Government Communications in Crisis Situations and Emergencies. Prime Minister s Office Publications

Transcription

1 Government Communications in Crisis Situations and Emergencies Prime Minister s Office Publications 20/2008

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3 Government Communications in Crisis Situations and Emergencies Prime Minister s Office Publications 20/2007

4 Prime Minsiter s Office st edition ISBN (nid) ISBN (pdf) ISSN julkaisut@vnk.fi 2

5 CONTENTS PREFACE INTRODUCTION COMMUNICATIONS IN CRISIS SITUATIONS Definition of a crisis Principles of crisis communications Threat scenarios, special situations and preparedness in terms of communications Crisis management and communications Organisation of government communications Implementation of government communications Monitoring and research COMMUNICATIONS IN EMERGENCIES Emergencies and preparation for them Regulations and principles concerning communications Communications in emergencies less severe than war Communications during a war PREPARATION AND TRAINING EVALUATION OF COMMUNICATIONS APPENDIX: CHECKLIST ON THE MANAGEMENT OF INTENSIFIED COMMUNICATIONS AT GOVERNMENT LEVEL

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7 PREFACE On 20 December 2005, the Prime Minister s Office appointed a working group to revise the guidelines concerning government communications in crisis situations and emergencies. The experience gained of the tsunami disaster in Asia highlighted the need to improve the preparedness of the State administration in terms of communications for crises of different types. Preparedness exercises within the State administration have also shown that communications plays a very central role in the management of crises and emergencies. These new guidelines Government Communications in Crisis Situations and Emergencies replace the guidelines issued by the Prime Minister s Office in 2003 for communications in emergencies, and the section on communication in special situations and emergencies included in the Recommendation on Central Government Communication issued in These guidelines emphasise the reliability, speed and interactive nature of communications, as well as the importance that the coordination of communications has within the entire sphere of the State administration. The authorities must be able to meet the increased need for information among the public, the media and other central cooperation bodies, and must keep them informed as the situation at hand develops. Communications is an essential element of crisis management, and the contents are always determined by the current situation. The guidelines stress the responsibility of each authority for communications and for making provision for crisis communications in its sector. They also underscore the major role of research and liaison activities that support communications, as well as the importance of crisis communications exercises and training. The guidelines are in force as of 25 September 2007, until further notice. Helsinki, 10 September 2007 Matti Vanhanen Prime Minister Asko Mattila Director of Government Communications 5

8 INTRODUCTION These guidelines for communications in crisis situations and emergencies focus on the intensified communications required by various crises under normal conditions, and on coordinated communications among the various government authorities. Unexpected or sudden threats or events that may endanger the safety of society or the livelihood of the population can arise under normal conditions, when normal conditions are disturbed, and during emergencies. Management of such threats and events may require management models and communications that differ from normal practices. These threats and events are also called special situations. When the normal conditions are disturbed, communications is managed in accordance with the guidelines given in the Act and Decree on the Openness of Government Activities and in the Recommendation on Central Government Communication. The Emergency Powers Act and the State of Defence Act contain stipulations concerning the authorisation of communications in emergency situations. These guidelines for communications in crisis situations and emergencies take into account the Strategy for Securing the Functions Vital to Society (2006), the measures decided by the Government on 23 November 2006 by virtue of the recommendations included in the report of the Investigation Commission appointed to investigate the natural disaster in Asia, and the proposals made by a working group that studied the use of web services in crisis situations. In addition, the guidelines issued by the Prime Minister s Office for intensified communications at Government level, and the conclusions and recommendations obtained from the system for monitoring and evaluating government communications have been considered when drafting these guidelines. 6

