STATE OF MINNESOTA STATE AGENCY PANDEMIC INFLUENZA PLANNING GUIDE

Transcription

1 STATE OF MINNESOTA STATE AGENCY PANDEMIC INFLUENZA PLANNING GUIDE Original Release - April, 2006 Version - September 1, 2006 Update September, 2009

2 Table of Contents Chapter 1 - General Provisions and Guidelines...1 Requirements for Planning...1 I. Introduction to Pandemic Influenza...2 II. Statewide Emergency Response...3 III. Continuity of State Services...3 A. Pandemic Flu Executive Committee...3 B. MMB Service Continuity Response Team...4 C. Agency Pandemic Coordinator...4 D. Agency Pandemic Influenza Plans...5 IV. Pandemic Influenza Planning Assumptions: Worst Case Scenario...5 V. Prioritization of Agency Services...6 VI. Activation of Continuity Plans...7 VII. Communication...7 VIII. Transfer of Resources and Employees...8 IX. Data...8 Chapter 2 - Pandemic Influenza Planning Considerations...10 Chapter 3 - Human Resource Considerations...15 Chapter 4 - Employee Health and Safety...26 Chapter 5 - Security...30 Chapter 6 - Information Systems and Technology...32 Chapter 7 - Staff and Service Agencies...33 Appendix A - Influenza Manager Role and Responsibility...39 Appendix B - Social Distancing Strategies...41 Appendix C -Severity Index...42 Appendix D - Business Impact Analysis...44 Appendix E Triggers for State Agency Activities...47 References...48 Websites...50 Page Version 6/2009

3 Chapter One - General Provisions and Guidelines Requirements for Planning Executive Order 07-14, Assigning Emergency Responsibilities to State Agencies, states that: Each department, independent division, bureau, board, commission and independent institution of the State government, hereinafter referred to as "agency," shall carry out the general emergency preparedness, planning, response, recovery, hazard mitigation continuity of operations and service continuation responsibilities described in this Executive Order, the specific emergency assignments contained in the Minnesota Emergency Operations Plan, the State All-Hazard Mitigation Plan and such other duties as may be requested by the Division of Homeland Security and Emergency Management. The head of each agency shall be accountable for the execution of the responsibilities described in this Executive Order. The Enterprise Security Policy on Continuity of Operations (Security Policy ) states that: State agencies shall develop, implement, test, and maintain a Continuity of Operations Plan. Agencies have had the opportunity to test their Continuity of Operations Plan the past few years with the 2001 labor strike and partial government shutdown of The recent global developments regarding influenza - H1N1 or swine flu and H5N1 or bird flu - have prompted Governor Pawlenty to direct state agencies to review and update their existing Pandemic Flu Supplement to address a variety of assumptions presented by a possible influenza pandemic. The Governor has designated Minnesota s the Department of Public Safety s Homeland Security and Emergency Management (HSEM) division as the lead agency to coordinate the State s emergency response preparations for a possible pandemic. To address internal state government operation, HSEM will be assisted by the Minnesota Department of Health (MDH) and Minnesota Management and Budget (MMB). State agencies will be expected to provide, at a minimum, pre-identified priority services to the citizens of Minnesota during a pandemic. In addition to priority services, the range of agency services and their method of delivery are expected to vary depending on the nature and severity of an influenza pandemic and its presence regionally or locally. It is therefore necessary for all state agencies to clearly identify the priority services they will continue to provide through all possible phases of a pandemic as well as how they will transition from providing all services to just providing priority services. This has been developed to provide agencies with information and resources to efficiently and effectively update their current agency Pandemic Flu Supplement to address widely accepted pandemic influenza planning assumptions. The State of Minnesota will act and respond as one entity as the state s employer. Version 6/2009 Page 1

4 This document is based upon three guiding principles: 1. Protection of the state workforce To protect the health and safety of the state workforce To maximize workforce available to maintain government services To minimize influenza spread and reduce impact on public health 2. Continuity of emergency responsibilities To ensure all agencies can fulfill the Minnesota Emergency Operations Plan (MEOP) responsibilities 3. Continuity of time sensitive priority services To continue providing time sensitive priority services to the citizens of Minnesota Taking appropriate steps to protect the health of the state workforce will be a priority of every department and agency head, manager and supervisor. I. Introduction to Pandemic Influenza A pandemic occurs when a disease spreads rapidly, affecting most countries and regions of the world. Influenza pandemics have occurred periodically throughout history including a major pandemic in 1918, and smaller pandemics in 1957 and 1968 and continue to occur, with the outbreak and spread of H1N1 novel influenza in 2009 as a reminder. The symptoms of pandemic influenza are similar to those of seasonal influenza, but may be more severe. Influenza viruses are constantly changing and producing new strains. Influenza pandemics occur when a virus emerges that is so different from previous strains that few, if any, people have any immunity to it. If the nature of the new strain is easily transmissible between people, it can spread widely and rapidly, potentially affecting millions of people worldwide. The new virus may be the result of an animal virus mutating so that it can infect humans or re-assorting with a human virus to produce a new strain. There are differences between pandemic influenza and seasonal influenza. A. Seasonal Influenza Occurs every year from October to April. Affects up to about 10% of the population. Unpleasant for most previously healthy people, but not a life-threatening infection. Risk of serious illness exists for the very young, the very old, and people with certain chronic illnesses. Annual vaccination is available and encouraged. Antiviral drugs available to treat those at special risk. B. Pandemic Influenza Has occurred three times in the last 90 years. Can occur at any time of the year. Typically a more serious infection for everyone. Risk of serious illness exists for people of every age. Version 6/2009 Page 2

5 Vaccination is unavailable until four to seven months after a pandemic starts when it does become available the aim will be to immunize people as rapidly as possible as vaccine supplies become available. Antiviral drugs only in limited supply. Vaccination against seasonal influenza probably will not protect against pandemic influenza. However, getting your annual flu shot is one of several things people can do to keep healthy, and doing so may help fight off the pandemic virus. In 1918, pandemic influenza spread across the country in less than a month. Now, in the era of international air travel, a pandemic will probably spread even faster. As a result it is possible that: Many people will get sick with influenza. There will be a large increase in demand for health care services. Many aspects of daily life will be disrupted. The World Health Organization (WHO), Department of Health and Human Services (HHS), the Centers for Disease Control and Prevention (CDC), and the MDH are watching for the first signs of an emerging pandemic. The WHO has established six phases of pandemic alert as a system for informing the world of the seriousness of the threat and of the need to launch progressively more intense preparedness activities. These phases have been recently updated in the spring of The phases can be found at II. Statewide Emergency Response Several state agencies play a critical role in responding to statewide emergencies, such as a possible pandemic. These activities are coordinated HSEM and outlined in the Minnesota Emergency Operations Plan (MEOP) and the Governor s Executive Order. As agencies consider their prioritization of service delivery, they must include their state wide emergency response obligations. III. Continuity of State Services A. Pandemic Flu Executive Committee The Pandemic Flu Executive Committee (PFEC) has been created and is led by MMB The PFEC includes representatives from HSEM, MDH and the Minnesota Department of Administration and the Office of Enterprise Technology (OET). The PFEC is a planning entity that creates statewide policies and strategies to assist agencies in creating or enhancing their continuity of operation plan s pandemic flu supplement. Members of the State of Minnesota PFEC are the: Assistant Commissioner, MMB Continuity of Government Planning Director, MMB Director, HSEM Assistant Director, HSEM Version 6/2009 Page 3

6 Pandemic Influenza Coordinator, HSEM Director, Office of Emergency Preparedness, MDH Assistant Director, Office of Emergency Preparedness, MDH Director, Infectious Disease Epidemiology Prevention and Control Division, MDH Pandemic Influenza Coordinator, MDH Business Continuity Coordinator, MDH State Safety Program Coordinator, Minnesota Department of Administration Enterprise Business Continuity Program Architect, Office of Enterprise Technology As state agencies prepare for their continuity of operations in the event of a pandemic influenza, other agency representatives may be added to this committee. A statewide address has been established to assist agencies as they proceed with their planning activities. Agencies may submit questions relating to pandemic flu planning to the Pandemic Flu Executive Committee. This can be found at the end of this document. B. Minnesota Management and Budget Service Continuity Response Team (SCRT) The Service Continuity Response Team (SCRT) is a response entity that will assist and direct state agencies to ensure priority government services continue during an event that may threaten the capabilities and significantly impact state service delivery. Minnesota Management and Budget will activate the SCRT during an influenza pandemic, in order to provide timely and accurate information, as well as assisting agencies in continuity efforts. Generally, the SCRT will: Provide statewide policy guidance during an event Coordinate statewide communication messages Coordinate State Agency Resource Requests Staffing needs Equipment needs (relating to government services) Requests assistance from the State Emergency Operations Center (SEOC) if needed An account has been set up to receive requests during an event. The address is: scrt@state.mn.us. Once the SCRT is activated, a phone number will be communicated to agency Senior Employees and Pandemic Flu Coordinators. C. Agency Pandemic Flu Coordinator Each agency, department, or board (hereinafter agency ) is directed by the Governor to identify a Pandemic Flu Coordinator, who will be the agency s primary point of contact with the PFEC. All service continuation communications from the PFEC will be directed to the Agency Pandemic Flu Coordinator. Version 6/2009 Page 4

