When
 

TRAGEDY

Strikes Your Unit
 

(and It Will) . . .
 

How Do You 

Prepare? 

By The Thirtymile Fire


Accident Investigation


Communications Team
 

“Whereas public relations practitioners typically cannot 

predict a specific disaster or crisis, they can anticipate that 

the unexpected will occur.” 

—From Effective Public Relations

 (Cutlip, Center, and Broom, 1985) 

When Tragedy Strikes Your Unit (and It Will) . . . 

How Do You Prepare? 

Introduction 

The title is not meant to be fatalistic. It’s a sad reality. At some point in your 

career as a public affairs officer, incident information officer, or communications professional, you will be faced with communicating about a tragedy 

that has occurred on your unit. You may also be part of a communications 

team tasked to announce the results of an accident investigation team report. 

Regardless of the circumstances, there are some basic steps to ensure that you 

are prepared for the inevitable. 

Setting the Stage 

The following information is based on the collective experiences of the 

Thirtymile Fire Accident Investigation Communications Team (hereafter 

referred to as the Investigation Communications Team). The Investigation 

Communications Team was formed to announce the Accident Investigation 

Team’s findings on the Thirtymile Fire, which killed four USDA Forest 

Service firefighters on July 10, 2001, after they became entrapped and their 

fire shelter deployment site was burned over in the Chewuch River Canyon, 

about 30 miles north of Winthrop, Washington. 

It focuses on lessons learned after the fatalities occurred and leading up to the 

release of the findings and recommendations from the Accident Investigation 

Team and Board of Review for the Thirtymile Fire. 

The Investigation Communications Team was closely tied to the Accident 

Investigation Team. On July 11, Ron DeHart was assigned responsibility as 

the Public Affairs Officer with the Accident Investigation Team, a role he 

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continued to assume (while also heading up the Investigation Communications 

Team) through the announcement of the Accident Investigation Team’s findings on September 26, 2001. The Investigation Communications Team was not 

an extension of the Forest Fire Information Team, headed by Paul Hart, or the 

Northwest Coordination Center (Portland), although communications was 

coordinated with both. The Forest Fire Information Team answered media 

inquiries at the forest level and addressed communication needs of the victims’ 

families, survivors, and the local community during the fire’s aftermath. 

On August 10, 2001, the USDA Forest Service Chief commissioned the 

Investigation Communications Team to develop a strategic communication 

plan for the release of the Accident Investigation Team’s and Board of Review’s 

recommendations and action plans. You will find lessons learned throughout 

Lessons Learned 

the remainder of this booklet based on the experiences of the Investigation 

Communications Team. Some of the team’s actions and decisions were successful while others required constant improvement and monitoring. Perhaps you 

have ideas on how to improve upon the strategies the team implemented. The 

Investigation Communications Team developed this document for the communication professionals and incident information officers who may volunteer for 

an assignment of the national importance of the Thirtymile Fire Investigation. 

This document augments but does not replace information presented in “Introduction to Incident Information (S-203)” and “Advanced Incident Information 

(S-403).” Those courses are invaluable for learning more about incident 

information and crisis communication. You can also find additional references 

on crisis communication and planning at the end of this publication. 

Making the Transition 

Making the transition from public affairs officer or incident information officer 

to an accident investigation communications team member after an incident 

has occurred is critical to the success of the communications team. You will be 

required to focus your total attention on the communications team and its 

functions. This is your new assignment and to make your transition smoother, 

a few basic planning steps can be taken. 

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At the very onset of your assignment, obtain a charter and/or delegation of 

authority/authorization letter from the leadership of your organization. The 

charter should clearly define “exactly” who has immediate oversight authority over 

the team; the chain of command; and who makes the final decisions regarding 

any team request, activity, product, or funding and personnel needs. 

Secure a job code for travel, salaries, and administrative and logistical support. 

Without this code, the first meeting of the team cannot occur unless personnel are 

prepared to travel under their unit authorization code. 

