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Listen

05 Communicating with the public

This chapter to be reviewed by November 2007

Summary

• Category 1 responders' duties to communicate with the public under the Act are based on the belief that a well-informed public is prepared and better able to minimise the impact of the emergency on the community.
• The Act requires Category 1 responders to advise the public of risks before an emergency and to warn and keep it informed in the event of an emergency.
• Arrangements for warning and informing the public must have regard to emergency planning arrangements.
• In the same way that Category 1 responders must ensure that their emergency plans are appropriate to the scale and type of risks involved, communications arrangements should be appropriate to the message and the audience.
• Category 1 responders need to plan to communicate, train staff and to test that their communications arrangements are effective.

Introduction

5.1 The timely provision of relevant information, warnings and advice is a crucial part of the effort to promote and foster resilient communities, therefore, a duty has been placed on Category 1 responders under the Act.

5.2 There are three distinct aspects of communicating with the public:

• Raising public awareness before an emergency - informing and educating the public about risks and preparedness.
• Providing public warning at the time of an event - alerting the members of a community whose immediate safety may be at risk.
• Informing and advising the public about the nature of a continuing event and:
  • the immediate actions being taken by responders to minimise the harmful effects on human or animal health and welfare, the environment or property;
  • the actions being taken by responders to assist recovery;
  • the actions people can take to minimise the impact of the emergency;
  • how people can obtain further information; and
  • notify people of the end of emergency and return to normal arrangements.

5.3 There are two elements that require further consideration, the needs of those for whom the information is being provided and the most effective methods of delivering the information. These topics are explored below for the various time frames within which the information should be provided.

Raising public awareness before an emergency

What the public needs to know

5.4 Having assessed local risks, responders should consider what information is already in the public domain. This will help to determine what additional information will be necessary or desirable to publish to meet peoples' needs.

5.5 Information on the generic plans and arrangements of local responders will raise peoples' awareness of what may be available locally to deal with a wide range of emergencies. Where it is necessary to give information related to specific risks more detailed advice on what may happen and actions that can improve self protection should be provided. The advice should complement the actions that responders themselves propose to take and contain details of where and how further information can be obtained before and during an emergency.

5.6 However, in practice, responders may want to attach to their plans details of possible prudent actions that the public should take in advance to ensure community resilience in an emergency.

5.7 It makes sense for public awareness messages to include what the public should do in the face of the risk of emergency, so as to complement the actions responders themselves propose to take.

5.8 Many local authorities and other bodies have websites, literature and other information systems to provide either generic advice on emergencies or detailed advice related to their own areas of responsibility. For example, what action people should take if they evacuate their homes because of a threat of flooding or how to find out if schools are closed because of severe weather.

How much to publish

5.9 The objective of this duty under the Act needs to be kept in mind. At all stages of the decision making process, Category 1 responders should ask themselves whether the material published will enhance the public's response in an emergency. In this regard, the mere fact of publication may have a beneficial effect on public confidence. Research suggests that people look to the authorities to "do something" and that they will be relieved and reassured to see that plans are in place.

5.10 A balance must be struck between the requirement to "have regard to the need to avoid alarming the public unnecessarily" and the need to provide sufficient information necessary and desirable for public protection. However, there is comprehensive guidance available on how best to communicate about risks to the public without causing disproportionate concern and Category 1 responders should be familiar with this. ¹

How to publish

5.11 The simplest and most cost-effective publication may be to make all or part of the relevant documents available in downloadable web format. For those without internet access, paper copies should be made available on request and in the reference sections of public libraries.

5.12 Available information should be identified clearly in the responder body's Freedom of Information Publication Scheme. ²

5.13 There may well be significant public interest in plans when information first becomes available and some may want to see the detail. Where only summary or edited versions have been published this may lead to requests under the Freedom of Information (Scotland) Act 2002. Those preparing published versions should be familiar with the terms of the legislation so that they can handle subsequent freedom of information requests quickly and accurately. The publication of generic plans may well encourage people to ask for further information about plans for particular institutions in the area (schools, hospitals, old people's homes, prisons, animal shelters, zoos, museums, airports, ferry terminals, etc.). Responders may find that they will need to address these specific aspects in the planning process.

Design and distribution

5.14 All material produced should look interesting, attractive and be written in a way that encourages people to read it and assimilate the information it contains. It should be written in plain English and avoid the use of acronyms and jargon.

