Information Management and Communication in Emergencies and Disasters

Information management and communication in emergencies and disasters

MANUAL FOR DISASTER RESPONSE TEAMS

How to plan communication How to manage information How to work with the media How to prepare messages and materials Information management and communication in emergencies and disasters: manual for disaster response teams

Editors: Susana Arroyo Barrantes, Social Communicator, OXFAM Martha RodrIguez, Social Communications Advisor, PAHO/WHO Ricardo Pérez, Regional Advisor in Information, PAHO/WHO

Area on Emergency Preparedness and Disaster Relief Washington, D.C. • 2009 PAHO HQ Library Cataloguing-in-Publication

Pan American Health Organization Information management and communication in emergencies and disasters: manual for disaster response teams

ISBN: 978-92-75-12993-7

I. Title

1. DISASTER PLANNING – organization and management 2. MASS COMMUNICATIONS MEDIA – use 3. INFORMATION SYSTEMS – instruments 4. PREVENTION AND MITIGATION – methods 5. SOCIAL COMMUNICATION IN EMERGENCIES 6. DISASTERS EQUIPMENT AND SUPPLIES 7. MANUAL

NLM HV553

A publication of the Area on Emergency Preparedness and Disaster Relief of the Pan American Health Organization, Regional Office of the World Health Organization (PAHO/WHO).

The views expressed, the recommendations made, and the terms employed in this publication do not necessarily reflect the current criteria or policies of PAHO/WHO or of its Member States.

The Pan American Health Organization welcomes requests for permis- sion to reproduce or translate, in part or in full, this publication. Appli- cations and inquiries should be addressed to the Area on Emergency Preparedness and Disaster Relief, Pan American Health Organization, 525 Twenty-third Street, N.W., Washington, D.C. 20037, USA; fax (202) 775-4578; e-mail: [email protected].

This publication has been made possible through the financial support of the Spanish Agency for International Development Coopera- tion (AECID), the International Humanitarian Assistance Division of the Canadian International Development Agency (CIDA) and the Office of Foreign Disaster Assistance of the United States Agency for Interna- tional Development (OFDA/USAID).

Translation from Spanish: Mary Elizabeth Stonaker Graphic design: Carlos Cuauhtémoc/Abel De Gracia Table of Contents

Acknowledgements v

Introduction 7

Chapter 1 11 Communication and information management during emergency and disaster response

1.1 Objectives of this manual 12 1.2 Importance of information management in disaster situations 13 1.3 PAHO/WHO Regional Disaster Response Teams 15 1.4 Profile of information and communication specialists 19 1.5 Principles and standards for communication and information management 20

Chapter 2 25 Planning communication and information management for emergencies and disasters

2.1 The best communication is planned 26 2.2 Prerequisities for planning 28 2.3 The key stages of planning 28 2.4 Examples 35 2.5 Checklist 37

Chapter 3 39 Managing information during an emergency or disaster

3.1 The nature of information in disaster situations 40 3.2 Responsibilities of the Regional Disaster Response Team in managing information 41 3.3 Stakeholders and information sources on disasters and emergencies 45 3.4 The basics of situation reports 51 3.5 Preparing a web page on an emergency 56 3.6 Preparation and distribution of reports and news 58

iii Table of Contents

Chapter 4 61 Working with communication media

4.1 The role of communication media during emergencies and disasters 62 4.2 Understanding communication media 63 4.3 What the media want 69 4.4 How to reach the media 70 4.5 Recommendations for the official spokesperson 79 4.6 Monitoring media coverage 82 4.7 Media responsibilities following the emergency 83

Chapter 5 87 Developing messages and material 5.1 Messages for different phases of the emergency 88 5.2 Developing effective messages: message maps 91 5.3 Recommendations on message content, language, and format 101 5.4 Managing myths and rumors 104 5.5 Myths and realities of disasters 105 5.6 Producing communication and informational materials 107

Annexes 111 I. PAHO/WHO checklist for communication in emergencies and disaster situations 112 II. PAHO/WHO Situation Report format (SITREP) 114 III. Examples of Situation Reports 116 IV. Examples of press releases 126 V. Web sites 132 VI. Acronyms 133 VII. Recommended bibliography 134

iv Acknowledgements

This manual is the result of an extended period of regional participation and consultation, with the support of professionals in the disciplines of communication and disaster management from Latin America and the Caribbean.

Many individuals provided comments and contributed from the first draft through the final version. The manual wasre- viewed during workshops held in Argentina, Ecuador, Pana- ma, and Peru, where dozens of experts made recommendations and important contributions.

In particular, we would like to acknowledge the work and support of the following people:

. Liliana Arévalo and Paola Rosanna Caycedo from Colombia, and Alexandra Ayala from Ecuador.

. From PAHO/WHO, Tilcia Delgado, Patricia Bittner, Leonardo Hernández, Amaia López, and Isabel López.

Production of the manual was made possible with financial support from the Spanish Agency for International Develop- ment Cooperation (AECID), the International Humanitarian Assistance Division of the Canadian International Develop- ment Agency (CIDA), and the Office of Foreign Disaster As- sistance of the U.S. Agency for International Development (OFDA/USAID).

Introduction

Many specialists from the fields of communication and disaster management from Latin America and the Caribbean participated in developing this manual. The contents were tested and adapted under actual emergency and disaster conditions. The final product reflects consensus among the experts about the most important uses of information and communication in emergency situations.

This manual focuses on operational aspects of disaster and emergency response as well as preparing for disasters. It addresses plans for communicating with the public during emergencies and techniques for producing, exchanging, and distributing information for humanitarian organizations. Expe- riences from many emergency situations show that communication is most effective when information management is linked to information exchange and social communication techniques and processes.

PAHO/WHO established the Regional Disaster Response Team (RDRT) to maintain a multidisciplinary group of experts that helps to coordinate disaster response in any member country affected by an emergency. The team includes professionals who specialize in information and communication activities. It is important that they have manuals and tools to guide and standardize work procedures. This manual is part of a broader effort to develop technical abilities. Besides serving the RDRT, the manual provides general guidance for the information and communication activities that are integral to the health sector’s emergency and disaster preparedness and response.

8 Introduction

The following principles have inspired this work:

1. Information management and communication should be part of planned design and execution, and be integral to an organization’s risk and disaster management plans. Improvised communication can be costly and have unsatisfactory results.

2. In addition to having specialized training, persons responsible for information management and communication must be open and proactive. The ability to generate and exchange information is not exclusive to those who have studied communication; rather, it comes from a hands-on approach and good team work.

3. Teamwork is essential if information management and communication are to be successful. Disaster experts, communicators, or administrators cannot work in isolation and the work of those with one specialization should complement the work of the others. Those responsible for communication must have a strong understanding of disasters. Likewise, experts in disaster management and public health will make better decisions when they accept input from communication specialists.

4. Investment in information management and communication is a cross-cutting endeavor and should be integral to the work of disaster management experts and organizations. Information management and communication should be considered a culture more than a skill.

5. Finally, this guide aims to be dynamic and encourage participation. It will be perfected as long as communication and disaster experts put its principals into practice and help to improve on the recommendations presented here.

Who is the intended audience of the manual?

The manual was prepared for members of the PAHO/WHO Regional Disaster Response Team, but also for national and international communication and information management professionals who have an interest in or are working in disaster preparedness and response in the health sector. It is also useful for planning and teaching workshops on communication and disasters. Introduction 9

What are the contents and how can they be used?

Chapter 1 provides general guidelines on organizing communication activities. It introduces the PAHO/WHO Regional Disaster Response Team and presents a set of basic principles that should guide information management and communication in disaster situations.

Chapter 2 outlines the main steps that should be taken when planning communication before and during emergencies. It provides practical examples of how to design the disaster communication plan for a unit in a ministry of health or other health sector agencies.

Chapter 3 introduces the most important stakeholders and sources for information during emergencies. It addresses the critical topic of preparation and distribution of situation reports (SITREPs) during an emergency.

Chapter 4 gives techniques and recommendations for working with the communication media. It outlines specific characteristics of the media, their information requirements, and key messages that should be transmitted before, during, and after an emergency.

Chapter 5 gives techniques and recommendations for working with the communication media. It outlines specific characteristics of the media, their information requirements, and key messages that should be transmitted before, during, and after an emergency.

Finally, there are annexes that can be consulted with examples of types of communication used in emergencies, such as situation reports and press releases. A list of acronyms, Inter- net sites, and a bibliography are included.

The manual can be used to gain an overall understanding of actions taken in emergency situations. Individual chap- ters can also be used as modules. In either case, it is recommended that communication teams, departments, or experts use this manual to prepare communication plans before an emergency occurs. © PAHO/WHO Chapter 1

Communication and information management during emergency and disaster response

1.1 Objectives of this manual

Importance of information management in 1.2 disaster situations

The PAHO/WHO Regional Disaster Response Team 1.3 (RDRT)

Profile of communication and information 1.4 management specialists

Principles and standards for communication and 1.5 information management

This chapter addresses the importance of managing information during emergency and disaster response, the general aims and expected results of the Regional Disaster Response Team, and the responsibilities of those working specifically with information management.

12 Information management and communication in emergencies and disasters: Manual for disaster response teams 1.1 Objectives of this manual

Information is the most valuable commodity during emergencies or disasters and helps in generating visibility and credibility. © PAHO/WHO

This manual intends to facilitate the work of communication specialists who are members of the PAHO/WHO Regional Disaster Response Team as well as for those working in the health sector in general.

The manual provides recommendations on dealing with the context and conditions where information is needed, guidelines on producing reports and distributing information for different audiences, how to manage communication media, and planning the work of communication during emergency response.

Effective communication and information management are obviously critical to the overall process of managing and reducing the risks of disaster. For practical reasons, this manual focuses on communication and information management during emergency preparedness and response phases. It serves as a complement to documents, guidelines, and courses made available by PAHO/WHO and other organizations on communicating risk management. Communication and information management 13 1.2 Importance of information management in disasters and emergencies

Information is the most valuable commodity during emergencies or disasters. It is what everyone needs to make decisions. It is an essential aspect in an organization’s ability to gain (or lose) visibility and credibility. Above all, it is necessary for rapid and effective assistance for those affected by a disaster.

Information is the main element in the damage and needs assessment process and is the basis for coordination and decision making in emergency situations. It has a powerful impact on how national and international resources are mobilized. It is essential for after-action analysis, evaluation, and lessons learned.

Moreover, public and social communication and media relations have become key elements in efficient emergency management. Technical operations in highly charged political and social situations must be accompanied by good public communication and information strategies that take all stakeholders into account.

Following are aspects of information that are important in the context of emergencies and disasters:

 During an emergency, timely and transparent production and dissemination of information generates trust and credibility. National authorities, international agencies, humanitarian assistance organizations, the affected population, and the communication media will demand information in the form of data, figures, reports, and situation analysis or recommendations. These stakeholders depend on this information to guide their work and to translate their interest and concern into concrete action.

 Information in emergency or disaster situations comes from many sources; it represents different points of views and serves a wide range of interests and needs. For example, following an earthquake, scientific, technical, and operational information will serve decision makers, the affected population, and the international com-

14 Information management and communication in emergencies and disasters: Manual for disaster response teams

munity involved in response efforts. Clearly, the type of information provided reflects the multi-disciplinary nature of emergency and disaster response and the ever-growing number of specialists and organizations from different technical disciplines who are involved in disaster response.

 The participation and effectiveness of national and international actors will be beneficial to affected populations to the extent that they have precise, timely, and relevant information. This applies to communication channels and tools that can facilitate dialogue and build partnerships.

 The challenges are to show how communication and information management contribute to more effective and timely response, and therefore to saving lives, and how these activities can lessen the impact of disasters and emergencies and improve the quality of life of affected populations. They must also be recognized as key elements in mobilizing resources, stimulating solidarity and support, increasing visibility, and strengthening the position of humanitarian stakeholders and of the health sector.

If the above-mentioned communication measures and expertise are to be valued in the context of disaster management, all necessary technical and human resources must be made available, as well as political backing from health and disaster management authorities. Communication measures and the teams of people responsible cannot be improvised during an emergency; they require ongoing preparation and planning.

It is vital for disaster response teams to regularly include specialists in communication and information management. PAHO/WHO promotes and supports the work of these specialists inside the organization as well as in disaster response operations of the health sector in each country in the Region. Communication and information management 15 1.3 PAHO/WHO Regional Disaster Response Teams © PAHO/WHO In response to the request of Ministers of Health1 in the Re- gion of the Americas, the Pan American Health Organization (PAHO/WHO) established a Regional Disaster Response Team. The multidisciplinary team has health and disaster specialists with the necessary experience and training to collaborate in emergency and disaster response in the Region of the Ameri- cas.

The team is deployed immediately when a major emergency or disaster occurs. It includes experts from a variety of technical areas, including epidemiology, mental health, water and sanitation, health services, environmental health, administration, and logistics, as well as communication specialists.

The main functions of the Regional Disaster Response Team are to:

 Support the health sector of the affected country.  Conduct damage and needs assessments.  Provide technical advice to PAHO/WHO offices and local and international counterparts.  Support, when necessary, in the activation of the health cluster and other specialized working groups in the framework of the United Nations Humanitarian Reform.

1 Forty-fifth Directing Council of the Pan American Health Organization, Washington, D.C., 2004.

16 Information management and communication in emergencies and disasters: Manual for disaster response teams

Objectives of the Regional Disaster Response Team

 The main goal of the Response Team is to quickly mobilize specialists who can support the emergency operations led by the health sector in the country or countries affected by disaster.

 In cooperation with national authorities and other actors, the team calculates the potential risk to the public health of affected populations, carries out rapid assessment of damages to and needs of the health sector, and shares results of assessments with humanitarian stakeholders involved in disaster response.

 An important function of the team is to gather, produce, and distribute necessary information so that local authorities, PAHO/WHO, donors, agencies in the United Nations system, and other actors can take decisions and set life-saving operations into motion.

DEPLOYMENTDEPLOYMENT OF THE REGIONAL OF THE DISASTER REGIONAL RESPONSE DISASTER TEAM RESPONSE TEAM Emergency 0-12 hours 12-24 hours after a 24-48 hours after a 48-72 hours after a afterEmergency a disaster 0-12 hoursdisaster 12-24disaster hours after a disaster 24-48 hours after a 48-72 hours after a after a disaster disaster disaster disaster

RAPID MOBILIZATION STAND-BY DEPLOYMENT ASSESSMENT OF RESOURCES RAPID MOBILIZATION STAND-BY DEPLOYMENT Preparation of Composition Arrival in ASSESSMENT OF RESOURCES PED the country project of the team proposals

Meeting PWR- Focal Point Situation Request Report for regional Arrival in Preparation of support Composition project PED of the team the country Travel Meeting with proposals arrangements counterparts from U.N. Delivery to Visas, tickets, etc and Health Cluster PED/HQ

Activation/Mobilization Meeting PWR- DEPLOYMENT Deployment to Focal Point Situation Request affected areas for regional Report Internal emergency Mission PWR declaration support plan PED/HQ PWR sends to SITREP donors Travel Meeting with arrangements counterparts from U.N. Delivery to and Health Cluster Information managementVisas, tickets,and etc PED/HQ preparation of reports

PED = PAHO/WHO Area on Emergency Preparedness and Disaster Relief. PWR = Representative of PAHO/WHO, located inActivation/Mobilization Member States of the Region. DEPLOYMENT Deployment to affected areas

Internal emergency Mission PWR declaration plan PED/HQ PWR sends to SITREP donors

Information management and preparation of reports Communication and information management 17

Roles and responsibilities of the Regional Disaster Response Team

Despite what is widely understood about how disasters occur and impacts of various phenomena, each emergency is different because of the circumstances where it occurs. There are widely varying levels of vulnerability and response capacity in the countries affected. The Disaster Response Team, therefore, must adapt to the needs of whatever country or area is affected and to the requests made to PAHO/WHO for assistance.

Regardless of the conditions that might confront the team, there is a list of basic tasks for the team. Tasks for communication experts are divided into two groups, as outlined below.2

Information management:

Prepare situation reports (SITREPs) and other technical documents and assist in preparing project proposals.

Coordinate the timely and effective distribution of information.

Organize the exchange of information with major national and international health sector agencies.

Collect, organize, and preserve reports and other technical or scientific information relating to the emergency or disaster.

2 These duties and responsibilities are described in more detail in Chapter 3.

18 Information management and communication in emergencies and disasters: Manual for disaster response teams

Comunication: Assist in planning the health sector’s communication and information management activities.

Promote, facilitate, and/or produce communication resources for health sector response activities and health promotion.

Advise the PAHO/WHO Representative on managing communications media.

Consult with the communications team from the Ministry of Health.

Assist in management of communications media and in distributing key messages.

Monitor coverage by communications media.

Facilitate and promote activities that will increase the visibility of the health sector.

Guidelines for information management

 Communication and information management are not isolated activities but are part of the plans and strategies pro- moted by PAHO/WHO in disaster situations.  Besides having specialized qualifications and training, the Di- saster Response Team must be proactive, transparent, and willing to collaborate.  Information management and communication are effective when they are part of all operations that experts and agencies carry out during disasters.  It is very important for all members of the Disaster Response Team to coordinate their work so that communication experts have a better understanding of the scope and dynamics of the disaster. Health experts should work with communication specialists to improve the decision-making process and to improve response activities. Guidelines for communication and information management 19

Remember:

In most cases, these tasks should be carried out in close coordination with PAHO/WHO and the communication team of the Ministry of Health of the affected country or countries. The recommendations included in this manual are directed at these two key actors.

1.4 Profile of information and communication specialists

Members of the Regional Disaster Response Team must assist those persons working in disaster preparedness and response to lessen negative impacts on health and to achieve rapid recovery for individuals and the community.

During a disaster or emergency, communication specialists on the Disaster Response Team must have the necessary experience and skills to perform effectively. Some of the quali- ties required are the following:

 Facilitate dialogue among different actors  Produce, analyze, and organize information  Promote and stimulate work on the team and in multicultural settings  Work under pressure  Make decisions  Manage politically sensitive situations  Have both oral and written communication skills  Prepare and carry out communication strategies that respond to the needs and demands of key actors  Design, execute, and evaluate communication plans  Manage computer equipment and software programs  Be fluent in official PAHO/WHO languages (e.g., English, Spanish, French, Portuguese).

20 Information management and communication in emergencies and disasters: Manual for disaster response teams

Communication specialists will always work with experts in other disciplines and will have technical support from personnel in areas of administration, information technology, graphic design, multimedia, photography, and audiovisual production. They will have access to other resources that can be hired at the disaster site, when conditions allow.

Principles and standards for 1.5 communication and information management

Members of the Risk, Emergency, and Disaster Working Group of the Permanent Inter-Agency Committee for Latin America and the Caribbean (REDLAC) agreed on a set of principles to guide information management in disaster or emergency situations.3 PAHO/WHO endorses these recommendations and promotes their inclusion in activities taken by the Disaster Re- sponse Team. The principles are as follows.

 Accessibility. Humanitarian information and data should be made accessible to all humanitarian actors by applying easy-to-use formats and by translating information into common or local languages when necessary. Information used for humanitarian purposes should be widely available through a variety of online and offline distribution channels, including the media.

 Inclusiveness. Information management and exchange should be based on a system of collaboration, partnership, and sharing. There should be a high degree of participation and ownership by multiple stakeholders, especially representatives of the affected population.

 Inter-operability. All sharable data and information should be made available in formats that can be easily retrieved, shared, and used by humanitarian organizations.

 Accountability. Users must be able to evaluate the reliability and credibility of data and information by knowing its source.

3 For more information on REDLAC activities, visit www.redhum.org. Communication and information management 21

Information providers should be responsible to their partners and stakeholders for the content they publish and disseminate.

 Verifiability.Information should be accurate, consistent, and based on sound methodologies, validated by external sources, and analyzed within the proper contextual framework.

 Relevance. Information should be practical, flexible, respon- sive, and driven by operational and decision-making needs throughout all phases of a crisis.

 Objectivity. Information managers should consult a variety of sources when collecting and analyzing information so as to provide varied and balanced perspectives for addressing problems and recommending solutions.

 Humanity. Information should never be used to distort, to mislead, or to cause harm to affected or at-risk populations and should respect the dignity of victims.

 Timeliness. Humanitarian information should be collected, analyzed, and distributed efficiently, and must be kept up-to- date.

 Sustainability. Humanitarian information and data should be preserved, catalogued, and archived so that it can be recovered for future use in areas such as preparedness, analysis, lessons learned, and evaluation.

22 Information management and communication in emergencies and disasters: Manual for disaster response teams

WHO communication standards for dealing with outbreaks of disease4

The Regional Disaster Response Team’s communication specialists, can benefit from these WHO recommendations in their activities. Important features of these standards are presented below:

 Trust. The overriding goal for emergency managers is to communicate in a way that builds, maintains, or restores the trust of the public. This is true across cultures, political systems, and level of country development. The less people trust those who are supposed to protect them, the more afraid they will be and less likely to conform to recommendations or guidelines.

 Announcing early. In today's globalized and interconnect- ed world, information about the impact of a disaster or emergency is almost impossible to keep hidden from the public. Eventually, the emergency will be revealed. Therefore, to prevent rumors and misinformation and to frame the event, it is best to announce as early as possible.

Early announcements are often based on incomplete and sometimes erroneous information. It is critical to publicly acknowledge that early information may change as further information is obtained or verified. The benefits of early warning outweigh the risks, and even those risks (such as providing inaccurate information) can be minimized with appropriate messages about hazards.

 Transparency. Maintaining the public's trust throughout an emergency or disaster requires transparency (i.e., communication that is candid, easily understood, complete, and fac- tually accurate). Transparency characterizes the relationship between the emergency managers and the public. It allows the public to view the processes of information gathering, risk assessment, and decision-making that are associated with controlling risks. Transparency, by itself, cannot ensure trust. The public must see that competent decisions are being

4 These principles are adapted from the World Health Organization (WHO), Outbreak communication guidelines (WHO/CDS/2005.28), Geneva (WHO), 2005. Available online at: www.who.int/infectious-disease-news/IDdocs/whocds200528/ whocds200528en.pdf. Communication and information management 23 made. But in general, greater transparency results in greater trust.

 Understanding the public. For communication to be effective, it is critical to understand the public. It is usually difficult to change pre-existing beliefs unless those beliefs are explicitly addressed. Without knowing what the public thinks, it is nearly impossible to design successful messages that bridge the gap between the expert and the public. Communicating about risks should be a dialogue with the public. The communicator must understand the public's beliefs, culture, opinions, and knowledge about specific risks.

 Planning. The decisions and actions of public health officials have more effect on trust than communication on the public’s perception of risk. Communication about risk has an impact on everything emergency managers do, not just what they say. Therefore, risk communication is most effective when it is integrated with risk analysis and risk management. Risk communication should be incorporated into preparedness planning for major events and in all aspects of disaster response. © PAHO/WHO Chapter 2

Planning communication and information management for emergencies and disasters

2.1 The best communication is planned 2.2 Prerequisites for planning 2.3 The key stages of planning 2.4 Examples 2.5 Checklist

This chapter outlines the main steps that health sector agencies should take to plan communication and information management before and during emergencies or disasters.

26 Information management and communication in emergencies and disasters: Manual for disaster response teams

2.1 The best communication is planned

Planning clarifies, in an ordered and sequential way, the context of what has to be communicated, how it will be communicated, through what media, what people and resources can be count- ed on, and the audience for the messages. © PAHO/WHO

It is impossible to plan communication without considering strategies, material design, and media activities which, in the case of the health sector, will provide the population with messages to protect themselves and improve their quality of life.

When dealing with emergencies and disasters, communication planning becomes a complex and challenging under- taking. It involves the collection, organization, production, and dissemination of the information that makes it possible to make informed decisions and mobilize necessary resources. Sources and key shareholders must be identified and different audiences must be given priority. It is vital to create messages that will make health agencies visible and relevant to the population, the international community, donors, communications media, and organizations involved in international disaster response. This planning is usually carried out in a complex political and social environment.

Communication planning requires a good understanding of the environment and the information needs both of the population and health sector institutions and authorities. Effective management ensures the optimal use of resources and improves the quality and organization of the work before, during, and after a disaster or emergency. Guidelines for communication and information management 27

One of the major challenges in risk communication is to trans- form the uncertainty and reactive communication that can occur in the first hours after an emergency/disaster to an organized, proactive and engaging information and communication process with both stakeholders and the public.

