ANNEX K
INFLUENZA PANDEMIC RESPONSE PLAN
FLORIDA DEPARTMENT OF ENVIRONMENTAL
PROTECTION
Revised
October 2014
Herschel T. Vinyard Jr.
Secretary
DEP Avian/Pandemic Influenza Annex
TABLE OF CONTENTS
INTRODUCTION............................................................................................................. 2
Background ........................................................................................................... 2
Potential Pandemic Scenario ............................................................................... 2
AGENCY PREPAREDNESS .......................................................................................... 3
Mission Critical Functions ................................................................................... 3
DEP Staff Availability .......................................................................................... 4
Tracking and Reporting .............................................................................. 4
Risk Management for Agency Staff .................................................................... 4
Steps for Minimizing Risk Exposure .......................................................... 4
Teleworking and Networking ..................................................................... 5
Implementation of Protocols ................................................................................ 6
Pandemic Wave Profile............................................................................... 6
Implementation ........................................................................................... 7
Internal Communications .................................................................................... 8
PERSONAL AND FAMILY PREPAREDNESS ........................................................... 8
APPENDIX A: Executive Order
APPENDIX B: Website Links for Pandemic Flu Information
INTRODUCTION
Background
An influenza pandemic is an epidemic of an influenza virus that spreads easily
and rapidly from person to person on a worldwide scale and infects a large
proportion of the human population. These pandemics can cause high levels
of mortality.
An influenza pandemic occurs when a new strain of the influenza virus is
transmitted to humans from an animal species -- most recently from pigs and
chickens. Because people have never been exposed to the new virus and thus
lack immunity to it, everyone is susceptible to infection. Further complicating
the situation is that the process of vaccine development can take months;
meanwhile, flu virus strains continually evolve.
In contrast to the regular seasonal outbreaks of influenza, pandemics occur
irregularly. During the past century, there have been three influenza
pandemics. Each of these pandemics has resulted in the infection of
approximately 30 percent of the world’s population. Many experts believe
that the world is overdue for another pandemic. This belief, coupled with the
historically high infection rates, has caused world health officials to urge
governments, businesses and health officials to plan and prepare in earnest for
the consequences of a large-scale flu pandemic.
Potential Pandemic Scenario
In accordance with federal guidance, Florida has been actively planning for a
severe influenza pandemic. The data below, extracted from the Florida
Department of Health’s Pandemic Influenza Appendix, illustrates the potential
severity of health impacts that Florida could face with an influenza pandemic.
To further exacerbate the situation, health experts predict that an influenza
pandemic would probably come in two or three global waves, each lasting
about three months. In any given community, an outbreak would likely last
six to eight weeks.
Characteristic
Percentage
Florida
Attack Rate
30%
5.77 million
Seeking Treatment
60% of cases
3.46 million
Hospitalization Rate
10% of cases
577,000
Case-Fatality Rate
2%
115,400
Note: Data based on the 2008 Florida population estimate of 19.23 million.
With this proliferation of illness, a high rate of absenteeism from the
workplace can most certainly be expected. This absenteeism could lead to
severe economic consequences as well, including a disruption of basic
services and functions in the areas of health care, public education, food
distribution, government services, business and manufacturing, and
transportation.
The following section provides information on how we at the Department of
Environmental Protection (DEP) can prepare for an influenza pandemic.
Preparedness is the key to minimizing the impact that such an outbreak would
have on our operations.
AGENCY PREPAREDNESS
As previously indicated, a pandemic event will result in widespread illness
and associated absenteeism from the workplace. Rates of absenteeism will,
however, depend on the severity of the pandemic. Health officials are
predicting that in the case of a severe pandemic, absenteeism attributable to
illness, the need to care for sick family members and fear of infection may
reach upwards of 40 percent during peak weeks of a community outbreak.
Protective public health measures, such as closing schools coupled with the
need to care for children at home, are likely to increase rates of absenteeism.
Furthermore, there could be challenges getting to and from work if fuel
shortages should occur. During the weeks before and after the peak of the
pandemic, lower rates of absenteeism can be expected.