9 1 COMMUNICATIONS IN CRISIS SITUATIONS 1.1 Definition of a crisis A crisis is a situation that arises under normal conditions or when normal conditions are disturbed, and calls for heightened action. It is possible to manage crises and recover from them under normal conditions by using the existing powers and resources. A disturbance in normal conditions is an exceptional, unexpected or abrupt change in the state of security that poses a threat to the functioning of society and to the safety of the population. To ward off and overcome threats, the Central Government and the authorities must take intensified action. This includes powers associated with special situations and included in the regulations applied in normal conditions, reallocation of appropriations through a supplementary budget, calling up personnel for duty, and designation of other means for obtaining additional resources. Crises may be international, national, regional or local, and they may have very different effects. The following are examples of situations requiring intensified communications: a major accident; a sudden international political or military crisis; an environmental accident; a natural disaster or catastrophe; a disturbance involving information systems or power distribution; wide-scale immigration; an epidemic; terrorism; a threat caused by organised crime; and a publicity crisis affecting the organisation or its top management. 1.2 Principles of crisis communications The basic principles of well-functioning and efficient communication in the State administration are reliability, speed and interaction. The prerequisites for reliability are that the information given is correct, clear and adequate, and that the information is given by the competent authority in each particular case. Interaction means two-way communications based on openness and service-mindedness. The importance of the central principles of government communications is highlighted in disturbance situations. Quickly and as openly as possible, the administration must be able to meet the increased need for information among the media and the public and to keep them up-to-date of current developments. It is important to give clear instructions and directions to people so that they are able to act correctly in the situation and so that new accidents can be prevented. As the need for information increases and the communication climate changes, the authorities must also maintain contacts with other authorities in their administrative sector and with other central cooperation bodies. Regional and linguistic equality must also be taken into account in communications. The Language Act stipulates that information relevant in respect of the life, health, safety and property of an individual must be available in both Finnish and Swedish in all of Finland. 1.3 Threat scenarios, special situations and preparedness in terms of communications The Strategy for Securing the Functions Vital to Society lists threat scenarios for which society should in particular be prepared. These threats include a disturbance in the electronic infrastructure, a serious disturbance of the health and income security of the population, a serious disturbance in the functioning of 7

10 the economy, major accidents and natural disasters, environmental threats, terrorism and organised and other serious crime, threats associated with migratory flows, political, economic and military pressure, and the use of military force. The threat scenarios include many special situations for which the Ministries must be prepared. The Ministries also define responsibilities pertaining to preparedness in terms of communications for the State agencies in their administrative sector. At least the following themes must be evaluated in conjunction with preparedness: The basic premises for preparing for the situation and for controlling the situation arisen, such as availability of information how to form a situation picture and how to disseminate it advance prevention provision for controlling the situation, including advance preparations crisis management communications. Assessment of the coordination of activities, such as coordinated action with other administrative sectors coordinated action with the rest of society. Upkeep of plans, preparedness training and preparedness exercises. Communications in special situations often requires broad cooperation both within the administrative sector and between administrative sectors. In preparation for communications, it is essential to have a written communications plan for special situations. Among other things, the plan should clearly describe the various parties responsibilities for communications and the forms of cooperation between the parties. 1.4 Crisis management and communications Efficient and reliable external and internal communications are an essential element of crisis management. As the vulnerability of society increases, it is vital that measures for controlling unexpected and rapidly emerging special situations, coordination of activities in various administrative sectors, and communications are launched without delay. The basic principle of crisis management is that the division of responsibilities and the operating models prescribed for the various authorities and bodies should be kept the same as in normal conditions for as long as possible. The severity and extent of the situation determine whether the situation is managed locally or whether it is managed and coordinated regionally or at Ministry or Government level Management and communications at Government level The meetings of Permanent Secretaries and the meetings of the Heads of Preparedness are coordination bodies for crisis management at Government level. The measures required by the situation may also be initiated at the top of the State hierarchy. According to the Constitution, Government-level management, management of operations, and coordination between the preparation and handling of matters are tasks vested in the Prime Minister. Within the powers defined for the President of the Republic, the President 8

