Chemicals and Health in the Environment

Working Together to Communicate with the Public

An Outline Model Framework

This is a working document and will be subject to change and development out of the experience and learning of network partners.

Acknowledgements

The Chemicals and Health in the Environment Advisory Committee wishes to thank the following people for their input and work in developing the Outline Model Framework on Working Together to Communicate with the Public:

Mr Andrew Jones, Regional Director and Director of Health Improvement, National Public Health Service Wales who chaired the Task & Finish Group;

Mr Chris Lines, Head of Communications, National Public Health Service Wales;

Professor David Williams, Emeritus Professor, School of Chemistry, Cardiff University;

Dr John Stather, Radiation Protection Division, Health Protection Agency;

Ms Su Mably, Wales Centre for Health;

Mr Huw Morgan, Environmental Health Department, Swansea City Council;

Ms Julie Bishop, Public Health Director, Powys Local Health Board;

Ronnie Alexander, Chief Environmental Health Adviser, Welsh Assembly Government

Ann Davies, Head of NHS Communications, Welsh Assembly Government

Steve Wall, Health Protection Division 1, Welsh Assembly Government

Tim Edwards,Health Protection Division 1, Welsh Assembly Government

Executive Summary4

Introduction5

Corporate Culture6

Preparedness7

Understanding the Community Perspective and Emotions9

Necessary Skills10

Developing Credible and Effective Messages12

Methodology13

-Inter and Intra Agency Communications13

-Community Participation 13

-Letters, E-mails and Direct Mail13

-Leaflets/Posters14

-The Web14

-Other Online Communication15

-Advertising15

-Telephone Help Lines15

-Liaison Groups16

-Surgeries and Open Days16

-Community Meetings16

-Public Meetings16

-Opinion Leaders17

-The Media 17

A Process not an Event19

Conclusions20
Executive Summary

Responding to the public in relation to environment and health issues in Wales will inevitably involve more than one agency. Effective communication with the public will depend on these agencies working together and being seen to work together.

It is possible to prepare for concerns relating to the environment and health. Preparedness involves early joint working and planning.

It is vital that the situation and concerns of the community are understood and respected by those responding.

There is a need to build trust with the community. This requires time and a set of communication and engagement skills.

Credible and effective messages need to be developed and then used consistently.

There are many communication methods available:

  • Inter and intra agency communications
  • Community participation
  • Letters, e-mails and direct mail
  • Leaflets/posters
  • The web
  • Other online communication
  • Advertising
  • Telephone help lines
  • Liaison groups
  • Surgeries and Open Days
  • Community meetings
  • Public meetings
  • Opinion leaders
  • The media

It is likelythat some or all will be needed in engaging the public with their concerns in relation to the environment and health. They should be planned, co-ordinated and consistent with each other.

Communications is a process, not an event. It takes time and continuous effort to explain risk, build trust and meet concerns. It is rare for a single action to provide the solution to a problem.

Introduction

This Framework is designed to provide organisations with guidance and best practice on communication with each other and the public.

It has been developed under the Chemicals and Health in the Environment Project.The purpose of the project is to secure an effective and co-ordinated public health managed network that will enhance the protection of human health in Wales from the effects of acute and chronic exposure to chemicals in the environment.

A Task and Finish Group was established in November 2006 to develop an Outline Communication Framework as requested by the Chief Medical Officer (CMO) – Wales. The Framework was submitted to the main group meeting chaired by the CMO and endorsed on 21 March 2007.

The Framework collates good communications practice identified from a number of sources. However, it is not intended to be an all encompassing collection of best practice. There will be papers and reports that are not referenced here that also denote good practice that will be complimentary to this Framework. In no way is it a prescriptive tool.

Feedback is welcome on the Framework which will be further developed out of the experience and learning of network partners.

The word communication is derived from the Latin word “Comunicare” meaning “to transmit”. The art of communication is to convey information effectively. To do so requires both provider(s) and receiver(s) to understand the information fully. In turn, this requires them to listen to each other.Both parties need to ensure that the information being transmitted is clearly understood.

Quotations:

Ernest Hemmingway: “When people talk, listen completely. Most people never listen.”

Robert Greenleaf: “Many attempts to communicate are nullified by saying too much.”
Corporate Culture

The Assembly Government’s vision for public services in Wales as set out in ‘Making the Connections’ advocates a collaborative approach to public service delivery with co-operation and co-ordination between agencies across the whole of the public sector. Transparency, open government and engagement are key priorities in Wales both for the Assembly Government and other public organisations working together and our relationship with the people of Wales.

Responding to issues in relation to the environment and health in Wales will inevitably involve more than one agency. Effective communication with the public will depend on effective communication between these agencies so that they can and do work together; and so that they are seen to work together.