Experience in the United Nations system and national and international humanitarian agencies has improved the understanding of the impact and development of disaster and emergency situations. One of the lessons learned is the necessity to formulate plans and strategies that respond to the needs and priorities of the affected population and the health sector.

Of all of the tasks discussed in this manual, communication planning and information management are among the most important. It is the starting point for deciding what and how messages will be communicated, the target audience, the media to be used, and the context within which all of this will be implemented. It is also the end point of deliberations and learning; it replicates best practices and corrects actions based on lessons learned.

Communication planning at a glance

What is the situation? Diagnosis

Why communicate? Objectives

To whom? Target audience

How? Strategies, program, channels, tools

When? Timeline for actions

Who? Responsible parties

With what? Resources Monitor, obtain public feedback and How is it going? adjust as necessary

How effective? Follow-up and evaluation

28 Information management and communication in emergencies and disasters: Manual for disaster response teams 2.2 Prerequisites for planning © PAHO/WHO Planning clarifies in a sequential order, the content of what has to be communicated, how it will be communicated, through what media, to which people and identifies available or required resources. Planning also helps to define roles and responsibilities, establish goals and objectives, and assign resources, both in terms of budget and personnel.

It must be kept in mind that planning is an ongoing, dynamic process. Adjustments have to be made continually in goals, strategies, activities, and resource allocation. Once at the disaster or emergency site, and after the type of relief for the affected population has been determined, the communication plan must be adapted to the health sector objectives in consultation with the all critical partners, i.e., the national authorities, PAHO/WHO, and the leader of the Disaster Response Team, to ensure collective commitment and follow through.

Remember:

Plans for communication and information management for the health sector must be consistent with the disaster management plans carried out by national authorities or PAHO/WHO in the country or countries affected. 2.3 The key stages of planning This section outlines the key stages in developing a communication plan. They must be adapted to specific local, regional, and institutional needs. Planning communication and information management 29

A. Diagnosing the situation A diagnosis identifies the social, political, and economic conditions of potentially affected communities and of the country in general. It assesses the health sector, scientific information about hazards and their possible effects on health, potential information and communication needs, and conditions that favor or challenge the communication process.

Keep in mind that during the disaster, information must be re- vised and updated to reflect the damage and must include new information from the needs assessments that are carried out by the health sector. It is vital that the development of the emergency and the response provided by health authorities be monitored and recorded. To begin the planning process, make sure that you have the following information:

General:

 General characteristics: Population disaggregated by sex, age, national and ethnic origin, urban, rural; lit- eracy level; main income sources and production capacity; languages, dialects, religious practices, and social organizations; lifelines, main roads; and most vulnerable areas and populations.

 Information about disasters or emergencies relevant to the area: Type of event(s); prior events and response behavior; risk maps; factors affecting vulnerability (for example, political system, institutions, health and social services, educational system, environment, economy).

 Level of organization for disasters: Disaster response organizations, coordination mechanisms, and disaster preparedness and disaster prevention programs and plans.

 Health sector: Condition of infrastructure; health coverage; human, technical, and financial resources available for disaster or emergency response.

 Monitoring emergency and response efforts: Once at the scene of the disaster or emergency, there must be detailed monitoring and follow-up of how the situation is evolving, including how health authorities are responding.

30 Information management and communication in emergencies and disasters: Manual for disaster response teams

Communication:

 Perceptions of risk: Knowledge and beliefs of the population about their level of risk and the potential impact of an emergency or disaster; the influence of myths and cultural practices on the disasters and how to manage them. Ask: What does the community know about hazards they are exposed to? Do they consider them risk factors? How does the community live with the hazards? What explanation does the community give for the phenomena?

 Communication media used by potentially affected population: Radio, television, newspapers, maga- zines, newsletters, level of access to the Internet, community resources, and alternative media and information networks. Know the hours and programs with the largest audience.

 Social spaces and communication customs: Reli- gious services, fairs, markets, sporting events, meeting rooms, public squares, community centers and other gathering areas.

 Directory of journalists: Telephone and fax numbers, electronic and postal addresses; program directors and journalists (specialists or general) of media and of national and international news agencies.

 Opinion makers: Community, religious, and political leaders; sports and cultural figures respected by the potentially affected population.

Institutions:

 Human and technical resources that the Disaster Re- sponse Team can use during the emergency or disaster.

 Capacity and needs of the health sector communication teams.

 Nature of the relationship between the health sector and communication media.

 Support, consulting, or training needs of the health sector and PAHO/WHO personnel. Planning communication and information management 31

 Support, consulting, or training needs of designated spokespersons.

 Existing means of gathering, producing, approving, and disseminating information about the health sector response.

 Institutional communication protocols and policies to be applied in emergency and disaster cases.

 Dealing with difficult media situations relating to health sector response.

 Plans, programs, or experiences about communication and health used during other emergencies or disaster situations.

 Important agencies and actors in the affected area.

B. Objectives

Objectives define the timely and priority actions for communication and information management. Objectives are established in response to the needs identified in the diagnosis. They determine the strategies and resources used to reach the population, the intended messages, the most appropriate media, and a timeframe for completing activities.

What we want to achieve, what changes we want to make, and in what period we can do it are some of the guiding questions to ask when formulating objectives.

What do communication and information management seek to achieve? The list is extensive: to collect, produce, and disseminate information; to assist and advise health sector communication teams; to train and advise spokespersons and authorities; to manage the relationship with the media; to educate, persuade, stimulate, and change practices and behavior of the population.

Because the discipline of communication and information management covers such a broad area, goals must be concrete and realistic, and there must be measures and indicators to determine whether objectives are met. When dealing with emergencies or disasters, the key is to design objectives

32 Information management and communication in emergencies and disasters: Manual for disaster response teams

that can be adapted to the many dimensions of a crisis. Com- munication and information management must work to serve the health sector and to improve the quality of life of persons affected.

C. Target audiences

Once the target audience is defined, it is then possible to set the strategies, contents, and media to be used.

Target audience(s) might include the general public, the affected population, vulnerable populations, national authorities, communication media, journalists, the academic community (students, teachers, administrators, parents), international organizations, donors, and the international community.

D. Strategy

Communication strategies can be based on policy, technology, or methodology. When setting strategies, the target audience, key messages, conditions, and the interests of the institution and of the public must be considered. Strategy is the com- bination of criteria, decisions, methods, and actions used to realize the stated objectives. It uses campaigns and programs that are structured for the short- and medium-term depending on the specific circumstances and nature of a disaster or emergency.

Advocacy strategies, for example, would be used to promote public policies and mobilize resources for disaster preparedness and response, for risk reduction, and for educating the public about risk.

Social mobilization strategies build a critical mass of persons and institutions to address the specific situations and problems resulting from a disaster or emergency and influence common behavior to overcome these circumstances. These strategies include public and private institutions, municipalities, civil society organizations, and individual citizens etc.

A communication strategy can also include educational functions such as training journalists, building partnerships, purchasing informational and public service announcement spots in broadcast and print media, among other media channels. Planning communication and information management 33

E. Communication tools

The communication activities and channels chosen are sup- ported by a variety of tools or media. Factors that determine what tools can be used are: the complexity, style, purpose, and sensitivity of the message; target audience; availability of certain materials and media; and resources.

Tools can be print (brochures, foldouts, posters, newsletters, flyers, manuals, press packets, etc); audiovisual (videos, spots, movies); radio (public service announcements, radio maga- zines, radio dramas, news reports, interviews), computer- based (web pages, blogs, social networking sites, educational and interactive CD-ROMs); or alternative media (theatre, songs, calendars, table games, etc.).

F. Program of activities

The program of activities is an integrated and timed combi- nation of actions devised to achieve stated objectives. The first step is to define the objectives and the activities needed to accomplish them, establish the time limits for carrying them out, determine what resources are required, and designate who is responsible for each aspect of implementation.

G. Timeline

No planning process is complete without including the time factor. Time is a measure or indicator of success, i.e., whether goals set were achieved within the required timeframe. Time lines are also part of the communication strategy as some activities require specific time periods for efficacy and desired impact. A timeline can be set up in a double-entry format where different activities are entered with the time required to carry them out for maximum impact.

H. Budget

Each activity included in the communication plan must be backed by financial resources to facilitate its execution. Where there are budget shortfalls, other agencies with similar objectives are often willing to contribute to the program. Having a clear budget significantly aids the mobilization of additional resources.

34 Information management and communication in emergencies and disasters: Manual for disaster response teams

It should be kept in mind that broadcast and print media can provide space and time free-of-charge for institutional and public service messages. It is important to identify and manage the use of these resources to maximize impact.

A great deal of informational and educational material already exists, and it is important to identify institutions that are willing to share materials and to collaborate in communication activities.

I. Follow-up and evaluation

Evaluation is a tool for determining effectiveness. Feedback on how messages impact on the population, how messages are received, and whether messages are understood is critical to planning and managing communication activities.

Mechanisms for ongoing monitoring and evaluation should be defined at the onset of the planning process. Continual evaluation will provide answers to the following questions: Who received the messages? How did the public absorb and interpret the messages? Were the strategies, contents, and means of delivery appropriate? Did the messages take into account local attitudes and practices? Did they strengthen or modify these attitudes and practices? What other information is needed? Communication activities and messages should be adapted or redirected throughout the entire process in response to evaluation. Lessons learned should be shared with national authorities, PAHO/WHO, and others, as appropriate. Planning communication and information management 35 2.4 Examples

Objectives and actions taken by a Ministry of Health to assist communities affected by flooding Objectives and actions taken by a Ministry of Health to assist communities Objectivesaffected andby floodingactions taken by a Ministry of Health to assist communities affected by flooding Objectives Audience Strategy Activities/Tools Objectives Audience Strategy Activities/ToolsObjectives Audience Strategy Activities/Tools

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producing, and disseminating 1.4 Publish reports on the institution’s

disseminating 1.4 Publish reports on the institution’s technical information. Web site. technical information. Web site.2. Ensure that the Affected community, Strengthen 2.1 Prepare press releases, organize workshops, conduct interviews, communication health sector relationships with agenda includes authorities, media partners to distribute press kits, and visit affected information2. Ensure thatthat the internationalAffected community,facilitate ongoing Strengthen areas. 2.1 Prepare press releases, organize will reduce adverse community. dissemination of workshops, conduct interviews, 2. 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The objective is to raise their awareness and ensure their affected community. managers. The objective is to raise 2.3 Raise awareness among their awareness and ensure their journalists and train themcommitment on to publicizing measures commitment to publicizing measures prevention measuresto for prevent dengue, disease, to encourage to prevent disease, to encourage diarrhea, and hepatitishealthful B, and practices, and to follow healthful practices, and to follow promotion of healthfulemergency practices. response plans. emergency3. Strengthen response civil plans.Affected community, Social organization; 3.1 Train brigades, teachers, health participation and community leaders, educational promoters in health communication.2.3 Raise awareness among 2.3 Raiseorganization awareness to amonglocal NGOs. communication; journalists and train them on reduce the impact partnerships with all 3.2 Raise awareness ofprevention teachers and measures for dengue, journalistsof the and floods train on them on areas of the health mayors and plan health actions that preventionhealth. measures for dengue, sector (e.g., include will address the emergency.diarrhea, and hepatitis B, and diarrhea, and hepatitis B, and health promotion in promotion of healthful practices. promotion of healthful practices. response plans). 3.3 Involve the population in campaigns to clean up debris and 3. Strengthen civil Affected community, Social organization;destroy vector breeding3.1 sites.Train brigades, teachers, health 3. 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Ensure and diarrhea,adequate andDisaster promote response Educational 4.1 Convene periodichealthful gatherings practices. to healthfulknowledge practices. about personnel in the communication, distribute guidelines on successful the application of health sector. training coexistence in emergency3.6 Produce shelters. two videos, three radio standards and 3.6 Produceguidelines two in videos, three radio 4.2 Produce informativespots, posters and for one manual for teams on spots, emergencyand one manualshelters. for teams on the shelters highlightingpreventing organization, dengue, diarrhea, preventing dengue, diarrhea, guidelines for healthfulhepatitis, coexistence, and to promote healthful measures to prevent disease, among hepatitis, and to promote healthful other topics. practices. practices. 4.3 Adapt communication materials about disease prevention and promotion of healthful practices for distribution in emergency shelters.

4.4 Produce a video for medical personnel on maintaining standards 4. Ensure adequate Disaster response Educationalin emergency shelters4.1 and Convene guidelines periodic gatherings to on shelter operations. 4. Ensure adequate Disaster response Educational 4.1 Conveneknowledge periodic about gatherings personnel to in the communication, distribute guidelines on successful knowledge about personnel in the communication, distributethe guidelines application on of successful health sector. training coexistence in emergency shelters. the application of health sector. training coexistencestandards in emergency and shelters. standards and guidelines in 4.2 Produce informative posters for guidelines in 4.2 Produceemergency informative shelters. posters for the shelters highlighting organization, emergency shelters. the shelters highlighting organization, guidelines for healthful coexistence, guidelines for healthful coexistence, measures to prevent disease, among measures to prevent disease, among other topics. other topics. 4.3 Adapt communication materials 4.3 Adapt communication materials about disease prevention and about disease prevention and promotion of healthful practices for promotion of healthful practices for distribution in emergency shelters. distribution in emergency shelters. 4.4 Produce a video for medical 4.4 Produce a video for medical personnel on maintaining standards personnel on maintaining standards in emergency shelters and guidelines in emergency shelters and guidelines on shelter operations. on shelter operations.

Objectives and actions taken by a Ministry of Health to assist communities affected by flooding

Objectives Audience Strategy Activities/Tools

1. Ensure that situation Donors, international Organize the 1.1 Identify relevant sources of reports on the agencies, health communication information. development of the sector authorities, and information emergency and U.N. agencies, management 1.2 Produce daily technical reports. health sector local shareholders, team to set up response are communication mechanisms for 1.3 Systematically distribute these produced and media. collecting, daily reports to an approved list of distributed regularly. analyzing, contacts. producing, and

disseminating 1.4 Publish reports on the institution’s technical information. Web site.

2. Ensure that the Affected community, Strengthen 2.1 Prepare press releases, organize communication health sector relationships with workshops, conduct interviews, agenda includes authorities, media partners to distribute press kits, and visit affected information that international facilitate ongoing areas. will reduce adverse community. dissemination of impacts of the floods information. 2.2 Organize working groups with on the health of the broadcast and print editors and affected community. managers. The objective is to raise their awareness and ensure their commitment to publicizing measures to prevent disease, to encourage healthful practices, and to follow emergency response plans.

2.3 Raise awareness among journalists and train them on prevention measures for dengue, diarrhea, and hepatitis B, and promotion of healthful practices.

3. Strengthen civil Affected community, Social organization; 3.1 Train brigades, teachers, health participation and community leaders, educational promoters in health communication. organization to local NGOs. communication; reduce the impact partnerships with all 3.2 Raise awareness of teachers and of the floods on areas of the health mayors and plan health actions that health. sector (e.g., include will address the emergency. health promotion in response plans). 3.3 Involve the population in campaigns to clean up debris and destroy vector breeding sites.

3.4 Raise awareness of religious leaders; encourage them to address the health effects of flooding during worship services.

3.5 Transmit messages about the prevention of illnesses such as dengue and diarrhea, and promote healthful practices. 36 Information management and communication in emergencies and3.6 Produce disasters: two videos, three radio Manual for disaster response teams spots, and one manual for teams on preventing dengue, diarrhea, hepatitis, and to promote healthful practices.

Objectives and actions taken by a Ministry of Health to assist communities affected by flooding Objectives and actions taken by a Ministry of Health to assist communities affected by flooding Objectives Audience Strategy Activities/Tools

Objectives Audience Strategy 4. EnsureActivities/Tools adequate Disaster response Educational 4.1 Convene periodic gatherings to knowledge1. Ensure aboutthat situation personnel Donors, in the internationalcommunication, Organize thedistribute guidelines1.1 on Identifysuccessful relevant sources of training thereports application on the of health agencies, sector. health communicationcoexistence in emergencyinformation. shelters. 1. Ensure that situation Donors, international Organize the 1.1 Identifystandards relevant and sources of information.development of the sector authorities, and information reports on the agencies, health communication guidelines in 4.2 Produce informative posters for development of the sector authorities, and information emergencyemergency shelters. and U.N. agencies, managementthe shelters highlighting1.2 Produce organization, daily technical reports. emergency and U.N. agencies, management 1.2 Producehealth daily sector technical reports.local shareholders, team to setguidelines up for healthful coexistence, response are communication mechanismsmeasures for to prevent1.3 disease, Systematically among distribute these health sector local shareholders, team to set up other topics. response are communication mechanisms for 1.3 Systematicallyproduced anddistribute thesemedia. collecting, daily reports to an approved list of produced and media. collecting, daily reportsdistributed to an regularly. approved list of analyzing,4.3 Adapt communicationcontacts. materials distributed regularly. analyzing, contacts. producing,about and disease prevention and promotion of healthful practices for producing, and disseminating 1.4 Publish reports on the institution’s distribution in emergency shelters. disseminating 1.4 Publish reports on the institution’s technical information. Web site. technical information. Web site. 4.4 Produce a video for medical personnel on maintaining standards in emergency shelters and guidelines 2. Ensure that the Affected community, Strengthenon shelter operations.2.1 Prepare press releases, organize 2. Ensure that the Affected community, Strengthen 2.1 Preparecommunication press releases, organizehealth sector relationships with workshops, conduct interviews, communication health sector relationships with workshops,agenda conduct includes interviews, authorities, media partners to distribute press kits, and visit affected agenda includes authorities, media partners to distributeinformation press kits, thatand visit affectedinternational facilitate ongoing areas. information that international facilitate ongoing areas. will reduce adverse community. dissemination of will reduce adverse community. dissemination of impacts of the floods information. 2.2 Organize working groups with impacts of the floods information. 2.2 Organizeon the working health ofgroups the with broadcast and print editors and on the health of the broadcastaffected and print community. editors and managers. The objective is to raise affected community. managers. The objectiveOn isthe to raise next page is a checklist with tasks that shouldtheir awarenessbe ad- and ensure their their awareness and ensuredressed their during the planning process. While some ofcommitment the tasks to publicizing measures to prevent disease, to encourage commitment to publicizingmay measuresseem obvious, none should be neglected in the event of to prevent disease, to encourage healthful practices, and to follow healthful practices, andan to emergency follow or disaster. emergency response plans. emergency response plans. 2.3 Raise awareness among 2.3 Raise awareness among journalists and train them on journalists and train them on prevention measures for dengue, prevention measures for dengue, diarrhea, and hepatitis B, and diarrhea, and hepatitis B, and promotion of healthful practices. promotion of healthful practices. 3. Strengthen civil Affected community, Social organization; 3.1 Train brigades, teachers, health 3. Strengthen civil Affected community, Social organization; 3.1 Trainparticipation brigades, teachers, and healthcommunity leaders, educational promoters in health communication. participation and community leaders, educational promotersorganization in health communication.to local NGOs. communication; organization to local NGOs. communication; reduce the impact partnerships with all 3.2 Raise awareness of teachers and reduce the impact partnerships with all 3.2 Raiseof awarenessthe floods onof teachers and areas of the health mayors and plan health actions that of the floods on areas of the health mayorshealth. and plan health actions that sector (e.g., include will address the emergency. health. sector (e.g., include will address the emergency. health promotion in health promotion in response plans). 3.3 Involve the population in response plans). 3.3 Involve the population in campaigns to clean up debris and campaigns to clean up debris and destroy vector breeding sites. destroy vector breeding sites. 3.4 Raise awareness of religious 3.4 Raise awareness of religious leaders; encourage them to address leaders; encourage them to address the health effects of flooding during the health effects of flooding during worship services. worship services. 3.5 Transmit messages about the 3.5 Transmit messages about the prevention of illnesses such as prevention of illnesses such as dengue and diarrhea, and promote dengue and diarrhea, and promote healthful practices. healthful practices. 3.6 Produce two videos, three radio 3.6 Produce two videos, three radio spots, and one manual for teams on spots, and one manual for teams on preventing dengue, diarrhea, preventing dengue, diarrhea, hepatitis, and to promote healthful hepatitis, and to promote healthful practices. practices.

4. Ensure adequate Disaster response Educational 4.1 Convene periodic gatherings to 4. Ensure adequate Disaster response Educational 4.1 Conveneknowledge periodic about gatherings personnel to in the communication, distribute guidelines on successful knowledge about personnel in the communication, distributethe guidelines application on ofsuccessful health sector. training coexistence in emergency shelters. the application of health sector. training coexistencestandards in emergency and shelters. standards and guidelines in 4.2 Produce informative posters for guidelines in 4.2 Produceemergency informative shelters. posters for the shelters highlighting organization, emergency shelters. the shelters highlighting organization, guidelines for healthful coexistence, guidelines for healthful coexistence, measures to prevent disease, among measures to prevent disease, among other topics. other topics. 4.3 Adapt communication materials 4.3 Adapt communication materials about disease prevention and about disease prevention and promotion of healthful practices for promotion of healthful practices for distribution in emergency shelters. distribution in emergency shelters. 4.4 Produce a video for medical 4.4 Produce a video for medical personnel on maintaining standards personnel on maintaining standards in emergency shelters and guidelines in emergency shelters and guidelines on shelter operations. on shelter operations. Planning communication and information management 37

2.5 ChecklistChecklist Materials and resources for planning  Communication coordinator has been assigned.  A spokesperson has been assigned.  Updated contact lists are available.  Technical equipment and personnel are available.  Logistics and transport have been arranged.  Key health and disaster management agencies have been contacted.  Health authorities understand the need for information management and communication.  PAHO/WHO and other partner agency visibility standards are understood.  Communication and information management activities used in previous emergencies have been analyzed.  Best practices and lessons learned have been studied. Preparation of the plan  Identify the priority needs of the population, the health sector, and the media.  Establish objectives for responding to urgent needs.  Ensure that objectives include communication and information management.  Determine resources and time needed to carry out objectives.  Map out and assign communication projects, activities or production of materials to be undertaken by the Ministry of Health or PAHO/WHO or other partner, e.g. Red Cross.  Update the inventory of available information and educational materials.  Renew (or establish) relationships between the media and key health sector and disaster management agencies.  Work with decision-makers to determine the type of relationships they require with communication media during the disaster.  Manage visibility for national health agencies and PAHO/WHO.  Establish and carry out periodic reviews of mechanisms in place for monitoring and evaluation.  Maintain a record of the planning process and of tasks in order to simplify evaluation and documentation of the work. © PAHO/WHO ChapterCapítulo 1 3

Managing information during an emergency or disaster

3.1 The nature of information in disaster situations

Responsibilities of the Regional Disaster Response 3.2 Team in managing information

Stakeholders and information sources on disasters 3.3 and emergencies 3.4 The basics of situation reports 3.5 Preparing a web page on an emergency 3.6 Preparation and distribution of reports and news

This chapter identifies situations where information is required and must be produced for use during emergencies. It describes the role of the actors who participate in disaster and emergency response, and explains, step by step, how to translate data and technical reports into informational products that make the needs of the affected population visible and that facilitate rapid and effective response to those needs.

40 Information management and communication in emergencies and disasters: Manual for disaster response teams 3.1 The nature of information in disaster situations

The main challenge is to ensure that information is clear and that it reflects the most urgent needs of the affected population. © PAHO/WHO

Major disasters and emergencies bring chaos and confusion. Typical government and bureaucratic procedures are upset, resulting in difficulties in obtaining and delivering information. While these are limiting factors, they should never justify a lack of information.

It is likely that information in the first hours of a disaster will be neither readily available nor very reliable. At this stage, the main challenge is to ensure that information is clear and that it reflects the most urgent needs of the affected population. The second major challenge is to produce and update information regularly.

The national press is among the actors that demands the most information. It provides coverage of the impact of the disaster, the needs of the population, and the response measures being taken. It commonly focuses public opinion on the State’s effectiveness in responding to the disaster and on the quality of assistance provided to the affected population.

The following are important factors to consider in this context:

 Information management is successful to the extent that measures are planned for collection, production, and dissemination. Managing information during an emergency or disaster 41

 To be effective, communication and information managers must know and have contact with the most reliable information sources before any disaster or emergency occurs, and they must understand the procedures for exchanging information with these sources.

 To improve understanding of the impacts of a disaster or emergency on the population, communication specialists should have ready access to risk maps and vulnerability studies, population statistics, socio-economic indicators, historical data, and information on previous disasters.