11 participates in decision-making in situations that have an effect on Finland s relations with other countries. The Government-level management model is applied in international affairs if so required by the handling of the affair. When a crisis is being managed, the lines of authority must be clear. To the extent possible, situations are handled proactively and sufficient resources are employed right from the start, also for communications. Intersectoral coordination bodies, such as the meetings of Permanent Secretaries and the meetings of the Heads of Preparedness at Government level, assist in the coordination of activities. The Prime Minister s Office gives support in matters relating to situation pictures, premises and communications. A representative of the Government Communications Unit attends the meetings. Whenever necessary, a representative of the Communications Unit of the Ministry leading the operations is also present. A Government Command Centre, based on coordinated action among Ministries and led by the Prime Minister s Office, can be established to support management at Government level. The Command Centre s communications is reinforced as needed. The Government Communications Unit serves the Government s needs. Ministries are responsible for communications in their own sector. Questions pertaining to the coordination of and responsibilities for communications are discussed at the meetings held among the Heads of Communications at the various Ministries. The authorities, companies and organisations needed for management of the situation are involved in the activities and in the dissemination of information about the activities. The goal is that the public would get as comprehensive a picture of the situation as possible and that information, advice and instructions would be available as extensively and easily as possible through various communications channels. By law, the competent Ministry leads operations and, whenever necessary, any coordinated action among Ministries. The Prime Minister s Office ensures that the competent Ministry has been determined. The competent Ministry s Permanent Secretary bears the main responsibility for preparations in the administrative sector and for the management required by the security situation. The principal statutes applying to Ministries are the Act on the Government (175/2003) and the Government Standing Orders (262/2003). In addition, the statutes laid down specifically for each particular field contain stipulations about the powers of the Ministries and other authorities. The measures taken in the various administrative branches and, whenever necessary, by commercial enterprises and citizens organisations are coordinated in the meeting of Permanent Secretaries, under the leadership of the State Secretary at the Prime Minister s Office or the Permanent Secretary of the competent Ministry. In responding to the situation at hand, the Permanent Secretaries are supported by the Heads of Preparedness who meet under the leadership of the State Secretary at the Prime Minister s Office or the Head of Preparedness of the competent Ministry. By the Prime Minister s decision, or upon proposal by the competent minister, a matter is referred for discussion at the Government s meeting, in the manner agreed with the Prime Minister. The Prime Minister may invite a joint meeting between the President of the Republic and the Cabinet Committee on Foreign and Security Policy, or the Cabinet Committee, to prepare an issue for the Government s decision. The Cabinet Committee is supplemented with the competent minister responsible for managing the situation and with the necessary experts. Other Cabinet Committees handle issues in accordance with their 9

12 mandate. A representative of the Government Communications Unit attends the meetings of Cabinet Committees. The decisions required by the management of the situation are made by the Government at a plenary session, by the Ministry concerned, or by some other competent authority. The crisis management model takes into account the obligations laid down in the European Union s Emergency and Crisis Coordination Arrangements for Member States and for the Presidency. The Communications Unit of the Ministry leading the operations and the Government Communications Unit are closely involved from the start of the crisis and provide the Government with the communications services required by the situation. Constant contact is maintained between the crisis management, the functions responsible for the situation picture, and communications Management and communications at other authority levels In normal conditions, most events that pose a risk to people s lives, health, safety, property or environment are managed by the local authorities in accordance with their own guidelines for operations. The authority responsible for running the operations is also responsible for communications and for informing other authorities and stakeholders. Information about the event passes to the regional and central administration authorities along the agreed communications channels. If a situation in normal conditions endangers, for instance, the safety of people or the environment and affects an extensive area, responsibility for managing the situation or the responsibility for coordinating the actions of the various authorities may rest with the regional administrative authorities. In such a case, the regional administrative authorities are responsible for communicating about their own activities and for coordinating local communications. A Ministry may also assume responsibility for the management and coordination of a situation. Then the Ministry is also responsible for communications and for the coordination of communications. Other authorities and stakeholders continue to disseminate information about their own activities in accordance with the guidelines issued by the body responsible for coordination. 1.5 Organisation of government communications At national level, these guidelines apply to the Prime Minister s Office and other Ministries and to the State agencies, institutions and enterprises under them. At regional level, the guidelines apply to State Provincial Offices, the Employment and Economic Development Centres, the Regional Environment Centres, and to other State regional administration Responsibility for and coordination of communications The general principle is that the authority leading the operations is responsible for the contents of communications, and receives support from other authorities. The authorities must also provide information about their mutual division of responsibilities and about any changes taking place there. If the crisis situation calls for action from several authorities and it is unclear who bears the general responsibility for leadership, the Government makes a separate decision on the matter by virtue of 10 of the Act on the Government (175/2003). 10

