United States Environmental Protection k Aguncy Considerations in Risk Communication A Digest of Risk Communication as a Risk ManagementTool ------- Notice This document has been reviewed in accordance with U.S. Environmental Protection Agency policy and approved for publication. Mention of trade names or commercial products does not constitute endorsement or recommendation for use. ------- Foreword The U.S. Environmental Protection Agency (EPA) is charged by Congress with protecting the Nation's land, air, and water resources. Under a mandate of national environmental laws, the Agency strives to formulate and implement actions leading to a compatible balance between human activities and the ability of natural systems to sup- port and nurture life.To meet this mandate, EPA's research program is providing data and technical support for solving environmental problems today and building a science knowledge base necessary to manage our ecological resources wisely, understand how pollut- ants affect our health, and prevent or reduce environmental risks in the future. The National Risk Management Research Laboratory (NRMRL) is the Agency's center for investigation of technological and management approaches for preventing and reducing risks from pollution that threaten human health and the environment.The focus of the Laboratory's research program is on methods and their cost-effectiveness for prevention and control of pollution to air, land, water, and subsurface resources; protection of water qual- ity in public water systems; remediation of contaminated sites, sediments and ground water; prevention and control of indoor air pollution; and restoration of ecosystems. NRMRL collaborates with both public and private sector partners to foster technologies that reduce the cost of compliance and to anticipate emerging problems. NRMRL's research provides solutions to environmental problems by: developing and promoting technologies that protect and improve the environment; advancing scientific and engineering information to support regulatory and policy decisions; and providing the techni- cal support and information transfer to ensure implementation of environmental regulations and strategies at the national, state, and community levels. This publication has been produced as part of the Laboratory's strategic long-term research plan. It is published and made available by EPA's Office of Research and Development to assist the user com- munity and to link researchers with their clients. Hugh W. McKinnon, Director National Risk Management Research Laboratory ------- About This Digest This communication digest describes how risk communication tools can be developed to help manage an environmental risk to a community.The tools are key components of effective risk communication programs. These tools can be used by public health departments, county governments, local environmental organiza- tions, and other agencies faced with possible environ- mental or health risks to a community.This document outlines some planning and implementation steps to consider when communicating risks to the public.Tools and techniques developed for successful environmen- tal risk communication are also discussed, along with details on collaborative decision making and how it relates to risk communication. The U.S. Environmental Protection Agency (EPA) places a strong value on effectively communicating environmental risks to the public, and has developed programs emphasizing risk communication.The EPA's Environmental Monitoring for Public Access and Com- munity Tracking (EMPACT) program was established to demonstrate new monitoring and communication technologies that make it possible to provide environ- mental information to the public in near real-time.This program worked with the 86 largest metropolitan areas of the U.S. to help communities collect, manage and distribute time-relevant information, and provide resi- dents with easy-to-understand information they could use in making informed, day-to-day decisions. Specific case studies on new technologies developed through the EMPACT program are cited in the "Risk Communi- cation in Action: Case Studies" section of this digest. Introduction to Risk Communication Risk Communication is the process of informing people about hazards to their environment or their health. Communicating risk is a two-way exchange in which organizations inform target audiences of pos- sible risks, and gather information from those affected by the risk. Risk communication is a critical step in effectively defining and managing any crisis situation. Communi- cating a message with specific instructions and alter- natives regarding a health or environmental risk to a community can lead to successful risk management of a crisis. ------- Appropriate risk communication tools will commu- nicate to the public the magnitude of the risks involved in a particular situation and lay the groundwork for the trust that needs to be established between the commu- nity and the agency dealing with the risks involved. In many cases, risk communication is a parallel approach to traditional risk management. For example, while efforts are underway to reduce mercury levels in the air that pollute lakes and streams, risk communi- cation to reduce human consumption of affected fish populations can help reduce overall risk at a faster rate. For many environmental risks, such as skin can- cer caused by solar ultraviolet radiation, or mercury poisoning from contaminated fish, the challenge is to get people to participate in