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Crisis and Emergency Risk Communication CRISIS AND EMERGENCY RISK COMMUNICATION Pandemic Influenza August 2006 Revised October 2007 The purpose of this book is to provide the reader with vital communication concepts and tools to assist in preparing for and responding to a severe influenza pandemic in the United States.The focus of the book is on the possibility of a severe pandemic. Although the concepts do apply to less intense public health challenges, they may not need to be executed at the same level of intensity. This book is intended to be used as an addition to the CDC Crisis and Emergency Risk Communication coursebook (Reynolds, Galdo, Sokler, 2002) and the Crisis and Emergency Risk Communication: By Leaders for Leaders coursebook (Reynolds, 2004). The concepts in this book do not replace, but, instead, build on the first two books.This book shares foundational concepts that will support your communication work and should be relevant even as the circumstances surrounding a severe pandemic may change. Nonetheless, the information in this book is current as of October 2007. As major events occur, especially related to countermeasures such as pandemic vaccine development, some assumptions may change. Importantly, this book explains in more depth the communication challenges to be expected in a severe influenza pandemic.This is not a primer on pandemic influenza and is not the place to turn to for up-to-date message maps, communication tools, and pandemic preparedness and planning information. The “go-to” place for evolving information is the U. S. Government Pandemic Flu website at http://www.pandemicflu. gov. At www.pandemicflu.gov you will find resource materials for creating communication products, as well as additional guidance on planning. HHS and CDC are engaged in a number of research and development projects related to pandemic communication. Check the website regularly for updates. ii CDC • Crisis and Emergency Risk Communication Crisis and Emergency Risk Communication: Pandemic Influenza Made possible by U.S. Department of Health and Human Services (HHS) In partnership with: Centers for Disease Control and Prevention (CDC) Office of the Director, Office of Enterprise Communication (OEC) Coordinating Office of Health Information Services, National Center for Health Marketing Written by Barbara Reynolds, M.A, Centers for Disease Control and Prevention In collaboration with: Shana Deitch, M.P.H. & Richard Schieber, M.D., M.P.H., Capt. USPHS Centers for Disease Control and Prevention Edited by: Suzy DeFrancis, Assistant Secretary for Public Affairs (ASPA), HHS Donna Garland, OEC, CDC William Hall, ASPA, HHS Shaunette Crawford, OEC, CDC Ann Norwood, M.D., Office of Public Health Emergency Preparedness (OPHEP), HHS Stephanie Marshall, ASPA, HHS Sharon KD Hoskins, M.P.H., OEC, CDC Lorine Spencer, B.S.N., M.B.A.,OD, CDC Faculty Barbara Reynolds, M.A., CDC Matthew Seeger, Ph.D., Wayne State University Tim Sellnow, Ph.D., North Dakota State University Richard Brundage, President & CEO, Center for Advanced Media Studies Robert Ulmer, Ph.D., University of Arkansas, Little Rock Deanna Sellnow, Ph.D., North Dakota State University Development, preparation, and implementation of this course were made possible through the knowledge, wisdom, and effort of the people listed here: CDC Dan Baden, M.D. Annise Chung Benjamin Haynes Cecilia, Meijer Khalid Rodriguez Jay Bernhardt, Ph.D. Lateka Dammond Sharon K.D. Hoskins Jennifer Morcone Marian Sachs Mindy Barringer Irene Edward-Chery Jamila Howard Joshua Mott, Ph.D. Kristine Sheedy Martha Boyd Ron Ergle Asim Jani Teresa Nastoff Lorine Spencer Richard Bright Melinda Frost Mattie Jones Karen Ngowe Patricia Taliaferro Mary Bryant-Mason Nancy Gathany William Jones III John O’Connor Lisa Williams Alyce Burton Cynthia Goldsmith Ronald Lake Dori Reissman, M.D. Andrea Young Emily Cramer D’Angela Green Cynthia Lewis Karen Resha James Archer Bridget Cleveland Kathryn Harben Renee Maciejewski Matthew Reynolds CDC • Crisis and Emergency Risk Communication iii Local and State Public Health Departments Bart Aronoff, Hawaii Dept. of Health Bret Atkins, Ohio Dept. of Health Nancy Bourgeois, Los Angeles Dept. of Health and Human Services Kim Coleman, West Virginia Dept. of Health and Human Resources Debbie Crane, North Carolina Dept. of Health and Human Services Nancy Erickson, Vermont Dept. of Health Laura Espino, NPHIC Jami Haberi, Iowa Dept. of Health Larry Hill, Virginia Dept. of Health Clara Jenkins, NPHIC Richard McGarvey, Pennsylvania Dept. of Health Christine Newlon, Nebraska Dept. of Health Sandra Page-Cook, New York City Dept. of Health and Mental Hygiene Marisa Raphael, New York City Dept. of Health and Mental Hygiene Ken Seawright, Mississippi Dept. of Health Doug Skroback, South Carolina Dept. of