Strategic Communications Plan
for the
Ottawa Police Services Board
Submitted by
Version 6
June 20, 2011
I. EXECUTIVE SUMMARY
At a time when public cynicism is rising steadily across the country and trust in institutions – including police – is falling, police services boards and commissions play a vital role in ensuring greater transparency, demonstrating accountability, and building confidence in the local police service.
In spite of these laudable contributions, police boards across Canada have been plagued by a low public profile and a general lack of awareness about roles and mandates.
For several years, the Ottawa Police Services Board (OPSB) has recognized its public relations challenges by taking proactive steps to improve relations with the public and other stakeholders in the broader community.
That attitude remains, and was echoed during recent interviews with members of the Ottawa Police Service’s Senior Command, prominent local journalists, and Board members themselves.
This communications strategy aims to provide the OPSB with a blueprint for achieving a number of important objectives in areas such as: 1) promoting awareness and understanding of the Board, its role and its work; 2) engaging stakeholders and the broader community through ongoing, dynamic dialogue; 3) supporting the objectives of the Ottawa Police Service as outlined in its 2010-2012 Business Plan; and 4) contributing to steadily increasing levels of public trust and confidence in the Board and the Police Service.
Recognizing that communications by the Board are reasonably effective in keeping key audiences informed of its activities, this document recommends a strategic approach based on seven core components. Adopting these approaches would see the Board communicating in far more proactive and targeted ways, closely aligned with both corporate and communications objectives.
Based on input received from a series of one-on-one interviews, coupled with an analysis of the public environment and a high-level review of leading police services boards elsewhere in Canada, this strategy provides a package of communications tools and tactics targeting specific audience segments (e.g. Board members, City Council, media, public).
In light of the limited capacity available to the Board, it is recommended that the OPSB adopt a staged approach to the implementation of those communications products and activities that will be most effective in achieving stated objectives.
Discussions with Board members in the development of this plan have also highlighted the need for a broader strategic planning exercise to confirm a shared vision and to identify key Board priorities in support of the current OPS Business Plan.
The OPSB has indicated that it fully endorses the idea of a strategic planning exercise as it will further inform this document, particularly in relation to the ways in which communications can advance policies and initiatives that will bring tangible benefits to the citizens of Ottawa.
II. PROJECT OVERVIEW
In February, 2011, Face Value Communications Inc. was contracted to develop a comprehensive communications strategy to support the work of the Ottawa Police Services Board (OPSB).
In developing the following strategy, Face Value drew upon extensive experience in the Canadian law enforcement sector (see following page) as well as a review of existing OPSB communications products and planning documents, face-to-face interviews with Board members and key external stakeholders, and a high-level best practices review of both domestic and international police service boards.
The purpose of this document is to provide strategic direction and a series of specific measures – both proactive and reactive – to help the Board leverage communications products and activities to help it achieve its priority objectives.
Proactively, the Board needs to be better positioned to educate, to enable deeper understanding, and to demonstrate accountability that will build confidence and trust in itself and the police service.
On the reactive side, the OPSB must be positioned to respond in a timely and effective way to emerging issues, public concerns, and events in other jurisdictions.
III. ABOUT THE SUPPLIER
Face Value Communications Inc. has done extensive work in the Canadian law enforcement sector. For more than 15 years, its Founder and President, Derek Johnston, has worked with senior leaders with dozens of policing organizations and police boards.
A regular instructor and facilitator on executive workshops at the Canadian Police College, Mr. Johnston has provided strategic analysis and advice, issue management services, and crisis communications counsel as both a full-time Director/Advisor and a consultant to police agencies. He has developed and executed scores of communications strategies at both the corporate and program levels.
Face Value has collaborated with the Ottawa Police Service on several occasions, most notably in the aftermath of the 2009 Tamil protests in the vicinity of Parliament Hill and throughout the controversy generated by a recent series of cellblock incidents.
IV. CONTEXT
A vital public service
In a
post-9/11 era, concerns about increasing surveillance and security must be
balanced with reasonable public expectations around the role of police to serve
and protect. The OPSB represents the interests of the community and is guardian
of the fundamental relationship between the police and the public.
