Final Project

The Osceola County Joint Information Crisis Communications Plan

American Military University

March 19, 2018

Professor Wilhelmsen

The Osceola County Joint Information Crisis Communications Plan

Introduction

The Crisis Communication Plan is the foundation by which the Osceola County Joint Information Network operates. The plan provides strategic details in a tactical format ensuring operability across jurisdictional lines thereby promoting unified messaging with a common voice. The plan basis is the National Incident Management System (NIMS) Joint Information System protocols through which each participating entity shares responsibility equally, yet provides flexibility for each agency to operate independently. (FEMA 2009).

Each section of the plan contains dynamic information requiring regular maintenance ensuring current details related to changes common in any plan. These details are generally in the form of tables and lists including organizational charts to assist team members in organizing quickly when crisis occurs.

While the plan details operational elements requiring appropriate space and face-to-face communications, there is an understanding that many operations use a virtual platform promoting effective and efficient information delivery to the served publics. This concept is termed the Joint Information Center (JIC) characterized by typical operations centers and those of a virtual nature. (FEMA 2007).

Every effort in the consummation of this plan delineates responsibilities regardless of jurisdictional authority, discipline restrictions or agency constraints. Assignment of responsibilities requires specific knowledge and understanding of the associated information officer positions regardless of daily organizational responsibilities.

No plan is complete without specific training and exercising requirements. The plan provides a schedule for actively training and evaluating the effectiveness of the plan, associated operations, and includes the Homeland Security Exercise and Evaluation Program requirement in all exercising circumstances. (FEMA 2007).

Objective

The principle objective of the Crisis Communications Plan is providing a common, unified approach in the delivery of critical information to the appropriate stakeholders and and publics during incidents or disaster.

Definitions

The following section provides definitions related to the plan and does not provide comprehensive detail or definitions. The current edition of the Osceola County Comprehensive Emergency Management Plan provides a more in depth list of definitions.

Comprehensive Emergency Management Plan (CEMP) – The multi-jurisdictional/multiagency plan detailing responsibility and comprehensive management in disaster and crisis situations.

Crisis – An unplanned event or incident arising from natural or human caused circumstances including; fires, weather, civil unrest, flooding, terrorism, hazardous material spills.

Crisis Communication Team – The Joint Information Network personnel responsible for activating this plan and producing appropriate information for communication with the served publics.

Disaster – An unplanned, warned or unwarned, event that overwhelms the community as a whole, resulting in the need for comprehensive unified management support.

Emergency – See Crisis.

Major Crisis – A large-scale incident arising and affecting multiple jurisdictions and may require external assistance in managing control components and information delivery.

Minor Crisis – A smaller scale incident limited to the confines of a particular agency or jurisdiction typically not requiring partner assistance. Daily incidents or calls for service are included in this category.

Joint Information Center (JIC) – The physical location or virtual setting wherein the information professionals operate.

Joint Information Network (JIN) – The group of professional information individuals and associated support personnel gathered as a team to operate during disaster or crisis.

Joint Information System (JIS) – The information officer operational protocols used in managing a communication crisis of any kind.

Concept of Operations

Osceola County Emergency Services is the central coordinating body in managing and maintaining the Crisis Communication Team, Joint Information System protocols and Joint Information Center. The coordination effort does not limit each agency or jurisdiction to operate independently however; provides a cohesive mechanism through which the teams congeal into a singular information delivery component. Figure 1 is a graphical representation of the Joint Information Network organized as the Crisis Communications Team.

Joint Information Network

City of Kissimmee

City of Saint Cloud

Osceola County

Dept. of Health

Osceola Sheriff

Figure 1.

The Joint Information Network meets and train regularly ensuring readiness at any time. Additionally, the JIN selects a member as the leader and central point of contact for activating the team as required. The leadership position is rotational and governed by the rules established by the JIN. This structure minimizes the complexity of a larger team and effectively allows for decisions and communications. (Fearns-Banks, 2011).

Major Crisis

On notification of impending or occurring major crisis, the JIN Leader notifies the team initiating the network into action. Table 1 identifies the Joint Information Network personnel. A minor or agency/jurisdiction crisis may not require the notification of the entire network and each agency maintains autonomy in these circumstances. However, the network is available to call upon for additional resources as necessary.

