Communicating In the Dark - Queen's University€¦ · Hurricane Irene showed the need for...

RUNNING HEAD: COMMUNICATION METHODS IN A BLACKOUT 1

Communicating In the Dark Alexandra Wright


Abstract

This paper provides a foundation for improving communication tactics in an emergency

through examining the 2013-2014 Toronto Ice Storm (Ice Storm). In December 2013, Toronto was

hit with dropping temperatures and torrential ice that destroyed hydro poles, pulled down large

trees and heavily impacted city services (City of Toronto, 2014). The storm lasted until January

2014, leaving many residents without power and with no access to emergency communication and

essential information (City of Toronto, 2014). Primary research in the form of an interview reveals

the limited communication tactics used by the City of Toronto, including: traditional media,

websites and Twitter. Case studies, including Hurricane Irene and Hurricane Sandy, support the

need for a variety of communication tactics in an emergency and the need for an informational

campaign notifying residents of the importance of emergency preparation. This research answers

the following questions: what were the gaps in communication during the Toronto ice storm in

2013-2014 and what improved communication methods should be used in a long-term power

outage for the City of Toronto? This paper examines thus what communication tactics are best

used by municipal governments in emergencies involving power outages.


Introduction

Recent natural disasters highlight serious issues in the communication tactics used by the

City of Toronto. Toronto is Canada’s largest city, and the fourth largest in North America, with a

population of 2.8 million people (City of Toronto, 2015). Due to its large size, emergencies in

Toronto have a significant impact on living quality for large populations. Communication tactics

are essential to provide information to residents regarding public safety and health (Covi, 2012).

Many governments and institutions rely on traditional media and the premise that residents have

access to online communication and are able to power communication devices for digital

communication. Yet, in emergencies this is often not the case (Lindsay, 2011). In a citywide power

outage residents are unable to charge their smartphones, computers or power their televisions.

Vulnerable populations who do not own these devices are left without online communication from

the municipal government. The communication vehicles used by the government in the Ice Storm,

did not reach a variety of Toronto residents (Lindsay, 2011). Without this information, many could

not reach warming shelters or have access to important medications (Lindsay, 2011). The

breakdowns in communication during the ice storm left severe health, social and economic

repercussions and needs further research to deal with this issue.

As natural disasters increase so does our need for improved communication tactics. In an

emergency, relaying accurate information about preparations, evacuations and warming centers is

paramount. This research examines the recent Toronto ice storm emergency and its response. The

paper identifies the gaps in communication in the Toronto ice storm while recommending

improved communication tactics for use in future emergencies. It analyzes recommendations made

by the City and looks at past emergency case studies. This research shows that a variety of

communication tactics need to be used in an emergency to reduce the impact on the City. It shows


the importance of promoting emergency information before an emergency and the need to

communicate as quickly as possible to residents in the area.

Thesis

The paper studies the effectiveness of emergency communications through investigating

the 2013-2014 Toronto Ice Storm. It examines the impacts of this event on communication in the

City of Toronto, identifying the communication gaps made by the municipal government during

the two-day to three-week power outage, and comparing them to a variety of case studies. It will

be shown that by providing emergency information and protocols, and by encouraging emergency

preparedness, the lives of residence in an emergency can be significantly improved.

Methodology

Primary research is conducted through an interview with a City of Toronto official. The

interview provides information on the communication messaging tactics used and government

reaction to the ice storm. The primary research component identifies gaps in the communication

tactics used throughout the ice storm.

Secondary research through literature review reveals digital and traditional media used in

emergencies, past emergency communication cases, and recommendations made by both the City

of Toronto and Toronto Hydro after ice storm. The secondary research analyzes case studies and

past emergencies, comparing them to the City of Toronto’s municipal response. This research

examines the advantages and disadvantages of individual communication tactics specifically

regarding a power outage.

Social Media in Emergencies

Since the 2000s, online digital and social media use has grown, providing users with the

ability to create content and communicate instantaneously. Digital media examples and


communication tactics include blogs, chat rooms, discussion forums, wikis, YouTube, LinkedIn,

Facebook, Twitter, Instagram and Reddit. This new technology has led to the evolution of a new

lifestyle and changed the way business is conducted.