13 The Government Communications Unit is responsible for the Government s and the Prime Minister s communications and for coordinating the Government s communications. Each Ministry is responsible for its own communications and for coordinating communications in its administrative sector. Questions pertaining to the coordination of the Government s communications are also discussed at meetings held by the Heads of Communications of the various Ministries. The State Provincial Offices bear the main responsibility for regional communications and for its coordination. Municipalities, local authorities and intermunicipal bodies, such as hospital districts and regional rescue departments, bear the main responsibility for local communications. In particular, the State Provincial Offices and other representatives of the State regional administration must create well-functioning communications links with the local level already in normal conditions. The Communications Unit of the Ministry leading the operations and the Government Communications Unit must see to it that the Information and Communication Department of the Finnish Parliament and the Office of the President of the Republic are informed of the development of the situation. At all levels of operations, attention must also be paid to communications associated with international issues and EU affairs, and to the necessary contacts with the corresponding authorities and organisations in other countries Means of communications Good communications in normal times creates the foundation for crisis communications. Diverse and efficient communications can be achieved using the same tools. The main tools in crisis communications are press conferences, web communications, and telephone service. Press conferences broadcast live both in the electronic media and on the Internet give the authorities and other experts the opportunity to tell the general public widely about the situation and its development. Web communications serves the public, the media and other stakeholders. The essential material associated with the crisis is published in both Finnish and Swedish and, whenever necessary, in English. Web communications enables fast and equitable dissemination of information during crises. The Government is prepared to establish a separate crisis portal providing access to the principal material prepared by the various authorities about the crisis. The crisis portal can also be used as one channel for issuing instructions and other advice to the public. The press releases and topical material prepared by all of the Ministries are transmitted to the public through the news service on the Government s website. The Ministries and agencies in the various administrative branches are responsible for the functioning and contents of their own websites. Press releases and other material prepared by the authorities are also transmitted to stakeholders by and delivered to news agencies and other media for publication. Telephone service is used to transmit and collect essential information related to the crisis. When telephone service is organised, primary attention must be paid to the needs of people involved in the crisis and their family members. Insofar as possible, a general telephone service for giving advice and a service line concentrating on psychological needs should also be arranged. 11

14 The Finnish Broadcasting Company has special responsibility for transmitting official bulletins warning the public of danger. Official bulletins are divided into emergency bulletins and other official bulletins. The authorities are always responsible for the contents of the bulletin. An emergency bulletin can be issued when there is an immediate threat to human life or threat of considerable damage to property. The Finnish Broadcasting Company transmits the emergency bulletin through all of its own channels. Simultaneously, it is transmitted automatically on commercial radio stations and, to the extent possible, publicised on television channels. An emergency bulletin interrupts all programmes being aired. Other official bulletins can be given when there is no immediate danger. The bulletin is read as quickly as possible on the Radio Suomi channel and, whenever necessary, on the Radio Vega channel and on the commercial radios to which the authorities have transmitted the bulletin. Emergency bulletins can be issued by the rescue, police and border guard authorities and the Radiation and Nuclear Safety Authority and the Finnish Meteorological Institute as the first bulletin in the event of a sudden radiation hazard. In addition to these authorities, other official bulletins can be issued by the Ministry of Agriculture and Forestry, the Ministry of the Environment or the Ministry of Social Affairs and Health. Emergency response centres can transmit the first bulletins issued by the police and the rescue authorities, for instance, in the event of accidents and crime. The authorities can also use the VIRVE authority network for informing each other. In crises not all means of communications may be available; we must be prepared for this, too. Depending on the situation, it must be assessed whether the , web communications or telephone service is possible. A disturbance in the electronic infrastructure, or overloading of the web, accentuates the importance of press conferences and the associated statements and interviews of the authorities. The opportunities offered by digital and mobile communications, such as mass mailings of SMS messages, should be utilised as required by the situation. 1.6 Implementation of government communications Communications with citizens Communications with citizens starts primarily from the recipient s needs; its foundation is the openness of government. Citizens must have the opportunity to monitor the activities of the authorities and the exercise of public power, and to discuss these. The openness of the authorities activities enables monitoring and participation. Citizens participation is implemented through interactive communications. Interaction also means that the feedback given by citizens is taken into consideration. In communications with citizens, a variety of communications means should be utilised in a diverse manner. The means are selected depending on the target group. Means of communications include information on topical issues (bulletins and various information events and discussions), customer service, web communications, brochures and other publications, campaigns promoting safety culture, and presentations at fairs and exhibitions. In particular, the various means of web communications play an important role in communications with citizens. Web communications enables the transmission of information efficiently to a large public. It is also a good tool for increasing public debate. Web communications provides an opportunity for interaction between administration and citizens and for citizens participation. Equality requires that all stakeholders 12

