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Transcript
1. POR AMORCOSTA RICAS SEAT BELT CAMPAIGN
2. Contents01 Introduction02 Objective and criteria of the seat
belt project04 Timeline of seat belt legislation in Costa Rica06
Preparatory campaign phase10 Campaign communication12 The launch of
the Por Amor Use el Cinturn campaign14 The campaign on the
ground...and in the air16 How Costa Rica got its seat belt
legislation: timeline18 Post-campaign evaluation20 Conclusions and
legacy22 Lessons from the Por Amor Use el Cinturn Campaign24
Acknowledgements
3. IntroductionWearing a seat belt is the single most effective
technical road safety measure a car occupant can take. It
isestimated that 300,000 lives have been saved and 9 million
injuries prevented by seat belts in the industrial-ized world since
980. In low and middle income countries, however, the use of injury
prevention devicessuch as seat belts, child restraints and
motorcycle helmets is very low. It is in these countries that 80%
of theestimated .2 million people killed on the roads worldwide
each year die, including many car occupants. It isa major objective
of the FIA Foundation to increase seat belt wearing rates worldwide
among drivers and pas-sengers alike.From the autumn of 2003 until
the summer of 2004, the FIA Foundation supported a nationwide
campaign topromote seat belt wearing in Costa Rica in conjunction
with the Costa Rican Ministry for Transport, the Na-tional Road
Safety Council, the National Insurance Institute and the Costa
Rican Automobile Club.This campaign was a pilot project based on
the principles of best practice developed in the FIA Foundationseat
belt toolkit, which identifies the best methods to raise levels of
seat belt use. The toolkit, prepared byinternational experts at the
UK Transport Research Laboratory (TRL) is especially targeted at
emerging coun-tries that are confronted with an escalating number
of road traffic accidents, injuries and fatalities as a resultof
increasing motorization.In the 990s compulsory seat belt
legislation in Costa Rica was challenged by a group of radical
libertarians.As a result the law was overturned and seat belt
wearing rates fell to only 24%. The principle aim of the seatbelt
campaign in Costa Rica was to reinstate a seat belt law. This
objective was achieved in May 2004 whenthe successful passage of
new legislation once again made seat belt use compulsory for front
and back seatcar occupants.The target was to achieve a seat belt
wearing rate of 70%. However, a national seat belt survey
conductedafter the campaign in August 2003 confirmed that, owing to
a combination of the compulsory seat belt legisla-tion, traffic
police enforcement and a media campaign, this target had been
exceeded and seat belt wearingrates for drivers actually jumped
from 24% to 82%.This evaluation report aims to share the lessons
that the FIA Foundation and our campaign partners havelearned and
to act as a practical tool advising future campaigns. We hope that
the positive results in Costa Ricawill encourage other countries to
undertake similar initiatives.David WardDirector GeneralFIA
Foundation Por Amor: Costa Ricas Seat Belt Campaign |
4. Objective and criteria of the seat belt projectIn 2002 the
FIA Foundation identifies Costa Rica as a candidate country to
pilottest its new seat belt toolkit.The objective of the pilot
project was to put into prac-tice the guidelines of the FIA
Foundation seat belttoolkit to promote seat belt use through
legislation, po-lice enforcement and awareness raising campaigns.It
was considered that the ideal testing ground was asmall developing
or emerging country with a stablepolitical regime and a government
and traffic policethat are committed to promoting seat belt use.
Thecandidate country was also to have an active FIA au-tomobile
club with good networking skills to representthe FIA Foundation
locally.Costa Rica meets criteriaCosta Rica was identified as a
potentially suitablecandidate. It is a democratic country with a
strongrecord of social and economic development. It is asmall
country with a population of 4 million of which amajority live in
the capital city area of San Jos. Costa Rica2 | Por Amor: Costa
Ricas Seat Belt Campaign
5. It has a per capita GDP of US $ 4,300 and an annual Since
the 970s, Costa Rica has been confrontedgrowth rate of %. Although
Costa Rica is still largely with a rapidly increasing number of
fatalities and in-an agricultural country with coffee and banana
planta- juries as a result of road traffic crashes. Road
traffictions, it has expanded its economy to include technol-
injuries became the fourth cause of death and the firstogy and
tourism, and it has become an attractive des- cause of violent
death.tination for outsourcing, especially in software. Thestandard
of living is relatively high in comparison with Although the risk
of dying in a car traffic crash de-its neighbouring countries.
