The purpose of this document is to provide a rationale and guidelines to guide local, State and Department of the Army public affairs and information officers in the implementation of the Public Information and Education elements of the Chemical Stockpile Emergency Preparedness Program (CSEPP).

In two sections, Pre-Emergency Public Education and Emergency Public Information, operational concepts are presented (the rationale), which are followed by guidelines.

Staff from the Federal Emergency Management Agency will utilize this document and other guidance from FEMA and the Department of the Army, as a basis for evaluating the adequacy and effectiveness of Pre-Emergency Public Education and Emergency Public Information programs developed to deal with potential or actual chemical agent emergencies.

An aggressive public education and information campaign is an essential ingredient of an effective emergency preparedness program. The pre-emergency public education program raises public awareness of the hazards associated with the chemical agent stockpile and advises citizens of actions they can take, both before and during an emergency, to reduce risks to themselves and their property. Public education also informs individuals of the progress of Chemical Stockpile and Chemical Demilitarization activities as they relate to emergency preparedness. The emergency public information program identifies the information that will need to be communicated to the public in the event of a chemical agent release and a strategy for disseminating this information rapidly.

Both pre-emergency public education and emergency information must dovetail with and support other elements of a community's emergency preparedness program. Decisions made throughout the program and incorporated into the emergency operations plan and other documents will influence the information needed by the public as well as the way the information should be communicated. The design of the protective action decision system and the alert and notification system, for example, will directly affect the recommendations and instructions to be included in the public education and information materials as well as the dissemination strategy.

It is important to recognize that the CSEPP public education and information programs are fundamentally different from typical public affairs and public information efforts. The primary goal of the emergency programs is to promote public actions that will reduce casualties in the event of a chemical release. Other public information activities (e.g., cultivating a positive image for the program) are appropriate only insofar as they contribute to that goal. Recognition of this distinction is particularly important since it is likely that many jurisdictions will assign responsibility for the emergency public education and information functions to their public affairs officials.

In addition to the quality of a community's emergency preparedness system, successful response to a chemical agent emergency ultimately depends on individual citizens' taking appropriate actions to protect themselves. Under some accident scenarios, the time available to implement protective actions would be quite limited for people near the source of the chemical agent emergency. For these adjacent populations, evacuation, the most common and (possibly) most natural defensive action, would not be prudent under some conditions. Individuals can protect themselves, then, only if they understand what protective actions will be most effective and have the knowledge and motivation to implement those actions quickly. Consequently, pre-emergency public education is a necessary component of an effective emergency preparedness program.

The fundamental goal of emergency preparedness is to minimize casualties in the event of an emergency. The pre-emergency public education program supports this goal through two principal objectives: (1) to encourage people to take appropriate protective measures before an emergency, and (2) to promote quick and appropriate response during an emergency by informing the public about the emergency warning process and the procedures for implementing appropriate protective actions.

The effort to ensure that all people living, working, or traveling through a community at the time of a chemical agent emergency have access to the information they need to protect themselves is a complex and ambitious undertaking. This effort requires the development and use of strategies similar to those employed in other public awareness programs. Program personnel responsible for public information must divide the community into target audiences based on the type of information required and on the audience's need for information to be presented in particular ways. CSEPP PIOs must then develop public education strategies according to exactly what information will be presented to each audience and what methods of presentation will be most effective in communicating that information to them. Finally, PIOs must design and disseminate the public education materials (brochures, television and radio spots, newspaper ads, public presentations, etc.). Furthermore, since research indicates that repetition is an important ingredient in emergency public education efforts, the entire process must be repeated periodically.

Consideration must be given to significant program dates and milestones. Certain events at the installation and in the community should be anticipated. Examples include the installation of sirens in the community, ground-breaking ceremonies for new buildings or the demilitarization plant, public scoping meetings, hazardous materials accidents in other locations, exercises, etc. Public education activities should be planned and executed to meet the community's need for information which such events will create. Coordination should occur, as appropriate, with the Army Installation and Public Affairs Office, Program Manager for Chemical Demilitarization, Aberdeen Proving Ground, Maryland.

