MINNESOTA DEPARTMENT OF HEALTH
DIVISION OF ENVIRONMENTAL HEALTH
Winter 2008
Volume 2, Issue 1
PWDU Quarterly Update
Partnership and Workforce Development Unit
Editor’s Note: Regarding this “Flood Issue”
Many thanks to the generous contributors to this issue of the PWDU newsletter.
When I proposed focusing this issue on the August 2007 flooding in Southeast Minnesota, my goal was to
present several different views of the response to this natural disaster. I wanted to know:
What was it like for Public Health and other workers in the affected areas?
What were the needs and tasks for residents and workers during different phases of the emergency?
How did MDH and MDA staff fit into the flood area response?
What did MDH and MDA do to help from our offices in Saint Paul?
What lessons did we all learn?
How can we do better next time?
Thanks to effort and insight of those who contributed to this issue, I think that the articles reveal even more than I
had hoped. This “newsletter” is very long. However, I believe it is worth taking the time to read what all each of
these writers have to say about their experiences during and after the crisis.
Three things were most striking to me: First, each account stresses the need for flexibility and improved communication. Second, amid the stench of rotting food and mountains of disabled household goods, residents, volunteers
and workers showed incredible strength, compassion and resilience. Finally, it is difficult to know—when we
experience disaster via the brief attention span of the media —the many ways that recovery from such an event
continues long after the hotlines close and the Red Cross moves on. These articles make that very clear.
[Thanks also for the wonderful photos taken by Lesli Haines and other Winona County staff.]
Deborah Durkin
In this issue:
Page
Southeast Minnesota Flood Map,
August 2007
SE Minnesota Floods—View from Winona County
2-8
Flood Response—Report from MDH, Rochester Office
9-11
Excerpts from a Flood Diary: Changing Roles in a
Disaster Response
12-16
Minnesota Department of Agriculture Flood
Response
17-18
MDH Flood Hotline: Development of an Efficient
19
Quarterly Bug Report - Mold and Flooding
20
EHKMP Update
21
Note from April Bogard, Staff contact information
22
Page 2
PWDU Quarterly Update
Southeast Minnesota Floods—View from Winona County
By Ross Dunsmoor
PLANNING OUR RESPONSE
Winona County Environmental Health Supervisor
At 8:00 AM on Sunday morning, the director and supervisor met to organize informational materials to be distributed to flood victims, take stock of supplies, and to
assemble response action recommendations to be
presented to the County Board for authorization.
On Monday, August 13, 2007 the Winona County
Environmental Services Department met for its weekly
staff meeting. On the agenda was the online tabletop
preparedness exercise, “A Disaster in Franklin County,”
from the Center for Public Health preparedness, University of Minnesota. We completed half of the exercise that
morning, intending to finish it the following Monday.
We never quite got there.
In the early morning hours of Sunday, August 19, 2007
the department director was alerted to large-scale flash
flooding. All areas of Winona County had received nine
to seventeen inches of rain in the preceding 24 hours. An
Emergency Operations Center (EOC) had been activated
and simultaneous evacuations were in process to remove all residents from the cities of Stockton and Elba,
portions of St. Charles, Goodview, Minnesota City/
Rollingstone Township, and a low-lying area in the City
of Winona. Emergency shelters for evacuees were immediately established at St. Charles High School and St.
Mary’s University in Winona.
Estimates indicated that as many as 1,500 homes had
been flooded or destroyed. Four fatalities had been confirmed; one additional death was confirmed later.
WORKFORCE
Winona County Environmental Services is composed of
Environmental Health, which administers all of the
Minnesota Department of Health (MDH) delegated programs, and Solid Waste Management, which covers
recycling and household hazardous waste (HHW) collection, waste reduction education, environmental initiatives,
and oversight of the closed Winona County Landfill.
Department staff includes a director (sanitarian), a supervisor (sanitarian), two field sanitarians, two waste management specialists, two support staff, and a part-time
summer Household Hazardous Waste (HHW) assistant.
The Winona County Emergency Operations Plan calls for
the department to coordinate solid waste debris collection and disposal; coordinate with responding agencies
on oversight of shelter and feeding operations; respond
to all impacts on licensed facilities; and address all other
environmental health issues arising from the emergency.
Staffing assignments were discussed and of concern. Of
the eight staff available, one office staff member was a
flood victim and removed as available staff. Office staffing would consist of one support staff and one HHW
facility operator. The
director would provide
an EOC presence
when possible, and
serve as a sanitarian
for incoming calls.
One waste management specialist, with
the assistance of the
director, would be
soliciting quotes and
preparing contracts
with the waste haulers
for transporting debris.
The supervisor would
handle field operations, leaving two
sanitarians and one
waste management
specialist available for
assignment.
Preliminary road damage reports indicated widespread
extensive damage with all county roadways listed as
closed or “travel at your own risk.” Based on this information, assistance from the county highway department for
debris collection was eliminated from consideration.
With a tentative plan, the director and supervisor proceeded to the EOC to inquire when and how response
actions would be reviewed and authorized. Eight hours
into the emergency, life and safety operations were still
proceeding, and house-to-house searches were being
organized to insure no one was missed and to determine
if there were any undiscovered fatalities. A County Board
meeting was scheduled for 9:00 AM Monday morning to
authorize all response actions.
Page 3
PWDU Quarterly Update
View from Winona County, Continued
Unlike many environmental health programs, the department’s first duty would be flood debris clean up. After the
closure of the Winona County Landfill in 1998, all waste
generated in Winona County leaves the county for end
disposal through private waste haulers. The solid waste
disposal infrastructure is limited to a 100-ton/day transfer
station, which operates near capacity on a regular basis,
and a 250-yard/day demolition debris transfer station.
Both operations are privately held. As part of Winona
County’s ongoing emergency planning, several solid
waste disposal contingencies had been identified.
Four emergency transfer station sites around the county
had been reviewed and tentatively approved by the Minnesota Pollution Control Agency (MPCA). Informal discussions had been held with MPCA staff about the possibility of constructing a new, lined cell, at the closed
Winona County Landfill Site, if a catastrophic event requiring the disposal of a large volume of debris occurred.
Early on the morning of August 19, 2007, the department
supervisor assessed the condition of the Winona County
Landfill property for use in our response. The main access road was closed by multiple slides and erosion; the
secondary access road was barely passable. The landfill
cover system was still intact, with moderate damage to
storm water management structures.
Flood debris clean-up costs would need to exceed $1.5
million to consider asking the state to allow Winona
County to re-open the cell, use excess cell capacity, repair the active gas extraction system disturbed by debris
fill operations, and re-apply a final cover. Assuming a
maximum long-haul waste transport and disposal cost of
$100/ton, our landfill debris disposal threshold would
need to exceed 15,000 tons. As soon as floodwaters
subsided, a damage quantity assessment (guess) was
needed to determine the best course of action.
RESPONSE OPERATIONS
With solid waste operations on hold, our attention turned
to emergency shelters. The supervisor went to the shelter at St. Mary’s University, while the Community Health
Services (CHS) Administrator, already in the St. Charles
area, reviewed the St. Charles shelter. Site assessment
revealed few shelter occupants. Over 300 evacuees had
passed through the site and moved on to family or
friends leaving 40-60 people remaining in shelter.
The local humane society was providing shelter for all
pets that evacuees were willing to surrender. About six
pets remained in the shelter. They had food provided by
the Humane Society and ready access to the outdoors.
The university foodservice was providing meals to all
shelter residents, until the Red Cross Emergency Response Vehicle (ERV) reached the area and began
operation. Snack foods donated by local grocery and
convenience stores were available for evacuees. Staff
advised that partial containers of unrefrigerated milk at
67ºF should be discarded and made arrangements for
domestic mechanical refrigeration to serve the area.
Monday morning saw a tidal wave of phone calls. With
the state EOC activated, MPCA, MDH, and MDA staff
established contact and inquired about our needs. MPCA
asked to add staff to our EOC. They provided a solid
waste liaison person to coordinate state interests in our
debris clean up response and to dispatch contractors to
hazardous materials spills (mostly fuel oil) resulting from
the flooding. Additional MPCA staff were to be assigned
to Winona County, to assist as needed. MDH would provide water test kits for contaminated wells.
