Pandemic Service Continuation Planning

The State of Minnesota explored incorporating pandemic planning into current Continuity of Operations plans.

It was determined that pandemic planning presents unique differences from current Continuity of Operations templates.

Instead of loss of physical structures, we are faced with reduction of workforce and significant human health concerns in the workplace environment.

Due to these particular circumstances, the State of Minnesota developed the concept of “Service Continuation.”

Response and Preparedness Activity Levels in Today’s Environment

• Incidents• Emergencies• Disasters• Major Disasters• Catastrophic Events• Pandemic Events

Frequency and Impact of EventsFrequency and Impact of EventsFrequency and Impact of Events

ImpactImpactFrequencyFrequencyEventEvent

ExtremeExtreme22--3x/Century3x/CenturyPandemic EventPandemic EventSevereSevereDecadesDecadesCatastrophic EventCatastrophic EventHighHighYearlyYearlyMajor DisastersMajor DisastersModerateModerateMonthlyMonthlyDisastersDisastersLowLowDailyDailyEmergenciesEmergenciesMinorMinorHourlyHourlyIncidentsIncidents

Catastrophic Events

• Individual preparedness is the key for success.

• Recovery is measured in years, not days or weeks.

• Pre-event preparedness is the essential building block of successful management; without it we are in trouble.

• Take the response resources of an entire Nation.

• Depend on “people helping people” at every level.

• Government response will not meet the immediate needs.

Pandemic Event• Worldwide impact.• Generally occurs everywhere at the same time.• Exceeds the capacity of all existing support

structures.• Everybody is a victim including the responders.• Emergency response structure cannot save the

day for each person.

• Pre-event preparedness is the essential building block of successful management; without it we are in trouble.

Influenza Pandemics 101

Pandemic FluAvian Flu

Seasonal vs. Pandemic FluSeasonal Influenza

• Occurs every year from October to April.

• Affects 10% of the population.• Normally not life-threatening to

healthy people.• Very young and very old most

at risk of serious illness.• Annual vaccination available.• Antiviral drugs available.

Seasonal vs. Pandemic FluPandemic Influenza

• Occurred 3 times in the last 90 years.

• Can occur anytime during the year.

• Typically a more serious infection for all.

• Minimum of 6 months to develop a limited amount of vaccine.

• Limited supply of antiviral drugs likely.

Is Your State Prepared For Response and Service Continuation?

State Response Plan

What we are accustomed to -response to the event

Avian and Influenza Pandemic Supplement to the MEOPSupplements:

•Are used as interim steps for updating the overall plan.

•Provide information on State Agency coordination to a unique event.

•Clarify roles and responsibilities that were not already addressed in the all-hazard plan.

MINNESOTA Response Phases for HPAI OutbreaksMINNESOTA Response Phases for HPAI Outbreaks

WHO Phase 3No or Very Limited Human-to-Human

Transmission

WHO Phase 2Higher Risk of Human

Cases

MN Response PhasesMN Response PhasesU.S. StagesU.S. Stages

MN Response Phase A5Recovery

MN Response Phase A4HPAI Outbreak in Domestic Animal in

Minnesota

MN Response Phase A2HPAI Outbreak in Wild Animal in

Minnesota

MN Response Phase A1HPAI Outbreak in Wild Animal in North

America

MN Response Phase A3HPAI Outbreak in Domestic Animal in

North America

U.S. Stage 0New Domestic Animal

Outbreak in At-Risk Country

MN Response Phase A0HPAI Outbreak – Non-Existent or

OverseasWHO Phase 1Low Risk of Human

Cases

WHO PhasesWHO Phases

MN Response Phase P6Widespread throughout MN

MN Response Phase P4Suspected/Confirmed Human Case in

MN

MN Response Phase P5Limited Outbreak in MN

MN Response Phase P3Outbreak in United States

U.S. Stage 5Spread Throughout the U.S.