5.15 It may be worthwhile to seek professional design and editing assistance. However, if professional support is not available, advice on good practice is available online and in published manuals. ³

5.16 People must be made aware of the material published if its purpose is to be met. This may be achieved by a conventional range of publicity methods that advise on what is available and how it can be obtained.

5.17SCGs can obviate duplication of effort by agreeing joint development and publication of general information material.

5.18 It is good professional practice to evaluate the effectiveness of every information campaign. If this is done, evaluation should include research which shows how well any specialist versions have met the needs of vulnerable members of the community.

Reaching vulnerable people and those who have difficulty understanding the message

5.19 Local authorities, Health Boards and other responders have information on vulnerable people and those who may have difficulty understanding published material in their areas. Further information may be obtained from local networks of voluntary organisations, carers and community groups. The needs of those with difficulties should be obvious, for example, a proportion of elderly residents may welcome a large print version of a document or there may be people whose first language is not English. Where vulnerable members of the community are in the care of an institution such as a school or old people's home, the most effective delivery of information may be through managers.

5.20 Information should be provided for all who need it. The most effective means of communicating information may be a leaflet expressed simply in plain language (or more than one language) backed up with pictures and symbols. The leaflet should include a request that the reader should share the information with family, friends and neighbours who are not able to understand the information and describe how copies in different formats could be obtained. Research has shown that children can be effective as a conduit for the information to reach other family members.

Review and renewal

5.21 The provision of public information should be a routine and continuous process. Although any printed information that is produced should be in a reasonably durable format, it should be reviewed regularly and renewed when necessary.

5.22 Programmes for review of information should be co-ordinated with those for risk assessment and maintenance of plans. Information will only need to be published if changes made are "necessary or desirable" for prevention or mitigation of an emergency.

Providing public warning and informing and advising the public during and after an emergency

Co-ordinating activity

5.23 The second part of the duty relates to arrangements for warning, informing and advising the public at the time of an emergency. It is vitally important that the arrangements made by individual responders complement those of their partners and are integrated with the overall management arrangements. Co-ordinated public warnings, advice and media services will enhance public safety and promote confidence and reassurance within the affected community.

Identifying a lead responder

5.24 In relation to a particular type of emergency it is preferable if a lead responder for warning, informing and advising the public is identified and agreed beforehand by the Category 1 responders.

5.25 In many instances, the lead Category 1 responder for warning and informing the public will be the organisation which leads on the response to an emergency. In a number of instances this role is likely to be filled by the police but it should not be assumed that this will always be the case.

5.26 The Category 1 responder taking the lead responder role for warning, informing and advising cannot always be identified in advance. The Regulations permit a procedure to be established to identify a lead responder at the time of an emergency. Choosing this option may cause delay and confusion at a time of crisis. The SCG may agree generic arrangements that identify a "standard" lead responder for sudden impact emergencies, supported by other Category 1 responders, to work jointly until the lead can be identified.

5.27 Procedures may also be adopted for changing the lead responder during the course of an emergency. The police and, for maritime emergencies, the Maritime and Coastguard Agency are likely to co-ordinate warning and information strategies in the early stages of many emergencies. In the later stages and during recovery the lead in distributing information and advice about longer-term issues may be handed over to another organisation which, in most cases, is likely to be the local authority.

Role of the lead responder

5.28 The arrangements made by the lead responder for warning, informing and advising the public are likely to include:

• Procedures and a capability for:
  • contacting other relevant responders and informing them of action being taken or proposed;
  • delivering urgent emergency warnings or ensuring they are delivered;
  • co-ordinating communications, at the time of an emergency, so that public information is consistent, timely and clear;
  • delivering information and advice in relation to its functional responsibilities; and
  • assisting other responders to deliver information and provide advice in relation to their functional responsibilities.
• Provision of:
  • a media facility;
  • a lead spokesperson to work with the media; and
  • facilities for staff from different responders to work together on a public information service.
• Procedures for:
  • handing over the lead role to another lead responder as determined by the course of events.

5.29 Whilst the arrangements are made by the lead responder they must be supported, as necessary, by other responders according to their functions. For example, a local authority may be asked to identify premises and prepare media facilities.

Warning arrangements

5.30 The methods available to deliver urgent information to members of the public are extremely varied as shown in Table 5.1. Some depend on the availability of power supplies or 'phone lines. Some may require careful consideration of the risks they pose to emergency staff or members of the public exposed to hazardous substances.