 Information is the foremost need for the international community. Governments, international cooperation agencies, and humanitarian assistance organizations need to know the impact of the event and the needs of the population. Many of them send their own personnel to the disaster site to gain first-hand information.

 The international media are also focused on the event. Their main demands are for figures, images, expert opinions, and statements from the affected population. They will ask what relief efforts are being taken by national and international authorities and organizations and how international assistance is being utilized.

Responsibilities of the Regional 3.2 Disaster Response Team in managing information1

In an emergency, the collection, production, and dissemination of information are vital for both internal and external use. When information is produced and circulated promptly, it is more likely that decisions will be made rapidly and effectively. That information in turn, becomes the basis for messages that guide the actions of the affected population and of public opinion in general.

1 These roles and responsibilities were developed for the PAHO/WHO Regional Disaster Response Team, but can be applied to the work of any response team in the health sector.

42 Information management and communication in emergencies and disasters: Manual for disaster response teams

Whenever possible, and according to the complexity of the emergency, the Regional Disaster Response Team will include an individual or a working team with expertise in communication and information management. Their main duties will be to collect, process, and publish information associated with the disaster, whether in the form of situation reports (SIT- REPs) or reports for the communication media.

The communication specialists on the PAHO/WHO Regional Disaster Response Team are responsible for gathering the technical reports produced by experts from different disciplines and converting them into clear and understandable information. They are required to collect data supplied by specialists in epidemiology, water and sanitation, environmental health, mental health, hospital damage assessment, logistics, procurement, and administration. These data are the raw material for the information reports used to determine needs and are to be shared with all health sector actors and other partners or stakeholders, as necessary.

Depending on the situation, the list of potential tasks is long. The person or group responsible for information management is therefore responsible for the following:

 Gathering technical disaster information produced both by national health areas and the PAHO/WHO Regional Disaster Response Team.

 Preparing situations reports, project proposals, project reports, and other technical documents for both internal and external use.

 Coordinating timely and efficient information dissemination and distribution for internal use as well as for use by stakeholders from the national and international disaster response system.

 Promoting, facilitating and/or producing resources (photographs, maps, graphics, videos, press releases, etc.) that document the impact of the emergency and of disaster response actions taken by the health sector and PAHO/WHO. Managing information during an emergency or disaster 43

 Advising the PAHO/WHO Representative on managing the media, monitoring their work, and providing coordination to assist them in responding to needs.

 Preparing and distributing press releases, managing requests for information from the media, and ensur- ing coverage of and dissemination of important messages.

 Monitoring media coverage on the impact of the emergency, progress in disaster response made by the health sector, and making recommendations for required action to the population, etc.

 Supporting the development and implementation of an emergency communication plan that includes preparation, production, and distribution of materials on health information, education, and promotion that need to be communicated to the affected population and general public.

 Promoting and facilitating the visibility of institutions, highlighting the work of the health sector, the support and assistance provided by PAHO/WHO, and PAHO/ WHO’s role in facilitating donor assistance to the health sector.

 Advising health authorities in the planning, design, and development of effective information management and communication activities for disaster response and protecting the health of the affected populations.

This list of tasks demonstrates that during a disaster, information management can center on the preparation of reports, on management of the media, or on both. In all cases, the Di- saster Response Team will face situations that make it difficult to access, organize, and disseminate information. The best way to manage such obstacles is to anticipate them.

44 Information management and communication in emergencies and disasters: Manual for disaster response teams

Tips for avoiding information challenges

� In cases where management is centralized, establish clear and flexible methods for gathering, processing, verifying, and approving information. This applies to internal information, pertaining to Disaster Response Team issues, as well as information shared between PAHO/WHO and national authorities. Get answers to these questions: Who prepares what; when; and what are the contents? Who informs whom; when; and with what information? Who approves the information before it is made public?

� The methods used for gathering and analyzing information should be shared by all team members involved in those tasks. If the methods, formats, and procedures are commonly used by team members, the results will be uniform, efficient, and easier to organize.

� Having too much confusing information can be worse than not having any at all. Always seek a balance between speed, quantity, and quality of the information.

� To ensure that the information is useful and not under-utilized, seek feedback from the authorities or institutions that receive it and are required to use it. Establish clear and regular procedures for monitoring distribution and use (e.g. display of posters).

� If equipment, telephone services, or electrical power are poor or lacking, find other systems that will allow information to be collected, produced, and disseminated from the affected area.

� Avoid taking the limelight in information management. Anticipating and controlling political sensitivities may make the difference in collecting and producing information.

� Planning and work carried out prior to a disaster will help to anticipate the most complex situations and to make the most efficient use of resources when the disaster or emergency occurs. It will also make it easier to work with people who have limited experience in information management. Managing information during an emergency or disaster 45 Stakeholders and information sources 3.3 on disasters and emergencies © PAHO/WHO

The first step in accessing information about a disaster is to know the stakeholders and what technical and management procedures they use for emergency management. It is critical to coordinate with stakeholders, whether national or international, so that reports from the health sector can be fed into their information distribution systems, and vice versa.

Among the most important sources of information are the Emergency Operations Centers (EOC), Situation Rooms, and information sites for international assistance. While these actors or mechanisms may not be fully functional in the first hours of an emergency, they should always be the primary source of information.

46 Information management and communication in emergencies and disasters: Manual for disaster response teams

A. Emergency Operations Center (EOC)

Emergency Operations Centers are a device for organizing and controlling operations and making the required decisions for effective emergency management. Their main function is to coordinate emergency response and make the policy and technical decisions that will ensure an effective and timely response. EOC actions are always based on available information. Sectoral or geographic criteria (i.e., the health sector EOC; national, regional, or local EOCs) determine how they are organized.

Depending on the country and the magnitude of the disaster, there should be EOCs within PAHO/WHO, the U.N. system, and the Ministry of Health offices. The EOC organized by the national civil protection agency will have representatives from different sectors, including a health sector representative.

EOCs are located in secure sites, and should be equipped with adequate technological and human resources to maintain rigorous oversight of each detail of the response to an emergency.

B. Situation Room

The Situation Room is a mechanism for collecting and analyzing the information needed for the EOC to make decisions. Information about the emergency is received, organized, pro- cessed, and disseminated through the Situation Room.

Physically, the Situation Room may or may not be connected with the EOC and share facilities, or it could be located in an annex or other space. It may be a “virtual room,” with information provided via the Internet. Many PAHO/WHO country offices have created permanent Situation Rooms or have assisted in setting them up in ministries of health.

For the PAHO/WHO Regional Disaster Response Team, the Situ- ation Room should be the site for collection and analysis, but also for dissemination of information. All specialized reports and evaluations that feed the data and analysis of the Situation Room can serve as the source for health sector situation reports. Likewise, health sector reports go to the Situation Room, which makes this information available to other sectors. Managing information during an emergency or disaster 47

Vital information provided by the EOC and Situation Room

 Percentage of population affected (by age, sex, location, etc.).

 Critical needs of the population (satisfied or unsatisfied)

 Percentage of population that has received some form of assistance

 Conditions of essential services in the affected zone

 Main actions undertaken by the state or by international agencies

C. Damage and Needs Assessment (DANA)

Damage and Needs Assessments (DANAs) are essential for making decisions. They can be general or specific to the health sector, but in all cases they serve to identify the impact of a disaster and the needs of the affected population.

The health DANA aims to determine the type and scope of the effects of the disaster on the health of affected communities, specific damages, and the areas that require urgent assistance. It assesses not only the health of victims, but health conditions and damage to health facilities and services. PAHO/ WHO directly assists health authorities to carry out DANAs in the health sector and participates in multisectoral assessments carried out by U.N. agencies.

The health DANA is neither fixed nor static; rather, it is a dynamic process that evolves according to the emergency. Therefore, assessments are regularly carried out and updated. Informa- tion obtained in the first few hours will serve to deal with the most urgent, life-saving needs, and will minimize human suffering. Information compiled in the 48 to 72 hours following the event will quantify damages, and be the basis for planning health response and the resources needed to repair or rebuild damaged services.

48 Information management and communication in emergencies and disasters: Manual for disaster response teams

D. International cooperation

During disasters, international teams and experts support governments, usually in cooperation with the national authorities and with international cooperation agencies already present in the country affected.

Besides traditional humanitarian actors, such as U.N. agencies or the Red Cross Movement, there are increasing numbers of nongovernmental organizations (NGOs) with substantial logistical capacity and ability to mobilize resources. Donors, whether private or public, individuals, corporations or faith-based, have also expanded their participation.

This ensemble of actors relies on information for making decisions. Where to intervene, how to assist, and how much to invest in relief, are questions that can only be answered with reliable, clear, and quality information on the impact the disaster has had on the population and on expected solutions or the recovery efforts underway.

Experts in communication and information management should know who does what, be able to categorize incoming and outgoing information, and be ready to prepare the reports, proposals, or projects that are relevant to international humanitarian actors.

E. The United Nations System

In each country, the work of the U.N. system is directed by the U.N. Resident Coordinator. During a disaster, the Resident Co- ordinator leads the work of United Nations Emergency Techni- cal Teams (UNETT), made up of representatives of all of the U.N. agencies working in a country.

The U.N. Disaster Management Team (UNDMT) provides lead- ership for the UNETT. Their responsibilities include analyzing the emergency situation, evaluating the requests for international assistance, and verifying information to be included in situation reports.

The U.N. Resident Coordinator may request deployment of the U.N. Disaster and Assessment Coordination team (UNDAC). The UNDAC team is made up of disaster management professionals who can be mobilized within hours of a disaster. They are charged with evaluating the most urgent needs of the affected population, and communicating these needs to the Managing information during an emergency or disaster 49 national and international communities, in close coordination with national authorities.21

3 2F. Humanitarian Reform work groups The U.N. system has established the Humanitarian Reform process, with the goal of strengthening coordination among the many stakeholders in humanitarian assistance.

One of the reform measures is the creation of nine sectoral work groups, known as “clusters,” which coordinate operations and promote collaboration in defined areas. The nine clusters are: nutrition, water and sanitation, health, emergency shelters, logistics, emergency telecommunications, early recovery, and protection and coordination in camps.

When the U.N. Resident Coordinator in a country decides to activate the cluster system, PAHO/WHO acts as lead agency for the health cluster. Its role is not to replace national health authorities, but to provide them with assistance and ensure that work is effectively coordinated among national entities, international agencies, NGOs, and all other actors in humanitarian assistance.

PAHO/WHO also contributes to the work of the water and emergency shelter clusters, which are led by UNICEF and the Red Cross Movement, respectively.

For communication and information management, activation of the cluster system implies the need for additional coordination and information exchange among all members, NGOs, and institutions involved in emergency and disaster response.

G. Mobilizing resources

There are multiple mechanisms for obtaining humanitarian financing which conform to the interests and practices of the major international donors. In all cases, information and the expeditious provision of information are essential for preparing

2 This section was adapted from the Field Coordination Support Section of the web site of the U.N. Office of Coordination of Humanitarian Affairs (OCHA). See: http:// ochaonline.un.org/Coordination/FieldCoordinationSupportSection/UNDACSystem/ tabid/1414/Default.aspx. 3 For a more detailed description of the U.N. Humanitarian Reform and the cluster approach, see http://ocha.unog.ch/humanitarianreform.

50 Information management and communication in emergencies and disasters: Manual for disaster response teams

projects for emergency assistance, since these projects are the basis for requesting financing.

Mechanisms within the U.N. System One such mechanism is the U.N. system's international “flash appeal.” This document is typically published within a week of the emergency or disaster and presents a general and brief (but precise) description of the most urgent needs for the next six months. If the emergency lasts longer than six months, the flash appeal can be part of an extended process called a “consolidated appeal”. In both cases, the party responsible for the preparation, contents, and quality of the document is the U.N. Resident Coordinator or the Humanitarian Coordi- nator, with the support of the U.N. Office for Coordination of Humanitarian Affairs (OCHA).4

The flash appeal can include projects prepared by U.N. agencies, international organizations, societies of the Red Cross and Red Crescent Society/Movement, and NGOs. Government ministries (such as the ministry of health) can only participate as parties to projects presented by U.N. agencies.

In anticipation of delays in the approval of flash appeals, the U.N. system has developed the Central Emergency Response Fund (CERF) for urgent financing of humanitarian assistance. This fund covers projects for up to three months, but can only be requested by U.N. agencies. CERF grants are ultimately included as components of the flash appeal. CERF grants are the responsibility of the U.N. Resident Coordinator or the Hu- manitarian Coordinator.

Through flash appeals and other financing instruments, PAHO/ WHO leads development for the health cluster and collaborates with the water and sanitation cluster. The U.N. system submits these appeals to the donor community, and donors commit to an amount for the component that is of interest to them. When the funds arrive, each agency administers the amount that cor- responds to their project(s). In the case of PAHO/WHO, the organization manages funds designated for the health component.

It is important to establish relationships with donor countries prior to any emergency in order to understand specific procedures used by that country for emergency assistance.

4 Visit www.humanitarianreform.org, “Resources and tools” section to learn more about these U.N. mechanisms. The section on tools at www.redhum.org can also be consulted. Managing information during an emergency or disaster 51

Other mechanisms

Some donors such as the European Union’s Department for Humanitarian Aid (ECHO), OFDA/AID or CIDA (Canada) have their own formats and procedures which should be understood in advance of any emergency situation.

The communication team’s greatest contribution to mobilizing resources is to make sure that high quality, relevant, and timely information is available for specific proposals and procedures. The basics of situation reports 3.4 Situation reports (SITREPs) are usually produced daily, and describe the status of the emergency, its impact, and the needs of and actions taken to assist the population. These reports present the facts; they are not based on speculation, making them a source of reliable information about the status of the emergency or disaster.

The production of SITREPs is a critical activity for the PAHO/ WHO Regional Disaster Response Team. SITREPs include results of the damage and needs assessments; decisions made to respond to the needs of the affected population are based on this information.

In a major emergency, different teams might prepare reports or send information to be included in the overall reports. In this situation, it is vital that the information be consolidatied and analyzed, so that PAHO/WHO can publish a single, official report either daily or at set intervals.

Each agency or organization, whether it is the U.N. or NGOs, produces SITREPS. They use different formats, but they are structured around certain common features. In the case of PAHO/WHO, daily SITREPs may be the basis for generating other, more specific reports, or reports that meet the needs of a broader, more diverse audience.

Once the SITREP is written, and before it is distributed, review the report or have a colleague review it to determine the following: Does the report assist in planning and decision-making? Will it assist donors to award grants? Does it strengthen the image and visibility of health authorities and of PAHO/WHO?

52 Information management and communication in emergencies and disasters: Manual for disaster response teams

It is very important that the PAHO/WHO team be familiar with the SITREPs produced by other agencies and NGOs; likewise, it is vital for PAHO/WHO to share their own reports with these other entities.

A. How to prepare a SITREP

Everyone on the PAHO/WHO Disaster Response Team should have the ability and knowledge to prepare SITREPs. However, communication and information management specialists on the team are ultimately responsible for consolidating information and distributing the report.

To prepare the reports, the Response Team should have certain equipment available. This includes a laptop computer with Internet connection, receiver for a Global Positioning

Basic questions answered by a PAHO/WHO SITREP

� What is the condition of the area affected by the disaster?

� Which is/are the affected population(s)?

� What are the most seriously affected or vulnerable sectors, groups, or communities?

� How has the disaster impacted upon people’s health?

� How has the disaster impacted health conditions and health services?

� What are the main needs?

� What needs have been covered?

� What is not needed?

� What has the health sector accomplished; what immediate actions are being taken by the health sector?

� What has PAHO/WHO accomplished, and what is its immediate plan of action?

� To what extent is the government capable of responding to the disaster or emergency?

� Has the government requested external assistance? Managing information during an emergency or disaster 53

System (GPS), a cellular phone, a satellite phone, printer and fax machine. Redundant communication systems for voice and for data are necessary. The more channels available, the better.

Main sources of information for the SITREP are the experts on the PAHO/WHO Disaster Response Team, authorities from health and other sectors, representatives of the affected population, and teams from other agencies who are conducting damage and needs assessments in affected areas.

Existing databases, web sites, documents from other agencies, and media reports should be considered secondary sources. Whenever possible, it is beneficial to confirm information locally and compare different sources.

B. Different types of SITREPs

As soon as possible after the damage and needs assessment, it is important to get the details of and process health information, so that they can then be published and updated in the SITREP.

Health reports can be produced daily for internal PAHO/WHO distribution, for distribution internally among U.N. agencies (health reports will be included in the official U.N. SITREP), and also for other audiences such as NGOs and communication media.

Although aimed at different recipients, the information circulated is the same. The key is to modify the information according to the many different needs of SITREP recipients and according to PAHO/WHO priorities.

The contents and dynamics of the SITREP can also vary depending on the phase of the emergency in which the report is produced.

� Initial reports are prepared between emergency onset and 48 hours after onset. They are short and perfunc- tory. Typically, reports in this phase are based on limited, confusing, and incomplete information. The value of the SITREP is to explain and transmit the impact of the disaster as accurately as possible and to anticipate response in the area of health.

54 Information management and communication in emergencies and disasters: Manual for disaster response teams

DOs and DON’Ts of SITREPS

DO DON’T

Change technical and complicated Do not embellish text. text into straightforward text. Be brief and to the point. Avoid adjectives and adverbs.

Use direct and clear language. Do not use passive voice.

Analize situations and trends. Do not make vague assertions.

Provide sources for information provided. Do not assume that the reader is familiar with the country affected or the disaster situation.

Include maps and photographs. Do not repeat the same information in each report. Save only information that does not have to be updated.

Explain tables and figures. Do not include unreliable or unconfirmed information.

Include name(s) of report authors.

Include date and hour of publication.

Include the logo and full name of PAHO/WHO.

Explain any acronyms or abbreviations.

� Complementary reports come out during the first few hours of the emergency or disaster and address the evolution of the situation. These reports give more coverage and details on technical areas (health services, epidemiological surveillance, water and sanitation, etc.) and geographic information (describing the most and least affected populations).

The U.N. Office for Coordination of Humanitarian Affairs (OCHA) also publishes situation reports. The health section of their report is made up of daily summaries produced and sent by PAHO/WHO. Their format includes:

Emergency, place, date;

General situation;

Progress in national and international response (urgent needs, important achievements, remaining challenges, and the most important gaps in assistance). Managing information during an emergency or disaster 55

C. Distribution of the SITREPs

The mechanisms for distribution and dissemination, as well as the frequency and recipients of the SITREPs should be established, approved, and clearly understood. With the exception of delicate or very special situations that require confidential- ity or an embargo on some contents, the PAHO/WHO situation reports should be distributed to the following:

PAHO/WHO headquarters in Washington, D.C., the Area on Emergency Preparedness and Disaster Re- lief (PED), PAHO/WHO Emergency Operations Center (EOC),5 and possibly other technical areas involved in the emergency.

United Nations system in the affected country and the OCHA office in Panama.

National health authorities as indicated by the PAHO/ WHO Representative in the affected country (PWR).

Other national authorities, as indicated by the PWR.

The PAHO/WHO web site.

Where convenient, to communication media, international agencies, and donors (with prior authorization from the PWR).

Remember:

Situation reports are a way of giving visibility to relief operations. At the same time, they keep the communities affected and the general public informed which strengthens transparency and accountability.

5 The PAHO/WHO Emergency Operations Center (EOC) is located in Washington, D.C., and operates continually. Its objectives are (1) to collect, analyze, and distribute information related with events that can develop into emergencies, and (2) when emergencies or disasters occur in the Region, to facilitate coordination and decisions made by the Disaster Working Group and Working Group for Warning and Response to Epidemics.

56 Information management and communication in emergencies and disasters: Manual for disaster response teams 3.5 Preparing a web page on an emergency During an emergency, the web pages from health sector organizations should become the preferred point of reference for those requesting reports and analysis about the disaster or emergency, the needs of the affected population, and the progress being made in response to the situation.

These web sites must be constantly updated. In the case of PAHO/WHO, whenever possible, a technician and a communication specialist should be assigned to maintain the site design and contents. They should also prepare flexible and efficient ways of reviewing and approving the information that will be posted on the site.

It is advisable to build and test, in advance, formats and the- matic templates for the web page or section of an existing web site. When the time comes to publish the information on the emergency, less will have to be improvised, and it will be easier to maintain order and organization.

Useful resources for the web site Priority information Background information

 SITREPs on the health sector  Tables showing socioeconomic data  Reports from other sectors or agencies  Health or risk management profiles  Maps and statistics on damage  Publications and technical manuals  Epidemiological information and about disasters information about health services affected  Links to communication media

 Photographas from the emergency  Links to web sites with information about the country or about  Recommendations for disasters (information centers, population action databases, research institutes, etc.)  Press releases and other resources for the press

 Links to other information sources Managing information during an emergency or disaster 57

Having a web site facilitates and organizes the exchange of information among technicians and consultants from different areas, among agencies and institutions (civil defense, U.N. agencies, ministries of health, Red Cross movement) and between PAHO/WHO and the communication media. At the same time it is a resource that makes health sector activities visible and strengthens accountability and transparency.

Increasingly, web sites have become a basic information source for donors, for the international community in general, and even for the population of the country (affected or not) who want to know the mechanics of cooperation.

Preparation and distribution of reports 3.6 and news During emergencies and disasters there are opportunities to demonstrate the successes of health sector response, account for resources, and to promote lessons learned and best practices that can serve as examples and motivation to others.

Too often, opportunities to collect and publicize stories, programs, and case studies that enrich and justify our efforts are lost. The collective memory of emergencies and disasters is vague and it is beneficial to pass on lessons and practices that can benefit others in the future. Such examples are also useful for campaigns, public awareness, and health promotion.

Those responsible for information management and communication should seek ways to increase visibility about relief efforts. This visibility increases awareness about health and disasters in general, and improves the health sector’s position in the agendas and strategic decisions made nationally and internationally.

Listed below are proposed topics for human interest stories and other types of information products:

Follow up on the story of a family or community that demonstrates typical health problems resulting from the crisis, and highlight solutions offered by national health agencies and PAHO/WHO. Keep track of their

58 Information management and communication in emergencies and disasters: Manual for disaster response teams

condition over time; for example, one week, one month, six months, and a year after the disaster.

Identify one person or family who has made a donation in cash or kind. Explain what is done with that resource from the time it is made to the time it is delivered to an affected family, in the form of clean water, medications, etc.

Compile representative statements and publish them creatively. For example: “Four weeks, four stories,” “Ten families, a thousand hopes.”

Write short accounts about health sector personnel, telling where they are from, their role in disaster resonse, what a typical day of work is like, and their feelings about the situation.

Prepare photographic reports or stories told through images that summarize the challenges facing disaster victims and what they do to overcome them. It is important to show the capacity and strength of affected communities.

Highlight the stories of individuals who are important, but who are often invisible; for example, medical personnel, relief teams, hospital patients, health promotion workers, mothers responsible for health issues in their communities or in the shelter where they live, among others.

Identify health facilities or services that have ceased to function or have been negatively affected by the disaster. Highlight the social impact that these failures have on the community: that is, just when health services are most needed, they are unavailable.

In all cases, remember to discuss with the community how the information will be used. Request authorization from a person photographed, explaining that the picture may be published. Above all, always respect the dignity of the person or persons being depicted.

At all times, ensure that the information published is respectful of the identity and culture, of those affected and that the dignity of the community is maintained. Remember to put into practice the principles and standards of information management that are addressed in Chapter 1 of this manual.

Working with communication media

The role of communication media during 4.1 emergencies and disasters

4.2 Understanding communication media

4.3 What the media want

4.4 How to reach the media

4.5 Recommendations for the official spokesperson

4.6 Monitoring media coverage

4.7 Media responsibilities following the emergency

This chapter provides guidance on organizing work with communication media. It outlines specific characteristics of the media, their requirements for information, and the key messages that the health sector should publicize during emergencies and disasters.

62 Information management and communication in emergencies and disasters: Manual for disaster response teams 4.1 The role of communication media during emergencies and disasters

In emergency and disaster situations, the media will both demand and provide information. To strengthen partnerships between the media and health sector during an emergency, it is critical to understand the media structure, main characteristics, accessibility, and their advantages and disadvantages before an © PAHO/WHO event.

When a disaster strikes, the media perform a social function by providing prompt, first-hand coverage of the situation. Having an alliance with media outlets makes it easier to en- gage them in time of disasters and emergencies. During this time they serve as a critical partner to facilitate the transmission of messages that can generate humanitarian assistance, inform public behavior, and contribute to improving the quality of life in these circumstances.

