Mainstreaming System Resilience Concepts into Transportation Agencies: A Guide (2021)

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50 Step 3 recognizes the importance of effective external communica- tions in supporting and advancing your agency’s resilience strategy. An effective external communications strategy focuses on developing partnerships before disruptions occur (when developing resilient strategies, plans, and projects), during incident response (when coordinating emergency response and recovery), and after events with communities, policymakers, businesses, and general system users (What are the next steps? What are the lessons learned? Etc.). This step is positioned in the early phase of the Framework in recognition of the need for successful program implementation to be supported by numerous external partners and enabling groups (such as legislatures). Effective external communications that illustrate and explain the benefits of your agency’s resilience strategy will be an important foundation for your agency’s efforts to develop collaborative partnerships that will support your program. As it relates to those who provide funding and other resources to your agency, such communi- cations can enable changes in agency practices and the types of projects funded in the capital program. This step intends to examine both communications to a range of audiences in response to an incident as well as how an agency might communicate with external audiences to build a case for investment in resilience. Every effective communications plan identifies the audiences that are targeted for different types of information and marketing materials. With respect to resilience, these audiences will vary by purpose of the communication. For example, if an agency is seeking additional funding for a new resilience initiative, the audiences might be the governor, governor’s staff, legislators, legislative staff, partner agencies, industry and professional groups, and the general public. The content of the information would likely focus on the expected benefits of investing in a resilience strategy. The intent of a communications plan is thus to identify the different audiences that would be the focus of external information, the messages that might be sent, and the different media that could be used. For those using the self-assessment tool for this step, note that efforts to enhance internal coordination through improved communications were part of Step 2: Organize for Success. Effective external communications will also be an important consideration in other steps of the Framework. Such consideration relates primarily to the need for communication channels among the different agencies that participate in collaborative resilience actions. For example, several factors in Step 8A: Assess Strategies for Enhancing Emergency Response Capabilities and Agency Preparedness relate to the communication interactions among the agencies involved in incident or disaster response. Similarly, the factors in other steps that relate to cyberattacks against an agency’s command-and-control capabilities include concerns about disruptions to an agency’s communications systems. C H A P T E R   5 Develop an External Communications Strategy and Plan (Step 3)

Develop an External Communications Strategy and Plan (Step 3) 51   Capability Factors and Levels of Maturity Factor 3.1: Does your agency have an external communications strategy that supports your resilience program? The first factor examines the depth and breadth of your agency’s external communications strategy as it supports all aspects of your agency’s resilience efforts (which, as noted above, are found in other self-assessment steps). Developing an external communications strategy includes understanding the audiences for communications efforts, the major purposes for different components of such efforts, and how the strategy supports individual resilience actions of your agency. The major distinction among the maturity levels of this factor is defined as the degree to which your agency has developed and formally implemented an external communications strategy. • Level 1: Our external communications strategy is primarily based on resilience-related information provided by different agency units. Depending on the audience, this infor- mation is compartmentalized to specific agency actions (e.g., emergency response). • Level 2: We have developed an external communications strategy based on an agency-wide perspective of what resilience means to the transportation system and to society in general. This strategy includes targeted resilience information for different audiences. The strategy focuses on past system disruptions/impacts and the benefits of avoiding or minimizing such impacts in the future. • Level 3: We have achieved Maturity Level 2. In addition, we update our strategy annually based on feedback on the effectiveness of past efforts and lessons learned from our agency’s resilience accomplishments. It includes information on future key hazards and threats to the transportation system including climate change and how our agency is dealing with these issues. Factor 3.2: Has your agency published a communications plan or documented the strategy in some other way as part of your external communications strategy? Documenting your external communications plan serves several purposes. First, it describes how your agency is going to reach out to groups and agencies that are important to support your agency’s efforts. Second, it serves as a benchmark on which success or some level of progress in implementing your communications strategy can be determined. Third, the document itself becomes an important educational, marketing, and informational resource to explain why resilience is so important to your agency and to the communities the transportation system serves. Finally, if updated periodically, it can be an important means to convey the latest agency successes and help make the business case for investments in a more resilient transportation system. The major distinctions among the maturity levels in this factor reflect the degree to which formal documentation on external communications is available and the level of agency coordination in developing related documents. • Level 1: Documentation on external communication efforts is the responsibility of individual units in our agency. Thus, this information is scattered across multiple documents and is utilized as needs arise. Documents are updated at the discretion of unit managers. • Level 2: We have developed an agency document that contains sections on each of our agency’s unit-specific external communications efforts. The document is updated infrequently. It is not widely circulated outside our agency, and it is primarily used to communicate to agency staff how we are reaching out to external groups. • Level 3: We have a publicly available document (a plan) that comprehensively describes all aspects of the resilience communications strategy. Updates to the document are made on a