The Accident Investigation Team received their charter and delegation of 

authority from the Chief of the USDA Forest Service within 24 hours of the 

incident. In contrast, the Investigation Communications Team obtained its 

charter approximately 1 month after the team was formed. This lapse in time 

and the fact that the charter omitted a chain of command and delegation of 

authority made it challenging for the Investigation Communications Team to 

function most effectively. 

By having a charter and funding source, your supervisor will be more supportive of your participation on the team and the transition to your temporary assignment will be less stressful. 

Forming a Communications Team 

When forming a communications team to address the post-crisis situation, 

consider team composition including technical and interpersonal skills, 

availability and flexibility of team members, team size, and organizational 

knowledge (i.e., professional networks). 

Closely examine the role, as well as the products produced from the communications team (i.e., presentations, word processing, graphics, web design, etc.) so that 

personnel with the appropriate skills are recruited. For example, if a press conference is warranted, identify a person with technical expertise and media relations 

experience. 

The team should consider recruiting extended team members such as legislative, 

leadership, and communication contacts in the agencies’ headquarters, personnel 

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at the National Interagency Fire Center (NIFC), field public affairs officers, and 

family and unit liaisons. The most critical function these “ex-officio” team 

members serve is networking with key audiences in which the communications 

team may not have direct contact. 

It is crucial that the team select one member who can serve as a liaison to the 

unit where the incident occurred. The person must be credible, understand the 

importance of communicating honestly and openly with the unit, and keep the 

unit leadership informed. Having an extensive network of professional contacts 

also enhances this person’s ability to meet the needs of the local unit. 

Communicating details of a tragedy is stressful. Team members need to remain 

“remotely compassionate” and consider the emotion of the tragedy, especially at 

the field level. However, team members must keep themselves sufficiently 

removed from that emotion to accomplish their mission. Processes, due dates, or 

pressures from the media, politics, or demanding agency officials, must not 

intimidate them. Most importantly, team members must have a sense of humor. 

Because of the intense nature of the assignment, the team must work well 

together. They become family for a brief period of time. Interpersonal skills are 

required especially when clear, open, and candid communication is essential. 

Although potential team members sometimes appear to have little flexibility for 

accepting an extended assignment, do not omit these persons from consideration 

for your team. Sick leave, vacation, previously scheduled work assignments, and 

other critical incidents can be readily accommodated. Nevertheless, once assigned, 

members must be committed to completing the project. 

The Investigation Communications Team had several extended team members including a unit, family, legislative, Washington Office, and NIFC 

liaison. In particular, the unit liaison was instrumental in forming a positive 

working relationship between the Investigation Communications Team and 

Forest Fire Information Team. The Investigation Communications Team also 

had contracting, press conference, graphic, and web expertise. The networking and technical support that extended team members provided helped the 

core team focus on its mission, which made the Investigation Communications Team a more effective and cohesive group. 

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After careful analysis of the communication needs, several subteams may be 

formed depending on the nature of the incident. Consequently, roles and 

responsibilities of each team and subteam members need to be defined. 

Getting Started 

Once the team is formed, clearly define the roles, responsibilities, and expectations of the team members and teams so that each team and team member 

can be successful. 

The roles and responsibilities should be documented in writing, and agreed to by 

all, with the understanding that flexibility is the key. The team members should be 

such that in the absence of one member, others can fill the assigned role at any 

given moment. 

Confidentiality is a must. The team can discuss things with each other but not 

with people outside the team. 

If there are subteams, and more than likely there will be, the teams need to decide 

how they will interface with each other as well as with agency leadership, the 

agency’s Office of Communication, the Accident Investigation Team, the Board of 

Review, and extended team members. Teams have to understand the needs of each 

key player and voice their needs clearly. 

Appoint a media spokesperson and 

ensure that team members understand this is the only person authorized to speak to the media. Identify a 

backup in case the media contact is 

unavailable for comment. The 

Accident Investigation Team leader 

may choose to appoint a spokesperson 

for the investigation team. In this 

case, at a minimum the two media 

contacts should keep each other 

informed of media interviews and 

exchanges and coordinate interviews 

and key messages. 

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Explain in the charter, or delegation 

of authority letter, the approval 

process for products such as briefing 

papers, press releases, etc. This 

process may involve the Office of 

General Counsel and consideration 

under the Freedom of Information 

Act. Be prepared for a lengthy 

review process and knowledgeable of 

all parties that need to be consulted. 