7 In addition to a Pandemic Flu Coordinator, each agency must also identify at least four alternate coordinators. The Pandemic Flu Coordinator, with the assistance of agency leadership, must also establish an internal agency Pandemic Flu Planning Team to assist with the creation and maintenance of the agency s Pandemic Flu Supplement. The Pandemic Flu Coordinator will need to work closely with their agency s business continuity, health and safety, human resource and other emergency response functions. D. Agency Pandemic Influenza Plans Every state agency must update their Pandemic Flu Supplement to include response to an influenza pandemic. The plan must define in detail the agency operations, continuity actions and response structure of the agency in the event of a pandemic influenza. Agency pandemic supplement plans should be included in the agency s continuity of operations plans and must be identified and treated as security information within the meaning of Minnesota Statutes, Section IV. Pandemic Influenza Planning Assumptions: Worst Case Scenario The impact of an influenza pandemic is unknown however it is clear that if a pandemic occurs, traditional business continuity assumptions may be inadequate. The following influenza pandemic assumptions provided by the CDC summarize what organizations may expect during an influenza pandemic based on estimates from the severe pandemic and the milder pandemics in and While plans should be based on worst case scenarios, they must also be flexible and allow for modifications based on the current severity and impact of the virus. Your plans should include a scalable model based on severity and impact. How severe is the virus? How is it impacting your agency/service delivery? Agencies should consider using a severity index to guide their activities: mild, moderate, severe. Please refer to CDC s pandemic severity index in Appendix A of this document. The worst case assumptions must be utilized by agencies to evaluate their Pandemic Flu Supplement. A. Susceptibility to the pandemic influenza virus will be universal at the onset of the pandemic. B. The outbreak period in a community may be 6 to 8 weeks per wave, with the possibilities of more than one wave in a community. C. Expect a 25-30% illness rate at the peak of the pandemic wave. D. Additional absenteeism attributed to employees caring for dependent and fear to come to work may result in a total absenteeism of up to 40% or more at any given point during a pandemic wave. E. Persons who become ill may shed virus and can transmit infection for up to one day before the onset of illness. F. Of those who become ill with influenza, 50% will seek outpatient medical care. G. Hospitalization rate of 1-10% of those who are ill. H. For surviving ill, average time away from work will be 4 days - 3 weeks. I. Potential mortality rate of 0.2% up to 2%. J. Certain public health measures (closing schools, quarantining household contacts of infected individuals) are likely to increase rates of absenteeism. K. If the potential mortality and infection rates apply, one million U.S. workers may die ( % permanent reduction in the workforce). Version 6/2009 Page 5

8 V. Prioritization of Agency Services The PFEC has established four statewide priority service goals during a pandemic. In priority order, they are: A. Provision of basic custodial care for residents of state correctional facilities, regional treatment centers, nursing homes, veterans homes, and residential academies and other state operated services; B. Maintenance of public safety and immediate public health concerns; C. Provisions of benefit payments and medical services to individuals; and D. Provision of necessary administrative and support services for the above goals. In addition, the PFEC has established four statewide priority service definitions. All agencies must assign their services to the following four priority levels: A. Priority 1 Services (Immediate threat to public health and/or safety) Activities that must remain uninterrupted. Generally, these would include agencies and facilities that operate 24 hours a day. For instance, patient care at regional treatment centers or nursing care facilities, correctional facility operations and fire suppression, law enforcement, emergency medical operations are examples of priority one services. A process for maintaining communication with agency personnel and the PFEC must be considered a Priority 1 service. B. Priority 1 (Immediate threat to public health and/or safety) Activities that have a recovery time objective of 24 hours or less. Generally, these would include agencies and facilities that operate 24 hours a day. For instance, patient care at regional treatment centers or nursing care facilities, correctional facility operations and fire suppression, law enforcement, emergency medical operations and emergency communications are examples of priority one services. C. Priority 2 (Disorder or an economic impact may develop if not delivered in a few days) Activities with a recovery time objective of 25 hours to 5 days that can be disrupted temporarily or might be periodic in nature, but must be re-established within a few days. For example, investigations, regulation enforcement, and benefit payments to individuals would generally be considered priority two services. In most cases, agency support services such as communication, purchasing, human resources and payroll are considered Priority 2. If an agency has no other services that fall into the Priority 1 or 2 categories they must have plans to be able to conduct communication, payroll and human resource activities. D. Priority 3 (Services required by law or rule that can be suspended by law or rule during an emergency) Activities with a recovery time objective of 6 days to 30 days that can be disrupted temporarily but must be re-established sometime before the pandemic wave is over (<6 weeks). For example, license renewals, vehicle registration, and recording land transactions would generally be considered priority three. Version 6/2009 Page 6

9 E. Priority 4 (Services that could be suspended during an emergency and are not required by law or rule) Activities with a recovery time objective of 30+ days which can be deferred for the duration of a pandemic influenza wave (6-8 weeks). For example, educational programs, training and general maintenance programs would generally be considered priority four services. In addition, agencies must consider such factors as: The health, welfare and safety of its employees. The health, welfare and safety of its clientele. Whether the service is immediately necessary to protect the health, safety, and welfare of citizens. The agency s ability to provide services during pandemic influenza. The availability of alternative methods for delivering services. The risk of performing or not performing services. Questions on conducting a Business Impact Analysis to determine service priorities should be directed to the Office of Enterprise Technology. Information on conducting a BIA and correlating COOP and Pandemic priorities can be found in Appendix D of this document. VI. Activation of Continuity Plans The PFEC will continue to monitor changes in the pandemic phases as indicated by the WHO. The PFEC will also monitor changes in alert levels declared by HSEM or the SEOC. These changes will be communicated to Agency Senior Staff and Pandemic Flu Coordinators so that agencies can activate their continuity plans or take actions described in their plans as appropriate. Since worst case scenario planning assumptions were used to create agency plans, agencies must consider disease severity and spread before activating components or strategies identified in plans. VII. Communication The State Pandemic Response Communication Plan is being developed by MN Management & Budget, in coordination with HSEM, and MDH. It includes communication with the following audiences: Agency senior staff, local partners, stakeholders, Pandemic Flu Coordinators, state employees, Union Officials, and the media. This communication plan will outline the process for communicating all aspects of the services of state government affected by the pandemic, including: 1. Accurate and prompt communications to agency Senior Employees and Pandemic Flu Coordinators. 2. Coordination of support services to agencies. 3. The transfer of resources and employees within state government. 4. Media relations and public statements associated with state service continuation. 5. Monitoring of priority services. 6. Final decisions on what services will be provided by state government during the pandemic. 7. Assisting in the redeployment of non-priority service employees. Version 6/2009 Page 7

10 The State Agency Pandemic Communication Plan will coordinate communication with the State Emergency Operations Center and the Joint Information Center. MMB has created an emergency website that contains information for state agencies and employees. MMB will post all relevant information for agencies and employees to access during an event. This website can be found at Employee Education It is important that information provided to employees regarding a pandemic be factual, timely, and consistent with other state communications to not cause unnecessary worry or confusion. Technical information for employees regarding the disease outbreak will be communicated to agencies by MMB, with MDH as the subject matter expert. HSEM will communicate response activities to agencies with emergency responsibilities. Sources for disease outbreak information will be limited to the MDH, CDC, and WHO. Coordination, logistical and other types of information for employees will be communicated to agencies by MMB. Sources for this type of information will be limited to MMB. Agencies can communicate official information to employees, and provide agency specific information on their internal planning processes and continuity procedures. If agencies create information outside of these parameters for employees, it must be reviewed by MMB s Service Continuity Response Team prior to distribution. VIII. Transfer of Resources and Employees A severe pandemic may create a need for reallocation of state resources to ensure delivery of priority services. Transfers of resources and employees within agencies are at the discretion of the agency head and subject to the provisions of existing labor contracts and MMB rules. The general guidance provides for employees to be redeployed up to 60 miles away from their home location, and for up to 7 days at the redeployed location. This allows for employees to commute to the redeployed location and home each day/night. However, it may be necessary for employees to be redeployed to a further distance. State agency plans must identify the employees that may be available for transfer to other state agencies or facilities in order to maintain Priority 1 or 2 services. Agencies transferring employees to other agencies will, if reasonably possible, be reimbursed by the receiving agency for salaries, travel expenses and overtime costs. Procedures for payroll entry or cost transfers will be provided if transfers become necessary. The State reserves the right to access available funding and to minimize changes to payroll processing during a pandemic. Questions about the transfer of employees should be directed to the MMB s SCRT. IX. Data The type and frequency of data or information collection during a pandemic is being considered and will be communicated to the Senior Employees and Pandemic Flu Coordinators by MMB s Service Continuity Response Team. Version 6/2009 Page 8