Costa Rica eliminated its creased from 20.8 per 00,000 population
in 970-military spending when it dismantled its army in 949 972 to
7 per 00,000 in 2000-2002, the downwardand invested in education
and health instead. One of trend was not consistent. The National
Road Safetythe former Presidents, Dr Oscar Arias, received the
Council, which was established in 979, decided thatNobel Peace
Prize in 987 for his work in ending the a new approach was required
when the number ofNicaraguan civil war. road traffic casualties
increased by 60.67% over the period 1996-2000. Traffic police
reported a rise in se-Following the national elections in the
spring of 2002, rious injuries of 71.26% in the year 2000 in
compari-the Automobile Club of Costa Rica approached the son with
1996, and a 61% rise in the number of minornew government to
consider embarking on a national injuries between 997 and 2000. It
became evidentseat belt wearing campaign. President Dr Abel Pa-
that there was no mechanism in place to begin to re-checo of the
Social Christian Party appointed a young duce these numbers or even
to maintain the statusand dynamic team at the Transport Department:
quo.Transport Minister Javier Chavez and Vice-Ministerfor Transport
Karla Gonzalez, who were joined to- The government decided to work
with the Globalwards the end of 2002 by Ignacio Snchez as the Di-
Road Safety Partnership (GRSP) and a five-yearrector of the
National Road Safety Council and Head road safety plan was
developed which set a target toof the Traffic Police. reduce the
mortality rate from 7.0 per 00,000 pop- ulation in baseline year
2000 to 4.4 per 00,000Assessment of the road safety situation by
2005. Between 998-2004 the Road Safety Coun- cil received technical
assistance in road safety fromin Costa Rica SweRoad, a consultancy
subsidiary of the Swedish National Road Administration.Costa Rica
is a recently motorized country that sawvehicle fleet growth of
62.32% from 1981-1990 and32.78% between 990 and 200. The vehicle
parkin 2003 was estimated at 790,000 units, of which anaverage of
60% is more than 12 years old.Costa Ricas road network consists of
30,000 km ofroads, of which approximately 7,000 km are
paved.According to figures from the National Road SafetyCouncil,
49% of the road infrastructure is in poor con-dition. The roads
also mix fast and slow traffic and thisis a particular problem on
semi-motorways with maxi-mum speed limits of up to 00 km/h that run
throughcommunities. Though pedestrian bridges have beenbuilt in
places, they are not systematically used.The most common road
traffic risk factors as identi-fied by the National Road Safety
Council are drinkdriving, speeding, not respecting traffic lights
anddangerous overtaking. Casualty rates among pedes-trians are very
high. Road traffic statistics for the pe-riod 998-2000 show that
car drivers were fatalitiesin 40% of fatal crashes, followed by
pedestrians at26%. Costa Rica has lacked a road safety culture.The
motorisation of the country only began in earnestaround 30 years
ago and many people belong to thefirst generation of car drivers,
with no previous familyrole models from whom to learn road skills
and be-havior. Driver training remains poor. Por Amor: Costa Ricas
Seat Belt Campaign | 3
6. Timeline of seat belt legislation in Costa Rica23 October
1986 first seat belt 19 August 1997: Seat belt
legislationlegislation repealedIntroduction of the first compulsory
seat belt legisla- Decision Constitutional Court Decision N
473-97tion by Ministerial Decree N 17726-MOPT, which Article 32, f
is considered unconstitutional after amakes seat belt wearing
compulsory for front and heated debate during which three dissident
judgesrear seat vehicle occupants. claim that it is the duty of the
State to introduce laws to protect the lives of Costa Rican
citizens and that21 April 1989 this justifies the compulsory seat
belt legislation and a system of sanctions for
non-compliance.Second Ministerial Decree N 8957-MOPTRequirement for
all vehicles to have front and rear However, the Court does not
accept this argumenta-seats equipped with seat belts and anchorages
in tion and rules that:compliance with international standards and
regu-lations. The Decree does not set sanctions for non- Costa
Ricans are free citizens and shouldcompliance but refers to article
105 of Road Traffic be left a choice;Act N 5930: Road traffic
offences, for which no spe- Wearing a seat belt should remain an
indi-cific sanctions are defined, will carry a fine between viduals
choice as choosing not to buckle up40 and 300 colones. does not
harm other people or disturb public order;12 December 1990: Seat
belt legislation criminal law sanctions should be reserved only
when it is the most efficient way torepealed achieve the objective
of legislation and in the case of seat belt wearing, less
intrusiveConstitutional Court Ruling N 877-90 declares that means
exist to convince people.article 105 of the above mentioned Road
Traffic ActLaw is in contradiction with article 29 of the Consti-
The Constitutional Court maintains the requirementtution because it
does not define the nature of the to use seat belts for children
under 2 and to restraincriminal offence. babies in child seats.22
April 1993: Second seat belt 1997: comparative studies into effects
oflegislation seat belt wearingNew Road Traffic Legislation is
introduced to restore The first study conducted by the National
Road Safe-police enforcement for non-compliance with seat belt ty
Council compares the number of in-situ road trafficwearing in
Article 132, f. The traffic offence is de- fatalities, the type of
injuries sustained and the typefined this time and the fine for
non-compliance is set of crash before and after the judgment of the
Con-at Colones 2,000. stitutional Court in August 997. The study
reveals that from September to October 997, the number of9 July
1996: in-situ fatalities increased by 58.36 % compared with the two
months preceding the judgment.Legal actions against the seat belt
legislation are tak-en by two lawyers after they are given a ticket
for not The second study compares the number of in-situwearing
their seat belts. They argue that the legisla- fatalities in
frontal impact car crashes that occurredtion contradicts article 28
of the Constitution, which during the six months preceding (January
Augustsays that individual behaviour that does not disturb 997) and
six months after (September December)public order or moral values
and does not cause dam- the judgment of the Court. Again a
significant differ-age to third parties is outside the remit of
legislation. ence is noted.4 | Por Amor: Costa Ricas Seat Belt
Campaign
7. 1 February 1998 1999: Legislation repealed by the
Constitutional CourtThe Road Safety Council holds the first
nationwideseat belt wearing survey which reveals a wearing rate The
Health Decree is challenged by Constitutionalof only 9% among
drivers and 8% among front seat Court decision 5330-99.passengers.
October 1999:Feb-March 1998 Third seat beltlegislation A third seat
belt wearing survey reveals that follow- ing the latest repeal of
legislation wearing rates haveMinisterial Decree N 26717-S
introduced by Health plummeted to a mere 23% among drivers and
20%Minister Herman Weinstock and the Road Safety among front seat
passengers.Council presents seat belt wearing as an interventionto
address a public health problem. The objective is 28 June 2001to
reduce one of the most important causes of injuriesand fatalities
on a national level and to protect the Constitutional Court defines
that only minors of agehealth of the motor vehicle driver, the
passengers and and disabled persons are legally required to be
re-of other drivers and road users. The Decree states strained and
that drivers who do not comply with thisthat the serious nature of
the injuries sustained by requirement will be given a fine of
Colones 2,000.the victims traveling without a seat belt in motor
vehi-cles requires priority medical attention at the expenseof
other patients; and the economic costs of medicalcare to the
victims is a burden to the Costa RicanState and its citizens.