Health and Environmental Control Tom Slater, New Jersey Dept. of Health and Senior Services Steve Wagner, Ohio Dept. of Health Rhonda White, Florida Dept. of Health Ann Wright, Arkansas Dept. of Health CERC Consultation Panel Laura Blaske (Washington state) Barbara Beiser (Colorado) Thomas Slater (New Jersey) Jim Beasley (South Carolina) Marie Milkovich (Michigan) Nicola Whitley (New Hampshire) Debbie Crane (North Carolina) Christine Holmgren (Oregon) Kristine Smith (New York) Bret Atkins (Ohio) Department of Health and Human Services Jack Kalavritinos Thomas Harris, Region III Joe Nunez, Region, Region VIII Eric Jewett Chris Downing, Region IV Michelle McGowan, Region VIII Laura Caliguiri Deric Gilliard, Region IV Claise Munoz, Region IX By Region Dough O’Brien, Region V Jennifer Koentop, Region IX Brian Cresta. Region I Don Perkins, Region VI James Whitfield, Region X David Abdobo, Region I Ashlea Quinonez, Region VI Jenny Holladay, Region X Deborah Knopko, Region II Fred Schuster, Region VII Gordon Woodrow, Region III Adele Hugley, Region VII DoD Lori Geckle, U.S. Army Walter H. Orthner, Joint Forces Command David, A. Zacharias, Joint Forces Command Community & University Dorothy Sorensen Claudia Parvanta, Ph.D. William Reynolds Rita Cox Elizabeth Andrea Prebles National Archives Alita Corbett Elizabeth Schatzel With special thanks to Kim and the Village of Cedar Rapids iv CDC • Crisis and Emergency Risk Communication Crisis and Emergency Risk Communication Pandemic Influenza Table of Contents Introduction. 1 Checklist: Basic Tenets of Emergency Risk Communication . .15 Checklist: Scientific Risk Communication for the Public. .16 Severe Influenza Pandemic:What is Different. .21 Biopsychosocial Challenges in the United States in a Severe Pandemic . .40 Pandemic Influenza: Stages of Federal Government Response. .46 Community Hardiness and Personal Resilience . .49 Checklist: Communication for Personal Resilience . .64 Checklist: Communication for Community Hardiness . .65 Topline Assessment of Community Hardiness by Selected Domains . .66 The Stigma of Pandemic Influenza. .75 Checklist: Inhibiting and Countering Stigmatization . .83 Reaching Special Populations. .87 Special Populations Assessment Tool . .100 Best Practices: Customer Communication at the POD . .104 Understanding Loss, Grief, and Cultural Bereavement Rituals . .107 Checklist: Planning a Community-Wide Memorial Service . .124 Information Technology in Pandemic Influenza Communications. 133 Evaluating Health Information on the Web . .146 Understanding the Role of NIMS/ICS for Pandemic Influenza . 153 Authored by Richard Schieber, MD, MPH, National Immunization Program, CDC CDC • Crisis and Emergency Risk Communication v Module 1 • Introduction Introduction Crisis and Emergency-Risk Communication Be first. Be right. Be credible. risk (ri˘sk) n. 1. The possibility of suffering a harmful event. 2. A factor or course involving uncertain danger. Crisis and emergency risk communication is a vital component of public health emergency response. The initial objectives for public information releases from response authorities early in a crisis are: 1) to prevent further illness, injury, or death; 2) to restore or maintain calm; and 3) to engender confidence in the operational response (National Response Plan, 2005). Because emergencies are chaotic, planning should be directed at simplifying roles and responsibilities to achieve the greatest good for the greatest number while maintaining enough resources to reach those few who can’t help themselves (Clarke, 2003; Seeger, Sellnow, & Ulmer, 2003). Mitroff said about preparing for crises, “We must improve dramatically our abilities to ‘think about the unthinkable’’’ (2004, p. 11). Among these crises, the one most likely to directly involve the greatest number of persons in the United States is a major respiratory-transmitted infectious disease outbreak such as pandemic influenza. In this widespread emergency, public health response officials would need to communicate messages to the public asking them to take particular actions and refrain from other actions (e.g., engage in cough etiquette and refrain from gathering in groups). An influenza pandemic of a highly pathogenic strain that occurs in our technologically advanced society—where instant horizontal communication takes place around the clock—will severely tax the ability of public health crisis response officialsto provide accurate, timely, consistent, and credible information to the U.S. population (Reynolds et al., 2002). Emergency messages will need to be communicated to a highly diverse U.S. population and to cultures around the world. CDC • Crisis and Emergency Risk Communication 1 Introduction According to the National Strategy for Pandemic Influenza (2005), a Fast
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