Mission Critical Functions
The first step in continuing essential agency operations is to identify those
functions that are considered “mission critical.” Thus, DEP convened a
Continuity of Operations Plan (COOP) Planning Team to develop a list of
“mission critical functions” performed by agency staff. (Note that the focus of
the COOP plan is to overall continuity of operations planning specific to
Tallahassee headquarters staff and facilities. Districts are encouraged to
develop individual plans unique to their operations.)
Mission critical functions are defined as those duties and tasks that are of
immediate importance to the health and welfare of Floridians in the event of
extreme crises. Mission critical functions include all duties and tasks directly
associated with the delivery of life-sustaining services and/or the continued
operations of critical state infrastructure.
Please refer to Annex B for a listing and details on the Knowledge, Skills, and
Abilities (KSAs) and staffing plans for each critical function.
DEP Staff Availability
Tracking and Reporting
The Division of Administrative Services should develop a tracking system to
track employee availability during an influenza pandemic. Such a system is
critical not only to track (on a daily basis) employees who are available to
continue agency critical functions but also employees who may be called upon
to fill roles in other agencies or organizations should the need occur. It will be
extremely helpful to the Secretary and Leadership Team to stay apprised of
assets available to meet the DEP mission as well as other situations that may
arise. The system should be organized such that it specifies who is (a)
available to fulfill core functions and (b) otherwise available.
Risk Management for Agency Staff
We are historically accustomed to emergency management issues such as
hurricanes in which staff may be temporarily unable to work in a particular
location due to building or other infrastructure damage. In the words of Craig
Fugate, former Director of Florida’s Division of Emergency Management, “an
influenza pandemic is different in that it is not a threat to the walls of a
building but to the people who maintain those walls.”
The Department will take active measures to protect the health of employees.
Every effort will be made to allow non-essential employees to work from
home; however, this may not be realistic due to system limitations with vast
numbers of people working from home. The Secretary has the authority to
grant up to two days of administrative leave to employees in the absence of an
Executive Order by the Governor or approval by the Department of
Management Services. Given that the pandemic will come in waves, longer
periods of administrative leave may be necessary in which case a series of
Executive Orders would likely be forthcoming granting administrative leave
to non-essential personnel.
Steps for Minimizing Risk Exposure
Flu viruses are spread via respiratory droplets caused by coughing and
sneezing. They usually spread from person to person, though sometimes
people become infected by touching something with the flu virus on it and
then touching their mouth, nose, or eyes. Most healthy adults may be able to
infect others beginning one day before symptoms develop and up to five days
after becoming sick. That means that you can pass on the flu to someone else
before you know you are sick, as well as while you are sick. Please carefully
review the suggestions below to help prevent or minimize illness.
To help stop the spread of germs, exercise care in:
• Covering your mouth and nose when you sneeze or cough.
Cough or sneeze into a tissue and then throw it away. Cover your cough
or sneeze if you do not have a tissue. Then, clean your hands, and do so
every time you cough or sneeze.
• Cleaning your hands often.
Wash your hands with soap and warm water by rubbing your hands
vigorously together and scrubbing all surfaces. Wash for 15 to 20
seconds. It is the soap combined with the scrubbing action that helps
dislodge and remove germs. When soap and water are not available,
alcohol-based disposable hand wipes or gel sanitizers should be used. If
using a gel, rub the gel on your hands until they are dry. The gel doesn't
need water to work; the alcohol in the gel kills germs that cause colds and
the flu.
• Cleaning frequently touched surfaces with a disinfectant.
An influenza virus can survive for extended periods of time (>24 hours)
on surfaces such as stainless steel and plastics. Use a commercial
disinfectant or bleach solution to clean surfaces that harbor germs and
bacteria, including telephones, desktops, computer keyboards, microwave
door handles, water fountain handles, fax machines, photocopiers, door
handles, and other common surfaces.
• Avoiding touching your eyes, nose or mouth.
Germs are often spread when a person touches something that is
contaminated with germs and then touches their eyes, nose, or mouth.
Germs can live for a long time on surfaces like doorknobs, desks, and
tables.
• Avoiding shaking hands.
You may want to avoid shaking hands during an influenza outbreak
because of the risk of contracting or spreading the virus.
