Ch 6: Messaging Strategy

Once the Crisis Communications Team (CCT) has gathered and verified the incident information and has prioritized stakeholders, the team must decide on a level of response and on means of communication While careful consideration of the strategy and messages is important, time is also of the essence. How an organization handles the first 24 hours of a crisis situation will establish its reputation for the entire response and recovery operation. Therefore, assume a worst-case scenario’ when developing the response strategy. While every situation is unique, it is imperative to balance carefully the demands of internal management and external communications.

This chapter will discuss procedures and the nuances of the following:

• Approach parameters
• Creating a Joint Information Center (JIC)
• Forming key messages
• Conducting an incident-based situation assessment for natural disasters, human-caused hazards and/or mechanical malfunctions

6.2 Approach parameters

If the situation does not require the authorities to respond, an organization may implement proactive communication to all stakeholders in some circumstances. In other situations, it may make more sense to take a more reactive approach as questions arise. Factors to consider in taking a proactive approach include potential legal liabilities/issues as well as the nature and gravity of the incident. Whether an organization takes a reactive or proactive approach, keep these guidelines in mind while crafting the materials and talking points:

• Display concern and dedication to resolve the crisis: never minimize the severity of the crisis and offer public reassurance when appropriate
• Notify families first: do not discuss any injuries or deaths until families of the victims have been notified
• Establish order and credibility: the public will tolerate emergencies but not inaccurate information, mixed messages, unwarranted silence or evasiveness
• Be the first source of information: release verified information immediately. Otherwise, the media, working on deadlines, will find another source.
• Admit ‘I don’t know’: when the information is not confirmed. Do not hesitate to say that an answer is not yet available. Give assurance that an answer will be forthcoming
• Maintain equal media access: do not release relevant information to media organizations selectively
• Issue key messages: in 10- to 12-word sound bite increments. Convey the organization’s concern and view on the nature of the incident and response Use discretion when creating messages for stakeholders, and if necessary, tell them to take specific actions
• Communicate technical details clearly: educating people during a crisis is difficult. Use visual aids, such as charts, graphs and timelines. Avoid jargon and define any unavoidable technical terms
• Stay positive, but realistic: recovery begins with the confidence the team displays during the crisis
• Never speculate
• Do not discuss undetermined issues: focus or the evolving issues at hand. Damages, causes blame and so on are addressed after investigations are complete
• Do not provide proprietary or sensitive information

See section 8.6 Interview guidelines for specific procedures on interacting with the press.

6.3 Creating a Joint Information Center (JIC)

If the situation requires more than one organization to respond, if the organization needs resource or assistance, consider establishing a JIC to create a cohesive communications response. It is essential that the lead agency determine who will be the spokesperson for the JIC. The on-scene response coordinator (for incident commander) wilill usually determine who manages the JIC. As soon as possible implement these procedures:

• Obtain consensus from the CCT – and senior leadership, if necessary – that a JIC is needed
• Contact CCT Leaders at the relevant organizations with the verified incident details and invite them to join the JIC
• Establish a central Crisis Center near the incident site from which to conduct operations and field press inquiries:
  • Establish equipment and standard operating procedures
• Establish clear areas of responsibility:
  • Lead organization
  • Specific subject areas each organization will cover, Do not answer questions on behalf of another organization.
  • Primary spokesperson(s) from each subject area
• Create a process to distribute internal communications:
  • Standardize situation report (SITREP) briefing times
  • Distribute media schedules: press releases, press conferences, interviews
  • Brief senior staff: give them updates before press conferences and interagency meetings
  • Analyze bias, spin and any press errors from media monitoring
  • Ensure smooth shift changes: make sure the new shift has updated information and reads the previous releases to maintain sequential flow of information
  • Prepare for expected VIP visits
• Implement a system to track finances if reimbursement is anticipated

If the JIC involves both private and public organizations, usually the government agency leads the response and recovery operations. Once the crisis subsides and the public agency completes its operations, the private organization takes over for the post-incident management. Throughout, organizations must avoid using this authoritative venue to promote its and/or the industry’s own interests.

6.4 Key messages

An organization must first develop a set of key messages no more than three or four points. Two types of key messages will be discussed. Position key messages convey the organization’s view on the nature of the incident and the response. Instructional key messages direct the stakeholders to take specific action. It is critical that the CCT communicate a consistent message platform to all stakeholders. Therefore, the same key messages should be woven throughout all external and internal communications materials

6.4.1 Position key messages

These short messages must be part of all communications, to ensure that the organization’s empathy and credibility are heard. For example, Rudi Giuliani, former Mayor of New York City, received high praise for his ability to reassure the public that local, state and federal government agencies were doing everything possible to facilitate the recovery from the attacks on the World Trade Center. Key messages describe the organization’s position – not just raw data As press releases, interviews and/or press conferences will expound on the causes, effects and future options; use position messages to calm the public.