their own risk management by taking personal precautions. However, most people tend to make wise decisions about risk and ways to avoid it when they are given information they under- stand and can use in their everyday lives. In the 21st Century, the public is becoming more concerned with its environment, human health and safety. Citizens want answers to questions such as: • How safe is the water we drink? • How polluted is the air we breathe? • Is it dangerous to be outside? • What risk does the landfill down the street pose to my family and my community? When a community is faced with an environmental or human health risk such as a chemical spill, or a "boil water" emergency, it is essential for local and state environmental agencies and health departments to ------- have a plan of action in place. Being able to communi- cate with the public in a prepared and organized way can allow a potentially chaotic situation to remain un- der control until there is no longer a threat.This guide is intended as a reference to help proper authorities take specific steps during a crisis situation to success- fully communicate and manage environmental risk. Basic Risk Communication Elements Communication experts generally agree that there are three main elements to focus on when communi- cating an environmental risk: • Message • Medium • Audience Message Messages are the overall information an agency wants its audience to walk away with, even if it forgets the details. A message is usually phrased as a brief (often one-sentence) statement. An example of this would be, "The ozone map provides you with real-time informa- tion about ozone levels in your community." When sending a message, two main objectives are to inform and persuade. A good way to help an audi- ence understand a message and be persuaded to take a certain action is by taking it through the four phases of knowledge: awareness, understanding, decision, and implementation. In the awareness phase, messages should be short, catchy, and just barely informational. Messages such as "Think Green" fall into this group. Messages intended to reach the understanding level usually deliver more information such as "Cigarette smokers are 12 times more likely to die of lung cancer than non-smokers." Decision-making messages often compare options such as choosing the best time of day to fill gas tanks during a smog alert. Messages intended to help people implement some action are often crisis related. An example of this would be a "boil water" advisory during a drinking water emergency. ------- Medium The medium for the message, whether it is the in- ternet, a brochure, a refrigerator magnet, or some other form of communication, has specific properties. For example, billboards are best for brief messages, bro- chures for complex information, television for moving images, and radio for specific target audiences. Cost is also a factor; generally the broader the outreach, the higher the cost.The choice of medium can be very important to the successful transmission and reception of the message. Medium selection is also related to the type of mes- sage an agency is sending. For example, refrigerator magnets work well for short messages at the aware- ness level, but don't contain space for the understand- ing level of communication. Brochures present infor- mation at the understanding level, but unless people have already been reached at the awareness level, they won't devote the time to read them. Audience The target audience for the message is a key con- sideration.Target audiences for a water quality out- reach program might include, for example, the general public, local decision makers and land management agencies, educators and students (high school and col- lege), and special interest groups (e.g., homeowner as- sociations, fishing and boating organizations, garden- ing clubs, lawn maintenance/landscape professionals). Risk may vary dramatically in different populations. Subpopulations have different risks when exposed to the same concentration of a pollutant. It is imperative to the risk communication process that the makeup of a community and its cultural diversity be studied and matched to the appropriate message and medium. Persons of lower socioeconomic means probably will not be effectively served by messages delivered via the internet. For this particular audience, television and radio messages may be more suitable. Successful risk communicators must also know how the public perceives risk. When researching audi- ence dynamics, it is important to distinguish between objective and subjective risk. Objective risk is calcu- lated by scientists based on research. Subjective risk is the risk that the public perceives to be hazardous. It is affected by issues of familiarity, dread, fairness, avoid- ability, and personal control. ------- Suggestions for Collaborative Decision Making When Communicating Environmental Risk Communicating with diverse audiences can be challenging, both because of the difficulty of translat- ing scientific information to nonscientists, and also because of the differences in priorities.These differ- ences in priorities are illuminated by understanding the differences between objective and subjective risk, and are bridged by several tools and techniques including collaborative decision making. By incorporating other environmental experts into the decision making process, agencies can thoroughly assess and manage environmental and human health risks. Some basic rules have been developed by Cov- ello and Allen1 for collaborative decision making with regard to risk communication: 1. Accept and involve the public as a partner. An agency's goal is to produce an informed public. When thoroughly and adequately informed, the public can often play a key role in creating excellent ideas for helping its own communities. Because different cultures have different risk perceptions, it is important to have a representative of each affected com munity involved in the risk communication process. 