The field sanitarians were sent to determine which
licensed facilities were affected by the flooding; make
contact with those facilities; determine level of damage;
provide information about repair and reopening procedures; and address salvage issues. By 7:00 PM they had
reached all areas, except the village of Elba, where the
National Guard refused them entrance. All roadways into
the village accessible from Winona County were undermined by floodwater, or closed by slides, bridge washouts, or flooded roadways. One roadway was open from
the north but had to be accessed from Wabasha County.
With dark approaching and roadways dangerous, staff
returned to the office to determine the next day’s needs.
We subsequently determined that only 13 licensed facilities had been affected with five high-risk and three low
risk establishments suffering significant damage. Five
campgrounds were affected, two destroyed, one was
severely damaged, and two were moderately damaged.
The County Board passed our clean-up recommendations unanimously. The Board was prepared to absorb
the costs of clean-up. We advised them that we would
conduct operations in accordance with FEMA requirements just in case a Presidential Declaration was made.
Page 4
PWDU Quarterly Update
View from Winona County, Continued
This sounds much easier than it was. A great deal of
staff time was spent trying to get answers about FEMA
requirements. We operated under the governing interpretation at the time, until a subsequent one replaced it,
quickly shifting gears in the field as details became clear.
[For the record: We did everything perfectly. That’s our
story and we’re sticking to it.]
With Board authorization, the supervisor and MPCA staff
left to conduct a damage assessment and to select
emergency transfer station sites. The assessment suggested that while volumes would be substantial, we
would not reach the threshold to consider re-opening a
landfill cell or constructing a new cell.
Staff proceeded with plans for emergency transfer stations and out-of-county landfill disposal. The City of St.
Charles had already opened a transfer station in the form
of multiple dumpsters at the city maintenance shop. All
incoming waste was to be loaded directly into dumpsters.
Winona County offered to assume responsibility for the
site, with city staff maintaining operations. A second
transfer station was set up at the Stockton Community
Center, as severe damage to the area meant a standing
staff presence would be needed in the community daily.
The Winona area transfer station presented more of a
challenge. It would need a larger area, as it would likely
be receiving all the waste from the other transfer sites for
shipment to the end landfill disposal site. The first site
selected could not be used because gravel was unavailable to stabilize the saturated ground. (Available gravel
was needed for road repair.) Permission to use a privately owned site further from the flood area was sought
and given. It turned out to be the perfect transfer site,
with good access to roadways and a large paved area.
A Hold Harmless/Access Agreement—a FEMA requirement for transfer sites on private property—had to be
drafted quickly. FEMA also required municipal approvals
for the other transfer sites. A FEMA requirement for preoperation contamination assessment was determined not
to apply because of a 30-60 day operational estimate for
the transfer stations.
Contacts made with waste industry representatives
soliciting quotes for work resulted in an offer from a
major waste collection company to operate the transfer
station at a below market rate, based on the projected
volumes. All other local waste companies were contacted
for quotes to provide roll-offs and hauling. The waste
company would handle operation of the main transfer
station and end disposal, as well as assisting with debris
collection. All dumpsters in the flooded areas became the
responsibility of Winona County. Each load entering and
leaving the main transfer station would have a trip ticket
and digital photo documenting the load for FEMA, if it
became applicable.
It took two days to mobilize and get the main emergency
transfer station operational. Each day’s work was assigned and monitored by the department supervisor to
comply with FEMA oversight requirements. Debris was
being removed from the flooded homes and being deposited in the right-of-way, as there were not enough
dumpsters to meet demand. Equipment was needed to
speed the loading and transport of debris. Tracked skid
steers with grapple attachments worked best for loading
the bulky piles and were put on the ground in each
flooded area. The City of Winona offered three loaders
and eight dump trucks. They also adopted two flooded
subdivisions along US Highway 61 for a week’s time.
As cleanup began, several immediate needs surfaced.
The flood debris needed to be segregated at the curb
into: (1) debris; (2) landfill banned materials such as
electronics, appliances and tires; and (3) HHW. Press
releases and factsheets had been prepared, released,
and distributed to regional flood centers, but the message was not getting out.
Issues with mold and use of proper personal protection
during clean-up were also emerging. All power had been
cut to the flooded areas limiting broadcast media exposure and affected residents were too overwhelmed to
seek information from newspapers. Information was
passed by word-of-mouth with varying degrees of
accuracy. The cities of Elba and Stockton had periodic
community meetings where residents received the
messages that needed to get out correctly. The township
subdivisions lacked this central point of contact. We realized that a house-to-house canvas was needed.
With all available Winona County and MPCA staff fully
engaged, the sanitarians from Olmsted County Public
Health volunteered to help. Over the next three days
groups of sanitarians canvassed the subdivisions,
distributing information on waste segregation, mold,
personal protection, and flood hygiene.
PWDU Quarterly Update
Page 5
View from Winona County, Continued
During the first two weeks of the flood response, sanitarians and epidemiologists from MDH, Brown-Nicollet,
Waseca-Le Sueur, Olmsted, Freeborn, and La Crosse
Counties arrived to assist with whatever was needed. We
received much needed assistance from Rice, Lyon, Wabasha, and Goodhue Counties and the MPCA with collecting, sorting, and shipping three semi loads of HHW
from Winona County and the City of Rushford. All of this
help was greatly appreciated.
As our debris response got underway, feeding operations
were expanding to meet the needs of Winona County,
the City of Rushford, and parts of Houston County. The
Baptist Men’s kitchen was asked to come to Winona and
set up an outdoor cooking operation. It began serving
3,000 meals per day (later increased to 6,000), which
were distributed to the affected areas through the Red
Cross. The Salvation Army set up a mobile feeding station to serve the City of Stockton. A sanitarian was dispatched to coordinate with each feeding operation.
Early on, the Red Cross did not have adequate resources to prepare and deliver meals to the affected areas. Residents and flood volunteers were reluctant to
travel to St. Mary’s University where food was available.
This resulted in localized meal-sharing. Various groups
and individuals began preparing food for flood victims
and their helpers. Given the potluck exemptions under
Minnesota Rules, Chapter 157, this was not a regulatory
issue but it was a public health concern.
These operations prepared large quantities of potentially
hazardous meats, using slow-cookers and roasters. Staff
identified concerns regarding the volumes for the equipment used, and advance preparation with no re-heating
oversight. Initially, food was being removed from temperature control for lunch service, and served until gone
or until the workers left the area for the day.
Accessible, safe wash water was not available to all areas. Water wells that were in operation had not been
tested. Portable toilets were placed in all areas and bottles of hand sanitizer were being distributed with flood
relief supplies, but without effective instruction to remove
visible soil for maximum efficiency. Sanitarians were able
to tactfully mitigate the risks presented by these operations. As the Baptist Men’s kitchen came online and the
Red Cross became able to distribute meals in the work
areas, these meal-sharing activities ceased.
The topography of Winona County is composed of
deeply incised valleys, with multiple watersheds
draining rolling hill upland areas through feeder
streams that, in turn, feed the Mississippi River. The
upland ridge areas are composed of high clay soil
covering karst, dolomite bedrock. The valleys cut down
through layers of bedrock composed of alternating
layers of dolomite, sandstone, and dolomitic shales into
valleys with significant accumulations of sediment over
bedrock formations. These variations provide distinct
types of water well construction, based on the aquifer
used, each requiring a different approach when trouble
shooting the water system. This geology caused the
flooding of August 2007, when the incised valleys
aggregated storm water, overwhelming streams as they
drained into the Mississippi.
Near the end of the first week, results from the water test
kits provided by MDH began to roll in. MDH requested
that flooded-well owners receive phone contact with their
water test results, and direction on decontaminating their
water system, if applicable. MDH Well Management
would handle all counties without well delegation agreements, while delegated counties would handle their own.
Not surprisingly, samples from flooded wells were positive for total and fecal coliform. As the number of positives mounted, a rumor spread that the flood and heavy
rains had contaminated “groundwater everywhere.” The
number of residents seeking water test kits increased
substantially. More than 1,000 test kits were distributed
Page 6
PWDU Quarterly Update
View from Winona County, Continued
during the last two weeks of August. Calling all test kit
recipients put an additional strain on staff time. MDH
agreed to call all negative water tests for Winona County,
leaving our office to contact all positives. The positive
water samples found in water wells resulted from one or
more of the following: (1) flooding; (2) substandard well
construction; and 3) insect infiltration.