11 A. Daily Attendance Reports During a pandemic, agencies may be required to report employee attendance daily to the SCRT. Daily attendance reports may be necessary to track the impact of the pandemic, and to facilitate the transfer of employees to priority services. If attendance data becomes necessary, SCRT will provide direction to agencies on submitting information. Version 6/2009 Page 9

12 Chapter Two Pandemic Influenza Planning Considerations I. Critical Issues to Consider for a Pandemic Flu Supplement Planning for pandemic influenza is essential to ensuring continuity of government services. The following planning considerations were taken directly from the CDC s Business Pandemic Influenza Planning Checklist and identify specific steps that all organizations can undertake now to prepare for a future pandemic. Many of these planning considerations are also applicable to other emergency situations. A. Plan for the impact of a pandemic on your agency: 1) Identify a pandemic coordinator and/or team with defined roles and responsibilities for continuity preparedness and response planning. The planning process should include input from employees. (Also see section IV B). 2) Identify essential employee skills and other critical inputs (e.g., supplies, equipment, data, and contractor services/products) required to maintain priority operations by location and function during a pandemic. In the event of a pandemic, it is important that employees with core skills are available to keep the priority services of your organization operating. In planning for the impact of a pandemic on your organization you will want to identify essential skills and other critical inputs required to maintain operations by location and function during a pandemic. Agencies must focus on essential skills, not individual employees, when considering agency priority service needs. Issues you must consider include: 1. What are the agency s priority services? 2. What are the core skills required to provide the agency s priority services? 3. Are there sufficient back-ups for employees and skills if there is a high level of absenteeism? PFEC recommends four levels of back-up employees for all priority services. 4. Are there other resources (e.g., volunteers, retirees) that could be drawn on if necessary? 5. Is it possible to coordinate or operate any of your agency s priority services virtually that is, remotely, by using secure remote access computing, telephone and ? 6. Who are the employees and what systems (e.g., incident command system) are required to implement and manage your Pandemic Flu Supplement? 7. Do you have systems that rely on periodic physical intervention by key employees or others, to keep them going? How long would the system last without attention? Once the core skills are identified, ensure that the employees or others you expect to provide the skills are aware of their position and how they will be managed in the event of a pandemic. Consider strategies for minimizing the possibility that they become ill with influenza: e.g., working from home even in the very early stages of a pandemic, or other social distancing measures or infection control measures. Version 6/2009 Page 10

13 If working from home is not a well-established practice in your agency and you plan to use it as a continuity strategy, you must create a team of people to address the human resource, health and safety, and technology issues. 3) Train and prepare a back-up workforce (e.g., contractors, employees in other job titles/descriptions, retirees). This might include training your current employees in several service areas of the agency or ensuring you have a pool of available workers outside the agency to call upon if the need arises. 4) Develop and plan for scenarios likely to result in an increase or decrease in demand for your services or products during a pandemic. 5) Supplies and Supply Chains Pandemic planning must also include the need for storing of essential supplies. This is particularly important for supplies necessary for ensuring the health and safety of employees and citizens the agency serves. Discuss with key suppliers a plan for regular shipments in the event of shortages or disruptions in transportation systems. Shortages may occur because of disruptions in transportation systems or inability of suppliers to meet demands because of their own workforce shortages. Loss of up to 30 percent of workers/drivers and other transportation employees may affect both the production and delivery of needed supplies. During a pandemic, there are likely to be restrictions at ports and airports. Supply lines may also be affected by self-imposed travel restrictions, with truckers/transporters unwilling to travel through or to infected areas. Difficulties at border crossings may substantially affect supply lines. Consideration must be given to purchase of products made locally to avoid potential supply problems due to border crossing restrictions implemented at the time of the pandemic. International air movements may be disrupted in a pandemic, and this may affect the delivery of imported goods, especially if they normally arrive in freight-holds of passenger aircraft. Ensure that your distributors, suppliers, carriers and drivers are aware of alternate routes to your facility and those of your customers. B. Agency to Customer Interactions Consider the following strategies as you plan for social distancing between employees and citizens/consumers/clients: Limit face-to-face customer service to those activities that are essential to the health of others. Extend agency hours to accommodate customers wanting service at off peak hours. Schedule pickup or delivery times to minimize the amount people are in contact with others. Arrange for services to be provided via telephone, Internet, , fax or mail. Gain customer confidence by maintaining a healthy workforce and workplace. 1) Determine the impact of a pandemic on your agency s revenues and expenditures. Using these multiple scenarios that affect different agency services, determine the potential impact a pandemic may have on your agency s budget and funding streams. Version 6/2009 Page 11

14 Your financial impact analysis must include: Estimates of the impact of decreased revenues (e.g., licensing) or an increase in consumer demand (e.g., health care); Estimates of supply shortages. Plan on the assumption that shortages will take place and supplies will not be available for purchase. Estimates of the cost of employee work days lost (up to 40 percent absenteeism); Estimates of the cost of employee overtime if key employees must put in additional hours of work. Costs associated with stockpiling and sufficient surge capacity for shortages in supply; Costs associated with hygiene supplies; (include potential for increased prices of supplies) and, Costs associated with implementation of alternate communications channels in case normal communication channels become unreliable or overloaded. 2) Determine the potential impact of a pandemic on agency-related domestic and international travel (e.g., quarantines, border closures). It is possible that once efficient human-to-human transmission of an influenza pandemic occurs, certain countries may close their borders sporadically. Screening (with quarantine measures) could be established at borders. Agencies must consider postponing non-essential travel. Arrangements may also be necessary for employees who are stranded because borders are closed. If your employees travel for agency reasons, your plan will need to include consideration of their management in the event of a pandemic. Agencies will be given recommendations from MDH based on the most recent epidemiological information of the virus. For example, on declaration of a pandemic, if it is recommended to do so, any employees had recently (within the last 14 days) traveled to countries known to be affected by the disease, your agency must: Advise the employee not to report for work for an appropriate quarantine period as identified by HHS, CDC, or MDH; Ask them to follow instructions for self-monitoring for influenza symptoms, which may include advice to telephone (rather than visit) their healthcare provider to seek advice immediately if symptoms occur; Ask them to document all the people they have been in contact with since returning; Agencies must check on the employees during their absence from work; and set up a process for ensuring that the employee has not become ill during the quarantine period and is healthy before allowing him/her to return to work. 3) Establish and maintain an emergency communications plan. This plan includes the means to receive and disseminate information from MMB and HSEM and the identification of key contacts (with back-ups). Version 6/2009 Page 12

