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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


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Area on Emergency Preparedness

and Disaster Relief Washington, D.C. • 2009

Editors:Susana Arroyo Barrantes, Social Communicator, OXFAM

Martha RodrIguez, Soc ial Communications Advisor, PAHO/WHORicardo Pérez, Regional Advisor in Information, PAHO/WHO

Information management andcommunication in emergencies

and disasters:manual for disaster response teams


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PAHO HQ Library Cataloguing-in-Publication

Pan American Health OrganizationIn fo rm a t ion m a nag em en t and c om m un ic a t ion in em erge nc ies a nd

d isa ste rs: m a nua l for d isa ste r re sp o nse te a m s

Washington, D.C.: PAHO, © 2009

ISBN: 978-92-75-12993-7

I. Title

1. DISASTER PLANNING – organization and management2. MASS COMMUNICATIONS MEDIA – use3. INFORMATION SYSTEMS – instruments4. PREVENTION AND MITIGATION – methods

5. SOCIAL COMMUNICATION IN EMERGENCIES6. DISASTERS EQUIPMENT AND SUPPLIES7. MANUAL

NLM HV553

A publication of the Area on Emergency Preparedness and DisasterRelief of the Pan American Health Organization, Regional Ofce ofthe World Health Organization (PAHO/WHO).

The views expressed, the recommendations made, and the termsemployed in this publication do not necessarily reect the current cri-teria 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 EmergencyPreparedness 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 nancial sup-port of the Spanish Agency for International Development Coopera -tion (AECID), the International Humanitarian Assistance Division of theCanadian International Development Agency (CIDA) and the Ofceof Foreign Disaster Assistance of the United States Agency for Interna-tional Development (OFDA/USAID).

Translation from Spanish: Mary Elizabeth StonakerGraphic design: Carlos Cuauhtémoc/Abel De Gracia


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1.1 Objec tives of this manual1.2 Importance of information management in disaster situations1.3 PAHO/WHO Regional Disaster Response Teams1.4 Prole of information and communication specialists1.5 Principles and standards for communication and information

management

2.1 The best communication is planned2.2Prerequisities for planning2.3 The key stages of planning2.4 Examples2.5 Checklist

Table of ContentsTable of Contents

Introduction

Acknowledgements

Chapter 1Communication and informationmanagement during emergency anddisaster response

Chapter 2Planning communication and informationmanagement for emergencies and

disasters

3.1 The nature of information in disaster situations3.2 Responsibilities of the Regional Disaster Response Team in

managing information3.3Stakeholders and information sources on disasters and

emergencies3.4 The basics of situation reports3.5 Preparing a web page on an emergency3.6 Preparation and distribution of reports and news

Chapter 3Managing information during anemergency or disaster

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5.1 Messages for different phases of the emergency5.2 Developing effec tive messages: message maps5.3 Recommendations on message content, language, and format5.4 Managing myths and rumors5.5 Myths and realities of disasters5.6Producing communication and informational materials

I. PAHO/WHO checklist for communication in emergenciesand disaster situations

II. PAHO/WHO Situation Report format (SITREP)III. Examples of Situation Reports

IV. Examples of press releasesV. Web sitesVI. AcronymsVII. Recommended bibliography

Table of ContentsTable of Contents

Chapter 4Working with communication media

Chapter 5Developing messages and material

Annexes

4.1 The role of communication media during emergencies anddisasters

4.2 Understanding communication media4.3 What the media want4.4 How to reach the media4.5 Recommendations for the ofcial spokesperson4.6 Monitoring media coverage4.7 Media responsibilities following the emergency

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This manual is the result of an extended period of regionalparticipation and consultation, with the support of profession-als in the disciplines of communication and disaster manage-ment from Latin America and the Caribbean.

Many individuals provided comments and contributed fromthe rst draft through the nal version. The manual was re-

viewed during workshops held in Argentina, Ecuador, Pana -ma, and Peru, where dozens of experts made recommenda-tions and important contributions.

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

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

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

Production of the manual was made possible with nancialsupport from the Spanish Agency for International Develop -ment Cooperation (AECID), the International HumanitarianAssistance Division of the Canadian International Develop-

ment Agency (CIDA), and the Ofce of Foreign Disaster As-sistance of the U.S. Agency for International Development(OFDA/USAID).

Acknowledgements

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Many specialists from the elds of communication and disas-ter management from Latin America and the Caribbean par-ticipated in developing this manual. The contents were testedand adapted under actual emergency and disaster condi-tions. The nal product reects consensus among the expertsabout the most important uses of information and communi-cation in emergency situations.

This manual focuses on operational aspects of disaster andemergency response as well as preparing for disasters. It ad-dresses plans for communicating with the public during emer-gencies and techniques for producing, exchanging, anddistributing information for humanitarian organizations. Expe-riences from many emergency situations show that commu-nication is most effective when information management islinked to information exchange and social communicationtechniques and processes.

PAHO/WHO established the Regional Disaster Response Team(RDRT) to maintain a multidisciplinary group of experts thathelps to coordinate disaster response in any member countryaffected by an emergency. The team includes professionalswho specialize in information and communication activities.It is important that they have manuals and tools to guide andstandardize work procedures. This manual is part of a broadereffort 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 sec -tor’s emergency and disaster preparedness and response.

Introduction

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8

Introduction

1. Information management and communication shouldbe part of planned design and execution, and be in-tegral to an organization’s risk and disaster manage-ment plans. Improvised communication can be costlyand have unsatisfactory results.

2. In addition to having specialized training, persons re-sponsible for information management and commu-nication must be open and proactive. The ability togenerate and exchange information is not exclusiveto those who have studied communication; rather, it

comes from a hands-on approach and good teamwork.

3. Teamwork is essential if information management andcommunication are to be successful. Disaster experts,communicators, or administrators cannot work in iso-lation and the work of those with one specializationshould complement the work of the others. Those re-sponsible for communication must have a strong un-derstanding of disasters. Likewise, experts in disaster

management and public health will make better de-cisions when they accept input from communicationspecialists.

4. Investment in information management and commu-nication is a cross-cutting endeavor and should beintegral to the work of disaster management expertsand organizations. Information management andcommunication should be considered a culture morethan a skill.

5. Finally, this guide aims to be dynamic and encourageparticipation. It will be perfected as long as communi-cation and disaster experts put its principals into prac-tice and help to improve on the recommendationspresented here.

The manual was prepared for members of the PAHO/WHORegional Disaster Response Team, but also for national and

international communication and information managementprofessionals who have an interest in or are working in disasterpreparedness and response in the health sector. It is also use-ful for planning and teaching workshops on communicationand disasters.

