Thechanging face of strategic crisis management

138 Pages·2015·2.644 MB·English

by  OECD

OECD Reviews of Risk Management Policies O
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Chapter 1. Adapting government approaches to a new crisis landscape o
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Chapter 2. Understanding and identifying strategic crises through early-warning and sense-making is The Changing Face of
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Chapter 3. The use of social media in crisis communication M
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Chapter 4. Strategic crisis management exercises: Challenges and design tools n Strategic Crisis Management
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Consult this publication on line at http://dx.doi.org/10.1787/9789264249127-en. e
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ISBN 978-92-64-24903-5
42 2015 24 1 P

OECD Reviews of Risk Management Policies
The Changing Face
of Strategic Crisis
Management
This work is published under the responsibility of the Secretary-General of the OECD. The
opinions expressed and arguments employed herein do not necessarily reflect the official
views of OECD member countries.
Please cite this publication as:
OECD (2015), The Changing Face of Strategic Crisis Management, OECD Reviews of Risk Management
Policies, OECD Publishing, Paris.
http://dx.doi.org/10.1787/9789264249127-en
ISBN 978-92-64-24903-5 (print)
ISBN 978-92-64-24912-7 (PDF)
Series: OECD Reviews of Risk Management Policies
ISSN 1993-4092 (print)
ISSN 1993-4106 (online)
Revised version, June 2016
Details of revisions available at:
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3
FOREWORD–
Foreword
Recent large-scale natural hazards, terrorist attacks, global pandemics, refugee crises
and industrial accidents have demonstrated the diversity and complexity of today’s crises.
The increasing interconnectedness of modern societies makes them even also vulnerable
to shock events occurring beyond their country, whose socio-economic impacts can
rapidly cascade across borders.
Citizens expect effective leadership from their government in planning for and
managing crises. This is fundamental for maintaining public trust, which is put at
particular test during emergencies. But traditional approaches to crisis management,
based on standard operating procedures and built on the history of past events, are no
longer sufficient to respond to shock events of unprecedented nature. Close media
scrutiny – including on social media – is also putting increasing pressure on governments
to be more open, transparent and accountable in crisis situations.
This report proposes a fundamental shift in crisis management to help governments
adapt to the new risk landscape through agile systems that can handle the unexpected. It
presents practical recommendations on how to develop strategic crisis management
capacities in order to minimise the impacts of large-scale shocks, which will help
implement the OECD Recommendation on the Governance of critical Risks.
First, governments must set up robust governance frameworks for managing both
classic and more complex crises. It is important to engage multiple agencies as well as the
private sector in crisis management and to put in place arrangements for co-ordinating
among these stakeholders both nationally and internationally.
Second, governments need to establish a network of actors with multi-disciplinary
expertise and the capacity to provide digestible information to support leadership
decision-making during crises. Unbundling complexities and identifying uncertainties are
essential for making sense of what is happening in emergency situations, and for
foreseeing similar situations in the future.
Third, governments should develop dedicated crisis communication strategies for
social media. The opportunities for two-way communication provided by social media
can significantly contribute to improving crisis management.
Finally, governments must design training programmes for professionals and leaders
in managing and preparing for complex crises.
This report was co-ordinated by the Secretariat of the OECD High Level Risk Forum,
as part of the OECD Public Governance and Territorial Development Directorate. The
Forum aims to develop a shared vision of integrated risk management, with strategic
crisis management a core component and brings together policy makers from OECD
member countries and key partners, practitioners from the private sector and civil society,
and experts from think tanks and academia.
THE CHANGING FACE OFSTRATEGIC CRISIS MANAGEMENT © OECD 2015
4 – FOREWORD
This report draws on the discussions held in a series of workshops between 2012 and
2015 on strategic crisis management; organised jointly with the Swiss Federal
Chancellery and the International Risk Governance Council. These workshops
contributed significantly to the development of the Recommendation of the OECD on the
Governance of Critical Risks, adopted in May 2014, which sets an OECD standard to
better manage risks and crises.
The community of strategic crisis managers engaged in the activities of the OECD
High-Level Risk Forum allows countries to share lessons and support international co-
operation in crisis management. This constitutes a key contribution to more resilient
societies and safer livelihoods through a better response to complex crises.
THE CHANGING FACE OF STRATEGIC CRISIS MANAGEMENT © OECD 2015
ACKNOWLEDGEMENTS – 5

ACKNOWLEDGEMENTS

This report was prepared under the OECD High Level Risk Forum of the OECD’s
Public Governance and Territorial Development Directorate, led by Rolf Alter.
The report was co-ordinated by Charles Baubion and prepared under the supervision
of Jack Radisch, Risk Management Project Manager; and Stéphane Jacobzone, Deputy
Head of the Reform of the Public Sector Division. It was written by the following
authors: Charles Baubion (Chapter 1); Prof. Eric Stern, Swedish National Defence
College (Chapters 2 and 4); and Cécile Wendling, Jack Radisch and Stéphane Jacobzone
(Chapter3). The authors are grateful to Luiz de Mello, Deputy Director, Public
Governance and Territorial Development for giving strategic feedback and to Ryan
Androsoff from the OECD Secretariat for comments.
The OECD Secretariat is grateful for support received from the Swiss Federal
Chancellery in organising the joint workshops with the OECD on strategic crisis
management. This report draws on the discussions held at these workshops in 2012, 2013
and 2014, as well as the workshop on crisis communication organised in partnership with
the International Risk Governance Council (IRGC) in 2012. We wish to thank Dr.
Nicolas Mueller and Dr. Christoph Doktor from the Swiss Federal Crisis Management &
Strategic Leadership Training Center; and Marie-Valentine Florin, Managing Director of
the IRGC, for this fruitful partnership.
Substantive comments were provided by Richard Smith Bingham from Marsh &
McLennan Companies; Prof. Arjen Boin from Leiden University, Bengt Sundelius,
Strategic Advisor to the Director General of the Swedish Civil Contingencies Agency.
Editorial support given by Lynda Hawe, Andrea Uhrhammer, Lia Beyeler, Liz
Zachary and Kate Lancaster is gratefully acknowledged.
THE CHANGING FACE OF STRATEGIC CRISIS MANAGEMENT © OECD 2015

