Speaking as One: The Joint Provision of Public Information in Emergencies

Access to information that is timely, accurate and consistent is a critical element in any disaster or major incident. That it is also, almost invariably, one of the first 'casualties' is possibly the most challenging aspect of emergency management today. The importance of effective communication cannot be overstated; as Bullock et al observe: Reaching the widest possible audience with the most up-to-date, credible information can save lives and property, reduce public fears and anxiety, and maintain the public's trust in the integrity of government officials. (2004, p. 3) However, the challenges for first responders gathering data during the initial stages of an emergency, combined with the capacity and interoperability of emergency systems and protocols and the need to verify and approve the release of information can significantly constrain the flow of knowledge in an emergency. According to Richard Falkenrath, Visiting Fellow of the Brookings Institute, 'a bit of experience managing complex national incidents teaches three iron rules': 1. First reports are usually inaccurate; 2. Accurate reports are typically embedded within significant uncertainty; and 3. The public, the media and the government's communications specialists will demand information much faster than 'the interagency' is prepared to provide it. (2005, p. 133) In an effort to address the critical issues of providing emergency information to communities and sharing intelligence and data between response agencies, many governments and emergency managers world-wide are implementing protocols to facilitate information-sharing between the responding agencies; those at risk or directly affected by an emergency; the broader community and the media. Known variously as 'joint information systems' (JISs), 'joint public information committees' (JPICs), or 'public information and warning partnerships (PIWPs), these entities are established with the common aim of facilitating effective multi-agency responses to, and mitigating the consequences of emergencies through the efficient collection, analysis and dissemination of information. The formation of joint information systems to develop and deliver key messages in emergencies has primarily evolved from the lessons learned during and after the 2001 attacks on the World Trade Centre in New York. As part of the National Information Management System, the Federal Emergency Management Agency (FEMA) has developed a comprehensive protocol for the establishment and operation of a joint information system staffed by public information officers (PIOs) representing government, emergency response and other stakeholder agencies. FEMA describe this model as 'the systems used to deliver the right information to the right people at the right time, in order that they may make the right decisions' (2008). FEMA's public information systems operate on three basic principles: 1. The role of the Public Information Officer (PIO) is to support Incident Command; 2. Public information functions must be coordinated and integrated across jurisdictions and functional agencies; among Federal, State, local, and tribal partners; and with privatesector entities and nongovernmental organisations; and 3. Organisations participating in incident management retain their independence (ibid). In considering the efficacy of joint public information systems, this paper will reflect on FEMA's pre-emptive model of information management and will examine the small but growing body of research that evaluates specific examples of the 'joint public information committee' model in relation to particular emergency situations. It will seek to identify the key challenges inherent in the successful establishment and operation of a joint public information committee and will draw on the available literature to explore those challenges.