15 have access to web services important for them. In addition, access to information must also be secured for those who cannot, or do not want to, use the new media. The essential material produced by the authorities must be available in the two domestic languages and in English. The communication needs of the Sámi-language population, immigrants, foreign travellers in Finland, and other groups in special situations must be taken into account. Especially in crisis situations, it is important that citizens are reached and they get the information they need quickly and reliably. This calls for varied use of communications tools. Likewise, the information about the crisis and the related events transmitted by citizens to the authorities is valuable. Provision for this must be made especially by developing web services and telephone services. The functioning of telephone services and web communications must be ensured at sufficient capacity Media communications The mass media play a central role in transmitting information issued by the authorities. Especially in crisis situations, the authorities must ensure that the mass media have sufficient prerequisites for their operations. Communications targeted at the media must be open, active and service-minded. Depending on the nature of the crisis, press conferences are arranged regularly and so that the media s access to information is ensured. Whenever possible, the technical arrangements of these conferences should enable live broadcasts. Different mass media are treated as equally as possible. The goal is that, through the various media, the public would obtain as extensive and varied a picture of the crisis and the authorities actions as possible. The Government Media Service is a web service that requires registration and is intended for the mass media. Press releases and materials issued by the authorities and other material intended only for the media are publicised in advance in the service. In crisis situations, too, the media service transmits information meant for the mass media and serves as a channel for invitations to press conferences and accreditation Communications with stakeholders In terms of communications with stakeholders, the central bodies are organisations, enterprises and corporations. Already in normal conditions, the authorities must create working and close contacts with the stakeholders important for their operations. The Government Communications Unit bears special responsibility for this, as it is responsible for the development of liaison activities at Government level to prepare for crises. The main tools in communications with stakeholders are web communications and various joint events and meetings. Efficient communications with stakeholders supports, supplements and deepens communications with citizens in its various forms International communications Each Ministry is responsible for the development of international communications in its own sector. Together with the Ministry responsible for communications, the Ministry for Foreign Affairs plays a central role in crises that have an international dimension. These crises include, among others, a danger threatening the safety of Finns abroad or an event in Finland attracting wide international attention. 13

16 Organised by the Department for Communication and Culture of the Ministry for Foreign Affairs, an international media centre is set up, whenever necessary, to provide communications services for the representatives of the international media working and arriving in Finland. Finnish missions abroad are responsible for providing the communications services required by the situation for the authorities and media in their respective areas. The Ministry responsible for communications, the Department for Communication and Culture of the Ministry for Foreign Affairs, and the foreign missions are together responsible for the international monitoring of the media, as required by the situation. When using web communications and other communications channels, attention must be paid to the needs of international news agencies, mass media and other stakeholders Internal communications and flow of information Well-functioning internal communications and flow of information, and contacts among the authorities create a foundation for successful external communications. For this reason, their functioning must be ensured in all situations. Each civil servant participating in the management of a crisis situation is for his or her own part responsible for active and efficient internal communications. The principal means of internal communications are the telephone, SMS messages, the , the intranet, the extranet, protected authority networks, and various meetings among the personnel and with the authorities. The flow of information between the management, the functions responsible for the situation picture, and communications must be unobstructed and close. The communications personnel must be able to follow the development of the situation picture in real time, to produce material needed for the creation of a situation picture, and to utilise the material produced by information services from various sources. 1.7 Monitoring and research The monitoring and analysis of the mass media, open sources, and feedback from the public gain more importance during crises. Systematic monitoring and analysis support the decision-making of the authorities and help prevent the emergence and spreading of rumours and false or misleading information. People s ideas about the prevailing situation and its impacts can also be investigated by means of opinion and attitude surveys. The Government Communications Unit bears the general responsibility for developing and implementing research activities that support government communications in the event of crises of different types. Working in close cooperation with the Government Communications Unit, each Ministry is responsible for the development of research preparedness supporting communications in its own administrative sector. 14