7
TABLE OF CONTENTS–
Table of contents
Acronyms and abbreviations..............................................................................................................9(cid:1)
Executive summary...........................................................................................................................11(cid:1)
Chapter 1 Adapting government approaches to a new crisis landscape.....................................15(cid:1)
Key messages...................................................................................................................................16(cid:1)
Managing crises: a key responsibility for governments..................................................................17(cid:1)
New crises call for new and innovative crisis management responses............................................18(cid:1)
How to adapt crisis management to the new risk landscape............................................................21(cid:1)
Identifying key cross-cutting issues in strategic crisis management...............................................35(cid:1)
Recommendations for government approaches to crisis management............................................36(cid:1)
References........................................................................................................................................38(cid:1)
Further reading.................................................................................................................................39(cid:1)
Chapter 2 Understanding and identifying strategic crises through early-warning and sense-
making................................................................................................................................................41(cid:1)
Key messages...................................................................................................................................42(cid:1)
The concept of sense-making...........................................................................................................43(cid:1)
The multiple contexts of sense-making and early warning.............................................................50(cid:1)
The two sides of information and communications technology (ICT) in strategic crisis
sense-making....................................................................................................................................57(cid:1)
Managing expertise, information and knowledge under complex crisis conditions........................61(cid:1)
Recommendations for improved crisis sense-making.....................................................................65(cid:1)
References........................................................................................................................................69(cid:1)
Chapter 3 The use of social media in crisis communication.........................................................75(cid:1)
Key Messages..................................................................................................................................76(cid:1)
Risk and crisis communication strategies are evolving with the emergence of social media.........77(cid:1)
Good practice examples of using social media in risk and crisis communication...........................84(cid:1)
Challenges of using social media.....................................................................................................93(cid:1)
Developing strategies for the dynamic use of social media.............................................................98(cid:1)
Key recommendations for social media use in risk and crisis communication.............................102(cid:1)
Annex 1.............................................................................................................................................104(cid:1)
References......................................................................................................................................105(cid:1)
Additional online sources..............................................................................................................108(cid:1)
Chapter 4 Strategic crisis management exercises: Challenges and design tools.......................109(cid:1)
Key messages.................................................................................................................................110(cid:1)
Fundamentals of strategic crisis management exercises................................................................111(cid:1)
Training challenges associated with the new crisis landscape.......................................................115(cid:1)
Exercise design and scenario development....................................................................................119(cid:1)
THE CHANGING FACE OFSTRATEGIC CRISIS MANAGEMENT © OECD 2015
8
–TABLE OF CONTENTS
Key recommendations for designing and developing strategic crisis management exercises.......130(cid:1)
References......................................................................................................................................132(cid:1)
Tables
Table 1.1.Different approaches in crisis management: traditional crises vs. dealing with novelty...35(cid:1)
Table 3.1.The different types of social media used in risk and crisis management...........................79(cid:1)
Table 3.2.Checklist for situational awareness use of social media....................................................99(cid:1)
Table 3.3.Checklist for top down communication use of social media............................................100(cid:1)
Table 3.4.Checklist for two-way use of social media......................................................................101(cid:1)
Table 3.5.How to draft social media guidelines...............................................................................102(cid:1)
Table 4.1.Exercise and scenario design parameters.........................................................................119(cid:1)
Boxes
Box 1.1.Mexico -The System for the Analysis and Visualisation of Risk Scenarios (SAVER)......23(cid:1)
Box 1.2.National Risk Assessment in the Netherlands......................................................................24(cid:1)
Box 1.3.Plan SISMO: Scenario-based emergency planning in Mexico.............................................25(cid:1)
Box 1.4.Sharing common values in a diversified response network..................................................27(cid:1)
Box 1.5.Strategic crisis management exercises: Examples from Germany and Switzerland............28(cid:1)
Box 1.6.Integrated early warning system in Korea............................................................................29(cid:1)
Box 1.7.Measuring geopolitical tensions based on market forces.....................................................31(cid:1)
Box 1.8.United States Incident Command System............................................................................31(cid:1)
Box 1.9.UK Science Advisory Group in Emergencies (SAGE)........................................................32(cid:1)
Box 1.10.Italy’s Civil Protection Operational Committee.................................................................33(cid:1)
Box 3.1.The EU MASSCRISCOM research project in crisis communication..................................81(cid:1)
Box 3.2.Community Emergency Response Team (CERT) and the Sahana module..........................82(cid:1)
Box 3.3.Ushahidi interactive mapping...............................................................................................82(cid:1)
Box 3.4.The Australian Alert SA web portal: social media messages in an emergency in one place83(cid:1)
Box 3.5.The X 24 international crisis exercises.................................................................................83(cid:1)
Box 4.1.Providing feedback through a self-critique questionnaire..................................................126(cid:1)
Figures
Figure 1.1.Cascading effects of the Great East Japan earthquake......................................................19(cid:1)
Figure 4.1.Different types of crisis exercise.....................................................................................113(cid:1)
THE CHANGING FACE OFSTRATEGIC CRISIS MANAGEMENT © OECD 2015