52 Mainstreaming System Resilience Concepts into Transportation Agencies: A Guide regular basis. The document is widely circulated as part of our efforts to raise awareness of our agency’s resilience efforts. Factor 3.3: To what extent has staff from different units in your agency been involved in the development of the external communications strategy? Given that many different units in your agency have a role in developing and implementing an agency-wide resilience strategy, an effective and credible communications strategy should include participation from your agency of those units most knowledgeable about ongoing and needed resilience efforts. Not only does this help in developing a strategy that is based on what your agency is doing (and thinking of doing), but it also provides another means of obtain- ing buy-in to your agency’s resilience efforts from agency staff. This factor does not mean that every unit within your agency needs to participate in developing the external communications strategy, but rather opportunities for such involvement should be available and participation encouraged by agency leadership. The major distinction among the different maturity levels in this factor reflects the degree to which opportunities are provided for different staff across your agency to participate in developing and updating the communications strategy. • Level 1: We ask different units in our agency to provide input as the external communications strategy is developed and updated. This participation, which is used to highlight what our agency is doing to enhance transportation system resilience, is informal. • Level 2: We have a process for developing the external communications strategy that includes the participation of different agency units. Such participation is requested by the agency’s CEO. Updates to the strategy, however, are primarily done by our agency’s communications/ information office. • Level 3: We have a formal mechanism (e.g., task force, committee, or the like) to guide the development of the external communications strategy that has representation from resilience- related units in our agency. The process of developing and updating the communications strategy includes the involvement of this group. Factor 3.4: Does your external communications strategy provide information on the general topic of resilience as well as background on the natural and human-caused hazards and threats facing the transportation system? One indicator of having an inclusive external communications strategy is whether it covers the full range of resilience concerns facing the transportation system. This includes providing information on the topic of transportation system resilience and more detailed information on the types of hazards and threats facing the system. In addition, the strategy should explain how your agency will address each of these threats and hazards and what this means to the businesses and residents in your jurisdiction. The distinction among the levels of maturity reflects the breadth of information provided in the materials and information produced as part of the communications strategy. • Level 1: We focus our communications strategy in general terms on what transportation system resilience means to our agency. • Level 2: We include information in our communications strategy on past hazards and associ- ated system disruptions. We emphasize what such disruptions have meant to transportation system performance. • Level 3: We include information on current and future hazards and human-caused threats facing the transportation system in our communications strategy. In addition, we explain

Develop an External Communications Strategy and Plan (Step 3) 53   what such hazards and threats mean to the transportation system, system users, and to society in general. We update our communications information every year with examples of the latest efforts by our agency to make the system more resilient. Factor 3.5: Does your agency’s external communications strategy include multiple means of outreach (written materials, web-based capabilities, social media, speaker’s bureau, and the like)? Key constituency groups and stakeholders for your agency utilize different means of obtaining and digesting information. A fully engaged strategy for outreach will ideally capitalize on the different means of providing information to interested parties and of allowing feed- back and input from these groups. The major distinction among the maturity levels reflects the degree to which the external communications strategy includes a range of media and tools for disseminating information and providing channels of feedback. • Level 1: We focus our communication efforts on a few means of providing outreach and information dissemination. • Level 2: We use all communication means of providing information on resilience efforts in our agency. • Level 3: We have achieved Maturity Level 2. In addition, we use our media outreach to not only disseminate resilience information but also to provide opportunities for different groups to give us input on what we are doing as well as on what we should be doing. Factor 3.6: Does the external communications strategy include a social media outreach capability? A robust and comprehensive external communications strategy should include a range of means to communicate and disseminate information on your agency’s resilience efforts. In today’s communications environment, this needs to include social media. This could include many different outreach capabilities—from Twitter feeds, an agency Facebook page, and blogs to apps targeting different market segments. The distinction among the different levels of maturity for this factor reflects the degree to which the use of social media is incorporated into the external communications strategy. • Level 1: We use social media as an important means of conveying information to the public during emergencies and system disruptions. • Level 2: We use social media updates to provide information on agency resilience efforts to many different audiences. These updates focus on both examples of how we respond to disruptions as well as more general information on how important system resilience is to the day-to-day lives of our citizens. • Level 3: We target our resilience-oriented social media efforts on different market segments. The social media capability allows for input and feedback during policy development, project development, and project construction. Public feedback is sought on resilience priorities and long-term investment in resilience projects. Factor 3.7: Does your agency’s website include information on your resilience strategies, programs, and projects? Resilience actions and programs are often based on comprehensive, evidence-based, and collaborative efforts to develop internal and external support for these programs. An agency website is often the major means of conveying information by making use of a familiar and easy-to-use information platform. A website can also provide an ability for external groups to