The identification of target audiences is a crucial step in developing an effective public education program. Information needs and communication methods cannot be selected with confidence until decision makers have considered critical characteristics of the affected public. Two types of characteristics are important in identifying target audiences: (1) characteristics which indicate special needs regarding the ways in which information is presented, and (2) characteristics indicating a need for specific types of information.

People who require that general public education information be presented in specific ways include those with perceptual difficulties as well as transients and visitors to the area who would not be exposed to information provided through normal channels. Groups to be considered include the hearing-impaired, visually-impaired, mentally handicapped, people depending on critical support animals (e.g., Seeing Eye dogs), non-English-speaking, as well as migrant workers, tourists, and visiting travelers.

Different segments of the community will need different types of information to guide their response to an emergency. For example, different responses may be appropriate for people in different emergency planning zones; people who are physically handicapped will often need special information about the protective actions they should take and how to implement them, and some people may require instructions on actions they should take that go beyond personal protection. An effective public education program will recognize varying information needs within the community and try to provide appropriate information for all groups.

The specific types of information to be communicated to each target audience should be identified, preferably with the involvement of representatives of the target audience. Information needs that are common to all audiences can be addressed in general public education materials, and special materials or presentations can be developed to meet the specific needs of some groups.

Three basic types of information may be included in the public education program: (1) general educational information, (2) general public information, and (3) protective action instructions. Clearly the most important information is that which informs recipients how to protect themselves from a release of chemical agent. Protective action instructions should address both actions that can be taken before a chemical agent emergency occurs and actions that should be taken upon receipt of an emergency warning. Instructions for actions to be taken during an emergency must be compatible with messages prepared for dissemination at that time (see Emergency Public Information). General educational information should be provided to inform the public of the nature of the hazard posed by the chemical stockpile and disposal program. General public information, explaining the role of the emergency management agency and the on-going emergency preparedness capabilities and safety measures in place at the stockpile and demilitarization site, must be included to increase the credibility of the emergency information materials, foster confidence in the storage and demilitarization processes, and encourage the public to implement appropriate protective actions when required.

A variety of methods are available to communicate emergency information to the identified target groups, including electronic media, print media, special purpose publications, specialized media, and community outreach programs. In selecting the media to be used to reach each target audience, program planners should consider (1) the information to be communicated to that audience, and (2) any characteristics of the audience that may indicate that particular media are likely to be more effective in reaching them. If possible, selection of media should be made in consultation with representatives of the target audience involved. It is desirable to use more than one media type for each target audience because different media reinforce each other, increasing both the credibility and memorability of the emergency information.

Special purpose publications (e.g., pamphlets) will likely play an important role in most pre-emergency public education efforts. Such publications offer an opportunity to provide detailed information focusing specifically on emergency preparedness related to the chemical agent stockpile. Program planners should consider the possibility of using more than one such publication for each target audience. It may be advisable, for instance, to devote one pamphlet to protective action instructions and to provide one or more additional publications containing background information on the nature of the chemical agent hazard and the emergency preparedness program.

While a few guidelines are appropriate regarding the format and style of pre-emergency education materials, these issues are largely subjective and judgmental in nature. In general, questions regarding format and style can be decided by applying two principles that are fundamental to an effective education program. First, the primary goal of the pre-emergency public education program is to increase the likelihood that individuals will take appropriate actions to protect themselves from a release of chemical agent. Consequently, protective action instructions must occupy the central point in the program. Other types of information, such as descriptions of the nature of the threat and material about the emergency preparedness program, must be subordinate to and must support the single principal purpose of promoting the timely implementation of protective actions by the public.