15 It is likely there will be a high level of anxiety regarding a pandemic and this is likely to contribute to increased work absence and/or increased distress to employees. Suggested ways to manage this include: Communicate the possibility of a pandemic and your organization s preparedness to manage it very early to employees. Discuss with employees the possible health and safety issues, potential for reduction in service delivery, and human resources policies if they are ill or need to look after those who are, or who have been shut out of childcare and school, etc; During activation of Provide clear, timely and proactive communications to employees, including how your organization is handling the situation; and Establish calling trees or use auto-call systems to communicate quickly with employees, customers and suppliers. 4) Create an exercise or drill and test your plan, and revise periodically. C) Plan for the impact of a pandemic on your employees and customers: 1) Forecast and allow for employee absences during a pandemic due to factors such as personal illness, family member illness, community containment measures and quarantines, school and/or agency closures, and public transportation closures. 2) Implement guidelines to modify the frequency and type of face-to-face contact (e.g., hand-shaking, seating in meetings, office layout, shared workstations, common areas) among employees and between employees and customers. 3) Encourage annual influenza vaccination for employees (optional). 4) Evaluate employee access to and availability of healthcare services during a pandemic, and improve services as needed. 5) Evaluate employee access to and availability of mental health and social services during a pandemic, including corporate, community, and faith-based resources, and improve services as needed (if applicable). 6) Identify employees and key customers with special needs, and incorporate the requirements of such persons into your preparedness plan (if applicable). D) Establish or follow state agency-wide policies to be implemented during a pandemic: 1) Establish Agency Plan Activation Guidelines. 2) Follow policies for employee compensation and sick-leave absences unique to a pandemic, including policies on when a previously ill person is no longer infectious and can return to work after illness. 3) Establish policies for flexible worksite (e.g., telecommuting) and flexible work hours (e.g., staggered shifts). 4) Follow policies for preventing the spread of influenza at the worksite (e.g., promoting respiratory hygiene/cough etiquette, and prompt exclusion of people with influenza symptoms). 5) Follow policies for employees who have been exposed to pandemic influenza, are suspected to be ill, or become ill at the worksite (e.g., infection control response, immediate mandatory sick leave). Version 6/2009 Page 13

16 6) Establish or follow policies for restricting travel to affected geographic areas (consider both domestic and international sites), evacuating employees working in or near an affected area when an outbreak begins, and guidance for employees returning from affected areas. 7) Set up authorities, triggers, and procedures for activating and terminating the agency s response plan, alerting agency operations (e.g., shutting down operations in affected areas), and transferring agency knowledge to key employees. E) Allocate resources to protect your employees and customers during a pandemic: 1) Provide sufficient and accessible infection control supplies, or encourage employees to provide these for their personal use in their workstations (e.g., hand-hygiene products, tissues and receptacles for their disposal) throughout agency office. 2) Enhance communications and information technology infrastructures as needed to support employee telecommuting and remote customer access. F) Communicate to and educate your employees: It is important that information provided to employees regarding a potential pandemic be factual and timely as to not cause unnecessary worry and/or panic. All communications for employees not directly from MMB must be reviewed by MMB prior to distribution. If a pandemic develops, plan to: 1) Develop and disseminate programs and materials covering pandemic fundamentals (e.g., signs and symptoms of influenza, modes of transmission), personal and family protection and response strategies (e.g., hand hygiene, coughing/sneezing etiquette, contingency plans). 2) Anticipate employee fear and anxiety, rumors and misinformation, and plan communications accordingly. 3) Ensure that communications are culturally and linguistically appropriate (if applicable). 4) Disseminate information to employees about your pandemic preparedness and response plan. 5) Provide information for the at-home care of ill employees and family members (consult current MDH advice on taking care of ill patients). 6) Develop strategies and platforms (e.g., hotlines, dedicated websites) for communicating pandemic status and actions to employees, vendors, suppliers, and customers inside and outside the worksite in a consistent and timely way, including redundancies in the emergency contact system. Version 6/2009 Page 14

17 Chapter Three Human Resource Considerations This chapter offers human resources advice and directives that agencies must follow in the event that the Governor declares an emergency for the State of Minnesota. In the event of such an emergency, many human resources processes may be simplified and the administration of collective bargaining agreements and plans narrowed in order to meet urgent workforce needs. It is intended to serve as planning information which can be used to develop Continuity of Operations Plans. The information provided does not limit agency authority to make operational decisions as to essential or needed functions. The provisions of this chapter confer no new privilege, right of appeal, right of position, transfer, demotion, promotion, right of reinstatement for any state employee, contract worker, or volunteer. This information does not constitute an express or implied contract. It provides general guidance that cannot form the basis of a private right of action. This information as presented is intended to preserve the greatest flexibility for the state and its agencies to respond to a pandemic. All of the information contained in this chapter is applicable to the period or periods of a declared emergency and is based upon the following assumptions: 1. The Governor has exercised the statutory authority provided by M.S , subd. 3 to amend certain working conditions of state employees. 2. Agencies of the Executive Branch of state government, including the Minnesota State Colleges and Universities, have limited or discontinued all but the priority services as identified in their agency plans as priorities 1 through The Minnesota Department of Health or the Governor has either advised against or prohibited public gatherings, including classroom instruction at schools, colleges and universities. 4. Neither the federal government nor the Minnesota state government have adopted legislation or taken administrative action, other than the use of statutory authority mentioned in the first assumption, modifying employment related laws or regulations or collective bargaining agreements or plans in effect in June Restricted or declining revenues as well as payroll system issues may require that priorities be established for the processing of payroll. 6. The State will make every effort to see that state employees who are reporting to work to perform priority services will be given priority status to receive antiviral vaccines and/or prophylactic medication. Current versions of the policies in the following sections are located and maintained in LDRPS. Version 6/2009 Page 15

18 Section 1 General Expectations Policy: The basic operating principle in an emergency will be to continue providing priority services to the citizens of Minnesota to the extent possible. Employees will be expected to report to work as assigned. Managers will be expected to take the necessary steps to accomplish the agency s priority services. Recommended Changes: When the Governor declares an emergency, standard operating procedures may be suspended and measures taken to ensure that priority services continue. Significant Issue: Employees will be expected to follow the agency and state mandates. Preplanning: Agencies are identifying priority services and resources needed to carry them out. 1. The basic assumption is that management can assign employees to any type of work, in any location as necessary to keep priority state functions operational. 2. Managers are empowered to take the necessary steps to get the work done. 3. Agencies will use social distancing principles when making decisions about how and where to conduct meetings and other necessary business gatherings. Version 6/2009 Page 16

19 Section 2 Labor Relations Emergency Administration Policy: Certain collective bargaining agreement and plan provisions will be suspended in order to maintain the necessary flexibility to best manage the state s priority services. Recommended Changes: The primary contract provisions subject to consideration for suspension are those that concern scheduling, notification procedures and assignment of work, limited interruption, layoff, vacancy filling, seniority, and severance payout. Preplanning: Agencies should identify barriers caused by provisions of state collective bargaining agreements and plans that interfere with the ability of agencies to carry out their priority services and should contact their labor relations representative. 1. Collective bargaining agreements and plans will be honored to the extent possible, but not at the risk of failing to provide priority services to the citizens of the state of Minnesota 2. Provisions of collective bargaining agreements and plans that pertain to compensation practices are not expected to be suspended. 3. Provisions of collective bargaining agreements and plans likely to be subject to review and temporary suspension include but are not limited to: a. scheduling b. notification procedures c. assignment of work d. limited interruption e. layoff f. vacancy filling g. seniority h. vacation and comp time liquidations i. severance payout 4. During the period of the emergency, the state may temporarily suspend collective bargaining negotiations, grievance processing and labor-management committee meetings. Where such meetings are found to be necessary, employers will use social distancing principles. 5. Labor Relations will notify the Exclusive Representatives when the Governor declares and signs an emergency order suspending, amending, or superseding provisions of the collective bargaining agreements. Version 6/2009 Page 17

20 Section 3 Leaves Policy: Leaves will not be granted to employees who are assigned to priority services, except as required by law or indicated below. Recommended Changes: Pre-approved leaves may be canceled to ensure that sufficient resources are available to carry out the priority services of the state. Preplanning: Communication with employees that previously approved leaves may be canceled in the event of an emergency. Managers and supervisors should be trained on how to handle situations with ill employees. 1. Employees assigned to work in priority service areas will be required to report for work as assigned (unless the employee is ill or qualifies for FMLA.) 2. Previously approved vacation leave and compensatory time off may be rescinded in order to provide workforce coverage for priority services. 3. Rescission of an employee s leave, which is already in progress, will be based upon the priority services needs of the agency and the employee s ability to report to work. 4. Statutorily provided leaves, such as FMLA, will continue to be administered in accordance with federal requirements, unless suspended by an appropriate authority, e.g., federal agencies, Governor, etc. 5. Agency HR offices should continue to communicate to employees about the qualifications for FMLA. 6. Agency HR offices will make a determination on whether an absence qualifies for FMLA leave based on the information available to them in the event that medical certification is not reasonably obtainable. 7. Vacation leave accrual maximums may be suspended for the duration of the emergency. 8. Leave approval to attend medical appointments will be handled on a case-by-case basis. 9. Considering the operational needs of the agency, employees will be permitted to use accrued leave to care for those within their household who are ill or other family members as defined by collective bargaining agreements or plans. 10. At the discretion of the appointing authority, employees will be permitted to use a reasonable amount of accrued leave to attend the funerals of family members and members of their household. 11. If an employee presents symptoms consistent with pandemic influenza in the workplace, agencies have the authority to require the employee to immediately leave the workplace. 12. The decision to remove an employee from the workplace should be based on the safety of all employees and whether the health of employees is endangered by the health of an ill employee. Version 6/2009 Page 18