The messages should have these qualities:

• Possesses positive or neutral outlook
• Uses less than 12-word increments
• Spoken in 10-12 second increments
• Highlights mission of the organization and its dedication to resolving the crisis, using theme words:
  • Condolences
  • Care, concern, reassurance
  • Response time
  • Training
  • Cooperation
  • Preparedness/expertise
  • Security
  • Customer-oriented
  • Quality work/safety record
  • Heroism
  • Dedication
  • Enforcement/compliance with laws

Public organizations may use additional position messages based on the function of their agencies Positions may also be developed using the organization’s mission statement. Well-known private entities may consider using adjectives associated with their brand name to reinforce their capability in mitigating further damage and their dedication to customer service and safety.

Although key message space and time constraints may appear daunting, recall how short quotes are in print and broadcast media reports. Sound bites will generate a more cohesive message than a long response that the press will most likely edit. Press conferences and live interviews will allow for more expansive communication.

When answering questions, ‘bridge’ or connect the response to a position key message.

Bridging can also involve transition phrases, such as:

• More importantly…
• The real issue is…
• The fact of the matter is…
• What is interesting…

The following example from the US Coast Guard shows how raw data must be crafted into clear statements that confirm vital information while communicating a key message and the organization’s overall mission.

Incident raw data: capsized 22-foot pleasure boat; six- foot seas; four miles east of Cape May; on-scene in less than 15 minutes; man and his two sons wearing life-jackets; survivors filed float (boating) plan with wife/ mother.

Public statement: ‘The US Coast Guard rescued three survivors today after their boat sank four miles east of Cape May (factual answer). This rescue illustrates to boaters the importance of filing a float plan, having the right safety gear and wearing life jackets (position message). The Coast Guard saves 4,000 lives in search and rescue missions per year (mission).’

6.4.2 Instructional key messages

These messages are designed to direct the public’s response to immediate public safety concerns:

• Evacuations: weather, fires, chemical spills
• Infectious disease, medical advisories
• Terrorist activity/alerts
• Recall for a dangerous product
• Other large-scale emergencies

Instructional key messages also include public safety announcements about such things as weather and traffic conditions during holidays or mass gatherings for sporting events or cultural activities. Mass gatherings often have higher incidents of accidents related to congested traffic, heat exhaustion, dehydration, alcohol poisoning, gate-crashing and physical altercations.

Other messages may alert citizens to watch for escaped criminals or assailants, and may list hotline numbers to report any sightings or other related events.

6.5 Incident-based situation assessment and considerations

Responders often need to address specific investigative questions and follow specific response procedures, depending on the incident. Some situations require the CCT to be aware of special considerations with stakeholders, the media and/or the crisis response team.

The following material covers communications plans for natural disasters, human-caused hazards and mechanical/technological malfunctions.

NOTE: In the next sections, solely the Crisis Communications Team’s functions and responsibilities are discussed. In no way should the following interfere with tactical perations designed to eliminate or minimize the threat.

6.6 Natural disasters

Natural disasters affect many sectors of the community Work with affected groups on pertinent developments and the safety instructions.

These groups may include:

• Emergency services
• Weather services
• Elected local, county, provincial/state and federal officials
• Utilities: electric, water, gas
• Telecommunications
• Transportation
• Businesses
• Schools
• Media

During natural disasters, the public looks to the government and private emergency-response agencies for leadership. Businesses will also need to provide information regarding the early-leave policy and impact on operations.

Sudden events, such as tornadoes, earthquakes, flash floods and outbreaks of infectious diseases, require a quick response from the CCT.

Unfolding events, such as hurricanes or typhoons allow much more time to prepare. For these, use a different set of procedures.

During both sudden and unfolding natural disasters organizations must offer information to the media and/or community proactively:

• Currently available information: regular, pertinent environmental conditions and warnings disseminated via radio, television, and online and hardcopy print media as well as organization website
• Preparatory tasks for the public: stocking food, water, flashlights, batteries, radios, medical supplies
• Response updates: assurances to the public of preventive/response steps that the organization – typically emergency services – is being executed
• Additional information: announce rumor control measures, such as hotline number and incident- specific website
• Message cohesion: tone of announcements must be in concert with local weather service and other response authorities
• Leave policy: create a notification policy to employees, and parents with children in schools, directing them to go to their homes to avoid bad weather conditions

While incidents such as hurricanes and typhoons differ from tornadoes and earthquakes in how fast they occur both will become medium- to long-term operations The CCT must continue to follow the previous steps Generally, the public will want to hear in-depth advice and information throughout the entire incident cycle

Prepare a rapid assessment of critical facts:

• Is there a continued threat? Where is the damage?
• Who is affected; what are the language needs?
• What are the authorities doing?
• What should the public be doing?
• What should employees be doing?
• Are areas closed off?
• If children are in school, how will they leave safely?