The following principles have inspired this work:

Who is the intended audience of the manual?


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9Introduction

Chapter 1 provides general guidelines on organizing com-munication activities. It introduces the PAHO/WHO RegionalDisaster Response Team and presents a set of basic principlesthat should guide information management and communi-cation in disaster situations.

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

health sector agencies.

Chapter 3 introduces the most important stakeholders andsources for information during emergencies. It addresses thecritical topic of preparation and distribution of situation re -ports (SITREPs) during an emergency.

Chapter 4 gives techniques and recommendations for work-ing with the communication media. It outlines specic char-acteristics of the media, their information requirements, and

key messages that should be transmitted before, during, andafter an emergency.

Chapter 5 gives techniques and recommendations for work-ing with the communication media. It outlines specic char-acteristics of the media, their information requirements, andkey messages that should be transmitted before, during, andafter an emergency.

Finally, there are annexes that can be consulted with exam-ples 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 understandingof actions taken in emergency situations. Individual chap-ters can also be used as modules. In either case, it is recom-mended that communication teams, departments, or expertsuse this manual to prepare communication plans before anemergency occurs.

What are the contents and how can they be used?


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© PAHO/WHO


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1.1 Objectives of this manual

1.2 Importance of information management indisaster situations

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

1.4 Prole of communication and informationmanagement spec ialists

1.5 Principles and standards for communication andinformation management

Communication and informationmanagement during emergencyand disaster response

Chapter 1

This c ha p ter a d d resses the imp o rta nc e o f ma na g ing in fo rm a t ion d uring

em erge nc y a nd d isa ster resp on se, the g en era l a im s a nd exp ec ted resu lt s

o f the Reg io na l Disa ste r Re sp o nse Te a m , a nd the re sp o nsib ilit ie s o f tho se

working specically with information management.

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12

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

1.1 Objectives of this manual

© P A H O / W H O

Info rm a tio n is the m o st va lu-

a b le c om m od it y d u ring em er-

g e nc ie s o r d isa ste rs a nd he lp s

in generat ing visibi l i ty and

credibility.

This manual intends to facilitate the work of communication

specialists who are members of the PAHO/WHO RegionalDisaster Response Team as well as for those working in thehealth sector in general.

The manual provides recommendations on dealing with thecontext and conditions where information is needed, guide-lines on producing reports and distributing information for dif -ferent audiences, how to manage communication media,and planning the work of communication during emergen-cy response.

Effective communication and information management areobviously critical to the overall process of managing and re-ducing the risks of disaster. For practical reasons, this manualfocuses on communication and information managementduring emergency preparedness and response phases. Itserves as a complement to documents, guidelines, andcourses made available by PAHO/WHO and other organiza-tions on communicating risk management.


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13Communication and information management

Importance of information management

in disasters and emergencies

1.2

Information is the most valuable commodity during emergen-cies or disasters. It is what everyone needs to make dec isions.It is an essential aspect in an organization’s ability to gain (orlose) visibility and credibility. Above all, it is necessary for rapidand effective assistance for those affec ted by a disaster.

Information is the main element in the damage and needs as-sessment process and is the basis for coordination and dec i-sion making in emergency situations. It has a powerful impacton how national and international resources are mobilized.It is essential for after-action analysis, evaluation, and lessonslearned.

Moreover, public and soc ial communication and media re-lations have become key elements in efcient emergencymanagement. Technical operations in highly charged po-litical and social situations must be accompanied by good

public communication and information strategies that takeall stakeholders into account.

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

During an emergency, timely and transparent pro-duction and dissemination of information generatestrust and credibility. National authorities, internationalagencies, humanitarian assistance organizations, theaffected population, and the communication mediawill demand information in the form of data, gures,reports, and situation analysis or recommendations. These stakeholders depend on this information to guidetheir work and to translate their interest and concerninto concrete action.

Information in emergency or disaster situations comesfrom many sources; it represents different points of views

and serves a wide range of interests and needs. For ex-ample, following an earthquake, scientic, technical,and operational information will serve dec ision makers,the affected population, and the international com-


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14


munity involved in response efforts. Clearly, the typeof information provided reects the multi-disciplinary

nature of emergency and disaster response and theever-growing number of specialists and organizationsfrom different technical disciplines who are involved indisaster response.

The participation and effectiveness of national and in-ternational actors will be benecial to affected pop-ulations to the extent that they have precise, timely,and relevant information. This applies to communica -tion channels and tools that can facilitate dialogue

and build partnerships.

The challenges are to show how communication andinformation management contribute to more effec tiveand timely response, and therefore to saving lives, andhow these activities can lessen the impact of disastersand emergencies and improve the quality of life of af -fected populations. They must also be recognized askey elements in mobilizing resources, stimulating soli-

darity and support, increasing visibility, and strength-ening the position of humanitarian stakeholders and ofthe health sec tor.

If the above-mentioned communication measures and ex-pertise are to be valued in the context of disaster manage-ment, all necessary technical and human resources must bemade available, as well as political backing from health anddisaster management authorities. Communication measuresand the teams of people responsible cannot be improvisedduring an emergency; they require ongoing preparation andplanning.

It is vital for disaster response teams to regularly include spe-cialists in communication and information management.PAHO/WHO promotes and supports the work of these spec ial-ists inside the organization as well as in disaster response op -erations of the health sec tor in each country in the Region.


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PAHO/WHO Regional Disaster

Response Teams

1.3

© P A H O / W H O

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 inemergency and disaster response in the Region of the Ameri-cas.

The team is deployed immediately when a major emergencyor disaster occurs. It includes experts from a variety of techni-cal areas, including epidemiology, mental health, water andsanitation, health services, environmental health, administra-tion, and logistics, as well as communication spec ialists.

The main functions of the Regional Disaster Response Team areto:

Support the health sec tor of the affected country.

Conduct damage and needs assessments.

Provide technical advice to PAHO/WHO ofces and localand international counterparts.

Support, when necessary, in the activation of the health

cluster and other specialized working groups in the frame-work of the United Nations Humanitarian Reform.