21 13. Employees who are sent home because they are believed to be ill may use accumulated sick leave. Employees sent home ill who have no sick leave available, or once they have exhausted their sick leave, may elect to use vacation, comp time or leave without pay. 14. The agency may determine the need to require a medical authorization when an ill employee returns to work. 15. The provisions of the state s leave donation policy will be suspended during a declared emergency. Current recipients may use accumulated leave until it is exhausted. Employees may continue to donate hours to current recipients, but no new recipients will be added during the emergency. Processing may be delayed. 16. Employees who are sent home because of lack of work may elect to use accrued vacation, compensatory time, or leave without pay. Agencies will try to find priority services for them to perform either within the agency or in another agency. 17. The employee may use sick leave only if it meets the conditions in the collective bargaining agreements or plans. Version 6/2009 Page 19

22 Section 4 Assignments, Schedules and Position Filling Policy: Appropriate measures will be taken to adequately staff the state s priority services. Recommended Changes: Suspension of collective bargaining and plan provisions and policies/practices such as, but not limited to, posting requirements, Affirmative Action requirements, use of Resumix, (the State s job application system), discretionary background and reference checks, and ability to use temporary services providers. Significant Issue: An alternative position filling/qualification process needs to be developed by Minnesota Management and Budget so that legal appointments can be made. Layoff provisions of collective bargaining agreements or plans may be suspended in order to permit appointing authorities to send state employees home without pay. Preplanning: Agencies should identify the gap between their ability to maintain adequate staffing and their need to share resources deployed from other agencies. MMB will establish an alternative position filling process. Deployment of state employees 1. Management reserves the right to deploy state employees to alternative worksites in varied state operations in order to carry out priority services. 2. Employees deployed to perform priority services, whether or not the assignment is within their home agency, are expected to report to work. 3. If an employee refuses to come to work as assigned, the employer may deny the use of vacation and the employee may be subject to discipline. Work-out-of-class/Shift differential 1. An agency may temporarily assign an employee to a classification that is higher or lower than the employee s permanent classification. If the assignment constitutes work out of class or a shift differential, in which additional pay is appropriate, payment may be delayed until the conclusion of the emergency. Assignments should be made in writing as soon as practicable. 2. Shift differential and work out of class pay shall continue to be paid in accordance with collective bargaining agreements or plans based on the assignment during the emergency. Employees not performing priority services 1. If employees already at work are sent home because of the closure of specific offices, they will be paid through the end of their regular shift. 2. If an employee is not assigned to perform priority services within their home agency, or another agency, the employee may be told to not report to work and it does not constitute a layoff under the collective bargaining agreement. Version 6/2009 Page 20

23 3. During a pandemic, if an agency meets its priority 1 and 2 services, that agency s priority 3 and 4 services may be discontinued and MMB may reassign those employees to another agency that cannot meet its priority 1 and 2 services. Redeployment may be up to 60 miles from the employee s home, and for up to 7 days at the redeployment site. If there is no need for a reassignment, the agency may continue its priority 3 and 4 services based on the following considerations: The Department of Health or Governor has not issued a recommendation that all employees stay home, except those performing priority 1 and 2 services. There is sufficient revenue to meet the payroll requirements for priority 3 and 4 services. 4. Employees who are told not to report to work because of lack of work may elect to use accrued vacation, compensatory time, or leave without pay. Agencies will try to find priority services for them to perform either within the agency or in another agency. 5. The employee may use sick leave only if it meets the conditions in the collective bargaining agreements or plans. Alternative work schedules and training 1. Agencies should review their normal business hours and work schedules to determine if they can be modified in a manner that best promotes social distancing, business continuity or other emergency response goals during an emergency. 2. Training will be canceled for the duration of the emergency, unless the training is mandatory for the continuation of priority services. 3. Agencies may determine the necessity and practicality of providing telecommuting alternatives for employees assigned to perform priority services. Position Filling 1. Only hires necessary to provide priority services shall occur. 2. Agencies will still be required to conduct legally required background and reference checks unless that regulation is suspended in accordance to law. 3. The use of Resumix will not be available during an emergency. 4. Agencies can continue to hire individuals for permanent or temporary work. They are permitted to use temporary hiring agencies. Version 6/2009 Page 21

24 Section 5 Compensation and Payroll Policy: The state will continue to pay employees who work as assigned or on approved paid leave. Recommended Changes: In order to process payroll it may be necessary to process a standard payroll cycle and make necessary adjustments at a later date or it may be necessary to prioritize payroll payments. Significant Issue: Some payments may occur at the conclusion of the emergency and a post audit clean up of payroll is expected. Preplanning: Agencies should plan for payroll input and supervisory processing of timesheets with employees assigned as back-ups. 1. Compensation provisions of collective bargaining agreements and plans will not be suspended but may be streamlined in order to administer payroll in a timely manner. 2. Agencies should continue to process payroll under the guidelines determined by Minnesota Management and Budget. Due to workforce shortfalls or reassignment of employees, payroll may continue on an emergency basis with priority processing for those performing priority services. 3. Payment for work-out-of-class assignments or shift differentials may be delayed until the conclusion of the emergency. 4. If an agency function or program closes after the start of an employee s shift, employees who are sent home will be paid through the end of their shift. 5. Workers Compensation claims should be processed through normal procedures. Benefits claimed during the emergency may be delayed to the conclusion of the emergency. 6. In the event that an employee separates for any reason e.g., resignation, retirement, death, etc., it is important to ensure that the transaction is entered into SEMA4 in a timely fashion so that overpayments do not occur. Reconciliation and recovery for overpayments may occur following the conclusion of the declared emergency. Version 6/2009 Page 22

25 Section 6 Insurance Benefits Policy: Insurance benefits currently in place at the start of a pandemic are expected to be maintained for the duration of the declared emergency for a period of up to 18 months. Insurance eligible employees will continue to receive health insurance coverage and will continue to receive the employer contribution during this time. Employees are expected to continue to pay the employee contribution. Agencies will be required to continue to make the employer contribution for health insurance coverage. Significant Issue: Medical services are expected to be overwhelmed during a pandemic and limited to only those services for life threatening conditions. Access to primary care clinics may be limited. The timing of a pandemic may limit the state s ability to provide open enrollment opportunities. Preplanning: Agencies should cross train employees in insurance benefit management. 1. The processing of benefit applications and claims is expected to be delayed during a pandemic. 2. The employee will be responsible for their share of the insurance premiums. Deductions from payroll may be delayed until they return to work. 3. Life insurance claims will continue to be processed through the carrier, Minnesota Life. Payments may be delayed. 4. Short term and long term benefits will continue to be processed through the carrier, The Hartford. Payments may be delayed. Version 6/2009 Page 23

26 Section 7 Health and Safety Policy: State agencies will implement occupational health and safety recommendations put forth by the Departments of Health and Labor & Industry during pandemic influenza. Recommended Changes: Refer to chapter 4 of the for specific recommendations on organizational and environmental changes that can reduce the spread of influenza. Significant Issue: Shortages of certain personal protection equipment (PPE) are expected to occur during a pandemic. Agencies should consider whether they can modify work procedures to avoid the need for PPE during a pandemic. Preplanning: Agencies should assess their expected service delivery needs during a pandemic and consider the current recommended personal protection guidelines. If personal protection is expected to be necessary during a pandemic, agencies should make arrangements in advance to evaluate, train, and equip employees with the appropriate PPE. 1. State agencies will be responsible for providing employees with properly selected and fitted PPE when needed during a pandemic. Agencies must provide training on the proper use of PPE. Agencies must follow any applicable OSHA regulations. Employees that are issued PPE are required to wear the equipment. 2. Agencies that have a clear need for PPE during a pandemic (direct care of individuals ill with influenza or other priority services where PPE is required) should consider the gradual stock piling of nonperishable PPE. Agencies considering the stock piling of PPE should work with the Departments of Administration and Health. 3. Guidelines regarding the operation and maintenance of building systems during a pandemic will be distributed to agencies. Agencies that are responsible for their own building maintenance should expect to modify system operation to increase dilution ventilation. Agencies occupying leased space should discuss building operation expectations with landlord. 4. Basic guidelines regarding building cleaning are outlined in chapter 4 of the State Agency Pandemic Influenza Planning Guide. Additional information will be distributed to agencies as specific recommendations are developed in response to a pandemic. Agencies that are responsible for their own custodial activities should expect to modify their processes and make arrangements for acquiring appropriate products. Agencies occupying leased space should discuss custodial activity expectations with landlord. 5. Product specifications will be distributed as they become available. Agencies considering the purchase of products for response to a pandemic should work with the Department of Administration. Version 6/2009 Page 24

