Lesson 5: Communication

Lesson Overview

In this lesson, you will learn about the importance of communicating public works information before, during, and after a disaster or other emergency.

Upon completion of this lesson, you should be able to:

  • Explain the functions of the Public Information Officer, Joint Information System, and the Joint Information Center.
  • Explain public works’ involvement in communication during each phase of the emergency management cycle.
  • Describe the benefits of establishing an effective public information program to disseminate public works information.
Definition of Public Information Programs

Public information includes planning and developing a process with clearly defined procedures to gather and provide accurate, timely, and accessible information on the event as it approaches or as it has occurred. Information may include evacuation plans, alerts or warnings, and other pre-disaster or post-disaster directions, instructions, or simply updates on the event status. All internal functions such as public safety and public works must understand the details of the event.

This information is distributed to a variety of audiences, including:

  • Staff
  • The media
  • Incident victims
  • The general public
  • Elected officials
  • Community leaders
  • The business community
  • Community service agencies
Mission of Public Information Programs

As defined in the National Incident Management System (NIMS), public information programs are the systems and protocols critical during crisis or emergency situations for communicating timely and accurate information to the public.

The public information mission during an incident is to get accurate, understandable information to the public in a timely manner so people can take action to save lives and minimize damage to property. Simply stated, it’s about getting the right information to the right people at the right time, so they can make the right decisions.

Components for Public Information Programs
When an incident occurs, the relevant agencies or departments are dispatched to the scene. The lead agency assumes Incident Command and is responsible for the communication of public information, using the following three components.
Public Information Officer (PIO)

Usually, the person acting as the PIO is a full-time PIO, not located within the public works agency, whose role in an incident has been predetermined in emergency plans and standard operating procedures. Public works needs to work closely with the PIO to ensure that accurate and reliable public works information is distributed.

Because of the nature of the services public works provides, many public works agencies have their own full-time PIO to handle communication regarding such issues as power outages.

Many disasters or incidents may result in round-the-clock operations. It is therefore recommended that a core group of at least three trained PIOs be created, to maintain the availability of a PIO at all times.

If a public works issue needs to be communicated to the public after hours and the public works agency does not have its own PIO, a public works professional may be needed to assist the PIO with ensuring accurate, up-to-date information. Note that many public works agencies do not have capabilities for round-the-clock operations, so this is a need that must be planned for in advance.
Joint Information System (JIS)

It is common for PIOs from different jurisdictions and agencies to interact on a regular basis to share information and ideas. However, when an event occurs that prompts activation of the EOC, these working relationships become formalized and structured, through activation of a Joint Information System (JIS).

A JIS is the method of operating during an incident that allows multiple PIOs to coordinate information and integrate messages to avoid confusing the public. It includes plans, protocols, procedures, and structures used to provide public information.
Joint Information Center (JIC)
The Joint Information Center (JIC) provides an environment and a central location for the PIO and the JIS to function. A single JIC location is preferable, but the system is flexible and adaptable enough to accommodate multiple or even virtual JIC locations as required.
Functions of the Public Information Officer
The role of the PIO is to provide information related to the incident and the functions of government as well as other matters of general interest both internally and externally. Primary functions of the PIO include:
  • Conducting public awareness campaigns
  • Gathering key information/details of the event
  • Prioritizing and issuing notices, alerts, and warnings
  • Taking action to maintain control of rumors
  • Coordinating inquiries from the public, the media, and elected officials
  • Coordinating tours or other interviews with agency reps and the media
  • Verifying the accuracy of all information prior to release
  • Monitoring media reports for accuracy and correcting as needed
  • Maintaining contact information for the media and other stakeholders
  • Supporting the Incident Command System and the Incident Commander
  • Supporting the function of the Emergency Operations Center
  • Addressing communication to special needs and non-English speaking populations
  • Considering legal issues such as Freedom of Information and the Privacy Act
Functions of the Joint Information System
The JIS provides support to the PIO and the Command structure by:
  • Directing the coordination of information channels
  • Directing the gathering and verification of information
  • Identifying communication tools such as phones or radios
  • Identifying documentation requirements
  • Establishing staffing needs
  • Addressing communication with federal and state agencies
Functions of the Joint Information Center

Just as the JIS helps ensure consistency through the use of a defined process, establishing a JIC allows PIOs to coordinate the release of accurate and timely information, which, in turn, ensures consistency of release.

It is likely that the media will be almost constantly present at the JIC. For this reason, the location of the JIC should be easily accessible, and it may be advisable to establish a studio in the JIC for use by the media.
Successful Information Management
The coordinated effort by the PIO, JIS, and JIC create an environment for successful management of information. Elements for successful information management include:
Identification of a Spokesperson

The wrong spokesperson, or a poorly prepared spokesperson, may do more harm than good. The result may be the wrong information released, a poor relationship with the media, and/or a lack of public confidence. While there may be one primary person assigned this responsibility, in the event of a press conference it is recommended that those agencies intimately involved with the event be represented – especially if question and answer is planned.

Some examples of agencies or individuals represented at a press conference may include public safety, public works, utilities, transportation, community service, emergency services, the Incident Commander, the PIO, and elected officials. In cases where multiple jurisdictions are involved, efforts should be made to include all jurisdictions in the press conference.

Active Involvement by Decision-Makers

Decision-makers must be present in the JIC to expedite the information management process and resolve issues quickly and accurately.

