War,Terror andEmergencies

1111.1 (p.210)

Introduction
11.2 (p.211)

MandatoryReferrals

11.3 (p.213)

Guidelines• Accuracy and Impartiality• Audience Commentand Moderation• Use of Language• Identifying Victims• Disturbances and Riots• Staged Events• Threats and Hoaxes• Hijacking, Kidnapping,
Hostage-Taking and Sieges• National Security andCounter-Terrorism• Terrorism Acts
• Hostile Environments
and Travel Advisories

210

WAR, TERROR AND EMERGENCIES

11.1

Introduction	The BBC has a special responsibility to its UK
and international audiences when reporting
conflict including wars, acts of terror, sieges
and other emergencies. People across the worldaccess our services for trustworthy news andinformation. They expect us to provide context
and analysis and to offer a wide range of views
and opinions. We need to be scrupulous inapplying due accuracy and impartiality1.	We must take care that our journalism does
not put individuals at risk of additional harmor cause unnecessary distress.	We must consider our tone and language whenreporting matters involving loss of life and humansuffering. Some of our audience will have relatives
or friends directly involved. We should avoid causing
unnecessary offence whilst also ensuring that wecontinue to convey the reality of events and do not
unduly sanitise our reporting. We will ensure, as far as
is reasonably practicable, that next of kin do not learnof a relative’s death or injury from any of our content.
There must be strong editorial justification for theuse of very graphic pictures.	In addition to editorial and ethical considerations,
the Terrorism Acts place legal obligations on individuals– including journalists – to disclose certain information
to the police as soon as reasonably practicable.	Specific guidance on reporting war is issued,
as required, on the Editorial Guidelines website.	At times of war, terror, emergency or disaster,
we should keep all of our output under review,1	The sections of the Ofcom Broadcasting Code that relate to this are 3: Crime, Disorder,Hatred and Abuse and 8: Privacy.

211

WAR, TERROR AND EMERGENCIES

particularly scheduled programmes (including films,drama, comedy and music) and trails, to identify
anything which might be thought inappropriate
in the light of events.	See Section 3 Accuracy: 3.1, Section 4 Impartiality: 4.1,Section 7 Privacy: 7.3.41-7.3.45 and Section 5 Harm and Offence:
5.3.11 and 5.3.54

11.2

Mandatory Referrals	(Mandatory Referrals are part of the BBC’s editorial
management system. They are an essential part of theprocess to ensure compliance and must be observed.)

Referrals to Director Editorial Policy and Standards
11.2.1	Any proposal to attend an event staged by proscribedorganisations or groups known for mounting acts ofterror, in order to be recorded, must be referred to asenior editorial figure or, for independent production
companies, to the commissioning editor. Referral
must also be made to Director Editorial Policyand Standards.
See 11.3.9

11.2.2	Any proposal to broadcast material recorded at astaged event in the UK or overseas, where threats
are made against UK citizens, must be referred toDirector Editorial Policy and Standards.
See 11.3.10

11.2.3	Any request from the police or others for a complete
news black-out must be referred to a senior editorialfigure, who must consult Director Editorial Policyand Standards.
See 11.3.18

bbc.co.uk/editorialguidelines

212

WAR, TERROR AND EMERGENCIES

11.2.4	Any approach to or from the Secretary to the Defenceand Security Media Advisory Committee2 must be
referred to Director Editorial Policy and Standards.
See 11.3.20

11.2.5	Any situation where BBC staff or anyone else
engaged in content production for the BBC may
have obligations under the Terrorism Acts must be
referred promptly to Director Editorial Policy andStandards and Programme Legal Advice.
See 11.3.21

11.2.6	Any proposal to approach an organisation (or anindividual member of an organisation) designateda ‘terrorist group’ by the Home Secretary under
the Terrorism Acts, and any proposal to approachindividuals or organisations responsible for acts ofterror, to participate in our output must be referredin advance to Director Editorial Policy and Standards.
See 11.3.21

Other Referrals
11.2.7	Any proposal to broadcast material recorded atlegitimate events when paramilitary or other groups
with a known record of violence or intimidation stage
an appearance must be referred to a senior editorial
figure, or for independent production companies tothe commissioning editor, who may consult Director
Editorial Policy and Standards.
See 11.3.11

11.2.8	Any proposal to broadcast content madeby perpetrators of a hijacking, kidnapping,hostage‑taking or siege must be referred toa senior editorial figure or, for independent
production companies, to the commissioning
editor and should also be referred to Editorial Policy.
See 11.3.17
2 Sometimes also referred to as the D-Notice Committee.