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


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Emergency 0-12 hoursafter a disaster

12-24 hours after adisaster



Information management andpreparation of reports

PED

PWR Internal emergency

declaration PWR

SituationReport

Travelarrangements

Visas, tickets, etc

Missionplan

Requestfor regional

support

C ompositionof the team

Arrival inthe country

Preparation of project

proposals

Delivery toPED/HQ

PED/HQsends to

donors

Meeting PWR-Focal Point

Meeting withcounterparts from U.N.

and Health Cluster

Deployment toaffected areas

SITREP

Activation/Mobilization DEPLOYMENT

STAND-BY DEPLOYMENTRAPID

ASSESSMENTMOBILIZATIONOF RESOURCES

DEPLOYMENT OF THE REGIONAL DISASTER RESPONSE TEAM

Objectives of the Regional Disaster

Response Team The main goal of the Response Team is to quickly

mobilize specialists who can support the emergencyoperations led by the health sector in the country orcountries affected by disaster.

In cooperation with national authorities and other ac -tors, the team calculates the potential risk to the pub-lic health of affec ted populations, carries out rapid as-

sessment of damages to and needs of the health sec -tor, and shares results of assessments with humanitarianstakeholders involved in disaster response.

An important function of the team is to gather, pro-duce, and distribute necessary information so that lo-cal authorities, PAHO/WHO, donors, agencies in theUnited Nations system, and other actors can take de-cisions and set life-saving operations into motion.

PED = PAHO/ WHO Area on Emergency Preparedness and Disaster Relief.PWR = Representative of PAHO/WHO, located in Member States of the Region.


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Roles and responsibilities of the RegionalDisaster Response Team

Despite what is widely understood about how disasters occurand impacts of various phenomena, each emergency is dif -ferent because of the circumstances where it occurs. Thereare widely varying levels of vulnerability and response ca-pacity in the countries affected. The Disaster Response Team,therefore, must adapt to the needs of whatever country orarea is affected and to the requests made to PAHO/WHO forassistance.

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

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

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 andinternational health sector agenc ies.

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


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Communication and information management are not iso-lated activities but are part of the plans and strategies pro-moted by PAHO/WHO in disaster situations.

Besides having specialized qualications and training, the Di-saster Response Team must be proactive, transparent, andwilling to collaborate.

Information management and communication are effec-tive when they are part of all operations that experts andagenc ies carry out during disasters.

It is very important for all members of the Disaster Response Team to coordinate their work so that communication ex-perts have a better understanding of the scope and dy-namics of the disaster. Health experts should work with com-munication specialists to improve the decision-making pro-

cess and to improve response activities.

Comunication:

Assist in planning the hea lth sector’s communication andinformation management activities.

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

Advise the PAHO/WHO Representative on managingcommunications media.

Consult with the communications team from the Ministry ofHealth.

Assist in management of communications media and indistributing key messages.

Monitor coverage by communications media.

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

Guidelines for information management


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19Guidelines for communication and information management

Remember:

In most cases, these tasks should be carried out in closecoordination with PAHO/WHO and the communicationteam of the Ministry of Health of the affec ted country orcountries. The recommendations included in this manualare direc ted at these two key actors.

Members of the Regional Disaster Response Team must assistthose persons working in disaster preparedness and responseto lessen negative impacts on health and to achieve rapidrecovery for individuals and the community.

During a disaster or emergency, communication specialists

on the Disaster Response Team must have the necessary ex-perience 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 ac tors

Design, execute, and evaluate communication plans

Manage computer equipment and software programs

Be uent in ofcial PAHO/WHO languages (e.g., English, Spanish, French, Portuguese).

1.4 Prole of information andcommunication specialists


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Principles and standards forcommunication and information

management

1.5

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

Accessibility. Humanitarian information and data shouldbe made accessible to all humanitarian actors by applyingeasy-to-use formats and by translating information into com-mon or local languages when necessary. Information used forhumanitarian purposes should be widely available through avariety of online and ofine distribution channels, includingthe media.

Inclusiveness. Information management and exchangeshould be based on a system of collaboration, partnership,

and sharing. There should be a high degree of participationand ownership by multiple stakeholders, especially represen-tatives of the affected population.

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

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

Communication specialists will always work with experts inother disciplines and will have technical support from per-

sonnel in areas of administration, information technology,graphic design, multimedia, photography, and audiovisualproduction. They will have access to other resources that canbe hired at the disaster site, when conditions allow.

3 For more information on REDLAC activities, visit www.redhum.org.


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Information providers should be responsible to their partnersand stakeholders for the content they publish and dissemi-

nate.

Veriability. Information should be accurate, consistent, andbased on sound methodologies, validated by external sourc -es, and analyzed within the proper contextual framework.

Relevance. Information should be practical, exible, respon-sive, and driven by operational and decision-making needsthroughout all phases of a crisis.

Objectivity. Information managers should consult a varietyof sources when collecting and analyzing information so asto provide varied and balanced perspectives for addressingproblems and recommending solutions.

Humanity. Information should never be used to distort, tomislead, or to cause harm to affected or at-risk populationsand should respect the dignity of victims.

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

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


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WHO communication standards fordealing with outbreaks of disease4

The Regional Disaster Response Team’s communication spe-cialists, can benet from these WHO recommendations intheir activities. Important features of these standards are pre-sented below:

Trust. The overriding goal for emergency managers is tocommunicate in a way that builds, maintains, or restores thetrust of the public. This is true across cultures, political systems,

and level of country development. The less people trust thosewho are supposed to protect them, the more afraid they willbe and less likely to conform to recommendations or guide -lines.

Announcing early. In today's globalized and interconnect-ed world, information about the impact of a disaster or emer-gency is almost impossible to keep hidden from the public.Eventually, the emergency will be revealed. Therefore, to pre-

vent rumors and misinformation and to frame the event, it isbest to announce as early as possible.

Early announcements are often based on incomplete andsometimes erroneous information. It is critical to publicly ac-knowledge that early information may change as further in-formation is obtained or veried. The benets of early warn-ing outweigh the risks, and even those risks (such as providinginaccurate information) can be minimized with appropriatemessages about hazards.

Transparency. Maintaining the public's trust throughout anemergency or disaster requires transparency (i.e., communi-cation that is candid, easily understood, complete, and fac -tually accurate). Transparency characterizes the relationshipbetween the emergency managers and the public. It allowsthe public to view the processes of information gathering, riskassessment, and decision-making that are associated withcontrolling 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.


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made. But in general, greater transparency results in greatertrust.

Understanding the public. For communication to be effec-tive, it is critical to understand the public. It is usually difcult tochange pre-existing beliefs unless those beliefs are explicitlyaddressed. Without knowing what the public thinks, it is nearlyimpossible to design successful messages that bridge the gapbetween the expert and the public. Communicating aboutrisks should be a dialogue with the public. The communica -tor must understand the public's beliefs, culture, opinions, andknowledge about specic risks.