During a major crisis, the JIN organizes using the tenets of the Incident Command System (ICS). (FEMA 2007). Operating in the standardized approach ensures the advantage of the all the principles within the ICS structure. Figure 2 depicts the organizational structure during major crisis, or disaster. Recognizing the principle that the position of Public Information Officer does not relate to rank or daily organizational responsibility is paramount in organizing through the Incident Command System. The system provides that through training and experience, the position is filled with the one most qualified.

LIAISON OFFICER

UNIFIED COMMAND

JIC MANAGER

SAFETY OFFICER

EXECUTIVE POLICY GROUP

PUBLIC INFORMATION OFFICER

Figure 2.

Additional Public Information Officers are responsible for other elements within the Crisis Communications Team. This includes managing the Joint Information Center (JIC) as well as the Citizen Information Center (CIC). The CIC is the central point of telephone contact from the public during a major crisis. The (CIC) Unit Leader manages the CIC and is responsible to the Public Information Officer. Additional functions of the CIC are all social media components in crisis communications, including Twitter, Facebook and other media as appropriate.

Minor Crisis

Minor crises requiring support for the JIN are managed in similar fashion to that of a major crisis except to the extent that less personal may be required.

Responsibilities

The Public Information Officer (PIO) is responsible for the successful operation of the Crisis Communications Team. The PIO acquires appropriate staff to ensure addressing all needs.

The PIO will:

· Begin notification of all necessary team members

· Activate the Citizen Information Line – 407-742-0000

· Assign Assistant PIO responsibilities

· Fact/background gatherer

· Copywriter

· CIC Unit Leader

· Translator

· Media technical advisor

· Collectively with Command, select an appropriate spokesperson based on the incident or crisis

· Establish appropriate staff for 24-hour operation

The Public Information Officer must ensure a review by Command for any information released. Close coordination with the Planning Section Intel and Situation Units is also required. The accuracy of all information distributed or released must be confirmed and approved.

Spokesperson

During a major crisis, Osceola County government has a solid policy regarding spokespersons. The spokesperson is the elected Chairperson or Vice Chairperson of the Board of County Commissioners or designee. Supporting the Chairperson are specific discipline experts such as the Sheriff, the Fire Chief and Public Health official. During crisis, the focus of the Chairperson is to provide the elected leadership and calming influence as described by Giuliani. (2002). The Chairperson surrounds himself with experts to address the specifics of any operational or technical questions.

A crisis affecting the municipal jurisdictions may assert the same policy regarding spokespersons regardless of whether Osceola County declares a local state of emergency. Each city may request aid from the county and, choose to operate collectively and provide the necessary spokesperson.

There are certain circumstances whereby a discipline leader may be the official spokesperson. The circumstances relate to the type and magnitude of the incident. In a declared local state of emergency, by ordinance, the Executive Policy Group provides policy direction and priority decision-making. The Chairperson of the Board of County Commissioners ultimately represents this group as the spokesperson.

Smaller incidents require the agency Public Information Officer (PIO) to act as the spokesperson. In the absence of the Public Information Officer, every department head and emergency response officer receives training ensuring the responsibilities of the spokesperson are covered. Even in the initial stages of an evolving incident, the agency Incident Commander or scene PIO will initially act as spokesperson until the arrival of support positions.

Key Publics and Notifications

Publics are defined as the “specific audiences targeted by [public relations] programs”. Fearn-Banks (2011). Public relations and information programs cover a wide range of activity related to an organization’s relationship with everyone connected to or affected by the provided service or product. Essentially, and for our purposes here, we will define publics as stakeholders. The term stakeholder incorporates everyone with an interest in the organization, internally and externally. Coombs (2012).

Stakeholders may or may not contribute to the organization in terms of function. They will however, be affected by the decisions. Coombs (2012) (as cited in Bryson 2004). Since the relationship between an organization and its stakeholders is critical, it is of critical importance that all are included in the information dialog process.

Table 2 is a listing of stakeholders relevant to Osceola County Public Information Network. Also included is a brief synopsis of the importance of relationship and relevance. It is important to recognize that organization employees are part of the key publics structure requiring notification.