Understanding the investigative 

process will also provide team members with timeframes, chains of command, and 

the relationships among the communications team(s), the Accident Investigation 

Team, and the Board of Review. 

When getting started with the communications team assignments and defining 

roles and responsibilities, an important logistical question needs to be addressed— 

Where does the team set up their operations? Although this may seem like a small 

detail, the location of the team operations needs to be accessible to the unit where 

the incident occurred, yet removed enough so that the team can maintain their 

objectivity and autonomy. 

The first day the Investigation Communications Team met, they reviewed the 

details leading to the fatalities and proceeded to define areas of responsibility 

for each team member. From the start, team members were clear as to the role 

they would play. The Investigation Communications Team then identified 

extended team members, contacted them, and explained their supporting 

role. When necessary, different teams met and clarified roles and boundaries. 

With the team in place, roles and responsibilities clearly defined, and expectations understood, it’s time to carry out the charter and mission of the team. 

Strategic Communication Planning 

The team’s purpose is no doubt to ensure clear, timely, and accurate communication of the findings of the Accident Investigation Team and Board of 

Review. To do so, a strategic plan is required, which includes further defining 

of the communication goals and strategies, identifying key audiences, and 

developing timelines and review processes. 

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Regardless of the strategic communication format you select, the plan should, at a 

minimum, include goals and objectives, key audiences, key messages, timelines 

and products, special needs, an action plan with responsible parties identified, 

and evaluation methods. Reflect full disclosure in the goals and objectives as 

humanly and legally as possible. This is vital for maintaining team integrity 

within the agency as well as outside. Do not give in to spin or politics. 

The team must constantly be involved in environmental sensing, which is a 

dynamic process. This includes issue management, political sensing, coordination 

with political liaisons, and issue monitoring in the local area, the region, the 

Nation, and the world that may impact your team’s decisions and plans. As new 

issues arise, the communications team must be flexible and adapt the strategic 

plan accordingly. 

It is critical that the communications team has access to draft investigative 

documents early on to gather facts to complete the communication plan. You 

must demonstrate your ability to keep information confidential, thus ensuring 

future communications teams are allowed access to sensitive draft documents. 

When your communications team decides to develop products, ensure that they 

are accessible to everyone, realizing that technology varies widely. Keep files small 

enough to transfer via e-mail and load and download from the Internet. If you 

are using Adobe Acrobat files, use the oldest version available. Finally, if holding 

a press conference, ensure that the 

satellite uplinks can be accessed by a 

majority of people, consider any 

special accessibility needs (e.g., sign 

language interpretation, and open 

and closed captioning). 

Include a strong evaluation element 

and measures of success so that you 

know when and if you have achieved 

success. 

In formulating your communication 

plan and timelines make sure you 

have covered all the bases. Retrenching or retracting premature or ill7
 
prepared statements is difficult for the families and survivors and compromises the 

credibility of your team and the agency. 

Although the Investigation Communications Team initiated the strategic 

communication plan at the first meeting, it was finally completed the day the 

report was released. Over the 7 weeks prior to the announcement date, the 

plan was changed, modified, and adapted based on new information derived 

from the environmental sensing process. The goals and objectives of the plan 

assisted the team in completing questions and answers, briefing papers, and 

other product development. 

The date of the press conference changed twice to accommodate the needs of 

the Accident Investigation Team and the Investigation Communications 

Team. Special consideration was given to the terrorists’ attacks on September 

11, 2001. The communications team did not want the agency to be perceived as delaying the press conference due to this national tragedy nor did 

the team want to be insensitive to the needs of the families and survivors. In 

the end, the date did not change a third time. 

Although the communications team’s plan could have been simplified 

somewhat, it provided a much needed structure and overall framework for 

the team to operate. It is important for team members to agree upon a format 

at the very beginning of the strategic communications planning process and 

stick to it. 

Announcement of the Findings 

Depending on the incident at hand and the strategic plan devised by the 

communications team, at a minimum, the Accident Investigation Team will 

release a report. Despite all the communications team’s best planning, 

anticipate last minute changes. 