27 Section 8 Performance Management Policy: Employees are expected to report to work and perform duties, unless directed otherwise. Managers should continue to hold employees accountable for meeting performance expectations. Recommended Changes: Formal performance reviews will be suspended. Preplanning: Employees should be informed of the expectation that they report to work and that the consequence for not doing so is potential disciplinary action. 1. Employee misconduct, including unexcused absences, may arise and need to be addressed through normal disciplinary measures. 2. Agencies should take the necessary and appropriate action to hold employees accountable for their behavior and performance. 3. Grievance hearings and timelines may be suspended or delayed. 4. If an employee refuses to come to work as assigned, the employer may deny the use of vacation and the employee may be subject to discipline. Version 6/2009 Page 25

28 Chapter Four Employee Health and Safety Infection Control/Disease Containment Activities 1. General principles The primary objective of employers during an influenza pandemic is to protect the health of employees. Protecting the health of employees by reducing the possibility that they will be exposed to humans or animals infected with avian or pandemic influenza should be paramount in planning activities and should be prioritized over continuity of operations, unless those operations are essential to the health and safety of other persons. 2. Pre-pandemic planning activities: State agencies that are office-setting workplaces should do the following to prepare for a pandemic. Develop and implement a communication plan that includes designating an Influenza Manager in each work unit (as appropriate for each office setting). See Appendix B for the Influenza Manager Job Action Sheet/Roles and Responsibilities for detailed information. Ensure that the Influenza Manager is aware that he or she is responsible for knowledge of the plan or development of a new plan to obtain current pandemic influenza workplace guidance from the Minnesota Department of Health (MDH). Workplace guidance will be posted on the MDH website. This guidance will address all office settings and will not be specific to state agencies. Ensure that the Influenza Manager is aware of the existing plan or develops a new plan to disseminate current pandemic influenza workplace guidance to employees in a timely manner. Employers should determine which service functions are critical and should be maintained at some level during a pandemic. Employers should plan now to enable employees to work from home, e.g., establish web-based capability, facilitate access to files and computer drives from home, and update teleconference and videoconference capabilities. Employees should be cross-trained for critical service functions to increase capacity. 3. Pandemic activities: a) Information sharing The Influenza Manager should be aware of current MDH pandemic influenza workplace guidance, and communicate as appropriate to employees. The Influenza Manager should implement strategies to reduce the risk of influenza exposure and transmission in the workplace including: Educating employees and visitors about the symptoms of influenza. Educating employees and visitors about the importance of staying home when they are ill with symptoms of influenza. The Influenza Manager should post visual alerts at all entry points to the facility, advising staff and visitors not to enter if they have symptoms of influenza. For a poster, please see: Version 6/2009 Page 26

29 The Influenza Manager should post visual alerts with key infection prevention messages (hand hygiene, covering coughs and sneezes, and social distancing) in the workplace (including notice boards, conference rooms, break rooms, and restrooms). For materials, please see: b) Hand and respiratory hygiene and cough etiquette Transmission of influenza can occur by indirect contact from hands and articles freshly soiled with discharges of the nose and throat of an acutely ill individual. By frequently cleaning your hands you eliminate germs that you have picked up from other people, or from contaminated surfaces, or from animals and animal waste. Employers should: Emphasize good hand hygiene as an important step in preventing the spread of infectious diseases, including influenza. Emphasize good respiratory hygiene and cough etiquette including covering sneezes and coughs with a tissue or coughing/sneezing into a sleeve. Afterwards, clean hands with soap and water or an alcohol-based hand rub. Provide employees with adequate supplies of hand hygiene products (e.g., soap and water, paper towels), tissues, surgical masks (for people who become ill at work), and cleaning supplies. Ensure that the workplace environment is kept as clean as possible. Ensure the availability of a designated room with a door for ill employees to go to and stay in if they are until they are unable to go home immediately. The room should have at least a chair, phone, tissues, and alcohol-based hand rub. Employees should: Practice good hand hygiene with soap and warm water or by using waterless alcohol-based hand sanitizers. Influenza virus is readily inactivated by soap and water or an alcohol-based hand rub. Keep tissues and alcohol-based hand rub available for personal use in workstation. Practice good respiratory hygiene and cough etiquette including covering sneezes and coughs with a tissue or coughing/sneezing into a sleeve. Afterwards, clean hands with soap and water or an alcohol-based hand rub. Ensure that their work station is kept as clean as possible. c) Community Mitigation Interventions (CMI) The following are CMI that may be implemented during a pandemic to prevent or reduce exposure to and transmission of influenza: Isolation: restriction of movement/separation of ill infected persons with influenza. Quarantine: restriction of movement/separation of well persons who likely have been exposed to influenza. Self-shielding: self-imposed exclusion from infected persons or those who may be infected (e.g., staying home). Social distancing: reducing interactions between people to reduce the risk of influenza transmission at the individual level to prevent infection. Version 6/2009 Page 27

30 Social Distancing: Employers should ensure that the current MDH recommendations for workplace social distancing are implemented. MMB, with recommendations from MDH, will provide guidance to agencies on the appropriate times to implement social distancing in the work place. Agencies should develop or enhance current plans to include social distancing strategies within their agency office locations. The type and use of social distancing measures are determined by the severity of the pandemic. Workplace social distancing generally is not recommended during a mild pandemic. For a more thorough description of recommended measures by severity, see Appendix C of this document. d) Management of ill employees in the workplace The Influenza Manager should follow current MDH recommendations regarding the management of employees who become ill at work If an employee feels ill or observes that another person is exhibiting influenza symptoms in the workplace, they must contact the Influenza Manager by telephone immediately or as soon as possible. The Influenza Manager should avoid face-to- face contact with the ill employee if at all possible and should manage the evaluation process over the phone. The Influenza Manager will determine if the employee has influenza-like illness (ILI) by using the current ILI case definition. This case definition will be posted on the MDH website and will be linked to the workplace guidance. If the ill employee has symptoms of ILI, the Influenza Manager should provide the ill employee with a surgical mask or tissue to cover their nose and mouth. The ill employee may use a disposable surgical mask to help contain respiratory secretions and prevent others from being exposed to respiratory aerosols. A tissue to cover coughs and sneezes is also appropriate. Masks should be disposed of in an appropriate waste receptacle as soon as they become moist and tissues should be disposed of after use. Afterwards, clean hands with soap and water or an alcohol-based hand rub. Advise the ill employee to leave the workplace immediately and to contact a healthcare provider. Advise the ill employee not to use public transportation, if at all possible. If the use of public transportation cannot be avoided, the ill employee should be advised to clean their hands before using public transportation, to wear a surgical mask, and to sit as far away from other passengers as possible. Advise ill employees who cannot immediately leave the workplace because of transportation or other issues to isolate themselves from others in a designated room with a door that closes. Request to be informed when the ill employee has left the workplace. After the ill employee has left the workplace, ensure that their work area and any other areas they have been that day are thoroughly cleaned and disinfected. Return to work of a suspect/confirmed case Advise the ill employee not to return to work until they are healthy and no longer infectious using the current MDH/Center for Disease Control and Prevention (CDC) definition of the infectious period for pandemic influenza. This information will be posted on the MDH website. Employees who have recovered from pandemic influenza will have developed immunity to the pandemic influenza strain and are unlikely to be re-infected. Such employees should be encouraged to return to work as soon as they are healthy and no longer infectious. Version 6/2009 Page 28

31 e) Pandemic influenza vaccine If a vaccine for the pandemic influenza virus strain is available, MDH/CDC will determine priority groups for vaccine and will inform the public on how the vaccine will be used. Employees should be encouraged to receive the annual seasonal influenza vaccine. f) Antiviral medications Antiviral medications may play an integral role in the treatment and prevention of pandemic influenza; however, the certainty of their efficacy against a pandemic strain of influenza is currently unknown. If antivirals are available and thought to be efficacious, MDH/CDC will make recommendations to treat ill persons and if needed determine priority groups for antiviral chemoprophylaxis. Version 6/2009 Page 29