2. Plan carefully and evaluate your efforts. A plan of action for situations that can pose significant health risks to the public and risks to the environment should be in place ahead of time. Develop ways to evaluate how effectively you have communicated your message to the public. 3. Listen to the specific concerns of community members. People often care more about trust, credibil ity, competence, fairness, and empathy than about statistics and details. It is an agency's job to protect communities by communicating appropriate information and conveying an action plan if necessary. In order to be able to make an accurate diagnosis of the problem, an organization must first listen. 4. Be honest, frank, and open. Trust and credibility are difficult to obtain; once lost they are almost impossible to regain. ------- The public will have more respect for you and your agency if you are straightforward and honest. 5. Work with other credible sources. Conflicts and disagreements among organizations make communication with the public much more difficult. When dealing with a crisis situation, bring in the appropriate experts, such as scientists or public health officials, to answer question or make recommendations to a concerned public about the best way to handle the situation. 6. Meet the needs of the media. The media usually prefer simple facts. Think of their perspectives; know their dead lines and policies. When talking with news reporters, be specific about the risk. Do not make assumptions or give possible out-comes. Messages can be misinterpreted, which can create a panic situation with information that is not solid and factual. Be prepared ahead of time to have your informa- tion and facts in order. Be clear and to the point. 7. Speak clearly and with compassion. When you are dealing with a health threat or an environmental risk, you must be prepared to show compassion.This is a time when the community will need understanding. Let community members know that you will work with them as a partner and will keep them informed as things happen. In order to more deeply understand communi- ties and their needs, it is important to incorporate risk perception into the definition of risk.The EPA's Office of Air and Radiation2 considers some attributes that may affect a person's perception of a risk: • How serious and dreaded is the illness? • How certain is scientific knowledge? • What is the catastrophic potential? • Who bears the risk? • Is the risk voluntary? • Who benefits from the "risky" activity? ------- Figure 1.3 "Air Quality Index (AQI)" is an example of how EPA and other organizations make information about outdoor air quality available to the public. The AQI is used as a key tool to provide the public with timely and easy-to- understand information on local air quality and what associated health concerns it should be aware of.The AQI uses a scale of values to indicate the level of health concern and associated color-coded warning. Risk Communication Tools and Techniques Risk communication tools focus on helping commu- nities, agencies, and individuals make informed deci- sions that either minimize negative impacts, or directly improve health and environmental quality. Some exam- ples of public participation tools and techniques for risk communication follow. Surveys Surveys conducted on a regular basis for a particu- lar environmental issue or concern will allow citizens to express their concerns and opinions about possible risks that may affect them. Information obtained from surveys often help managers and agencies make appropriate risk management and assessment decisions. Modeling Modeling can sometimes be a good surrogate for environmental sampling. In many crises, continuous monitoring can lead to an understanding that allows de- termination of trends.This can then allow forecasting and warnings. Indexing Techniques Indices like an air quality index, a water quality index, or a fish quality index, allow complete scientific informa- tion and data collected through monitoring to be trans- lated in a way the public can understand. Air Quality Index (AQI)* AQI Number Health Concern Color Code Oto50 51 to 100 101 to 150 Good Moderate Unhealthy for Green Yellow Orange 201 to 300 Very unhealthy Purple *Although ozone reports are primarily made for metropolitan areas, ozone can be carried by the wind to rural areas, where it can cause health problems. ------- Exhibits Visual displays are an effective way to present information because people can sometimes better un- derstand an idea or concept presented in a visual form. Internet The internet is the electronic gateway to an array of multimedia (audio, video, photographic) databases and textual resources for searching and posting informa- tion.The internet has powerful, intuitive search technol- ogies that can help agencies find specific information quickly, communicate with the public, and recommend information resources to others. Maps and Aerial Photographs Maps and aerial photographs are visual aids that facilitate the communication of complex issues such as