The second principle that should guide decisions on format and style is that all materials must be effective in communicating their information to the public. Each element of the public education program should be carefully designed to present information that is clear, specific, accurate, consistent, and conveyed with certainty. The chemical agent stockpile hazard, and the associated emergency response program, are inherently complex, and care must be taken to avoid apparent inconsistencies in the descriptions of these programs. In addition, all materials should match the comprehension level of their respective target audiences. This requirement presents a considerable challenge, since it often means that very complex issues must be described in simple terms. Ideally, the educational/comprehension level of each audience should be determined through research, polling of state and local organizations, or analysis of census data. In the absence of such an audience analysis, some experts suggest that public education materials should be designed for a grade 7–9 reading level. An alternative strategy would be to develop public information materials that are tiered to reach a variety of reading levels.

The principal objective of the emergency public information program is to minimize casualties and property damage by ensuring that appropriate instructions are distributed to the public in a timely manner during a chemical agent emergency. Planning is necessary to accomplish this objective. Before an emergency occurs, communities must consider what information will be needed by the public and develop a strategy for disseminating that information quickly.

In the interest of a coordinated planning process, it is suggested that the state emergency management agency initiate Joint Information Center (JIC) planning in close cooperation with all other jurisdictions.

It should be noted that the primary means established for emergency alert and notification of the public in the IRZ are tone alert radios and voice-capable sirens. Communities must develop pre-scripted, pre-tested messages for transmission via these media. FEMA has developed such messages for use with appropriate modification by local or state officials (Vogt and Sorensen, 1992). The Joint Information Center's activities must be supportive of and coordinated with information provided via tone alert radios, sirens, and the Emergency Broadcast System (EBS). A community emergency is naturally a confused scene; carefully prepared and carefully timed public information can reduce the confusion and minimize the community's loss.

In November 1994, the FCC announced the intent to create the Emergency Alert System (EAS) to replace the EBS. The EAS is designed to take advantage of current digital communications technology. All commercial broadcast stations and cable companies will be required to participate in the system, which is scheduled for implementation in January 1997. Some of the features of the new system will include multiple alerting sources, remote operations, and targeting of specific geographical areas. EAS technology involves use of a standardized code that controls the functioning of the system. For example, the code can be set to interrupt normal programming for certain conditions and to choose the appropriate pre-recorded audio and visual materials to be broadcast. The broadcast materials be matched to the originator of the message, the event, and the location. Messages can be developed in multiple languages and sent out by the media channel appropriate for each foreign language population. In addition, special radios, televisions, computers, and other electronic devices will be marketed that have remote activation capabilities. Eventually, EAS will replace the current tone alert radio technology.

Since the effectiveness of the CSEPP depends on the public's taking appropriate protective actions, it is imperative that the public information presented during a chemical agent emergency be clear, accurate, and consistent. Considering the variety of agencies and jurisdictions that are likely to be involved in responding to a chemical agent incident, these qualities can be ensured only through careful coordination among the agencies and jurisdictions involved. In the pre-emergency phase, each agency's or jurisdiction's procedures for disseminating public information should be coordinated and made compatible with the strategies developed by all other agencies and jurisdictions who may be affected by a chemical agent event.

During an emergency, a JIC should be established in a timely manner to support information provided via the public alert and notification systems (and in recognition of the requirement that IRZ alert and notification be accomplished within eight minutes of the decision to alert.) The JIC must facilitate the coordination and compatibility of the information disseminated by the various agencies and jurisdictions. The coordinated public information strategies and the organization and operation of the JIC should be tested and refined through CSEPP exercises.

It should be recognized that non-surety events, such as smokey on-post fires not involving chemical agents, may be responsible for creating considerable public interest and concern. Therefore, plans should provide for either partial or full JIC activation. Partial activation will take place when it is apparent to the Army and/or the county(s) that public perception either has or will create significant public interest or concern.

As a part of its planning activities, each jurisdiction must establish an organization to handle the emergency public information function. Each jurisdiction will appoint a spokesperson and alternate spokesperson. The spokesperson should be involved in planning activities for public education and public information, including the coordination of the public information strategy with other jurisdictions and agencies. Each jurisdiction will also identify staff resources that will be available to the spokesperson at the time of a chemical agent emergency. The staff will be responsible for assisting the spokesperson by providing secretarial services, communications with other officials, and communications with the public.