54 Mainstreaming System Resilience Concepts into Transportation Agencies: A Guide offer comments on your agency’s resilience efforts and/or to respond to targeted questions on resilience priorities, programmed actions, or ongoing resilience initiatives. The major distinc- tion among the maturity levels for this factor is the level to which resilience information is provided on your agency’s website. • Level 1: We include resilience-related information on our website as part of our general infor- mation dissemination. Such information is provided by agency resilience-oriented units on an ad hoc basis. • Level 2: We have a resilience section on our webpage. Resilience information is updated on the website on a quarterly basis with information requests to all units in our agency having resilience roles. • Level 3: We have achieved Maturity Level 2. In addition, the webpage is part of an integrated approach to link this information to strategic outreach efforts and to provide information on hazards and threats facing the transportation system. The webpage provides capabilities for external individuals and groups to provide input into our resilience efforts. Factor 3.8: Does your agency have a point of contact or spokesperson on resilience topics, including a contact for incident responses? Having an informed and consistent voice and point of contact for resilience topics provide an important foundation for your external communications strategy. This point of contact can help support rolling out new resilience policies, coordinate multi-agency partnerships in disaster response, and provide information on the hazards and threats facing the transportation system. This point of contact that is trusted by the media can also serve as a credible source of information on major traffic incidents, which will also feed into public perception of your agency’s competence. The distinctions among the maturity levels in this factor reflect the level of engagement and scope of duties assigned to the contact person and efforts to ensure consistent messaging. • Level 1: We have assigned resilience points of contact in each of our agency’s resilience- oriented units. There is coordination among these staff on the resilience “message” for our agency. A separate point of contact is responsible for coordination/outreach during emer- gencies and major disruptions. • Level 2: We have a point of contact for all resilience efforts in our agency. This contact relies on resilience information from individual agency units, which is often produced in response to urgent requests for such information. A separate point of contact is responsible for coordination/outreach during emergencies and major disruptions. • Level 3: We have achieved Maturity Level 2 except that now we have identified a single point of contact for all resilience actions (including during emergencies and major disruptions). This point of contact also works with other agencies to ensure consistent and coordinated resilience messaging. During emergencies or major incidents, this point of contact is respon- sible for coordinating and leading communications among the various agencies involved. Factor 3.9: Has your agency coordinated your external communications strategy with other partner agencies? As noted throughout the guide, many resilience efforts include the collaborative efforts of many different agencies. A good example includes the efforts of different agencies in responding to major crashes. For resilience more broadly, consistent messages could relate to the identifica- tion of the hazards and threats facing the transportation system and other sectors; the actions of public agencies in responding to associated risks; the costs of system disruptions to your