Realize that as the release date approaches, your team will receive the help the 

group requested several weeks ago when the team was first formed. You will 

receive more input in the 24-48 hours leading up to the release of a report than 

you ever dreamed possible. The team will also be questioned about most everything you have done or have considered up to this point. Do not take these 

questions personally. This is the time to exercise the utmost in patience and 

tolerance. 

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During the days leading up to the release, the team and subteams must have 

already decided the roles of each member, the roles of the various extended team 

members, and the roles of well-meaning people who appear at the last minute to 

assist. Flexibility is key. 

If a press conference is the venue for releasing a report, conduct a simulated press 

conference prior to the actual conference. All people with a speaking role at the 

press conference, including agency leadership, should be involved in at least one 

dry run. The primary speaker may need additional practice. Hold the simulations in the room where the press conference or event will be held to test acoustics, podium height for speakers, placement of visuals, and the need for props. 

After the press conference, hold a debriefing to review the conference to capture 

the successes and areas in need of improvement. 

The Investigation Communications Team completed two press conference 

simulations with the main speaker. After the second practice run, the 

speaker was prepared to deliver the results succinctly and incorporate 

answers to many of the questions the team anticipated reporters would ask. 

During the simulation and less than 24 hours prior to the conference, the 

Investigation Communications Team decided that they needed two foamcore boards to better relay the report findings. 

While setting up for the press conference, provide risers for cameras and 

adequate aisles, and be aware of accessibility concerns, camera angles, and 

objects behind the speakers such as lights, microphones, satellite trucks, 

and audio and video breakout boxes. 

A day prior to the press conference, the Investigation Communications 

Team and the Forest Fire Information Team met to discuss roles and 

responsibilities during and after the press conference. The meeting was a 

culmination of multiple exchanges between the two teams so it wasn’t the 

first time they had talked. There were no surprises and both groups clearly 

understood their various needs and expectations. 

Environmental sensing immediately before and after the release of any 

report is critical. By identifying issues that may influence key messages, 

details in a press release, or the availability of certain personnel, the team 

can adapt quickly and with ease. Remember that your top priority is to 

consider the needs of the families and survivors involved. 

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Evaluation of the Communications Team 

Evaluation of the Investigation Communications Team from its conception to 

disbandment was key to its success. Do not wait until the end to evaluate the 

team’s activities. The Investigation Communications Team accomplished the 

basic goals and objectives outlined in the communication plan, which included 

the families being briefed prior to the media and general public, no major leaks 

of information, and the main speaker at the press conference being wellprepared minimizing questions from the media. 

Lessons Learned 

Here is a summary of the lessons learned by the Investigation Communications 

Team: 

❃ Obtain a charter and delegation of authority 

❃ Secure a job code for travel and salary 

❃ Consider team composition carefully and the need for subteams and 

extended team members 

❃ Define roles and responsibilities of the team and subteams 

❃ Develop a strategic communication plan 

❃ Anticipate last minute changes on the day reports or announcements are 

made 

❃ Conduct a simulated press conference if your communication plan calls 

for one 

❃ Continue environmental sensing from the beginning to the end of the 

communications team’s existence 

Summary 

The success of this Investigation Communications Team can be attributed to: 

Planning—The team had a charter; possessed a diverse repertoire of skills, 

knowledge, and experience; understood their roles and responsibilities; and 

practiced the final presentations for the press conference. 

Flexibility helped with shifts in roles and transitions, changes in announcement dates and team members’ schedules, and product development. 

Being there—Team members persevered throughout the entire process. 

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What Are the Challenges for the Future? 

It is a challenge to plan for the future and the inevitable. Nevertheless, each 

unit should have an up-to-date crisis communication plan that outlines 

who, what, when, and where to prepare for a tragedy. An example unit plan 

is listed in the reference section of this publication. In addition to having a 

plan in place, personnel must be committed to staffing critical incidents. 