Table 5.1 Types of warning method

5.31 In deciding which method of warning to use responders should:

• develop planning assumptions related to the risk and consider the circumstances in which potential victims will be warned;
• identify the lead responder that is best placed to provide warning; and
• assess capability and consider if generic methods will suffice or if specific arrangements have to be put in place.

5.32 These three factors do not stand alone. For example, the capability of a Category 1 responder may influence planning assumptions.

5.33 Some operators, excluded from the Act because they have existing statutorily defined emergency procedures ( COMAH, REPPIR and Major Accident Hazard Pipeline), also have an important role in promoting public awareness about emergencies and issuing warnings. Communicating with the public about emergencies on nuclear and industrial sites is already regulated. Site operators have well-established procedures.

5.34 Category 1 responders need not duplicate existing arrangements. It may be helpful if all arrangements were, over time, integrated and consistent. Generic arrangements therefore extend the scope of existing plans.

Generic and specific warnings

5.35 Generic arrangements can be called into play in a range of scenarios. They may provide a range of warnings. They should be flexible and adaptable to any emergency. Specific arrangements are generally capable of delivering a closely targeted message. Category 1 responders should consider the options available, in detail, as part of the planning process to ensure that they have an adequate range of methods at their disposal. The need for back-up staff and equipment and the risk of warning arrangements being disrupted by the emergency itself should also be considered in business continuity management plans.

Warning vulnerable persons and those who have difficulty understanding the message

5.36 Vulnerable persons who have a close relationship with a responder, for example, those living in residential homes and schoolchildren, are relatively easy to warn during an emergency because the establishment will be known and recognised in plans.

5.37 Vulnerable persons within the community at large are more difficult to contact. General advice to the public to adopt a "good neighbour" approach to help those less able to help themselves is always advisable but specific efforts will be needed by responders to deliver alerts to those vulnerable persons who are known to them.

5.38 The Category 1 responder with lead responsibility for communicating with the public will need to be assured that these vulnerable people can be contacted. Arrangements will need to address how information and assistance can be managed by local authorities, health authorities, utilities and others, including the voluntary sector, who are in regular contact with vulnerable individuals.

5.39 People who have difficulty understanding information because they use a different language may require pre-prepared print or broadcast messages in their own language. A number of Category 1 responders will have information on communities with particular needs and should work with them, perhaps with the assistance of community networks, to identify effective ways to deliver warnings.

Who is "the public"?

5.40 The Act requires Category 1 responders to make local arrangements for providing the public with information and advice about an emergency for the purpose of mitigating its effects and aiding recovery. They should plan to be able to meet the needs of many different audiences that include:

Survivors and potential victims

• Survivors - those directly affected.
• Those who may need to take action to avoid harm.

Local people, friends and relatives

• Those who may be affected by the secondary consequences of the emergency and the clear-up process.
• Those who are not affected directly but know or are related to those who might be.

The wider audience

• Those who are not directly affected but are concerned or alarmed about wider implications.
• Those who are simply interested.
• Those who may wish to help in the recovery process.
• The news media.

Survivors and potential victims

5.41 The needs of these groups are the main focus of attention in the first hours of an emergency.

5.42 Providing information for survivors is, in effect, an extension of the warning phase. Those at the scene are under direct instruction from the emergency services. Those in charge of operations are best placed to decide what advice or instruction is required, by whom and how quickly.

5.43 Other potential victims will also need to know what they need to do immediately. For example, this may be a message to stay indoors and shut windows, to evacuate, to follow decontamination instructions or to report somewhere for medical checks. Planning should address these issues. Victims may also need (and certainly will want to know) why the advice is being given.

5.44 In the earliest moments following an emergency, vital operational decisions are often made at the scene by the emergency services, emergency workers or even members of the public. Pre-planning should ensure that decisions about the nature and timing of advice for the public have a prominent place among the urgent matters to be dealt with.

5.45 Responders are unlikely to be able to rely solely on the media to inform potential victims. Planning should recognise that targeting will need to be more precise than can be achieved by broadcasters. Procedures should include some form of audit trail of who has or has not been contacted. The media may be asked to provide reinforcement through publishing/broadcasting of basic safety messages.

5.46 For example, there may be times when family/community assistance, reception and other centres are established to support people directly affected by an emergency. There will be a need to provide specific information related to the personal needs of those present at various centres.