Off the
radar
In spite of these laudable contributions, police boards across Canada have been plagued by a low public profile and a general lack of awareness about roles and mandates.
This situation is not unique to Ottawa. According to the Calgary Police Commission, “few Calgarians understand the organization’s specific role in maintaining a police service that serves the best interests of the people…With its relatively complex mandate, the CPC ultimately faces an ongoing challenge of establishing strong brand awareness in the minds of its various stakeholders including the media, CPS members, City Council, and the public at large.” [1] One of the unfortunate consequences, according to the CPC, is a disenfranchised public.
In Edmonton, the Police Commission has historically fulfilled its mandate without investing intentionally in a positive public profile. As the Commission suggests in its communications strategy, “This (approach) has not served to build reputational equity, which can be helpful during difficult and controversial times.” [2]
This reflects the experience in Ottawa, where Board members faced criticism in November and December of last year in relation to the Stacy Bonds case and other cellblock incidents that subsequently came to light.
For several years, the Ottawa Board has recognized its public relations challenges in taking proactive steps to improve relations with the public and other stakeholders in the broader community. As noted in its 2008 Community Engagement Strategy, “In general there is a sense that the Board could do a better job communicating its messages and educating others about the work of both the Board and the Police Service.”
That sentiment remains, and was echoed during recent interviews with members of the Ottawa Police Service’s Senior Command, prominent local journalists, and Board members themselves.
Uphill battle
Building awareness and profile is no easy task, particularly when the work of the Board is complicated, governed by strict provincial legislation, and conducted largely behind-the-scenes. Much of its work falls into complex grey areas, creating occasional uncertainty even for senior police leaders and members of the Board.
Exacerbating the challenge is the fact that the vast majority of the Board’s activities revolve around policies, procedures, and the review of regular reports from the police service. To be sure, it’s essential work from a governance perspective, but not the sort of sensational subject matter likely to generate sustained interest from the media or the public.
Sudden peaks of attentiveness are sparked most often by controversy such as last fall’s Stacy Bonds case. In the absence of widespread understanding of the Board’s mandate, stakeholders react during these moments of intense interest by questioning the role of the Board and demanding actions that are often beyond what the legislation will allow.
Perception is reality.
Heightened scrutiny during times of crisis can often contribute to unflattering perceptions about the organization(s) involved.
Contributing further to perceptions of a lack of independence is the dearth of debate and discussion at public Board meetings. Because issues are addressed behind-the-scenes by Board staff and committees working with the police service, the public views a Board that steamrolls through its monthly meeting agendas, with members offering a limited challenge function and with few questions directed at police leadership.
There are signs that the approach is changing, with Board members taking better advantage of opportunities during the monthly meetings to seek clarification, explanation or further detail from senior representatives of the police service.
V. COMMUNICATIONS OBJECTIVES
As defined in existing policy, the Ottawa Police Services Board is committed to effective and proactive communication that will:
a) Promote awareness and understanding of the Board, its role and its work;
b) Engage stakeholders and the broader community through ongoing, dynamic dialogue;
c) Improve Board members’ understanding and knowledge of community concerns by soliciting regular input from stakeholders and the general public;
d) Stimulate stakeholder discussion about law enforcement and crime prevention issues;
e) Demonstrate the Board’s commitment to accountability and transparency;
f) Foster positive relationships with City Council, the media, community stakeholders and the public;
g) Provide the media, City Councillors and stakeholders with accurate and timely information about key Board initiatives and decisions;
h) Manage issues effectively and in a manner consistent with the Board’s communications goals; and
i) Support the objectives of the Ottawa Police Service as outlined in the Business Plan.
Other objectives to be considered by the Board should include:
j) Contribute to steadily increasing levels of public trust and confidence in the Ottawa Police Service;
k) Set and manage realistic expectations about the Board’s role in overseeing the work of the Police Service;
l) Foster a Board profile/image as independent, professional, transparent, credible, competent, accountable, progressive, community-focused, collaborative, relevant, inclusive and accessible; and
m) Achieve internal alignment and buy-in around all aspects of the Board’s communications approaches and activities.
