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1 Pandemic Sub-Plan
Pandemic Sub-Plan
A sub-plan of the Manningham Municipal Emergency Management Plan
Version 2.1 TRIM D14/34199
As endorsed by the MEMPC 5 February 2016
Acknowledged by Council 15 March 2016
Last Audited on 25 May 2016 (VICSES)
2 Pandemic Sub-Plan
TABLE OF CONTENTS
Endorsement 3
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3 Pandemic Sub-Plan
Endorsement
This plan was formally adopted and endorsed by:
4 Pandemic Sub-Plan
1. Introduction
The Pandemic Plan has been produced as a sub-plan of the Municipal Emergency Management
Plan. It is essential that a pandemic emergency has its own tailored response and recovery
procedures, given the unique set of issues that set it apart from any other emergency.
The internationally accepted definition of a pandemic is: 'an epidemic occurring worldwide, or over a
very wide area, crossing international boundaries and usually affecting a large number of people’
(Last, 2001).
A pandemic is unpredictable and must be effectively planned for at all levels of government, business
and community to ensure that adequate response and recovery is implemented should a pandemic
enter Australia.
This plan intends to cover all types of potential pandemic events and also has relevance and
application to other public health emergencies, such as biological terrorism, chemical spills and
nuclear contamination, or hazards secondary to emergencies and disasters, such as cholera
outbreaks following floods.
If a pandemic event occurs, response and recovery will be led by either Federal or State
Government. Local government will be a key support agency under the direction of the Federal or
State departments.
2. Aims
To clarify Council’s role in a pandemic emergency.
To provide an effective recovery plan in the event of public quarantine activation.
To ensure that Council provides appropriate support to manage a pandemic event, as directed, by government.
3. Objectives
Prevent and reduce the spread of a pandemic event through Council owned facilities and events.
Complement the municipal Business Continuity Plan.
Assist in the provision of mass vaccination services to the community, where a pandemic vaccine is available.
Assist the Department of Health to effectively disseminate health messages to the community, including Manningham staff.
4. Pandemic phases
Inter-pandemic (period between pandemics): Between pandemics the Alert phase may be triggered e.g. influenza, caused by a new subtype that has been identified in humans. Increased vigilance and careful risk assessment, at local, national and global levels, are characteristic of this phase. If the risk assessments indicate that the new virus is not developing into a pandemic strain, a de-escalation of activities towards those in the inter-pandemic phase may occur.
5 Pandemic Sub-Plan
Pandemic: This is the period of global spread of a human virus e.g. human influenza, caused by a new subtype. The movement between the inter-pandemic, alert and pandemic phases may occur quickly or gradually, as indicated by the global risk assessment, principally based on virological, epidemiological and clinical data.
Transition: As the assessed global risk reduces, de-escalation of global actions may occur, and
reduction in response activities or movement towards recovery actions by countries may be
appropriate, according to their own risk assessments.
Australian
phase
Description
ALERT A novel virus with pandemic potential causes severe disease in humans who
have had contact with infected animals. There is no effective transmission
between humans. The novel virus has not arrived in Australia.
DELAY Effective transmission of novel virus detected overseas in:
- Small cluster of cases in one country overseas; or
- Large cluster(s) of cases in only one or two countries overseas; or
- Large cluster(s) of cases in more than two countries overseas.
A novel virus not detected in Australia.
CONTAIN Pandemic virus has arrived in
Australia causing a small number
of cases and/or a small number
of clusters.
PROTECT A pandemic virus which is mild
in most but severe in some and
moderate overall is established
in Australia
SUSTAIN Pandemic virus is established in
Australia and spreading in the
community.
CONTROL Customised pandemic vaccine
widely available and is beginning
to bring the pandemic under
control.
RECOVER Pandemic controlled in Australia but further waves may occur if the virus drifts
and/or is re-imported into Australia.