• Staying home when you are sick and checking with a health care provider
when needed.
When you are sick or have flu symptoms, stay home, get plenty of rest,
and check with a health care provider as needed.
Teleworking and Networking
During the course of the pandemic, it may become necessary for agency staff
to telework as a measure of quarantine. However, we must be mindful that in
the face of a pandemic, there will be numerous organizations similar to DEP
relying on the Internet to access their systems, leading to diminished capacity
for access. DEP currently has the following system capabilities:
•
The capacity for users to concurrently access the Department’s e-mail
system via a secure connection over the Internet is, at maximum, in the
range of 100 to 200 users.
•
DEP can support about 25 dial-in modem users, though the user will incur
long distance charges if not within the Tallahassee area. This legacy
system is slow and with the decrease in the number of people with dial-up
modems, is not considered an ideal method for connecting. The maximum
modem speed is 56Kb.
•
Regardless of the speed of your home computer connection, you can
access the Department’s Outlook e-mail through an Internet browser.
With thousands and perhaps millions of people suddenly teleworking at once
during a pandemic, however, the telecommunications and Internet
infrastructures will be severely strained and likely overwhelmed early in the
pandemic. Some experts say that the extra traffic could render the Internet
unusable within two to four days of an outbreak. Given the relative scarcity
of such resources during an emergency, it may become necessary to limit the
use of these resources to DEP personnel who are performing mission critical
functions and/or to schedule access.
The telephones at DEP Headquarters (in the Carr, Douglas, Bob Martinez
Center and Capital Center [Beaches and Coastal Systems] Buildings) are
capable of being forwarded to home or cell phones. An employee (or coworker) must forward calls from their desk to the number where the employee
wants it to ring. The Division of Administrative Services is not aware of a
limit to the number of phones that can be forwarded. For field locations such
as regulatory and park district offices, managers must assess their individual
phone systems to determine if calls can be forwarded or if a message directing
the caller to a cell or home telephone should be left on DEP phones.
Implementation of Protocols
Pandemic Wave Profile
As noted above, an influenza pandemic will lead to widespread absenteeism
from the workplace. As government advisors are predicting a 40 percent
absenteeism rate at the peak of a pandemic (day 30), this translates to
approximately 1,400 employees out of work in our agency of over 3,500
employees. Again, remember that this pandemic will likely come in two or
three waves; the following graphic illustrates DEP absenteeism just during the
first wave.
Text
Text
Text
Text
Text
PANDEMIC
INFLUENZA
DEP ABSENTEEISM
Number of Absentees
Text
1500
1125
750
60
50
40
30
30
20
10
0
375
DAYS
Implementation
Based on recommendations from the State Health Officer and the Division of
Emergency Management, the Secretary and Leadership Team will make the
determination to activate DEP’S COOP Plan as needed and provide specific
instructions to agency staff to include:
• Conducting meetings within offices/units to discuss the plan with staff to
ensure that everyone has a thorough understanding of the plan’s elements and
will be ready to take appropriate steps in response to an influenza pandemic.
• Appointing a person (with backups) within offices/units to be responsible for
tracking and reporting on staff availability.
• Ensuring phone trees that were developed as part of hurricane and other
emergency planning are current and develop a protocol for implementing the
phone tree.
• Exercising preventative health measures.
• If not already in place, developing a policy for employees to telework from
home.
• Developing an Order of Succession of Authority (similar to Annex D of
DEP’s Continuity of Operations Plan) within each office/unit.
• Developing a protocol for backup support/replacements for those not able to
perform critical functions.
With COOP activation, the agency will immediately put into action the measures
specified in this plan and again, appropriate guidance will be provided by the
Secretary and Leadership Team. The measures that will receive immediate
attention are:
• Putting phone trees into effect.
• Daily tracking and reporting of staff availability.
• Daily assessment of performance of agency critical functions.
• Instructions on teleworking.
• Frequent communications to keep staff informed regarding workplace
considerations such as office closures, issuance of Executive Orders, access to
Internet email, etc.