VI. TARGET AUDIENCES
OPSB communications products and activities will be aimed primarily at the following audiences:
§ OPS Board members
§ City of Ottawa Council and senior officials
§ OPS Senior Command
§ Ottawa Police Association and Senior Officers Association
§ Local media (mainstream and community-based)
§ Residents of Ottawa
§ Crime Prevention Ottawa and other crime prevention, community safety and affinity groups
§ School Boards
§ Business Community
§ Volunteer Sector
§ Ottawa Neighbourhood Watch Executive Committee
§ COMPAC – Community Police Action Committee
§ Ethnic and cultural associations
§ Liaison Committee for GLBT Communities
§ Ontario Ministry of Community Safety and Correctional Services
§ Other provincial and federal government representatives
VII. STRATEGIC APPROACH
Given the contextual analysis, the stated communications objectives, and the well-documented challenges facing civilian oversight agencies, it is recommended that the approach to strategic communications be driven by seven core components.
Execution of these principles will be accomplished through the specific measures listed in the Tools & Tactics section starting on Page 10.
1. If it ain’t broke…
Based on our analysis of existing OPSB communications products and activities, and a comparison with those from other leading police commissions (e.g. Calgary, Edmonton, Northern Ireland), it is evident that the OPSB is doing a lot of things right. Our focus, therefore, will be on recommending approaches and complementary tools and tactics that build on the existing foundation.
2. Proactive, by default. Reactive, by necessity.
§ “If you build it, they will come.” It’s a concept that worked for Kevin Costner in the 1989 movie, Field of Dreams. But any expectation that building a communications platform (e.g. website) and expecting key audiences to “visit” is impractical and unrealistic. The only workable approach is to regularly seek a variety of ways to proactively cut through the noise and deliver relevant content that resonates with key target audiences.
In practical terms, this kind of approach means that the Board will rely as much as possible on “push” technologies and communications channels such as face-to-face meetings, social media (e.g. Twitter), email newsletters, and scheduled media availabilities.
Furthermore, it suggests that the Board will take the measures necessary to proactively anticipate trends and leverage opportunities early enough to be able to frame issues and influence outcomes, rather than simply scrambling to respond reactively to antagonistic agendas.
Where surprise issues and events arise, this kind of formalized approach ensures a streamlined and efficient process to gather the necessary information, anticipate questions, develop key messaging, and prepare the designated spokesperson.
3. Inreach then outreach.
§ Before the Board can maximize the impact of its external communications, it must ensure that its internal communications are generating maximum benefit. An early priority must be to revisit its existing policies, practices and procedures to ensure that all Board members are properly equipped with the tools and abilities to deliver relevant messaging in timely and consistent ways.
4. Put a face on the organization.
§ People connect to people, not to organizations. The OPSB will be far more successful in raising support and awareness in the community if it is seen to have a face and a voice, or multiple faces and voices. By leveraging the experience, expertise and credibility of individual members, the Board as a whole will reap the benefits in terms of increased awareness and heightened reputation.
5. Manage issues before they manage you.
§ Organizations are most effective when “out in front” of an issue, influencing the debate and the resulting decisions; conversely, they are least effective when something hits from out of the blue, forcing a rushed, reactive response.
As outlined in the Tools & Tactics section, an Issue Management Protocol in cooperation with the Ottawa Police Service will:
a) Bring much-needed structure to the ways in which information is gathered and shared both internally and externally;
b) Reduce exposure to risk by identifying issues and influencing them before they become crises;
c) Put issues in proper context, achieve the right level of media attention, reach key influencers, and build and maintain reputation and support;
d) Develop smart, effective approaches early enough to be effective; and,
e) Capitalize on opportunities for education and profile (e.g. the search for a new Chief of Police will generate significant public and media attention for the Board).
6. Reality check.
As noted by the Edmonton Police Commission, communications plans have their limitations. Oversight agencies must govern in an extremely complex and ever-changing environment. While proactive is preferable, it’s not always possible, which dictates the need for a formalized approach to unexpected issues and incidents.