6 Pandemic Sub-Plan
5. History
Australia has a history of pandemic events, and epidemic events that have had the potential of
becoming pandemics. In the past two centuries pandemics; and potential pandemic events, have
included the spread of a variety of influenza viruses, plague, smallpox, polio, scarlet fever, measles,
Encephalitis Lethargica and HIV/AIDS. The table below provides a general overview of these events:
PERIOD DISEASE CATEGORY CONTROLS IMPLEMENTED # OF DEATHS
1830 – 1880 Scarlet
Fever
Early Childhood
epidemic
- School attendance restrictions - Cleansing, fumigation of public
places and affected homes
Approx 12,000
(Australia)
(3,225 in Vic) 87% under 10
years old
1836 – 1838 Influenza Pandemic - Public health messaging Not indicated
1857 – 1860 Influenza Pandemic - Public health messaging Not indicated
1894 - 1930 Plague
Local epidemic with
pandemic potential (Worldwide pandemic)
- Formal isolation and quarantine implemented
- Vector (rat) control programs - Area quarantine, fumigation,
cleansing, demolition and special burials.
607 cases
resulting in 159
deaths
1897 – 1940 Smallpox
Local epidemic with
pandemic potential (Worldwide pandemic)
- Federal quarantine imposed - Mass vaccination via priority
listing (61,000 vaccines) - Cleansing and fumigation
2,900 cases
resulting in 44
deaths
1889 – 1891 Influenza Pandemic
- Isolation and quarantine procedures
- Public education - Home quarantines
130,000 cases
resulting in 2,500
deaths
1903 – 56 Polio Epidemic with
pandemic potential - Vaccination - Public education
2,000 deaths
recorded
1918 – 1919 Influenza Pandemic
- Border isolation - Public wearing of masks - Closure of public places and
events
14,000 deaths
1918 – 1928 Encephalitis
Lethargica
Epidemic with
pandemic potential - Home isolations 600 deaths
1957 - 58 Influenza Pandemic - Wearing of masks - Public education
800 deaths
1968 – 1969 Influenza Pandemic - Wearing of masks - Public education
1,000 deaths
1982 –
current HIV/AIDS Pandemic
- Public education - OH&S procedures
23,033 cases
resulting in 5,116
(in Australia as at
2006)
Source: ABS 2006; EMA and Curson, P - University of Sydney
5.1. Influenza pandemic
Seasonal influenza viruses circulate and cause illness in humans every year. These viruses tend to
cause deaths mainly in elderly people, immune-compromised people, pregnant women, babies and
people with chronic underlying medical conditions. However, the pandemic influenza, a new subtype,
is much more deadly due to the population not being previously exposed and therefore being much
more susceptible. A pandemic influenza virus will have the ability to move effectively and rapidly
from human to human, making containment very difficult.
7 Pandemic Sub-Plan
History demonstrates that influenza pandemics are moderately rare, but when they occur will
generally be very deadly. The following table provides a summary of known influenza pandemic
events worldwide:
Pandemic year of emergence and common name
Area of origin
Influenza A virus subtype (type of animal genetic introduction/recombination event)
Estimated case fatality
Estimated attributable excess mortality worldwide
Age groups most affected
1918 “Spanish flu”
Unclear H1N1 (unknown) 2–3% 20–50 million Young adults
1957–1958 “Asian flu”
Southern China
H2N2 (avian) <0.2% 1–4 million All age groups
1968–1969 “Hong Kong flu”
Southern China
H3N2 (avian) <0.2% 1–4 million All age groups
2009–2010 “influenza A(H1N1) 2009”
North America
H1N1 (swine) 0.02%
100 000–400 000 Children and young adults
6. Pandemic Application in Australia
It has been predicted that a pandemic would last between 7 to 10 months in Australia, and have a
substantial and ongoing effect on our social, health and economic systems.
The World Health Organisation (WHO) Director General will declare a pandemic according to the
phases: inter-pandemic, alert, pandemic, transition and inter-pandemic. These phases reflect the
WHO’s risk assessment of the global situation regarding each influenza virus that is infecting humans
with pandemic potential. The Commonwealth Chief Medical Officer (CMO) of the Federal
Department of Health and Ageing (DoHA) will designate the Australian phases, with advice from an
expert advisory group. The Australian phases, Alert, Delay and Protect, operating in parallel with
Contain, Sustain, Control, and Recover, will describe the virus situation in Australia. Given that the
WHO and Australian phases differ, they will not always align.