The media’s ability to influence international humanitarian assistance is well-known. The media can shape agendas as well as decisions made by governments and cooperation agencies. Their presence and credibility give visibility to donors, health agencies, PAHO/WHO, and others as they un- dertake and cover relief operations.

It is known that the media can be instruments of criticism and scrutiny in situations where there have been irregulari- ties, lack of transparency, or irresponsible management of assigned resources and emergency situations. This, in turn, engenders a public demand for accountability of resources received and actions taken. Working with communication media 63

In this context there are two important factors to consider when working with communication media:

1. Ensure that the media have access to information on the emergency, its impact on the population, relief operations, and developments along the way. Once messages are based on fact and evidence, the media can assist in managing population response, reducing uncertainty, and focusing attention on the most pressing matters and required public action.

2. Build alliances with the media and coordinate initiatives to protect the health of the public. The media can promote civil support and participation and guide cooperative efforts not only among disaster victims, but among the response teams, groups providing assistance, and donors. 4.2 Understanding communication media The mass media should be viewed as important allies. Their credibility and broad coverage enables messages to be distributed in record time to their audiences both locally and internationally, as necessary.

In emergency and disaster situations, the media will both demand and provide information. To strengthen partnerships between the media and health sector during an emergency, it is critical to understand the structure of the media, their main characteristics, accessibility, and their advantages and disadvantages before an event.

To ensure a successful relationship, planning, understanding, trust, and credibility are necessary before, during, after the emergency. National health authorities and PAHO/WHO “must plan their communication strategies, integrate communicators into the most senior levels, provide transparent messages, and listen to the public’s concerns. …Prior approval of communication strategies helps to minimize secondary damage (such as adverse economic or political effects) and leads to greater trust”.1

1 World Health Organization, Effective media communication during public health emergencies; A WHO handbook; WHO/CDS/2005.31; Geneva; page ii. Available on the Internet at: www.who.int/csr/resources/publications/WHO_CDS_2005_31/en.

64 Information management and communication in emergencies and disasters: Manual for disaster response teams

The following are some features of the main available media channels that will aid your understanding of the nature of the selected media and, therefore, help you to establish and maintain a good and mutually beneficial relationship with them.

Television

Television typically provides national coverage, and in Latin America and the Caribbean there are important local television networks. Television is based on imagery and as such broadcasters require images. Therefore, you must be prepared to facilitate their access to the sites and/or provide them with video or at least still images. Ensure that the material recorded for television respects, at all times, the personal dignity of the subjects. To ensure coverage, you must meet television’s demands for brevity and timeliness; if not, pieces may be edited and your message altered.

Television

Role during response phase Role during recovery phase

 Television images (once  Television is usually involved properly prepared) vividly during the recovery phase demonstrate the situation through informational or and the needs of the investigative programs. It can affected communities. be vital for reporting on the quality of relief operations and  Televised coverage of an in strengthening a culture of event attracts the attention transparency and of donors, relief agencies, accountability. etc., and gives credit to their response.  During this phase, televised debates and panel discussions  It is an ideal medium for live can highlight analysis of transmission. humanitarian assistance operations, and the roles  Whereever available, played by and contributions television is the most made by donors. effective means of public communication. Working with communication media 65

Radio

Radio is recognized for its immediacy and that it can be accessed by a large population. It facilitates communication particularly with illiterate populations, and production costs are less than television production costs. It is effective in reaching national and community audiences. After the Internet, it is the medium that offers the most interactivity for its users.

Radio Role during response phase Role during recovery phase

 It allows communities that  Community stations are have been cut off by a particularly useful in disaster to communicate assisting the population with health sector authori- during their recovery. ties, to inform them on their Trained announcers who situation. are usually from the community can broadcast  Programs can be transmit- messages promoting basic ted live. health (e.g. how to treat  Several participants can be water for drinking), or interviewed simultaneously; provide information on the for example, an interview reestablishment of services, with a community leader, etc. the Minister of Health, and  After the recovery phase, the director of the EOC. stations can continue to air  It is the most effective programs about changing medium for managing the behaviors, risk situations, population’s emotions and and preventing new for providing warnings to emergencies, where communities during the first possible. hours following an event.  It functions as a community bulletin board where families can contact each other, and provides other services to the community.  It is a low-cost way to launch fund-raising campaigns.

66 Information management and communication in emergencies and disasters: Manual for disaster response teams

Print media

Print media best support the publication of in-depth reports and analysis of conditions leading up to and after the emergency. They generally have wide circulation, daily issues for diverse audiences, and people can read and re-read the information.

Print media

Role during response phase Role during recovery phase

 They publish key information so  They inform the public about that the public knows how to actions taken by certain behave (e.g., evacuation plans, agencies. how to keep water supplies  Provide a public accounting clean, etc.). of funds received, and explain  Useful for publishing action plans how they have been spent. and for making appeals for  Publish testimony and photo- assistance and donations. graphs of survivors, challenges  Put the needs of the victims on they face, and unmet needs, the international agenda, so that the disaster is not through reports produced by forgotten. news agencies.  Commemorate the time that  Ideal for publishing in-depth has passed since the disaster, interviews that analyze the situa- for example: “Six months after tion or report on damage and the earthquake, the aid is needs assessments. nearly exhausted,” or “A year after the floods, families start a  Their graphics communicate the new life.” story in itself which complements the written text.  Can be used to provide information on how individuals can prepare for a disaster or emergency; prevent and/or respond should the event reoccur. Working with communication media 67

International news agencies

The role of news agencies during disasters is closely tied to the media outlets that purchase information from them. The out- put of news agencies will reflect the advantages, disadvantages, and roles that characterize their clients, whether print, radio, or television.

International news agencies

Role during response phase Role during recovery phase

 Provide stories that highlight the  Generate stories highlighting event from a humanitarian per- the contribution and role of spective, which can generate particular organizations. support from international  Provide follow-up to humani- agencies. tarian assistance and stories.  Provide on-site coverage of human interest stories, which generates support and highlights the work of the responders.

Computer-based media

Computer-based media offer an extremely effective means of communicating with the international community, donors, humanitarian assistance agencies, and the international public. They have multimedia features, can provide instanta- neous coverage on a global scale, and have a nearly limit- less capacity to store information. Interactive formats, such as chat rooms and blogs, assist in maintaining transparency and accountability.

A disadvantage is that affected populations may not have access to the Internet, particularly during disasters.

It is important for communication teams from health agencies to develop a list of frequently used web sites that provide relevant and quality information. Examples are online newspapers and web sites for the ministry of health, health NGOs, international organizations, etc.

In all cases, it is important to identify the programs and segments of each medium that generally cover emergency situations. Establish contact with the journalists who coordinate the coverage, and develop a thorough understanding of

68 Information management and communication in emergencies and disasters: Manual for disaster response teams

Computer-based media

Role during the response phase Role during the recovery phase

 Immediate information up-  When special programs or dates on the emergency or segments are created on the disaster. emergency it is easy to include information about the  Ideal for publishing recovery phase. The commu- photographs. nication team should be

prepared to provide to the  Multimedia platform allows newspaper (or other medium) publication of statements photographs (with credits, with audio, videos about description), statements, relief activities, text analyzing interviews, etc. situation, or life stories.

 These media are usually  Fastest medium for dissemi- receptive to commemorating nating notes, press releases, the anniversary of an emer- news bulletins. gency or disaster and are  Journalists working in the willing to publish news and affected area can post special reports about the blogs about their experience recovery process of the and report on progress in affected communities months relief operations. or even years after the event.

 Important: Links can be made to the PAHO/WHO web site.

their operational mechanisms, including the nature of their work, publication or broadcast plans, and press deadlines.

Besides providing information, communication media are instruments and agents of change. They can play an important role in shaping attitudes or behaviors about health and the environment, which are critical during and after an emergency. The stimulus they can give to social mobilization is vital if uncertainty and suffering are to be transformed into activities of support and solidarity.

Remember, too, that the media will investigate and criticize when they discover lack of transparency or failure to com- ply with international standards of humanitarian assistance. When planning your work with them, stress the importance of their role in informing the affected community and the general public about health sector actions that maintain accountability in using resources and in providing quality assistance. Working with communication media 69 4.3 What the media want © PAHO/WHO

What do communication media want?

Information that is accurate, timely, transparent, and regularly updated.

To know the official position about the facts.

To know everything you know about the emergency.

Messages that are consistent, compelling, clear, and truthful.

Images, numbers, and statements from key actors.

Resources to help them better understand the emergency.

Clarification of rumors to avoid publishing information based on speculation.

Acknowledgement of and correction of errors, when necessary.

70 Information management and communication in emergencies and disasters: Manual for disaster response teams

General recommendations for working with the media

Anticipate. Be proactive—do not wait for them to ask for information. Develop a partnership based on trust; show interest and willingness to share information.

Minimize ambiguity. Deliver concise, timely, and clear information. Describe facts rather than processes.

Treat them equally. Do not discriminate because of size, penetration, or ideology; local, national, or international coverage; broadcast, or print.

Adapt information to the media. The emergency is seen differently from the perspective of local media vs international news agencies.

Find common interests. Generally journalists are not specialists in disasters. Help them to understand the emergency.

Pay attention to their demands. Address their demands and do not tell them how they should do their work.

Monitor coverage. Providing information is no guarantee that it will be published. Keep track of what is and is not published or broadcast. Also keep track of other related publications/broadcasts which can inform your communication activities as required.

Know the decision makers. In important cases, approach and establish alliances with news editors and directors. They decide the what, how, and when of the news.

Identify their interests. Understand the business and ideology of each medium. 4.4 How to reach the media By establishing and developing relationships with the media before an emergency or disaster strikes, you will know what the information demands are and how they prefer to obtain it.

Press releases and press conferences, technical bulletins, interviews with specialists, visits to the disaster site, meetings with editorial teams, institutional web sites, public service announcements, and educational material are some of the ways to get information to communication media, and, therefore, to the public. Working with communication media 71

Depending on the purpose and audience of your message, certain media outlets will be chosen in preference to others. This may change at the actual time of the emergency, so a thorough understanding of the options and flexibility of choice is necessary.

Press releases

These are among the most common ways of contacting the media. They are useful when you want to impart certain information on the record, clearly, and without urgency.

Pointers for preparing a press release2

WHAT  What exactly is being announced? The key message must be precise and the information provided should be as detailed and complete as possible.

WHY  Why did an event take place? Why were the announced decisions made or actions taken? Why is the agency that is issuing the press release involved in the emergency?

WHO  Who is giving the news? If it is the PAHO/WHO Rep- resentative’s office, the press release should clearly say so. It should be clear when you are announcing something jointly with the ministry of health, a national civil defense entity, or other U.N. agencies.

WHERE  Where did the disaster occur or where is the predict- ed danger?

WHEN  When did it occur or when is the event expected to happen?

CONTACTS  Name and contact information of a responsible person the media can contact for clarification and expansion. Include a web site address that will provide more information.

2 The text on press releases and press conferences has been adapted from “Media Relations in Emergencies,” available from the PAHO/WHO web site at www.paho. org/English/Ped/medios.htm.

72 Information management and communication in emergencies and disasters: Manual for disaster response teams

Press conferences

Press conferences are also widely used. Reporters are con- vened to receive an important message and experts are present who can respond to media questions. Pointers for preparing a press conference3

WHAT Deliver an important message that is brief and provides detail. It is advisable that each press conference address a specific topic.

WHO  Authorities from the ministry of health, from PAHO/WHO, or both will host the conference. Other key actors in response efforts may be present. Each agency represented must designate a spokesperson before the event. If the event is televised, spokespersons must be careful to appear calm, authoritative, and have command of the material.

WHERE  The event can be organized at the offices of the ministry of health, PAHO/WHO, a meeting hall, or at a location in the area affected by the disaster.

WHEN  Press conferences are best held early in the day, depending on local customs. They should be held immediately after you learn important news, especially if it is bad news. Remember: bad news does not improve over time. If there is a continually evolving emergency situation you may want to hold press conferences or briefings daily.

HOW  Define an important topic and the key messages that you want to deliver. Determine who the spokespersons will be. Choose the most relevant media outlets and send announcements stating the date, time, place, and topic of the conference.

CONTACTS  Indicate clearly the names and positions of the people who will speak during the press conference. Include the address of a web site that provides more details.

In some cases, radio and television provide live transmission of the press conference. The spokespersons should be aware of this. Emphasize that they must appear calm, speak with authority, and be familiar with the topic.

3 Modified text from “Media Relations in Emergencies,” available from the PAHO/ WHO web site at www.paho.org/English/Ped/medios.htm. Working with communication media 73

Remember: Prepare print and audiovisual material and provide each reporter with a copy. Include situation reports, photographs, maps, graphics, video, and a transcript of the statements of authorities. Following the conference you can arrange indi- Pointers for preparing a press conference3 vidual interviews to add to the information or to adapt it to certain regions or media.

Interviews

Interviews are another way to reach the media. They provide the opportunity to directly explain, from the perspective of experts, the predicament of the affected population, actions taken by the health sector, and the progress made in relief efforts. It is an ideal way to provide more in-depth information on specific or more complicated topics. Interviews also can increase media awareness about their role during an emergency or disaster.

Tips for giving interviews

Find out whether the interview will be live or pre-recorded. Find out whether there will be one interviewee or if others have been invited. Choose two or three central messages to focus on during the interview. Think carefully before responding to interviewer questions. Set the tone and control the direction of the interview. State your conclusions at the opening and provide additional information at the end. Offer to provide follow-up information if you cannot provide an answer during the interview. Ignore small mistakes that do not affect the information. Tell the journalist about major mistakes, if there are any. Restate the objectives of the organization. Prepare photographs and offer them to the media. Review the published interview and identify areas where improve- ment is needed. Do not speculate or try to respond about something you don’t know. Do not give long answers; be brief and concrete. Do not try to impress the journalist with a superior attitude. Do not refuse to respond to a question; or if you do, explain the reasons. Do not speak on behalf of others. Do not lie or try to hide the truth. Never assume that the microphone has been turned off when the interview is over.

74 Information management and communication in emergencies and disasters: Manual for disaster response teams

Remember:

Interviews should only be given by authorized spokespersons who are fluent with the topic. Identify these persons at the beginning so that they can be recommended as a technical resource for media coverage.

Institutional web sites

Institutional web sites offer information—before, during, and after a disaster—that can improve media coverage.

If health agencies in the affected country have or plan to have a web site, work with them to organize their site. The chart in the next page can help to give order to and optimize space on the Internet.

When possible, include interactive services such as chat rooms or blogs on the institutional web site. If time, resources, or technical ability do not allow this, establish partnerships with web portals or online newspapers that provide such options. Specialists from the health sector could be invited to participate in the blogs/chat rooms during disaster relief operations to generate discussion and disseminate key messages.

Another effective approach is to negotiate with these media to create special or temporary sections on their web sites that offer, for example, information about health promotion campaigns, situation reports, reports on resource use, discussion forums, and training resources.

When the institution web site is ready, exchange links with other sites so that other organizations, cooperation agencies, donors, and communication media have web links to the institution’s site. This will increase the frequency that the institution’s site appears in search engines and will expand access to the institution’s messages. Working with communication media 75

GuidelinesGuidelines for postingposting informationinformation on on an an institutional institutional web web site site

Disaster/emergencyDisaster/emergency Recovery/Recovery/ TypeType of information responseresponse phase phase rebuilding rebuilding phase phase Technical/Technical/ SituationSituation reports reports ReportsReports on on OperationalOperational operationaloperational progress progress DamageDamage and and needs needs informationinformation assessmentsassessments ListList of of populations populations ListList of of populations populations assistedassisted affectedaffected NewNew assessments assessments DescriptionDescription of of warning systems warning systems FinancialFinancial reports reports on on use of funds ActionAction plan plan and/or and/or use of funds emergency emergency response plan Reports to donors response plan Reports to donors Reports from other Reports from other Narrative reports on agencies (e.g., Narrative reports on agencies (e.g., conclusion of relief Ministry of Health) operationsconclusion of relief Ministry of Health) operations Technical guidelines orTechnical guidelines recommendationsor torecommendations assist in response to assist in response

Informational Press releases on Press briefings products for key response activities Informational Press releases on LifePress histories briefings of productsaudience for key initiatedresponse by activities the recoveringLife histories populations of audience institutioninitiated by the recovering populations institution Recorded statements Articles with Recorded statements statements from Videos Articles with leaders or agency statements from PhotographsVideos spokespersons leaders or agency MessagesPhotographs of support spokespersons received during Key messages for Messages of support the public (e.g., operations Key messages for received during What should you do Special reports on use the public (e.g., operations in the next 24 of resources hours?What shouldWhere you do Special reports on use shouldin the nextyou go?24 Specialof resources reports on Howhours? do Whereyou treat recovery (“Before and Special reports on watershould supplies? you go? after,” “Return to WhatHow docan you you treat do to normalrecovery life,” (“Before etc.) and help?)water supplies? after,” “Return to Sectionnormal with life,” links etc.) to What can you do to other web sites and Photographshelp?) informationSection with resources links to other web sites and ListPhotographs of institutional information resources spokespersons (includingList of institutional contact information).spokespersons (including contact information). Guidelines for posting information on an institutional web site

Disaster/emergency Recovery/ Type of information response phase rebuilding phase Technical/ Situation reports Reports on Operational operational progress Damage and needs information assessments List of populations List of populations assisted affected New assessments Description of warning systems Financial reports on Action plan and/or use of funds emergency response plan Reports to donors

Reports from other Narrative reports on agencies (e.g., conclusion of relief Ministry of Health) operations Technical guidelines or recommendations to assist in response

76 Information management and communication in emergencies and disasters: Manual for disaster response teams

Guidelines for posting information on an institutional web site Guidelines for posting information on an institutional web site Disaster/emergency Recovery/ Type of information Disaster/emergency rebuildingRecovery/ phase Type of information response phase response phase rebuilding phase Technical/ Situation reports Reports on OperationalTechnical/ Situation reports Reportsoperational on progress Informational PressDamage releases and on needs Press briefings informationOperational operational progress products for key Damageresponseassessments activitiesand needs information LifeList histories of populations of audience assessmentsinitiated by the List of populations Listrecoveringassisted of populations populations Listinstitution of populations assisted affected Recorded statements affected New assessments ArticlesDescription with of New assessments Descriptionstatements fromof Videos warning systems Financial reports on warningleaders or systems agency FinancialPhotographs reports on Action plan and/or use of funds Actionspokespersons plan and/or use of funds emergency Messages of support emergency receivedReports duringto donors responseKeyresponse messages plan plan for Reports to donors the public (e.g., operations Reports from other ReportsWhat should from youother do NarrativeSpecialNarrative reports reports reports on on use on agenciesinagencies the next (e.g., (e.g.,24 conclusion of relief Ministry of Health) conclusionof resources of relief Ministryhours? Where of Health) operationsoperations should you go? Special reports on TechnicalTechnical guidelines guidelines How do you treat recovery (“Before and oror water supplies? after,” “Return to recommendationsrecommendations What can you do to normal life,” etc.) toto assist assist in in response response help?) Section with links to other web sites and Photographs information resources List of institutional spokespersons (including contact information).

InformationalInformational PressPress releases releases on on PressPress briefings briefings products for key response activities products for key response activities Life histories of audience initiated by the Life histories of audience initiated by the recovering populations institution recovering populations institution Recorded statements Articles with Recorded statements statementsArticles with from Videos statements from Videos leaders or agency Photographs spokespersonsleaders or agency Photographs spokespersons Messages of support receivedMessages during of support Key messages for received during theKey public messages (e.g., for operations the public (e.g., operations What should you do Special reports on use inWhat the next should 24 you do ofSpecial resources reports on use hours?in the nextWhere 24 of resources shouldhours? you Where go? Special reports on Howshould do youyou go?treat recoverySpecial (“Beforereports on and waterHow dosupplies? you treat after,”recovery “Return (“Before to and Whatwater can supplies? you do to normalafter,” life,” “Return etc.) to normal life,” etc.) help?)What can you do to Section with links to help?) otherSection web with sites links and to Photographs informationother web resources sites and Photographs information resources List of institutional spokespersonsList of institutional (includingspokespersons contact information).(including contact information). Working with communication media 77

Other resources

Organizing visits of journalists to the disaster site and publication of paid announcements are other ways of working with the the media and reaching the public. Include these options in your plans when you want to keep the emergency or disaster on the public agenda, raise media awareness, and strengthen relationships with them. Visits to the disaster site will put a human face on the situation. Paid announcements allow you to deliver unedited messages and information and without the intervention of other stakeholders.

The checklist below will help to identify and record basic information that has to be considered when submitting material to the communication media, whether through press releases or conferences.

Checklist Basic information for press releases or conferences and informational and educational materials

 Description of the disaster or emergency and the area where it occurred.  Description (preliminary) of the impact on the population.  Specific impacts on women, the elderly, children, etc.  Advance damage and needs assessment reports.  Response operations underway, possible actions in the next 24 to 48 hours.  Number of persons who have received assistance at the time of posting.  Funds invested by disaster response authorities.  Information on emergency shelters (where, how many, for how many people, for how long, etc.).  Information on finding family members in emergency shelters.  Name and contact information for the person responsible for up- dating information.

Additional information that the media should transmit to the public

 Information on safe areas.  Information on functional health facilities.  Safety measures to reduce the impact of new events.  Preventative or health care measures (in disease outbreaks, volcanic eruptions, etc.).  Measures to protect water sources and other resources.

Responsibility for preparing press releases

 Person responsible for clearance of press release.  Person responsible for distributing press release.  Person responsible for follow-up with media outlets.

Managing journalists

 Directory of local, national, and international journalists.  Record of journalists who request information about the emergency.  List of information that the media demand most frequently.  When possible, send periodic updates about the evolution of the emergency.

Managing photographs

 Identify person responsible for storing photographs and video.  File images and video, indicating place, date, name of subject, name of photographer, and description of activity.  File images in JPG or GIF format and video, as per available software.  When possible, prepare high quality images for use by media.  Activate a free server to upload images and video to the Internet. Checklist Basic information for press releases or conferences and informational and educational materials

 Information on emergency shelters (where, how many, for how many 78 Information management and communication in emergencies and disasters: Manualpeople, for disasterfor how response long, etc.).teams  Information on finding family members in emergency shelters.  Name and contact information for the person responsible for up- dating information. Checklist BasicAdditional information information for press that releases the media or conferencesshould transmit and to informationalthe public and educational materials  Information on safe areas.  DescriptionInformation ofon the functional disaster healthor emergency facilities. and the area where it  occurred.Safety measures to reduce the impact of new events.  DescriptionPreventative (preliminary) or health care of the measures impact (in on disease the population. outbreaks, volcanic  Specificeruptions, impacts etc.). on women, the elderly, children, etc.  AdvanceMeasures damageto protect and water needs sources assessment and other reports. resources.  Response operations underway, possible actions in the next 24 to 48 Responsibilityhours. for preparing press releases  Number of persons who have received assistance at the time of  posting.Person responsible for clearance of press release.  FundsPerson invested responsible by disaster for distributing response press authorities. release.  InformationPerson responsible on emergency for follow-up shelters with (where, media how outlets. many, for how many people, for how long, etc.).  Information on finding family members in emergency shelters. Managing journalists  Name and contact information for the person responsible for up-  datingDirectory information. of local, national, and international journalists.  Record of journalists who request information about the emergency. Additional List of information information that that the the media media demand should transmit most frequently. to the public  When possible, send periodic updates about the evolution of the  Informationemergency. on safe areas.  Information on functional health facilities. Managing Safety measures photographs to reduce the impact of new events.  Preventative or health care measures (in disease outbreaks, volcanic  eruptions,Identify person etc.). responsible for storing photographs and video.  Measures File images to protect and video, water indicating sources and place, other date, resources. name of subject, name of photographer, and description of activity.  File images in JPG or GIF format and video, as per available Responsibility for preparing press releases software.  When possible, prepare high quality images for use by media.  Person responsible for clearance of press release.  Activate a free server to upload images and video to the Internet.  Person responsible for distributing press release.  Person responsible for follow-up with media outlets.

Managing journalists

Managing photographs

It is mandatory for all messages to be reviewed and approved before being published or distributed. An unambiguous protocol must be in place at the onset for clearance of messages, materials, and information sent to the media.