Effective communication between agencies depends on:

  • Commitment at senior (i.e. Board) and equivalent levels in each organisation
  • An understanding and respect for the roles, expertise and accountability of each organisation
  • Openness of each organisation
  • A shared understanding of the issues
  • Sharing of knowledge as it is gained
  • A shared appreciation that every action or inaction is a communication
  • Effective joint working
  • Established and developed working relationships between individuals
  • Established and practised agreed protocols for working together

Communication will break down between all agencies if just one does not meet the above criteria.

Preparedness

Concerns in relation to environment and health can be predicted.

It therefore follows that agencies can prepare for such concerns.

Preparedness involves early joint working to:

  • Gain a clear understanding of the issues (seek background information on any health risk, hazard or nuisance from network partners such as the Health Protection Agency, National Public Health Service for Wales or relevant local health board);
  • Gain a clear understanding of the agencies which may be involved and the roles they would have;
  • Clarify which agency would lead and on what, including which agency leads on communications;
  • Gain a clear understanding of each agency’s procedures for responding;
  • Develop a good understanding of community knowledge, perceptions and concerns (see section at page 8);
  • Identify the people and organisations who may have an interest or involvement in the issues (e.g. politicians, pressure groups, community groups, journalists). Do not mistake pressure groups or those who are most vocal as the community itself. Consider the community as all those affected by the issue;
  • Scan the horizon (how could the issue develop?);
  • Consider the risks of different responses;
  • Identify the information required to respond to the concerns;
  • Identify the skills, people and resource needed to respond to the concerns; and any consequent training and development needs;
  • Plan for a surge in activity. Should there be an incident it will lead to a surge in activity which may require extended working hours, additional telephone lines etc;
  • Develop key messages and an appropriate and effective common language;
  • Develop a joint plan with clear aims, actions (strategic, operational and communications), timescales and accountabilities;
  • Develop communication protocols and agree supporting template documents e.g. fact sheets, standard letters, question & answer briefings;
  • Consider how progress should be evaluated.

The assessments and planning identified here are best done jointly by the agencies involved. Early engagement with the community in developing plans is recommended if an assessment of the hazard, nuisance or risk determines probable community engagement at a later stage.

The process of preparing together promotes more effective arrangements for working together.

The planning of risk communication is important. It enables agencies to define carefully the problem at the start of the process. This therefore reduces the possibility of the need to change the response to the concern during the response process.

However, assessments and any developed plans need to be reviewed periodically because circumstances, concerns and perceptions change, often for reasons not connected to the issues in hand.

For the same reasons, it is important that flexibility is built into planning.

Understanding the Community Perspective/Emotions

Good communication depends on a good mutual understanding of and respect for each other’s perspectives.

Perceptions are as important as reality. Agencies should seek to understand and consider people’s perceptions of environmental and health concerns.

It is vital that the situation and concerns of the community/communities are understood and respected by those responding to an issue as this knowledge will help build credibility with the local community.

People often respond to issues with emotion. This is valid human reaction. Emotion needs to be understood, respected and taken into account.

Make a careful assessment of the hazards, nuisances and risks involved. Don’t muddle them. Differentiate voluntary and involuntary risk.

Communication plans should reflect the knowledge of the local community/communities and aim to address community concerns.

There are usually different community perspectives depending on knowledge, interest, geography and how people are or may be affected.

Perspectives can and do change depending on circumstances, actions, concerns and perceptions.

Developing an understanding of the communities’ perspectives is achieved by one or more of the following:

  • Quantitative research e.g. surveys, opinion polls
  • Qualitative research e.g. focus groups
  • Listening to the views of organisations representing the area e.g. local authorities
  • Contact through informal networks e.g. community representatives, staff living in the affected communities, citizen’s panels and forums

The more independent the source of the understanding, the greater its credibility. The view of representative organisations and community representatives may be different to the people they represent.
Necessary Skills

There is a need to build trust with the community. This will take time and a lot of communication.

In order to secure trust a relationship must be built with the community. The following may help:

  • Visibility in the community – face to face contact with people who live there
  • Sincerity with the community
  • Involvement and engagement of the community in the process
  • Maintenance of confidentiality unless otherwise agreed
  • Honesty with the community – if you don’t know say so
  • Meeting of obligations to the community
  • Increased knowledge about the community
  • Answering of the community’s questions and response to their doubts
  • Patience and respect
  • Clarity of communication

It is important that all staff working on the issue recognise these communication principles and their communications role. Communications is not the sole preserve of the communications advisor.

Nonetheless, it is vital that organisations have access to or employ a communication expert to advise and support the conveying of information to a variety of audiences in a clear and professional way. It is equally important that the message is fully understood by the audience.

The communicator should work as part of a team comprising people with a variety of skills. These include:

  • Specialist public health expertise
  • Local public health expertise
  • Epidemiology
  • Environmental health research
  • Environmental regulators
  • Community engagement
  • Other expertise as required by the hazard, nuisance or risk

The skills required for multi disciplinary working are needed by all members.