MN Response Phase P7Recovery and Preparation for

Subsequent Waves

U.S. Stage 6Recovery and Preparation for

Subsequent Waves

WHO Phase 5Evidence of Significant Human-to-

Human Transmission

WHO Phase 6Efficient and Sustained

Human-to-Human Transmission

U.S. Stage 3Widespread Human Outbreaks in

Multiple Locations Overseas

U.S. Stage 4First Human Case in North America

MN Response Phase P2Suspected/Confirmed Human Case in

North America

MN Response Phase P1Confirmed, Sustained Human-to-Human

Transmission Overseas

U.S. Stage 2Confirmed Human Outbreak

Overseas

WHO Phase 4Evidence of Increased Human-to-

Human Transmission

MN Response Phase P0Suspected Human Outbreak Overseas

U.S. Stage 1Suspected Human Outbreak

Overseas

WHO Phase 3No or Very Limited Human-to-Human

Transmission

MN Response PhasesMN Response PhasesU.S. StagesU.S. StagesWHO PhasesWHO Phases

Government Service Continuation

Keeping day-today activities moving

COOP vs. Pandemic Service ContinuationCOOP• Impact is Regional.

• Physical structure and technology are affected.

• Event is short in duration and triggers the COOP Recovery Phase.

• No notice of the event.

• Mainly affects buildings, equipment and technology.

• One-time event.

COOP vs. Pandemic Service Continuation

• Worldwide impact.

• Physical structures and technology are initially not affected.

• Pandemic waves may last 6 to 8 weeks.

• Some notice, although it may be short.

• Mainly affects staffing levels.

• Could have multiple waves.

Pandemic Service Continuation

Developing a Service Continuation Plan

Where to begin

Develop a Pan Flu Executive CommitteeCommittee could be comprised of:• Human Resources, Emergency

Management, Public Health, other key department heads.

Pan Flu Executive Committee Responsibilities

Develop Priority Service GoalsPriority Service Goal Framework

1. Government must be able to sustain the core services they provide to the community everyday.

2. Government must be prepared for increased demand for some services (surge capacity).

We all need to work together to reduce the health, welfare and economic impact of a pandemic.

3. Government must be prepared to sustain critical services with reduced staffing (Service Continuation Plan).

MN Priority Service GoalsFactors to determine Priority Service Level functions of the Agencies

• Basic custodial care for residents of correctional facilities, regional treatment centers, nursing homes, veterans’ homes, and other state-operated services;

• Public safety and immediate public health concerns;

• Benefit payments and medical services to individuals; and

• Necessary administrative and support services.

Pan Flu Executive Committee Responsibilities

• A pandemic will impact your ability to provide services, and demand for those services will increase.

• Clearly identify the level of service you intend to provide throughout the phases of a pandemic.

Define Priority Service Functions 1-4

Priority Service Level Functions

• Health, welfare and safety of citizens and employees.

• Community impact of service delivered.

• Economic impact of not providing service.

• Impact of performing (not performing) service.

• Availability of alternate methods of delivering services.

Factors used to determine Priority Service Function levels 1-4:

Service Continuation PlanningPriority 1 Services

Immediate threat to public health, safety or welfare.

• These functions must remain uninterrupted. Generally, these would include functions that operate 24 hours a day and/or 7 days a week.

• Priority Service One functions do not cease on holidays or weekends.

Priority Service OneExamples• Emergency and disaster

response functions • Correction facility

operations and security• All dispatch centers • Law enforcement; patrol• Emergency medical

operations• Water treatment

operations• Emergency Operations

Center Staffing

• Maintaining building HVAC systems

• Emergency road repair Patient Care

• Snow removal

• Security

• Fire Suppression

Priority 2 Services

Direct economic impact, or have constitutionally or statutorily mandated time frames for completion.

• These functions may be disrupted temporarily or might be periodic in nature, but must be reestablished within a few days.

Service Continuation Planning

Priority Service TwoExamples• Emergency equipment

repair• Payment to vendors• Benefit payment to

individuals• Time sensitive inspections

for construction activities

• Cleaning and disinfecting facilities during a pandemic

• Phone and internet communication services

• City Council/County Commissioner meetings

• Emergency procurements and contracting

• Insurance payments

• Disaster recovery assistance

• Workers compensation

• Processing payroll

• Legal services

Service Continuation PlanningPriority 3 Services

Regulatory functions required by law, rule or order that have the ability to be suspended during an emergency.