Flooded wells were the easiest to deal with, as they were
all valley wells without construction issues. The wells
were pumped to evacuate the boreholes, washing the
well casing in the process. Then, the water system was
disinfected with chlorine. If multiple attempts did not resolve the situation, an airlift was required. To airlift, the
well pump is removed and an air line is lowered to the
bottom of the borehole. A large compressor lifts the water out of the borehole evacuating any contaminants that
entered. Surging with chlorine present helps to dislodge
mineral scale, iron scale, and sediment from the well
casing. These materials can provide a protected environment for bacteria-carrying sediment to hide.
Differentiating the bacterially positive wells that resulted
from substandard construction or insects was more challenging. Often both issues contributed to the problem
and the issue was not new, just newly realized by the
well owner. With limited staff, we approached these wells
based on the presence or absence of fecal coliform.
Though not directly flood-related, these wells needed
attention. Fecal positive wells received first priority.
Infiltration from heavy rains entered the bedrock through
sinkholes and the fracture system, and appears to have
carried organic material and other contaminants with it.
Over the past few years we have been finding Asian beetles, and more recently European earwigs that were using water well boreholes as a winter harborage. Wells
without a tight-fitting, vermin-proof cap allow insects to
enter the system, thus introducing bacteria into the water
supply. In extreme cases airlifting is needed to clear the
well. The flood precipitated the discovery of insect infiltration in many private water systems in Winona County
and diverted man-hours to assist private well owners in
recovering their water supply.
Preliminary review of water test data collected after the
flood event appears to support long-standing concerns
with private water supplies in Winona County. The
County has long told its residents that the old well con-
struction techniques used to access the groundwater in
the upper most carbonate aquifer leaves them susceptible to rapid changes in the quality and safety of their water supply. However, the $15,000-$30,000 cost to install
400 to 700 foot wells into deeper, more reliable aquifers,
impedes progress in well replacements. Shallow bedrock
and the topography prevent rural water systems from
being an economically viable option. We will continue to
address private water supply issues in the county.
A week into the flood response we contacted La Crosse
County Vector Control, our vector control contractor, to
assess mosquito-breeding issues resulting from the
flooding. Viral encephalitis is endemic to many of the
Mississippi River counties. In Winona County, Ochlerotatus triseriatus and Aedes triseriatus mosquitoes are of
primary concern. LaCrosse County was also monitoring
for the Culex species capable of carrying the West Nile
virus. Flooding had filled natural treeholes and flood debris provided additional breeding areas. Habitats were
abated or treated with a larvacide to control breeding.
Numerous other issues were interspersed with our main
response activities, including dead animals in streams;
employee health and safety issues; old septic systems
exposed by floodwaters; and local officials attempting to
direct county-hired contractors.
One roll-off in Stockton began emitting vapors. Our staff
detected a slight chlorine gas odor. A neighboring fire
department checked the load with a thermal imager.
Chemical contamination in the load was suspected to
have caused a reaction producing chlorine vapor. We
had to decide whether to layout the load in a city filled
with volunteers or to transport the load (with escort) to
the transfer station. We chose the latter and reported the
situation to MPCA staff who concurred with the decision.
Communications was a huge problem that controlled
how we operated, and inhibited activities being coordinated through the EOC. The hardest hit areas had no
cell phone or radio service; landlines were out. Winona
County had five satellite phones, which could not serve
all needs. It was determined that a certain company’s cell
phones worked in Stockton, and the company donated
the use of several phones for responders. We received
one phone ten days after beginning operations, and after
our response in Stockton was under control.
Page 7
PWDU Quarterly Update
View from Winona County, Continued
Today we spend our time trouble shooting problem
situations on a case-by-case basis. We administer state
funding for housing demolitions, stream clean-ups, and
well decontamination. Additional demolition projects will
resume in the spring, when mitigation money becomes
available to buy out properties that will not be rebuilt.
Some properties have been abandoned, and we are going through the legal process to address those situations.
LESSONS LEARNED
Stress and fatigue was another major issue. It came from
many sources and had an accumulating effect. All staff
were on mandatory overtime with coverage seven days a
week. Staff working in the field worked 12-15 hour days.
We worked every day with flood victims who needed to
tell their stories. We listened and provided what comfort
we could, while attending to the details of the day. Most
victims maintained their sense of humor and were appreciative of our efforts. We were also exposed to hostile
individuals, frustrated with issues over which we had no
control.
The hardest to experience were flood victims who had
been pushed past their breaking point. They could respond to questions, but their eyes were empty and their
manner emotionless. Some went through the motions of
cleaning up items we would find later in the debris piles.
Behavioral health volunteers arrived to assist with the
emotional needs of the flood victims, but not before one
resident tried to start their house on fire.
Battling the crisis mentality was by far the most wearing
on staff. Competing needs were a constant stress during
the first week and staff spent too much time reassuring
local officials—and the EOC who received their calls—
that they were not being forgotten. Anxious calls arrived
when all the roll-offs were filled, or when a transport truck
was late in arriving. Our mantra was, “Out of the house,
on the ground, at the curb.” Much of the disharmony and
chaos was directly related to our inability to communicate
with each other through the incident command system, in
a timely manner.
I completed the “Disaster in Franklin County” scenario
before writing this article. The program was nice, neat
and controlled, with a short laundry list of tasks to be performed. The information was fine. It emphasized staying
within the scope of your assigned duties, and leaving the
appropriate duties to other agencies. I believe the intention was to advise responders that overstepping one’s
duties and duplicating work being conducted by other
agencies promotes confusion and may cause additional
problems. I am concerned it could be interpreted as
discouraging EH professionals from taking on additional
roles in an emergency.
This is our third natural disaster in 17 years. A flash flood
in Stockton in 1991 was of smaller scale and allowed us
to respond to typical EH issues well within our expertise.
Unlike during this event, flood debris was collected by
the county highway department and disposed of in the
county landfill.
In 1999, an F-2 tornado went through the City of Lewiston. This event was primarily a debris management
response where we worked to establish a permit-by-rule
demolition debris landfill in the Lewiston area. Few other
issues presented themselves.
The details of each of these events dictated a response
under the broad umbrella of advance planning. During
major events in larger counties or municipalities, it is possible that sufficient staff will exist in all the areas needing
attention. During the flood of 2007, all staff had to depart
from their normal duties to attend to the needs of the
county. Without this departure and the outside assistance we received, we would not have been able to meet
those needs as we did.
There is a list of questions below that we asked, or
should have asked ourselves. We have included cost
and debris volume data, which may be of use to others in
assessing your own ability to respond to such an event.
PWDU Quarterly Update
Page 8
View from Winona County, Concluded
In closing, we would like to take the opportunity to thank
the public health and household hazardous waste volunteers who came to our aid. Your assistance made all the
difference.
THINKING AHEAD
What is the financial condition of your unit of government and what is the political will to respond?
This is a question each board or city council would be
well advised to ask itself each year. You will need to act
long before you know if you will receive any financial assistance. What can you do? What will you do?
Is your agency represented in your area’s Emergency Operations Planning? What does it say you will
do, and can you do it? Our director began attending
these meetings several years ago after reading what we
would be expected to do without input from our department. Being involved in the ongoing planning process
allows you to prepare.
Based on your duties in an emergency, is your staff
prepared to perform their duties at their existing
level of training? Do you need to conduct additional
training? We quickly realized that the cross training we
had intended to do would have allowed for a more effective response. The job was completed, but it could have
been done faster and with less stress. Train where necessary and cross train when possible. If the worst happens, you will be as prepared as you can be.
Are there special issues that may prevent your staff
from being able to fulfill their duties in an emergency? For two of our field staff we needed to take into
account childcare arrangements.
Do you have a communication system that covers
your entire area? It is hard to describe how difficult it
was to respond to this event without real-time communications. Returning to cell phone range and twenty new
messages was frustrating and time consuming. High cell
phone traffic created problems with the servers. We received new messages before old messages, as long as
four to five hours after they were recorded. Winona
County has been looking at an updated digital system for
some time but due to the geology of the area there will
still be dead zones with a $4 million system.