Planning. The decisions and actions of public health of-cials have more effect on trust than communication on thepublic’s perception of risk. Communication about risk hasan impact on everything emergency managers do, not justwhat they say. Therefore, risk communication is most effec tivewhen it is integrated with risk analysis and risk management.Risk communication should be incorporated into prepared-ness planning for major events and in all aspects of disasterresponse.


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© PAHO/WHO


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2.1

2.2

2.3

2.4

2.5

Chapter 2

The best communication is planned

Prerequisites for planning

The key stages of planning

Examples

Checklist

Planning communication andinformation management foremergencies and disasters

This c ha p ter out line s the m a in step s tha t he a lth se c to r a g e nc ie s sho uld ta ke

to p la n co mm un ic a t ion a nd in fo rm a t ion m a nag em en t be fo re a nd d uring

emergencies or disasters.

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2.1 The best communication is planned

Planning claries, in anord ered a nd seq uen t ia l

w a y , the c on text o f wha t

has t o be c om m un ic a t -

ed , how it w ill b e c om m u-

n ica ted , th rough wha tme d ia , wha t pe op le and

resourc es c a n b e c oun t -

ed on , and t he a ud ienc e

for the messages.

It is impossible to plan communication without considering

strategies, material design, and media activities which, in thecase of the health sector, will provide the population withmessages to protect themselves and improve their quality oflife.

When dealing with emergencies and disasters, communica-tion planning becomes a complex and challenging under-taking. It involves the collection, organization, production,and dissemination of the information that makes it possible tomake informed decisions and mobilize necessary resources.Sources and key shareholders must be identied and differentaudiences must be given priority. It is vital to create messag -es that will make health agencies visible and relevant to thepopulation, the international community, donors, communi-cations media, and organizations involved in internationaldisaster response. This planning is usually carried out in a com-plex political and social environment.

Communication planning requires a good understanding of

the environment and the information needs both of the pop-ulation and health sec tor institutions and authorities. Effectivemanagement ensures the optimal use of resources and im-proves the quality and organization of the work before, dur-ing, and after a disaster or emergency.

© P A H O / W H O


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27Guidelines for communication and information management

One of the major challenges in risk communication is to trans-form the uncertainty and reactive communication that can

occur in the rst hours after an emergency/disaster to an or-ganized, proactive and engaging information and communi-cation process with both stakeholders and the public.

Experience in the United Nations system and national andinternational humanitarian agencies has improved the un-derstanding of the impact and development of disasterand emergency situations. One of the lessons learned is thenecessity to formulate plans and strategies that respond tothe needs and priorities of the affected population and the

health sec tor.

Of all of the tasks discussed in this manual, communicationplanning and information management are among the mostimportant. It is the starting point for deciding what and howmessages will be communicated, the target audience, themedia to be used, and the context within which all of thiswill be implemented. It is also the end point of deliberationsand learning; it replicates best practices and corrects actions

based on lessons learned.

Communication planning at a glance

What is the situation? Diagnosis

Why communicate?

To whom?

How?

When?

Who?

With what?

How is it going?

How effective?

Objectives

Target audience

Strategies, program, channels, tools

Timeline for ac tions

Responsible parties

Resources

Monitor, obtain public feedback andadjust as necessary

Follow-up and evaluation


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2.2 Prerequisites for planning

Planning claries in a sequential order, the content of whathas to be communicated, how it will be communicated,through what media, to which people and identies avail-able or required resources. Planning also helps to dene rolesand responsibilities, establish goals and objectives, and assignresources, 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 di-saster or emergency site, and after the type of relief for theaffected population has been determined, the communica-tion plan must be adapted to the health sector objectives inconsultation with the all critical partners, i.e., the national au-thorities, PAHO/WHO, and the leader of the Disaster Response Team, to ensure collective commitment and follow through.

© P

A H O / W H O

2.3 The key stages of planning This section outlines the key stages in developing a communi-cation plan. They must be adapted to specic local, regional,and institutional needs.

Remember:

Plans for communication and information manage-ment for the health sec tor must be consistent with thedisaster management plans carried out by nationalauthorities or PAHO/WHO in the country or countriesaffected.


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29Planning communication and information management

A. Diagnosing the situation

A diagnosis identies the social, political, and economic con-ditions of potentially affected communities and of the countryin general. It assesses the health sector, scientic informationabout hazards and their possible effects on health, potentialinformation and communication needs, and conditions thatfavor or challenge the communication process.

Keep in mind that during the disaster, information must be re-vised and updated to reect the damage and must includenew information from the needs assessments that are carried

out by the health sec tor. It is vital that the development of theemergency and the response provided by health authoritiesbe monitored and recorded. To begin the planning process,make sure that you have the following information:

Genera l :

General characteristics: Population disaggregated bysex, age, national and ethnic origin, urban, rural; lit-eracy level; main income sources and production ca-pacity; languages, dialects, religious practices, andsocial organizations; lifelines, main roads; and mostvulnerable areas and populations.

Information about disasters or emergenc ies relevantto the area: Type of event(s); prior events and re-sponse behavior; risk maps; factors affecting vulnera-bility (for example, political system, institutions, healthand social services, educational system, environment,economy).

Level of organization for disasters: Disaster responseorganizations, coordination mechanisms, and disasterpreparedness and disaster prevention programs andplans.

Health sector: Condition of infrastructure; health cov-erage; human, technical, and nancial resourcesavailable for disaster or emergency response.

Monitoring emergency and response efforts: Once atthe scene of the disaster or emergency, there mustbe detailed monitoring and follow-up of how the situ-ation is evolving, including how health authorities areresponding.


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Commun i ca t i on :

Perceptions of risk: Knowledge and beliefs of thepopulation about their level of risk and the potentialimpact of an emergency or disaster; the inuence ofmyths and cultural practices on the disasters and howto manage them. Ask: What does the communityknow about hazards they are exposed to? Do theyconsider them risk factors? How does the communitylive with the hazards? What explanation does thecommunity give for the phenomena?

Communication media used by potentially affectedpopulation: Radio, television, newspapers, maga-zines, newsletters, level of access to the Internet,community resources, and alternative media andinformation networks. Know the hours and programswith the largest audience.

Social spaces and communication customs: Reli-gious services, fairs, markets, sporting events, meetingrooms, public squares, community centers and other

gathering areas.

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

Opinion makers: Community, religious, and politicalleaders; sports and cultural gures respected by thepotentially affected population.

Institutions:

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

Capacity and needs of the health sector communi-cation teams.

Nature of the relationship between the health sec torand communication media.