Develop an External Communications Strategy and Plan (Step 3) 55   agency, system users, and to society in general; and the types of actions the public and businesses can take to support system resilience. The distinction among the maturity levels for this factor relates to the degree of coordination that occurs in making the resilience message and resilience information consistent across all relevant agencies. • Level 1: We monitor the information dissemination and communication relating to resilience efforts of partner agencies. The messaging and the type of information provided by these efforts are considered when we develop our own communication materials. • Level 2: A mechanism for coordinating resilience information among relevant agencies has been created. This coordination group serves as a means of exchanging information and ideas on how resilience information should be disseminated to various audiences. • Level 3: We have achieved Maturity Level 2. In addition, the coordination group prepares materials and webpage information that is used by each agency participating in the group to provide consistent messaging. Table 9 shows the factors that are included in the self-assessment tool for Step 3. The maturity levels for each factor are presented in the descriptions of each factor. Recommended Actions to Maintain the Highest Level of Agency Resilience Capability The highest level of capability for external communication includes a fully integrated, active, and enabled strategy to provide information to and opportunities for input from key stake- holders and constituencies. If your agency has reached Level 3, the highest level of agency capability, the following recommended actions focus on maintaining this level. • Periodically assess the external communication strategy in light of new developments in your agency’s resilience efforts. This assessment might be led by internal staff or possibly by a third-party reviewer. • Periodically assess the successes and failures in communication strategies to identify those that have been effective and those that may need to be adjusted or discarded from use. This will permit the agency to emphasize communication strategies that have proven successful. • Possibly as part of the previous recommendation, survey targeted audiences to determine which resilience information is reaching them and if they understand the messages that are trying to be conveyed. • Continue to support a broader communications strategy that includes other agencies to promote consistent messaging on the importance of resilience in the transportation system. • Update and refine the information disseminated on your agency’s resilience efforts. Updates should occur on a set schedule. • Update and refine the media that uses this information (e.g., your agency’s website). Make sure old information is removed or updated regularly to ensure that the most recent infor- mation is provided. • Meet with communications leads from peer transportation agencies to learn about new communications strategies and innovative ways of conveying resilience information. Explore the possibility of jointly developing background material on system resilience for use by all peer agencies. • Participate in national resilience meetings to share the experiences of the external commu- nication strategy and get input and feedback from state and national agency staff engaged in similar programs. If you did not score a 27 in the assessment (a perfect score in Level 3 efforts), identify those factors that were rated lower and identify a strategy or action steps to improve these particular components of Step 3.

Maturity Factor Level 1 (1 point) Level 2 (2 points) Level 3 (3 points) 3.1 Does your agency have an external communications strategy that supports your resilience program? Our external communications strategy is primarily based on resilience-related information provided by different agency units. Depending on the audience, this information is compartmentalized to specific agency actions (e.g., emergency response). 3.2 Has your agency published a communications plan or documented the strategy in some other way as part of your external communications strategy? Documentation on external communication efforts is the responsibility of individual units in our agency. Thus, this information is scattered across multiple documents and is utilized as needs arise. Documents are updated at the discretion of unit managers. 3.3 To what extent has staff from different units in your agency been involved in the development of the external communications strategy? We ask different units in our agency to provide input as the external communications strategy is developed and updated. This participation, which is used to highlight what our agency is doing to enhance transportation system resilience, is informal. We have a publicly available document (a plan) that comprehensively describes all aspects of the resilience communications strategy. Updates to the document are made on a regular basis. The document is widely circulated as part of our efforts to raise awareness of our agency’s resilience efforts. We have a formal mechanism (e.g., task force, committee, or the like) to guide the development of the external communications strategy that has representation from resilience-related units in our agency. The process of developing and updating the communications strategy includes the involvement of this group. We have achieved Maturity Level 2. In addition, we update our strategy annually based on feedback on the effectiveness of past efforts and lessons learned from our agency’s resilience accomplishments. It includes information on future key hazards and threats to the transportation system including climate change and how our agency is dealing with these issues. We have developed an agency document that contains sections on each of our agency’s unit-specific external communications efforts. The document is updated infrequently. It is not widely circulated outside our agency, and it is primarily used to communicate to agency staff how we are reaching out to external groups. We have a process for developing the external communications strategy that includes the participation of different agency units. Such participation is requested by the agency’s CEO. Updates to the strategy, however, are primarily done by our agency’s communications/information office. We have developed an external communications strategy based on an agency-wide perspective of what resilience means to the transportation system and to society in general. This strategy includes targeted resilience information for different audiences. The strategy focuses on past system disruptions/impacts and the benefits of avoiding or minimizing such impacts in the future. Table 9. Assessment table for Step 3: Develop an External Communications Strategy and Plan.