213

WAR, TERROR AND EMERGENCIES

11.2.9	Any proposal to handle material relating to security
and intelligence issues that falls, or might fall, within
the terms of the Official Secrets Act must be referred
to Programme Legal Advice.
See 11.3.19

11.2.10	Any proposal to travel to a country or area classified
as a Hostile Environment or where a Travel Advisory
applies must be referred to BBC Safety’s High Risk
Team before departure.
See 11.3.22

11.3 Guidelines
Accuracy and Impartiality
11.3.1	When reporting war, and in the early stages ofcovering national and international emergencies(including acts of terror, disasters and majoraccidents), it is particularly important to give thesource of information and material from third parties,
particularly when there are conflicting claims.
First estimates of casualty figures often turn out
to be inaccurate. If different sources give different
estimates we should either report the range or go
for the source which carries the greatest authority
and attribute the estimate accordingly.	We should make it clear if our reports are censored ormonitored or if we withhold information under duress,and explain, wherever possible, the conditions underwhich we are operating.	Reporters and correspondents must be awarethat comments they make on social media accounts
that relate to their BBC work may be perceived ashaving the same weight as a BBC report, so shouldbear in mind the requirement for due accuracy andimpartiality at all times.

bbc.co.uk/editorialguidelines

214

WAR, TERROR AND EMERGENCIES

11.3.2	When reporting demonstrations, disturbancesand similar events, we should treat estimates ofinvolvement with due scepticism, report wide
disparities and name the sources of the figures.
We aim to offer a comprehensive and impartial
view of events. When it is difficult for reporters
located on one side of a confrontation to forma clear overall view, their material should be
put into a wider context for broadcast.
See Section 3 Accuracy: 3.1 and 3.3.16

11.3.3 	In a UK civil emergency, we aim to deliver essential
information in the interests of public safety acrossour services. We work with the relevant authorities
to identify the kind of major incidents requiringa special response. However, we must make theappropriate editorial judgements to ensure
accuracy and independence.
See Section 11 War, Terror and Emergencies: 11.3.18

Audience Comment and Moderation
11.3.4	In times of conflict, there are special sensitivities;
for example, about the security of operational
military plans, avoiding naming casualties until
next of kin have been informed, and handling rumours– we need to consider these while continuing tomaintain open debate. We may need to consider
limiting the online stories that are open tocomments and make appropriate hosting moderation
arrangements – pre‑moderating may be necessary.
We should consider whether it is appropriate to
publish BBC stories on social media where we haveless ability to moderate comments and wheremoderation may involve a high level of resource.	See Section 11 War, Terror and Emergencies: 11.3.7,
Section 7 Privacy: 7.3.41-7.3.45
See Guidance online: User-Generated Contributions

215

WAR, TERROR AND EMERGENCIESUse of Language
11.3.5	Our reporting of possible acts of terror should be timely
and responsible, bearing in mind our requirement fordue accuracy and impartiality. Terrorism is a difficultand emotive subject with significant political overtones
and care is required in the use of language that carries
value judgements. We should not use the term ‘terrorist’
without attribution.
11.3.6	The word ‘terrorist’ itself can be a barrier ratherthan an aid to understanding. We should convey
to our audience the full consequences of the act
by describing what happened. We should use words
which specifically describe the perpetrator such as‘bomber’, ‘attacker’, ‘gunman’, ‘kidnapper’, ‘insurgent’and ‘militant’. We should not adopt other people’s
language as our own; our responsibility is to remain
objective and report in ways that enable our audiences
to make their own assessments about who is doing
what to whom.
See Guidance online: Language when Reporting Terrorism