17 2 COMMUNICATIONS IN EMERGENCIES 2.1 Emergencies and preparation for them Definition of emergency Emergencies have been defined in the Emergency Powers Act and the State of Defence Act. The special powers granted to the authorities in emergencies always require a Presidential Decree and a Government Decree. According to the Emergency Powers Act, emergencies are: a major accident (a catastrophe); an economic crisis; war or the threat of war between foreign countries and serious international tension implying the threat of war and requiring immediate action to increase Finland s defensive readiness, as well as other specific conditions outside Finland having a comparable effect, if they may pose a grave danger to the foundations of national existence and well-being; a serious violation of the territorial integrity of Finland and a threat of war against the country; an armed attack against Finland, as well as war and the aftermath of war. According to the Emergency Powers Act, adoption of the powers specified in the Act requires that the consequences of the situation are so serious or extensive that the situation cannot be controlled using the authorities regular powers. In practice, controlling the situation requires both special powers and additional resources. The primary purpose of the powers defined in the Act is to secure the livelihood of the population and the national economy, to maintain legal order and constitutional and human rights, and to safeguard the territorial integrity and independence of Finland. The official powers contained in the State of Defence Act can be taken into use to strengthen and supplement the powers granted by the Emergency Powers Act in a situation where the national defence must be intensified and the national security reinforced further in order to safeguard Finland s independence and to maintain legal order. The extra powers defined in the Act may only be adopted if the powers specified in the Emergency Powers Act are not sufficient and only to the extent that this is necessary for meeting the objective of the Act. The Presidential Decree to be issued by virtue of the Emergency Powers Act and the State of Defence Act must indicate the legal provisions that are made to apply, and if the powers specified in these provisions are not to be used throughout Finland, their territorial limits must be indicated General principles of preparation for emergencies The objective in preparing for emergencies is to prevent disturbance and crisis situations from arising and to create prerequisites for controlling these situations and their consequences. In particular, precautions are taken to maintain the preconditions for society s existence and to guarantee citizens safety and live- 15

18 lihood. In addition, effort is made to ensure that the authorities are able to discharge their duties with as few disturbances as possible in emergencies of different degrees. The Emergency Powers Act requires that the Government, the State administrative authorities, Stateowned enterprises, other government authorities and municipalities prepare for emergencies by drawing up preparedness plans and by making other advance preparations. The preparations are managed, monitored and coordinated by the Government and by each Ministry in its own administrative sector. The basic premise in preparedness planning is that activities during emergencies are based on the arrangements applied under normal conditions. Preparedness is raised and capacity is heightened as steadily as possible when the situation becomes more severe. 2.2 Regulations and principles concerning communications Even during emergencies, government communications is based on the legislation for normal conditions, which is supplemented by certain provisions in the Emergency Powers Act (1080/1991) and the State of Defence Act (1083/1991). The general principle is that the direct management of government communications is vested in the Prime Minister s Office. Sections 13 and 14 of the State of Defence Act contain provisions about cases in which the Government may place mass communications or a body carrying out mass communications, or some other corresponding aspect of communications under its supervision and may inspect programmes or communications in advance. By virtue of the State of Defence Act, the Government must appoint an advisory board for the duration of the state of defence. The advisory board consists of representatives of newspapers and magazines, the Finnish Broadcasting Company, cable transmission operators, and the relevant administrative branches. 2.3 Communications in emergencies less severe than war Responsibility for communications The Prime Minister s Office is responsible for the general development and coordination of government communications both in normal conditions and in emergencies. In practice, the responsibility rests with the Government Communications Unit. The Government Command Centre under the leadership of the Prime Minister s Office is reinforced with communications services for emergencies and with the supporting research and liaison activities. The Command Centre s communications is organised under the Director of Government Communications. The authorities step up their communications efforts without centralised guidelines and, in accordance with the normal practice, also disseminate information about the impacts of the situation and about the special arrangements needed. Ministries may start to coordinate communications in their administrative sectors if the situation has a major effect on their activities. Then the Ministry s Communications Unit informs both the Government Communications Unit and other relevant authorities thereof. Otherwise, too, Ministries must keep the Government Communications Unit up to date about central issues that concern supervision of communications and communications arrangements in their administrative sectors. 16