Debris Volumes
Total General Flood Debris
Collected
5834 tons
Total White Goods
Collected
236 tons
Total Electronics Collected
23 tons (»$18,400)
Total HHW Collected
3.74 tons
($28,246.61)
The Dollars
Debris Collection & Disposal
$811,535.11
Debris Loading
$113,218.00
Total Debris Costs
$924,753.11
FEMA Reimbursement
$693,564.83
Does an entity exist in your area that will handle debris removal? In 1991 a federal court handed down the
Carbone Decision, which stated local units of government who designated waste streams to support public
owned facilities violated interstate commerce laws. This
undermined many smaller government owned operations
forcing them to cease operations. The Winona County
Landfill was one of these. If your county is a free market
system, do you have a viable debris management plan
and someone to carry it out?
FEMA Subgrant for Admin
Expenses
Note: After sixteen years in the courts the US Supreme
Court finally overturned the Carbone Decision this past
spring.
Amount reimbursed to date:
$19,495.06
State Assistance
»$200,000.00
Total Department Flood
Expenses
Total County Flood Expenses (12-23-07)
$1,301,027.62
»$4,827,000.00
(Does not include road repair costs.)
$0.00
Housing demolition costs are not included in this data.
PWDU Quarterly Update
Page 9
Flood Response—Report from MDH, Rochester Office
By Geri Maki , RS, CPG
MDH CALL OUT
MDH Rochester District Office
That same day, calls went out to MDH staff about their
availability for the flood response. During the first week,
personnel from Environmental Health Services (EHS)
and Drinking Water Protection (DWP) went out in pairs to
survey the damage and collect water samples. MDH
provided water test kits in pre-paid mailers to Winona,
Houston, Fillmore, Olmsted, Dodge, Steele, and
Wabasha Counties.
RIVERS and VALLEYS of RAIN
There were several days of showers before the big rain
event in August 2007. The ground was already saturated; additional rain had no place to go. The topography
of SE Minnesota is a network of bluffs and valleys. This
landscape complicated flooding and made communication difficult due to poor cell phone reception in the area.
Fifteen inches of new rain caused major erosion and
mud slides. The water took down trees and piled them up
against bridges, creating dams that forced water into
areas that have not flooded in the past. Two cities that
were hit hard were Minnesota City and Rushford.
MDH staff visited mass-feeding locations to ensure
proper temperature controls and handwashing. We distributed copies of various relevant fact sheets, and the
Emergency Handbook for Food Managers by the Twin
Cities Metro Advanced Practices Center (APC).
Many roads were closed and others were damaged by
mud slides and erosion, making driving around the affected areas slow. To see the power of the water was
humbling. The Department of Transportation website that
showed the status of roads in the area was invaluable.
RECOVERY in the RUSHFORD AREA
During week two, water systems that had tested positive
for coliform bacteria were re-sampled. Staff visited businesses to discuss re-opening needs, and assisted at
Disaster Recovery Centers (DRCs) by discussing mold,
drinking water, private wells, and other issues with residents and business owners.
MDH staff made numerous visits to operators to answer
questions, assist with plan review applications, and to
review plans prior to submission. Plan review applications were printed on blue paper, so plan review staff in
the metro knew to give them priority.
RUSHFORD, MINNESOTA
On Aug 19, 2007, a disaster was declared in Rushford.
There was no drinking water, no food (because the grocery store and restaurants were flooded), no electricity,
and no phone service.
Residents were cut off from the rest of the area. Many
people needed to be rescued from roof tops as water
came into the city. Rushford has levees to protect the city
from flood waters, but debris caused the water to back
up and over the levees into town. Flood waters had to be
pumped out of Rushford and back over the levees before
cleanup could begin.
Many operators were looking for ways to operate on a
limited basis. One used a licensed mobile food unit, while
another obtained a special event license to “do a little
something” on a couple of weekends. Others opened in
phases—first the bar and limited food—then later the
kitchen. The flood closed some operations forever.
WATER SUPPLY
Water problems were complicated by a variety of situations. On August 19, this notice was issued in Rushford:
“Do Not Use Water for Drinking or Bathing. City
Water May Be Used for Cleaning Purposes
Only…”
PWDU Quarterly Update
Page 10
Report from Rochester, Continued
Flooding had compromised the water supply, and the
wastewater treatment plant also had problems. City residents were told not to use the water for anything but
cleaning. That order included residents whose homes
were not flooded but who were connected to city water.
On Tuesday, September 4th a boil order was issued,
meaning that water could be used, if boiled. On September 17th—almost a month after the flood—the boil order
was lifted and the water declared safe for all uses.
standing round water and some homes to see if it was
safe for the residents to re-enter. By the time testing had
been done, mold was growing and food was rotting. Rats
and maggots were feasting. Questions arose regarding
responsibility for removal of white goods, household
hazardous waste, and debris. It was necessary to
perform all of these tasks and then demolish many of the
homes. Some of the residents just walked away.
A new, temporary manufactured home park was established. Because of its temporary (18 months) status, it
was acceptable to establish an emergency evacuation
plan instead of building a storm shelter for the residents.
CLEANUP and QUESTIONS
Questions: How do I get the water out of my basement? How do I clean the walls? What about mold?
When can I start to rebuild?
We heard about people using undiluted bleach or bleach
concentrations that were far too strong. “More is Better”
was a common misconception. Once the water was gone
and residents bleached the walls, they were ready to put
up new drywall. We needed to get the message out
about waiting for things to dry out first, so that mold didn’t
start growing again in closed spaces.
How do I know the walls are dry? How do I read this
moisture meter? We quickly realized that none of our
written materials addressed this specific issue.
Other Rushford City residents have shallow, sandpoint
wells. Residents were also prohibited from drinking that
water. MDH and Rushford City staff worked together to
identify these wells, so they could be properly sealed,
and to identify homes that needed to be hooked-up to
city water.
There were also residents in the surrounding area on
private wells. Many of these were old farm wells, cased
and not grouted. Water quality in these wells before the
flooding was not known. Many of these wells were tested
for bacteria after the flood; MDH staff and local public
health discussed the results with the residents. Calls
about water quality continued for months after the event.
ONE AFFECTED NEIGHBORHOOD
The trailer park was flooded, all its homes were
destroyed, and residents were barred from the area due
to an agricultural chemical spill. MDH and MDA tested
What kind of mask do I need? For other disaster
cleanups, dust masks have been used, but with this
event, N95 respirators were strongly recommended for
mold cleanup.
MORE ABOUT DEBRIS
Residents of flooded areas were asked to separate their
debris into three piles: white goods; household hazardous waste and the rest. Huge piles began to appear all
over the area. The Pollution Control Agency (MPCA)
worked with regional authorities to identify disposal procedures and options.
BEHAVIORAL HEALTH
MDH Behavioral Health staff did just-in-time training for
all Rochester District Office (RDO) staff. This was useful
information. They also set up a field office at the RDO,
so that volunteers could meet and be briefed before
heading out to affected areas.
PWDU Quarterly Update
Page 11
Report from
from Rochester,
Rochester, Concluded
Continued
Report
BEES
When one stress was alleviated, another took its place.
Cleanup throughout the flood area was complicated by
an epidemic of bee and wasp stings; rain had destroyed
the nests of ground wasps. People were leaving food
and beverages out while working on their homes. Some
allergic reactions occurred, so there was a need for EPI
pens. Residents helped out with homemade bee catchers, and public health staff reminded people to cover
their food.
COMMUNICATION, COORDINATION, PLANNING—
THINGS TO THINK ABOUT FOR THE NEXT EVENT
Coordination: There are numerous agencies involved in
an event like this: State Emergency Operations Center;
MDH Department Operations Center (DOC); Regional
Public Health Preparedness staff and Nurse Consultants,
County DOCS, City Administration, the Red
Cross, and other service agencies.
Communication: Unforeseen communication issues
arose due to the topography of bluffs and valleys. Many
areas had no electricity and no phone service (or email
or fax capability) and cell phone service was spotty or
non-existent in some areas.
The ability to use wireless internet connections may have
alleviated some of these issues.
MDH established a hotline to answer questions from affected residents and business owners. Because many
residents had no phone service or electricity, publicizing
the hotline number became a difficult issue. Local radio
stations helped broadcast the hotline number.
For future events, we’ll need to be prepared to get the
hotline number into the hands of the people who need it,
even when traditional methods of communication may
not be available.