Identifying Victims
11.3.7	When people have been killed, injured or are
missing, next of kin should not, as far as is reasonably
practicable, find out from BBC output, but be told by
the relevant authorities.	To minimise anxieties we should narrow the areaof concern as quickly as possible without identifying
individual victims, for example in the case of an air crash,
by including details such as airline, flight number, placeof departure and destination.	See Section 11 War, Terror and Emergencies: 11.3.4
and Section 7 Privacy: 7.3.41-7.3.45

bbc.co.uk/editorialguidelines

216

WAR, TERROR AND EMERGENCIESDisturbances and Riots
11.3.8	Comprehensive coverage of disturbances and riots
is an important part of our news reporting. However,in addition to the specific guidelines concerning
accuracy and impartiality, it is important that:• we assess the risk that, by previewing likely
prospects of disturbances, we might encourage them
• we withdraw immediately if we suspect ourpresence is inflaming the situation• we must be prepared to collect material for lateruse or editing, if the level of violence or disorder
becomes too intrusive or graphic to be broadcast live.	See Section 5 Harm and Offence: 5.3.11 andSection 11 War, Terror and Emergencies: 11.3.1-11.3.3

Staged Events
11.3.9	Any proposal to attend an event stagedby proscribed organisations or groups
known for mounting acts of terror, inorder to be recorded, must be referred toa senior editorial figure or, for independent
production companies, to the commissioning
editor. Referral must also be made to
Director Editorial Policy and Standards.

11.3.10	Any proposal to broadcast material recorded

at a staged event in the UK or overseas,
where threats are made against UK citizens,must be referred to Director Editorial Policyand Standards.

217

WAR, TERROR AND EMERGENCIES

11.3.11	Any proposal to broadcast material

recorded at legitimate events whenparamilitary or other groups with aknown record of violence or intimidation
stage an appearance must be referred toa senior editorial figure, or for independent
production companies to the commissioning
editor, who may consult Director Editorial
Policy and Standards.

Threats and Hoaxes
11.3.12	If we receive a bomb warning or other credibleand specific threat, the first priority is to pass
it on to the appropriate authorities.
11.3.13	We must not reveal security details or other sensitive
information not widely in the public domain whichmight assist an attack.
11.3.14	We do not normally report threats against named
individuals unless they have produced a visible effect,
such as the cancellation of a public appearance.
11.3.15	We must take care not to identify individuals ororganisations, who would not otherwise be in danger,
as possible targets unless there is an overriding editorial
justification. For example, this may include companies
or employees engaged in testing on animals orundertaking work for military establishments.
11.3.16	We do not normally report incidents which turnout to be hoaxes unless they have had a serious
and evident effect, such as major and highly visible
transport disruption.

bbc.co.uk/editorialguidelines

218

WAR, TERROR AND EMERGENCIES

Hijacking, Kidnapping, Hostage-Taking and Sieges
11.3.17	In cases of hijacking, kidnapping, hostage-taking,sieges, bombings or other similar events, we must
be aware that anything we broadcast may be seen orheard, either directly or indirectly, by the perpetrators
both in the UK and overseas.	It is important that we report demands in context.
We should also consider carefully the ethical issues
raised by providing a platform to hijackers, kidnappers
or hostage-takers, especially if they make directcontact. We must remain in editorial control of
the reporting of events and ensure that:• we do not interview a perpetrator live on-air	See Section 8 Reporting Crime and Anti-Social Behaviour:8.3.14-8.3.18• we do not broadcast live any content provided
by a perpetrator• we broadcast content made by perpetrators
only after referral to a senior editorial figureor, for independent production companies,
to the commissioning editor and referral
should also be made to Editorial Policy• when covering sensitive stories, for example,
a school siege or plane hijack, we should bearin mind that the outcome is unpredictable andbe cautious about broadcasting live images as werisk showing distressing material that is unsuitablefor broadcast• the existence of social media means that we may
have information from alleged victims, eyewitness
accounts and images during or very soon after anincident. We need to subject this information toproper journalistic scrutiny to ensure its accuracy
before using it.	Where an alleged victim in an ongoing situation puts
information into the public domain on social media, weneed to weigh up very carefully whether our reportingof their situation creates further danger for them.