Traffic police officers are con-sidered health officials of the
Minister for Health andarticle 2 sets a sentence of 5 to 30 days
for non-com-pliance.2 March 1998:A seat belt survey conducted by
the National RoadSafety Council to measure the effects of this seat
beltlegislation under a health label reveals a 65% wear-ing rate
among drivers and 60% among front seatpassengers.3 June 1998:The
positive trend is confirmed in another seat beltwearing survey with
seat belt wearing levels of 62%among drivers and 61% among front
seat passen-gers. Por Amor: Costa Ricas Seat Belt Campaign | 5
8. Preparatory campaign phaseThe FIA Foundation works with the
Government of Costa Rica and other roadsafety stakeholders to
develop a strong campaign.The first mission visit to Costa Rica
took place in Sep- Initial contacts were made with the Minister of
Trans-tember 2002 and the key preliminary tasks were set: port
Javier Chavez, Head of Road Safety projects Roy Rojas at the
National Road Safety Council, and Carry out an initial assessment
of the cur- Germn Serrano Pinto, Director General of the Na- rent
situation regarding seat belt use in tional Insurance Institute
(INS). The National Insur- Costa Rica; ance Institute is a
semi-governmental body that holds a monopoly position in the
insurance sector and is Identify the lead agency in Costa Rica that
required by law to commit 0% of its income to road would take
overall responsibility for imple- safety campaigns. The INS is also
a funding agency menting the campaign; for the fire brigade and the
traffic police. Identify potential external partners from It was
evident that there was a lot of interest in a seat leading
companies or other donors involved belt wearing promotion campaign,
but it was Dr Pinto in Costa Rica; who identified where the main
challenges lay. Costa Rica had lost its compulsory seat belt
legislation and Draw up an overall optimal budget for the despite
several attempts to revive it, efforts remained campaign with a
breakdown of the contribu- fruitless. The FIA Foundation discussed
the possibil- tions by partner; ity of reinstating seat belt
legislation and the Minister of Transport committed himself to
starting the neces- Establish a Project Partnership with Steering
sary legislative process. Group to take forward the campaign imple-
mentation.6 | Por Amor: Costa Ricas Seat Belt Campaign
9. During the mission visit, agreement was reached onthe
requirements for a seat belt campaign funded bythe Foundation: The
seat belt campaign was to be based on the best practice guidelines
of the FIA Foun- dation seat belt toolkit; Compulsory seat belt
legislation and police enforcement were to be put in place; In
order to measure the impact of the cam paign, seat belt use was to
be evaluated as a minimum requirement before and after the FIA
Foundation seat belt toolkit campaign, and a mid-term survey was
rec- ommended; Only a long-term campaign is effective in changing
seat belt wearing habits. It was therefore recommended that
reminder campaigns should reinforce the effects and that police
enforcement should be sus- tained; The timetable of the campaign
was flexible but the Foundations recommendation was to either
conclude the campaign on World Health Day on 7 April 2004, the
first World Seat belt toolkit interactive demonstration Health
Organisation (WHO) annual public health campaign day dedicated to
road traffic safety, or to present mid-term results on that day;
The resources offered by the FIA Founda- tion consisted of its best
practice seat belt toolkit, the campaign literature featuring a
crash test dummy family, the donation of a seat belt slide to
simulate the protection that seat belts offer in low speed impact
crash- es and the use of a crash test dummy suit. The FIA
Foundation also made available funding of $370,000 and the Costa
Ricans were asked to find additional funding among the government
or corporate partners. Por Amor: Costa Ricas Seat Belt Campaign |
7
10. Second mission visit to Costa Rica - Sharing responsibility
for safer roads called for in-December 2002 ternational political
action to reduce the dramatic glo- bal increase in road traffic
casualties. The conferenceIn December 2002, a second FIA Foundation
mission was attended by government ministers, UN agen-was
undertaken to consolidate contacts and to meet cies, international
organizations, NGOs and roadthe newly appointed Director of the
National Road safety groups. Costa Ricas Vice-Minister for
Trans-Safety Council, Ignacio Snchez, who had also been port, Karla
Gonzalez, spoke at the event about hermade Head of the Road Traffic
Police. countrys experience and it was during side meetings that
the FIA Foundation finally concluded a partner-During this visit it
became clear that the Costa Rican ship with the Transport Ministry.
It was agreed that theMinistry of Education was preparing a
National Val- Road Safety Council, COSEVI, would take the leadues
Campaign to teach Costa Rican school children in organising the
campaign by preparing a strategycivic rights and duties, a key
element of President document and a campaign budget and beginning
itsPachecos election platform. The Ministrys proposal search for
partners in Costa Rica.was to incorporate seat belt wearing into
the valuescampaign. The Ministry of Education benefits by lawfrom
free aerial time for educational and awarenessraising campaigns but
did not have enough fundsto produce TV slots. It therefore proposed
to makeavailable 20% of its broadcast time to the FIA Foun-dation
for TV slots on seat belt wearing in exchangeof funds for the
production of the National Values TVcampaign.The FIA Foundation saw
some attraction in workingwith the Education Ministry to guarantee
some airtime for road safety adverts. However there was aconcern
that the road safety message could lose itsimpact if it was just
one element in a wider valuescampaign. There was a danger that this
could result Costa Rican Transport Minister Karla Gonzalezin a
lessening in the Transport Ministrys commitment speaking at the
Sharing Responsibility conferenceto initiate seat belt legislation.
Campaign partnership and fundingIt was proposed by the Costa Rican
authorities thatfour road safety TV spots would focus on courtesy
on A core campaign steering group was established con-the road and
respect for authority (i.e. the road traffic sisting of the
Transport Ministry, the National Roadpolice), in line with the
Education Ministrys Values Safety Council (COSEVI), the National
InsuranceCampaign. It was also proposed that a dedicated Val-
Institute (INS), the Costa Rican Automobile Clubues magazine would
be produced and distributed in and the FIA Foundation. Campaign
activities wereexchange for the inclusion of the seat belt campaign
planned with entities such as the renowned Nationaland production
of handbooks on road safety for use Childrens Hospital in San Jos
which has a lineagein schools. However, on evaluation, there were
ques- of Directors with a strong road safety connection; thetions
about the cost effectiveness of these school Costa Rican Social
Security Organisation, and the lo-education materials. cal Pan
American Health Organisation (PAHO) rep- resentation.The FIA
Foundation was concerned that this mix ofmessages could potentially
weaken the central objec- COSEVI initially took on the coordination
of the cam-tive of the campaign: to restore seat belt legislation.