In the last five years, social media has changed emergency planning and communication

(The Canadian Red Cross, 2012). Social media is used by NGO’s to find emergency information,

inform loved ones of safety and raise money for disaster relief (The Canadian Red Cross, 2012).

Throughout the year, 60 percent of Canadians use social media networks on a regular basis, with

84 percent of users participating in social media a few times a week (The Canadian Red Cross,

2012). Thirty one percent use websites, social media, and cell phones for information in

emergencies though 39 percent use the television and 26 percent use radio to find information (The

Canadian Red Cross, 2012). Fifty-four percent of Canadians use social media to inform family and

friends about their safety in emergencies, while 49 percent say they would sign up for electronic

alerts in times of warning (The Canadian Red Cross, 2012). The high use of social media makes it

the ultimate vehicle for communication to reach large populations quickly. Governments can

utilize this as an effective and efficient communications tactics tool. In emergencies, social media

has many advantages. It’s the best way to easily distribute information to a large population

(White, 2012). Immediate image uploads allow for the public to post images of an emergency,

giving emergency responders a visual on the disaster (White, 2012). In Toronto, 59 percent of

online digital users use Facebook to communicate (Andrew-Gee, 2015). Instagram is a growing

platform with its use at an all-time high use by Torontonians (Andrew-Gee, 2015). To

communicate online to Torontonians it’s best to use Facebook, Twitter, and Instagram. Social

media is an ideal communications tactic that was underutilized by the municipal Toronto

government as it was not in the strategic communication plan (Offical, 2015).


Social media is used to disseminate public safety information before, during, and after

emergencies throughout the world. It provides information and communicates warnings (New

Public Health, 2011). In the 2007 Virginia Tech Shooting, social media was used by students and

posted by the school, providing warnings to other students in the area (Gillard, 2011). This allowed

important information to be transmitted to a mass audience, saving lives (Gillard, 2011). In a

blackout, social media has restrictions. Electronic devices need to be charged and have limited use

in power outages. Understanding the limitations of social media means that communication tactics

should never be limited only to digital media use in emergencies, although their efficient use would

be benefit in such situations like the Toronto Ice Storm.

Hurricane Sandy

Hurricane Sandy emphasised the role for traditional media in long-term power outages. In

October 2012, Hurricane Sandy swept through the Caribbean and the East Coast of the United

States, killing dozens and leaving millions without power and homes (Burger, 2013). Central New

Jersey residents received the most flooding and were the longest without power, leaving them to

rely on traditional media and word from FEMA staff to receive emergency messaging (Burger,

2013). Evacuation routes were posted online and displayed through television and radio (Burger,

2013). Before the storm hit, Federal Emergency Management Agency (FEMA) placed staff and

assets in the areas to be impacted. FEMA helped coordinate emergency response, communicating

to residents directly (Ladislaw, 2013). Traditional media provided evacuation information,

emergency procedures, and health and safety messaging, including: television, radio, news releases

and newspapers. The state made a plan to anticipate response, relief, and long-term recovery needs

using its relationships with the media, community organizations, business owners, and

philanthropic organizations. These actions provided quick response and improving long-term


recovery efforts. The need for traditional media and word-of-mouth was prominent and vital to the

safety of residents.

Hurricane Irene

When Hurricane Irene hit, careful planning and use of a variety of communication tactics

lessened its impact and improved resident resilience (Terkel, 2011). Hurricane Irene was a large

tropical cyclone, affecting the Caribbean and East Coast of the United States in August 2011.

Hurricane warnings and a State of Emergency were declared in 13 states with residents in New

York City facing evacuation orders (Homeland Security, 2012). The storm left half a million

residents without power, closing 200 roads and bridges and destroying many buildings. These

power outages lasted 48 hours or longer (Lindsay, 2011). Cell towers were damaged and many

residents lost cell service, eliminating phone communication.