It is also important to recognize the finite communications resources available to the Police Service and the Board.
7. It’s really about the police.
The best communications strategy will not change the fact that the community’s interest in policing-related matters will always be focused on the police service and not on the oversight agency. This reconfirms the necessity to collaborate with OPS Corporate Communications and Community Development as well as members of the Senior Command to ensure consistent, timely messaging on issues and initiatives that might impact on levels of public confidence in the police service.
VIII. CORE THEMES
Much of the Board’s corporate or “day-to-day” messaging would derive from core themes around:
1. Mandate, roles and responsibilities
2. Relationship with the Ottawa Police Service in general, and the Chief in particular
3. Board priorities (aligned with the OPS Business Plan)
4. Board activities (i.e. oversight and governance, community consultations, monthly meetings, etc.) and accountability to the public
5. Opportunities for public engagement.
It will be critical for the Board to find clear and concise ways to communicate these core themes. For instance, the Edmonton Police Commission has adopted a nicely succinct phrase to articulate its primary mandate: “Representing the voice of the community on policing matters.”
Both the Edmonton and Calgary Police Commissions have developed simple, user-friendly language that could easily be adapted to flesh out these themes for the OPSB.
IX. RECOMMENDED TOOLS AND TACTICS
The following section represents a menu of options linked to the seven core components of the strategic approach.
Time and resource constraints will likely prevent the OPSB from initiating all of them. Instead, the Board should select those products and activities that are most likely to generate maximum results, consistent with the communications objectives identified on Page 5 of this document.
Recognizing the limited capacity available to the Board, it is recommended that the OPSB adopt a staged approach to the implementation of a series of communications products and activities.
Phase 1: Board-focused. IMMEDIATE (0-6 months)
Tools |
Tactics |
§ Task the Policy & Governance Committee with a review of existing communications policies, protocols and procedures in light of the seven core components of the strategic approach
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§ Include a communications component in an overall review of Board performance every three years (as recommended by the CAPB Best Practices Review). Canvas key audiences for feedback. |
§ Develop the Board’s strategic priorities, core themes and messages and, once approved, share them with all primary internal and external stakeholders
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§ Distribute a list of agenda items to all Board members one week prior to each Board meeting. This will provide Members with an opportunity to seek additional information or clarification, and to identify opportunities to raise public awareness about specific issues or initiatives. § Encourage greater day-to-day interaction between Board members to discuss issues, developments, priorities, and emerging opportunities for public engagement. § Take advantage of member knowledge, expertise and interest around specific topics, issues and initiatives § Leverage the opportunity to maximize the educational value of the Board meeting by highlighting specific aspects or requesting further detail about OPS activities § Follow up by the Board Chair or Executive Director with OPS personnel, as required |
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§ Develop an issue management protocol (see Page 17) |
Phase 2: Council-focused. IMMEDIATE (0-6 months)
Tools |
Tactics |
§ Sharing of key Board themes
§ Issue-specific messaging (provided on a priority basis and proactively distributed to Board members and City Council via email) |
§ Continue distribution of all Board documents and publications to City Councillors, their office staff, and senior municipal officials § Supplement with regular face-to-face updates to Council members from the Board Chair and the two Councillors |
Phase 3: OPS-focused. MEDIUM TERM (3-12 months)
Tools |
Tactics |
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§ In collaboration with OPS Senior Command and the Office of the Chief Directorate, identify priority issues around which to build joint communications and advocacy activities (e.g. crime prevention, enhanced partnerships)
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§ Formalize regular consultative meetings with OPS Corporate Communications and Community Development Section to identify opportunities for collaborative communications |
Phase 4: Media-focused. MEDIUM TERM (3-12 months)
Tools |
Tactics |
§ As part of the social media strategy, create a Twitter account and make it the predominant communications channel to media
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§ Editorial board meetings with the Chair and Vice-Chair, timed to coincide with important development(s) related to Board priorities |
§ Prepare and distribute a media release to accompany distribution of Board meeting agendas. Use the release to provide additional background on topics/issues of greatest potential interest to the media and public
§ Post the release on the Board’s website and send a link via Twitter