Local people, friends and relatives

5.47 It is important for planning to ensure that local people can receive regular updates of how management of the emergency is progressing and to allow them to play a part in their own recovery. Many emergencies have demonstrated the local media's ability to deliver useful information about the emergency and how the public could help. It can provide advice on the essential infrastructure and services. For example, road closures, travel information and location of vaccination centres. Local radio "phone ins" may be valuable in identifying community difficulties.

5.48 Responders should consider ways in which they can engage directly with the local community, its networks and natural leaders, to explain the management of response, canvas the community's opinion on strategies proposed on its behalf, identify local needs and support self help.

5.49 Relatives and friends will usually be alerted to an emergency through the national media. There is also some evidence from past emergencies that the emotional impact of watching news coverage of events unfolding that affect close relatives or friends can be very significant. The first reaction may be to telephone any recognised agency in the local area seeking information. Responders should be aware of the effect that such calls may have on switchboards' routine and emergency communications.

Helplines and public inquiry points

5.50 The ways of delivering information discussed above have been based upon the responders' decisions about what information needs to be provided. However, the public will have a variety of requests, queries or offers many of which cannot be predicted and relate to the particular circumstances of and emergency. Responders should plan how to make best use of helplines and public enquiry points (which may be telephone, e-mail, SMS based or other media) in any emergency. These can either provide a limited amount of recorded information or connect with a call centre where people answer individual questions.

5.51 Helplines may already be in place for other purposes. Plans can be developed to utilise them for emergency use and provide their staff with relevant briefing or suitable recorded messages. Facilities run by other operators or companies in the area may also be co-opted into the public information effort as a result of protocols put in place in advance.

5.52 Setting up a dedicated call centre from scratch is a significant undertaking but may be achieved quite quickly if suitable call-off contracts have been put in place as part of the planning process. Category 1 responders who decide to use this form of communication should also take advice from network providers to avoid risk of overloading telephone systems.

5.53 Care should be taken over the number and range of helplines that are established by different responders. Consideration should be given to establishing a single helpline number that is shared between responders and trained staff who can actively switch callers to the responder best able to deal with their enquiry.

5.54 Such enquiry points are not a panacea. Whatever method is used there may always be a significant proportion of dissatisfied callers and those who simply cannot get through because the lines are too busy. Planning should address the expectations of callers to limit irritation and disappointment by establishing procedures to make it clear what information is available and how busy the lines are.

The wider community - working with the media

5.55 The key to effective communication is getting the right message for the right audience at the right time.

5.56 For most people the principal source of information is news broadcasts and other general access media, including websites. The media can influence both the short-term handling and the long-term impact of an emergency. At the same time as providing useful advice and information to the public, the media will be reporting on the emergency. There may be round-the-clock rolling news coverage if the emergency is serious enough. Responders will have little control over media output however, it is important that they:

• plan to co-ordinate the main public messages that they will provide for the media;
• provide as much relevant, accurate and consistent material as possible;
• providing authoritative information and spokespeople for interview; and
• seek to ensure that the public gets a fair picture of how they are handling the situation.

5.57 Planning should recognise that the media will seize upon any inconsistencies in presentation or message. For this reason it is vital that responders prepare effective communication, co-ordination and liaison arrangements locally, with the Scottish Executive and, where necessary, with UK bodies.

5.58 If the Category 1 responders do not provide the information the media want they are likely to look elsewhere for material and commentary. Category 1 responders may then find themselves reacting to unfounded criticism or inaccurate analysis rather than proactively influencing media coverage of their efforts. The handling of an emergency, as well as the emergency itself, will be newsworthy and steps taken to engage with the media will be helpful. Keeping the media informed of the difficulties being faced, the way in which a response is being managed and the services provided for the community, may pay dividends in promoting a positive message and may deflect adverse criticism through awareness. No matter how positive relations are with the media, responders should prepare for criticism and plan accordingly.

5.59 Category 1 responders should work closely with the media, especially local radio, in preparation for emergencies. The text of announcements should, where possible, be agreed with broadcasters in advance, to avoid unnecessary questions of editorial control under pressure. Responders should consider engaging with local media in plan development and maintenance.

5.60 All Category 1 responders should be familiar with the media organisations and outlets in their own area and develop good relations with them. There is a considerable amount of advice on how to achieve this in the BBC's 'Connecting in a Crisis' initiative ⁴ which points out that other media can be equally helpful. Whilst the provisions of "Connecting in a Crisis" are not directly applicable in Scotland its principles are helpful and Category 1 responders should engage with local broadcasters and develop joint arrangements on behalf of their communities. A Scottish Media Emergency Forum has been established and will contribute to future guidance.

