The answer is public awareness. You can legislate helmets all you want. But I see kids all the time in hockey and on bicycles and in other sports not wearing them properly. It doesn't matter if you have a helmet on. If it's not on properly, it's not going to do the job it's designed to do. How do you get them to do that? You educate people on the consequences of not engaging in safe behaviour.
On December 14th, 2010. See this statement in context.