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§ Follow up by telephone with key reporters to highlight key agenda items and to offer clarification, potential story ideas, and further information as required
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§ Post on the website a clear and concise summary of the resolutions passed and decisions taken at each Board meeting. Use Twitter to send a link to media (ideally, on the morning after each Board meeting). § Include contact information for Board spokespeople to elaborate on agenda items, as appropriate |
§ Profile Board members via local, community-based media outlets |
§ Prepare and distribute an advisory to invite media to attend the quarterly public interest meetings. Use the advisory to provide additional background to attract media participation
§ Post the release on the Board’s website and send a link via Twitter
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§ Consult with prominent local media about potential topics for public interest meetings. Seeking their input will improve the chances of media interest in the events themselves
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§ Proactively pitch newsworthy ideas to key reporters (e.g. release of annual report, public opinion research results, involvement in related OAPSB OR CAPB activities, visiting delegations, budget deliberations, important policy developments, actions on topical issues and/or community priorities) |
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§ Prepare a package of boilerplate products: o fact sheets (Board composition, roles and responsibilities, members and bios) o joint versions with OPS on priority issues § PowerPoint presentation and talking points § journalistic-style overview for distribution via partner publications, community-based media, OPS channels § FAQs for widespread distribution and posting on the website
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Phase 5: Community-focused. MEDIUM TERM (3-12 months)
Tools |
Tactics |
§ OPSB website – communications audit and plain language review § Refresh Home Page content at least once/week (i.e. can be links to recent media stories, other relevant sites, partner organizations, etc.) § Do more to promote upcoming Board meetings and public interest meetings § Current “top story” refers to a public meeting that has already taken place. At minimum, the Home Page could be refreshed with a brief summary of the meeting, along with a gallery of images depicting Board involvement and community consultation and, perhaps, testimonial video clips from participants (with links to YouTube) |
§ Conduct benchmark survey to measure levels of awareness and support for both the Board and the police service § Use the benchmark data to establish measurable, realistic targets for awareness, understanding and support over time § Repeat annually and analyze to identify emerging issues and to evaluate the effectiveness of communications approaches, products and activities
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§ Review of both lay-out and content to make the newsletter more reader-friendly (i.e. reduced story length, eye-catchin lay-out)
§ Adopt common practice by posting all new content to the website and then use teaser headlines and links in the newsletter to drive traffic to the site |
§ Introduce webcasting of all public Board meetings and public consultation sessions |
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§ Monthly tracking of website traffic and email/phone enquiries to Board office; quarterly analysis |
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§ Collaborate with OPS on the development of a joint social media strategy to be executed this fall § Leverage social media platforms (e.g. Facebook and Twitter) to foster dialogue with the community § Leverage Flickr and YouTube to profile the work of the Board (e.g. post photos of community meetings) and to humanize its members (e.g. post short video clips of Board members speaking about their respective backgrounds/priorities and to share anecdotes about meaningful community engagement) |
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§ Supplement relationship-building efforts by having individual Board members host informal discussions once per quarter with key external stakeholders (e.g. neighbourhood watch, community associations, etc.): information sharing, consultation on community priorities, etc. § Coordinate through the Office of the Chief to access expertise in the OPS Community Development Unit |
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§ Board members seek out speaking opportunities at the community level (e.g. conferences, community groups, business and industry associations, service clubs, ethnic and cultural groups) |
Issue Management Protocol
To enhance the Board’s abilities to be “proactive, by default,” it is recommended that the OPSB form a designated Working Group with the Ottawa Police Service to collaborate on the design and development of a formal issue management protocol. Such an approach would help to ensure the timely identification of both problematic issues and valuable opportunities.
Such a protocol would empower the Board and the OPS with the ability to frame topical issues rather than being forced to play catch-up and respond to a context created by another group or individual. As issues appear on the radar, strategy is confirmed, messages are developed, and the spokesperson is prepared.