paign because of its technical expertise in road safetyThis concern
was shared by some of the Costa Rican and resources.officials and
the Education Ministry decided not toparticipate as a main partner
in the campaign. The FIA Foundation was able to participate in the
campaign through the Automobile Club of CostaFIA Foundation
conference Sharing Rica. The ACCR became the recipient of the FIA
Foundation grant of $370,000, which was designatedResponsibility
for Safer Roads - for campaign development and operation
(includingFebruary 2003 materials). The club also appointed a
dedicated cam- paign coordinator and hired a PR agency to focus
onOn February 2003, the FIA Foundation hosted getting the media to
write about the campaign.an international road safety conference in
London.8 | Por Amor: Costa Ricas Seat Belt Campaign
11. The objective was to use free media to inform the The
target indicators were defined as follows:public of the benefits of
the seat belt; to rally sup-port from the public for a compulsory
seat belt leg- An increase in the seat belt wearing rate
toislation; fuel debates on whether individual freedom 40% among
drivers and passengers of mo-should take precedence over protecting
human life; tor vehicles as a result of a mass mediato publish
testimonials of well known public figures campaign;who were saved
by a seat belt; and, ultimately, to putserious pressure on
politicians. An increase in the seat belt wearing rate to 70 % as a
result of a combination of compul-Although Costa Rican private
companies became in- sory seat belt legislation, police
enforcementterested when the campaign was in full swing, there and
a mass media campaign;was no initial involvement or funding in the
campaignfrom private sources. Local funding came exclusively A 50 %
reduction of the number of fatalitiesfrom COSEVI and the INS. The
role of these organi- and seriously injured as a result of
frontalsations was particularly important in securing funds road
traffic crashes.for a paid media campaign. Because the
EducationMinistry was no longer involved and its air time offer The
COSEVI also laid out a basic campaign scheduleno longer available,
there was no initial budget to pur- consisting of a:chase air time.
$ 500,000 was raised by the NationalInsurance Institute and $
250,000 by COSEVI, mainly Pre-campaign: to include conducting a
pre-evalu-for this purpose. ation seat belt wearing survey;
developing campaign materials and initiating political lobbying for
new seatDevelopment of the campaign belt legislation.The campaign
strategy document prepared by CO- Campaign: To launch the campaign
and involveSEVI in consultation with the FIA Foundation set the
mass media; to seek the support of the Presidentincreasing the use
of seat belts as a general objec- of the Republic; to distribute
campaign materials; totive which would then contribute to a
reduction in the begin soft police enforcement involving
distributionnumber of fatalities and seriously injured as a result
of campaign materials and providing road safety ad-of road traffic
crashes. vice to motorists; to use all the above tools to influ-
ence and persuade Parliament to introduce new seatIn view of the
failed attempts in the past to restore the belt legislation.seat
belt legislation, the means to achieve this goalwere cautious:
Post-campaign: Evaluation of the campaign by Quantitative and
qualitative seat belt wear means of a seat belt survey; and, in the
event of suc- ing surveys before, during and after the cessful
approval of legislation, high profile police en- campaign;
forcement through traffic penalty notices. a mass media awareness
campaign based In its strategy paper, COSEVI set out that sustained
on a mix of emotional and rational messag-es; campaign activities
would be required to change hu- man behaviour over the longer term,
and confirmed demonstrating the effectiveness of the seat its
commitment to continue monitoring seat belt use belt by means of
the FIA Foundations low over an initial period of four years.
impact crash seat belt slide; to lobby the Constitutional Court and
the Parliament, and seek public endorsement from the President of
Costa Rica for a reha- bilitation of the seat belt legislation. Por
Amor: Costa Ricas Seat Belt Campaign | 9
12. Campaign communicationThe central message of the campaign
is based on the concept of love and responsibility; thecampaign
icon a heart secured by a seat belt.A further FIA Foundation
mission to Costa Rica fol-lowed in May 2003 to discuss progress on
the seatbelt campaign and to finalise the campaigns commu-nication
toolsThe FIA Foundation endorsed a proposal from CO-SEVI which
included two TV spots on seat belt wear-ing and two on the role of
the traffic police to demon-strate to Costa Ricans their role in
road safety. Publicopinion research had revealed a lack of public
trustin the road traffic police arising from perceptions offraud
and inefficiency, a problem which was being ad-dressed by the newly
appointed Head of Police Igna-cio Snchez. The seat belt campaign
was seen asan excellent opportunity, through soft enforcement ofthe
seat belt message and through TV advertising, topresent a more
positive image of the police.0 | Por Amor: Costa Ricas Seat Belt
Campaign
13. At the time of this mission visit, the FIA Foundationhad
finalized the campaign materials which were toact as a supplement
to the Foundations seat belttoolkit. These materials are based
around a family ofcrash test dummies who illustrate the facts about
seatbelt wearing.The Costa Rican campaign team decided to
producetheir own TV spots with a human and emotional mes-sage, but
they adopted the FIA Foundations crashtest dummy character as the
campaigns ambassa-dor.The central human and emotional message of
thecampaign was based around the concept of love andresponsibility,
with a campaign icon featuring a trafficsign with a heart secured
by a seat belt. The cam-paign slogan Por Amor Use el Cinturn (For
love Elliot Coen, ACCR; Karla Gonzalez and ACCRuse your seat belt)
deliberately did not demand that President Carlos Macaya discuss
strategyCosta Ricans obey an order, something which hadproved so
disastrous in the past, but asked them tomake the choice to wear a
seat belt for the sake offamily and friends.TV spots were produced
on seat belt and child seatuse, backed up by dramatic radio
testimonials of peo-ple who survived a car accident because they
werewearing a seat belt at the time of the crash or thetragic
stories of those who never recovered from theinjuries they
sustained.In addition to the core seat belt messages, additionalTV
spots on dangerous overtaking, speeding and jaywalking were
produced. These adverts portrayed thepolice in a positive, friendly
and helpful light, makingclear that achieving improved road safety
was not aquestion of them and us but a shared endeavour.The adverts
always concluded with the same signa-ture slogan Por Amor Use el
Cinturn, representingseat belt use as being at the heart of all
sensible roadsafety behaviour. Por Amor: Costa Ricas Seat Belt
Campaign |
14. The launch of the Por Amor Use el Cinturn campaignThe
campaign is launched with Presidential support and the legislative
process begins.September 2003: The campaign materials were Given
his high profile in Latin America, the Columbianready; the
supportive politicians and members of F driver Juan Pablo Montoya
was invited to endorseParliament prepared for the task of
reintroducing the the Por Amor campaign at the launch on 30
Septem-legislation; the traffic police geared up for an active ber.
