Four communications phases of an escalating crisis — how Covid-19 will put trust in governments to the ultimate test
Mar 19 · 10 min read
For over a decade I worked in Whitehall London as Chief Press Officer and spokesperson in the Cabinet Office UK. I was part of amazing communication teams that managed many crises — Foot and Mouth Disease, the fuel crisis, MMR jab scares and terror threats to name a few. Since then, I have, with the Centre for Public Impact, heard how people want to feel included and valued by governments all over the world, especially in and post crises. We listened to people who had to respond after earthquakes for example, Ebola and other shocks. They talked about trust, empathy, transparency, authentic connections, valuing all voices and responding to them — these became CPI’s legitimacy behaviours.
Covid-19 is testing all of the qualities of a legitimate and effective government but I am confident that the Civil Service in the UK, in my very biased opinion, is the best in the world at handling unknowns and shocks. People are working around the clock to get us through this, even putting their lives at risk. However trust is feeling a little strained right now as we are asked to drastically change our lives so I dug deep for memories about what I have learned about crisis communications that may be useful. (Of course many friends and colleagues will have better memories and advice I’m sure!)
Trust in government, both local and national, hangs on a knife edge at the best of times but right now it could not matter more. Our governments have, throughout this Covid-19 crisis, asked us to place our faith in them in a very big way — the biggest way perhaps since government information about how to stay safe during the WW2 air raids. That faith is not just for a day, or a week but for months and years to come. This is a communications and disease control exercise like no other anyone can remember but there are lessons from the past to help guide us.
In crisis transparency matters for cooperation
During the BSE (infected beef/mad cow disease) crisis in the 1980s and early 1990s the UK government, it was found, did not communicate the risks of eating beef effectively or accurately. No risk, as it was communicated, meant some risk albeit very, very low — lives were lost and the public felt misled. Getting scientific information to the public when things are uncertain is really hard. A mistake however is to see the public as either not intelligent enough nor brave enough to handle the truth. ‘We do not know everything, but we continue learning’ are messages I learned, during the BSE crisis and the public inquiry that followed, to be the most effective way to communicate unknown and complex risks in the long run. Shiftiness is dangerous, over reassurance is too. People have to feel their safety is their government’s number 1 priority. People want their government to learn but learn quickly and to pass that learning to the public.
Governments must get on the front foot early, those that do will find a crisis less of a communications nightmare. That means stating the expectations of the public should things escalate — not bit by bit but a whole picture of what possibly lies ahead should come early. Actions must match words — if we are at high risk, our actions to mitigate that must match that risk quickly or people will get confused and not comply even with the small asks. This approach of course can risk a national anxiety crisis, or economic shocks too soon but people need to know that government is prepared and that there is contingency planning for the medium to long term. Ultimately this open approach reassures people and markets, minimises shock after shock and ensures everyone knows their part when that time comes.
Governments are not very joined up at the best of times. It will need to be now. Asking local governments and cities to prepare their questions, concerns and immediate to long term needs, should the worst happen, will prepare central government for the response and recovery. The public needs to feel they can see that central government has a strategy and a handling plan that crosses counties and international borders for each and every phase.
Another is to share the absolutely latest data as much as the most transparent country and more -this will explain why action is needed by the public. In Singapore, a Covid-19 dashboard was published and updated for citizens to see now the UK is too.
Language must be clear, as complete as possible and coordinated, for example the difference between ‘quarantine’ and ‘self isolation’, what ‘underlying health conditions’ means can feel confusing to many or sound like a fudge. ‘Experts’ are responding and filling the gaps which can add to confusion and contradictions — many will wonder, ‘What does government know that they are not telling us?’ Being clear on the details of the asks and advice at all stages matters and often that realisation or the answers come too late.
Communicating the key phases clearly
The success of any crisis communications depends on so many things but certainly on people’s ability to understand which phase of crisis they are in, how to act on the messages being given to them at each phase. It has clearly been communicated during this crisis in the UK that there are four phases in the strategy to combat this disease:
Contain, delay, research and mitigate
In an escalating crisis such as this, I have noticed there are four phases of communication that can help the public make sense of the expectations on their behaviours too:
Inform, advise, urge and compel
Inform (everyone who might become crucial is crucial now) — This phase is when the threat is not yet inevitable — at this point the public needs the latest research, clarity about what is and isn’t known globally and facts. They also need an idea of what might trigger the next phase and what that looks like, however uncertain it is. Governments must look and be ready and speak calmly and confidently to prepare the nation. Support and advice lines will need to be set-up and all possible questions anticipated to be ready for the next phases.
Relationships matter hugely, local government must be played in early, they run social services, they have housing tenants impacted by not being able to pay rents should jobs be at risk. COBRA is a private meeting for emergencies in the UK government but seeing all sides and sectors working together early on, openly and anticipating demand and questions are all essential and can complement a more private meeting such as COBRA.