Recommendations for the official 4.5 spokesperson4

During contact with the media the person who assumes the role of spokesperson for the ministry of health or for PAHO/ WHO must be prepared to answer many questions. Some are standard and can be anticipated, such as:

What happened? What type of event was it? Where and when did it happen? What caused it? Why did it happen? How many people are injured, dead, affected, or missing? What has been damaged? What are the damages to the health sector? Are victims receiving help?

The great demand for information from the media provides a unique opportunity to explain the mechanics of humanitarian assistance, and to give visibility to the operations and practices of the health sector. Keep this in mind when the media ask the following questions:

What should the affected population do? Where should they go? What should be donated? To whom should donations be made? Who is in charge of the emergency and what are they doing? What are expected consequences in the short-, medium-, and long-term?

4 Adapted from: Crisis and emergency risk communication by leaders for leaders. Be first, be right, be credible. CDC (Washington, D.C.) www.bt.cdc.gov/erc/leaders. pdf

80 Information management and communication in emergencies and disasters: Manual for disaster response teams

What are the health sector’s plans to help the popution? Where can we get more information?

Guidelines for spokepersons

Be calm, honest, transparent, and open when you communicate.

Use a clear and simple message, avoid scientific or technical jargon.

Be aware of the audience you want to reach.

Distinguish between talking to the media and talking to the affected population.

Be sincere when you express your empathy with the affected people.

Express confidence, but never arrogance.

Modulate your voice and enunciate words.

Discuss what you know, not what you think.

Remain calm and in control; do not react defensively.

Agree to an interview only when you have a clear message to deliver.

Listen to and show respect to those speaking to you.

Anticipate questions about the evolution of the crisis and about what is to come.

Assume that the microphone is always turned on.

Never make “off the record” statements.

Before giving information to the media you must anticipate difficult or politically sensitive questions that journalists may ask. Avoiding thorny questions is not adequate: always try to bring the discussion back to your objectives – sharing the key messages agreed on before the interview. National health authorities and PAHO/WHO Representatives must have answers prepared even though they may never have to give them. Working with communication media 81

Official sensitive information guidance forms can be developed to identify these difficult questions, frame responses, and briefly state the organization’s position on the situation in question. They are for internal use only and must be cleared by the health authorities or the PAHO/WHO Representative, as appropriate. The chart below sets out the basic structure of the official sensitive information guidance form.

OfficialOfficial reaction: reaction: Title Title of of sensitive sensitive topic topic (For(For internal internal use use only) only) DescribeDescribe in ina fewa few words words the the sensitive sensitive situation situation that that requires a reaction. Topic requires a reaction. Topic Example:Example: Rumors Rumors about about delivery delivery of outdated of outdated medicines medicines in inshelter. shelter.

DateDate DateDate when when official official reaction reaction form form generated. generated.

Person or persons responsible for approving official Responsible for Person or persons responsible for approving official Responsible for reaction. clearance reaction. clearance Example:Example: PAHO/WHO PAHO/WHO Representative, Representative, ministry ministry of health, of health, experts.experts.

AuthorsAuthors PersonsPersons who who write write the the official official reaction. reaction. Persons responsible for publicizing the official reaction, Persons responsible for publicizing the official reaction, Spokespersons if this is the approach decided on. Indicate name, Spokespersons position,if this is andthe approachcontact information. decided on. Indicate name, position, and contact information. Briefly describe how the situation or crisis came about.Briefly Describe describe its how origin, the why situation it happened, or crisis whatcame was Background itsabout. impact, Describe who was its involved. origin, why This itinformation happened, should what was Background beits sufficient impact, forwho someone was involved. who was This not information previously should awarebe sufficient of the situation for someone to understand who was it. not previously aware of the situation to understand it. Anticipate possible sensitive questions and prepare a Questions and responseAnticipate for each possible of them. sensitive Write questions short answers and preparethat a answersQuestions and areresponse based on for facts. each of them. Write short answers that answers are based on facts. Basic information Include information about PAHO/WHO and the aboutBasic information healthInclude sector information of the country(ies) about PAHO/WHO affected that and can the be useful for spokespersons. PAHO/WHOabout health sector of the country(ies) affected that can PAHO/WHO be useful for spokespersons.

82 Information management and communication in emergencies and disasters: Manual for disaster response teams

When you are asked to do an interview, be clear about the topic and purpose of the conversation. Find out whether it will be transmitted live or be pre-recorded, and if it will be for radio, print, or television. This will aid your preparations.

Official declarations that are timely and transparent, based on conclusive evidence, and include statements from experts, can keep rumors from spreading indiscriminately.

Remember:

Major errors in emergency information have the potential of making the situation worse or causing additional problems, and they must be corrected immediately. The longer incor- rect information circulates, the more difficult it is to correct.

4.6 Monitoring media coverage

It is vital to follow up on the messages that we circulate in the media. There may not be funds to hire companies that monitor all of the media outlets, so an alternative is to use search and news alert services that are offered on the Internet.

Putting a simple, well-organized monitoring system into place allows you to channel information more strategically. Ultimately, this assists authorities and PAHO/WHO in making decisions which affect the health sector response.

This will also allow you to identify topics that receive more or less coverage, and adjust the emphasis in messages as necesssary. Working with communication media 83

Keep in mind the following recommendations to improve the system:

Recommendations for monitoring the media

Make a directory of web pages to keep track of media outlets interested in the emergency, and determine whether your institution’s messages have had any influence.

Subscribe to Internet services that offer searches. You can receive a daily report of news items published about the emergency via e-mail.

Identify the journalists who write most about the disaster, and send them detailed information, images, graphics, or resources that can expand their coverage.

Share the most relevant results with national authorities and PAHO/WHO. They can evaluate whether messages adequately represent the health sector’s mission and operations.

Save samples of coverage of health sector activities and create an archive that can be reviewed after the emergency phase is complete.

Media responsibilities following the 4.7 emergencies

The work of the media should continue past the peak of the disaster. The challenge is to keep their attention over time. During the first hours, their presence is overwhelming, but two or three weeks after the disaster, coverage tends to lessen and the predicament of the affected populations can disap- pear from the informational agenda.

It is precisely when media interest begins to lessen that attention should be given to human interest stories, new angles on stories, updated figures, and reports on advances in recovery and rebuilding. The key is to find what is positive and novel at that decisive moment. Following are some practical recommendations on how to accomplish this:

84 Information management and communication in emergencies and disasters: Manual for disaster response teams

Make the first, third, and sixth month, or the first annual anniversary after the disaster an opportunity to present new information, to attract attention to the prevailing conditions of the affected population, to give an account of how resources are being used, and to analyze lessons learned and the best practices during the humanitarian response.

Identify important national or international dates when disaster and health themes can be highlighted. For example, World Health Day, World Day for Water, Interna- tional Disaster Reduction Day, among others.

Organize traveling exhibits, concerts, or painting, essay or photograph competitions to attract public and media attention and to keep interest in unmet needs of the affected population.

Sponsor journalism competitions around the disaster. The best articles relating to health can be presented in the press, radio, and television at the community level, nationally, and even internationally.

Identify journalists or media outlets that gave the most coverage to the emergency. Propose that they do stories following the development of one community or family throughout the response phase, or that they create an ongoing segment that covers the emergency recovery. Consult first with the people involved to determine whether they are willing to participate and able to respond to requests for information from the media.

Meet with editorial directors, journalists, and other media representatives to get feedback on their access to information during the emergency, their challenges, needs, and other aspects that will help national health authorities and PAHO/WHO to improve information management in the future. Working with communication media 85

Propose to media outlets the creation of a blog that addresses the emergency. This is a good opportunity for health sector personnel to share, in first person, how they feel and how their work is progressing.

Once resources permit, consider purchasing advertising time or space. While it is a rarely used option because of its high cost, sometimes it is the only opportunity to transmit important messages when they are needed.

Remember:

Media are powerful instruments for changing attitudes and behavior in relation to health and the environment. These are critical issues in the post-emergency period. Keeping media attention and involvement after the crisis passes maintains the partnership for risk reduction and keeps the public mobilized around the relevant issues.

Chapter 5 Developing messages and material

5.1 Messages for different phases of the emergency 5.2 Developing effective messages: message maps

Recommendations on message content, 5.3 language, and format 5.4 Managing myths and rumors

5.5 Myths and realities of disasters

Producing communication and informational 5.6 materials

This chapter provides direction on anticipating key messages and material needed for communicating with the public in an emergency or disaster; and how to develop them efficiently and effectively.

88 Information management and communication in emergencies and disasters: Manual for disaster response teams 5.1 Messages for different phases of the emergency

Messages for the public and communities affected by a disaster or an emergency aim to educate, save lives, and reduce risks. © PAHO/WHO

The severity and extent of the impact of a disaster determine how much assistance is needed from and within the health sector. The context of damage and needs determines what the most relevant messages are.

Messages for the public and communities affected by a disaster or emergency aim to educate, reduce risks, and so save lives. Most health problems that result from natural disasters (earthquakes, hurricanes, floods, volcanoes, etc.) are foreseeable and occur after each event. Therefore, many of the messages and informational material can and should be prepared prior to an event.

These messages should be simple, timely, relevant, credible, and concise. Those directed to protecting or promoting health in emergency situations should have clear action points which encourage and enable people to take and be responsible for their own health. The messages should highlight relief efforts, and encourage actions that are positive.

Before the disaster, messages should focus on prevention and understanding of possible consequences of an event. The population needs to know what type of disaster they could face, what the impact could be, and actions they must take to reduce their vulnerability. Ensure that the public has reliable Developing messages and material 89 and regular access to this information, which will improve their understanding and ownership of the information, hence their response during an event.

During and after the disaster, the population should have access to information that will calm them and inform them about safety measures, always focusing on life-saving actions. While these messages should aim to reduce anxiety and panic, they should not minimize the situation or possible threats.

Immediately after the event that causes the disaster, the messages should focus on protecting health and saving lives. At this time, provide information on the areas affected and support services available (water, power, and health services) for the affected population.

The affected population must have access to information on the following:

Procedures for searching for missing persons and the location and condition of the injured Practical information on health precautions The availability of mental health services Rules for living together and tolerance in emergency shelters Restoration of health services Agencies that can provide assistance, and how they function.

During the disaster response phase, the public will need information on correct hygiene practices and health care for families and the community. At the same time, the public should be informed about the following:

What is the progress of relief efforts? How are funds being used and donations being distributed? How long will relief efforts last? What can be done to reduce the impact of future events?

Where possible, anticipate the demand for information. Keep track of how information needs develop, and any innovative and responsible approaches to dealing with these needs.

90 Information management and communication in emergencies and disasters: Manual for disaster response teams

Remember:

Keep in mind that traditional media outlets should not be the only means of disseminating this information. Interper- sonal, one-on-one communication should complement regular media.

Public perception of messages about risk

Risk is an intangible and abstract concept. Many people do not recognize relative risk, and as a result their decisions can be based on faulty reasoning.

The public responds best to straightforward messages. Commu- nity response is better when messages call for simple actions that are easy to carry out.

The community expects information. Information vacuums can lead to erroneous conclusions or delayed decisions and actions.

Alarming messages can have unfavorable responses. Communi- ties living in risk situations can experience denial, helplessness, and fear. The way the message is delivered should consider these reactions so that paralysis and denial do not result.

The public can be suspicious of scientific information. When technical information on hazards or disasters have been ineffective or vague in the past, it can continue to be a source of skepticism among the population.

Communities have other priorities. Often, the population feels that circumstances of daily life (economic, social, safety issues) are more important than conditions presenting risk.

Communities tend not to recognize their own vulnerability. Peo- ple think of natural disasters as inevitable. Making changes in habits and customs (behavior change) is a complex and lengthy process. Developing messages and material 91

Remember:

Before developing the key messages, take into account socio- cultural and psychosocial factors that can affect how a community either accepts or rejects the message. Perceptions of risk and the impact of disasters are not all the same. Keep in mind that a technical or scientific report is not easily assimi- lated by the general population, so with the help of an expert, rewrite it in language that is simple and easy to understand.

5.2 Developing effective messages: message maps

“Message maps are risk communication tools used to transmit complex information in a simple way.”1 The principle is that each main message has secondary messages that reinforce, complement, and give perspective to the main message.

Message maps allow institutions to organize ideas and develop messages in response to anticipated community concerns. It also helps to elaborate the content of messages and develop a style of message to achieve an identified objective. This way for example, the public is able to link messages and actions to achieve the desired behavior change.2

The process of creating the message map can be as important as the message itself. It encourages participation of sci- entists, health sector and communication specialists, policy and legal experts, and others who can enrich the contents of the key messages.

1 U.S. Department of Health and Human Services, Pandemic influenza pre-event message maps. Available at http://www.pandemicflu.gov/news/pre_event_maps. pdf. 2 Ibid.

92 Information management and communication in emergencies and disasters: Manual for disaster response teams

Steps for building message maps:3 1. Determine the main concerns: These include problems causing public distress, problems reported by the PAHO/WHO Disaster Response Team, or problems revealed by the media. They can be either general concerns or very specific ones, e.g., management of dead bodies, ash fall from volcanoes, deficient water supplies in a community, etc. Once identified, the concerns must then be prioritized.

2. Identify facts or evidence that can put concerns to rest. For example, scientific explanations, technical opinion, facts based on experience, figures, or statistical data that can support and legitimize messages.

3. Identify the target audience(s): These include persons affected by the event, their families, relief workers, public health workers, donors, communication media, etc. They can be grouped according to their credibility and potential as decision makers or as “multipliers” of information.

4. Develp key messages that respond to concerns. The messages can respond to general or specific concerns. They should be based on what the majority of people need to know, what they want to know, and what is of primary concern to most of them. Specialists and experts then brain-storm to propose key words (a maximum of three) for each message.

5. Develop supporting material for each key message, using facts, figures, expert statements, and data to reinforce and improve the understanding of each message.

6. Confirm messages before publishing them. First, confirm the accuracy of technical information. Messages should be reviewed by specialists who have not participated in developing them. The second step is to confirm that they are easy to understand: select a group that represents a target audience, and test by focus group how they receive the messages.

7. Share message maps with spokespersons and use them to organize work with media outlets. The maps can be used to guide and inform press conferences, interviews with communication media, information exchange, public meetings, web sites, recorded reverse emergency phone calls, etc.

3 Adapted from PAHO/WHO, Curso de autoaprendizaje en comuncación de riesgos, available at http://www.cepis.ops-oms.org/cursocr/e/index.php. This approach is based on V.T. Covello, Message mapping: Workshop on bio-terrorism and risk communication. WHO: Geneva, 2002. Developing messages and material 93

ExampleExample of message of message map on map management on management of dead bodies of dead bodies ProblemProblem Concerns Concerns that dead that bodies dead cause bodies epidemics cause epidemics

Evidence Audience Messages Channels Materials Evidence Audience Messages Channels Materials

Most infectious agents Community The bodies of disaster Radio, TV, Radio and TV do not survive for more victims do not cause interpersonal spots, announ- thanMost 48 hours infectious in a dead agents Communityepidemics. RiskThe for bodies communica- of disaster cements.Radio, TV, Radio and TV body.do Deadnot survive bodies dofor more the public is victimsminimal dotion, not cause interpersonal spots, announ- notthan cause 48 epidemics. hours in a dead because theyepidemics. are community Risk for communica- cements. body. Dead bodies do not in contactthe with public leaders, is minimal tion, the bodies. information Thenot use causeof appropriate epidemics. because centers,they are community protection equipment not in contactteachers. with leaders, People who die as a (gloves, goggles, masks, result of disasterthe do bodies. information etc.) and basic hygiene The use of appropriate not tend to have centers, are the best protection infections such as thatprotection workers have equipment to teachers. cholera, typhoid,People etc., who die as a avoid(gloves, exposure goggles, to masks, that can causeresult of disaster do illnessesetc.) that and can basic be hygiene epidemics. not tend to have contractedare the bybest contact protection infections such as withthat bodily workers fluids. have to cholera, typhoid, etc., avoid exposure to Journalists Your help is important.that can causePress confe- Press releases, illnesses that can be Refute comments you epidemics.rences, inter- guidelines and contracted by contact hear about mass views, meet- recommenda- with bodily fluids. cremations or burials ings. tions, referen- to prevent epidemics. ces to web sites. JournalistsDo not join theYour help is important. Press confe- Press releases, alarmists. If youRefute have comments you rences, inter- guidelines and doubts, contacthear about mass views, meet- recommenda- experts from PAHO/WHO cremationsor the or burials ings. tions, referen- Red Cross Movement.to prevent epidemics. ces to web sites. Victims of disastersDo not die join the because of injuries,alarmists. If you have not from infectious diseases. doubts, contact experts from PAHO/WHO or the Red Cross Movement.

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Attempts should be made to identify all Protocols for Journalistsbodies. Identification Press conferen- Radio and TV identification of dead process can be slow. Until identification is ces, interviews, spots and bodies are complete, bodiesGive public calming meetings. announce- time-consuming. should be temporarilymessages; ments, e- mail, stored or buried.encourage press releases. Efforts made to recover cooperation with dead bodies are authorities in carrying valued. out proper identification of the If necessary, bodies dead. should be stored or buried temporarily so that expert identification Disaster Bodies should be Meetings, Practical safety can be conducted managers recovered and stored interpersonal information for later. and response in refrigerated communica- workers team containers or tions handling containers with dry bodies. ice.

Attempts should be made to identify all bodies.

Until identification is complete, bodies should be temporarily stored or buried.

Example of message map on management of dead bodies Problem Concerns that dead bodies cause epidemics

Evidence Audience Messages Channels Materials

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Meetingsannounce- Practical ted by takingCoroner precau- or medical leaders, thattime-consuming.dead workers bodies have areto messages; ments, e- mail, do not survive for more personneltions. Wash and disinfect safety infor- avoidvalued. exposure to encourageexaminer is the only informationpress releases. Effortsthan made48 hours to recover in a dead cooperationequipment. with mation for illnesses that can be authority allowed to centers, dead bodies are Doauthorities not cause in alarmcarrying in contractedbody. Dead by contact bodies do release a body and teachers. workers valued.If necessary, bodies theout community. properWash hands with soap withnot bodily cause fluids. epidemics. identificationmust of thedocument the handling should be stored or and water. 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If necessary, bodies dead. time-consuming. bodies. tion, Protocolsshould forbe stored or Journalists Identification Press conferen- Radio and TV identification of dead process can be slow. ces, interviews, spotscommunity and buriedEfforts madetemporarily to recover so bodies are Give publicCoroner calming ormeetings. medical announce-leaders, time-consuming.thatdead expert bodies identification are Disastermessages; Bodies should be Meetings, Practical safety examiner is the only ments,information e- mail, canvalued. be conducted managersencourage recovered and stored pressinterpersonal releases. information for Effortslater. made to recover cooperationauthority with allowed to centers, and response in refrigerated communica- workers dead bodies are authorities inrelease carrying a body and teachers. valued.If necessary, bodies team out proper containers or tions handling should be stored or identificationcontainersmust of the document with dry the bodies. If buriednecessary, temporarily bodies so dead. ice.release with a death shouldthat beexpert stored identification or certificate. buriedcan temporarilybe conducted so that expert identification Disaster Bodies shouldAttempts be should be Practical safety later. Meetings, can be conducted managers recovered madeand stored to identifyinterpersonal all information for later. and response in refrigeratedbodies. communica- workers team containers or tions handling containers with dry bodies. ice. Until identification is complete, bodies Attempts shouldshould be be temporarily made to identifystored all or buried. Protocols for Journalistsbodies. Identification Press conferen- Radio and TV identification of dead Until identificationprocess is can be slow. ces, interviews, spots and bodies are complete, Givebodies public calming meetings. announce- time-consuming. should be temporarilymessages; ments, e- mail, stored or buried.encourage press releases. Efforts made to recover cooperation with dead bodies are authorities in carrying valued. out proper identification of the If necessary, bodies dead. should be stored or buried temporarily so that expert identification Disaster Bodies should be Meetings, Practical safety can be conducted managers recovered and stored interpersonal information for later. and response in refrigerated communica- workers team containers or tions handling containers with dry bodies. ice.

Attempts should be made to identify all bodies.

Until identification is complete, bodies should be temporarily stored or buried.

Example of message map on management of dead bodies Problem Concerns that dead bodies cause epidemics

Evidence Audience Messages Channels Materials

Journalists Your help is important. Press confe- Press releases, Refute comments you rences, inter- guidelines and hear about mass views, meet- recommenda- cremations or burials ings. tions, referen- to prevent epidemics. ces to web sites. Do not join the alarmists. If you have doubts, contact experts from PAHO/WHO or the Red Cross Movement.

Victims of disasters die because of injuries, not from infectious diseases.

Most infectious agents Medical Use gloves and boots. Meetings Practical do not survive for more personnel Wash and disinfect safety infor- than 48 hours in a dead equipment. mation for body. Dead bodies do workers not cause epidemics. Wash hands with soap handling and water. Avoid dead bodies. touching your face or The use of appropriate mouth. protection equipment (gloves, goggles, masks, The risk of contagion etc.) and basic hygiene with disease is minimal and can be preven- are the best protection ted by taking precau- that workers have to tions. avoid exposure to illnesses that can be Do not cause alarm in contracted by contact the community. with bodily fluids.

Protocols for Community Work with authorities Radio, TV, Radio and TV identification of dead to help in proper interpersonal spots, an- bodies are identification of communica- nouncements. time-consuming. bodies. tion, community Efforts made to recover Coroner or medical leaders, dead bodies are valued. examiner is the only information authority allowedDeveloping to messagescenters, and material If necessary, bodies release a body and teachers. 95 should be stored or must document the buried temporarily so release with a death that expert identification certificate. can be conducted later. ExampleExample of messageof message map onmap management on management of dead bodies of dead bodies Problem Concerns that dead bodies cause epidemics Problem: Management of Dead Bodies. ConcernProblem ConcernsIdentification that deadand appropriate bodies cause disposition epidemics of dead bodies

Evidence Audience Messages Channels Materials Evidence Audience Messages Channels Materials Protocols for Journalists Identification Press conferen- Radio and TV Most infectious agents Community The bodies of disaster Radio, TV, Radio and TV identification of dead process can be slow. do not survive for more victims do not cause interpersonalces, interviews, spots,spots andannoun- bodiesMost areinfectious agents Give publicThe calming bodies meetings. of disaster announce-Radio, TV, Radio and TV thantime-consuming. 48 hours in a dead Communitymessages;epidemics. Risk for communica- cements. body.do not Dead survive bodies fordo more the public isvictims minimal do tion, not cause ments,interpersonal e- mail, spots, announ- encourage press releases. notEffortsthan cause made 48 epidemics. hours to recover in a dead cooperationbecause theyepidemics. with are community Risk for communica- cements. deadbody. bodies Dead are bodies do authoritiesnot in contact inthe carrying with public leaders, is minimal tion, valued. outthe properbodies. information Thenot use cause of appropriate epidemics. identificationbecause of the theycenters, are community protectionIf necessary, equipment bodies dead. not in contactteachers. with leaders, People who die as a (gloves,should be goggles, stored masks,or result of disasterthe bodies.do information etc.)buried and temporarily basic hygiene so thatThe expert use of identification appropriate not tend to have centers, are the best protection Disaster Bodies should be Meetings, Practical safety can be conducted infections such as thatprotection workers have equipment to managers recovered and stored interpersonal informationteachers. for later. cholera,in refrigerated typhoid,People etc., who die as a avoid(gloves, exposure goggles, to masks,and response communica- workers thatcontainers can cause resultor of disaster do illnessesetc.) andthat can basic be hygieneteam tions handling epidemics.containers notwith tenddry to have bodies. contractedare the best by contact protection ice. infections such as withthat bodily workers fluids. have to cholera, typhoid, etc., avoid exposure to Attempts should be Journalists Yourmade help to identifyis thatimportant. canall causePress confe- Press releases, illnesses that can be Refute comments you bodies. epidemics.rences, inter- guidelines and contracted by contact hear about mass views, meet- recommenda- with bodily fluids. cremationsUntil identification or burials is ings. tions, referen- tocomplete, prevent epidemics.bodies ces to web should be temporarily sites. JournalistsDostored not orjoin buried. Yourthe help is important. Press confe- Press releases, alarmists. If Refuteyou have comments you rences, inter- guidelines and doubts, contacthear about mass views, meet- recommenda- experts from PAHO/WHOcremations or the or burials ings. tions, referen- Red Cross Movement.to prevent epidemics. ces to web sites. Victims of disastersDo not die join the because ofalarmists. injuries, If you have not from infectious diseases. doubts, contact experts from PAHO/WHO or the Red Cross Movement.

