,
the State police conducted a Diversity Forum with a roundtable discussion
on how to protect both lives and civil liberties during enforcement
efforts. Identifying the key organizations and people to be invited was
crucial because endorsement by these groups would help give political
permission to local departments to conduct aggressive enforcement
activities. Representatives from the State police, NHTSA, the Air Bag &
Seat Belt Safety Campaign, National Organization of Black Law Enforcement
Executives, Urban League, Hispanic Federation, ACLU, faith groups and
other African American and Hispanic organizations from across the State
participated in the forum. Discussions included minority
over-representation in crashes, the problem of racial profiling, effective
ways of promoting the campaign to diverse audiences and ways to achieve
public support for enforcement efforts.
Implementing a Standard Enforcement Seat Belt Law in Your State: A How-to GuideStep
2: Get All Law Enforcement on Board
You can’t enforce your new law to the fullest without the support of all
officers, deputies and troopers in the State. Unbuckled motorists must be
persuaded that they will be stopped and ticketed everywhere, whether it be on an
interstate, a rural road or a city street. State police heads, local chiefs,
county sheriffs, and presidents of law enforcement associations should be
visible and vocal leaders in all components of the enforcement effort.
Tap into existing good relationships
Many states have longstanding and cooperative relationships with their State and
local law enforcement agencies. Engage them in your implementation efforts.
• Identify supportive police chiefs, sheriffs and troopers around the State; ask
them to talk to their peers who may be hesitant to join enforcement efforts.
• Use conferences and meetings of law enforcement officials to educate and
recruit departmental participation.
• Call a special meeting of departmental and agency chiefs and law enforcement
association presidents to explain the importance of enforcement efforts and to
request their participation.
Spotlight on: New Jersey
From the beginning, it was apparent to New Jersey’s Division of Highway
Traffic Safety (DHTS) that a full-time coordinator was needed to conduct
outreach to police agencies, support their initiatives and monitor and
track results. DHTS hired a recently retired lieutenant from a local
department to coordinate the statewide initiative. Through his years of
enforcement, the coordinator had established himself across the State as a
leading advocate for traffic safety and seat belt use in particular. The
coordinator was hired to recruit local police departments to participate
in mobilization efforts, provide technical assistance to them, and serve
as a liaison between DHTS and the law enforcement community. A
Make it easy for law enforcement to participate
Remove the barriers to law enforcement participation in your campaign. Make it
as easy as possible for departments to sign on to your effort and you will see
an increase in the number of those participating.
• Educate officers on the provisions of the new law and its exemptions. Provide
officers with tip sheets or “palm cards” containing practical information. Place
information about the new law on web sites accessed by law enforcement.
• Articulate the benefits of an enforcement campaign—what’s in it for them?
• Tell them how many other departments are participating.
• Supply agencies with simple, basic information: campaign goals, dates and
duration of enforcement waves, evaluation and data collection tools.
• Streamline and simplify the process of applying for funding and grants.
• Provide tangible incentives for law enforcement participation.
• Provide adequate training for officers directly engaged in seat belt
enforcement.
Spotlight on: Michigan
Among the methods Michigan uses to secure law enforcement participation is
a “key 25” group of police chiefs and sheriffs around the State who are
known to be committed to seat belt enforcement and are recognized as
leaders within the law enforcement community. Each “key” chief or sheriff
is assigned a group of peers who head departments in his/her area of the
State and, prior to mobilizations, they write, call and visit the assigned
peers to enlist their participation. To secure initial departmental
participation, the State awards a modest number of overtime grants and
incentives such as traffic enforcement equipment. And the Michigan State
Police, Sheriffs’ Association and Chiefs’ Association jointly developed
two training programs: a roll call video designed to motivate enforcement
and a six-hour seminar to promote standard, professional enforcement
procedures to help eliminate any incidents or appearance of harassment.
All of Michigan’s State police posts, all of its county sheriff’s offices
and the majority of municipal departments participate in the semi-annual
national mobilizations conducted in May and November. A
Give law enforcement ownership in the campaign
States that adopt an inclusive attitude toward law enforcement and actively
market the benefits of an enforcement campaign see a steady rise in the number
of departments agreeing to participate. Some states achieve a 100 percent
participation rate from their law enforcement agencies.
• Solicit law enforcement input on timing, checkpoint strategies, and staffing.
• Give local departments latitude over local implementation efforts.
• Make sure committees and task forces formed for the effort have law
enforcement representation.
• Recognize law enforcement contributions and thank them for participating.
Spotlight on: North Carolina
The Governor’s representative called a meeting of the heads of the
Division of Motor Vehicles, the State patrol, and the presidents of the
State police chief’s and sheriff’s associations. A steering committee was
formed to plan activities before each wave of enforcement. Two
subcommittees were established: one for law enforcement scheduling and
operations and the other for public affairs.