It is very difficult to determine when to scale down or conclude operations following one of these disasters However, the CCT, with the crisis response team should announce an estimated time of completion with sufficient time for the media to prepare its coverage

Later, in the diminishing crisis phase, address questions, such as:

• How many schools have closed?
• Which streets are flooded?
• Was anybody injured?
• How many customers are without electricity for how long?
• Which offices and services are operating, which are closed?

6.7 Human-caused hazards

Typically, this would include terrorism and terrorist hoaxes, hostage-taking, school and workplace violence, civil disturbance, and armed conflict. Human- caused hazard guidelines apply to many different situations to protect rescue efforts, investigations and victims. These incidents can cause potentially harmful psychological effects for the responders, stakeholders and public.

See section 7.12 Understanding the psychological effects of a crisis to shape messages accordingly and with sensitivity

• Perimeter: establish a safe distance between the media and the incident scene to maintain responder operations and safety for the press:
  • Issue site-specific media badges listing verified reporter information: name, title, respective editor/producer, contact information
  • Staff post entrances to ensure only authorized media enter
• Media pool: designate video/photo representatives from responder unit or from the media in order to:
  • Preserve the scene
  • Allow emergency responders to conduct operations
  • Shield victims from excessive attention
  • Economize use of transportation assets
  • Protect the media from hazardous materials or other dangers at or near the site
• Sensitive information: provide all releasable information and explain why officials cannot reveal other information on rescue, recovery, investigative efforts, military campaign or other related matters
• Key messages: issue short, concise messages regarding empathy, response capabilities and future steps to establish credibility and authority.

Section 6.4 Key messages explains how to create these messages.

6.7.1 Terrorism or terrorism hoaxes

It is generally recognized that terrorist organizations seek media coverage of their actions. Modern terrorism is largely a form of political communication. As ABC’s Nightline host Ted Koppel once said,

“Without the [media], terrorism becomes rather like the philosopher’s tree falling in the forest: no one hears it fall and therefore it has no reason for being.”

To complicate matters, acts of terrorism are often seen on-air before the crisis response team and CCT can assemble. Networks air as much footage as possible, to communicate the cause and scope of the unfolding emergency to the authorities and public Media organizations often release unedited visuals taken by the press, responders or even bystanders. For example major news networks aired coverage of the attacks on the World Trade Center on September 11, 2001 using footage from private citizens. Some of the impromptu audio included expletives normally edited out of footage, indicating the speed with which the outlets aired the material. The immediate and extensive coverage of television, radio and newspapers serves as a medium for terrorists’ propaganda objective: to instill fear.

24-hour news cycle
Since terrorism is a global concern, media organizations around the world devote significant resources to cover all elements of such an incident. Therefore, organizations need to be able to respond to a surge of media attention to verify information quickly and keep citizens advised of any actions they need to take.

• If an attack occurs, maintain staff in communications offices 24 hours per day
• Ensure that CCT spokesperson(s) work in shifts, allowing for sufficient rest
• Regularly update an incident-specific website to offer background information and chronicle events for worldwide, around-the-clock coverage

Voluntary coverage restraints

Because major media organizations have instituted voluntary terrorism coverage guidelines, CCTs can pursue mutual agreements regarding terror attacks or foiled attempts, including the following real-life examples.

The Radio Telefis Eireann (RTE) Authority in the Republic of Ireland requires that all interviews with designated groups be pre-recorded and only included in broadcasts if first cleared by divisional heads, or if necessary, the RTE Director General CBS News in the United States uses these terrorism reporting parameters:

• Avoid interference with the authorities communications channels (for example, tying up phone lines)
• Use expert advisers whenever possible, to help avoid questions or reports that might exacerbate the situation
• Observe all emergency services’ instructions – although a provision exists for reporters to report to their superiors if any instructions seem to be intended to suppress the news
• Balance and limit news coverage to ensure that the (terrorist) story does not unduly crowd out other important broadcasts of the hour or day, domestically and abroad
• Avoid copycat coverage: prevent offering step- by-step details of the incident in order to preclude ‘copycat’ acts. Do not glorify the perpetrator and research problems that led to the event