Hurricane Irene demonstrated the first use of social media during an emergency by the U.S.

government, combating the limitation of communication tactics due to severe weather (New Public

Health, 2011). Social media prepared residents for the hurricane by providing emergency messages

throughout the storm. It was the first time online partnerships were used between the government

and aid workers, assisting in a digital strategy. The Red Cross used volunteers to update and

monitor Facebook and Twitter conversations so as to provide relevant updates about the storm,

including safety information and shelter locations (New Public Health, 2011). The long power

outages caused by the hurricane created a problem for residents as smartphones and tablets have

battery lives of 12 hours or less. Other communication tactics were utilized to ensure emergency

messages reached effective residents. Radio was used to communicate Public Safety

Announcements with many of the radio stations running on power generators (Homeland Security,


2012). Television and media were used to promote emergency messaging early before the storm

hit, ensuring residents were prepared early on and ready for the loss of power.

Hurricane Irene showed the need for communication strategies before and throughout the

storm (Covi, 2012). Hurricane Irene is a success story, due to its use of traditional and digital media

to communicate quickly to residents. By using both methods it could reach a larger portion of

residents, depending on the vehicles they were able to use. By sending warnings early, important

information reached residents before the loss of power. Warnings provided information on

shelters, how to prepare, and cautions on the oncoming storm. The case of Hurricane Irene proved

the importance of multiple communication tactics and early messaging.

City of Toronto 2013 Ice Storm

The City of Toronto experienced extreme weather from December 2013 to January 2014.

The storm brought cold weather, freezing rain, ice and wind resulting in power outages and falling

trees. It left over 30,000 residents without power for up to seven days (City of Toronto, 2014).

Significant damage to property, the cold weather, and the reduction of essential services left many

residents uncomfortable or having to leave their homes (James Armstrong, 2013). Toronto Hydro

and City parks crews worked around the clock fixing damages and restoring services. Volunteer

Hydro crews from across the province travelled to Toronto in an effort to restore power to the city

(James Armstrong, 2013). The Canadian Red Cross and the City developed warming centers for

people without power. Toronto Community Housing, Toronto Police Service and the Ontario

Provincial Police contacted those in high-rise buildings to ensure their health and safety by

checking in with large building’s community managers (City of Toronto, 2014).

The City of Toronto used its website, media relations, coordination with 3-1-1, councilor

hotline, and Twitter to communicate the City’s messaging. Over the course of the ice storm the


City sent out 19 news releases, received 60 calls to the councilor hotline, 200 media enquiries with

photo opportunities, 210 tweets from the Twitter feed and updated their website daily with 40,506

visits (City of Toronto, 2014). This illustrated a use of primarily traditional media with limited

online use and print use.

Vulnerable Persons in Emergencies

According to the 2011 Canadian census, 545,840 people in Toronto live in apartment

buildings that are five stories or higher (Zerbisias, 2013). Some have backup generators for power

outages but most leave tenants in the dark and without use of the elevators. Vulnerable populations

are groups of people at risk due to ethnic, cultural, economic, age or disabilities (Centers for

Disease Control and Prevention, 2012). When there are long-term power outages many vulnerable

people are unable to leave their homes because the elevator cannot be used. (Zerbisias, 2013) In

the 2013-2014 Toronto ice storm many vulnerable populations were highly effected. The plunging

temperatures, lack of food, water, and light, left them uncomfortable and at risk. Police made

checks on the vulnerable to buildings that had been without power for one week (City of Toronto,

2013). Vulnerable populations without access to emergency communication are at a higher risk if

not prepared for emergencies.

Toronto Ice Storm Recommendations

The City of Toronto and Toronto Hydro reported on the actions taken and made

recommendations following the ice storm for future consideration. The Staff Report from the City

of Toronto proposed six major improvements: emergency preparedness and response, supports for

the vulnerable population, emergency communication, 311 Toronto and Toronto Hydro contact

center co-ordination, urban forestry, infrastructure resiliency, and provincial requests (City of

Toronto, 2014). It also recommended that the City better meet the needs of vulnerable populations.


It recommended new and enhanced tactics to more effectively communicate to the public during

power outages, including broader messaging through traditional media and posting emergency

notices in community facilities (City of Toronto, 2014). These recommendations included print

advertising, radio, Public Service Announcements, roadway signage, posting of notices, updates

in local community facilities, partnerships with building operators to post messaging, and working

with small businesses to communicate emergency messaging (City of Toronto, 2014). It suggested

improved engagement of building operators and the business community coordinating emergency

actions with residents and customers (City of Toronto, 2014). Lastly, the report recommended

better emergency education and an awareness campaign for the public that would improve

emergency preparedness.