An advance press conference was held in Costarole in bringing the
message to the people. Rica to introduce the seat belt campaign and
the en- dorsement visit of Juan Pablo Montoya. Invitations forA
national seat belt wearing survey was carried out by the
inauguration of the campaign on 30 SeptemberCOSEVI in the summer of
2003 to pre-evaluate seat were sent out and the President of Costa
Rica, politi-belt wearing rates, to identify the attitude of Costa
Ri- cians and Members of Parliament confirmed their at-cans towards
seat belt wearing and to assess their tendance.knowledge of the
effectiveness of the seat belt. Thesewere the baseline data to be
presented at the start of Unfortunately due to a minor illness Mr
Montoya wasthe campaign on 30 September, in line with the cam-
unable to attend the launch but promised to visit Cos-paign best
practice advised in the FIA Foundations ta Rica later in the
campaign.seat belt toolkit. The launch event went ahead and proved
to be aThe FIA Foundation encorages celebrities to endorse success.
The Transport Minister Javier Chvez an-its campaign activities.
Through the Foundations nounced that the government was going to
submit aconnections with motor sport it has used F drivers proposal
for new compulsory seat belt legislation asas road safety
ambassadors. F stars can be par- part of a reform of road traffic
legislation and urgedticularly useful because they appeal to young
male Members of the Parliament and the judges of thedrivers, the
greatest at risk motoring demographic Constitutional Court to
support it. The President ofand one of the target audiences for
safer driving mes- the Parliament, Mario Redondo, and the author of
thesages. original seat belt legislation of 1986, Dr Edgar Mohs MP,
endorsed the initiative.2 | Por Amor: Costa Ricas Seat Belt
Campaign
15. Data released by the Traffic Police clearly showed theneed
for legislation: 92% of the people who died in acar traffic
accident were not wearing a seat belt whenthe crash occurred. The
results of the seat belt surveyheld in July 2003 were also
presented to the press:only 24% of the drivers, 16% of the
passengers and8% of the children were found to be
restrained.Presidential supportAlthough the President of Costa
Rica, Dr AbelPacheco, was unable to attend the launch event,
heendorsed the seat belt campaign a week later in hisannual state
of the Nation and he made an appealto the Costa Ricans to support
seat belt wearing. Inhis speech he said the following: but there
are other actions that the vehicle driversthemselves must take:
avoid drink driving, drive cau-tiously and wear their seat belt and
ensure that theirpassengers belt up as well. According to the most
re-cent data, 92% of the drivers who died in car trafficaccidents
were not wearing their seat belt. The useof the seat belt would
have prevented 40% of thesefatalities and up to 50% of injuries
sustained by thesurvivors of car crashes.This week we have launched
a seat belt campaignand we have introduced a proposal for
compul-sory seat belt legislation. This is not a coincidencebecause
there is evidence that the seat belt saveslives. I hope that the
General Assembly will approve,among the other reforms to the road
traffic legislation,the compulsory use of the seat belt as well as
thereform that will make it a traffic offence to drive underthe
influence of alcohol or drugs. Many lives in CostaRica will be
saved if legislation is stricter and driversshow a better sense of
responsibility.I am making an urgent request that we keep our
vehi-cles in good condition, that we use the seat belt andthat we
drive carefully. This is a matter of saving hu-man lives, which is
the most important mission in alifetime that we could possibly
achieve. The campaign is supported with TV, newspaper and roadside
advertising Por Amor: Costa Ricas Seat Belt Campaign | 3
16. The campaign on the ground...and in the airAdvertising,
education and enforcement combine as the campaign hits the streets
- anddebating chambers - of Costa Rica.Following the launch, the
campaign began in earnest The traffic police were enthusiastic
partners in theduring October 2003. campaign, developing their
positive relationship with motorists through soft enforcement
advice stopsThe FIA Foundation had donated a seat belt simu- where
they encouraged car occupants to wear theirlator to the Automobile
Club of Costa Rica, and this seat belt and handed them campaign
advice litera-toured shopping malls, festivals, fairs and schools
ture.throughout the country to give people the opportu-nity to
experience the benefits of the seat belt in low The Costa Rican
campaign team also created a realspeed crashes. personality in the
crash test dummy character devel- oped by the FIA Foundation. The
dummy was givenThe heart icon of the campaign became ubiquitous,
the name (in English) Sir Hard Crash, assumed awith the campaigns
advertising present on road side professorial air and was featured
on leaflets recom-billboards, on traffic signs and on bumper
stickers. mending seat belt use that were distributed during
theHundreds of thousands of stickers, leaflets, goody campaign. A
life size crash test dummy suit was madebags and badges were
distributed. available by the FIA Foundation, so Sir Hard Crash was
able to join the seat belt simulator in person and even accompanied
politicians on the campaign trail to pass on the seat belt
message.4 | Por Amor: Costa Ricas Seat Belt Campaign
17. While the campaign was visible on the streets, it wasalso
unavoidable on TV and radio. The highly pro-fessional TV and radio
adverts, with their carefullycrafted positive messages of shared
respect, loveand responsibility, established the personality ofthe
campaign in a way that roadside and communityactivities alone could
not. The paid media campaignwas complemented by the free media
campaign,which achieved significant quality press and
mediacoverage, including positive editorial.Breaking parliamentary
deadlockAt the outset of the campaign the government pledgedto
introduce a reform of the road traffic legislation andurged the
Parliament and the members of the Consti-tutional Court not to
unnecessarily delay the seat beltlegislation with
amendments.However by December 2003, more than two monthsafter the
launch and despite the sophisticated aware-ness campaign, the