At MDH alone, there were many Units,
Sections, and Divisions involved in the
response: EHS, DWP, Community Water
Supply, Well Management, Indoor Air,
Acute Disease Investigation and Control,
Environmental Lab, and Environmental
Surveillance and Assessment.
Having so many groups involved in the
response sometimes led to confusion
among the local jurisdiction when requesting
supplies or additional help.
Coordination and communication between
all of these groups is incredibly important.
Because there were so many different staff
members involved in the response, there
were many discussions about who should
be staffing hotlines and response centers to best answer
subject-specific questions. Some staff were limited to
eight-hour shifts, even though there were many more
hours of work to be done in a day.
Organizing staff and establishing work hours needs to be
coordinated with Human Resources and Division management (keeping in mind that we need to keep staff
safe and provide for appropriate rest periods to prevent
burn-out).
IN CLOSING
Flood-affected residents were stressed, overwhelmed
and happy to have people there to help and answer
questions. They didn’t have time to read fact sheets; they
just wanted short, sweet answers to their questions.
Two thoughts:
(1) We can not eliminate all risks …
We can only minimize risks.
(2) Communication, Communication, Communication!
Page 12
PWDU Quarterly Update
Excerpts from a Flood Diary: Changing Roles in a Disaster
By Lesli Haines, REHS
and turned back by the Army National Guard.
Winona County Environmental Services
All facilities we visited were either unaffected or
completely affected, closed, and trying to pump water
and mud out of their buildings. Foods already disposed.
We left flood clean up information packet and Emergency
Handbook (most lost theirs in the flood). We discussed
their plans and advised them to keep us involved through
their process and call us for assistance. 7:00-8:00 PM
debriefing at office.
TUESDAY, AUGUST 21
SUNDAY, AUGUST 19, 2007
We had heavy rains yesterday and last night. Ross
called this morning to inform me of the flood situation. I
was not aware of the flood; my home is unaffected.
Ross described the scope of the flood: Phone service
and cell phone service are out in many areas; many
roads washed out. All roads entering or leaving Winona
are closed except for Hwy 43. Unable to reach anyone in
Elba and can not access by road.
7:30 AM: Jodie and I are sent to Fleet Farm to buy steeltoed shoes—not much to choose from in women’s sizes.
We headed into the field with Ross to try to reach Elba
again and we made it this time. They are very hard hit.
Food and beverage facilities are heavily flooded and
closed. Five campgrounds are devastated. Most of the
RV’s are destroyed and some have disappeared.
Lazy D Campground owner, Mark Thoreson’s heroic
rescue efforts with assistance from one county sheriff’s
officer undoubtedly saved lives. He waded through
chest-deep, rushing currents to carry two families with
children out on his shoulders, making several return trips.
Pieces of one trailer were found miles away smashed
into another trailer at White Water Valley Campground.
Military helicopter enroute to check on their condition. I
hear them flying over my house as we speak. Power
companies are cutting power to the flooded homes.
Emergency shelters are being set up. I am put on
standby. Rescue efforts ongoing at this stage.
MONDAY, AUGUST 20
Staff meeting at the Winona County Environmental
Service office. Jodie and I called our licensed facilities,
giving information and flood recovery resources. Many
were not reachable. Compiled information to distribute at
site visits. Fielded phone calls from facilities and residents asking what to do. Phones are ringing off the hook.
Also assisted impacted facilities in neighboring counties
who had not yet been able to reach their Sanitarians.
Jodie and I headed out to the flooded areas where we
have facilities we have not been able to reach. Drove
through most heavily affected areas, crossed some
roads that were undermined but not yet closed. Still not
able to reach Elba; roads washed out. We were stopped
At return to office, Kim and I were sent to Stockton (also
heavily flooded) to assist MPCA with monitoring flood
debris collection site (behind the community center), and
the hazardous waste collection site (under the pavilion).
PWDU Quarterly Update
Page 13
Excerpts from a Flood Diary, Continued
This is where my role shifted from handling the usual
Sanitarian concerns to handling solid waste issues. We
canvassed neighborhoods and spoke to residents about
what to do with their flood waste and debris, gave information on what needs to be separated out of the debris
(household hazardous waste, appliances, electronics,
fluorescents, etc), where to take debris (collection sites),
and assisted with paperwork. For each load brought to
the collection site, the resident must fill out a long affidavit and questionnaire form for FEMA.
WEDNESDAY, AUGUST 22
7:00 AM: gathering supplies at the office. Off to Stockton
we go. We put the new plan into effect. Started collecting
debris on Hwy 14. Kim and I stayed just ahead of the
loaders and pulled contaminants out of the piles of mixed
solid waste and debris as best we could; informed residents how to sort; monitored the collection sites still in
place. Kept an eye out for drivers picking up full roll-offs
also. Each driver must have a trip ticket form filled out
and signed by them and me.
Challenge: contractors having difficulty filling roll-offs on
Hwy 14 due to traffic not letting heavy equipment maneuver. Many sightseers driving through town.
Law Enforcement assisted with traffic control until we
moved the roll-off boxes to side streets. We do not need
to fill out the affidavit/questionnaires at curbside any
longer. Lots of walking, very hot, blisters on each of my
ten toes.
Next obstacle: As the roll-offs are being hauled off, no
empty ones arrive to replace them. Contractors are asking where the boxes are; they are at a standstill without
them. I have no way to communicate with Ross, Anne,
the office, or anyone about the need for boxes (Stockton
has no phone service or cell reception).
People are overwhelmed and frustrated. It is difficult for
them to move huge piles of waste, or to read and fill out
a form that just seems too complicated right now.
8:00 PM: debriefing at office: MPCA staff present and
helpful with suggestions and knowledge of FEMA
requirements. Discussed ways the process in Stockton is
not working. People do not have the equipment needed
to move their debris to the collection site. We need to
modify the process, or piles will continue to grow and
remain at curbside. The decision was made to move the
collection of debris from curbside. Ross started coordinating contractors; Anne arranged for roll-off boxes to
begin curbside collection in Stockton tomorrow.
Kim and I to be back in Stockton to talk w/residents,
distribute information, inform people we are coming to
collect their debris piles, and what to separate out. We’ll
coordinate the contractors, roll-off placements, handle
FEMA paperwork, and continue to pull contaminants
from the piles. Another rainy day today.
A few drivers eventually make it back with their empty
roll-offs. They are having difficulty getting their loads into
Miller’s transfer station in Winona. Traffic is backed up
and waiting. We begin working on finding a site to set up
a temporary transfer station, and locating more roll-off
boxes. Army National Guard still present.
PWDU Quarterly Update
Page 14
Excerpts from a Flood Diary, Continued
I am struck by the character of the people here. Everyone I ask how they are doing says “all right, we were one
of the lucky ones. My neighbor over there has it much
worse than I do.” Many new volunteers arrive daily from
all over the United States. Some of the groups are very
well equipped with moving equipment, trailers full of
cleaning supplies, varying levels of expertise, etc.
HHW facility. More roll-offs arrived, as did a semi and
another loader. Two crews operating at both ends of
town. I am alone to cover everything until Kim gets back.
8:00-9:30 PM: debriefing at office. I will be in Stockton
alone tomorrow. Kim will be at the office sorting HHW.
Challenges today: Coordinating two loading crews with
boxes, drivers, FEMA required paperwork, and keeping
an eye on what’s in the piles that continue to grow at
opposite ends of the city, alone, while on foot. My feet
are killing me (darn these new steel toe shoes). Also,
trying to maneuver the truck through the streets was near
impossible with all the debris and vehicles in the road.
An ATV or Gator would be just the thing. The bees are
very bad and many people are getting stung. Some type
of repellant that works for bees would be good.
FRIDAY, AUGUST 24
This new plan is working much better for debris removal.
People are grateful we changed it.
8:00PM to 9:30PM: debriefing and check some emails.
Jill wants us to retrace our steps tomorrow and try to get
affidavits filled out from the residents where we picked up
debris at curbside.
Big challenges today: NO COMMUNICATIONS. Need to
address this before another event arises.
LESSONS LEARNED: (1) Be flexible. If initial plan isn’t
working, be willing to change or modify it. (2) Be willing
to change roles to fill in where the need is greatest.
(3) People need information as soon as possible.