19 The State Provincial Offices bear the main responsibility for regional communications. By virtue of 2 of the Act on State Provincial Offices, they coordinate the preparations for emergencies, as referred to in the Emergency Powers Act, by seeing to it that coordinated action is organised in their provinces as prescribed by law. As the crisis deepens, the State Provincial Offices must step up their communications preparedness in keeping with the demands of the situation, and they must check their communications policy outlines to ensure that they are in agreement with the principles followed in nationwide communications. The Governor is responsible for the organisation and overall contents of communications in State Provincial Offices. In practice, communications is managed by the Head of the Communications Unit, in line with the instructions and decisions issued by the Governor. For extra support, the Governor may also call together a group of communications experts comprised of representatives of State regional administration and the mass media. When the situation becomes more severe, the Communications Unit is expanded by establishing a Communications Department at the State Provincial Office. Reinforcement of the unit takes place primarily through transfers inside the administrative branch. If the situation requires centralised command preparedness, a command centre organisation may be established in the province. Within this organisation, the Communications Department works under the Head of Communications, who is a member of the management group at the State Provincial Office. Other regional administrative authorities, such as the Employment and Economic Development Centres and the Regional Environment Centres, must also intensify their communications efforts, as required by the situation. The Finnish Defence Forces raise their communications preparedness in the same way as other authorities. The main duty of the Defence Forces is to disseminate information about the overall military situation and about the Defence Forces own operations Coordination of communications The Government Communications Unit s responsibility in the coordination of communications is highlighted as the situation becomes more acute. In such a case, cooperation between the Communications Unit and other authorities is made closer, as needed. The need for contacts and cooperation with the Government Communications Unit increases if the situation requires that the authorities take some special action in addition to intensified communications. In practice this means, for instance, preventive measures in the authority s own administrative sector in order to limit the effects of the crisis. When the situation requires intensified measures among several different authorities, the Government Communications Unit is, as early and as closely as possible, linked to communications about affairs that are the responsibility of a specific authority. A cooperation group for communications, comprised of representatives of the pivotal administrative branches in the situation at hand, is established by Government decision at the latest when there is the threat of war. The cooperation group steers and coordinates the authorities nationwide communications in accordance with the Government s policy outlines and separate decisions. 17

20 2.3.3 Transfer of responsibility for communications As the crisis deepens, responsibility for communications may have to be transferred, either in part or in full, from the specialised authorities to the Government Communications Unit. By virtue of the preparedness legislation, the Government decides on the time when responsibility for communications is transferred and on the scope of the transfer. The Director of Government Communications directs communications insofar as it concerns matters for which the Communications Unit has been made responsible. Other authorities continue to prepare and implement communications concerning their own sector. This work is coordinated by the Government Communications Unit and the cooperation group. At the same time, the communications efforts of all central authorities in the situation are made more efficient. While the Emergency Powers Act is being applied, the Government determines, as needed, when and to what extent government communications personnel are transferred to the Government Communications Unit Research and psychological defence Research supports the authorities decision-making, helps determine the factors that pose a threat to people s defence spirit and readiness, and helps combat the rise and spreading of rumours and false or misleading information. Proactive, efficient and comprehensive research creates a basis for influencing opinions and behaviour and for other methods of psychological defence. During emergencies, it becomes increasingly important to have fast and reliable surveys, to maintain the functional capacity of research institutes, and to have results that are comparable with situations in normal times. Similarly, the importance of surveys concerning special fields or target groups is accentuated. Overall responsibility for developing and implementing opinion, attitude and communications surveys concerning the State administration continues to rest with the Prime Minister s Office. The practical responsibility for planning and commissioning the surveys rests with the Government Communications Unit, which reserves the necessary personnel and briefs them about research activities conducted during emergencies. The research material is collected by commercial research institutes that have sufficient resources for the task. If the situation so requires, cooperation with research institutes and Statistics Finland is increased and intensified. Psychological defence with its various methods is an area of national defence that strengthens the nation s mental endurance. It means reactive and active measures that are taken for maintaining and strengthening one s own defence spirit and morale when there is the threat of war or when war has broken out. Measures of this type are also meant to influence the international community. In regard to the civilian authorities, the Prime Minister s Office is responsible for making provision for psychological defence and for planning and preparing it. The Defence Forces are responsible for preparing for psychological defence and for keeping up and strengthening the morale in military defence. 18