Support, consulting, or training needs of the healthsector and PAHO/WHO personnel.


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Support, consulting, or training needs of designatedspokespersons.

Existing means of gathering, producing, approving,and disseminating information about the health sec -tor response.

Institutional communication protocols and policies tobe applied in emergency and disaster cases.

Dealing with difcult media situations relating tohealth sec tor response.

Plans, programs, or experiences about communica-tion and health used during other emergencies or di-saster situations.

Important agencies and actors in the affected area.

B. Objectives

Objectives dene the timely and priority actions for commu-

nication and information management. Objectives are es-tablished in response to the needs identied in the diagnosis. They determine the strategies and resources used to reachthe population, the intended messages, the most appropri-ate 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 guidingquestions to ask when formulating objectives.

What do communication and information managementseek to achieve? The list is extensive: to collect, produce,and disseminate information; to assist and advise health sec-tor communication teams; to train and advise spokespersonsand authorities; to manage the relationship with the media;to educate, persuade, stimulate, and change practices andbehavior of the population.

Because the discipline of communication and information

management covers such a broad area, goals must be con-crete and realistic, and there must be measures and indica -tors to determine whether objec tives are met. When dealingwith emergencies or disasters, the key is to design objectives


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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 personsaffected.

C. Target audiences

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

Target audience(s) might include the general public, the af -fected population, vulnerable populations, national authori-

ties, communication media, journalists, the academic com-munity (students, teachers, administrators, parents), interna-tional organizations, donors, and the international commu-nity.

D. Strategy

Communication strategies can be based on policy, technol-ogy, or methodology. When setting strategies, the target audi-

ence, key messages, conditions, and the interests of the institu-tion and of the public must be considered. Strategy is the com-bination of criteria, decisions, methods, and actions used torealize the stated objectives. It uses campaigns and programsthat are structured for the short- and medium-term depend-ing on the specic circumstances and nature of a disaster oremergency.

Advocacy strategies, for example, would be used to promotepublic policies and mobilize resources for disaster prepared-ness and response, for risk reduction, and for educating thepublic about risk.

Social mobilization strategies build a critical mass of personsand institutions to address the specic situations and problemsresulting from a disaster or emergency and inuence commonbehavior to overcome these circumstances. These strategiesinclude public and private institutions, municipalities, civil soci-ety organizations, and individual citizens etc.

A communication strategy can also include educational func-tions such as training journalists, building partnerships, purchas-ing informational and public service announcement spots inbroadcast and print media, among other media channels.


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E. Communication tools

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

Tools can be print (brochures, foldouts, posters, newsletters,yers, 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, education-al 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. Therst step is to dene the objectives and the activities needed

to accomplish them, establish the time limits for carrying themout, determine what resources are required, and designatewho is responsible for each aspect of implementation.

G. Timeline

No planning process is complete without including the timefactor. Time is a measure or indicator of success, i.e., whethergoals set were achieved within the required timeframe. Time

lines are also part of the communication strategy as some ac-tivities require specic time periods for efcacy and desiredimpact. A timeline can be set up in a double-entry formatwhere different activities are entered with the time requiredto carry them out for maximum impact.

H. Budget

Each activity included in the communication plan must bebacked by nancial resources to facilitate its execution. Wherethere are budget shortfalls, other agencies with similar objec -tives are often willing to contribute to the program. Having aclear budget signicantly aids the mobilization of additional re-sources.


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It should be kept in mind that broadcast and print media canprovide space and time free-of-charge for institutional and

public service messages. It is important to identify and managethe use of these resources to maximize impact.

A great deal of informational and educational material alreadyexists, and it is important to identify institutions that are willingto share materials and to collaborate in communication activi-ties.

I. Follow-up and evaluation

Evaluation is a tool for determining effectiveness. Feedbackon how messages impact on the population, how messagesare received, and whether messages are understood is criti-cal to planning and managing communication activities.

Mechanisms for ongoing monitoring and evaluation shouldbe dened at the onset of the planning process. Continualevaluation will provide answers to the following questions:Who received the messages? How did the public absorb and

interpret the messages? Were the strategies, contents, andmeans of delivery appropriate? Did the messages take intoaccount local attitudes and practices? Did they strengthen ormodify these attitudes and practices? What other informationis needed? Communication activities and messages shouldbe adapted or redirec ted throughout the entire process in re-sponse to evaluation. Lessons learned should be shared withnational authorities, PAHO/WHO, and others, as appropriate.


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2.4 Examples

Objectives Audience Strategy Activities/Tools

1. Ensure that situationreports on thedevelopment of theemergency andhealth sectorresponse areproduced anddistributed regularly.

Donors, internationalagencies, hea lthsec tor authorities,U.N. agencies,local shareholders,communicationmedia.

Organize thecommunicationand informationmanagementteam to set upmechanisms forcollecting,analyzing,producing, anddisseminatingtechnical information.

2. Ensure that thecommunicationagenda includesinformation thatwill reduce adverseimpac ts of the floodson the health of theaffected c ommunity.

Affected community,health sectorauthorities,internationalcommunity.

Strengthenrelationships withmedia pa rtners tofac ilitate ongoingdissemination ofinformation.

3. Strengthen civilparticipation andorganization toreduce the impactof the floods onhealth.

Affected community,community leaders,local NGOs.

Soc ial organization;educationalcommunication;partnerships with allareas of the healthsector (e.g., includehealth promotion in

response plans).

3.1 Train brigades, teachers, healthpromoters in health communication.

3.2 Raise awareness of teachers andmayors and plan health actions thatwill address the emergency.

3.3 Involve the population incampaigns to clean up debris anddestroy vector breeding sites.

3.4 Raise awareness of religiousleaders; encourage them to addressthe health effects of flooding duringworship services.

3.5 Transmit messages about theprevention of illnesses such asdengue and diarrhea, and promotehealthful prac tices.

3.6 Produce two videos, three radiospots, and one manual for teams onpreventing dengue, diarrhea,hepatitis, and to promote healthfulpractices.

1.1 Identify relevant sources ofinformation.

1.2 Produce daily technical reports.

1.3 Systematically distribute theseda ily reports to an approved list ofcontacts.

1.4 Publish reports on the institution’sWeb site.

2.1 Prepare press releases, organizeworkshops, conduct interviews,distribute press kits, and visit affectedareas.

2.2 Organize working groups withbroadcast and print editors andmanagers. The objective is to raisetheir awareness and ensure theircommitment to publicizing measuresto prevent disease, to encourage

healthful practices, and to followemergency response plans.