Internal Communications
Through the Department’s Communications Office, the agency will ensure
communication of accurate, coordinated and timely information about status of
the pandemic. The Secretary and Leadership Team will provide guidance for
actions appropriate to the particular stage of the pandemic.
•
•
•
Information will be disseminated covering pandemic fundamentals; e.g.,
signs and symptoms of influenza, modes of transmission, and personal and
family protection and response practices.
Media coverage will be monitored to follow the development of the
pandemic.
Communiqués will be sent to agency staff to dispel rumors and
misinformation and provide accurate information about the pandemic; and
to promote awareness of the agency’s influenza continuation of operations
plan.
PERSONAL AND FAMILY PREPAREDNESS
Taking early steps to plan and prepare for this potential pandemic could
help lessen the impact of an influenza pandemic on you and your family.
To assist individuals and families in protecting their health and safety, the
following list of suggestions should be followed to avoid exposure to the
flu virus and lessen the impact of a pandemic. Some of these suggestions
were provided in a previous portion of this document; however, they bear
repeating.
o To avoid getting the flu, limit exposure to people who are sick and try
not to touch eyes, nose, or mouth because germs are often spread in
this way.
o Wash hands frequently with soap and water and encourage family
members to do the same.
o When experiencing flu-like symptoms, routinely cover nose and
mouth with a tissue when coughing or sneezing and then throw the
tissue away after use.
o If infected with the flu virus or upon exposure to a family member or
co-worker with the flu, stay at home, if possible. Note that the virus is
contagious for at least 24 hours prior to feeling ill.
 The Centers for Disease Control and Prevention (CDC)
recommends that people with influenza-like illness should stay
home for at least 24 hours after their fever is gone (without the
use of fever-reducing medicine). (A temperature of 100º
Fahrenheit or greater constitutes a fever.) Further, the CDC
recommends this 24-hour exclusion period regardless of
whether or not antiviral medications are used.
o If caring for an infected family member, strictly adhere to medical
advisories on how to limit exposure to the disease. This is likely to
include protective clothing, such as latex gloves and perhaps masks,
plus systematically disinfecting all surfaces potentially exposed to
virus-laden droplets, such as eating utensils, doorknobs, clothes and
bed sheets, etc.
Steps to plan and prepare for a pandemic:
o Store a two-week supply of water and food (see examples below).
During a pandemic, getting to the store may be difficult and stores
may run short of supplies. It will therefore be important to have extra
supplies on hand. This can also be useful if power outages occur,
which have been predicted due to staff shortages at power plants.
o Have any nonprescription drugs and other health supplies on hand (see
examples below), including pain relievers, stomach remedies, cough
and cold medicines, fluids with electrolytes, and vitamins.
o Talk with family members and loved ones about how they would be
cared for if they got sick, or what will be needed to care for them at
home.
o Volunteer with local groups to prepare and assist with emergency
response.
Items that should be on hand for an extended stay at home:
Examples of food and non-perishables
Examples of medical, health, and
emergency supplies
 Ready-to-eat canned meats, fruits,
vegetables, and soups
 Protein or fruit bars
 Dry cereal or granola
 Peanut butter or nuts
 Prescribed medical supplies such as
glucose and blood-pressure
monitoring equipment
 Soap and water, or alcohol-based hand
wash





Dried fruit
Crackers
Canned juices
Bottled water
Canned or jarred baby food and
formula
 Pet food
 Medicines for fever, such as
acetaminophen or ibuprofen
 Thermometer
 Anti-diarrhea medication
 Vitamins
 Fluids with electrolytes
 Cleansing agent/soap
 Flashlight
 Batteries
 Portable radio
 Manual can opener
 Garbage bags
 Tissues, toilet paper, disposable
diapers
DEP Avian/Pandemic Influenza Annex
Appendix A
APPENDIX A
DRAFT EXECUTIVE ORDER
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DEP Avian/Pandemic Influenza Annex
Appendix A
BEFORE THE STATE OF FLORIDA
DEPARTMENT OF ENVIRONMENTAL PROTECTION
In re:
State of Florida – Pandemic Influenza
___________________________________/
EMERGENCY FINAL ORDER
Under section 120.569(2)(n), Florida Statutes, the State of Florida Department of
Environmental Protection (the Department) enters the following Emergency Final Order,
including findings of fact and conclusions of law, in response to emergency conditions
caused by a potential Pandemic Influenza.