3.5 Does your agency’s external communications strategy include multiple means of outreach (written materials, web-based capabilities, social media, speaker’s bureau, and the like)? We focus our communication efforts on a few means of providing outreach and information dissemination. We use all communication means of providing information on resilience efforts in our agency. We have achieved Maturity Level 2. In addition, we use our media outreach to not only disseminate resilience information but also to provide opportunities for different groups to give us input on what we are doing as well as on what we should be doing. 3.6 Does the external communications strategy include a social media outreach capability? We use social media as an important means of conveying information to the public during emergencies and system disruptions. We use social media updates to provide information on agency resilience efforts to many different audiences. These updates focus on both examples of how we respond to disruptions as well as more general information on how important system resilience is to the day-to-day lives of our citizens. We target our resilience-oriented social media efforts on different market segments. The social media capability allows for input and feedback during policy development, project development, and project construction. Public feedback is sought on resilience priorities and long-term investment in resilience projects. 3.7 Does your agency’s website include information on your resilience strategies, programs, and projects? We include resilience- related information on our website as part of our general information dissemination. Such information is provided by agency resilience- oriented units on an ad hoc basis. We have a resilience section on our webpage. Resilience information is updated on the website on a quarterly basis with information requests to all units in our agency having resilience roles. We have achieved Maturity Level 2. In addition, the webpage is part of an integrated approach to link this information to strategic outreach efforts and to provide information on hazards and threats facing the transportation system. The webpage provides capabilities for external individuals and groups to provide input into our resilience efforts. 3.4 Does your external communications strategy provide information on the general topic of resilience as well as background on the natural and human-caused hazards and threats facing the transportation system? We focus our communications strategy in general terms on what transportation system resilience means to our agency. We include information in our communications strategy on past hazards and associated system disruptions. We emphasize what such disruptions have meant to transportation system performance. We include information on current and future hazards and human-caused threats facing the transportation system in our communications strategy. In addition, we explain what such hazards and threats mean to the transportation system, system users, and to society in general. We update our communications information every year with examples of the latest efforts by our agency to make the system more resilient. (continued on next page)

Score Range Description of Agency Maturity in Developing an External Communications Strategy and Plan 0 to 12 Your agency is emerging into this area and has taken initial steps to grow its capabilities in communicating resilience to external agencies and 13 to 23 Your agency has implemented several effective external communication strategies, not so much as part of a comprehensive agency-wide approach but rather due to the initiative of agency staff. 24 to 27 Your agency has reached significant maturity in establishing and maintaining an effective external outreach strategy and plan and has processes and platforms that provide consistent information to be provided to interested parties. stakeholders. Maturity Factor Level 1 (1 point) Level 2 (2 points) Level 3 (3 points) 3.8 Does your agency have a point of contact or spokesperson on resilience topics, including a contact for incident responses? We have assigned resilience points of contact in each of our agency’s resilience-oriented units. There is coordination among these staff on the resilience “message” for our agency. A separate point of contact is responsible for coordination/ outreach during emergencies and major disruptions. We have a point of contact for all resilience efforts in our agency. This contact relies on resilience information from individual agency units, which is often produced in response to urgent requests for such information. A separate point of contact is responsible for coordination/outreach during emergencies and major disruptions. We have achieved Maturity Level 2 except that now we have identified a single point of contact for all resilience actions (including during emergencies and major disruptions). This point of contact also works with other agencies to ensure consistent and coordinated resilience messaging. During emergencies or major incidents, this point of contact is responsible for coordinating and leading communications among the various agencies involved. 3.9 Has your agency coordinated your external communications strategy with other partner agencies? We monitor the information dissemination and communication relating to resilience efforts of partner agencies. The messaging and the type of information provided by these efforts are considered when we develop our own communication materials. A mechanism for coordinating resilience information among relevant agencies has been created. This coordination group serves as a means of exchanging information and ideas on how resilience information should be disseminated to various audiences. We have achieved Maturity Level 2. In addition, the coordination group prepares materials and webpage information that is used by each agency participating in the group to provide consistent messaging. Table 9. (Continued).