Deciding on the message

5.61 There are two vitally important matters that must be part of communications planning:

• responders should not release, without consultation, information or advice which covers the areas of responsibility of its partners; and
• responders should not speculate about causes of emergency or future developments. It is better to say when something is not known than to guess, particularly if this is going to raise the hopes of those affected. For example, the timing of when they can return to their homes.

5.62 Co-ordination between Category 1 responders is vital. Even when specific information has to be given by one responder, including specialist knowledge, others involved in the response should be aware of what is being issued, when and to whom. All those with an interest need to contribute to the production of information. Any inconsistency needs to be resolved quickly.The stages in the decision-making process should be logged to provide a record which can be examined after the event to identify lessons for the future. Suitable systems should be devised as part of the planning process.

Who delivers?

5.63 The choice of official spokespersons is sufficiently important for the delivery of information that it should not be left to chance at the time of emergency. The people chosen should be trained for their role. They may already have a good public profile and should command respect, presenting an authoritative image to establish the public's trust and confidence in those responding. Research has shown that the public have great confidence in spokespeople from the emergency services in the initial stages of response.

5.64 It is important that other staff who may come into direct contact with the public, for example, receptionists, security and switchboard staff are provided with at least a basic level of information and can handle general and routine inquiries confidently. The imaginative use of intranets can provide information for staff and provide links to information provided in other places and by other responders. By adopting such an approach responders may be able to combine knowledge gained of what is of concern to those seeking information and make it available for staff and the wider public.

Embedding and maintaining the planning process and plans

5.65 As with other plans maintained under the Act, plans for communicating with the public should be reviewed regularly, the people who will have to implement them will require to be trained and exercises should be carried out to test them. Guidance on training, exercising and review of plans is detailed in Chapter 4 of this Section of Preparing Scotland.

5.66 Training and exercising plans for communicating with the public may benefit from the involvement of news organisations with a role in reporting on emergencies. Indeed, if handled with sensitivity the process could make a positive contribution to the communication process. There is an understandable sensitivity by responders to appear to be under-prepared during exercises. However, positive interaction with the media through briefings on the purpose and conduct of exercises may assist. It would be helpful to describe the benefits of exercises, their place in continuous improvement and to demonstrate how problems are identified and remedied ahead of a real event. When developing exercises responders should consider inviting local media to cover the event as observers and agreeing the ground rules for reporting in advance.

5.67 Where the exercise scenario involves security issues, it may not be possible to achieve full media involvement. However, it should in most cases be possible to agree effective rules that allow the media to participate without running news stories about sensitive matters.

5.68 In tandem with these arrangements, Category 1 responders should also consider the role of exercises in building public confidence. Research has shown that the media can provide the public with information about exercises that are taking place and show pictures of what they may expect to happen can be reassuring.

Other communication matters

Casualty bureau

5.69 When emergencies occur the police may consider setting up a casualty bureau. Where one is set up, plans should ensure that the contact number is publicised as widely as possible, as soon as possible.

5.70 Information about a casualty bureau should make it clear that this it is a way for the police to collect information about people who may have been injured or killed - it does not release information about possible casualties.

5.71 The fact that the casualty bureau does not provide information directly over the phone places an onus on Category 1 responders public information lines. Such lines do not provide information about casualties, of course, but they may be able to advise relatives and friends who need to come to the area about arrangements made for their travel and accommodation. Planning to provide public information lines will help ease the burden on the casualty bureau. People staffing helplines should be aware of information that may be helpful for the casualty bureau and redirect relevant calls when necessary.

Family assistance and other response centres

5.72 Planning should include special arrangements in the local area to provide face-to-face information and support for relatives who come to be close to the scene of the emergency.

5.73 The police may have specific responsibilities for dealing with families and friends. However, responders should ensure that the integration of welfare and support arrangements pays particular regard to the information needs of those affected. This may be at family assistance centres at receiving hospitals or temporary mortuaries and may involve face to face personal information or the advice on the latest developments in response delivered in common areas. Staff should be on hand to seek information on behalf of families and friends.

5.74 Rest and reception centres set up by the local authority with the support of voluntary organisations may also require regularly updated information, advice and the means of communicating with family, friends, employers, etc. For example, people directed to rest centres when roads are closed by sudden severe weather will wish to let people know they are safe.

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