To establish specific guidelines for the management of media relations at crisis situations, natural or manmade disasters, riots, or other major emergency situations.
A. INTRODUCTION - A crisis is an event that triggers a real, perceived, or possible threat to life, health and safety, the environment, the economy, or the organization’s credibility. Crises include any serious law enforcement or criminal justice event that poses a threat to people or property.
Division employees at the scene of a crisis situation naturally see their mission as uppermost in priority. Since a crisis is often a "high visibility" incident, law enforcement personnel are acutely aware that their performance must be procedurally correct. They naturally resist any activity by the media or others that interferes with the operation.
The media, on the other hand, expect that their reporting function will be facilitated by law enforcement agencies. They want to see and hear things that are denied to curious bystanders. They expect cooperation from law enforcement agencies. The claims of the public concerning their "right to know" cannot be lightly dismissed. Such claims are supported by the First Amendment, as well as by legislative and judicial authorities.
During crises, close and cooperative relations with the media are essential. The media become the eyes and ears of the public when attention is focused on law enforcement efforts to quell the situation. How the Division is viewed by the public will, to a great extent, be based upon what is reported by the media and how it is presented.
B. POLICY STATEMENT - Division employees should cooperate fully with the media, trusting the professional judgment (and self-interest) of the news media to censor themselves. However, there are exceptions discussed in this policy. Division employees must treat the media with respect, while showing no favoritism. Both parties benefit when they work together. While this policy primarily provides guidelines for command personnel at crisis situations, immediate actions by first-responder officers to implement procedures relating to access controls and subsequent actions by support personnel can be critical for the overall effective management of the crisis and for successful media relations.
C. PRE-CRISIS MEDIA INVOLVEMENT (If Applicable)
1. Conduct a briefing on the operation several days in advance.
2. Reach an agreement on the media’s role and the procedures they should follow.
3. Anticipate problems and provide solutions.
D. MEDIA INVOLVEMENT AFTER THE CRISIS BEGINS - Usually, the Division can operate more effectively and efficiently without involving the media during the early stage of a crisis or operation. Late involvement may prevent the media from inflaming or inciting further discord, prevent the subject of the operation from getting advance information, maintain the safety of the officers and the public, facilitate access to the crisis by avoiding heavy media and casual observer traffic, and provide time to secure the scene and establish the media observation area. Commanders should take the following steps to ensure that the Division has more time to conduct operations:
1. Take internal measures to stop leaks by officers and staff.
2.Organize personnel to help with the crisis by issuing news releases, contacting the media on updates, etc., depending on the crisis and its size and duration.
3. Restrict or close the air space above the scene, if required. The Field Operations Commander or designee should make the initial contact with the Federal Aviation Administration (FAA).
E. PLANNING FOR MEDIA ACCESS
1. Establish an outer perimeter for the general public at the outset.
2. Establish a media observation perimeter (or media area) within the outer perimeter. Such close access is essential for legitimate media personnel.
a. Safety and ability to maintain fluid operational activities will dictate the location of this area and how long it will be maintained.
b. It may be necessary to ask media representatives for identification in order to screen out non-media personnel who wish to gain closer access. Those who cannot produce proper identification may be refused entry to this area or permission to cross law enforcement or fire lines. Violators of the rules will lose their pass privileges, will have their temporary media ID card (HP-1G) revoked, or may be arrested.
c. Be sure the position of the media area will not impede regular law enforcement operations, traffic, or life-saving efforts.
d. Be sure the area is large enough for the anticipated number of media personnel. Provide a specific area and access for large television trucks, as needed.
e. Generally, establish this area within the first 30 minutes of a crisis.
f. Designate an officer to check credentials, control media access to and movement within the secured perimeter.
g. Instruct all Division employees to extend every courtesy to identifiable media representatives covering the crisis.
3. Establish the Division’s media command center within the law enforcement operations area.
a. Place it close to the media observation area, since this is where the Division will conduct briefings.
b. Position it close to but separate from the law enforcement operations center; media personnel should not be permitted in the operations center.
c. Establish direct lines of communication with the operations command post.
4. Authorize Public Information Officer(s) (PIO) direct access to the command center. The PIO and commander-in-charge should jointly confer on what information will be released.
5. Consider whether the Division should issue temporary media identification cards (HP-1G). Ask the media to go to the designated media area rather than directly to the scene, where their presence may heighten the disturbance or interfere with efforts to establish control.
6. Identify a single spokesperson. The spokesperson should be a PIO or a designated officer trained in working with the media. Ideally, this person should not be the Superintendent or a commander who will be busy conducting operations. The spokesperson must:
- Project a strong, take-charge image to the media and give the distinct impression that the Division will provide all information throughout the crisis.
- Emphasize that reporters will get complete cooperation from the beginning and the whole story as the situation unfolds.
- Schedule the next news briefing.
- Be familiar with all aspects of the crisis, Division operations, and minute-by-minute developments.
- Field all media requests. Other Division staff must refer any requests to the spokesperson.
- Be as accessible as possible during the crisis.