contamination and risk factors.They can be used at community involvement activities such as public meet- ings, and poster sessions. Easy-to-read maps that have been developed through a geographic information system (CIS) are an invaluable source of information for pinpointing par- ticular areas of concern with regard to environmental risk. CIS is a computer-based information technology that incorporates graphical features such as maps and other data in order to assess real-world problems and situations. Figure 2.3 "Online Dynamic Watershed Atlas (Seminole County, Florida)" is designed to provide citizens, scien- tists, and planners of the Seminole County region with comprehensive and current water quality, hydrologic and ecological data, as well a library of scientific and educational resources on ecology and management.This online atlas is an example of an online service cre- ated to give citizens and scientists easy access to specialized information. ------- Figure 3.4 "Lake Independence and Lake Minnetonka Watersheds - Lake Access Project" is a color coded map used to distinguish land uses surrounding the lake (e.g., agricultural, residential, commercial, indus- trial, forest, and wetland). Maps of this type can help inform the public and local officials about connections between local water conditions and current uses in their communities. Figure 4.4 "Lake Independence Bathymetry - Lake Access Project" is an example of a GIS map created to include two- dimensional representa- tions of various lake pa- rameters. In this particular graphic, depth is shown. By using this capabil- ity of GIS, agencies can combine different types of data layers to predict how quickly sediments or contaminants might move through a stream system. GIS and other data visu- alization tools offer better support and communi- cation of observations, conclusions, and recom- mendations to resource managers, students, regulators, and the public. These groups can then use displays and analy- ses to help make day- to-day decisions that can affect the quality of their lakes and streams. Mass Media In many communities, print and broadcast me- dia play a crucial role in conveying information to the public.The news media provide a principal and speedy means for members of a community to communicate and interact. However, an organization cannot control what the press will cover and how. Newspaper report- ers or television cameras usually cover town meetings or press conferences to observe firsthand how the public is reacting to the information they are receiving. LAKE INDEPENDENCE BATHYMETRY 8ATHYMBRT(fffi) BH010 no 3t 11038 JTQ4I 11(150 51* 10 ------- Toil-Free Hotline Establishing toll-free hotlines for information up- dates and community questions can be a very effective tool for promoting public involvement and feedback. Workshops Workshops are formal, participatory seminars used to explore a subject, develop or improve public aware- ness and involvement, allow citizens to see firsthand how risks are assessed and managed, or to design a risk communication message.They can be developed as mini-courses on a discrete topic relevant to an af- fected community. A technical expert can be invited to offer an inside perspective and to increase the effec- tiveness of a workshop. Mailing lists Phone/fax E-mail/Internet RadioATV Journals or newsletters Meetings, community events, or locations (e.g., libraries, schools, marinas, public beaches, tackle shops, etc.) where products are made available. Brochures Newsletters Fact sheets Utility bill inserts or stutters Promotional hotline Newsletters E-mail messages Web pages Subscriber list servers Cable TV programs Public service announcements Videos Media interviews Press conferences/releases Newsletters Editorials Newspaper and magazine articles Exhibits Kiosks Posters Question-and-answer sheets Novelty items (e.g., mouse pads, golf tees, buttons, key chains, magnets, bumper stickers, coloring books, frisbees, etc.) Banners Briefings Fairs and festivals Meetings (i.e., one-on-one and public) Community days Speeches Educational curricula Table 1.s "Methods of Communication" gives additional examples of various distribution avenues and outreach products for effectively communicating environ- mental data to the public. 11 ------- Designing a Risk Communication Plan Once the target audience has been identified, an agency should be able to easily identify the desired out- comes.The plan should also include long-term goals for the overall risk communication program and short-term objectives for a specific project. Once the appropriate tools are selected that match the particular environmental or health risk, a timeline and assignment of responsibili- ties should be put in place. An agency's program is likely to be most effective if a variety of appropriate profession- als are involved. Where possible, consider the following: • A communication specialist or someone who has experience developing and implementing an out reach plan. • Technical experts in the subject matter (both sci entific and policy). • Someone who represents the target audience, i.e., the people or groups you want to reach. • Key individuals who will be involved in imple menting the plan. Factoring in estimated costs for putting a plan in motion should also be included. Many adjustments may be made throughout the process, but it would be a good idea for an initial plan to have these guidelines and time- lines in place. Following Up What follow-up mechanisms should an agency establish to obtain feedback? Successful outreach might generate requests for further information or concern about issues that have been raised. It is important for an agency to consider whether and how it will handle this interest.The following questions can help an agency develop this part of its strategy. • What types of reactions or concerns are audience members likely to have in response to the out reach information? • Who will handle requests for additional informa- tion? • Does the agency want to indicate on the out reach product where people can go for further information (e.g., provide a contact name, num- ber, address, or establish a hotline)? 