Most infectious agents Medical Use gloves andVictims boots. of disastersMeetings die Practical do not survive for more personnel Wash and disinfectbecause of injuries, safety infor- than 48 hours in a dead equipment.not from infectious mation for body. Dead bodies do workers not cause epidemics. Wash handsdiseases. with soap handling and water. Avoid dead bodies. touching your face or The use of appropriate mouth. protection equipment (gloves, goggles, masks, The risk of contagion etc.) and basic hygiene with disease is minimal and can be preven- areMost the bestinfectious protection agents Medical Use gloves and boots. Meetings Practical ted by taking precau- that workers have to do not survive for more personneltions. Wash and disinfect safety infor- avoidthan exposure 48 hours to in a dead equipment. mation for illnesses that can be body. Dead bodies do Do not cause alarm in workers contracted by contact the community. withnot bodily cause fluids. epidemics. Wash hands with soap handling and water. Avoid dead bodies. touching your face or The use of appropriate mouth. Protocolsprotection for equipmentCommunity Work with authorities Radio, TV, Radio and TV identification(gloves, goggles, of dead masks, to help in properThe risk of contagioninterpersonal spots, an- bodies are etc.) and basic hygiene identificationwith of diseasecommunica- is minimal nouncements. time-consuming. bodies. and can betion, preven- are the best protection community Efforts made to recover ted by taking precau- that workers have to Coroner or medical leaders, dead bodies are tions. valued.avoid exposure to examiner is the only information illnesses that can be authority allowed to centers, If necessary, bodies release a bodyDo not and cause teachers. alarm in shouldcontracted be stored by or contact must documentthe community. the buriedwith temporarilybodily fluids. so release with a death that expert identification certificate. can be conducted later.

Protocols for Community Work with authorities Radio, TV, Radio and TV identification of dead to help in proper interpersonal spots, an- bodies are identification of communica- nouncements. time-consuming. Protocols for Journalists Identificationbodies. Press conferen- Radiotion, and TV identification of dead process can be slow. ces, interviews, spotscommunity and Efforts made to recover bodies are Give publicCoroner calming ormeetings. medical announce-leaders, time-consuming.dead bodies are messages; examiner is the only ments,information e- mail, valued. encourage press releases. Efforts made to recover cooperationauthority with allowed to centers, dead bodies are authorities inrelease carrying a body and teachers. valued.If necessary, bodies out proper should be stored or identificationmust of the document the If buriednecessary, temporarily bodies so dead. release with a death shouldthat beexpert stored identification or certificate. buriedcan temporarilybe conducted so that expert identification Disaster Bodies should be Practical safety later. Meetings, can be conducted managers recovered and stored interpersonal information for later. and response in refrigerated communica- workers team containers or tions handling containers with dry bodies. ice.

Attempts should be made to identify all Protocols for Journalistsbodies. Identification Press conferen- Radio and TV identification of dead Until identificationprocess is can be slow. ces, interviews, spots and bodies are complete, bodiesGive public calming meetings. announce- time-consuming. should be temporarilymessages; ments, e- mail, stored or buried.encourage press releases. Efforts made to recover cooperation with dead bodies are authorities in carrying valued. out proper identification of the If necessary, bodies dead. should be stored or buried temporarily so that expert identification Disaster Bodies should be Meetings, Practical safety can be conducted managers recovered and stored interpersonal information for later. and response in refrigerated communica- workers team containers or tions handling containers with dry bodies. ice.

Attempts should be made to identify all bodies.

Until identification is complete, bodies should be temporarily stored or buried.

96 Information management and communication in emergencies and disasters: Manual for disaster response teams

Problem: Safe drinking water Problem: Safe drinking water ConcernConcern Water sourcessources areare contaminated contaminated and and it itis isdifficult difficult to to access access safe safe water water Evidence Audience Messages Channels Materials Evidence Audience Messages Channels Materials

Drinking safe water Affected Use chlorine to Radio, TV, Radio and TV Drinkingprevents safe diarrhea, water communityAffected disinfectUse chlorine water. to interpersonalRadio, TV, spotsRadio and and TV preventsparasites, diarrhea, cholera, community Washdisinfect a water. communica-interpersonal announce-spots and parasites,and hepatitis. cholera, receptacleWash a and tion,communica- ments;announce- press. and hepatitis. fillreceptacle it with water; and communitytion, ments; press. Water can be followfill it with water; leaders,community Waterdisinfected can beat home instructionsfollow on informationleaders, disinfectedusing chlorine at andhome theinstructions chlorine on centers,information usingfilters. chlorine and containerthe chlorine to teachers.centers, filters. measurecontainer the to teachers. Drinking water can be correctmeasure amount the Drinkingcontaminated water canby be ofcorrect chlorine. amount contaminatedindustrial waste. by of chlorine. industrial waste. Add the chlorine In disaster situations toAdd the thewater chlorine and Inwater disaster quality situations must be letto it the rest water for 30 and waterclosely quality monitored must be minuteslet it rest before for 30 closelybecause monitored it may be drinkingminutes it. before If becausecontaminated it may and be waterdrinking is cloudy, it. If contaminatedturbidity may and filterwater it before is cloudy, turbidityincrease. may addingfilter it beforechlorine. increase. adding chlorine. Use safe sources ofUse water. safe sources of water. Store the disinfected Store the water in clean disinfected containers with water in clean lids. containers with lids.

Drinking safe water People living Obtain chlorine Interpersonal Posters, radio in emergency from health communica- spots, messages prevents diarrhea, Interpersonal Posters, radio Drinking safe water sheltersPeople living workers.Obtain chlorine tion, use of delivered over parasites, cholera, communica- spots, messages preventsand hepatitis. diarrhea, in emergency from health posters, loudspeakers. parasites, cholera, shelters Washworkers. a recepta- loudspeakers,tion, use of delivered over posters, loudspeakers. andWater hepatitis. can be cle and fill it with skits, meetings, Wash a recepta- loudspeakers, disinfected at home water; follow community cle and fill it with skits, meetings, Waterusing chlorine can be and instructions on leaders community disinfectedfilters. at home thewater; chlorine follow (religious using chlorine and containerinstructions to on leaders,leaders youth, filters.Drinking water can be measurethe chlorine the authorities).(religious contaminated by correctcontainer amount to leaders, youth, Drinkingindustrial water waste. can be ofmeasure chlorine. the authorities). contaminated by correct amount industrialIn disaster waste. situations Addof chlorine. the chlorine water quality must be to the water and let it rest for 30 Inclosely disaster monitored situations Add the chlorine minutes before waterbecause quality it may must be be to the water and drinking it. If closelycontaminated monitored and let it rest for 30 water is cloudy, becauseturbidity may it may be minutes before filter it before contaminatedincrease. and drinking it. If adding chlorine. turbidity may water is cloudy, increase. filter it before Useadding safe sourceschlorine. of water. Use safe sources Store the disinfec- of water. ted water in clean containers Store the disinfec- with lids. ted water in clean containers with lids.

Drinking safe water Journalists Inform the public Press Informational prevents diarrhea, about the conferences, press kit, parasites, cholera, importance of interviews, photographs, Drinkingand hepatitis. safe water Journalists onlyInform drinking the public meetings.Press radioInformational and TV prevents diarrhea, chlorinated,about the conferences, spotspress and/or kit, parasites,Water can cholera, be boiled,importance or bottled of interviews, announce-photographs, anddisinfected hepatitis. at home water.only drinking meetings. ments.radio and TV using chlorine and chlorinated, spots and/or Waterfilters. can be Forboiled, storing or bottled announce- disinfected at home treatedwater. water, ments. usingDrinking chlorine water andcan be recommend the filters.contaminated by useFor of storing clean, industrial waste. non-corrosive,treated water, Drinking water can be containersrecommend with the contaminatedIn disaster situations by lids.use of clean, industrialwater quality waste. must be non-corrosive, closely monitored Promotecontainers water with Inbecause disaster it situations may be conservationlids. watercontaminated quality must and be measures closelyturbidity monitored may Promote water becauseincrease. it may be conservation contaminated and Health workers Recommendmeasures that Meetings, Specialized turbidity may and disaster the public drink electronic and information kits, increase. response team chlorinated, interpersonal manuals. boiled, or bottled communica- Health workers Recommend that Meetings, Specialized water. tion with and disaster the public drink electronic and information kits, specialists. response team chlorinated, interpersonal manuals. Authorities must boiled, or bottled communica- guarantee water quality,water. quantity, tion with and coverage. specialists. Authorities must guarantee water quality, quantity, and coverage. Problem: Safe drinking water Concern Water sources are contaminated and it is difficult to access safe water Evidence Audience Messages Channels Materials

Drinking safe water Affected Use chlorine to Radio, TV, Radio and TV prevents diarrhea, community disinfect water. interpersonal spots and parasites, cholera, Wash a communica- announce- and hepatitis. receptacle and tion, ments; press. fill it with water; community Water can be follow leaders, disinfected at home instructions on information using chlorine and the chlorine centers, filters. container to teachers. measure the Drinking water can be correct amount contaminated by of chlorine. industrial waste. Add the chlorine In disaster situations to the water and water quality must be let it rest for 30 closely monitored minutes before because it may be drinking it. If contaminated and water is cloudy, turbidity may filter it before increase. adding chlorine. Developing messages and material 97 Use safe sources of water.

Store the Problem: SafeSafe drinking drinking water water disinfected Concern WaterWater sources sources are are contaminated contaminatedwater in clean and and it isit difficult is difficult to accessto access safe safe water containers with lids. Evidence Audience Audience Messages Messages Channels Channels Materials Materials

Drinking safe water Affected Use chlorine to Radio, TV, Radio and TV Drinking safe water PeopleAffected living ObtainUse chlorine chlorine to InterpersonalRadio, TV, Posters,Radio and radio TV prevents diarrhea, community disinfect water. interpersonal spots and prevents diarrhea, in emergency from health communica- spots, messages preventsparasites, diarrhea,cholera, community Washdisinfect a water. communica-interpersonal announce-spots and parasites, cholera, shelters workers.Wash a tion,communica- use of deliveredannounce- over and hepatitis. receptacle and tion,posters, ments;loudspeakers. press. and hepatitis. fill receptacleit with water; and communitytion, ments; press. Washfill it with a recepta- water; loudspeakers,community Water can be followcle and fill it with leaders,skits, meetings, Waterdisinfected can beat home instructionsfollow on informationleaders, water; follow community disinfectedusing chlorine at and home theinstructions chlorine on centers,information instructions on leaders usingfilters. chlorine and containerthe chlorine to teachers.centers, (religious filters. measurethecontainer chlorine the to teachers. Drinking water can be correctcontainermeasure amount the to leaders, youth, Drinkingcontaminated water bycan be ofmeasure correctchlorine. amount the authorities). contaminatedindustrial waste. by correctof chlorine. amount industrial waste. Addof chlorine.the chlorine In disaster situations toAdd the water the chlorine and Inwater disaster quality situations must be letAddto it restthe the forwater chlorine 30 and waterclosely quality monitored must be minutestolet the it rest beforewater for 30 and closelybecause monitored it may be drinkingletminutes it rest it. Ifbeforefor 30 becausecontaminated it may and be waterminutesdrinking is cloudy, beforeit. If turbidity may filter it before contaminated and drinkingwater is it.cloudy, If increase. adding chlorine. turbidity may waterfilter it isbefore cloudy, increase. filteradding it before chlorine. Useadding safe sources chlorine. of water. Use safe sources Useof water. safe sources Storeof water. the disinfected waterStore in the clean Store the disinfec- containersdisinfected with lids.tedwater water in clean in cleancontainers containers with withlids. lids.

Drinking safe water People living Obtain chlorine Interpersonal Posters, radio prevents diarrhea, in emergency from health communica- spots, messages tion, use of delivered over parasites, cholera, sheltersPeople living workers.Obtain chlorine Interpersonal Posters, radio Drinking safe water posters, loudspeakers. and hepatitis. in emergency from health communica- spots, messages prevents diarrhea, Wash a recepta- loudspeakers, parasites, cholera, shelters workers. tion, use of delivered over DrinkingWater can safe be water Journalists cleInform and fill the it with public skits, Pressposters, meetings, loudspeakers.Informational and hepatitis. water; follow community preventsdisinfected diarrhea, at home Washabout a the recepta- conferences,loudspeakers, press kit, instructions on leaders parasites,using chlorine cholera, and cleimportance and fill it withof interviews,skits, meetings, photographs, Water can be the chlorine (religious andfilters. hepatitis. water;only drinking follow meetings.community radio and TV disinfected at home container to leaders, youth, instructionschlorinated, on leaders spots and/or WaterusingDrinking chlorine can water be canand be measureboiled, the or bottledauthorities). announce- filters. correctthe chlorine amount (religious disinfectedcontaminated at homeby containerwater. to leaders, youth, ments. industrial waste. of chlorine. using chlorine and measure the authorities). Drinking water can be For storing filters. correct amount contaminatedIn disaster situations by Addtreated the chlorine water, toof the chlorine. water and Drinkingindustrialwater quality water waste. must can be be recommend the let it rest for 30 closely monitored use of clean, contaminated by minutesAdd the before chlorine Inbecause disaster it situationsmay be non-corrosive, industrial waste. drinkingto the it.water If and watercontaminated quality must and be containers with closelyturbidity monitored may waterlet it is rest cloudy, for 30 In disaster situations filterlids. it before becauseincrease. it may be minutes before water quality must be addingdrinking chlorine. it. If contaminated and Promote water closely monitored water is cloudy, turbidity may conservation because it may be Usefilter safe it beforesources increase. measures contaminated and of addingwater. chlorine. turbidity may Store the disinfec- increase. Use safe sources ted water in Health workers ofRecommend water. that Meetings, Specialized and disaster cleanthe containerspublic drink electronic and information kits, with lids. response team Storechlorinated, the disinfec- interpersonal manuals. tedboiled, water or inbottled communica- cleanwater. containers tion with with lids. specialists. Authorities must guarantee water Drinking safe water Journalists Informquality, the quantity,public Press Informational prevents diarrhea, aboutand thecoverage. conferences, press kit, parasites, cholera, importance of interviews, photographs, and hepatitis. only drinking meetings. radio and TV Drinking safe water Journalists chlorinated,Inform the public Press spotsInformational and/or preventsWater can diarrhea, be boiled,about or the bottled conferences, announce-press kit, parasites,disinfected cholera, at home water.importance of interviews, ments.photographs, andusing hepatitis. chlorine and only drinking meetings. radio and TV filters. Forchlorinated, storing spots and/or treated water, Water can be boiled, or bottled announce- recommend the disinfectedDrinking water at canhome be water. ments. contaminated by use of clean, using chlorine and industrial waste. non-corrosive, For storing filters. containers with treated water, In disaster situations lids. Drinkingwater quality water must can be be recommend the contaminatedclosely monitored by Promoteuse of clean,water industrialbecause itwaste. may be conservationnon-corrosive, contaminated and measurescontainers with Inturbidity disaster may situations lids. waterincrease. quality must be closely monitored Health workers RecommendPromote water that Meetings, Specialized because it may be and disaster theconservation public drink electronic and information kits, contaminated and response team chlorinated,measures interpersonal manuals. turbidity may boiled, or bottled communica- increase. water. tion with Health workers Recommend thatspecialists. Meetings, Specialized and disaster Authoritiesthe public must drink electronic and information kits, response teamguaranteechlorinated, water interpersonal manuals. quality,boiled, quantity, or bottled communica- andwater. coverage. tion with specialists. Authorities must guarantee water quality, quantity, and coverage. Problem: Safe drinking water Concern Water sources are contaminated and it is difficult to access safe water Evidence Audience Messages Channels Materials

Use safe sources of water.

Store the disinfected water in clean containers with lids.

Drinking safe water People living Obtain chlorine Interpersonal Posters, radio prevents diarrhea, in emergency from health communica- spots, messages parasites, cholera, shelters workers. tion, use of delivered over and hepatitis. posters, loudspeakers. Wash a recepta- loudspeakers, Water can be cle and fill it with skits, meetings, disinfected at home water; follow community using chlorine and instructions on leaders filters. the chlorine (religious container to leaders, youth, Drinking water can be measure the authorities). contaminated by correct amount industrial waste. of chlorine.

In disaster situations Add the chlorine water quality must be to the water and closely monitored let it rest for 30 because it may be minutes before contaminated and drinking it. If turbidity may water is cloudy, increase. filter it before adding chlorine. Information management and communication in emergencies and disasters: 98 Use safe sources Manual for disaster response teams of water.

Store the disinfected water in clean containers Problem: SafeSafe drinking drinking water water with lids.

Concern WaterWater sources sources are are contaminated contaminated and and it is it difficult is difficult to accessto access safe safe water EvidenceEvidence Audience Audience Messages Messages Channels Channels Materials Materials

Drinking safesafe water water AffectedJournalists UseInform chlorine the to public Radio, Press TV, RadioInformational and TV Drinkingprevents safediarrhea, water communityAffected disinfectUse chlorine water. to interpersonalRadio, TV, spotsRadio and and TV prevents diarrhea, about the conferences, press kit, preventsparasites, diarrhea,cholera, community Washdisinfect a water. communica-interpersonalannounce- spots and parasites, cholera, importance of interviews, photographs, parasites,and hepatitis. cholera, receptacleWash a and tion,communica- ments;announce- press. and hepatitis. fill receptacleonlyit with drinking water; and communitymeetings.tion, ments;radio andpress. TV Water can be followfillchlorinated, it with water; leaders,community spots and/or Waterdisinfected can beat home instructionsfollowboiled, or on bottled information leaders, announce- disinfectedusing chlorine at and home theinstructionswater. chlorine on centers,information ments. usingfilters. chlorine and containerthe chlorine to teachers.centers, filters. measurecontainerFor storing the to teachers. Drinking water can be correctmeasuretreated amount water, the Drinkingcontaminated water bycan be of correctrecommendchlorine. amount the contaminatedindustrial waste. by ofuse chlorine. of clean, industrial waste. Addnon-corrosive, the chlorine In disaster situations to Addcontainersthe water the chlorine and with Inwater disaster quality situations must be lettolids. it restthe forwater 30 and waterclosely quality monitored must be minuteslet it rest before for 30 because it may be drinking it. If closely monitored minutesPromote before water contaminated and water is cloudy, because it may be drinkingconservation it. If contaminatedturbidity may and filtermeasures it before contaminatedincrease. and addingwater chlorine. is cloudy, turbidity may filter it before increase. increase. Useadding safe sources chlorine. Health workers Recommend that Meetings, Specialized of water. and disaster Usethe safepublic sources drink electronic and information kits, response teamStoreofchlorinated, water. the interpersonal manuals. disinfectedboiled, or bottled communica- waterStorewater. in the clean tion with containersdisinfected with specialists. lids.waterAuthorities in clean must containersguarantee withwater lids.quality, quantity, and coverage. Drinking safe water People living Obtain chlorine Interpersonal Posters, radio prevents diarrhea, in emergency from health communica- spots, messages tion, use of delivered over Drinkingparasites, safe cholera, water sheltersPeople living workers.Obtain chlorine Interpersonal Posters, radio and hepatitis. posters,communica- loudspeakers.spots, messages prevents diarrhea, in emergency from health loudspeakers, Wash a recepta- tion, use of delivered over parasites, cholera, shelters cleworkers. and fill it with skits, meetings, Water can be posters, loudspeakers. and hepatitis. water; follow community disinfected at home Wash a recepta- loudspeakers, instructions on leaders using chlorine and cle and fill it with skits, meetings, Waterfilters. can be the chlorine (religious disinfected at home containerwater; follow to leaders,community youth, instructions on leaders usingDrinking chlorine water canand be measure the authorities). the chlorine (religious filters.contaminated by correct amount container to leaders, youth, industrial waste. of chlorine. Drinking water can be measure the authorities). contaminatedIn disaster situations by Addcorrect the chlorine amount industrialwater quality waste. must be to ofthe chlorine. water and closely monitored let it rest for 30 Inbecause disaster it situationsmay be minutesAdd the before chlorine drinking it. If watercontaminated quality must and be to the water and water is cloudy, closelyturbidity monitored may let it rest for 30 filter it before becauseincrease. it may be minutes before adding chlorine. contaminated and drinking it. If turbidity may water is cloudy, Usefilter safe it beforesources increase. of water. adding chlorine. Store the disinfec- Use safe sources ted water in cleanof water. containers with lids. Store the disinfected water in clean containers with lids.

Drinking safe water Journalists Inform the public Press Informational prevents diarrhea, about the conferences, press kit, parasites, cholera, importance of interviews, photographs, and hepatitis. only drinking meetings. radio and TV Drinking safe water Journalists chlorinated,Inform the public Press spotsInformational and/or preventsWater can diarrhea, be boiled,about or the bottled conferences, announce-press kit, parasites,disinfected cholera, at home water.importance of interviews, ments.photographs, andusing hepatitis. chlorine and only drinking meetings. radio and TV For storing filters. chlorinated, spots and/or treated water, Water can be boiled, or bottled announce- Drinking water can be recommend the disinfected at home water. ments. contaminated by use of clean, usingindustrial chlorine waste. and non-corrosive, filters. containersFor storing with In disaster situations lids.treated water, Drinkingwater quality water must can be be recommend the contaminatedclosely monitored by Promoteuse of clean,water industrialbecause itwaste. may be conservationnon-corrosive, contaminated and measurescontainers with Inturbidity disaster may situations lids. waterincrease. quality must be closely monitored Health workers RecommendPromote water that Meetings, Specialized because it may be and disaster theconservation public drink electronic and information kits, contaminated and response team chlorinated,measures interpersonal manuals. turbidity may boiled, or bottled communica- increase. water. tion with Health workers Recommend thatspecialists. Meetings, Specialized and disaster Authoritiesthe public must drink electronic and information kits, response teamguaranteechlorinated, water interpersonal manuals. quality, quantity, boiled, or bottled communica- and coverage. water. tion with specialists. Authorities must guarantee water quality, quantity, and coverage. Developing messages and material 99

Problem: Health in emergency shelters Problem: Health in emergency shelters ConcernProblem: Overcrowding Health in emergency in emergency shelters poses a potential risk ConcernConcern Overcrowding Overcrowding in emergency in emergency shelters posesshelters a potential poses riska potential risk of communicable disease. disease. Strict Strict guidelines guidelines for sanitation for sanitation and safe and water safe water mustof communicable bebe followed. followed. disease. Strict guidelines for sanitation and safe water must be followed. EvidenceEvidence AudienceAudience MessagesMessages ChannelsChannels Materials Materials Evidence Audience Messages Channels Materials Lack of of PeoplePeople living living in in CooperateCooperate in in Radio, Radio,posters, posters, Radio andRadio TV and TV sanitation emergency keeping latrines loudspeakers, spots and sanitation emergency keeping latrines loudspeakers, spots and contributesLack of to sheltersPeople livingclean. in Cooperateinterpersonal in Radio, posters,announce- Radio and TV proliferationcontributessanitation ofto sheltersemergency clean.keeping latrinescommunication, interpersonalloudspeakers, ments; printed announce- spots and vectorsproliferationcontributes that of to shelters Verify thatclean. toilets or communitycommunication, leaders,interpersonal messages. ments; printedannounce- vectors that Verify that toilets or community leaders, messages. spreadproliferation disease. of latrine holes are information centers,communication, ments; printed spread disease. covered.latrine holes areteachers. information centers, vectors that Verify that toilets or community leaders, messages. Simple actions covered. teachers. suchSimplespread as actionshand disease. Throw trashlatrine only inholes are information centers, washingsuch as andhand designatedThrowcovered. trash areas. only in teachers. cleaningwashingSimple latrinesactionsand designated areas. contribute to cleaningsuch as latrineshand Throw trash only in maintaining washing and designated areas. healthcontribute in shelters. to maintainingcleaning latrines healthcontribute in shelters. to maintaining health in shelters. Journalists Practical Meetings, press Information kit, information about releases, press releases, Journalists protectingPractical water informationMeetings, on the press visit to shelters,Information kit, supplies and trash web. interviews with disposal.information about releases, experts. press releases, protecting water information on the visit to shelters, Journalists suppliesPractical and trash web. Meetings, pressinterviews Information with kit, disposal.information about releases, experts.press releases, protecting water information on the visit to shelters, supplies and trash web. interviews with Lack of Health workers Verify that people Meetings, posters, Practical sanitation and the disaster are receivingdisposal. guidelines, guidelines with experts. contributes to response team drinking water interpersonal technical proliferation of whether from a communications. information Lack of Health workers Verify that people Meetings, posters, Practical vectors that tanker truck, water provided at spreadsanitation disease. and the disasterstorage are tanks,receiving or guidelines, meetings.guidelines with contributes to response team bottleddrinking water. water interpersonal technical SimpleproliferationLack actionsof of Health workers whetherVerify from that a people communications. Meetings, posters,information Practical vectors that tanker truck, water provided at suchsanitation as hand and the disasterVerify dailyare whether receiving guidelines, guidelines with washingspread disease.and waterstorage is being tanks, tested or meetings. contributes to response team drinking water interpersonal technical cleaning latrines for residualbottled chlorine water. contributeSimpleproliferation actions to of in storagewhether tanks. from a communications. information maintainingsuchvectors as hand that Verifytanker daily whethertruck, water provided at healthwashingspread in shelters.anddisease. Verifywater weeklystorage is beingthat tanks, tested or meetings. water storage tanks cleaning latrines for residualbottled chlorine water. are being cleaned contributeSimple actions to and indisinfected. storage tanks. maintainingsuch as hand Verify daily whether healthwashing in shelters. and If treatedVerifywater water weekly is being that tested cleaning latrines availablewaterfor in storage residual tanks chlorine contribute to dwellings,are inbeing verify storage cleanedthat tanks. peopleand understand disinfected. maintaining methods for health in shelters. Verify weekly that disinfectingIf treated it. water is water storage tanks available in are being cleaned dwellings, verify that peopleand understand disinfected. methods for disinfectingIf treated it. water is available in dwellings, verify that people understand methods for disinfecting it. Problem: Health in emergency shelters Concern Overcrowding in emergency shelters poses a potential risk of communicable disease. Strict guidelines for sanitation and safe water must be followed.

