It just means that Public health is educating about risks with something. Some do listen to the warnings and act accordingly, or listen maybe to part of what is said but not all doing what they want in the end even with the warnings.
Example for me is smoking. Surgeon General has warnings on side that it can be harmful and so is second hand smoke (being around those that smoke even if you don't). Some people smoke a lot (several packs a day), some smoke a little (a pack or half a pack a day), and some don't smoke at all. Some don't smoke but are around people that smoke.
The people that don't smoke much or are around smokers might "listen to a point" but not completely to not smoke or be around it at all.