Toronto Hydro reported that customers could not obtain timely and accurate information

regarding their power outage status (Davies Consulting, 2014). The communication tactics used

were in line with the suggested media strategy, but improved alignment is needed with the City of

Toronto’s to provide more streamline messaging (Davies Consulting, 2014). Upgraded messaging

is suggested to inform residents of their responsibility to be prepared for emergencies (Davies

Consulting, 2014). These recommendations align themselves with the recommendations of the

City of Toronto. Both call for improved communication tactics and messaging to ensure resident

preparation in emergencies.

Interview with City Official

For further research on the ice storm an interview was undertaken with a City of Toronto

official in the Strategic Communication Division. The official was involved in emergency response

throughout the storm and responded to questions regarding their personal role, communication

tactics, limitations, messaging, and recommendations for improvementi.


The City of Toronto Strategic Communication Division is responsible for communicating

to the public throughout an emergency. During the 2013-14 ice storm, the division was responsible

for communicating the location of warming centers, the status of power outages and restorations,

as well as response activities (Offical, 2015). It used TV and media updates, Twitter and news

releases as its primary tactics.

The official stated that traditional media is the best form of communication in the City and

is included in their strategic communication plan. Areas without power were unable to receive

media updates unless they had a means of backup power, such as generators (Offical, 2015). The

City relied on word-of-mouth to reach the people who did not have power (Offical, 2015). The

official also mentioned that communication to the public is a high priority to the City of Toronto

in an emergency, that the public needs to understand how the City is reacting to the problem and

what they can personally do to lessen the impact of an emergency (Offical, 2015).

The City is currently conducting a public education campaign called Get Emergency Ready

to reach vulnerable areas and populations. The Get Emergency Ready campaign is a guide

encouraging residents to prepare for an emergency through a 72-hour Emergency Kit, creating an

Emergency Plan and preparing for potential risks (City of Toronto, 2015). This research shows

that the City of Toronto uses traditional media, Twitter and relied on word-of-mouth to

communicate to Toronto residents throughout an emergency. The City has difficulty reaching

residents who do not have power and relies heavily on others to provide information (Offical,

2015). They use limited communication tactics and the strategic communications department is

the only department providing communication messages. This research shows that the City’s

communications would improve if tactics and strategies were developed to reach residents with


long-term power outages. The city will benefit from public education communication campaigns

to better reach residents and improve their lives in emergencies.

Results and Discussion

Online digital media is beginning to be used more by governments (Lindsay, 2011). Its

ability to reach a large group of people instantly has made it essential in emergency situations.

However, in large power outages this technology becomes mute and thus cannot be relied on as a

primary source for communication. Traditional media provides a large range of communication

opportunities, including television warnings and radio announcements. In a power outage,

television cannot be used but battery powered radios still provide emergency messaging. The use

of newspapers can be difficult as emergency warnings and messaging can change instantaneously

and obtaining a newspaper can be challenging in emergency situations. Reliance on word-of-

mouth is risky as well as there is no guarantee that the correct messaging and information will be

passed on. Providing resources and staffing to pass on these messages themselves can be costly

and time consuming. In power outages, the vulnerable populations in high-rise buildings cannot

access online messaging and may be unable to leave their homes. It is essential that representatives

of the City pass on this information to them by knocking on doors. In this way they can access the

needs of the vulnerable while passing on essential information.

Research Implications

This paper outlines gaps in government communication, emergency management as well

as communication tactics best used with vulnerable residents in an emergency. The research

provides a stepping-stone for further emergency communication research. Further research should

include interviews and focus groups with Toronto residents to discover better overall


communication tactics for use in a wide variety of emergencies. This results of this research can

also be applied to other large municipalities.

Conclusions and Recommendations

The 2013-2014 Toronto Ice Storm left residents across the City in cold conditions and

without power for long periods of time. The City of Toronto used limited communication methods,

leaving certain residents without vital emergency information, such as outage times and warming

centres. The City’s main form of communication was traditional media, combined with limited

use of internet sites and Twitter. Those without power were left to find information for themselves

and the City depended heavily on unreliable word-of-mouth.