Basic components of an issue management protocol should include:
1. Shared calendar
To ensure the collective “radar screen” is tracking issues and events that could impact on the ability of the Police Service and/or the Board to pursue priorities and deliver on respective mandates (e.g. conferences, court decisions, media events, legislative announcements, etc.).
2. Tapping into internal and external networks
In most policing organizations, this happens haphazardly and informally to varying degrees of success. An issue management protocol would identify the key networks and then formalize how the most relevant information is gathered, analyzed and shared.
3. Media monitoring and analysis
The analysis would focus on the volume of coverage related to key issues, the predominant themes and whether they’re supportive or critical of the Police Service and Board positions, quotes from influential stakeholders, and statements that could signal the need for follow-up action.
X. RESOURCE IMPLICATIONS
In the absence of Board decisions on specific tools and tactics, it is not yet possible to provide detailed estimates on the resource implications.
It is clear, however, that taking any meaningful steps to enhance the Board’s effectiveness will require increased communications capacity.
There are a number of ways this could be accomplished:
1. Access to communications personnel, either at the City of Ottawa or the Ottawa Police Service. In both cases, however, personnel are engaged in fulfilling their assigned mandates and it is unlikely that additional capacity could be found;
2. Hiring of a part-time communications coordinator, responsible for several key functions:
§ updating of boilerplate materials, website content, key messaging, presentations
§ media liaison and follow up (i.e. to confirm interviews or to correct misinformation)
§ preparations for monthly Board meetings and public interest sessions
§ training in media interviews and public speaking
§ proactive communications with key internal and external audiences
As a result of hiring a dedicated communications resource, the Edmonton Police Commission notes in its 2008 Communications Plan:”…there has been a significant shift in news coverage of the Commission; media coverage has been presented in a more balanced format, and positive news about Commission events and announcements has increased.”
3. Engaging an outside supplier to deliver a range of services, as required, based on specific requests from the Board’s Executive Director and/or Chair. Typically, costs would be based on a pre-determined rate card.
XI. EVALUATION
OPSB tools and tactics will be evaluated in terms of their effectiveness in achieving the stated communications objectives. Specific evaluation measures could include:
§ Levels of Board member involvement in:
· approval of the communications strategy
· review and approval of boilerplate products
· approval of protocols, procedures, time commitments, etc.
· participation in training opportunities
· participation in community meetings at agreed rate
XII. REFERENCE MATERIALS
Ottawa Police Services Board
Calgary Police Commission
Edmonton Police Commission
Regional Municipality of York Police Services Board
BEST PRACTICES – A FRAMEWORK FOR PROFESSIONALISM AND SUCCESS IN POLICE BOARD GOVERNANCE
Canadian Association of Police Boards, August 2005
Armstrong, A. and Francis, R. (2008). Assessing Ethical Governance in a Policing Environment. Centre for International Corporate Governance Research, Victoria University, Australia
Barton, H. Governance and Accountability of the UK Police: The Role of Police Authorities. Nottingham Business School.
Biro, F. BEST PRACTICES: A Framework for Professionalism
& Success. Canadian Association for Civilian Oversight of Law Enforcement Annual Conference, Montreal, Canada October 2005
Graham, A. Leading Practice in Police Governance: Canada and Abroad.
Graham, A. Report on the Field Testing of the Best Practices of the Canadian Association of Police Boards. August, 2006
Northern Ireland Police Board (NIPB) communications strategy. November 2006.
NIPB International Comparison Research, July 2009.
NIPB_Final Best Value Report - external communications
Police Academy: Justice Institute of B.C. Municipal Police Board Governance in British Columbia, March 2003.
Interviews
· OPSB Policy & Governance Committee (Councillor Eli-El Chantiry, Member Jim MacEwen, Member Carl Nicholson)
· Councillor Jan Harder
· Member Adriana Doyle
· Fred Biro, Peel Regional Police Services Board
· Jon Willing, Ottawa Sun
· Randall Denley, Ottawa Citizen
· Michael Fitzpatrick, City of Ottawa Communications