reform of the road traffic legisla-tion had still not been
presented in Parliament. Thiswould soon change. In the second week
of December,independent filmmaker Richard Stanley visited CostaRica
on behalf of the FIA Foundation to gather foot-age for a film on
road safety advocacy. The Automo-bile Club arranged interviews with
the key players ofthe campaign and the seat belt simulator was
filmedduring its demonstration tour. Stanley also visited theTrauma
Department of the National Childrens Hospi-tal in San Jos and met
with the Head of the Depart-ment, Dr Vargas, who eloquently
described the griefand guilt of parents whose unsecured children
hadbeen killed or maimed in a crash.Richard Stanley then went to
interview Mario Re-dondo, the President of the Parliament. On
hearingabout the delay in the legislative process, Mr Redon-do
immediately decided that he would be prepared tosubmit an own
initiative bill to speed up the process.With compulsory seat belt
use being just one of theamendments in the new road traffic
legislation, thelegislative process would take too long. Mr
Redondoagreed with the Transport Minister Javier Chavez totable the
most urgent articles of the road traffic legis-lation for a first
debate before the Christmas holidays:Articles 79 on compulsory seat
belt wearing and Ar-ticle 37 on drink driving. As a result of this
interven-tion, Mr Chavez agreed with the proposal and in amatter of
a few minutes the seat belt legislation wasreleased from its
deadlock. Por Amor: Costa Ricas Seat Belt Campaign | 5
18. How Costa Rica got its seat belt legislation:
timelineFriday, 19 December 2003: At .44 p.m., article 79 on
compulsory seat belt leg- islation is approved with 43 votes in
favour and fiveTwo articles to be modified in the road traffic
legisla- votes against. Also approved is article 37. The sec-tion
are tabled for debate: Article 79 on compulsory ond vote is
scheduled after the Parliament returnsseat belt wearing imposing a
fine of 20,000 colones from recess on 9th January. The Transport
Ministerfor non-compliance; and article 37 that enables traf-
declares to the press that even if this first vote is onlyfic
police to suspend a drivers license for a year if the the first
step to legislation, it arrives just in time fordriver is caught
drink driving. In the past the license the holiday season when the
road toll is highest. Thelost its validity for 6 months but the
driver was allowed positive legislative developments, informative
trafficto keep it on the vehicle and exploiting this loophole
police actions and the ongoing media campaign willdrivers had
continued to use their vehicle. help the habit of wearing a seat
belt to take hold.The Libertarians submit 25 amendments and makea
vote on the seat belt wearing article impossible.However, the
Government refuses to let MPs go intorecess until this piece of
legislation is voted on. MPsare unable to gather enough votes to
overrule theGovernments decision because the Peoples ActionParty
refuses to support the recess for ethical rea-sons. The first
debate and vote are referred to anexceptional session on
Monday.Monday, 22 December 2003:The debate starts at 3 p.m. and the
Minister andVice-Minister for Transport attend to support the leg-
Transport Ministers Javier Chavez and Karlaislation. During
negotiations, the text of the seat belt Gonzalez at a campaign
press conferencelegislation has been slightly amended reducing
thefine from 20,000 to 8,000 colones. But the Libertar- 26-28
December:ians still offer fierce resistance and at 10.30 p.m.
theymaintain three amendments, which according to the The exodus to
the beaches and other holiday desti-rules allow their three
representatives fifteen minutes nation has begun. Five hundred
traffic police officersspeaking time on each. This would inevitably
take the take to the main access roads to ensure that trafficdebate
well past midnight, contrary to regulations. is fluid and at the
same time they promote the infor-The Libertarians obstructive
behaviour provokes mation campaign on seat belts. Vice-Minister
Karlafierce reactions in the Congress and one of the MPs Gonzalez,
eight months pregnant at the time, cam-shames the Libertarians for
having to live with the paigns on the national roads accompanied by
Sirresponsibility for all the road traffic accident deaths Hard
Crash, the FIA Foundations crash test dummy.that will occur in the
future if they continue to block Together the unusual pair
distribute information leaf-the legislation. The Libertarians have
to give in to the lets on the merits of seat belts to car
driversimmense pressure.Traffic Police Director, Ignacio Snchez,
debates aLibertarian MP16 | Por Amor: Costa Ricas Seat Belt
Campaign
19. 19 January 2004: 5 May 2004:The Libertarians consult the
Constitutional Court to The seat belt legislation comes into force
with thegive its verdict on whether the compulsory seat belt
publication in the Official Journal La Gaceta. The traf-legislation
violates the principle of personal freedom. fic police announce
that there will be a grace period of two weeks, to allow Costa
Ricans to adjust to the newIn a letter to Karla Gonzalez the FIA
Foundation of- legislation. In the meantime, they continue their
softfers to rally political support from international road
enforcement activities.safety forums and to provide technical
evidence ofthe benefits of the seat belt to provide arguments tothe
Constitutional Court.17 February 2004:The Constitutional Court
decides in judgment 2004-01603 that making seat belt use compulsory
for driv-ers is not unconstitutional. However, it judges that
theproposed fine imposed on the driver if passengersare not buckled
up is unconstitutional because it con-siders that the driver has no
direct responsibility overthe passengers.The Parliaments Transport
Committee discusses theCourt judgment and decides to disregard it
and tomaintain the original text of the legislation.The Automobile
Club steps up efforts to boost sup-port from the public and gathers
160,000 signaturesfrom school children which children then hand
over inperson to the President of the Parliament.13/14 April 2004:
19 May 2004:The legislation requiring compulsory seat belt use
forboth drivers and passengers is approved in the sec- Police
enforcement of the seat belt legislation startsond debate.