Develop an External Communications Strategy and Plan (Step 3) 59   Recommended Actions to Achieve Higher Levels of Resilience Capability If you scored at Level 1 or 2, you are just starting your evolution toward a more resilience- oriented external communications strategy. In such a case, communications leads within the agency should identify which of the factors in Table 9 were most lacking based on scoring and determine priorities for improving external communications as part of your resilience efforts. Table 10 is offered as a template to determine which steps your agency can take to improve its resilience capabilities, who should be responsible, the timeframe for implementation, and expected outcomes. Table 10. Actions to achieve higher maturity for Step 3: Develop an External Communications Strategy and Plan. Let’s do this. (check) Action Re sp on si bi lit y? Ti m ef ra m e? Ex pe ct ed ou tc om es ? Conduct a self-assessment of your agency’s resilience-oriented external communication efforts. Conduct self-assessments of the external communications role of those agency units that are particularly relevant to system resilience. Examine what roles these units can play in your agency’s overall resilience communications strategy. Create a coordination mechanism in your agency to contribute to the development of an external communications strategy. Create a common point of contact for requests for resilience information. Make sure your agency’s communication strategy for major incidents/disruptions is clearly understood by agency staff. If not already, evolve the point(s) of contact for incident response into your point of contact for overall resilience information. Examine the possibility of creating a coordinating mechanism (or participating in an existing one) among partner agencies to coordinate the resilience message and to produce common resilience material. Prepare a written document describing your resilience external communications strategy (e.g., a communications plan). This document should describe the rationale for the program, how it will be structured, target audiences, action items, and implementation responsibilities. Seek input from the public, key stakeholders, and other constituencies on the type of resilience information they would like to receive. Use this input to develop targeted outreach tools and media to provide such information. (continued on next page)

60 Mainstreaming System Resilience Concepts into Transportation Agencies: A Guide Useful Resources AASHTO. 2015. Managing Catastrophic Transportation Emergencies: A Guide for Transportation Executives. Washington, DC. Retrieved June  15, 2020, from https://ctssr.transportation.org/wp-content/uploads/ sites/54/2017/10/Managing-Catastrophic-Transportation-Emergencies.pdf AASHTO. 2017. Communications Guide for State Departments of Transportation. Center for Environmental Excellence. Washington, DC. Retrieved June  15, 2020, from https://fundingfinance.transportation.org/ wp-content/uploads/sites/16/2018/11/Communications-Guide-for-State-DOTs-NCHRP-2017.pdf Brighthub Project Management. 2008. Why You Need a Stakeholder Communication Plan Including Template, Developing a Good Plan. Website. Retrieved June 15, 2020, from https://www.brighthubpm.com/project- planning/15148-elements-of-a-stakeholder-communication-plan/ FHWA. 2007. Best Practices in Emergency Transportation Operations Preparedness and Response: Results of the FHWA Workshop Series. Report FHWA-HOP-07-076. Washington, DC. Retrieved June 15, 2020, from https://ops.fhwa.dot.gov/publications/etopr/best_practices/etopr_best_practices.pdf FHWA. 2019. STIC (State Transportation Innovation Councils). Communication Is Key: Items to Consider. Washington, DC. June 15, 2020, from https://www.fhwa.dot.gov/innovation/resources/stic_communication_ key.pdf NOAA. n.d. Seven Best Practices for Risk Communication (Self-Guided Module). Website. Retrieved June 15, 2020, from https://coast.noaa.gov/digitalcoast/training/best-practices-module.html Stein, K. and R. Sloane. 2001. NCHRP Web Document 39: Managing Change in State Departments of Trans­ portation: Innovations in DOT Communications, Image, and Positioning. TRB, National Research Council, Washington, DC. Retrieved June 15, 2020, from http://onlinepubs.trb.org/onlinepubs/nchrp/nchrp_ w39-4.pdf WikiHow. 2019. How to Write a Strategic Communications Plan. Retrieved June 15, 2020, from https://www. wikihow.com/Write-a-Strategic-Communications-Plan Table 10. (Continued). Establish a social media account that disseminates information relating to resilience. Possible steps for Step 4: Implement Early Wins Let’s do this. (check) Action Re sp on si bi lit y? Ti m ef ra m e? Ex pe ct ed ou tc om es ? Develop documentation that clearly outlines the intent, benefits, and expected outcomes of your agency’s resilience program and ensure that all agency personnel are aware of the key messages in this material. Prepare and utilize graphic material that can be used in social media outreach efforts to summarize the benefits of resilience programs.