The pool of agency communications personnel who have been part of 

critical incident communication efforts such as Thirtymile, South Canyon, 

Dude, and Guide Fires is extremely small. In fact, many of these people are 

approaching retirement age, leaving a gap in experience and the institutional memory that is key to professionally and successfully addressing 

these crises. It is incumbent upon supervisors to mentor and support 

communication professionals and for public affairs officers and incident 

information officers to volunteer for these types of assignments. 

A Final Word 

And finally a word about next time, because there will be one some time in 

the future. It is critical that teams such as these be staffed with highly 

skilled incident information 

officers, public affairs officers, 

communication professionals, and 

technical/subject-matter experts. 

The victims, families, and survivors 

deserve the time and attention of 

dedicated professionals who will 

keep their interests in mind. 

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References 

Ken Palmrose, Crisis Communication Plan for Region 3, 

http://www.fs.fed.us/r3/fire/fireinfo/nicc2001/ click on the 

“NICC agenda” link and scroll to “The Roll-Out of Thirtymile Fire 

Accident Investigation Report” 

Cutlip, S.M., Center, A.H., and Broom, G.M. 1985. Effective Public 

Relations (6th ed.). Englewood Cliff, NJ: Prentice-Hall. 

Whitlock, Chuck. 2000. Accident Investigation Guide, 2001 Edition. USDA 

Forest Service Technology and Development Program. 

Missoula, Mont. 7E72H46-Accident Investigation Guide. 

Crisis Communication References suggested by the Public Relations 

Society of America. <http://www.prsa.org> 

Item # 6H-0003 Profolio: Crisis Planning & Management 

Member $25.00, Nonmember $50.00. Length 78 pgs 

Item # 6F-0025 You’d Better Have a Hose if You Want to Put Out the Fire 

Rene A. Henry. 2000. Gollywobbler Productions. Member $21.20, Nonmember $24.95. Length 320 pgs 

Item # 6F-0049 The Crisis Counselor 

Jeffrey R Caponigro. 1998. Barker Business Books. Member $14.40, Nonmember $16.95 

Item # 6F-0018 Crisis Communications: A Casebook Approach 

Kathleen Fearn-Banks. 1996. Lawrence Erlbaum Associates. Member $27.65, 

Nonmember $32.50. Length 330pgs 

Item # 6F-0030 The Crisis Manager: Facing Risk and Responsibility 

Otto Lerbinger. 1997. Lawrence Erlbaum Associates. Member $30.60, 

Nonmember $36.00.Length 393pgs 

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Thirtymile Fire Accident Investigation 

Communications Team Members 

Team Leader, Ron DeHart, Public Affairs Officer, USDA Forest Service, 

Mt. Baker-Snoqualime National Forest, Seattle, Washington 

Deputy, Ken Palmrose (retired), Regional Media Officer, USDA Forest 

Service, Region 3, Phoenix, Arizona 

Members 

Cathie Schmidlin, Public Affairs Officer, USDA Forest Service, Kaibab 

National Forest, Williams, Arizona 

Terri Gates, Public Affairs Officer, USDA Forest Service, Deschutes 

National Forest, Bend, Oregon 

Jim Paxon, District Ranger, USDA Forest Service, Black Range Ranger 

District, Gila National Forest, Truth or Consequences, New Mexico 

Dave Steinke, Public Affairs Officer, USDA Forest Service, Regional Office, 

Rocky Mountain Region 

Jennifer Plyler, Public Affairs Officer, USDA Forest Service, National 

Headquarters, Washington, DC 

The U.S. Department of Agriculture (USDA) prohibits discrimination in all its

programs and activities on the basis of race, color, national origin, sex, religion,

age, disability, political beliefs, sexual orientation, and marital or family status. (Not

all prohibited bases apply to all programs.) Persons with disabilities who require

alternative means for communication of program information (Braille, large print,

audiotape, etc.) should contact USDA’s TARGET Center at (202) 720-2600 (voice 

and TDD). 

To file a complaint of discrimination, write USDA, Director, Office of Civil

Rights, Room 326-W, Whitten Building, 1400 Independence Avenue, SW,

Washington, DC 20250-9410 or call (202) 720-5964 (voice and TDD). USDA is an

equal opportunity provider and employer. 

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FS-737 April 2002