It is important that, when working/communicating, all involved:

  • Share responsibility for communication
  • Concentrate and be receptive
  • Understand the meaning of what has been said
  • Show understanding, respect and adopt an accepting attitude
  • Anticipate questions and concerns
  • Use consistent information and messages in a friendly way
  • Speak with a single, consistent voice
  • Listen carefully and acknowledge the community’s ideas

The Development of Credible and Effective Messages

For a message to be credible and effective it must:

  • Demonstrate an understanding, respect and empathy for the audience’s perspective
  • Be given in an appropriate context
  • Be delivered in a timely manner
  • Be framed in a credible context
  • Use simple, accessible and powerful language
  • Be capable of summary as a 15 second sound bite
  • Be given by a credible and trusted source e.g. an acknowledged and principled expert
  • Be delivered in a fluent, personable and accessible manner
  • Be delivered in the language preferred by the recipient

It is better to say “I don’t know but I’m doing everything possible to find out” than to give a message which is not credible.

In developing messages, consider the data, analyses, evidence and scientific knowledge and how it can be used to provide support. Make sure it is robust and practical. Make sure it can be explained in simple language. Give it a proper context. Refer to the totality of research rather than rely on individual papers. Prepare a response to alternative scientific or quasi scientific views.

Methodology

There are many organised communication methods available. It is likely that some or all will be needed in engaging the public on concerns in relation to the environment and health.

In applying different methods, it is important that they should be planned, co-ordinated and consistent with each other.

Inter and Intra Agency Communications

It is possible that staff employed by one or more of the agencies engaged on the issue will also be local residents. This may put them in a difficult position personally. Appropriate support should be made available.

However, it is also likely that such staff will have greater credibility with the local community and could be helpful in supporting the communication process. So, in responding to an issue it is essential that the staff involved, and other staff who so happen to live in the communities affected, have a clear understanding of the issues, the action being taken and the key messages.

It is therefore important that agencies communicate with their own staff quickly and effectively. One-to-one contact, management meetings, e-mail, intranet sites and staff newsletters may all be appropriate to do this.

Community Participation

Engage the community. Go to them. Involve them in your planning and actions.

Consider the context and environment of these meetings. Meeting people on a one-to-one basis can be more effective than bringing together different interests which may be competitive. Ensure that they are comfortable with the location and venue of the meeting. Make clear the basis of the meeting beforehand, preferably in writing. Prepare carefully. Use appropriate language. Summarise the meeting at the end and consider confirming in writing afterwards.

Identify allies in the community - people who have credibility and who are respected as community champions.

Letters, E-mails and Direct Mail

Direct and personal communication is best.

Build a database of people with whom you may wish to communicate. You can use the electoral roll if the community is large. If it is impractical to identify so many people individually, collect the names and contact details of people who contact you directly, on petitions etc.

It is always best to write to people by name but, if not possible, consider a door-drop to all residents in a defined area.

Write to people in their preferred language. Write clearly in short sentences. Avoid jargon. Be clear about the key messages and key actions. Explain – don’t preach. Ensure that the letter comes directly from a named official – speaking on behalf of other agencies as well, if appropriate. Use ‘I’. Don’t hide behind the impersonal and bureaucratic corporate ‘we’. Reinforce the key message in a P.S.

Give people contact details should they have questions or want further information e.g. a telephone number, postal address, e-mail address, web site address and/or helpline.

Make sure that staff are available to respond promptly to the telephone calls and e-mails generated.

Leaflets/Posters

Use clear language in a simple format and respect your audience and their concerns. Emphasise the action that individuals are expected to take.

The content of a leaflet should include the nature of any hazard, nuisance or risk, benefits to be obtained by reducing the risk, options available, uncertainty about risks and benefits, and risk management aspects.

Good leaflets/posters:

  • are visually attractive and bilingual
  • are logically organised
  • can be understood on first reading
  • use short sentences
  • use singular pronouns
  • use present tense
  • use the active voice

Make sure it is clear who produced the leaflet/poster. Give contact details for further information.

The Web

The web is a good way to provide information quickly and comprehensively. It can reach a wide audience easily and is particularly useful for informing the media and opinion leaders.

Ensure web pages signpost the issue. Link web pages to the other agencies involved. Promote the web addresses actively.

Keep web pages up to date. Ensure that all web sites are updated in line with each other and work effectively.

Clear language, a simple format, attractive (but uncomplicated) graphics and clear links are important.

Other Online Communications

There is a fast-growing world of communications developing on-line. Blogs and other social media are being used by people to make campaigning points. Viral marketing can be a very effective way of spreading messages. It is useful to keep to up to date by monitoring all such on-line activity.

The internet can also be used to engage people. Online forums can encourage discussion and provide scope for responding to individual concerns and questions. They need active and fair moderating.

Experts and senior managers can make themselves available online at pre-arranged times to answer questions on-line.