The Governor’s Highway Safety Program funded two Law Enforcement Liaisons
(LELs)—one for the eastern part of the State, the other for the western.
The LELs visited law enforcement agencies in towns over 2,000 population
to recruit participation. In addition, county task forces were established
in all 100 counties to organize the campaign. Law enforcement personnel
who had been trained in occupant protection usage and enforcement were
asked to serve as county coordinators. The State Highway Patrol initially
filled most county coordinator positions; currently, local police or
sheriff’s offices provide the coordinators in 83 of the 100 counties. A
Define your enforcement effort
Most seat belt enforcement efforts center on a checkpoint approach to seeing if
motorists are wearing seat belts. In some states, however, checkpoints are
prohibited. If this is the case in your State, work with your leadership and law
enforcement partners to determine what your options are. One alternative to
checkpoints is the Enforcement Zone. Another alternative is sustained
Enforcement.
Spotlight on: Indiana
In Indiana, the Marion County Traffic Safety Partnership created
“Enforcement Zones.” Enforcement Zones are not checkpoints, but are
designated areas where police are stationed to stop cars whose drivers or
passengers are not using seat belts or child restraints. Posted signs
advise motorists that they are passing through an Enforcement Zone and
other signs show the current seat belt use rate, as well as the highest
previously recorded rate. Curb lanes are coned off, violators are stopped
and ticketed, safety materials are handed out and officers call dispatch
on drivers without licenses, registrations or in other unusual situations.
Each Enforcement Zone lasts two to four hours. They are held primarily at
high-crash areas, school zones and areas with low seat belt usage.
During the first six months of Enforcement Zones, in combination with
public awareness, Indiana’s passenger car seat belt use rate increased 5
percentage points and pickup truck seat belt use rose 12 percentage
points, even though the State’s law does not apply to pickup trucks. A
Spotlight on: California
In California, enforcement is constant. Beginning in 1994, all law
enforcement agencies seeking traffic safety grants were required to
include an occupant protection element, with a goal of increasing
compliance with seat belt and child safety seat laws. By 1999, there were
very few municipal agencies that did not consider the education and
enforcement of occupant protection laws as very significant to their
mission. City police departments report that they spend an average of 25
percent of their time on traffic law enforcement. Sheriff’s departments
report committing an average of 12 percent of resources to traffic law
enforcement.
Set a specific date or time period for your enforcement efforts, such as
upcoming holidays or peak travel periods. Be sure your enforcement dates allow
enough time to produce any promotional materials you will need, such as public
service announcements, advertisements or consumer giveaway items (see Appendix
II).
Repeated enforcement efforts = sustained seat belt use
Enforcing a standard seat belt law is not a one-shot deal that ends with your
first implementation effort. Standard law states with high seat belt usage
conduct visible, high-profile enforcement campaigns at least twice per year,
every year. Other states with standard laws move to an ongoing approach, making
enforcement of belt laws a normal and integrated part of an officer’s day-to-day
activities.
As noted earlier, enforcement efforts alone will not get the job done. Strong
enforcement of the law must be combined with widespread promotion before, during
and after to inform people of the law and let them know they will get a ticket
if they don’t buckle up.
Implementing a Standard Enforcement Seat Belt Law in Your State: A How-to GuideStep
4: Stick to the Script—Enforcement and Publicity
Document problems and successes
Conduct your enforcement campaign according to your plan and timeline. Along the
way, document the problems and successes you experience. Schedule a formal “post
mortem” with key players after your campaign is concluded to openly and honestly
discuss what went right, what went wrong and how the effort can be improved.
These “lessons learned,” gathered and discussed in an open environment, will be
critical to helping you run future efforts more smoothly and effectively.
Publicize your results
Publicizing the success of your campaign as it progresses and afterwards will
not only provide you with a means of generating media coverage, but can help to
stem, and even silence, opposition to the law and its implementation. Campaign
data, collected and interpreted through your evaluation process, will
demonstrate the effectiveness of a standard law to legislators, supporters and
partners. Use news releases, fact sheets, community meetings, billboards, and
web sites to put the figures in front of people, in meaningful and easy to
understand ways:
• Number of lives saved
• Number of injuries prevented
• Medical cost savings
• Number of citations issued
• Number of criminal arrests
Spotlight on: Georgia
When a number of citizens complained that police officers should be
spending their time chasing down real criminals and not seat belt
violators, the print media published the results of the criminal
violations uncovered during the seat belt checkpoints and voiced its
support for enforcement agencies to conduct seat belt enforcement efforts.
Successful implementation of standard seat belt laws in one State breeds success
in others, as states looking to pass and implement standard laws use previous
states as models. Of ultimate importance, however, is the fact that successful
implementation of a standard seat belt law will get more people to buckle up.