officially. From the early morning hours major police checkpoints
are organised, attracting huge media coverage. The traffic police
have only 450 officers available for control activities, but roads
are blocked and exits closed to create a sense of omnipresence. In
his statement to the press, Head of Police Ignacio Snchez explains
that the police will issue a ticket each time you are caught even
if it is two or three times a day and that he will not rest until
everybody is wearing a seat belt. By the end of the day 625 tick-
ets are issued for non-compliance with the law. By 5 August, this
number will increase to 4,975 tickets.MPs celebrate passage of
legislation15 April 2004:Deputy Transport Minister Karla Gonzalez
makes astatement announcing the seat belt campaigns vic-tory at a
United Nations Stakeholders event in NewYork, the day after she has
addressed the first everUN General Assembly debate dedicated to
road safety. Por Amor: Costa Ricas Seat Belt Campaign | 7
20. Post-campaign evaluationAny campaign is only as good as its
results..in this case increasing seat belt use andreducing
fatalities.Although it was initially agreed that a mid-campaign
Seat belt wearing rates increased as follows:seat belt evaluation
survey would be held on a na-tional level, this did not happen
because COSEVI had July August %to divert resources to the
advertising budget. 2003 2004 IncreaseAn intermediate seat belt
survey in February or March Drivers 24% 82% +58%would have allowed
the effects of the advertisingcampaign and of the ongoing debates
in newspapers Front seat 16% 76% +60%and on TV in the run-up to
compulsory legislation to passengersbe measured. Back seat 0% 48%
+38% passengersMost important was to hold a survey once the seat
Child seats 08% 37% +29%belt legislation and police enforcement
came intoforce to measure the combined effects of all the ele-ments
of the campaign. COSEVI and the automobileclub joined forces to
carry out the survey in August The survey also included interviews
with drivers2004. The survey results showed a sharp increase to
understand why people do not wear seat belts;in seat belt wearing
rates from the first survey held in whether they know what the
risks are of not wearingJuly 2003, prior to the start of the
campaign. seat belts; what they believe to be the most efficient
measures to increase seat belt use; and what mes- sages or images
they remember from the awareness campaign.8 | Por Amor: Costa Ricas
Seat Belt Campaign
21. This led to some interesting results: The longer the
journey, the more likely driv- ers are to use their seat belt;
Reasons given for not wearing a seat belt included the excuses that
people find it un- comfortable (they find it hard to move, it
bothers them when it is hot or they find that the anchorage of the
seat belts is too high) or that they keep forgetting about putting
the seat belt on; However, people seem to be aware that not wearing
a seat belt when you have an ac- cident can cause serious injuries
or even be Campaign workers from the Automobile Club of fatal
(90.8% of the drivers); Costa Rica (ACCR) Of those questioned, 68%
remembered seeing or hearing the seat belt awareness campaign on TV
or radio;The survey also studied whether the behaviour of thedriver
who does not buckle up has an influence onthe passengers. The
analysis of the data shows thatthere is indeed a correlation. Front
seat passengersare less likely to wear their own seat belts (7%)
ifthe driver is not buckling up. Back seat passengersseem to have
even less incentive to put their seat belton with 87% failing to
buckle up. None of the childrenwere found to be properly restrained
when the driverwas not wearing a seat belt. A clear message
cameacross from the evaluation survey: that a lot of workis needed
to get across how vital child restraints arefor protection. Child
safety was identified as a particular concernJuan Pablo Montoya
endorses thecampaignAfter the conclusion of the formal campaign,
the Au-tomobile Club of Costa Rica took the opportunity toinvite
the Colombian Formula One driver Juan PabloMontoya for the second
time to give his support forthe campaign and to maintain the
momentum for seatbelt use. Montoya agreed to visit in December
2004.At a press conference in San Jos, attended by Mon-toya and the
new Transport Minister of Costa Rica,Randal Quiros, the results of
the second national seatbelt wearing survey were made public. Juan
Pablo Juan Pablo Montoya supports the campaign,Montoya was also
guest of honour at an awards cer- December 2004 (F Racing: Darren
Heath)emony hosted by the automobile club to pay homageto the
political leaders who supported the new seatbelt legislation and
the awareness campaign. Thesewere Javier Chavez, the former
Minister for Transport;Karla Gonzales, former Vice-Minister for
Transport;Ignacio Sanchez, former Head of Road Traffic Policeand
Director of the Road Safety Council; and MarioRedondo, the former
President of the Parliament. Por Amor: Costa Ricas Seat Belt
Campaign | 9
22. Conclusions and legacyHow effective was the campaign
inachieving its policy objectives?The campaign accomplished its
mission in terms ofrestoring seat belt legislation and introducing
trafficpolice enforcement. However, the countrys efforts tochange
the attitudes and behaviour of Costa Ricanroad users continue. The
new Director of the RoadSafety Council Roy Rojas is adamant that it
will takeat least four years before Costa Rica will be able toclaim
that it has undergone a genuine behaviouralchange. Police
enforcement of the new seat beltlegislation is therefore to be
maintained. Dedicatedenforcement campaigns are held during Easter,
sum-mer and Christmas holidays in combination with safe-ty issues
such as drink driving and speeding. In 2004, Private funding and
support was attracted by the321 people were reported to have died
in a car traffic campaigns successaccident which was 42 fewer than
in 2003. COSEVIand the INS dedicated extra funding for additional
airtime for the TV and radio spots to keep the heart ofthe campaign
beating.20 | Por Amor: Costa Ricas Seat Belt Campaign
23. How effective was the campaigncommunication?Post-campaign
evaluation suggests that the aware-ness campaign retained high
levels of recognitionamongst the public some months after the main
me-dia campaign had ended. The key creative elementsof the campaign
were originated and executed by theCosta Rican campaign team and
clearly benefitedfrom local cultural and political expertise.The
heart icon has become so popular that it is nowbeing used in
COSEVIs campaign on pedestriansafety. Wherever a pedestrian is hit
by a car whilecrossing the road, a heart with a halo is painted
onthe road surface. COSEVI is also constructing pedes-trian bridges