Improved Communication Strategy

To improve resident life in long-term power outages, an emergency preparation campaign

would benefit the City of Toronto, including: online information, information posted in schools

and community centres, television and radio ads and presentations done by emergency personnel

to vulnerable population areas. It is essential that large-city residents understand the need for

preparation before emergencies hit and understand their options if without power for long periods

of time. Residents should understand safety issues, personal preparedness and their options

including warming centres and evacuation options.

Improved Communication Tactics

The City of Toronto needs to use a variety of communication methods to ensure that all

residents receive information in an emergency. This would include the following:

Posting print materials daily in community centres and high-rise buildings

Television and radio announcements informing the public of warming centres,

outage times and safety concerns

Improved partnerships with Toronto Hydro, Toronto Fire and Toronto Police

Service to ensure communication to residents and vulnerable populations


These forms of communication would benefit those who experience power outages longer

than 48 hours. It would ensure that emergency communication messaging reaches multiple

residents. Online digital media should be used to improve communication to those with power or

those with short-term power outages. The City of Toronto should also expand its digital media

platforms to include Facebook and Instagram, two highly used social media platforms.

Having a communication strategy before an emergency strikes ensures that residents have

the information they need in an emergency. Communication campaigns should continuously run

providing this information and should be presented in a variety of ways to residents. To improve

the lives of Torontonians in an emergency it is important to use a variety of communication

methods, ensuring that emergency messaging reaches all residents including those without power

for long periods of time. Addressing these gaps and increasing the array of communication tactics

will ensure the safety of City residents and improve their quality of life in emergencies.


References

Andrew-Gee, E. (2015, January 9). Facebook most popular, Instagram most loved in social

media survey. Retrieved March 2015, from The Toronto Star:

http://www.thestar.com/business/2015/01/09/facebook_most_popular_instagram_most_loved_in

_social_media_survey.html

Burger, J. (2013, November). Trusted Information Sources Used During and After Superstorm

Sandy: TV and Radio were Used More Often than Social Media. Journal of Toxicology and

Environmental Health, Part A: Current Issues .

Centers for Disease Control and Prevention. (2012). Minority Health. Retrieved March 2015,

from Centers for Disease Control and Prevention:

http://www.cdc.gov/minorityhealth/populations/atrisk.html

City of Toronto. (2013, Decemeber 27). City of Toronto ice storm update. Retrieved March

2015, from City of Toronto:

http://wx.toronto.ca/inter/it/newsrel.nsf/82f55f14f8d6b46285256ef500408475/725613067E886B

CB85257C4E00603824?opendocument

City of Toronto. (2015). Get Emergency Ready. Retrieved from City of Toronto:

https://www1.toronto.ca/city_of_toronto/office_of_emergency_management/files/pdf/oem_book

let.pdf

City of Toronto. (2014). Impacts from the December 2013 Extreme Winter Storm Event on the

City of Toronto. Toronto: City of Toronto.

City of Toronto. (2015). Toronto Facts. Retrieved from City of Toronto:

http://www1.toronto.ca/wps/portal/contentonly?vgnextoid=57a12cc817453410VgnVCM100000

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Covi, M. (2012). Storm Practices: Lessons Learned from Hurricane Irene. Coast Watch .

Davies Consulting. (2014, June 19). The response of Toronto Hydro-Electric system limited to

the December 2013 ice storm. Retrieved March 2015, from Toronto Hydro:

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%20Report%20of%20the%20Independent%20Review%20Panel.pdf

Emergency Management Chatham Country. (2014). EOC. Retrieved from Emergency

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nws-tech-social-media-1209-20111208_1_twitter-and-facebook-twitter-website-power-of-social-

media

Homeland Security. (2012, June). Emergency Communications Case Study: Hurricane Irene-

North Carolina. Retrieved March 2014, from Office of Emergency Communication:

http://www.dhs.gov/xlibrary/assets/hurricane_irene_case_study.pdf

James Armstrong. (2013, December 26). Thousands of Toronto residents still in the dark.

Retrieved March 2015, from Global News: http://globalnews.ca/news/1048537/toronto-officials-

urge-safety-in-wake-of-ice-storm-power-outages/

Ladislaw, S. O. (2013, November). Hurricane Sandy: Evaluating the Response One Year Later.