Notification – Communication Methodologies

The notification matrix is a valuable tool in crisis information delivery. After determining the desired key publics, it is necessary to evaluate and determine the best methodology for notification. Fortunately, today’s technology provides ample mediums to accomplish this process. Working to enhance communication, deliver appropriate information in a timely manner are paramount to successful notifications.

The Osceola County Joint Information Network is notified by telephone first. This is followed by an email to assist in clarifying any additional details.

Table 3 represents the key publics notifications. In each public represented, we consider alternative or multiple methods resulting in a solid notification process. Dependency on a single notification method can result in a delay of timely and sometimes time-sensitive material. The matrix also provides the opportunity to assign positions or people making the necessary notifications. Table 3 assignment requires the person or position responsible for the notification to possess an alternate person or position.

Crisis Inventory and Threat Analysis

The Joint Information Network is responsible to maintain the Crisis Inventory. The basis of the inventory is the established Hazard & Vulnerability Analysis (HVA) as produced by the Office of Emergency Management. Team members must monitor conditions and be prepared during periods of heightened threat from events as listed in the HVA. The current Crisis Inventory is demonstrated in Table 4.

The Crisis Communication Control Center (Joint Information Center)

The Joint Information Center (JIC) is the central hub of the Crisis Communication Team (CCT). This is the physical location where all activity is coordinated in support of the team as well as the actual crisis. The JIC should contain all the necessary supplies, equipment and space to effectively and efficiently provide for the efforts of the team as specified in the National Incident Management System guidelines. (FEMA 2009).

There are circumstances whereby a Virtual Joint Information Center can successfully meet the crisis communications needs. Limited personnel and resources often drive the demand in determining an actual co-location for operations or the virtual setting is more appropriate. Regardless of the decision to virtually operate or to co-locate, the JIC environment must be regularly exercised to ensure the most efficient operation.

The JIC must contain ample space and accommodations for the working team. An organizational structure to match the end objective is also required. In considering the space requirements, reasonable comfort is a priority to those operating within the space. Even in the mobile or field environment, a JIC requires appropriate space to produce based on the crisis demand. (FEMA 2009).

There are many technical considerations for the JIC and every technical component requires a redundant system or methodology. These technical considerations are the modes by which the team can effectively create a product for the publics. In simple terms, the following considerations help to meet the physical communication and operational needs of the team. This includes phone lines, fax lines, data lines, lighting, and radio communications devices.

While this is a short list of technical considerations, the emphasis must be on equipment maintenance and the frequency of exercising or practicing with the equipment ensuring operability.

Teams should practice all the JIC capabilities without the use of the technology on a regular basis. Hand writing New Releases and communicating face to face or by messenger can be a challenge. The even bigger challenge is having not practiced before a crisis and expecting any success at all.

Using community bulletin boards for posting critical information is a practice in catastrophic events. The team should pre-identify locations and capabilities prior to a crisis. The pre-identification is helpful when constructing releases for the media directing the community on where to locate specific information. Establishing small generator-powered radio stations to communicate effectively are considerations for the Crisis Communications Team.

Supplies and Equipment

The Joint Information Center (JIC) must be equipped with all the necessary operational supplies. This includes everything from pencils to computers and copiers. Table 5 provides a quick checklist of equipment and supplies for JIC operations. Additional equipment not listed includes furnishings.

Although we have mentioned comfort for the team, desks and chairs are paramount. Consideration of this type and quality equipment will go a long way in supporting the team through less fatigue. It is always beneficial to consider ergonomics including special seating requirements for team members.

Pre-gathered information

The media and the publics in general want information about the circumstances including the organization. (Fearn-Banks, 2011). This is particularly true in crisis. It is well worth the time to establish and maintain a common archive of essential information about the organization, policies and leadership including the Hazard Analysis. If the incident or crisis the organization is facing is not part of the Hazard Analysis, the team should pain-stakingly document the details to ensure inclusion follow-up and appropriate after-action analysis. Figure 4 is a sample Media Release Document. More templates may be found at ftp.osceola.org/Emergency_Management.

Exercising

Exercising is a term common in the world of public safety and denotes a progressive system ensuring participants are expert in the service they deliver. FEMA IS – 139 Exercise Design (2009). Demonstrating the progressive manner occurs through successive events in the exercise protocol and schedule. This begins with a plan and advances through several levels, increasing in complexity and promoting a highly skilled group of participants. Coombs (2012).