Advise — This is a key phase for public and private sector cooperation, if mishandled the next critical phase will become harder. At this stage, trust is not necessarily impacted but the threat is here or imminent and decisions will be questioned. Practical advice to citizens comes in this phase — this is the wash hands, catch your sneeze advice we’ve been given in the UK and it was commendable for its clarity ( I hear from medic friends that other viruses in hospitals have disappeared as a result of better hygiene).
A word about spokespersons — there should only be one source of advice from here on in (for medical and health issues, in this case of Covid-19 in the UK it’s the Chief Medical Officer and for understanding and combating the disease, the Chief Scientific Officer). When the Prime Minister makes an announcement, it is because the stage of disease and communication is elevated or it is about cooperation across borders, coordination, compensation and support. When the officials leading are too often speaking alongside the Prime Minister, many will question their independence. It is important that they are therefore given space on camera and in public. Other politicians, however senior, can muddle the situation unknowingly.
(Example: During the MMR jabs crisis, putting politicians on TV to say vaccinate your children only led to demands from the public for politicians to reveal if they had vaccinated their own children and their refusal to answer meant the Department of Health went round in circles for days — my advice would be to keep politicians away from the science and related advice — it can be an awful distraction).
Business support, medical lines, benefit and tax payment lines, council services phone lines and official government online resources will need to be available, on message and if necessary stepped up in anticipation of the next phase and further Q&As regarding all manner of issues now. Collaboration with charities and civic organisations will be crucial.
Urge — At this stage communications steps up to sound like the strongest advice so far before compulsory action is taken. It’s important this phase comes before the compel phase and warning of the compel phase is necessary because compelling people to act differently is a big deal in a free democratic country. Now broadcasters are using the words ‘urging the public to…’
The Prime Minister or most senior leader of government would likely lead all communications on the coordinated response of government nationally and locally and with city mayors and local government and devolved administrations. Key CPI legitimacy behaviours of empathy and authenticity will matter hugely now and will be clear through consideration of things like debt repayment holidays, rent relief and mortgage breaks. The Prime Minister will need to be well briefed on the public mood and issues they are facing and react to them each day through broadcast, non-exclusive, briefings.
All communications, broadcast and social media, need to link back to the overall plan and strategy. No unauthorised briefings should be allowed to avoid ‘expert overload’ or confusion. All action is linked back to the overall strategy so that people know there is a plan developing for the weeks and months ahead.
Daily briefings or twice daily briefings will be necessary even when there is no ‘new’ news. Communication must be two-way using social media, online feedback and seeing local government as eyes and ears and partners on the ground, which they will be if they have been played in early enough.
Compel — This stage is the last resort for a free country but should not ever come as a major surprise if the previous three steps have been taken and there many phases to this.
At this stage many will still want to ignore what they are being told therefore government may well have to break down what is and is not allowed to a granular level and factor non compliance into any planning, possibly forcing closures of public places and spaces.
We may see enforcement officers on the street, people facing fines or public shaming for non compliance, which they won’t wish to pay. In this crisis, we may see supermarket shopping slots, which may need to be scheduled for the elderly to be out and about without risk, food rationed, places of worship and entertainment closed and non essential productions stopped. Communication should be continuous, even if repetitive and action must always be explained (because even today, the day before schools close, people are arranging parties at home and kids’ play-dates and are still sitting in cafes in close proximity!).
At this stage patience and trust in government will be needed more than ever as new enforcement powers take effect but community and relationships matter as much now. People will be as heroic as ever but no employer, public or voluntary sector should feel dumped upon, abandoned or taken for granted. The voluntary sector, care services and getting food and supplies for those children who would normally receive a free school meal, should schools close, will be their priority and they will need central government’s support in playing that role. The private sector will be expected to ease pressure on the vulnerable to pay bills and if they don’t people will expect their government to ask them to.
At this point the legitimacy test question is how well does government (or any employer or institution) know the daily life of those struggling now? Any part of society that feels forgotten or misunderstood will see a government that is out of touch and out of compassion.
The long game
The way central government and local government communicate and operate day to day with the public will now be tested even further. This is true all over the world. So too will how they work with citizens over the long term to cope, adjust and recover, people will want a say on how to rebuild their lives. CPI has been testing how to run virtual meetings with citizens, with our recent People’s Panel and it worked well. We will have to re-imagine how we run international conferences, local meetings and offices, and it is already happening.
There are many stages and uncertainties in a crisis — these four I hope provide some clarity and guidance for any organisation, not just government. Emotions are high at a time when we all need to keep a level head and compassionate heart so knowing the phases of actions and recognising when we are being informed, advised, urged or compelled matters for our safety.
Crisis teaches us so very much though — such as how much more we must do in normal times to build legitimacy to be ready for the hits, the importance of community and joined-up government too. I hope when this is all over, we don’t go back to business as usual but keep filling that tank of trust for the next shock, for it will come. Now is the time to re-imagine how people and governments can work together on a recovery plan.
At CPI we are capturing the imaginative ways communities and public services are helping one another during these extraordinary times. Help us to capture that learning and share it with the world. Capturing those all important stories, those silver linings, from one part of the world now may help fight this and the next crisis in another. Maybe those ideas can even become our new normal. I’d really like to believe that out of crisis really does come opportunity.