7. Stabilize the crisis situation before working with the media.
a. Cooperation with the media during these busy times should start at the discretion of the commanding officer.
b. Conduct law enforcement business first. The release of information to the media should not take precedence over an officer’s responsibility to manage the crisis situation properly. Maintain your own timetable, not the media’s.
c. Do not be rushed; the media will understand.
d. Release what you want, when you want.
F. AS THE CRISIS STABILIZES
1. Conduct the initial news conference or "briefing."
a. Begin the briefing at a reasonable time; do not wait for all the media to arrive.
b. Avoid "exclusives" and individual interviews at this time.
c. Deliver a short statement; it may be appropriate not to take questions until the situation unfolds.
2. Define the crisis situation accurately and objectively for the media as soon as possible during an initial news conference.
a. The initial report should be calm and objective, present the overall picture, and be devoid of sensationalism, speculation, and rumors that could incite or further extend the disturbance or stir a new outbreak. It should be limited to incidents that were actually observed by an officer or reliable witness.
b. Determine the preliminary basic facts of the crisis and immediately provide them to the media.
c. Anticipate how the media will define the situation.
d. Respond to or at least acknowledge specific media requests immediately, even if it may be impossible to respond to all of them completely.
e. Be forthcoming early on so that the media cannot mis-define the situation.
f. Provide the information just as you would like to see the media write about the situation, and deliver it with the proper manner and tone.
g. Do not overemphasize isolated or trivial incidents. Provide perspective and balance to these situations.
h. Do not take questions if there are many unknowns during the early stages of the crisis. Too many "we don’t knows" can fuel speculation about the crisis (i.e., things are out of control), question the ability of the Division to be on top of the situation, and raise questions about a cover-up.
3. To the extent possible, make the media aware of the Division’s general plan for handling the problem. This will aid greatly in correctly interpreting and reporting enforcement activities. Detailed strategies and tactical operations should not be given to the media.
4. Ask for media cooperation.
5. Develop a complete list of reporters and media outlets interested in the situation.
6. Conduct periodic news conferences.
7. Avoid conducting "exclusive" interviews.
8. Audiotape each briefing.
9. Monitor all media reports on the crisis, taking notes, clipping all relevant stories, etc.
a. Have other personnel accurately report what others are saying about the situation and the agency.
b. Correct any misinformation as soon as it is reported. If you react immediately, other media are less apt to pick it up and report it again.
10. Clearly label your remarks to reflect if your investigation is preliminary or evolving. You may wish to use a time reference, such as "it is now 40 minutes since the accident occurred" or "the coroner arrived a few minutes ago." Doing so will prevent early accounts of the crisis from being misrepresented by the media or labeled an error if the situation changes radically.
11. Place restrictions on live interviews. If you agree to do live interviews, ask the media to provide specific questions in advance.
12. Coordinate the release of information with Division employees and other state and local agencies at the scene.
a. If the situation involves criminal activity, coordinate the release of information with the Office of Field Operations and Office of Investigative Services. Some information is critical to resolving the situation, especially if there is potential to expand the scope of the investigation.
b. Do not speak for other law enforcement or service agencies represented at the scene (e.g., fires, emergency medical services). Confine your comments to our Division.
G. CONTROLLING MEDIA ACCESS
1. Media Identification (HP-1G)
a. Media representatives will carry identification at all times and must present such identification at the request of an officer. The officer designated as "Public Information Officer" or his/her designee will be responsible for issuing "Temporary Media Identification Cards" (HP-1G) (if representatives do not possess Ohio Public Information Officer (OPIO) media cards) to all media representatives at the scene of an emergency. The card will be worn by the representative so that it is visible while the representative is within the restricted area(s). "Entrance" or "control points" will be established.
b. When it is necessary to restrict access to an emergency scene, arrangements should be made to permit media personnel to access as many areas as possible without disrupting the investigation and to protect evidence.
c. All officers engaged in restricting entrance to the scene are to be instructed of the function of the media identification card.
d. In those cases in which the Division is asked by other officials to restrict entrance into a scene, media personnel should be referred to the agency ordering such restriction.
e. There is no minimum number of temporary media identification cards that may be issued. The size of the scene and the nature of the emergency will govern the number of persons allowed access at any given time. All persons issued temporary media identification cards will be required to adhere to Procedure HP-1G.
2. Control the media’s access to the inner perimeter.
a. The media should be given justifiable and understandable reasons for denial of access.
b. The news media should not be allowed access to any scene that has been secured.
c. Access should be denied:
- To protect the lives of those already injured or those in danger of being injured.
- To preserve evidence of a crime or serious negligence that may be damaged, altered, destroyed, or prejudiced by being published or portrayed.
- To protect property.
3. Types of Access - News media representatives may be given access to crisis scenes. There are several types. They include:
- Unrestricted Access.
- Guided Access to crime scenes. Here media personnel are told where to stand, walk, and how close to get to specific items or areas.
- Pool Access - Media selects a few individuals to photograph and report on the crime scene for all other interested media. This is done when space is limited or to prevent damage to evidence.
- Rotation Pool Access - On long-duration crisis situations, media organizations take turns acting as pool reporters.