FINDINGS OF FACT
1. Avian influenza is a disease of birds caused by one of many different subtypes
of avian influenza virus, including the H5N1 subtype that is currently a source of
growing concern among public health officials.
2. Health Officials believe the current strain of H5N1 virus has acquired the
ability to transmit easily from human to human; genetic mutations could result (or has
resulted) in pandemic influenza. Pandemic influenza is a global epidemic of influenza
that occurs when a new influenza virus appears in humans and then spreads easily and
rapidly from person to person worldwide. A disease outbreak of this magnitude would
likely have severe social, economic and political consequences, including a disruption of
basic services and functions in the areas of health care, public education, food
distribution, government services, business and manufacturing, and transportation.
Preparedness is the key to minimizing the impact that such an outbreak would have on
operations.
A-2
DEP Avian/Pandemic Influenza Annex
Appendix A
3. The Department finds that this potential for pandemic influenza is threatening
the public health, safety, and welfare throughout the State of Florida.
CONCLUSIONS OF LAW
4. Section 120.569(2)(n), Florida Statutes, gives the agency head the authority to
issue an immediate final order when he finds that an immediate danger to the public
health, safety, or welfare requires immediate action, and the order recites with
particularity the facts underlying that conclusion.
5. Based on the findings recited above, I find and conclude that an emergency
caused by the pandemic influenza requires an immediate order of the Department to
protect the public health, safety, and welfare.
THEREFORE, IT IS ORDERED:
1.
2.
3.
4.
5. The Department issues this Emergency Final Order solely to address the
emergency that would be caused by the pandemic influenza. This order shall not be
construed to authorize any activity within the jurisdiction of the Department except in
accordance with the express terms of this order.
6. Nothing in this order shall eliminate the necessity for obtaining any other
federal, state, or local permits or other authorizations that may be required.
7. This Emergency Final Order shall take effect immediately and shall expire on
_____________.
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DEP Avian/Pandemic Influenza Annex
Appendix A
NOTICE OF RIGHTS
Any person substantially affected by this order has the right to seek judicial
review of it under section 120.68 of the Florida Statutes, by filing a notice of appeal
under rules 9.110 and 9.190 of the Florida Rules of Appellate Procedure, with the Clerk
of the Department in the Office of General Counsel, Mail Station 35, 3900
Commonwealth Boulevard, Tallahassee, Florida 32399-3000, and by filing a copy of the
notice of appeal accompanied by the applicable filing fees with the appropriate district
court of appeal. The notice of appeal must be filed within thirty days after this order is
filed with the Clerk of the Department.
DONE AND ORDERED this ___ day of _______________ 200___.
STATE OF FLORIDA DEPARTMENT
OF ENVIRONMENTAL PROTECTION
___________________________
MICHAEL W. SOLE
Secretary
3900 Commonwealth Boulevard
Tallahassee, Florida 32399-3000
Telephone 850/245-2011
FILED on this date pursuant to
Section 120.52, F.S., with the
designated Department Clerk,
receipt of which is hereby
acknowledged.
___________________ __________
Clerk
Date
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DEP Avian/Pandemic Influenza Annex
Appendix A
CERTIFICATE OF SERVICE
I CERTIFY that a true copy of the foregoing Emergency Order
was mailed to __________________________________on this ____ day of
___________, 200__.
STATE OF FLORIDA DEPARTMENT
OF ENVIRONMENTAL PROTECTION
________________________________
Senior Assistant General Counsel
3900 Commonwealth Boulevard
Mail Station 35
Tallahassee, Florida 32399-3000
Tel. (850) 245Fax. (850) 245-
A-5
APPENDIX B
Website Links for Pandemic Flu Information
Helpful websites in which to find up-to-date information about the avian influenza
pandemic:
Florida Department of Health
www.doh.state.fl.us
U.S. Pandemic Flu
www.pandemicflu.gov
Health and Human Services Pandemic Influenza Plan
www.hhs.gov/pandemicflu/plan