12 ------- Effectiveness Measures Because of the importance of communicating risk to the public, it is useful to measure how effectively an agency is communicating. Many methods and tech- niques have been developed to allow an agency to hear firsthand from the public what it does and does not understand to be the risk. Town meetings as well as telephone and mail surveys are some examples of ef- fective ways to obtain feedback from the public regard- ing understanding and concerns about a potential risk to a community. Risk Communication in Action: Case Studies The EPA through the EMPACT program worked with large metropolitan areas to help collect and dis- tribute environmental risk information.This program involved EPA working with different communities to provide residents with easy-to-understand information used in making informative decisions based on envi- ronmental issues and health risks. Here are three examples of risk communication in action. Air Quality Risk Communication Study Ozone, at ground level, presents a serious air quality problem in many parts of the U.S. because ozone plays a major role in respiratory health effects. Residents in communities with high ozone levels can use timely risk information to help them take action to reduce local ozone levels. One of the most successful risk communication projects is the Ozone Mapping Project, which creates maps that provide hourly ozone data taken from moni- toring networks in different regions of the country.The maps use color-coded contours to depict the level of health concern associated with different categories of ozone concentration. In addition, the AIRNOW web site, part of the Ozone Mapping Project, was created by the EPA's Office of Air and Radiation to provide real-time air pollution data in an understandable, visual format; information about public health and environmental effects of air pollu- tion; and information about ways in which the public 13 ------- Figure 5." Map taken from the project, " Ozone Monitoring, Mapping and Public Outreach: Delivering Real-Time Ozone Information to Your Community." The map represents ozone values in the northeastern United States on August 24, 1998. can protect its health and reduce pollution (http:// www.epa.gov/airnow).This web site, which is beneficial to people with asthma or other health conditions that relate to ozone and air quality, also offers links to state and local air pollution control agencies with real-time ozone data. Soil-Based Risk Communication Study Over the past few decades, blood lead levels in children have declined dramatically. However, lead poisoning remains a serious environmental health threat for children today.The legacy of lead-based paint and leaded gasoline will be with us for many years to come. Without further action, large numbers of young children will continue to be exposed to lead in amounts that could impair their ability to learn. A project entitled, "Community Based Environ- ment Lead Assessment and Education Demonstration Program," also know as the Lead Safe Yard Project7 was a risk communication program that showed Boston residents low-cost techniques to reduce lead risks in soil. It was jointly sponsored by EPA's New England Regional Laboratory and several community partners in the Boston area: Boston University School of Public Health, Bowdoin Street Community Health Center, and two non-profit landscaping companies: Garden Futures, and Dorchester Gardenlands Preserve. Other key objectives of this project were to: • Develop an education outreach program to in form the community of the dangers of lead and reduce the risk of lead in and around the home. • Demonstrate real-time delivery of data to resi- dents to encourage future community-based lead in soil remediations. The initial target community selected for this pilot project was the Bowdoin Street area, consisting of ap- proximately 150 wood-framed, mostly older houses in the North Dorchester section of Boston.This is an inner- city community with a large minority and immigrant population, located in the "lead belt" of Boston, where the majority of children in the city with elevated blood lead levels reside. 