Many communities will co-locate the JIC with the emergency operations center (EOC). As a result, decision-makers such as managers, incident commanders, elected officials, and emergency councils will be readily available.
Participation in Regular Practice
Table top exercises should be identified in the emergency operations plan (EOP) and performed at least annually. Through participation in regular practice, those involved in the public information program can identify needed updates and improvements for the written process, and all parties involved will understand their roles and responsibilities more clearly.
Communication Throughout the Five Mission Areas

Communication is a vital component of emergency management before, during, and after a disaster. Establishing e-communication channels and a relationship with the media prior to an event or incident will provide for effective public information release during and after an event.

Effective communication throughout the five mission areas results in reduced risk, quicker response time, and improved recovery efforts through public awareness and community support.
Communication During Prevention
Public works professionals can be involved in helping to avoid incidents or prevent effects of disasters by ensuring, before an emergency occurs, that:
  • Effective communication protocols are in place.
  • Roles and responsibilities are clearly defined.
  • Communication equipment is interoperable.

In this way, incidents and injuries resulting from lack of information can be avoided.

Every individual can contribute to effective communication. For example, public works professionals out in the field can communicate road conditions back to the EOC and other first responders to help avoid accidents or delays in reaching disaster victims.
Communication During Protection
Planning for effective communication and dissemination of public information is a key responsibility of the public works professional. Under the protection mission area, public works professionals will be involved in:
  • Maintaining emergency contact information for all resources
  • Participating in all training and exercise facilitation to practice public works-related public notices and warnings with the PIO
  • Participation in planning for the operation of the EOC and the JIC
  • Participation in preparation of all public awareness campaigns
  • Participation in preparation of the JIS
  • Acquiring historical damage assessment information for use by the emergency manager
Communication During Response

When a disaster or other emergency occurs, the public works professional will be relied upon to identify damage or loss to lifelines or infrastructure and notify emergency management personnel, the business community, and the general public regarding safety and service issues.

The public works agency may need to communicate a great deal of information to the public, including:

  • Cautions and warnings
  • Proper disposal of household hazardous waste
  • Changes to household garbage collection schedules
  • Changes in the service level for sanitary sewer management
  • Coordination of response or recovery efforts with other agencies
  • Notification of all road closures
  • Changes in traffic patterns due to damaged infrastructure or blockage from debris
Voices of Experience: The Importance of Communication During Response
These public works professionals were asked to share an example of a time that communication made a difference during an emergency response.
Voices of Experience: The Importance of Communication During Response - Transcripts

Gary Eaton

I think it’s difficult to find a time when communication doesn’t make a difference in an emergency response. We had several large fires out here in 2003 and 2007. During that time, we had to respond to a sister city that had to be evacuated fully, and as part of that response, we were able to use our mutual aid agreements that we had put into place earlier, and we were able to draw on about 80 personnel from our various water districts to show up at that city and, to begin restoration of uh, of water service for the people that were there. Because of having the communication in place and the pre- developed mutual aid agreements, we were able to get these 80 people in, under 24 hours, dispatched and working, and it worked out really well. We were able to restore service in about another 24 hours, and it sped the process up dramatically and allowed people then to get back into their homes. So I think communication is critical and really can’t be overstressed.

Christine Walsh

In 2008, our city, along with most of the State of Wisconsin had a blizzard, and it was a horrific blizzard - it was a declaration. And we were busy working and we had things down to a science in our city, but all of a sudden trucks came off the highway and started filling every street and what we didn’t know, and the communication that was lacking was I-90, which goes straight through our city, was closed down, with over 2000 cars. And these 2000 cars sat out there for over 24 hours without help.

There was a huge investigation, and quite frankly, it was a 100% communication error. No one was talking to anyone. You know, we were seeing the cars pulling off, but we weren’t calling and saying, “What’s going on? Why are all the cars pulling off?” And the same with state patrol and the guys that were plowing on the highway, weren’t saying “Hey, there’s 2000 cars sitting out here stranded.”

And in that area, I thought public works should have taken the lead because they had, they had plow drivers out on the highway that were seeing what was happening, but they didn’t tell their supervisors. There was no communication that took place. We were very blessed not to have people die in that storm that were sitting there.

Gregg Varner

One of the key aspects of recovery is managing and removing debris, and there’s a fair chance that whatever you have is not always going to go to the same place. You may take vegetative waste to one place to burn it, and you may take construction materials to another, to bury it. So getting that message out to the public is very, very important, and when we recovered from Hurricane Hugo in South Carolina in 1989 we went to the news media every single day, with that kind of announcement, telling the public how to separate their debris, so that our process of collection and disposal went so much smoother. It was great – it really worked well.

Communication During Recovery

During recovery, public works is primarily involved in the task of debris management and must communicate with the public regarding debris removal schedules, proper separation of waste for collection, and sources for additional information, such as a website.

Public works, in cooperation with the PIO, must also keep local, tribal, state, and federal agencies informed regarding the debris management efforts. This communication includes:
  • Strategy and plans
  • Resource needs beyond local resources
  • Mutual aid requests
  • Environmental considerations and permits
  • Methodology and cost estimates
  • Training and exercise
  • Critical facility priorities
  • Coordination of efforts and potential hazards
  • Documentation requirements
Communication During Mitigation

As you’ve learned, developing successful public information programs can help to mitigate the effects of disaster, by reducing risk and improving coordinated response and recovery efforts. Effective communication is also a necessary component of mitigation actions.

Emergency managers seek input from public works about opportunities to mitigate the effects of disaster on public works. In addition, those involved in mitigation planning, including public works agencies, must seek public input to help ensure that groups and individuals concerned about disaster damages take part in solving problems and implementing planned actions.
Lesson Summary

In this lesson, you’ve learned about the importance of establishing an effective public works program and how public works is involved in communication throughout all phases of emergency management.

Because all disasters, events, and communities are different, communication needs will vary. Those directly involved in the dissemination of public information should seek additional training on this topic.