Other agreements CCTs can pursue with the press include:

• Use key messages to advance the recovery mission and not the terrorist goals
• Explain how parents can communicate the issues to their children
• Highlight criminal nature of terrorist act(s)
• Do not reveal tactics that prevented previous terrorist attempts
• Monitor media to correct misinformation as soon as possible
• Shield victims and families’ members from being interviewed, due to uncertain security situation and possible physical and mental condition(s) related to the incident

6.7.2 Hostage-taking

Careful cooperation from the media during a hostage- taking is critical to the safety of the hostages and responders. Hostage-takers usually attempt to contact the media to:

• Create panic
• Make demands
• Obtain sympathy for their cause

Assume the hostage-taker is monitoring media coverage to obtain information about the hostages as well as the authorities’ raid-and-rescue mission.

Ground rules

Communications officers must immediately establish the following ground rules for reporters, producers and editors to promote the success of the rescue operation:

• Geographic perimeter: specified distance from the scene must be enforced and respected to avoid visuals of responders’ tactical positions
• Media role: discourage the media from taking a role in impromptu negotiations or rescue operations, as any action could affect the mission
• Media calls: discourage media from calling the hostage-taker or anyone else inside the scene Media phone calls can compromise a rescue mission by tying up phone lines, tipping off a hostage-taker and in other ways.
• No live coverage: live coverage could compromise the mission and broadcast inappropriate visuals
• News helicopters: cannot fly over the scene due to noise and the effect it may have on the actions of hostage-taker (for example, if the hostage-taker believes the helicopter is a part of the raid mission)
• Hostage-taker interaction: avoid interviewing calling or speaking to the hostage-taker. If the hostage-taker calls the media, the reporter should immediately contact the CCT Leader with all of the information.
• Hostages: do not release information on identity medical condition, employment, role in community and family members during the incident
• Interviews
  • Responders: for the sake of security and possible negotiations, responders cannot provide mission specifics, including tactics and position and number of responders
  • Hostages and family members: during and after the incident, shield these individuals from interviews, due to uncertain security situation and possible physical and mental condition(s)

6.7.3 School violence

CCTs at educational facilities need to communicate with their stakeholders as quickly as possible due to the sensitive nature of managing child safety.

It is critical that the organization communicate key messages to the following groups:

Students

• Evacuation: quickly issue clear and calming instructional messages to direct the students to safety
• Interviews: discourage students from offering or accepting interviews with the media. Explain that interviews require experience and that if the student accidentally says something he or she regrets, the experience can cause or worsen psychological trauma and aftershock. (Guilt and self-criticism regarding his or her interview can impede the healing process.)

Emergency services

• Provide incident information and school map immediately to the responders’ CCT for them to coordinate their communications response
• Request additional staff to aid in evacuations communications as needed
• Consider setting up a JIC to coordinate actions

Parents

• Contact parents at work and home as quickly as possible to notify them of pertinent safety and schedule information:
  • School evacuations
  • Pick-up locations
  • Class changes
  • All other details specific to the safety of the children
  • Possible hotline number for parents to call with questions

See the School Safety Handbook for further instructions on incident planning, response and recovery procedures.

Ground rules

Educational facilities need to establish ground rules with the media via a press release to reporters, editors and producers to ensure the physical and emotional health of children during and after the incident.

• Interviews: do not interview children, even if they approach reporters
• Copycat coverage: avoid offering step-by-step details of the incident to preclude students from committing copycat acts. Avoid glorifying the perpetrator and cover problems that led to the event.
• Media pools: designate media videographers and photographers to obtain visuals for use by participating media organizations. This will limit exposure to children and avoid hindering any response/recovery missions.
• Visual rotation: avoid repeatedly airing the same tragic visuals, so that students can start the healing process

6.7.4 Civil disturbance

Civil disturbances may be organized public protests with advanced notice to authorities or may occur spontaneously in reaction to an upsetting event. Either way, violence, vandalism and/or looting can result. The following entities may consider forming a JIC to create cohesive messages to calm the public:

• State/province governor’s office
• City mayor’s office
• Police department
• Fire department
• Other emergency services: medical, hazardous materials (HAZMAT)
• School districts

During the incident, do not place blame on one group or another to avoid inciting further disruption. Wait until all information is available and analyzed before confronting the community with responsibility.

