"I Am Allowed to Cough Here": How Icon and Audience Characteristics Affect the Comprehension of Covid-19 Icons in the Netherlands and Flanders

The COVID-19 pandemic challenged Dutch and Flemish municipalities to provide clear, understandable instructions about preventive measures. Each municipality designed its own icons to convey these preventive measures. We conducted two studies to examine both the characteristics of these icons and their comprehension by the public. First, a content analysis revealed a predominance of instructional over prohibitive icons, and many did not contain text. More concrete and dynamic icons were semantically closer to the intended message, while those with text tended to be visually complex. Second, we tested the comprehension of eight icons among Dutch and Flemish citizens. Results indicated that three of the icons did not meet ISO-standard for comprehension. Perceived clarity turned out the be the strongest predictor of accurate interpretation. Additionally, lower education levels and non-native language backgrounds were associated with higher rates of misunderstanding. Misinterpretations were linked to color choice, complexity, and visual salience. Together, these findings provide insights for designing clear and effective visual instructions to support public understanding during health crises.