14 ------- This project was funded in two phases that took place in the summer of 1998 and 1999. A free "tool kit" for homeowners containing helpful information on lead levels in the blood, what the different levels mean with regard to health risks, and important numbers to call to receive a free lead analysis in the home, was developed. Numerous seminars were conducted in different communities on lead-safe yard work. Outreach activities ranged from distributing flyers and knocking on doors, to speaking at community meetings.These efforts were culturally specific to the neighborhood and conducted at an appropriate literacy level. Water-Based Risk Communication Study The Lake Access Minneapolis Project5 provided the public with time-relevant and historical water quality data for lakes within the largest, most populated wa- tershed districts in Minnesota.This timely and accurate risk information about lake water quality helps com- munity members make day-to-day decisions about lake use and lake issues. For example, information about fecal coliform levels can be used by swimmers to help decide when swimming is a health risk. In order to make the project more effective, the EPA formed a partnership with the National Oceanic and Atmospheric Administration and the U.S. Geologi- cal Survey.The EPA worked closely with these federal agencies to help achieve nationwide consistency in measuring environmental data, managing the informa- tion, and delivering it to the public. The Lake Access Project team used Remote Underwater Sampling System (RUSS) devices to collect time-rel- This photograph captures a presentation on lead poisoning and soil-based hazards given to en- courage ongoing yard maintenance within the community. 15 ------- Design, site, operate, and maintain a system to gather time-relevant water quality data. Figure 6." Process of col- lecting, transferring, and managing time-relevant data.This process was used in the Lake Access Project. evant water quality data from three locations involved in the project, to observe the way storms and other seasonal changes can affect the water and impact the fish and fishing, and to see how lakes and streams have changed with time. Design, operate, and maintain a system to retrieve, manage, and analyze your time-relevant water quality data. Use data visualization tools to graphically depict these data. communicate the results of your time-relevant water quality monitoring efforts to residents ir your community. Conclusion Successful risk assessment and risk management involve effective risk communication. By effectively conveying risk information to the public, risk communi- cators can minimize environmental exposures and save lives. It is important to develop ways of not only com- municating in a clear, concise manner, but also deter- mining how messages are perceived. In the real world, information communicated to reduce environmental risk must compete with the barrage of other messages communicated from outside sources.These outside sources can cloud a message and distort key informa- tion that is necessary for successful risk communica- tion. The public is becoming increasingly aware of the state of the environment and the possible health risks it may face. By developing partnerships with the con- cerned public, risk communication becomes the key resource for developing solutions that meet the needs of everyone involved, and minimize impacts on human health and the environment.The considerations identi- fied in this digest help define a risk communication strategy for any agency. Well-designed communication of risk information and careful attention to feedback will help to maintain the credibility of all environmental agencies involved, 16 ------- and will help ensure that public values and concerns are incorporated into the decision making process. Ef- fective risk communication helps environmental agen- cies and communities make good decisions. Bost__>-od Co-op and the City of B< RECYCLING CENTER 17 ------- References 1. Covello, VT and Allen, FW (1988) Seven Cardinal Rules of Risk Communication OPA-87-020. April 1988. U.S. Environmental Protection Agency, Washington, DC, http://www.kfa-juelich.de/mut/rc/ covaN88.html 2. U.S. Environmental Protection Agency, Of ce of Air and Radiation. Air Pollution and Health Risk. March 1991. EPA/450/3-90/022, http://www.epa.gov/ ttn/atw/3_90_022.html 3. U.S. Environmental Protection Agency, Office of Research and Development, National Risk Manage- ment Research Laboratory. Environmental Curricula Handbook: Tools in Your Schools. December 2002. EPA/625/R-02/009, http://www.epa.gov/empact 4. U.S. Environmental Protection Agency, Office of Research and Development, National Risk Manage- ment Research Laboratory. DeliveringTime-Rel- evant Water Quality Information to Your Community: The Lake Access-Minneapolis Project. September 2000. EPA/625/R-00/013; http://www.epa.gov/empact 5. U.S. Environmental Protection Agency, Office of Research and Development, National Risk Manage- ment Research Laboratory. Delivering Timely Environmental Information to Your Commu- nity The Boulder Area Sustainability Information Network (BASIN). September 2001. EPA/625/R- 01/010, http://www.epa.gov/empact 6. U.S. Environmental Protection Agency, Office of Research and Development, National Risk Manage ment Research Laboratory. Ozone Monitoring, Map- ping, and Public Outreach: Delivering Real-Time Ozone Information to Your Community. September 1999. EPA/625/R-99/002; http://www.epa.gov/empact 7. U.S. Environmental Protection Agency, Office of Research and Development, National Risk Manage- ment Research Laboratory Lead-Safe Yards: Devel- oping and Implementing a Monitoring, Assessment, and Outreach Program for Your Community. Janu- ary 2001. EPA/625/R-00/012; http://www.epa.gov/ empact 18 ------- This publication was written and produced by Jane Ice and Dan Petersen, Ph.D., of the United States Environmental Protection Agency's National Risk Management Research Laboratory (NRMRL) within the Office of Research and Development. An electronic version of this publication can be viewed and downloaded from NRMRL's Technol- ogy Transfer web page at http://www.epa.gov/ ttbnrmrl. Printed copies of this publication can be requested from the EPA by calling 1-800-490-9198. 19 ------- ------- |