THURSDAY, AUGUST 23
6:00 AM: gathering supplies at the office. We will have
two loading crews to coordinate in Stockton today.
Continued operation as yesterday. Retraced our steps
from yesterday trying to get paperwork from the homeowners along the curbs where we removed debris yesterday. Drove the truck around to pick up electronics sitting at the curb. Very difficult to get down the streets, as
so many vehicles and piles have narrowed the roadway.
Loaded HHW in the pickup and Kim took back to our
6:30 AM: Back to Stockton. Back to coordinating two
crews, roll-off box drops and haulers, and paperwork.
Temporary transfer station site deemed unusable by the
waste management crew who came to operate the heavy
equipment due to the ground being too soft. The site was
quickly moved to a better site with a large, paved lot.
Appliances are piling up at the collection site in Stockton.
Most are still filled with rotting food. The smell is very
bad. Bee stings continue to be a problem. Volunteers
continue to pour into the city.
Salvation Army is doing a fantastic job feeding and assisting everyone with basic needs. Corcoran’s guys are
doing a fantastic job removing debris from curbside.
Appliances are finally starting to be loaded up and
hauled off to the temp transfer station now (Whew!).
Continue to walk the neighborhoods, pass along information and listen to people.
8:00 PM: debriefing at the office. Decision was made to
not work the weekend. MPCA staff will man the collection
site and handle any pollution control issues. Decided we
didn’t need to have the affidavits/questionnaires filled out
for the curbside pickup anymore. Also don’t need to fill
out the trip tickets for the haulers anymore. They are being done at the temporary transfer station now.
SATURDAY, AUGUST 25
Trouble in Stockton today. Jill directed me to be back out
in Stockton from 7:00AM to 7:00PM tomorrow. Answered
work emails from home.
PWDU Quarterly Update
Page 15
Excerpts from a Flood Diary, Continued
SUNDAY, AUGUST 26
5:00 AM: at office making factsheet copies and checking
phone messages. Headed to Stockton. Quieter today.
Visited with residents; updated on new developments.
Went to the Arches area and spoke with residents there,
informed them our crews were heading there today to
haul off debris, informed how to sort, answered questions. Continued to assess where debris piles were
reforming in Stockton. Continued to pull electronics,
HHW, etc. from debris. Not as much now, as people are
better informed at this point. By the end of the day, residents were asking me to sit down with them and rest for
awhile. Some people just need someone to talk to who
will listen to their story. Back at the office Ross informed
me Jill is pulling me from Stockton and assigning me to
work the transfer station with Jodie starting tomorrow.
MONDAY, AUGUST 27
6:30 AM: Started working the transfer station with Jodie,
and Josh and Brady from Waste Management. The pile
of debris and garbage is huge. Appliance pile very large;
the smell of rotting meat is overwhelming. Piles of electronics and things like lawn mowers growing also. People
driving by keep stopping to ask if they can take the mowers and try to fix them. We apologize and explain that
they are sewage-contaminated and hazardous. Once
they are in the transfer station they cannot leave. Some
people are disappointed but understanding. A few get
angry and belligerent. One person yelled profanities,
used profane gestures, and sped off squealing his tires.
Law Enforcement is going to patrol here more often.
Very hot working the transfer station. The black pavement radiates the hot sun right back at you. For each
load coming in, we fill out the paperwork, get signatures
from each driver, direct the drivers where to unload their
debris depending on what is in it, and take a picture of
the load as it is dumped for FEMA. For the outbound
semi’s hauling the debris out of the transfer station, we
fill out paperwork, get signatures, and photograph the
truck once it is loaded and ready to leave the station.
7:30 PM: debriefing at office. Jodie and I are assigned to
the transfer station 7AM to 7PM until further notice. No
more PM debriefings. Office staff back to normal hours.
TUESDAY, AUGUST 28 thru LABOR DAY
Jodie and I continue at the transfer station. We field calls
and questions via our cell phones from our licensed
establishments, as they continued preparing to re-open.
We take turns running doing site visits at those facilities.
Some days we start before 7:00AM and some days
lasted later than 7:00PM because outbound semis were
there and needed to be documented.
Down to one person manning the site with one MPCA
person for the holiday weekend. Jodie on Saturday,
Anne on Sunday, and I will work Labor Day, Monday.
Saturday and Sunday, I go through hundreds of accumulated emails and answer questions from home.
Biggest obstacles at the transfer site: (1) Heat! It is so
very hot (over 90°F) and we have very little shade to get
four people under when we’re not standing beside a vehicle or taking pictures by the garbage heap. (2) The
bees! I finally got stung this week. (3) The smell! Can’t
describe it, but you don’t have much of an appetite while
here. (4) The unknowns.
There is no way to know what contaminants are floating
through the air but we know we have sewagecontaminated debris. I woke up one morning with an
extremely swollen lower lip, and no idea what the reaction was from. (5) Sanitation. We are dealing with contaminated stuff. We have a porta-potty but no place to
wash hands. Talked with Ross about the need for handwashing. A first aid kit and portable eyewash would be a
good idea. Ross arranged for a hand-wash station, and
he dropped off the first aid and eye wash kits.
TUESDAY, SEPTEMBER 3 to FRIDAY, SEPTEMBER 7
6:30 AM: First day of school for my son, Jacob. He starts
first grade. Daddy will take him. My family has been great
through all of this but they miss Mommy. They are in bed
PWDU Quarterly Update
Page 16
Excerpts from a Flood Diary, Concluded
when I leave in the morning and asleep when I get home.
Chad has been so supportive and has taken care of
everything at home. I am fortunate and thankful.
Jodie and I are at Transfer Station again. All is running
smoothly. Stinky appliances are being hauled out, hooray! Ross arrived to inform us that Jill is pulling one of us
off the transfer station to help with phones in the office.
Jodie and I are trading off between transfer station and
the office the rest of the week. We also started meeting
more with the affected establishments who are trying to
get re-opened. One had a fuel oil tank spill its contents in
the floodwater in the basement. The water rose to the
ceiling and the fuel oil soaked into the floor joists and
floor boards on the first floor. MPCA assisted with
disposal, but what is soaked into the wood continues to
off-gas. Fumes are intense and affecting people.
Researched and provided information on how to extract
oil and clean the wood.
MONDAY, SEPTMBER 10
Jodie and I pulled from the transfer station. Not as busy
out there anymore. We are fielding many calls from
people with well and mold questions. We researched and
pulled together many resources for them for preventing
mold growth and what to do where it is already growing.
At this stage, mold is one of the biggest issues.
TUESDAY, SEPTMBER 11
Jodie, Ross, and I spent all day helping Kim sort flood
contaminated HHW in the HHW facility. We did this
again on Wednesday.
Transfer Station challenges and lessons: (1) Dealing with
sewage and other unknown contaminants. Remember
next time to make provisions for handwashing right
away. (2) Heat and wind (especially on black asphalt).
Need larger shade canopy. Not much else can be done
about that. Also difficult to keep a lunch cold. Heat has
been unbearable. (3) Putrid smell and flies from rotting
food in appliances indescribable. Difficult to eat anything
during our 12+ hour shifts here; lost ten pounds during
the first three weeks of the flood. Need to haul those appliances out much sooner next time.
SEPTEMBER 17 thru November 2007
Mostly back to normal work duties. Jodie and I are
working hard at helping establishments get re-opened
and catching up on routine inspections.
DECEMBER 2007
We are caught up with routine inspections. As for the
flood, we are into long-range recovery efforts. There are
a number of houses that need to be torn down and
hauled away, much more FEMA paperwork, helping people with well issues, and trying to find financial assistance. There is still much work to be done.
LESSONS LEARNED:
•
•
You must be willing to change roles to current needs.
You must be willing to change what you are doing if
the process in place is not working.
•
Communication is vital.
In a stressful event, you may be required to be responsible for something for which you do not have the expertise. You must at least be able to communicate with
people who have the expertise to guide you. Contingencies must be in place for those areas with no phone and
cell phone service.
Get information into people’s hands as soon as possible!
They are devastated, overwhelmed, need contact, and
someone to listen. They need information on what to do.
This was a tragic, natural disaster that challenged us
physically, mentally, and emotionally. Looking back, it
amazes me that such a small number of people were
able to successfully manage such a huge task. Our
response to this event made me feel good about the
work we do in public and environmental health.