21 2.3.5 Role of the mass media During emergencies, all means possible must be used to ensure the functional capabilities and independence of the mass media. The Ministry of Transport and Communications guides the electronic mass media in technical preparations and supervises the standard and development of preparations made by enterprises in the sector. The main responsibility for developing and maintaining the operational readiness of the press rests with publishers. The Finnish Broadcasting Company has the most important role among the electronic mass media. The company s objective is to continue its operations at the normal service level and with as few organisational changes as possible. Besides providing timely and reliable news service, the Finnish Broadcasting Company plays a special role in transmitting official bulletins. Newspapers and magazines must be prepared for threats concerning, in particular, electronic data transfer and the availability of printing paper. They must also be prepared for a fall in advertising income, changes in the publication frequency and circulation, problems in maintaining web services, and exceptional arrangements in transport and distribution. The press and the authorities must ensure the publication of a regionally and locally comprehensive selection of newspapers in all situations. 2.4 Communications during a war Government Information Centre At the latest when a state of defence is in force, nationwide communications is intensified and centralised by establishing a Government Information Centre in connection with the Government Command Centre. The Information Centre is divided into three functional wholes: communications; research and psychological defence; and contacts with organisations, enterprises and corporations. Communications The Communications Unit of the Government Information Centre consists of the Government Communications Unit reinforced with communications personnel from various Ministries and administrative bodies under them. Working under the Director of Government Communications, the unit s primary task is to manage communications in matters under the Prime Minister s responsibility. The unit is also responsible for communications to the Finnish media and is prepared to assist the Office of the President of the Republic. The Communications Unit of the Government Information Centre and the cooperation group for communications work closely together. Under their steering and coordination, the Communications Units of Ministries continue their own activities. The unit also works in close cooperation with the Department for Communication and Culture of the Ministry for Foreign Affairs. They are together responsible for producing communications services for the representatives of international media who work in Finland and arrive here. 19

22 By virtue of the preparedness legislation, the Government decides whether communications issues under the responsibility of Ministries should be transferred to the Communications Unit of the Government Information Centre. Research and psychological defence The importance of surveys is heightened when the crisis deepens to warfare. Their primary purpose is quickly to give a reliable and accurate picture of the development of the morale on the home front, and to support the various methods of psychological defence. The Research Unit of the Government Information Centre is divided into two sections. The first of these monitors and analyses the opinion and attitude climate and the Finnish and foreign mass media, while the second is responsible for implementation of psychological defence. Among other things, the second section plans and implements communications campaigns to maintain and strengthen the nation s psychological crisis tolerance. Its duties also include the neutralisation of rumours and false information, as well as the neutralisation of propaganda and the production of counter-propaganda. The measures of psychological defence are planned on the basis of surveys focusing on opinions, attitudes and communications. Responsibility for the planning and practical implementation of the surveys is divided as follows: The Research Unit of the Government Information Centre bears the main responsibility for the planning and analysis of surveys. Commercial research companies bear the main responsibility for the practical execution of the surveys; whenever necessary, they also share the responsibility for planning and implementation. Statistics Finland shares the responsibility for implementing the surveys; whenever necessary, it also shares the responsibility for planning and analysis. The Population Register Centre bears the main responsibility for keeping population registers and supports the work done by Statistics Finland. Contacts The Liaison Unit maintains contacts with organisations, enterprises and corporations. Together with the Research Unit, it also participates in the planning and implementation of communications campaigns Regional communications A provincial command centre organisation is established in the province for the direct management, supervision or steering of the State Provincial Office, for ensuring rapid access to information, and for facilitating decision-making and contacts. The command centre organisation, working under the Governor, keeps the command centre of the Ministry of the Interior, and other central administration and cooperation authorities, up to date about the situation prevailing in the province. The Communications Department included in the organisation is responsible for the State Provincial Office s communications, for monitoring the most important mass media and the opinion and attitude climate in the region, and for contacts with the principal organisations working in the region. Whenever necessary, the Communications Department participates in the 20