Each jurisdiction will develop emergency public information procedures to ensure that clear, accurate, appropriate, timely and consistent information is provided to all people directly affected by the chemical agent emergency. The procedures should be coordinated with other jurisdictions and agencies and should indicate what types of information will be provided to which groups in which order of priority. The strategy should recognize the needs of some groups for specialized information or for generic information presented in specific ways. The procedures should also specify how prescripted information (e.g., protective action recommendations) and news briefings will be handled.

The JIC should be activated at the earliest possible time during the emergency to provide a single location for coordinated emergency information. Activities in the initial phase of the chemical event will be dominated by dissemination of protective action recommendations. The JIC will support the dissemination of protective action information via the alert and notification system; the latter shall at all times be considered the first medium to be used for the dissemination of protective action information.

Methods for disseminating these recommendations in support of alert and notification include the EBS/EAS, other TV and radio stations, and cable TV. Recommendations should complement and be consistent with pre-emergency public education materials and with messages disseminated via the alert and notification system. Whenever possible, the messages should refer recipients to pre-emergency educational materials that are likely to be available for more complete instructions and should provide a telephone number for contacting authorities for additional information or instructions.

As the chemical agent emergency progresses, the emphasis of efforts at the JIC will shift from protective action recommendations to informing the public about the nature of the emergency and its causes and response and recovery activities. All information regarding Department of the Army actions in connection with the emergency—its causes and direct actions to contain and control it—should be provided by the Army Public Affairs Officer (PAO). The Army PAO will also be responsible for coordinating information about the on-base activities of other federal agencies and departments which are operating in support of the Army as the Lead Federal Agency. The Army PAO will coordinate and consult with local, state, and volunteer organizations (e.g., Red Cross, Salvation Army, etc.) public information officers, but will exercise no control over their actions. The Army PAO will also coordinate information activities with those of federal agency public affairs officers operating off-site.

Local, state, and federal agency spokespersons should communicate instructions to the public; describe completed, ongoing, and planned activities to respond to the emergency and recover from it; and advise the public of likely outcomes (e.g., expected duration of exclusion from evacuated areas) to the extent this can be done with reasonable reliability.

Events following the release of a chemical agent are likely to be confusing to the public, and, partly because of the nature of the hazard, inaccurate accounts are likely to circulate. Yet, the public's well-being depends on their understanding and properly responding to the recommendations made by emergency management officials. Inappropriate action based on erroneous information could be disastrous. Consequently, the control of rumors is a critical aspect of the public information program. Rumor control includes two steps: (1) recognizing the existence of a rumor, and (2) providing information to correct the rumor. Both steps can be accomplished on an individual basis, in part by advertising a telephone number that citizens can call for answers to questions about the emergency or perceived emergency. (It is important that sufficient telephone lines and operators be connected to this number to avoid undue delays in answering incoming calls).

Emergency responders can also be trained to report any significant rumors they encounter to the EOC and JIC. Rumors that are widespread or particularly troublesome should be corrected through an official information release.

The JIC should also actively monitor broadcast and print media coverage to identify erroneous information or indications that some members of the public may be reacting to the emergency inappropriately.

The proper execution of CSEPP public education and information programs requires implementation by qualified personnel. Included among the suggested knowledge and skills for personnel implementing this program are

The CSEPP Public Information/Affairs Officers carrying out Public Information/Education responsibilities likely will have both emergency and non-emergency assignments. They must help design and implement the pre-emergency education and information tasks, and they will likely perform those functions alone, with support from other personnel from their agency or jurisdiction, or those from other CSEPP jurisdictions. Assistance may also be available from FEMA or Army public affairs personnel, or from experts provided by them.

Emergency public information tasks will without a doubt require assistance from others. The CSEPP Public Information/Affairs Officer must expect to recruit, brief and train other qualified people to help him or her carry out his jurisdiction's responsibilities under these guidelines.