2.3 Raise awareness among journalists and train them onprevention measures for dengue,diarrhea, and hepatitis B, andpromotion of hea lthful practices.

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


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4. Ensure adequateknowledge aboutthe application ofstandards andguidelines inemergency shelters.

Disaster responsepersonnel in thehealth sector.

Educationalcommunication,training

4.1 Convene periodic gatherings todistribute guidelines on successfulcoexistence in emergenc y shelters.

4.2 Produc e informative posters forthe shelters highlighting organization,guidelines for healthful coexistence,measures to prevent disease, amongother topics.

4.3 Adapt communication materialsabout disease prevention andpromotion of healthful prac tices fordistribution in emergency shelters.

4.4 Produce a video for medicalpersonnel on maintaining standardsin emergency shelters and guidelineson shelter operations.

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

ffected by flooding

On the next page is a checklist with tasks that should be ad-dressed during the planning process. While some of the tasksmay seem obvious, none should be neglected in the event ofan emergency or disaster.


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2.5 Checklist Materials and resources for planning

Preparation of the plan

Communication coordinator has been assigned.

A spokesperson has been assigned.

Updated contac t 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.

Identify the priority needs of the population, the health sec tor, 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.


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The nature of information in disaster situations3.1

3.2

3.33.4

3.5

3.6

Capítulo 1

Managing information during anemergency or disaster

Chapter 3

Responsibilities of the Regional Disaster Response Team in managing information

Preparing a web page on an emergency

Preparation and distribution of reports and news

Stakeholders and information sources on disasters

and emergencies The basics of situation reports

This chapter identies situations where information is required and must beproduced for use during emergencies. It describes the role of the actorsw ho p a rt ic ip a te in d isa ster a nd em erg en c y resp on se, a nd exp la ins, step b y

step , how to t ra nsla te d a ta a nd tec hnic a l rep o rts into inform a t ion a l p rod -

uc ts tha t m a ke the ne ed s of the a f fec ted p op u la t ion v isib le a nd tha t fa c ilitate rapid and effective response to those needs.

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The nature of information in disaster

situations

3.1

Major disasters and emergenc ies bring chaos and confusion.

Typical government and bureaucratic procedures are upset,resulting in difculties in obtaining and delivering information.While these are limiting factors, they should never justify a lackof information.

It is likely that information in the rst hours of a disaster will beneither readily available nor very reliable. At this stage, themain challenge is to ensure that information is clear and thatit reects the most urgent needs of the affected population. The second major challenge is to produce and update infor-mation regularly.

The national press is among the actors that demands themost information. It provides coverage of the impact of thedisaster, the needs of the population, and the response mea -sures being taken. It commonly focuses public opinion on theState’s effectiveness in responding to the disaster and on thequality of assistance provided to the affected population.

The following are important factors to consider in this context:

Information management is successful to the extentthat measures are planned for collection, production,and dissemination.

© P A H O / W H O

The m a in c ha lle ng e is to e n-

sure tha t info rm a tio n is c le a r

and that it reects the mosturg en t nee d s o f the a ffec ted

population.


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41Managing information during an emergency or disaster

To be effective, communication and information man-agers must know and have contact with the most reli-

able information sources before any disaster or emer-gency occurs, and they must understand the proce-dures for exchanging information with these sources.

To improve understanding of the impacts of a disasteror emergency on the population, communication spe-cialists should have ready access to risk maps and vul-nerability studies, population statistics, socio-economicindicators, historical data, and information on previousdisasters.

Information is the foremost need for the internationalcommunity. Governments, international cooperationagencies, and humanitarian assistance organizationsneed to know the impact of the event and the needsof the population. Many of them send their own per-sonnel to the disaster site to gain rst-hand informa-tion.

The international media are also focused on the event.Their main demands are for gures, images, expertopinions, and statements from the affected popula-tion. They will ask what relief efforts are being takenby national and international authorities and organi-zations and how international assistance is being uti-lized.

In an emergency, the collection, production, and dissemi-nation of information are vital for both internal and externaluse. When information is produced and circulated promptly,it is more likely that decisions will be made rapidly and ef -fectively. That information in turn, becomes the basis for mes-

sages that guide the actions of the affected population andof public opinion in general.

3.2Responsibilities of the RegionalDisaster Response Team in managinginformation1

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


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Whenever possible, and according to the complexity of theemergency, the Regional Disaster Response Team will include

an individual or a working team with expertise in communi-cation and information management. Their main duties willbe to collect, process, and publish information associatedwith the disaster, whether in the form of situation reports (SIT-REPs) or reports for the communication media.

The communication specialists on the PAHO/WHORegional Disaster Response Team are responsible forgathering the technical reports produced by experts fromdifferent disciplines and converting them into clear and

understandable information. They are required to collect datasupplied by spec ialists in epidemiology, water and sanitation,environmental health, mental health, hospital damageassessment, logistics, procurement, and administration. Thesedata are the raw material for the information reports used todetermine needs and are to be shared with all health sec toractors 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 manage-ment is therefore responsible for the following:

Gathering technical disaster information producedboth by national health areas and the PAHO/WHORegional Disaster Response Team.

Preparing situations reports, project proposals, projectreports, and other technica l documents for both inter-nal and external use.

Coordinating timely and efcient information dissemi-nation and distribution for internal use as well as foruse by stakeholders from the national and internation-al disaster response system.

Promoting, facilitating and/or producing resources(photographs, maps, graphics, videos, press releases,etc.) that document the impact of the emergencyand of disaster response actions taken by the health

sector and PAHO/ WHO.


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Advising the PAHO/WHO Representative on manag-ing the media, monitoring their work, and providingcoordination to assist them in responding to needs.

Preparing and distributing press releases, managingrequests for information from the media, and ensur-ing coverage of and dissemination of important mes-sages.

Monitoring media coverage on the impact of theemergency, progress in disaster response made bythe health sector, and making recommendations forrequired action to the population, etc.

Supporting the development and implementationof an emergency communication plan that includespreparation, production, and distribution of materi-als on health information, education, and promotionthat need to be communicated to the affected pop-ulation and general public.

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

Advising health authorities in the planning, design, anddevelopment of effective information managementand communication activities for disaster responseand protecting the health of the affected popula -tions.

This list of tasks demonstrates that during a disaster, informa-tion 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 difcultto access, organize, and disseminate information. The bestway to manage such obstacles is to anticipate them.


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In cases where management is centralized, establish clearand exible methods for gathering, processing, verifying, andapproving information. This applies to internal information,pertaining to Disaster Response Team issues, as well asinformation shared between PAHO/WHO and nationalauthorities. 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 informationbefore it is made public?