Ground rules

Response organizations need to work with the media on measuring the coverage to preclude any injuries and loss of life or property. Request the following:

• Avoid repeatedly airing images of violent acts that may encourage similar acts, mischaracterize level of disturbance exacerbate socio-economic divisions
• Limit helicopter coverage, so as not to increase the sense of disorder
• Do not report locations that are vulnerable due to limited police presence

6.7.5 Workplace violence

Workplace violence is one of the most significant yet least-recognized problems facing many organizations The US National Crime Victimization Survey reported that an average of 1.7 million violent acts were committed against individuals at work or on duty per year from 1993 to 1999. The US National Institute of Occupational Safety and Health (NIOSH) estimates the economic cost of workplace violence at around US$121 billion per year.

Background information

The CCT must be aware of the organizations operations policies and procedures, especially when it may need to respond to questions regarding prevention and training. See section 3.4.1 Approval process to release information for further guidance on commenting on regular internal operations.

Ground rules

Private organizations have often been publicly criticized for withholding important information out of self-interest. Although protection of business classified information is permissible, see guidance on “ground rules’ from the following sections to exercise privacy rights within limits:

Section 6.7.1 Terrorism or terrorism hoaxes

Section 6.7.2 Hostage-taking

Section 6.7.3 School violence

Section 6.7.4 Civil disturbance

6.7.6 War and conflict

Be prepared to operate communications offices 24 hours per day to report developments. This schedule will also need to respond externally to the around-the- clock domestic and international media presence.

Military communications officers need to be conscious of timely clearance of information once an operation is complete, at which point the officer can expand on details previously judged operationally sensitive. If information is inadvertently released through unauthorized disclosure or possibly existing, indirect channels; be prepared to comment using key messages. See section 6.4 Key messages for guidance on creating appropriate capabilities responses.

Organize any declassified information from completed operations to inform the public on the status of war campaigns:

• Location
• Force capabilities: mountain, air, sea desert, special missions
• Duration
• Casualties
• Number of troops
• Type and number of weapons, bombs used
• Number of missions
• Nature of new technologies, if not still classified

Media access

• Perimeter: establish a distance from the operations scene for the media to maintain operations and safety for the press
  • Issue media badges specific to the site according to confirmed reporter information: name, title, respective editor/producer, contact information
  • Staff entrance posts to ensure only authorized media enter
• Media pool: designate video/photo representatives from unit or from the media in order to:
  • Conduct operations
  • Accommodate for space constraints on travel to the site
  • Protect the media from hazardous materials or action, at or near the site
• Sensitive information: explain why officials cannot reveal information on parts of operations

Conflict areas abroad

These incidents may involve coups, uprisings or terrorism in urban or rural areas. These events may require military diplomatic and/or humanitarian responses. CCTs from those areas need to be aware of the security implications of the release of information on their operations on websites, pamphlets or in local papers:

• Identity and titles of employees and family members
• Supplies stored in facilities: medical equipment pharmaceuticals, technology (computers, phones fax machines), emergency food/water, weapons
• Security provisions: ensure surveillance/recording equipment are not pronounced on outside fixtures

Also, carefully limit staff access to potentially sensitive information. This staff may include: security guards, translators, cooks, cleaners and administrative staff.

6.8 Mechanical/technological malfunction

These incidents may include product or operational failures or accidents in areas such as transportation infrastructure and/or facilities. Research the following information to determine course of action and recovery requirements.

Incident details

• Have regulatory/enforcement agencies contacted TV the organization?
• What events led to the incident?
• Were employees or bystanders involved?
  • Were those involved authorized to be on the premises during the event?
  • What were they doing before and at the time of the event?
• What should the public know to avoid further loss/ damage?

Previous incident-related history/preparedness

• Have such incidents occurred at the organization in the past?
• What is the record in the area of operation affected such as security, safety and regulatory approvals/ inspections?

Possible losses

• What is the estimated financial loss from damage to a facility?
• What type of insurance coverage did the organization have?
• What is the impact on customers and what recourse do they have?

Background information

The CCT must be aware of the organization’s operations policies and procedures, especially when it may need to answer or decline questions regarding prevention and training. See section 3.4.1 Approval process to release information for further guidance on commenting on regular internal operations.

6.9 Communications deliverables

Upon reaching agreement on the approach and key messages for a specific incident type, various team members should begin developing the materials based on a comprehensive list of communications deliverables specific to the sector.

NOTE

See Chapter 7: Engaging Key Stakeholders for procedures on creating deliverables for affected groups.

See Chapter 8: Working with the Media to respond to press inquiries and communicate to the general public.

See section 10.1 Response procedures check lists for clearance procedures to distribute those materials quickly according to the rollout plan.