Typically, the exercise progression begins with a planning session followed by an exercise known as a tabletop the purpose of which is to define roles, responsibilities and processes. Deficiencies documented in the tabletop promote drills and plans revisions. While drills are typically discipline and organization specific, drills may include several organizations participating together.

Based on the results of the drill process, functional exercises refine the outcome of the tabletop and drills combined. Functional exercises take place in a manner similar to the tabletop and conduct occurs, generally, in real time.

The final step in the process is the full-scale exercise. This event is scenario driven and is conducted with injects or challenges including all functional elements participating. The conduct of play process is also in real-time and outcomes across the participants are interdependent and consequential.

Exercise Schedule

Monthly delineations provide the timing layout for the exercise schedule as demonstrated in Table 6. The basis of the schedule is the Crisis Inventory Analysis as diagrammed in Table 4. The off-season threat, team elements and a progressive system create the rotation. There are multiple subjects to cover each month however; multiple topics may be included within one session.

The schedule is an aggressive one and consideration for actual events is always appropriate. Only one year is included in Table 6 however; a multiple-year schedule provides a better foundation for team members and functions.

Finally, all team members provide feedback as indicated by the After Action Review. The after-action process is also progressive. Corrective elements and material occurs as part of every phase in the exercise process. Changes are communicated to everyone involved in the schedule.

Plan and Exercise Evaluation

No plan or exercise is ever complete until it has been tested and evaluated. A real event is not the time to evaluate the plan’s effectiveness. The most effective and efficient time is during exercise. This statement is true but to a point. Exercising creates only a sample or simulated event and often times; there is insufficient realism in the process. This can create a false sense of security within the team as well as the effectiveness of the plan.

Whether real or simulated, the Crisis Communications Team must have an evaluation mechanism supporting the effectiveness of the plan. With the advent of the Homeland Security Exercise and Evaluation Program (HSEEP), a standard approach requiring certain elements provides guidance and efficiency in exercising and actual event evaluation. (DHS 2007).

Osceola County and the State of Florida use the HSEEP standard in planning, training and exercising. The system provides standard forms and structure in maintaining improvement and corrective action planning. Figure 3 depicts the evaluation and improvement process resulting in an effective outcome.

Figure 3.

The standard HSEEP After-Action Report form is used in evaluating all Osceola County exercising as well as actual incidents and events. Using this standard ensures appropriate corrections and support of behaviors and mechanical elements requiring action.

Supporting Elements

The Trick Questions

Trick questions are always a source of difficulty in managing crisis communications. Even in the day-to-day realm of media interaction, the trick question can be harmful without careful deliberation before answering. (Fearns-Banks, 2011). Most professional journalists refrain from intentionally asking trick questions however; journalists want to get the story and with appropriate phrasing and technique, the trick question appears.

Osceola County government provides regular training on techniques resulting in managing trick questions. Table 7 provides a list of questions and techniques often used to elicit spontaneity in the interview process. The spokesperson, as well as anyone with potential media accessibility must remain cognizant of the trick question technique.

Prodromes

Crisis, typical to an organization, often contains warning signs or predictive situations to which keen public information personnel should be aware. Kathleen Fearn-Banks tells us the term prodrome describes such conditions. (2011). A natural disaster may contain ample warning signs and information ahead of the impending impact, however, the information delivery system related to the disaster may suffer direct impact through which prodromes can help to prevent the exacerbation of an all ready difficult situation.

The prodromes listed in Table 8 provide important information based on the Osceola County Crisis Inventory. Each element contains a subset of prodromes relating to potential information difficulties.

Internet Uniform Resource Links

Uniform Resource Links (URLS) are critical information sources necessary to support the crisis communication team. There is no time during crisis to be researching basic information on a predictable or prodromal event. The team must maintain an active list of effective information sources at all times. An example of such information may be an earthquake or other geological phenomena. Knowledge of where to find accurate, reportable information saves the team time and streamlines process when there is a crisis at hand. It is also an effective resource tool to exercise or rehearse the team for potential activation.

Table 9 contains an abbreviated URL list relevant to the Osceola County Public Information Network. The table includes appropriate URLs related to the Crisis Inventory and is expandable to accommodate a more comprehensive crisis inventory.