32 Chapter Five - Security I. Security Planning for a Pandemic Agencies must consider that social unrest, serious violence or property damage are possible during a pandemic and it is incumbent upon them to adequately plan for increased security necessary to protect property and resources. A. Access Control Individual circumstances will determine the extent to which public access must be restricted in order to ensure the safety of employees, visitors, public records and data, and state property. Large offices and facilities may wish to implement a restricted access/security system. B. Employee Escort or Transport If large groups gather near an agency facility, it may be difficult for employees to get to and from work. Plan to ensure employees can gain access to and exit facilities safely, including provision of escort service or special transport to a remote location (e.g., pick-up/drop-off site or alternate facility). C. Credentialing Employees who normally report to an agency facility should have appropriate credentials (e.g., ID badges) to enter the building. Back-up staff, other state agency employees, or contractors may need to access agency facilities other than where they are normally assigned to provide priority services. Credentialing may also be required for persons who provide or deliver food, equipment and supplies. It is also possible that facility access control will need to be provided by individuals who do not normally perform this task at the particular agency or specific location. Plan to have an efficient, easy-to-use system for providing identifiable, uniform credentials to all people entering the facility. D. Secure Transport of Supplies and Equipment In extreme circumstances, shipments of supplies and equipment, especially to state healthcare facilities, could be the target for robbery. Plan to ensure that shipments will arrive and depart facilities safely and securely, including the use of unmarked vehicles and public safety escorts. E. Facilities with Pharmacies and Healthcare Supplies and Equipment Pharmacies and facilities with healthcare supplies and equipment (or facilities that may be perceived to have medications or other healthcare supplies) could be at risk for burglary or civil unrest by people trying to obtain antiviral medications, vaccines, antibiotics, or other supplies and equipment. Agencies may have to consider an armed security presence for these facilities. F. Closure Agencies must determine which facilities are essential to provide priority services. If employees and assets will be reassigned from one facility to another, plans must be developed to close vacated facilities and secure all closed facilities and their contents, including information technology and telecommunications infrastructure. Version 6/2009 Page 30

33 G. Responding to other emergencies Agencies must remind employees of procedures for reporting and evacuating buildings in case of fires or other emergencies either normal procedures or revised procedures instituted as a result of security, infection control, or other concerns. Version 6/2009 Page 31

34 Chapter Six Information Systems and Technology I. Requirements for Information Systems and Technology Agencies should consider how telecommuting might be used to reduce the need for employees to gather at a workplace (social distancing). Agencies should follow existing technology policies as they expand the ability of employees to telecommute. Agencies will need to evaluate current technology capacity and make necessary modifications to support the agency pandemic plan. The following are areas of consideration. A. Accessing Agency networks and computer systems: 1. Identify current remote access capabilities. 2. Determine capacity required during pandemic event. 3. Enhance resources to meet need. 4. Provide remote access procedures to staff for access. Include procedures in continuity of operations plan. 5. Provide information/url to employees on how to access , employee self-service and other priority applications via internet. Include procedures in continuity of operations plan. 6. Require employees with laptops to bring them home nightly, so they are prepared to work from home at any given time. B. Accessing Agency phones: 1. Provide voice mail instructions to employees. Include procedures in continuity of operations plan. 2. Provide instructions to employees for transferring work telephone line to telephone at alternate location (home phone or cell phone). Include procedures in continuity of operations plan. C. Computer systems support: 1. Determine required support of computer systems. Can systems be maintained remotely or is on-site staff required? 2. Document procedures for remote monitoring. 3. Identify required level of on-site support required. Version 6/2009 Page 32

35 Chapter Seven Staff and Service Agencies I. Minnesota Management & Budget (MMB) A. Payroll 1) The Department will continue to process employee payroll. Agencies are expected to continue to input and process staff payroll in the Statewide Employee Management System (SEMA4). B. Vendor Payments 1) The department will continue to process both paper and electronic payments and will provide support to both agencies and vendors to ensure obligations are paid promptly. C. Deposits 1) The department will continue to process deposits in a timely manner so that funds will be available. Agencies are expected to continue to deposit receipts, draw federal funds, invoice customers, and process all related transactions into the Minnesota Accounting Procurement System (MAPS). D. Information Access (IA) Data Warehouse 1) The department will continue to operate the IA data warehouse during an emergency situation. However, technical help desk support will be very limited and may be suspended depending on availability of staff. New development and modification work will be suspended for the duration of the emergency. E. Treasury Operations 1) The department will continue to provide several Treasury division services to state agencies. Warrant and check cashing services will be suspended for the duration of the emergency. The following services will be available: Accepting ACH/EFT payment file information and approving them Accepting warrant issued files including: stops, deletes etc. Processing wire transfer requests; and MAPS CRW's Performing daily cash management/investment processes Providing services for tax withholding payments F. Human Resources Transaction Processing 1) The SEMA4 system will be available for entry of human resource information. MMB will have limited staff support for agency questions and assistance. G. Statewide responsibilities for financial direction and assistance to the state and state Agencies 1) The Budget Division will be operational but at a lower level of staffing. Agencies should contact their assigned Executive Budget Officer (EBO) with any queries. Existing funds and appropriations should be used by agencies for immediate additional activities. Any costs incurred should be tracked for future reporting. If existing resources appear insufficient, please contact your EBO before taking any actions, unless immediate threats to health or safety exist. Version 6/2009 Page 33

36 H. Expectations of Agencies Regarding Financial Responsibilities 1) MMB is dependent upon state agencies to ensure that these functions also receive priority designation at your agency. Therefore, agencies are asked to: (a) Process payments so that the most critical services continue (b) Prepare to prioritize payments if necessary due to limited resources (c) Place priority on payroll activities directly related to paying employees, primarily time entry and direct deposit changes, and secondarily, labor distribution and business expenses (d) Continue to deposit funds daily and enter corresponding MAPS transactions (e) Monitor spending related to a pandemic emergency. Agencies should use existing appropriations and other budgetary resources. Any additional questions should be communicated to the agency's assigned EBO. I. Availability of the Statewide System 1) MAPS extended hours of operation expect to be 5:30 a.m. to 6:30 p.m. 2) SEMA4 hours of operation expect to be: Monday Thursday 7:00 a.m. 7:00 p.m. Friday 7:00 a.m. 5:00 p.m. unless otherwise announced. 3) Information Access data warehouse hours of operation: Monday through Friday 7:00 am 7:00 pm. J. Technical Activities Required to Support Priorities 1) MAPS, SEMA4, (including Employee Self-Service) and the IA Data Warehouse systems will be operational during a pandemic emergency. 2) There will be limited technical support and limited support for security access requests during a pandemic emergency. Therefore, agencies should prepare now by: (a) Identifying individuals to perform as backup to priority tasks paying close attention to ensure that no individual is given security access that would create an incompatible SEMA4 security role. (b) Training back up personnel. (c) Completing security access requests using current procedures for those individuals in training. Delete the access once training is completed. (d) Documenting critical procedures to be used by backup personnel. (e) Ensuring that the agency technical team is aware of workstation configuration required to run these statewide systems. Additional instructions will be issued as the probability of a severe pandemic emergency increases. II. DEPARTMENT OF ADMINISTRATION A. Real Estate and Construction Services Division (RECS) is the State s agent for real property lease transactions. RECS services include: Acting as liaison between State agency and lessor Providing a needs assessment and a determination of space requirements Identifying potential properties meeting the needs Coordinating space planning and space improvements Negotiating lease terms and conditions, drafting and executing lease Providing management/administration of the lease to assure compliance, including resolution of issues. Version 6/2009 Page 34