Retrieved March 2015, from Centre for strategic and international studies:

http://csis.org/publication/hurricane-sandy-evaluating-response-one-year-later

Lindsay, B. R. (2011). Social Media and Disasters: Current Uses, Future Options, and Policy

Considerations . Congressional Research Service .


New Public Health. (2011, August 9). Red Cross Gets Twitter Badges for Hurricane Irene.

Retrieved March 2014, from Robert Wood Johnson Foundation:

http://www.rwjf.org/en/blogs/culture-of-health/2011/08/red-cross-gets-twitter-badges-for-

hurricane-irene.html

Offical, C. (2015, February 20). City of Toronto. (A. Wright, Interviewer)

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2014, from The Red Cross:

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df

White, C. M. (2012). Social Media, Crisis Communication, and Emergency Management,

Leveraging Web 2.0 Technologies. Boca Raton, FL: Taylor and Francis Group.

Zerbisias, A. (2013, February 3). Power to the highrise people: should blackout generate new

laws? Retrieved from The Toronto Star:

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enerate_new_laws.html


Appendix

i Interview with City Official

1. How would you evaluate the cities response in the ice storm?

The response to the ice storm was well coordinated and successful with many lessons learned for

future responses.

2. Do you think there could be improvements for the future?

There are always areas for improvement and we learn from every response and situation that we

encounter.

a) Can you give an example?

Community resiliency is something that can always be improved upon. As a result of this

event the City has undertaken a more proactive public education program with a particular

focus on vulnerable populations.

Communication Questions

1. In a city-wide emergency, how important is communication to the public?

Communication to the public is one of the most important activities in a City-wide emergency.

It’s important for the public to know what the City is doing to respond to the problem and it’s

equally important for the public to know what they can do to protect themselves and lessen the

impact of the emergency.

2. Who was responsible for communicating emergency messages to the City of Toronto public?

The City’s Strategic Communications Division holds the ultimate responsibility for

communicating to the public during a City-wide emergency. During the ice storm, Strategic

Communications undertook the role of Information lead in the City’s Emergency Operations

Centre.

3. What messages were being communicated to the public regarding the ice storm?

During the ice storm the messaging focussed on:

-location of warming/reception centres

-status of power outages and restoration

-response activities

4. If not responsible for public communication, did you give any recommendations to the

communication team?

The activities in the Emergency Operations centre formed the basis of many of the

communications messaging. The City’s EOC was responsible for coordinating communication

with Toronto Hydro, Hydro One and the establishment of warming/reception centres.

5. What communication tactics/vehicles did the Toronto Emergency Management Office use to

communicate to the public?


Communication tactics/vehicles included media briefings, twitter and news releases.

a) Do you think any of these vehicles worked better than others?

TV/media updates were probably the most successful vehicles for communicating to the

public.

b) Did any of the vehicles not work?

Areas without power in the City would not receive media updates unless they had some form

of backup power.

c) Was a majority of Toronto public reached?

It’s our understanding that the majority of the Toronto public was reached. Those who did

not have power were able to access information from friends/neighbours or at the

warming/reception centres.

d) If not, who was left out and when?

Some areas without power had a lack of information.

6. What communication vehicles did the City of Toronto use to communicate to the public regarding

emergency communication messages?

See above answers as the City of Toronto worked with the City’s Office of Emergency

Management in the City’s Emergency Operations Centre.

7. What, in percent, is the target amount of residents reached by government communication?

This information is not available as far as I’m aware.

8. Do you believe there were any communication barriers created by the ice storm itself?

a) Please provide an example

As mentioned above, the primary communication barrier was the lack of power in some of

our most vulnerable areas.

b) Can you recommend a way to combat this in the future?

The City is encouraging residents to “Get Emergency Ready” in a proactive public education

campaign. We are targeting our most vulnerable areas and highrise populations (i.e.

Toronto Community Housing buildings).

9. Were there any challenges faced with the long-term power outages?

There are a number of challenges faces with long-term power outages including the inability to

communicate to those who have no access to radio/television.

10. Is there anything you would like to add?

The City’s response to the ice storm has undergone a great deal of analysis and many

recommendations were made by City Council. I would recommend reviewing the Council Report

on the recommendations made as a result of the Ice Storm that can be found on the City’s web

site.

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