to provide safe crossing of busy roadsCOSEVI is also running a
campaign focusing on childrestraints, Por amor, abrchelos (For
love, restrainthem) together with the National Childrens
Hospital,the Debra Foundation a charity organisation dedi- Costa
Rican children campaign for road safety, 2005cated to supporting
children affected by skin diseases the technical inspections
company Riteve and theAutomobile Club of Costa Rica. The aim of the
cam-paign is to educate parents on the need for childrenbetween 0
and 2 years old to travel in a special carrestraint system at all
times. At the same time the CO-SEVI is also lobbying to extend the
Costa Rican legis-lation, which currently only requires restraint
systemsfor children up to four years old, to compulsory use
ofrestraint systems for children up to 2.The FIA Foundation crash
test dummy has subse-quently become a global road safety icon, both
in theFIA Foundations own Think Before You Drive cam-paign and
through use of the FIA Foundation seatbelt toolkit, which is being
used as the basis of seatbelt campaigning by organisations across
the world.The Costa Rican experience, with Sir Hard Crashshows how
the crash test dummy can be adoptedand adapted to suit different
campaigns and circum-stances, while the underlying road safety
characteris-tics and message portrayed by the character remainsthe
same.The FIA Foundation seat belt toolkit also provided alogical
and practical framework for campaign plan-ning. The toolkit has
subsequently been used as themodel for a series of official United
Nations manu-als on road safety risk factors being produced by
theUnited Nations Road Safety Collaboration. The FIA Foundation
crash test dummy has become a global road safety icon Por Amor:
Costa Ricas Seat Belt Campaign | 2
24. Lessons from the Por Amor Use el Cinturn Campaign,
Political champions are vital Campaigns need a clear messageThe
support and commitment of the ministers in the There was a danger
at one stage in the developmentTransport department; the President
of the Parliament of the campaign that the core issue of seat belt
useand the President of the Republic were essential in would be
lost in a wider values campaign. By refusingmaintaining momentum at
key stages in the develop- to compromise on the campaign content,
even at thement and execution of every aspect of the campaign. risk
of losing financial support, the campaign steeringThe Deputy
Transport Minister, Karla Gonzalez, was group achieved clarity of
message and developed ana particularly enthusiastic and active
supporter of the extremely powerful and clearly understood
campaigncampaign; which resonated with the public; Campaigns need a
simple objective Celebrities bring positives but can be
unpredicatbleThe Por Amor Use el Cinturn campaign set out a
Celebrities can bring immense benefits in terms ofsimple objective
and a strategy to achieve that objec- media coverage, public
awareness and personalitytive: compulsory seat belt legislation and
a target for for a campaign, but can also be an unpredictable
ele-seat belt compliance. This gave the partners a clear ment in
campaign planning.goal to work towards and provided a rallying
point forsupporters;22 | Por Amor: Costa Ricas Seat Belt
Campaign
25. Costa Rica, 2003-4 Securing funds can be difficult the
first Evaluation matters time Finding additional sources of funding
to supplement Pre and post campaign evaluation was essential for
the grant from the FIA Foundation proved very difficult.
understanding the scale of the seat belt non com- No private sector
donors could be persuaded to par- pliance problem and for measuring
the extent of ticipate, despite lengthy discussions in some cases.
change following the campaign and the introduction Since the
success of the Por Amor Use el Cinturn of legislation. It would
have been desirable to conduct campaign, commercial companies have
been much evaluation immediately after the media campaign more open
to working with COSEVI and associating and before legislation was
introduced and enforced, with the heart logo. Success breeds
success; to ascertain the impact of the campaign alone, but
budgetary constraints meant that this was not pos- The best
campaigns work at several sible. The evaluation data has been
extremely useful levels for targeting further campaigning, for
example on the link between parental non compliance and a lack of
Por Amor Use el Cinturn combined a mass media child restraints;
campaign; grassroots activity; police enforcement (initially
restricted to distributing advice, not tickets); Sustaining
activity is essential and political lobbying. Each strand of the
campaign complemented the others, ensuring that all target au-
diences were aware of the campaign, and provided a Constant
reinforcement of road safety messages sense of momentum; coupled
with sustained enforcement over many years is vital for the longer
term success of any campaign. Por Amor: Costa Ricas Seat Belt
Campaign | 23
26. AcknowledgementsThe success of the Por Amor Use El Cinturon
campaign was achieved through the collective effort and enthu-siasm
of many organisations and individuals. In particular the FIA
Foundation would like to acknowledge thefollowing people for the
role they played in the campaign:Carlos Macaya, President,
Automobile Club of Costa Rica (ACCR)Eliot Coen, former Road Safety
Director, Automobile Club of Costa Rica (ACCR)Roy Rojas, Director,
National Road Safety Council of Costa Rica (COSEVI)German Serrano
Pinto, former Director General, Costa Rican National Insurance
Institute (INS)President Dr Abel PachecoJavier Chavez, former
Transport Minister, Government of Costa RicaKarla Gonzalez, former
Vice Minister of Transport, Government of Costa RicaIgnacio
Sanchez, former Head of the National Road Safety Council of Costa
Rica and former Head of the RoadTraffic PoliceMario Redondo, former
President, Parliament of Costa RicaDr Edgar MohsJuan Pablo
MontoyaTRL Limited (commissioned authors of the FIA Foundation seat
belt toolkit)Rita Cuypers, Director of Road Safety, FIA Foundation,
was responsible for campaign coordination and liaisonon behalf of
the FIA Foundation.Picture AcknowledgementsPictures and images are
reproduced courtesy of:(page 3): top picture - La Nacin, Costa
Rica: M. Carvajal(page 3): bottom picture - La Nacin, Costa Rica :
Eddy Rojas(page 6): La Nacin, Costa Rica: Iris de San Guil(page
16): Picture Libertarios La Nacin, Costa Rica: Jorge Castellos(page
16): Picture Igual Inters - La Nacin, Costa Rica(page 7): Picture
Cario - La Nacin, Costa Rica: Carlos Borbon(page 9): Picture Juan
Pablo Montoya F Racing: Darren Heath(page 2) Pictures Abrchelos: La
Nacin, Costa RicaCOSEVI and Richard Stanley Productions24 | Por
Amor: Costa Ricas Seat Belt Campaign