37 In the event of an influenza pandemic, RECS will coordinate and implement communication between landlords of non-state owned leased properties and the Pandemic Influenza Executive Committee as appropriate. B. Fleet and Surplus Services (FSS) provides long-term vehicle rentals and related services for state agencies and political subdivisions. In the event of a pandemic, it is anticipated that FSS services would be scaled back. New vehicle deliveries would not take place. However, priority services necessary to keep existing fleet vehicles operating would be continued. FSS would continue to authorize vehicle repair performed by outside vendors. The fuel credit card would continue to be functional. It is anticipated that most existing FSS fleet vehicles could be operated with minor disruptions in service. C. The current insurance programs provided by Risk Management (RMD) do not provide business income protection in the case of a pandemic flu outbreak because property coverage, which includes business income, is only triggered by a direct damage loss occurrence. For example, losses resulting from a fire, flood, wind damage, etc. would be covered and if there is a loss of income due to these examples, the property policy would respond. The insurance industry offers no economical business income protection at this time. If the market responds to this need, Risk Management will bring any workable solutions to governmental entities that are interested in this type of protection. The Risk Management Fund will participate to the degree it is able to make this coverage as cost effective and available as possible, but does not have the financial resources to carry this potential burden by itself. The RMD Workers Compensation Program covers employees of the executive, legislative and judicial branches of state government and employees of some quasi-state agencies such as the State Fair and the Minnesota Historical Society. In the event of a pandemic, there will likely be increased claim activity including occupational illness claims related to influenza. RMD will utilize a new risk management information system, ivos a web based system, that will allow social distancing resulting in the best delivery of claim services during a pandemic. D. The Plant Management Division (PMD) provides services for housekeeping, engineering, building management, refuse removal, grounds maintenance, snow removal, trade and repair services, environmental and fire/life/safety systems, recycling, moving and delivery services, parking, and contracted cafeteria services. PMD will continue to provide priority services in the event of a pandemic and will work closely with the Pandemic Flu Executive Committee to ensure that the most current recommendations regarding pandemic influenza and building operation are implemented. Based on these recommendations, there will be a change in priorities to the services PMD provides. For example, routine cleaning tasks such as vacuuming, floor cleaning and/or dusting will likely be discontinued to allow for increased cleaning of frequently touched surfaces/items in areas where employees are working. The capitol complex cafeteria vendor will continue to provide food service at a limited number of cafeterias. Employees will be responsible for cleaning their own work surfaces and PMD will service common areas. E. The Materials Management Division (MMD) manages the procurement of goods and services and establishes statewide contracts that are available to state agencies and Cooperative Purchasing Venture (CPV) members. Version 6/2009 Page 35

38 MMD also manages the Minnesota Multi-State Contracting Alliance for Pharmacy (MMCAP) which is employed by 46 states and the Cities of Chicago and Los Angeles to purchase drugs for state use (primarily within state-operated institutions). In the event of a pandemic, demand is expected to exceed supply for antiviral medications and any vaccines that might be developed. MMCAP will not have any preferred customer access and states wishing to stockpile antivirals need to work though the manufacturer. Working in partnership with the MN Department of Health, MMD has published a list of emergency preparedness goods and services on state contracts (e.g., masks, gloves, hazardous waste disposal). The list specifies which products meet effective disease control standards. However, having emergency supplies on contract does not insure availability in the event of a wide-spread emergency. Agencies would be prudent to assess their needs before a crisis situation develops and to coordinate any major purchases through MMD. If a crisis develops, Admin may declare an emergency and allow agencies to directly procure any goods and services that are needed. To the extent of its staff availability in an emergency, MMD will continue to serve as a resource in finding products and expediting orders in support of recovery and protection operations. Admin is also responsible for the management and control of all state property (other than real property), and operates both state and federal surplus property programs. In an emergency, available Fleet and Surplus Services staff can assist with locating, warehousing and transporting products and equipment. II. Office of Enterprise Technology The Office of Enterprise Technology (OET) provides technology services to state agencies, educational entities and local units of government. These services include mainframe, distributed systems, application and equipment hosting, storage and backup, web, video, voice, data, business continuity and security. Generally speaking, OET s services are Priority 1 or 2 and will be provided in the event of pandemic influenza. When the severity of the pandemic rises and resources are limited, production environments will be frozen. This means that only emergency fixes will be completed. This will be done in order to maintain the integrity and stability of systems. Customers will be provided as much notice as possible regarding an environment freeze. Customers may request information about the priority of specific OET services by contacting the OET Business Continuation Management team through the OET Service Desk at Agencies that would like assistance from OET in technology delivery, recovery strategy development and implementation, remote access, security or continuity of operations and pandemic planning may request help by contacting the OET Service Desk at There will be limited technical support for new requests at the time of pandemic influenza. Agencies are encouraged to determine their technology requirements and plan for them well in advance of an event. Version 6/2009 Page 36

39 Appendix A Flu Manager Role and Responsibility 1. Actively monitor alert levels and work with management on messages to staff in the event of a change in alert level. 2. Educate staff on the disease and the mode of transmission. Brief them on the need for infection control measures and the preventive procedures that have been set in place. Educate managers and supervisors on the employee illness questionnaire form. 3. Collate contact information of all staff, i.e., home address/home telephone number/mobile phone number. Make sure all staff have contact numbers of flu manager/assistant flu manager*. 4. Check the following websites ( ) daily for updated advisories (e.g., travel advisories) and update staff accordingly. CDC has issued general workplace guidance and MDH recommends that state agency s follow this guidance. This guidance is posted at: It is the responsibility of the influenza manager to keep updated on this information as it may change with changes in the disease. 5. Ensure that staff who have travelled to affected areas are home quarantined for a sufficient number of days (to be advised by the Department of Health). Check on staff s health by phone or during his/her absence from work. 6. Appoint other staff to keep quarantined staff informed of events in office. 7. Ensure that the workplace has adequate supplies of tissue paper/hand towels, and surgical masks. (Note: Surgical masks are for use only when an employee becomes ill at work and cannot leave immediately). If surgical masks are not available tissues to cover the nose and mouth are also acceptable. 8. Brief staff on personal hygiene measures a) Wash hands Regularly and thoroughly with soap and water Before and after preparing food After going to the toilet Before and after eating After coughing and sneezing After removing personal protective equipment like mask and disposable gloves b) Sneezing or coughing should be done into tissue which should be carefully disposed of. If a tissue is not within reach, sneeze or cough into your sleeve. c) Avoid sharing of cups, cutlery, etc. d) Avoid physical contact like shaking hands 9. Put up notices in washrooms on proper hand washing techniques. Version 6/2009 Page 37

40 10. Ensure common areas e.g., break room, restrooms, meeting rooms are disinfected daily. Liaise with cleaning staff/contractors on this. 11. Identify a room/area in the office as the isolation room/area for staff with influenza-like illness. Identify the isolation route (a route that is not commonly used by staff/visitors) that leads to an area where the ill staff can be brought to their transportation. 12. Identify hospital /clinics that staff with fever can be brought to, if flu clinics are implemented. 13. Use employee illness questionnaire form on any employees suspected of exhibiting influenza-like illness. 14. Consult with human resources on questions relating to sending ill employee home. * Note: Depending on the staff strength of your agency and the size of your agency s premises, an assistant flu manager should be appointed as a backup to cover the duties of the flu manager. Version 6/2009 Page 38

41 Appendix B Social Distancing Potential workplace social distancing strategies during a moderate to severe pandemic: Setting up systems where clients can request information via phone, , and fax and have information ready for fast pickup or delivery. Arranging for employees to work from home (e.g., telecommuting), as possible. Encouraging the use of flexible work schedules for employees who must be in the workplace to minimize contact with other employees. Minimizing face-to-face contact with other people by using the telephone, video conferencing, and the Internet to conduct business even for employees in the same building. Separating employees into different work locations, as possible. Staggering work shifts to minimize contact between employees. Avoiding unnecessary travel and canceling or postponing non-essential meetings, gatherings, workshops, and training sessions. Bringing lunch from home and eating at desk or away from others (avoid the lunch room, cafeteria, and crowded restaurants). Introducing staggered lunchtimes so that numbers of people in the lunchroom are reduced. Limiting congregating in areas where people socialize. Employees should be instructed to do what needs to be done and then leave the area. If a face-to-face meeting with people is unavoidable, minimizing meeting time, using a large meeting room, and instructing employees to sit as far away from other people as possible (3-6 feet). Avoiding of shaking hands or hugging other people. Using the stairs, rather than crowded elevators. Potential community social distancing measures during a moderate to severe pandemic: Staying home and away from other people as much as possible. Minimizing visitors to the home. When outside of home, avoiding crowded settings. If a crowded setting cannot be avoided, minimize the amount of time spent there and try to stay as far away from other people as possible (3-6 feet). Avoiding public transportation: walk, cycle, drive a car or go early or late to avoid rush hour crowding on public transport. Canceling or postponing family gatherings, outings, or trips. Stocking up on basic items to reduce the necessity to shop. Shopping at off peak hours at stores that are less busy and have shorter checkout lines. Ordering groceries and other items over the phone/online for delivery or quick pick up. Arranging to pay bills at ATMs, on line, or over the phone. Version 6/2009 Page 39

42 Appendix C Pandemic Severity Index The pandemic Severity Index uses case fatality ratio as the critical driver for categorizing the severity of a pandemic. The index is designed to enable estimation of the severity of a pandemic on a population level to allow better forecasting of the impact of a pandemic and to enable recommendations to be made on the use of mitigation interventions that are matched to the severity of future influenza pandemics. Source: Version 6/2009 Page 40