Evidence Audience Messages Channels Materials

Lack of People living in Cooperate in Radio, posters, Radio and TV sanitation emergency keeping latrines loudspeakers, spots and contributes to shelters clean. interpersonal announce- proliferation of communication, ments; printed vectors that Verify that toilets or community leaders, messages. spread disease. latrine holes are information centers, covered. teachers. Simple actions such as hand Throw trash only in washing and designated areas. cleaning latrines contribute to maintaining health in shelters. 100 Information management and communication in emergencies and disasters: Manual for disaster response teams

Journalists Practical Meetings, press Information kit, Problem: Health in emergency shelters Problem: Health in emergency sheltersinformation about releases, press releases, ConcernProblem: Overcrowding Health in emergency in emergencyprotecting sheltersshelters water poses ainformation potential riskon the visit to shelters, ConcernConcern Overcrowding Overcrowding in emergency in emergency shelters poses shelters a potential poses risk a potential risk of communicablecommunicable disease. disease. Strict Strict guidelines guidelinessupplies for sanitation forand sanitation trash and safeweb. and water safe water interviews with mustof communicable bebe followed. followed. disease. Strict guidelinesdisposal. for sanitation and safe waterexperts. must be followed. EvidenceEvidence AudienceAudience MessagesMessages ChannelsChannels Materials Materials Evidence Audience Messages Channels Materials Lack of of HealthPeoplePeople workersliving living in in VerifyCooperateCooperate that people in in Radio,Meetings, posters,Radio, posters, posters, RadioPractical and Radio TV and TV sanitation emergency keeping latrines loudspeakers, spots and sanitationLack of andemergency thePeople disaster living are in receivingkeepingCooperate latrinesguidelines, in loudspeakers, Radio, guidelinesposters, spotswith andRadio and TV contributes to responseshelters team drinkingclean. water interpersonalinterpersonal announce-technical proliferationcontributessanitation of to sheltersemergency clean.keeping latrinescommunication, interpersonalloudspeakers, ments; printed announce- spots and proliferation of of whether from a communications.communication,information ments; printed vectorscontributes that to shelters tankerVerify that truck,clean. toilets water or community leaders,interpersonal messages.provided at announce- vectors that Verify that toilets or community leaders, messages. spreadproliferation disease. of storagelatrine holes tanks, are or information centers,communication, meetings. ments; printed spread disease. covered.latrine holes areteachers. information centers, vectors that bottled water.Verify that toilets or community leaders, messages. Simple actions covered. teachers. Simplespread actions disease. latrine holes are information centers, suchSimple as handactions VerifyThrow daily trash whether only in washingsuch as andhand waterdesignatedThrow is beingcovered. areas.trash tested only in teachers. cleaning latrines cleaningwashingSimple actionslatrinesand for residualdesignated chlorine areas. contributesuch as handto in storageThrow tanks. trash only in maintainingcleaning latrines maintainingcontributewashing and to designated areas. health in shelters. Verify weekly that maintainingcleaning latrines water storage tanks healthcontribute in shelters. to are being cleaned maintaining and disinfected. health in shelters. If treated water is Journalists Practical Meetings, press Information kit, available in information about releases, press releases, dwellings, verify that protecting water information on the visit to shelters, people understand Journalists suppliesPractical and trash web. Meetings, pressinterviews withInformation kit, methods for disposal.information about releases, experts. press releases, disinfecting it. protecting water information on the visit to shelters, Journalists suppliesPractical and trash web. Meetings, pressinterviews Information with kit, disposal.information about releases, experts.press releases, protecting water information on the visit to shelters, Lack of Health workers Verify thatsupplies people andMeetings, trash posters,web. Practical interviews with sanitation and the disaster are receivingdisposal. guidelines, guidelines with experts. contributes to response team drinking water interpersonal technical proliferation of whether from a communications. information vectorsLack of that Health workers tankerVerify truck, that water people Meetings, posters,provided atPractical spreadsanitation disease. and the disasterstorage are tanks, receiving or guidelines, meetings. guidelines with contributes to response team bottleddrinking water. water interpersonal technical Simpleproliferation actions of whether from a communications. information suchLack as of hand Health workersVerify dailyVerify whether that people Meetings, posters, Practical vectors that tanker truck, water provided at washingsanitation and and the disasterwater is beingare receiving tested guidelines, guidelines with spread disease. storage tanks, or meetings. cleaningcontributes latrines to response teamfor residualdrinking chlorine water interpersonal technical bottled water. contributeproliferation to of in storagewhether tanks. from a communications. information maintainingSimple actions healthsuchvectors as in handshelters. that VerifyVerify weeklytanker daily that truck, whether water provided at washingspread disease.and waterwater storagestorage is beingtanks tanks, tested or meetings. cleaning latrines are beingfor residualbottled cleaned chlorine water. contributeSimple actions to and disinfected.in storage tanks. maintainingsuch as hand Verify daily whether If treated water is healthwashing in shelters. and availableVerifywater in weekly is being that tested cleaning latrines dwellings,waterfor verify storage residual that tanks chlorine contribute to peopleare understand inbeing storage cleaned tanks. maintaining methodsand for disinfected. disinfecting it. health in shelters. Verify weekly that If treated water is water storage tanks available in are being cleaned dwellings, verify that peopleand understand disinfected. methods for disinfectingIf treated it. water is available in dwellings, verify that people understand methods for disinfecting it. Developing messages and material 101 5.3 Recommendations on message content, language, and format

Once the message is defined and the audience is identified, choose the style of communication appropriate for the audience, and the format and the medium for distributing this information. Keep in mind that while traditional communication media can influence agendas, other channels, such as interpersonal communication are considered among the most efficient mechanisms for public information in emergencies.

The following are some basic recommendations that will help in this process.

Content

Begin with needs and world view of your audience.

Respect the language, socioeconomic level, and diversity of the audience.

Reach to the public’s heart and mind, with reason and arguments.

Organize your messages into blocks and concentrate on the most important ones.

Inspire the public to take action; tell them what they can do.

Offer the unexpected with fresh, novel, and original messages.

Adapt the contents to the areas or regions where they will be received.

Reaffirm and repeat as often as necessary.

102 Information management and communication in emergencies and disasters: Manual for disaster response teams

Language

Do not use more than three ideas at the same time.

Use simple grammar, short sentences, and active voice.

Do not abuse figures.

Avoid technical jargon and abbreviations.

If you use uncommon terms, provide a glossary with your message (print material).

Use language appropriate for the target audience.

Avoid messages that reinforce cultural or ethnic stereotypes.

Presentation

Use simple and attractive formats.

Use colors to emphasize the importance of messages.

Use graphics, drawings, photographs, or video to enhance understanding.

Do not violate customs or traditions of an area.

Make sure that photographs and video have all necessary refer- ences (caption, locations, description, etc.).

For print messages, use type fonts that are easy to read; if audiovisual, use simple and straightforward expressions.

Where populations speak native languages, translate or subtitle all of the contents.

If you want the population to preserve the message, choose du- rable materials that can be adapted to conditions where they will be used.

Determine whether your message will have more impact if communicated through opinion leaders or through persons who identify closely with the community and share the values of PAHO/ WHO. Developing messages and material 103

Media

Identify the most effective medium for your audience.

Remember that radio is economical and reaches many people, but transmissions are short-lived.

Print materials survive, but exclude illiterate populations.

Television allows the use of text and images, but production and transmission costs are very high.

Use information fairs, theatre, radio dramas, games, and other formats that can be adapted to populations with specific or different needs.

Use communication methods, i.e., house-to-house visits, and interpersonal communication whenever possible.

Remember:

During the emergency and at the end of the response phase, it is important to assess the entire process of message production and distribution as part of the evaluation of the communication plan. Evaluations help to improve content development and distribution plans so that they can be adapted to better meet the needs of the population.

104 Information management and communication in emergencies and disasters: Manual for disaster response teams 5.4 Managing myths and rumors A rumor is untrue information that cannot be verified but for various reasons becomes plausible to the media and the public. Disasters often are associated with myths that originate in cultural, family, and local traditions and are confused with reality when spread from person to person.

The greater the uncertainty or lack of information, the greater the likelihood that rumors will spread. The best way to manage them is to identify them early on and neutralize them with clear, official statements made immediately and openly, backed up with solid evidence and statements from experts.

Combating rumors  Identify them.

 Neutralize them with official statements.

 Disseminate clear and precise messages on the topic.

 Reinforce announcements with statements from specialists.

 Show concrete evidence and facts.

 Identify opinion leaders who can back up your statements.

 Carry out intensive investigation of how the rumor is spreading.

 Determine whether your messages have the needed impact to neutralize rumors.

 If necessary, train journalists to cover the topic. Developing messages and material 105

Why do people believe myths? What relationship do they have with reality? Why do people believe them if no one verifies them? Health sector professionals and the communication media should respond to these questions. They must also identify, analyze, and clarify myths about disasters, distin- guishing them from reality.

5.5 Myths and realities of disasters In the 1980s, PAHO produced a video entitled “Myths and Re- alities of Disasters,” which has been widely viewed internationally. The video explores commonly held beliefs relating to disaster response. This section addresses most of those myths, along with others.

Myth: Disasters are random killers.

Reality: Disasters strike hardest at the most vulnerable groups—the poor, and especially women, children, the elderly, and people with disabilities.

Myth: Things are back to normal within a few weeks.

Reality: The effects of a disaster last a long time. Di- saster-affected countries and communities deplete many of their financial and material resources in the immediate post-impact phase. Successful relief programs gear their operations to the fact that international interest wanes as needs and shortages become more pressing.

Myth: Temporary settlements are the best place for families affected by the disaster.

Reality: They should be the last alternative. Many agencies use funds normally spent for tents to purchase building materials, tools, and other construction-related support in the affected country. Shelters are the worst option for the mental well-being of affected persons.

106 Information management and communication in emergencies and disasters: Manual for disaster response teams

Myth: The affected population is unable to take responsibility for their own survival.

Reality: On the contrary, many find new strength during an emergency. This has been seen again and again when thousands of volunteers spontaneously unite to search for victims after major earthquakes, when there is little hope of finding survivors.

Myth: Disasters bring out the worst in human behavior, such as looting and hoarding.

Although isolated cases of antisocial behavior exist, the majority of people respond spontaneously and generously. In communities affected by a disaster, it is usually neighbors of the victims who are the first to provide assistance.

Myth: The traumatized and mentally ill should be isolated or hospitalized.

Reality: Most cases can be attended to in the same community, with good outcomes. Reintegrating them into routine life is their best route to recovery.

Myth: Psychological problems in disasters are rare and they have little impact.

Reality: Disasters and emergencies affect both the physical and mental health of people. Mental health treatment is important, especially among the most affected population. This includes rescue personnel and relief workers, as well as families of those affected.

Myth: Epidemics and plagues are inevitable after every disaster.

Reality: Epidemics do not spontaneously occur after a disaster and dead bodies will not lead to catastrophic outbreaks of exotic diseases. The key to preventing disease is to improve sanitary conditions and educate the public on good hygiene practices. Developing messages and material 107

Myth: Disaster victims always need clothing.

Reality: Used clothing sent to disaster sites is usually inappropriate, and while disaster victims accept it, they do not use it. Sometimes worn out and even torn clothing is donated. Delivering goods in such conditions is contrary to the dignity of the persons affected.

Myth: Food aid is always necessary.

Reality: Natural disasters rarely affect access to food. Massive shipments of food are becoming less frequent in humanitarian response. When crops are damaged, responses can include plans to restore livelihoods through the delivery of seeds, tools, or agricultural materials that will revitalize production.

5.6 Producing communication and information materials4

The development of educational and informational material is often carried out by experts on the topic, graphic artists, and style editors, but that is not enough. To add value and increase the possibility of success, users, decision makers, health and disaster response teams, among others, should be involved. This is not the work of communication experts alone, it is a collective effort.

A small amount of research about the target audience will help you to understand their information needs, their concerns, and their reasons for changing their behavior.

Participation in the process of testing and revising materials will increase confidence in the final product both for the authors and the final audience.

4 The material in this section draws on the Program for Appropriate Technology in Health (PATH), Children’s Vaccine Program, Immunization and child health materials development guide, Seattle, Washington, U.S.A. Available from : http://www.path. org/publications/details.php?i=346.

108 Information management and communication in emergencies and disasters: Manual for disaster response teams

Recommendations on ways to improve the level of success in the development and design of these materials are listed below:

Prepare a work plan that provides the justification and objectives of the message, expected results, plan of activities, timeline for completion, and a detailed budget.

Identify and study the target audience. The better you can direct your messages to specific groups, the better their needs can be met. Audiences can be chosen by profession (such as decision-makers, relief workers, trainers, etc.); by demographic variable (e.g., age, sex, education level, ethnic group); or by the type of problem that concerns them. Do not overlook partners and associates who can assist the Disaster Response Team to reach the affected population.

Put the print, audiovisual, or multimedia material to the test: that is, determine whether it meets your objectives. Assess how well the material is understood and accepted by the public. Remember to keep track of the documents, photographs, and videos produced.

Consider what form of production—print, radio, audiovisual, or computer-based materials—will be most cost effective for each message and audience.

Distribute the material prior to providing training or directions on their use. This requires preparing a distribution plan and carrying it out diligently, seeking strategic occasions to present the materials. The training process can be simple, but people must understand how to use the material and what benefits will be derived for their work or lives.

Evaluate the entire process to determine whether materials reached the proper audience and had an impact. Evaluation will reveal strengths and weaknesses of the material and give useful and constructive feedback regarding the messages, audience, communication media chosen, and techniques chosen for preliminary trials.

PAHO/WHO Checklist for Emergencies and l Disaster Situations

II PAHO/WHO Situation Report (SITREP) format

III Examples of Situation Reports

lV Examples of Press Releases

V Internet Web Sites

Vl Acronyms

Vll Recommended Bibliography

111

112 Information management and communication in emergencies and disasters: Manual for disaster response teams Annex I PAHO/WHO Checklist for Communication in Emergencies

1. Completed rapid assessment of information and communication needs during the emergency: YES ___ NO ___

2. Needs are:

• Internal YES ___ NO ___ • Need advisor YES ___ NO ___ • Need strategy for working with communication media YES ___ NO ___ • Team is available YES ___ NO ___ • Communications plan exists YES ___ NO ___ • Will work with national and international counterparts YES ___ NO ___

3. The following aspects of information management and production are understood:

• Collection of information YES ___ NO ___ • Production YES ___ NO ___ • Analysis YES ___ NO ___ • Approval YES ___ NO ___ • Dissemination of information YES ___ NO ___

4. The following people are familiar with these mechanisms:

• Staff of PAHO/WHO Representative (PWR) YES ___ NO__ ___ • Regional Disaster Response Team YES ___ NO ___

5. Information flows from following entities:

• Ministry of Health YES ___ NO ___ • Regional Disaster Response Team YES ___ NO ___ • International organizations YES ___ NO ___ • Other staff of PAHO/WHO Representative (PWR) who are involved in emergency response YES ___ NO ___ • Regional PAHO/WHO office YES ___ NO ___ Annexes 113

6. Procedures have been established for the following:

• Evaluation of information YES ___ NO ___ • Organization of information YES ___ NO ___ • Monitoring of information YES ___ NO ___

7. Information exchange is maintained with the following:

• EOC (National and PAHO/WHO in Washington, D.C.) YES ___ NO ___ • PAHO/WHO Situation Room YES ___ NO ___ • Ministry of Health Situation Room YES ___ NO ___ • United Nations agencies YES ___ NO ___

8. The procedures and scheduling for the preparation, clearance, and distribution of situation reports (SITREPs) are clear: YES ___ NO ___

9. The following have been defined:

• The relationship with the communication media YES ___ NO ___ • Visibility strategies for PAHO/WHO YES ___ NO ___ • Support to communication from the Ministry of Health YES ___ NO ___

10. Needs have been identified for health promotion materials: YES ___ NO ___

• Personnel are available to develop these materials YES ___ NO ___

114 Information management and communication in emergencies and disasters: Manual for disaster response teams Annex II PAHO/WHO Situation Report Format (SITREP)

Event: Date of event:

Specific area of impact: Date of report:

1. Brief description of adverse event (include information about deaths, injuries, displaced population, houses destroyed):

2. Impact of the event:

a. Impacts on health of the population (displacement to shelters, obstacles in accessing health services, lack of access to health service locations): b. Impacts on water/environment (drinking water, vectors, negative environmental impacts, negative changes in services including drinking water, power, trash collection): c. Impacts on health and other infrastructure (e.g., damaged hospitals):

3. If a preliminary damage and needs assessment exists, provide a synthesis of that report. If the needs assessment does not exist, omit this item and send the damage and needs assessment information at a later date.

4. General information about actions being taken in the health sector (Ministry of Health, PAHO/WHO, United Nations, Red Cross, other actors):

5. Was an emergency declared?

6. Was international assistance requested?

7. Most urgent needs in the health sector identified by the country or PAHO/WHO. Prepared by ______Annexes 115

Before sending this report, be sure that it provides clear answers to the following questions:

• What is happening? • Why is the event important? (Implications and possible impacts on health.) • What are the main needs? What are the health sector and PAHO/WHO doing to respond? • Is international assistance needed at this time? • Taking into account actions taken in response to prior events of this nature, will international resources or assistance be needed?

Take into account:

• It is important that you send this report as quickly as possible. • Avoid writing long or complicated reports. • Clearly indicate the sources of your information.

116 Information management and communication in emergencies and disasters: Manual for disaster response teams Annex III Examples of Situation Reports

Health Cluster Situation Report - Cyclone Nargis in Myanmar, 16 May 2008

World Health Organization, Regional Office for South-East Asia

HIGHLIGHTS

1. According to information from the Myanmar state media, the death toll from Cyclone Nargis is now 77,738 with 19,359 injured. Another 55,917 people are still reported missing.

2. Five out of six station hospitals in Ngaputaw township are reported to have been destroyed. The township hospital is, however, functional. Re- ferral cases are being sent to Pathein township’s hospital.

3. There are adequate stocks in the country to deal with potential outbreaks of severe diarrhoea.

HEALTH ASSESSMENT AND SITUATION UPDATE

• According to information from the Myanmar state media, the death toll from Cyclone Nargis is now 77,738 with 19,359 injured. Another 55,917 people are still reported missing.

• Five out of six station hospitals in Ngaputaw township are reported to have been destroyed. The township hospital is, however, functional. Re- ferral cases are being sent to Pathein township’s hospital.

• There have been no confirmed disease outbreaks but cases of diarrhoea have been reported. Disease surveillance is being further strengthened. Putting prevention and control measures in place remains a priority.

HEALTH CLUSTER RESPONSE

1. Supplies • There are adequate stocks in the country to deal with potential outbreaks of severe diarrhoea. The WHO and UNICEF stocks include 30,000 i/v fluid drip packs, 50,000 ORS sachets, and 500,000 doxycycline tablets (with equal numbers in reserve). Additional supplies for the treatment of severe diarrhoea as well as water purification tablets are on their way.

• WHO delivered one Emergency Health kit to the hospital in Maubin, which is acting as referral hospital for Pyanpon, Bogale, Kyaiklat and Dedaye. Annexes 117

• In response to the request of the Regional Surveillance Officer in Pathein, WHO is sending additional supplies for the management of diarrhoeal diseases.

• Thirty basic units of Interagency Emergency Health Kits and other medical supplies procured by UNICEF, including ORS and zinc, have arrived to Yangon. They are sufficient for the treatment of more than 80,000 cases of diarrhoea.

• An additional 125 fogging machines have arrived in Myanmar.

• Supplies of viper anti-venom are now available. Cases of snakebite have been reported in Shwepyithar township of Yangon division.

2. Medical Care • UNICEF deployed five additional public health experts to Myaung Mya, Maubin, Wakema, Pyapon and Mawlamyinegyu, bringing the total to 11 in seven townships in Ayawadee. They will facilitate health sector coordination at the field level, provide technical support, supply medicines and assist field monitoring and emergency response.

• Seven public health doctors from UNICEF have been visiting Hlaing Thayar, Dala, Kyaun Tan, Kungyangon, Kawhmu, Kayan/Thongwa, and Kee Myint Taing everyday since a day after the cyclone to assess the health situation and identify needs as well as monitor the response.

• The WHO guidelines on the management of cholera were distributed to Health Cluster partners. NGOs are encouraged to contact WHO and UNI- CEF if more copies are needed.

• MSF-Holland is providing relief services in Ngaputaw and Labutta townships; 25 medical teams and 200 staff, including 28 medical doctors, were redeployed. Twelve boats are available to move medical teams south- wards into the most affected coastal areas. MSF-Holland also confirmed that no disease outbreaks have yet been detected in these areas. The main health concerns reported are injuries, acute respiratory infections and diarrhoea.

3. Surveillance • Disease surveillance has been further intensified, particularly for diarrhoea, cholera, measles, dengue haemorrhagic fever and malaria.

• Streamlined surveillance and data reporting forms are being distributed to partners, hospitals and health centres. They will facilitate the uniform collection, compilation and analysis of the available information on selected diseases including diarrhoea, malaria, dengue and snake bites.

• Surveillance officers at the township level are working to enhance the transmission and sharing of information.

118 Information management and communication in emergencies and disasters: Manual for disaster response teams

HEALTH COORDINATION

• Participation in the Health Cluster meetings in Myanmar has increased, with more than 60 representatives of 30 international NGOs and UN agencies.

• A Civil Society Information Resource Centre was opened on 15 May for local self-help groups at the initiative of INGO Forum.

• WHO and UNFPA are addressing reproductive health and maternal health needs and looking into ways to fill the urgent need for basic reproductive health kits.

• Further steps have been initiated to increase coordination between clusters; Health Cluster national staff members are receiving updated information from the Water and Sanitation and Shelter clusters, among others.

NEXT STEPS

• A joint action plan and charting out of activities for the Health Cluster for the next 3 to 6 months is being finalized.

• WHO continues to mobilize the donor community to provide stronger support to the health sector emergency response.

• Psychosocial support is likely to be an important issue in the next few weeks, and WHO guidelines and protocols in the local language have been sent to Myanmar.

For more information, visit: www.searo.who.int Annexes 119

SITREP: Example 2

Situation Report, Earthquake in Peru, 21 August 2007

Pan American Health Organization

1. Summary of the general situation and priorities

Preliminary Damage Asssessment*

Cañete Chincha Pisco Ica Other Total Deaths 6 75 335 71 16 503 Injured 172 240 100 487 43 1,042 Homes 928 16,010 16,000 300 1,012 34,250 destroyed * According to estimates from INDECI, 21 September 2007.