Page 17
PWDU Quarterly Update
Minnesota Department of Agriculture Flood Response
By Larry Kruger, Food Inspection Supervisor
Minnesota Dept of Agriculture
On August 18, 2007, ten to twenty inches of rain fell in
southeastern Minnesota causing extensive flood damage
to many agriculture-related businesses in Elba, Stockton,
Rushford, Minnesota City, and the surrounding areas.
The following article details the activities of Minnesota
Department of Agriculture (MDA) inspectors, as they
responded to the flood and addressed public health
concerns immediately after the waters receded.
Working closely with food business owners, MDA
inspectors made frequent on-site visits to facilities and
expedited the plan review approval process for rebuilding and remodeling of affected food facilities.
Employee safety was of primary concern during the
response. MDA staff were assigned to work in pairs, and
briefed on safety issues before being sent to flooded
areas and facilities. Staff were not allowed to enter
buildings until building access had been cleared, due to
concerns over structure damage, electrical safety issues,
natural gas, and propane supplies.
The majority of the affected food establishments had two
to six feet of floodwater, no refrigeration for days, and
lots of mud. Damage assessment was initially delayed by
“no entry” restrictions in some of the hardest-hit communities.
Inspection staff focused on condemnation and disposal
of adulterated foods. While some of the canned food
could have been salvaged, due to the small volume of
material, food facility owners opted instead to send all
affected product to the landfill. One grocery store owner
reported using a canoe to paddle down the aisles of his
store to salvage disposable diapers for donation to the
emergency shelter where they were needed.
“What do I have to do to reopen?” was the primary
question on the minds of food business owners affected
by the flooding. Affected firms included convenience
stores, grocery stores, direct marketers of frozen turkeys
and elk meat, a lefse manufacturer, prepackaged-only
food stores, a custom meat processor, and firms with
limited food sales such as candy and soft drinks.
Approximately nineteen MDA food-licensed firms were
affected by the flooding. Damage to facilities included
floodwater damage, food spoilage from power outages,
and well water contamination of food, feed, and pesticide
facilities.
MDA and MDH inspection staff described the reopening
process at an evening town meeting in Rushford two
days after the initial rainfall. Facilities were reminded of
the requirements to have safe water, proper sewage
disposal, and a reliable electrical source before reopening.
By Monday, August 27, all the adulterated food was
condemned and its destruction witnessed according to
protocol. This included a previously unmovable 1,500
pound, frozen block of lefse that had to be thawed before
it could be moved to a landfill.
Page 18
PWDU Quarterly Update
Minnesota Department of Agriculture Flood Response
Flood-damaged foods were either denatured (made
unusable by the addition of bleach or another substance)
and placed in a dumpster, or placed in a compactor
truck. The compactor truck was the most efficient
method, as the destruction occurred on-site rather than
at the landfill. Approximately 200,390 pounds (more than
100 tons) of contaminated food were condemned and
destroyed.
A local TV station asked “What is the MDA doing to
prevent the illegal salvage of adulterated foods?” The
reporter commented that from her previous experience
with floods “… that flood damaged food had shown up in
flea markets, food shelves and underground food sales
in some western states” and that she wanted to know
what MDA was doing to prevent this from happening in
Minnesota.
To organize response efforts efficiently, MDA used the
Incident Command System and opened their Department
Operations Center in St. Paul. The response team from
MDA included members from each MDA division that
had regulatory interests impacted by the flooding. The
Food Operations Chief was located in the Rochester
MDA office.
A short media interview given by the MDA Food Operations Chief described the actions taken to prevent flood
damaged food products from re-entering the marketplace. One caller wanted to know if the cucumbers she
purchased at a farmers’ market could have been under
flood water. Another caller wanted MDA to know that an
area store was advertising “locally grown sweet corn.”
Both callers raised concerns about the safety of produce
potentially impacted by flood water.
The initial response plan focused on the following activities:
1. Flood affected food and agricultural facilities were
identified.
2. Private wells that served flooded food and agricultural facilities were identified.
3. Facilities with adulterated food and other flood damaged products such as pesticides, fertilizers, and
grain were identified.
Also, “Certified Organic” growers were questioned by
some of their customers regarding the safety of their
produce and the status of their “organic” certification
because of the potential for flood-borne contaminants
from neighboring commercial farming operations. The
issue of “Organic Certification” for flooded farms is being
addressed by third party auditors under the USDA
organics program.
MDA inspection staff were assigned to each food and
agricultural facility to inform owners about food salvage,
and facility and environmental clean-up requirements.
By November 2007, eleven of the nineteen impacted
firms reopened. Recovery in the area will continue to be
a long-term process and MDA will maintain an active role
in the affected areas to ensure a safe food supply.
MDA also responded to calls from the media and the
public about the possible resale of flood-contaminated
food from grocery stores, and safety of the produce sold
at farmers’ markets.
The food inspection staff would like to recognize the
efforts of the firms in the area for their diligent work and
cooperation throughout this response and recovery.
PWDU Quarterly Update
Page 19
MDH Flood Hotline: Development of an Efficient Response
By Lynne Markus,
MDH/EH Division Services Section
BACKGROUND
Minnesota Department of Health (MDH) operated the
Southeast Minnesota Flood-Related Health Hotline for
six days from Wednesday, August 22, 2007 until Tuesday, August 28, 2007. MDH opened the hotline after
conferring with health departments in the flooded area.
This article describes aspects of providing an efficient
hotline service that were learned and developed by hotline coordinators during this disaster response.
HOTLINE RECRUITMENT
MDH staff designed an online system to quickly recruit
hotline telephone workers. MDH employees throughout
the state received an email request for service, with a
link to a sign-up form on the MDH intranet. MDH employees were asked to sign up for four hour shifts. Early in
the response, each shift was staffed by seven hotline
workers. When the volume of calls decreased later in the
response, the hotline was staffed with fewer workers.
Others assigned to the shift remained available at their
desks, in case they were needed.
Each shift had a leader. Hotline coordinators provided an
orientation for shift leaders with written and verbal information. In turn, shift leaders oriented hotline staff with
information about speaking with callers under stress,
hotline procedures, reference information, agency phone
numbers and the latest news from the disaster area. To
cover specialty areas, hotline workers with particular expertise (e.g., mold, immunization) were distributed
among shifts so that they could take subject-specific calls
and were available to advise other hotline staff.
FLEXIBILITY
Questions changed over time: immunization, water
quality, and indoor air questions during the first days
were followed by inquiries about recommended cleanup
procedures and other recovery issues. Hotline workers
provided advice and web addresses for those who could
use them. Fact sheets were mailed or e-mailed the same
day they were requested by callers. In order to keep
track of the number and types of calls coming in, hotline
workers were asked to complete a check-off form that
listed the most frequently requested flood information.
Each hotline worker had access to a three-ring resource
notebook with a table of contents and topic tabs, plus a
laptop computer with similar information on Excel
spreadsheets. Workers also used laptops to access
MDH website information, the Internet, and their own
email accounts. Hotline coordinators quickly updated
information in both formats. As new information became
available, coordinators added it to the resource notebooks for immediate reference, and also updated the
computer and web-based versions of these materials.
SHORT AND SIMPLE
Hotline and health workers in the field observed that
many flood victims were unable to absorb information
until it had been repeated several times. Individuals were
more likely to seek additional information after their immediate needs were met. In response to callers’ desire
for advice that was clear and to the point, several MDH
fact sheets were simplified to address only immediate
flood response issues and needs.
MULTILINGUAL SUPPORT
To serve Spanish-speaking residents of the flooded area,
the hotline provided access to multilingual factsheets. A
Spanish-speaking MDH employee did not take regular
shifts but joined the hotline whenever needed.
ONE MESSAGE
One function of the hotline was to provide updated
information on local health department activities such as
declarations on vaccinations, movement of local
assistance centers, and water system status and safety
for use. Coordinating messages from different disciplines
within MDH and from various state and local entities
proved challenging. It was necessary for staff to communicate regularly regarding these messages to ensure
consistency and to avoid potential confusion.
CONCLUSION
The hotline allowed MDH staff to demonstrate their
concern and support for Minnesotans affected by this
disaster. Hotline coordinators believe that every time
they operate a hotline, they improve their ability to deliver
this service in times of need.