The methods used for gathering and analyzing informationshould be shared by all team members involved in those tasks.If the methods, formats, and procedures are commonly usedby team members, the results will be uniform, efcient, andeasier to organize.

Having too much confusing information can be worse thannot 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 receiveit and are required to use it. Establish clear and regularprocedures for monitoring distribution and use (e.g. display ofposters).

If equipment, telephone services, or electrica l power are pooror lacking, nd other systems that will allow information to becollected, produced, and disseminated from the affectedarea.

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

Planning and work carried out prior to a disaster will help toanticipate the most complex situations and to make the mostefcient use of resources when the disaster or emergencyoccurs. It will also make it easier to work with people who havelimited experience in information management.

Tips for avoiding information challenges


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Stakeholders and information sources

on disasters and emergencies

3.3

The rst step in accessing information about a disaster is toknow the stakeholders and what technical and managementprocedures they use for emergency management. It is criticalto coordinate with stakeholders, whether national or interna -tional, so that reports from the health sector can be fed intotheir information distribution systems, and vice versa.

Among the most important sources of information are theEmergency Operations Centers (EOC), Situation Rooms, andinformation sites for international assistance. While these actorsor mechanisms may not be fully functional in the rst hours ofan emergency, they should always be the primary source ofinformation.

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P A H O / W H O


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A. Emergency Operations Center (EOC)

Emergency Operations Centers are a device for organizingand controlling operations and making the required dec isionsfor effective emergency management. Their main function isto coordinate emergency response and make the policy andtechnical decisions that will ensure an effective and timelyresponse. EOC actions are always based on available infor-mation. Sectoral or geographic criteria (i.e., the health sectorEOC; national, regional, or local EOCs) determine how theyare organized.

Depending on the country and the magnitude of the disas-ter, there should be EOCs within PAHO/WHO, the U.N. system,and the Ministry of Health ofces. The EOC organized by thenational civil protection agency will have representatives fromdifferent sec tors, including a health sec tor representative.

EOCs are located in secure sites, and should be equipped withadequate technological and human resources to maintainrigorous oversight of each detail of the response to an emer-

gency.

B. Situation Room

The Situation Room is a mechanism for collecting and analyz-ing 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 connectedwith the EOC and share facilities, or it could be located in anannex or other space. It may be a “virtual room,” with infor-mation provided via the Internet. Many PAHO/WHO countryofces have created permanent Situation Rooms or have as-sisted 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, butalso for dissemination of information. All spec ialized reports and

evaluations that feed the data and analysis of the SituationRoom can serve as the source for health sector situation re -ports. Likewise, health sector reports go to the Situation Room,which makes this information available to other sec tors.


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C. Damage and Needs Assessment (DANA)

Damage and Needs Assessments (DANAs) are essential formaking decisions. They can be general or specic to the healthsector, but in all cases they serve to identify the impact of a di-saster and the needs of the affected population.

The health DANA aims to determine the type and scope ofthe effects of the disaster on the health of affected communi-ties, specic damages, and the areas that require urgent assis-tance. It assesses not only the health of victims, but health con-ditions and damage to health facilities and services. PAHO/WHO directly assists health authorities to carry out DANAs inthe health sec tor and participates in multisec toral assessments

carried out by U.N. agencies.

The health DANA is neither xed nor static; rather, it is a dynamicprocess that evolves according to the emergency. Therefore,assessments are regularly carried out and updated. Informa-tion obtained in the rst few hours will serve to deal with themost urgent, life-saving needs, and will minimize human suffer-ing. Information compiled in the 48 to 72 hours following theevent will quantify damages, and be the basis for planninghealth response and the resources needed to repair or rebuilddamaged services.

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

v C ritical needs of the population (satisfied or unsatisfied)

v Percentage of population that has received some form of

assistance

v Conditions of essential services in the affected zone

v Main actions undertaken by the state or by international agencies

Vital information provided by the EOC and Situation Room


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D. International cooperation

During disasters, international teams and experts supportgovernments, usually in cooperation with the national authoritiesand with international cooperation agencies already present inthe country affected.

Besides traditional humanitarian actors, such as U.N. agenciesor the Red Cross Movement, there are increasing numbers ofnongovernmental organizations (NGOs) with substantial logisticalcapacity and ability to mobilize resources. Donors, whetherprivate or public, individuals, corporations or faith-based, havealso expanded their participation.

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

Experts in communication and information managementshould know who does what, be able to categorize incoming

and outgoing information, and be ready to prepare thereports, proposals, or projects that are relevant to internationalhumanitarian actors.

E. The United Nations System

In each country, the work of the U.N. system is directed by theU.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 theU.N. agencies working in a country.

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

The U.N. Resident Coordinator may request deployment of theU.N. Disaster and Assessment Coordination team (UNDAC).

The UNDAC team is made up of disaster management profes-sionals who can be mobilized within hours of a disaster. Theyare charged with evaluating the most urgent needs of the af -fected population, and communicating these needs to the


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national and international communities, in close coordinationwith national authorities.1

2

The U.N. system has established the Humanitarian Reform pro-cess, with the goal of strengthening coordination among themany stakeholders in humanitarian assistance.

One of the reform measures is the creation of nine sectoralwork groups, known as “clusters,” which coordinate opera -tions and promote collaboration in dened areas. The nine

clusters are: nutrition, water and sanitation, health, emergen-cy shelters, logistics, emergency telecommunications, earlyrecovery, and protection and coordination in camps.

When the U.N. Resident Coordinator in a country decides toactivate the cluster system, PAHO/WHO acts as lead agencyfor the health cluster. Its role is not to replace national healthauthorities, but to provide them with assistance and ensurethat work is effectively coordinated among national entities,international agencies, NGOs, and all other actors in humani-

tarian assistance.

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

For communication and information management, activationof the cluster system implies the need for additional coordina-tion 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 -nancing which conform to the interests and practices of themajor international donors. In all cases, information and theexpeditious provision of information are essential for preparing

2 This section was adapted from the Field Coordination Support Section of the website of the U.N. Ofce 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 clusterapproach, see http://ocha.unog.ch/humanitarianreform.

2

F. Humanitarian Reform work groups3


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projects for emergency assistance, since these projects arethe basis for requesting nancing.