• The most severe damages in the service network are concentrat- ed in Pisco, with 2 hospitals collapsed and more than 25 health centers affected. • The population needing shelter could increase in the coming days, as homes are evaluated and declared uninhabitable. The number of those left homeless could surpass 30,000 families. • More than 650 wounded have been transported to Lima (417 women and 250 men); of these three have died. • The Ministry of Health is organizing information dispatches from the affected areas up to a command center and it is expected to establish and maintain daily monitoring of the other affected provinces within one to two days. Most urgent priorities for the health sector • It does not seem necessary to send additional health workers to the affected areas. Rather, the health workers present should be reassigned. • Provide safe drinking water to the affected population. • Assess the health service network and service recovery. • Strengthen epidemiological surveillence in shelters to avoid transmission of diseases. • Monitor environmental health and trash and debris collection. • Launch a psychosocial support program and mental health support for the affected population and for health workers. • Initiate public information and communication campaign to the community on environmental health and safe water management. • Optimize effective humanitarian assistance by using LSS/SUMA. • Support basic sanitation and water quality control for displaced population.

120 Information management and communication in emergencies and disasters: Manual for disaster response teams

2. General health situation in Pisco

• The accelerated demolition of unsafe homes and buildings has increased the levels of particulate matter in the environment and consequently the incidence of respiratory infections has increased.

• The evacuations of damaged homes have increased the population in shelters.

• The city has begun to restore electrical power.

• Water distribution continues to be provided from tanker trucks.

• The local health workers are returning to their usual workplaces; foreign workers who are being permanently relieved of their duties.

• Medications and medical supplies are available.

• The principal need is providing electrical power generators to different facilities.

• It has been emphasized that NO additional health workers are needed, but existing personnel should be reassigned.

Health service network

Hospital San Juan de Dios. The new hospital building was not affected, and service is being provided. A situation room for health has been set up, and health workers from other parts of the country who are providing services are staying overnight in the new facility.

Hospital Antonio Skabronja. The hospital was destroyed. Health care is being provided in a field hospital in the main square, where 4,933 patients have been seen to date; 250 patients have been evacuated to Lima.

The laboratory network is functioning.

Twenty-two other outpatient health units have been evaluated in the Chincha-Pisco network: • Only 5 are operating at 100% capacity. • Ten are without power. • Two are operating at 50% capacity due to partial building damage, lack of basic services, or shortage of health personnel. • Two are closed. • Twelve have still not documented the damage. Annexes 121

Water and sanitation in Pisco

The city continues to lack water. Water continues to be provided by tanker trucks both to shelters as well as the rest of the community.

The evaluation of the water systems has started in the rural sector and serious damage has been detected. Some areas are using alternate water sources that are not chlorinated.

Twenty-three shelters are being established with a total capacity for 11,899 people. The most immediate need is for latrines.

3. General health situation in Ica

• The rural and surrounding areas of the city are being served by medical brigades both from the region and professionals from Arequipa, Moquegua, San Martín, Lima, Apurimac and the NGO Solaris.

• Health services in the areas surrounding the city have remained operational with adequate resources.

• Food rations have been distributed for at least 35,000 families. With contributions from WFP there are enough food resources to continue with the distribution. Soup kitchens are being used to feed organized communities. Besides the regular regional diet, specialized food for children under the age of 2 does not exist.

• A downward trend has been observed in injuries due to external causes, wounds and trauma. Respiratory infections, conjuncti- vitis, diarrheal diseases, foodborne illnesses and skin infections have increased during this period. However, there is no evidence of epidemics and outbreaks. It is still not possible to conclude whether the increase in morbidity is caused by the disaster and population displacement or if the figures only reflect the increased availability of medical services at this time.

A donation of 30,000 oral rehydration packets and chlorine tablets for water purification was received.

Water and sanitation in Ica

• The drinking water supply is gradually being reestablished throughout the city. Tanker trucks are servicing 90% of the urban area and 60% of the outlying areas.

• The solid waste collection system is functioning at the same level as before the earthquake.

• Damage to 200 meters of the sewage system has been detected in one of the sectors of the city.

122 Information management and communication in emergencies and disasters: Manual for disaster response teams

• Outdoor defecation has increased as a consequence of damage to homes and people's fears of remaining trapped, given the number of aftershocks.

In several outlying and rural areas, the communities have started to repair their homes using salvaged materials (adobe, wood, matting).

A structural assessment mission is necessary for the Regional Hospital of Ica to determine if it should be repaired or demolished. It is recommended to increase the size of the medical area and to relocate the outpatient consultation area.

4. PAHO/WHO response

• Expert teams continue to support the affected areas with damage and needs assessments, intersectoral coordination, establishing the EOC in Pisco and setting up a situation room.

• Coordination with the UNDAC team and other international cooperation agencies in the capital and affected areas.

• Support mobilization of LSS/SUMA, under the coordination of the National Civil Defense System, to inventory national and international humanitarian assistance and manage distribution from the airports in Pisco and Lima (Group 8), with the support of White Helmet personnel and INDECI.

• Coordinate with the United Nations in preparing a flash appeal. Based on information gathered by the Ministry of Health and PAHO/WHO on the health situation, an interagency health group (including PAHO/WHO, UNICEF, UNFPA, and UNAIDS) developed the health component for the global appeal, totaling US$ 1.97 million. The proposal includes actions to strengthen health services, make emergency repairs to water and sanitation systems, improve coordination in the health sector, and prevent outbreaks, including disease surveillance.

5. Humanitarian Assistance

LSS/SUMA operations in Lima, based at the Jorge Chavez Airport:

• A SUMA team was formed, including the National Logistics Divi- sion of INDECI, the Peruvian Agency for International Coopera- tion (APCI), the Lima Branch of the Red Cross, and the Peruvian Air Force.

• Registered supplies distributed through the point of entry of the Military Airport of Pisco.

• Generated consolidated reports beginning 17 August for local and international donations sent to Pisco. Annexes 123

• Registered 100% of supplies dispatched from the point of entry to the city of Pisco in approximately 40 air operations and 15 land operations beginning 16 August, with official support provided by the National Logistics Division of INDECI.

This report can be consulted at: www.paho.org/disasters (Major Emergencies).

124 Information management and communication in emergencies and disasters: Manual for disaster response teams

SITREP: Example 3

Situation Report #18 on Influenza A(H1N1), 12 May 2009, 6:00 p.m., Washington, DC

PAHO/WHO Emergency Operations Center (EOC)

1- Status of Influenza A(H1N1) in the Americas:

• Cuba reported its first confirmed case, in Provincia Matanzas.

• Confirmed cases reported in other countries in the Americas:

• USA, 3,009 confirmed cases with 3 deaths; • Mexico, 2,282 confirmed cases with 58 deaths; • Canada, 358 confirmed cases with 1 death; • Panama, 16 confirmed cases; • Costa Rica, 8 confirmed cases with 1 death; • Brazil, 8 confirmed cases; • Colombia, 6 confirmed cases; • El Salvador, 4 confirmed cases; • Guatemala, 3 confirmed cases; • Argentina, 1 confirmed case.

• The World Health Organization maintains pandemic alert of Phase 5. There is no evidence of sustained community level human-to-human transmission outside of the Americas.

2- Status of Influenza A(H1N1) in other Regions:

30 countries have officially reported cases of influenza A(H1N1) as follows:

• The following countries have reported laboratory-confirmed cases with no deaths: Australia (1), Austria (1), China (2, com- prising 1 in China, Hong Kong Special Administrative Region, and 1 in mainland China), Denmark (1), France (13), Germany (12), Ireland (1), Israel (7), Italy (9), Japan (4), Netherlands (3), New Zealand (7), Norway (2), Poland (1), Portugal (1), Republic of Korea (3), Spain (95), Sweden (2), Switzerland (1), and the United Kingdom (55).

3- PAHO/WHO response:

• Dr. Mirta Roses, the Director of PAHO/WHO, will attend the World Health Assembly in Geneva, beginning 18 May. Although the agenda for this year’s WHA was set many months ago, influenza A(H1N1) is sure to be an important topic. The WHA is the Annexes 125

decision-making body of WHO. It is attended by delegations from all WHO Member States.

• To date, PAHO/WHO has deployed 29 experts to Mexico to provide support to health authorities.

• Oseltamivir shipments continue to arrive in Member Countries.

• In a WHO press conference today, Dr. Nikki Shindo, a medical officer for WHO, announced that WHO will soon publish clinical management guidelines to help doctors, nurses, and other people caring for patients who have or will be affected by this virus. The WHO is working closely with the Global Influenza Network to monitor the seasonal flu viruses circulating and provide the best option for medications.

4- Recomendations:

• PAHO/WHO recommends that countries continue to review their national influenza pandemic preparedness plans and address any gaps identified.

• For those health care facilities in countries where cases of influenza A(H1N1) have NOT yet been reported, please refer to these general recommendations from the Pan American Health Organization Office of the Assistant Director Health Systems and Services Area.

5- Resources:

Today, WHO published an article on assessing the severity of an influenza pandemic. The report highlights the many factors that can influence the overall severity of a pandemic’s impact, including: the properties of the virus, population vulnerability, subsequent waves of spread, capacity to respond, and the assessment of the current situation. Some interesting findings are: • Influenza A(H1N1) appears to be more contagious than seasonal influenza. • In terms of population vulnerability, the tendency of the H1N1 virus to cause more severe and lethal infections in people with underlying conditions is of particular concern. • Outside Mexico, nearly all cases of illness, and all deaths, have been detected in people with underlying chronic conditions.

In Central America, a hand washing initiative was presented to members of the task force of the Council of Ministries of Health for Central America and the Dominican Republic

For more information, visit: www.paho.org/disasters.

126 Information management and communication in emergencies and disasters: Manual for disaster response teams Annex IV Examples of press releases

Fears of Dead Bodies Are Unfounded Washington, D.C., 29 December 2004 (PAHO/WHO)—The staggering human toll of the tsunami disaster has led to widespread reports that rot- ting corpses pose a serious health threat in affected areas from India to Indonesia. Contrary to popular belief, dead bodies do not lead to catastrophic outbreaks of diseases.

Disaster and relief experts from the Pan American Health Organization —which serves as the regional office for the Americas of the World Health Organization—have said that one of the most common myths associated with natural disasters is that cadavers are responsible for epidemics.

The mistaken belief often leads authorities to take misguided action, such as mass burials or cremations, which can add to the burden of suffering already experienced by survivors, according to Dr. Dana Van Alphen, an advisor in PAHO’s Office of Emergency Preparedness and Disaster Relief.

“In too many cases,” says Van Alphen, “authorities rush to bury victims without identifying them, under the false belief that bodies pose a serious threat of epidemics. It is just not true.” She adds that such practice is not only scientifically unfounded, it violates the human rights of victims and survivors. Public health experts have repeatedly emphasized that the key to preventing diseases is improving sanitary conditions and informing people.

“Unfortunately, we continue to see the use of mass graves and mass cremations to dispose of bodies quickly, based on the myth that they pose a high threat of disease outbreaks,” Dr. Mirta Roses, Director of the Pan American Health Organization, writes in the introduction to a PAHO book, Management of Dead Bodies in Disaster Situations. It is a medical fact that infectious agents do not survive long in dead bodies.

To counter the practice of mass burials and to help guide the management of dead bodies in the aftermath of disasters, public health officials have developed these recommendations: Provide survivors with access to victims’ bodies and support for their final disposition.

Conduct burials in such a way as to permit later exhumation. Above all, avoid mass burials and cremations.

Raise awareness among the public and authorities that cadavers do not cause epidemics. Annexes 127

Make identification of remains a priority to avoid adverse legal consequences and other long-term problems.

Avoid subjecting relief personnel and the general population to mass vaccination against diseases supposedly transmitted by cadavers.

Respect cultural and religious beliefs, even when the identities of the dead are unknown, showing respect for the feelings of those at the site of the tragedy.

PAHO was established in 1902 and is the world’s oldest public health organization. PAHO works with all the countries of the Americas to improve the health and the quality of life of people of the Americas.

This press release con be consulted at: http://www.paho.org/english/dd/pin/ pr041229.htm.

128 Information management and communication in emergencies and disasters: Manual for disaster response teams

Press release: Example 2

Influenza-like Illness in Mexico and the United States Geneva/Washington, DC, April 24, 2009 (PAHO/WHO) — The Govern- ment of Mexico has reported three separate events related to influenza-like illness (ILI). In the Federal District of Mexico, surveillance began picking up cases of ILI starting 18 March. The number of cases has risen steadily through April and as of 23 April there are now more than 854 cases of pneumonia from the capital. Of those, 59 have died. In San Luis Potosi, in central Mexico, 24 cases of ILI, with three deaths, have been reported. And from Mexicali, near the border with the United States, four cases of ILI, with no deaths, have been reported.

The United States Government has reported seven confirmed human cases of influenza A(H1N1) in the USA (five in California and two in Texas) and nine suspect cases. All seven confirmed cases had mild ILI, with only one requiring brief hospitalization. No deaths have been reported.

Of the Mexican cases, 18 have been laboratory confirmed in Canada as influenza A(H1N1), while 12 of those are genetically identical to the influenza A(H1N1) viruses from California.

The majority of these cases have occurred in otherwise healthy young adults. Influenza normally affects the very young and the very old, but these age groups have not been heavily affected in Mexico.

Because there are human cases associated with an animal influenza virus, and because of the geographical spread of multiple community outbreaks, plus the somewhat unusual age groups affected, these events are of high concern. The influenza A(H1N1) viruses characterized in this outbreak have not been previously detected in pigs or humans. The viruses so far characterized have been sensitive to oseltamivir, but resistant to both amantadine and rimantadine. The World Health Organization (WHO) and the Pan American Health Organization (PAHO) have been in constant contact with the health authorities in the United States, Mexico and Cana- da to better understand the risk which these ILI events pose. PAHO/WHO is sending missions of experts to Mexico to work with health authorities there. It is helping its Member States to increase field epidemiology activities, laboratory diagnosis and clinical management. Moreover, WHO’s partners in the Global Alert and Response Network have been alerted and are ready to assist as requested by the Member States.

PAHO/WHO acknowledges Mexico and the United States for their proactive reporting and their collaboration with PAHO/WHO and will continue to work with Member States to further characterize the outbreak. Annexes 129

PAHO, founded in 1902, works with all the countries of the Americas to improve the health and quality of life of their peoples. It also serves as the Regional Office for the Americas of the World Health Organization (WHO).

For more information, please contact Daniel Epstein, email: epsteind@ paho.org, Public Information Officer, Knowledge Management and Com- munication Area, PAHO/WHO, Tel +1 202 974 3459 – mobile +1 202 316 5679, fax +1 202 974 3143 – www.paho.org.

This press release can be consulted at: http://new.paho.org/hq/index.php? option=com_content&task=view&id=1259&Itemid=1

130 Information management and communication in emergencies and disasters: Manual for disaster response teams

Press release: Example 3

Donations in disaster situations: Do they help or do they create a second disaster?

Lima, Peru, 21 August (PAHO/WHO)—Humanitarian assistance des- tined to help people affected by the earthquake demonstrates national and international solidarity and generosity for the victims; however, it also requires a huge organizational and logistical effort by the authorities responsible for the emergency.

In order to make the assistance to the affected population more efficient and to promote recovery, PAHO/WHO recommends that the national and international community take into account the following general principles:

A donor's objective is to respond to the needs expressed by the affected population. Therefore, it is necessary to make sure that they respond to what has been included in the needs assessment prepared by the country’s authorities.

The donation of used clothes and shoes, perishable foods, or ex- pired medicines should be discouraged.

Whenever possible, cash donations should be encouraged. This allows for local purchases and saves time and logistical resources (for transportation and storage).

The affected population's needs do not stop immediately after the disaster. They are extended to the recovery and reconstruction periods. The most efficient donation is not the one that arrives first, but the one that responds to a proven need.

These and other recommendations can be consulted online at: http://www. paho.org/english/dd/ped/pedhumen.pdf.

As part of the support that is being given to the country, PAHO/WHO and the U.N. System are working with the Peruvian Government in the instal- lation of the LSS/SUMA System for supply management. The System allows for registration, inventory, classification, and distribution of donated supplies in a transparent and responsible manner.

In coordination with the Civil Defense System, LSS/SUMA has been in- stalled at the most important points of entry for humanitarian supplies, particularly the Jorge Chavez Airport (Group 8) in Lima and the Pisco Airport. LSS/SUMA has helped to collect information regarding the type and characteristics of the supplies, so that donations can be effectively managed. Annexes 131

The Pan American Health Organization is working with the Peruvian authorities and health sector to achieve an efficient response to the affected population.

For more information: [email protected] Telephone: 4213030 Annex 287; Cel. 96336846

This press release can be consulted (only in Spanish) at: http://200.10.250.205/doc/emergencia/cp-ops-3.pdf.

132 Information management and communication in emergencies and disasters: Manual for disaster response teams Annex V Web Sites

Pan American Health Organization. Area on www.paho.org/disasters Emergency Preparedness and Disaster Relief (PAHO/PED)

World Health Organization (WHO) www.who.int

Regional Disaster Information Center for Latin America and www.crid.or.cr the Caribbean (CRID)

Regional Humanitarian www.redhum.org Information Network (RedHum)

Reliefweb www.reliefweb.int

Centers for Disease Control www.cdc.gov and Prevention (CDC)

International Strategy for www.unisdr.org Disaster Reduction

United Nations Office for the Coordination of Humanitarian www.ochaonline.un.org Affairs (OCHA)

International Federation of Red Cross and Red Crescent www.ifrc.org Societies (IFRC) Annexes 133 Annex Vl Acronyms

CERF: Central Emergency Response Fund

DANA: Damage and Needs Assessment

ECHO: European Community Humanitarian Aid Department

EOC: Emergency Operations Center

IFRC: International Federation of Red Cross and Red Crescent Societies

NGO: Non-governmental Organization

OCHA: United Nations Office for the Coordination of Humanitarian Affairs

PAHO/WHO: Pan American Health Organization/World Health Organization

PED: PAHO/WHO’s Area on Emergency Preparedness and Disaster Relief

PWR: PAHO/WHO Country Representative

REDLAC: Risk, Emergency and Disasters Task Force for Latin America and the Caribbean

RRT: Regional Response Team

SITREP: Situation Report

UNETE: United Nations Emergency Team

UNDAC: United Nations Disaster Assessment and Coordination Team

UNICEF: United Nations Children’s Fund

UNS: United Nations System

134 Information management and communication in emergencies and disasters: Manual for disaster response teams Annex VII Recommended bibliography

RISK COMMUNICATION

Centers for Disease Control and Prevention of the United States and the Pan American Health Organization (CDC/PAHO/WHO). Self- instruction course in risk communication. Available at www.cepis.ops- oms.org/tutorial6/i/wellcome.html de. Accessed 12 July 2009.

O’Sullivan, G.A., Yonkler, J.A., Morgan, W., and Merritt, A.P. 2003. A field guide to designing a health communication strategy. Baltimore, MD: Johns Hopkins Bloomberg School of Public Health/Center for Communication Programs. Available at www.jhuccp.org/legacy/ pubs/tools/DesigningaHealthCommunicationStrategy/index.html.

U.S. Department of Health and Human Services, Centers for Disease Control and Prevention. 2002. Crisis and emergency risk communication: by leaders for leaders. Washington, D.C.: CDC. Available at: www.bt.cdc.gov/erc/leaders.pdf.

U.S. Environmental Protection Agency (EPA). 2004. Considerations in risk communication: a digest of risk communication as a risk management tool. Washington, D.C.: EPA. Available at www.epa. gov/nrmrl/pubs/625r02004/625r02004.pdf.

World Health Organization. 2008. Outbreak communication planning guide. Geneva: WHO. Available at www.who.int/ihr/elibrary/ WHOOutbreakCommsPlanngGuide.pdf.

_____. Effective media communication during public health emergencies. A WHO Handbook (WHO/CDS/2005). Geneva: WHO. Available at www.who.int/csr/resources/publications/WHO_ CDS_2005_31/en/.

_____. Report of the WHO Expert Consultation on Outbreak Communications held in Singapore on 21–23 September 2004. WHO.

INFORMATION MANAGEMENT

Inter-Agency Standing Committee. 2007. Operational guidance on responsibilities of cluster/sector leads & OCHA in information management. Geneva: IASC. Available at: www. humanitarianreform.org/humanitarianreform/Portals/1/cluster%20 approach%20page/Res&Tools/IM/Operational%20Guidance%20 on%20Information%20Management%20V3.pdf. Annexes 135

Norwegian Refugee Council (NRC), The Camp Management Project (CMP). 2008. Camp management toolkit (Section 5, Information Management). Available at www.nrc.no/arch/_img/9293555.pdf

Organización Panamericana de la Salud. 1994. Comunicación eficaz con el público durante épocas de desastres: Pautas para los administradores de desastre para preparar y difundir adecuadamente mensajes de salubridad. Washington, D.C.: OPS; 1994.

United Nations Office for the Coordination of Humanitarian Affairs (OCHA), Field Coordination Support Section. 2006. UNDAC Handbook. Chapter F. Information Management. Available at http:// ochaonline.un.org/Coordination/FieldCoordinationSupportSection/ UNDACSystem/Handbook/tabid/1432/language/en-US/Default. aspx.

MEDIA MANAGEMENT

Bratschi, Gloria. 1995. Comunicando el desastre: comunicación social preventiva y de emergencia en zonas sísmicas (extensivo a otros desastres). Argentina.

Mexico, Secretaría de Innovación y Calidad, Subsecretaría General de Planeación y Desarrollo en Salud. 2005. Guía de manejo de medios masivos de comunicación durante crisis en unidades de salud. Mexico, D.F.

Noji, Eric K. 2000. Impacto de los desastres en la salud pública (Chapter 7). Washington, D.C.: Pan American Health Organization.

Pan American Health Organization, Office of Public Relations.Media relations in emergencies. Available at www.paho.org/english/ped/ medios.htm.

MESSAGES AND INFORMATIONAL MEDIA

Program for Appropriate Technology in Health (PATH), Children’s Vaccine Program. 2001. Immunization and child health materials development guide. Seattle, Washington: PATH. Available at: www. path.org/publications/details.php?i=346.

OTHER RESOURCES

Pan American Health Organization. 2009. Be a better donor: Practical recommendations for humanitarian aid. Panama: PAHO/ WHO.

136 Information management and communication in emergencies and disasters: Manual for disaster response teams

_____. 2004. Manual de evaluación de daños y necesidades en salud para situaciones de desastres. Quito: OPS/OMS.

Pan American Health Organization. Action card for PAHO/WHO Representatives. PAHO/WHO.

_____. 2009. Field Manual for the PAHO/WHO Regional Disaster Response Team. Panama: PAHO/WHO.

_____. 2006. Management of dead bodies after disasters: A field manual for first responders. Washington, D.C.: PAHO/WHO.

_____. 2006. Management of dead bodies after disasters. Washington, D.C.: PAHO/WHO.

Pérez de Armiño, Karlos, ed. 2000. Diccionario de acción humanitaria y cooperación al desarrollo. Bilbao: Icaria y Hegoa. Available at http://dicc.hegoa.efaber.net.

United Nations. Office for the Coordination of Humanitarian Affairs. Humanitarian reform in action. Web site: http://ocha.unog. ch/humanitarianreform/.

World Health Organization (WHO). 2008. Manual for the care of children in humanitarian emergencies. Geneva: WHO. Available at: www.who.int/child_adolescent_health/ documents/9789241596879/en/index.html.

The Pan American Health Organization has developed the Regional Disaster Response Team and supports efforts to strengthen the ability of national health sector teams to respond to emergencies and disasters. These multi-disciplinary teams have expressed the need for specialists in the fields of information management and communication. The role of these specialists is to produce quality information which can be shared with the people and agencies that need it. The information must be produced on time, in the proper format, and distributed through the most appropriate channels. This work can only succeed when performed in a team setting. Disaster management experts, communicators, or administrators cannot work in isolation. It is the integration and balance of their efforts that make the difference. Communication specialists need to understand the reality of disasters. Likewise, those with disaster management and public health experience can make better decisions when they can rely on the support of communicators. This manual is part of the effort to improve technical capacity in the Region of the Americas, and has been developed from lessons learned and practical experience gained in countless disasters. In addition to helping disaster response teams, it is structured to guide the information and communication activities for those responsible for disaster preparedness and response in the health sector. It complements other PAHO/ WHO efforts in communicating for risk management.

This publication can be consulted at: www.paho.org/disasters

S A LU O T R E P

O P A P H S O N I O D V I M U N

Area on Emergency Preparedness and Disaster Relief

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ISBN 978-92-75-12993-7