[For more information regarding hotline response and
lessons learned, contact Lynne Markus (651-201-4498 or
[email protected]]
PWDU Quarterly Update
Page 20
Quarterly Bug Report - Mold and Flooding
As flood waters receded in Southeastern Minnesota in
August 2007, public health hotlines began to receive
calls about mold. Callers did not inquire about health
risks from mold as often as they asked how to rid their
homes of mold, so they would be livable again. It was up
to public health staff to provide health risk information as
well as practical advice on cleanup.
Perhaps the most difficult advice to give and to hear
during this time was that mold cleanup cannot be rushed;
that the source of water must be eliminated and that all
building materials must be dry before they are cleaned.
Hotline volunteers provided the following basic advice
about mold:
WHAT IS MOLD?
Mold is a microscopic fungus. There are many types of
molds, and they are present throughout the environment,
indoors and out. Tiny mold particles are always present
in the air as microscopic cells known as spores.
WHY CAN MOLD BE A PROBLEM?
Mold spores can germinate and grow in a moist or damp
environment, on any surface that contains organic matter. A home that’s been flooded can provide ideal conditions for the growth of mold.
detected, removed, and not allowed to return to indoor
living and working environments.
DETECTION, CLEANUP and REMOVAL
Sight and smell are the best tools for detecting a mold
problem. If mold can be seen or smelled in a structure or
on its contents, it must be removed. Therefore:
•
Look for visible mold which may appear as a gray,
green or black staining or fuzzy growth on materials
and surfaces.
•
Search areas with noticeable mold odors.
•
Search behind and underneath materials (carpet,
wallpaper) and furniture.
Mold testing is expensive, and usually unnecessary.
If mold can be seen or smelled, the expense of testing
should be applied to cleanup and refurnishing. Testing
will not provide additional helpful information.
Extensive cleanup information can be found at the
websites listed below. Steps in cleanup are these:
•
Wear appropriate protective gear at all times.
•
Identify and remove all sources of moisture.
•
Dry any and all wet materials.
•
Remove and dispose of moldy materials (e.g.,
paneling, soft furniture, carpets).
•
Clean non-porous or semi-porous items (e.g., concrete, metal, glass, solid wood).
•
Disinfect surfaces (optional) and all items that have
been in contact with sewage.
WHY IS MOLD A HEALTH CONCERN?
Indoor mold can trigger allergies or allergy-like symptoms
affecting the upper respiratory system. Although other,
more serious problems may occur if people are exposed
to very high levels of mold, the most common complaints
are:
•
•
•
•
•
•
Nasal and sinus congestion,
Coughing and wheezing,
Difficulty breathing,
Sore throat,
Skin and eye irritation, and
Upper respiratory infections.
Effects of mold exposure can vary widely among different
people. Infants, the elderly, and people with chronic
health problems may be at greater risk than others.
However, long-term exposure to high levels of mold can
be unhealthy for anyone.
Mold may also harm building materials, goods, and furnishings. To protect health and property, mold must be
Continue to look for signs of moisture or new mold
growth. Pay special attention to areas where mold grew
previously. If the mold returns, repeat the cleaning process, and consider using a stronger disinfecting solution.
New mold growth
may mean that the More Mold Information:
contaminated maCenters for Disease Control (CDC):
terial should be
http://www.cdc.gov/mold/
removed.
Be patient about
rebuilding. Wait
until everything is
completely clean
and dry before
refurnishing.
http://www.bt.cdc.gov/disasters/mold/
Minnesota Department of Health:
http://www.health.state.mn.us/divs/eh/i
ndoorair/mold/index.html
http://www.health.state.mn.us/divs/eh/
emergency/natural/floods/mold.html
PWDU Quarterly Update
Page 21
EHKMP UPDATE
Update Regarding the Environmental Health Knowledge Management Project (EHKMP)
Efforts are now in full swing to get the word out that the
EHKMP Action Plan: Part 1 – Food Program (the Action
Plan) has been finalized, and to encourage stakeholders
and partners across the state to become involved in the
implementation of the recommendations and action steps
contained in the Action Plan.
Tools contained in the Action Plan that are receiving a
great deal of attention include:
•
The EHKMP Food Program Data Dictionaries
that identify and define 168 food program data
elements deemed to be of “importance to share
on a statewide basis.” These can be found in
Attachments D, E, and F of the Action Plan;
•
An example EHKMP License Application Template for food establishments that incorporates
all EHKMP food program licensure data elements. This can be found in Attachment G of the
Action Plan.
•
Recommendations and action steps that address
food program data needs which may arise during
a multijurisdictional or emergency event, as well
as those that take a broader approach, focusing
on initiatives to improve the overall sharing of
food program data. These can be found in
Attachment H of the Action Plan.
One other item of note that is receiving attention is a key
short-term action step for harmonizing food program data
sharing initiatives that will be implemented in the first
quarter of 2008. That step will involve the issuance of a
memorandum of understanding (MOU) for signature by
MDH and all local health departments (LHDs).
The MOU calls for MDH and LHDs to jointly endorse the
EHKMP Food Program Data Dictionaries and to implement the use of the Dictionaries whenever practicable so
that future data sharing efforts will be streamlined.
MDH will soon begin the process of auditing databases
and applications maintained by the Environmental Health
Division for conformance with EHKMP Food Program
Data Dictionaries’ content; a number of local heath departments have indicated that they are or will be taking
the same action. Additionally, the example EHKMP
License Application Template is also beginning to be
adapted for use by agencies responsible for the licensure
of food establishments.
Now that the implementation of the first Action Plan to be
developed as part of the EHKMP is underway, the
EHKMP Steering Committee has begun the process of
reviewing drinking water programmatic activities to
determine what the needs are for improving the statewide sharing of drinking water data.
For more information about the EHKMP initiative, please
visit the project’s web site at http://
www.health.state.mn.us/divs/eh/local/knowproj, or feel
free to contact Jennifer Miller at:
[email protected]
_____________________________________________
Two final flood photos….
Minnesota Department of Health
Division of Environmental Health
Environmental Health Services Section
Orville L. Freeman Building
625 North Robert Street
Saint Paul, Minnesota 55155
http://www.health.state.mn.us/foodsafety
Note from April Bogard
During the floods, I worked at the MDH Department
Operations Center. After spending nearly two weeks in
the DOC, I thought I had a pretty good handle on the
issues environmental that health faced during the floods.
But as I read the articles in this issue, more than once I
found myself thinking “I never thought of that” or “we can
work on that for next time” or “this will be so much easier
next time because of what we learned this time around”.
I also felt immense pride in our highly trained, talented
and dedicated workforce.
I hope you learn as much from these articles as I did, and
take the opportunity to review your emergency procedures
in the New Year.
Delegation Agreement update: The latest version of the
delegation agreement was sent to our local partners several weeks ago and is now undergoing review by city and
county attorneys across the state.
Please be sure to share your comments about the agreement with your Advisory Council representative or MDH
staff member (if you haven’t received a copy of the latest
agreement, please contact Deborah Durkin for a copy).
The next meeting of the Delegation Agreement Advisory
Council is January 24.
The Delegation Agreement Advisory Council recommended that working groups be formed to write a best
practices manual to accompany the delegation agreement.
Many of you are already hard at work on one of the nine
chapters. Others are working with the program evaluation
working group to develop procedures for conducting program evaluations.
If you’d like to lend your expertise to these groups, please
contact Deborah Durkin (best practices manual) or
Michael Nordos (program evaluations).
Happy New Year!
April
PWDU Staff Contact Information
Name
Got A Question?
Phone and Email
April Bogard
Supervisor, Partnership and Workforce Development Unit.
Deborah Durkin
Food Safety Partnership, Food Safety Center, UPDATE,
Manual Workgroup, food safety education.
[email protected]
651-201-4509
Tony Georgeson
Rapid inspection software development, maintenance, and
training.
[email protected]
218-332-5167
Mike Kaluzniak
Data systems, Statewide Hospitality Fee, emergency
notification system.
[email protected]
651-201-4517
Steve Klemm
Swimming pool construction, plan review, and inspections.
[email protected]
651-201-4503
Angela McGovern
Administrative support.
Michael Nordos
Training, Evaluation Workgroup, program evaluation.
[email protected]
651-201-5076
[email protected]
651-201-4506
[email protected]
651-201-4511