• These functions may be disrupted temporarily (a few days or weeks) but must be re-established sometime before the pandemic wave is over (<6 weeks).

Priority Service ThreeExamples• Collective bargaining with

labor unions• License renewals• Grant and contract

management• Maintaining websites for

information• Employee right-to-know

program• Filling job vacancies• General inspections

services (not time sensitive)

• Vehicle maintenance services

• Issuing building permits• Project management• Shipping and receiving• Investigation of complaints• Vehicle registration • Mail services

Service Continuation Planning

Priority 4 ServicesAll other services that could be suspended during an emergency that are notrequired by law or rule.

• These functions may be deferred for the duration of a pandemic wave (6-8 weeks).

Priority Service FourExamples

• Educational programs• Training• Reception desks• Internal audit

• Crime and fire prevention programs

• Grounds maintenance (lawn mowing)

• Youth service programs• Financial analysis• Research• General education and

outreach programs • Records retention• General maintenance

programs

Pan Flu Executive Committee Responsibilities

Appoint Agency Pandemic Flu Coordinators

Agency Pandemic Flu Coordinator• Define Agency’s Priority Service Functions 1-4.

• Define Priority Service 1 and 2 functions as to certification and training requirements.

• Update All Hazard Emergency Operations and Service Continuation Plans.

• Re-allocate staff internally during a pandemic.

• Request assistance from Pandemic Flu Exec Committee if unable to staff Priority Service 1 and 2 functions.

• Compile and report absenteeism to Pandemic Flu Exec Committee as requested.

• Conduct training and exercises throughout the planning process.

Pan Flu Executive Committee ResponsibilitiesDevelop a Compiled Priority Service Function Task List• List required skills needed by

various Agencies.

• Catalog employee qualifications and certifications accordingly for re-allocation purposes to maintain Priority Service 1 and 2 functions throughout the state.

Pan Flu Executive Committee Responsibilities

Ensure Agency Pandemic Influenza Plans are Updated

• Plans must define in detail the operations, actions, services and structure of the Agency in the event of a pandemic.

Pan Flu Executive Committee ResponsibilitiesActivation of Service Continuation Plan

• Ensure that Agencies have developed a strategy for activating their Service Continuation Plan.

– Monitor absenteeism, proximity of outbreaks, and the State of Minnesota’s Response Phase.

Pan Flu Executive Committee ResponsibilitiesReallocation of PersonnelReallocation of personnel from within the organization will be needed to fulfill Priority Service 1 and 2 functions.

• Establish single point of contact to develop procedures to reallocate the available resources within the Agency.

• If allocation can not be done at the Agency level, the Agency Pan Flu Coordinator can submit Priority Service 1 and 2 functions to the Pandemic Flu Executive Committee for assistance.

• If allocation can’t be done at the PFEC level, it is submitted to the SEOC.

Communicate expectations now.

Pan Flu Executive Committee ResponsibilitiesDevelop Service Continuation Communications Plan• Accurate and prompt

communications to Agencies

• Coordination of support services

• Coordination with SEOC JIC

• Media relations and public statements associated with Service Continuation

• Communications to employees

Additional • Human Resources Considerations

(Unions, Leaves, Assignments, Compensation, Health and Safety, Insurance Benefits, Performance Management)

• Travel Considerations• Communicate with Supply Chain for

Priority Service 1 and 2 functions

The End

ResourcesState of Minnesotawww.birdflu.state.mn.us

MN HSEM Infectious Disease Outbreak Programwww.hsem.state.mn.us/

Federal Governmentwww.pandemicflu.gov

World Health Organization (WHO)www.who.int/csr/disease/avian_influenza/en/

Questions?

Onalee Grady-Erickson

MN Homeland Security and Emergency Management

444 Cedar StreetSuite 223

St. Paul, MN 55443(651)201-7438

onalee.grady-erickson@state.mn.us