Mechanisms within the U.N. System

One such mechanism is the U.N. system's international “ashappeal.” This document is typically published within a week ofthe emergency or disaster and presents a general and brief(but precise) description of the most urgent needs for the nextsix months. If the emergency lasts longer than six months, theash 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 documentis the U.N. Resident Coordinator or the Humanitarian Coordi-nator, with the support of the U.N. Ofce for Coordination ofHumanitarian Affairs (OCHA).4

The ash appeal can include projects prepared by U.N. agen-cies, international organizations, societies of the Red Cross andRed Crescent Society/Movement, and NGOs. Governmentministries (such as the ministry of health) can only participateas parties to projects presented by U.N. agencies.

In anticipation of delays in the approval of ash appeals, theU.N. system has developed the Central Emergency ResponseFund (CERF) for urgent nancing of humanitarian assistance. This fund covers projects for up to three months, but can onlybe requested by U.N. agencies. CERF grants are ultimately in-cluded as components of the ash appeal. CERF grants arethe responsibility of the U.N. Resident Coordinator or the Hu-manitarian Coordinator.

Through ash appeals and other nancing instruments, PAHO/WHO leads development for the health cluster and collaborateswith the water and sanitation cluster. The U.N. system submitsthese appeals to the donor community, and donors commit toan amount for the component that is of interest to them. Whenthe funds arrive, each agency administers the amount that cor-responds to their project(s). In the case of PAHO/WHO, the orga-nization manages funds designated for the health component.

It is important to establish relationships with donor countries priorto any emergency in order to understand specic proceduresused by that country for emergency assistance.

4 Visit www.humanitarianreform.org, “Resources and tools” section to learn moreabout these U.N. mechanisms. The section on tools at www.redhum.org can alsobe consulted.


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Other mechanisms

Some donors such as the European Union’s Department forHumanitarian Aid (ECHO), OFDA/AID or CIDA (Canada) havetheir own formats and procedures which should be under-stood in advance of any emergency situation.

The communication team’s greatest contribution to mobiliz-ing resources is to make sure that high quality, relevant, andtimely information is available for specic proposals and pro-cedures.

Situation reports (SITREPs) are usually produced daily, and de-scribe the status of the emergency, its impact, and the needsof and actions taken to assist the population. These reportspresent the facts; they are not based on speculation, makingthem a source of reliable information about the status of theemergency or disaster.

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

In a major emergency, different teams might prepare reportsor send information to be included in the overall reports. Inthis situation, it is vital that the information be consolidatiedand analyzed, so that PAHO/WHO can publish a single, of -

cial 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 arestructured around certain common features. In the case ofPAHO/WHO, daily SITREPs may be the basis for generatingother, more specic reports, or reports that meet the needs ofa broader, more diverse audience.

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

3.4 The basics of situation reports


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It is very important that the PAHO/WHO team be familiar withthe SITREPs produced by other agencies and NGOs; likewise,

it is vital for PAHO/WHO to share their own reports with theseother entities.

A. How to prepare a SITREP

Everyone on the PAHO/WHO Disaster Response Team shouldhave the ability and knowledge to prepare SITREPs. However,communication and information management spec ialists onthe team are ultimately responsible for consolidating informa-tion and distributing the report.

To prepare the reports, the Response Team should have cer-tain equipment available. This includes a laptop computerwith Internet connection, receiver for a Global Positioning

Basic questions answered by a PAHO/WHO SITREP

What is the condition of the area affected by thedisaster?

Which is/are the affected population(s)?

What are the most seriously affected or vulnerablesectors, groups, or communities?

How has the disaster impacted upon people’s health?

How has the disaster impacted health conditions andhealth services?

What are the main needs?

What needs have been covered?

What is not needed?

What has the health sector accomplished; whatimmediate actions are being taken by the healthsector?

What has PAHO/ WHO accomplished, and what is itsimmediate plan of action?

To what extent is the government capable of respondingto the disaster or emergency?

Has the government requested external assistance?


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System (GPS), a cellular phone, a satellite phone, printer andfax machine. Redundant communication systems for voice

and for data are necessary. The more channels available, thebetter.

Main sources of information for the SITREP are the expertson the PAHO/WHO Disaster Response Team, authorities fromhealth and other sec tors, representatives of the affec ted pop-ulation, and teams from other agencies who are conductingdamage and needs assessments in affec ted areas.

Existing databases, web sites, documents from other agen-

cies, and media reports should be considered secondarysources. Whenever possible, it is benecial to conrm infor-mation 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 infor-mation, so that they can then be published and updated in

the SITREP.

Health reports can be produced daily for internal PAHO/WHOdistribution, for distribution internally among U.N. agencies(health reports will be included in the ofcial U.N. SITREP), andalso for other audiences such as NGOs and communicationmedia.

Although aimed at different rec ipients, the information circu-lated is the same. The key is to modify the information ac -

cording to the many different needs of SITREP recipients andaccording to PAHO/WHO priorities.

The contents and dynamics of the SITREP can also vary de-pending on the phase of the emergency in which the reportis produced.

Initial reports are prepared between emergency onsetand 48 hours after onset. They are short and perfunc-

tory. Typically, reports in this phase are based on lim-ited, confusing, and incomplete information. The valueof the SITREP is to explain and transmit the impact ofthe disaster as accurately as possible and to anticipateresponse in the area of health.


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Complementary reports come out during the rst fewhours of the emergency or disaster and address theevolution of the situation. These reports give morecoverage and details on technical areas (health ser-vices, epidemiologica l surveillance, water and sanita -tion, etc.) and geographic information (describing themost and least affected populations).

The U.N. Ofce for Coordination of Humanitarian Affairs(OCHA) also publishes situation reports. The health sec tion oftheir report is made up of daily summaries produced and sentby PAHO/WHO. Their format includes:

Emergency, place, date;

General situation;

Progress in national and international response (urgentneeds, important achievements, remaining challeng-es, and the most important gaps in assistance).

DOs and DON’Ts of SITREPS

DO DON’T

Change technical and complicatedtext into straightforward text.

Be brief and to the point.

Use direct and clear language.

Analize situations and trends.

Provide sources for information provided.

Include maps and photographs.

Explain tables and figures.

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.

Do not embellish text.

Avoid adjectives and adverbs.

Do not use passive voice.

Do not make vague assertions.

Do not assume that the reader is familiar with thecountry affected or the disaster situation.

Do not repeat the same information in each report. Saveonly information that does not have to be updated.

Do not include unreliable or unconfirmed information.


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Having a web site facilitates and organizes the exchange ofinformation among technicians and consultants from differ-

ent areas, among agencies and institutions (civil defense,U.N. agencies, ministries of health, Red Cross movement) andbetween PAHO/WHO and the communication media. At thesame time it is a resource that makes health sector activi

PAHO_CommGuide_ResponseTeams

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