4. Media should be denied access to imminently dangerous areas. A reporter who enters this danger zone or refuses to obey a command to leave immediately should be removed using the least force necessary.
5. Access by other city and state agencies may also need to be controlled.
6. Pool Reporting - Provide limited access to the site through pool (and rotation) reporting. In general, agency personnel should not unnecessarily obstruct news media representatives in the performance of their duties. Any restrictions should be based only on Division policy and principles, not on any individual employee’s view of what constitutes an acceptable standard of journalism or photography.
When conditions make it impossible to allow many reporters and crew members into a site, the Division may suggest forming a media pool to limit the number of media personnel. The media may agree because it is better to get at least some videotape and reporting than none at all. Media personnel are familiar with the concept of a media pool.
Generally, the media present should choose the initial reporter and crew. One camera person and one newspaper reporter can be escorted from the perimeter to the scene. They act as the central distributors of information to other media members. If the news coverage is long, the pool reporter and crew can be rotated, allowing other media outlets to serve as the pool reporting team. Pool reporting is implemented as an accommodation to the media. The media have no right to be routinely escorted past police lines into dangerous areas.
H. PHOTOGRAPHING AND VIDEOTAPING
1. Generally, photographs may be taken from any area where the media have access.
2. Law enforcement personnel may not prevent a media representative from photographing. The Division is not a public arbiter of good taste. Restrictions on news media representatives should be based only on the responsibilities and principles contained herein and not on any individual member’s view of what constitutes an acceptable standard of journalism or news photography at the scene.
I. SPECIAL HOSTAGE AND TERRORIST SITUATIONS
1. Do not brief media on the details of the negotiation or the tactics employed. Do not provide the media, nor should they expect to receive specific information on:
- Process used by negotiators,
- Means of communication,
- Strategy used,
- Specific progress made, or
- Psychological techniques used.
- The media should not be briefed by the negotiator.
- Tape recordings of negotiation discussions should not be played for the media.
- The media should refer to the negotiation process as "discussions."
2. Conduct briefings away from the on-scene command post and out of the suspect’s view.
3. Ask the media to conform to some specific rules for hostage situations, which are based on the probability that the terrorist knows everything that is being broadcast:
a. Camera placement should consider the safety of police, hostages, bystanders, and the media personnel.
b. The media should limit the use of live telecasts, avoiding, for example, close-ups of the actual windows where police officers may be stationed.
c. The media must not interfere in police and terrorists’ communications.
d. The media should not deliberately inject themselves into the negotiations as intermediaries or as actual negotiators.
4. Place restrictions on media interviews.
a. Media personnel should not attempt to interview perpetrators by telephone or other means.
b. If multiple telephone lines are available to the perpetrator, the Division should consider disconnecting lines, changing telephone numbers, permitting only incoming calls, and eliminating all lines except one.
c. The Division should not arrange for the media to interview neighbors, friends, family, reporting parties, or victims. In general, however, no attempt should be made to stop the media from conducting such interviews.
d. The Division should not permit the media to interview relatives or friends of hostages or perpetrators who are brought to the scene by the Division.
5. Prohibit media lighting that illuminates law enforcement positions.
J. AS THE CRISIS ENDS
1. Lift access restrictions.
a. Access restrictions may be lifted as soon as possible after the processing of evidence has been completed.
b. Evidence may be covered or removed, witnesses removed, and other precautions taken to preserve the scene or protect the integrity of the investigation prior to admitting media to the scene.
c. Lift restrictions on airspace as soon as the dangerous situation has ended.
2. Release casualty lists as soon as possible.
3. Commanding Officer Interview - After the access restrictions are lifted, the media should be given an opportunity to interview a commanding officer(s) as soon as that person can provide some basic facts.
4. Conduct a post-crisis news conference.
a. When the crisis ends, make sure the media are immediately briefed.
b. Summarize events and take specific questions.
c. Identify the agency that now has responsibility for future releases of information.
d. Thank all those involved.
K. SELF-EVALUATION OF CRISIS MEDIA RELATIONS - Perform internal and external evaluations of the support the media received from the Division and determine how to work with them more effectively next time. This evaluation could include a debriefing session and should cover the following:
- What aspects of Division-media performance warrant improvement?
- Were there policies that were not followed or that need to be developed or revised?
- Were there communication problems between the law enforcement spokesperson and media personnel?
- Were there problems regarding the professional conduct of some staff?
- Did any confrontations require removing people from the controlled area?
- Was there favoritism toward any media representative?
- Was any information released that complicated the investigation or jeopardized a fair trial of the perpetrators?
- Were the rights of individuals (such as the hostages, witnesses, perpetrators) protected?
- Was there good coordination with other agencies during a multi-agency response?
L. CONCLUSION - The public information aspects of crises and other emergencies can be made to function smoothly with effective planning. What is essential is that the entire Division realize that public interest in crisis news is inevitable and recognize that each employee understand his or her part in achieving the mission.
Standard References
41.2.05 46.1.02 46.1.03 46.1.04 54.1.01
54.1.03