219

WAR, TERROR AND EMERGENCIES

11.3.18	When reporting stories relating to hijacking, kidnapping,hostage-taking or sieges we must take due accountof advice from the police and other authorities
about anything that, if reported, could exacerbate thesituation. Occasionally they will ask us to withhold oreven to include information. We will normally comply
with a reasonable request, but we will not knowingly
broadcast anything that is untrue.	Any request from the police or others fora complete news black-out must be referred
to a senior editorial figure, who must consult
Director Editorial Policy and Standards.
National Security and Counter-Terrorism
11.3.19

Official Secrets Act	The Official Secrets Act affects our ability
to report on some matters relating tosecurity and intelligence issues. Content
producers must consult Programme Legal
Advice when handling such material that
falls, or might fall, within its terms.
11.3.20
Defence and Security Media Advisory Notices	Defence and Security Media Advisory Notices provide
guidance about information which, if broadcast, mightdamage national security. They cover the publication ofmaterial including highly classified codes and ciphers,
information not widely in the public domain about key
military facilities and installations and information
relating to UK Security and Intelligence Services
and Special Forces.	The standing Notices can be read on the DSMA Notice
System website.	The system is voluntary; it has no legal authority andthe final responsibility for deciding whether or notto broadcast rests solely with us. Content producers
bbc.co.uk/editorialguidelines

220

WAR, TERROR AND EMERGENCIES

should seek senior editorial and legal advice at an earlystage when handling material that falls, or might fall,under the Notices.	Any approach to or from the Secretary to
the Defence and Security Media Advisory
Committee3 must be referred to Director
Editorial Policy and Standards.
Terrorism Acts
11.3.21	There is a legal obligation under the Terrorism Acts
to disclose to the police, as soon as reasonably
practicable, any information which we knowor believe might be of material assistance in:• preventing the commission of an act of terrorism
anywhere in the world• securing the apprehension, prosecution or convictionof a person in the UK, for an offence involving thecommission, preparation or instigation of an actof terrorism.	It is a criminal offence not to disclose such information.

Any situation where BBC staff or anyone else
engaged in content production for the BBC
may have obligations under the Terrorism
Acts must be referred promptly to Director
Editorial Policy and Standards and to
Programme Legal Advice.	The Acts give the Home Secretary powers
to designate UK and international organisations
as ‘terrorist groups’, making it illegal for them tooperate in the UK. The Home Office website carries
a list of proscribed organisations. Any proposal toapproach an organisation (or an individualmember of an organisation) designated a3 Sometimes also referred to as the D-Notice Committee.

221

WAR, TERROR AND EMERGENCIES‘terrorist group’ by the Home Secretary
under the Terrorism Acts, and any proposal
to approach individuals or organisations
responsible for acts of terror, to participate
in our output must be referred in advanceto Director Editorial Policy and Standards.
See Section 18 The Law: 18.4.4

Hostile Environments and Travel Advisories
11.3.22	Any proposal to travel to a country orarea classified as a Hostile Environment
or where a Travel Advisory applies must
be referred to BBC Safety’s High Risk Team
before departure.	A ‘hostile environment’ is a country, region or specified
area subject to war, insurrection, civil unrest, terrorism
or extreme levels of crime, banditry or lawlessness,or public disorder or epidemic disease. It also
includes areas with extreme climate or terrain.	A ‘Travel Advisory’ applies to countries or areas
where special care is needed.	BBC Safety maintains a list of hostile environments
and travel advisories on its own website4.

4	See BBC Safety Site: Available on Gateway for BBC or via commissioning editors forindependent producers.
bbc.co.uk/editorialguidelines