The phases are intended to guide actions, in order to ensure that the appropriate level of prevention,
response or recovery is implemented. Any response must be proportional, hence the PROTECT
phase was added during the pandemic (H1N1) in 2009. This phase recognises that some influenza
viruses may occur at a less severe level (local epidemic or less) than others, and allows for a
reduction in community disruption during disease control interventions. Although the phases assume
that an occurrence of influenza will be the main cause of a pandemic event, the structure is flexible
enough to be adapted to other biological emergencies. This is demonstrated in the State’s response
planning to the worldwide Ebola outbreak in 2014, which is outlined in the Victorian Ebola Virus
Disease Response Plan (September 2014).
A pandemic virus is unlikely to originate in Australia and will therefore allow the country more time
to monitor and prepare for the disease to delay its entry, attempt to contain on arrival, and limit its
spread. This can enable advanced preparation and allow greater understanding of the nature and
severity of a new virus before it enters Australia.
8 Pandemic Sub-Plan
7. Disease Description- Current Threats
Although Australia has a history of a broad range of pandemic disease types, the two current main
concerns are influenza and Ebola.
7.1. Influenza
The Victorian Health Management Plan for Pandemic Influenza (2014) defines that an influenza
pandemic occurs when a new influenza virus emerges and spreads around the world, and most
people do not have immunity.
The Plan further defines influenza as a viral illness that attacks the respiratory tract (nose, throat and
lungs) in humans. The virus is transmitted in most cases by droplets, but it can also be transmitted
in certain situations by direct contact or aerosols. Although mild cases may be similar to an upper
respiratory tract infection, influenza is typically much more severe, usually comes on suddenly, and
may include fever, headache, tiredness, cough, sore throat, nasal congestion and body aches. It can
result in complications such as pneumonia. Seasonal influenza occurs annually and primarily causes
complications and/or death in people aged over 65 years and those with chronic medical conditions.
The vast majority of people exposed will recover and develop immunity to that strain of virus.
The Department of Health and Human Services (Victoria) states that since 2003, documents
produced by the WHO have stated that an influenza pandemic occurs ‘when a new influenza virus
appears against which the human population has no immunity, resulting in several, simultaneous
epidemics worldwide with enormous numbers of deaths and illness’ However, following the
emergence of influenza A(H1N1)pdm09, initially referred to as ‘swine flu’, this description became
controversial and was amended as evidence indicated that the majority of cases had a generally
mild clinical course and the presence of protective immunity in older people, and questions were
raised as to whether influenza A(H1N1) constituted a pandemic at all.
7.2. Ebola
In March 2014, an Ebola Virus Disease outbreak was declared by the WHO. The outbreak began in
West Africa with nearly all cases caused by human-to-human contact.
Ebola is transmitted through direct contact with the blood or body fluids of an infected person or
animal (including unprotected sex up to 3 months post infection). Ebola is not transmitted through
the air. Contact and droplet precautions are sufficient to prevent transmission.
In case of a suspected or confirmed case of Ebola in Victoria the Department of Health has produced
the Victorian Ebola Virus Disease Response Plan (September 2014). As per previous emergency
management arrangements, the role of local government in an Ebola pandemic involves assistance
by local Environmental Health Officers (EHOs) and other Council staff if health sector resources
become strained due to an increase in confirmed cases. EHOs may also provide advice and
verification that a home where a person may have been ill has undergone appropriate cleaning in
accordance with infection control procedures.
9 Pandemic Sub-Plan
8. Policy Context
8.1. Global plans and framework
Pandemic Influenza Risk Management - WHO Interim Guidance (2013)
The International Health Regulations (2005) - signed by Australia and aims "to prevent, protect against, control and provide a public health response to the international spread of disease in ways that are commensurate with and restricted to public health risks, and which avoid unnecessary interference with international traffic and trade”.
The Pandemic Influenza Preparedness Framework (PIP) - provides for the sharing of influenza viruses and access to vaccines and other benefits to implement a global approach to pandemic influenza preparedness and response.
8.2. Commonwealth plans
National Action Plan for Human Influenza Pandemic 2011, encompassing the National Influenza Pandemic Public Communications Guidelines - outlines the roles and responsibilities of the Commonwealth, States and Territories and local governments and the coordination arrangements for the management of a human influenza pandemic and its consequences in Australia.
Australian Health Management Plan for Pandemic Influenza (AHMPPI) 2009 -provides the overarching framework for all pandemic preparedness and response activities within the health sector and outlines the Australian phases.
Critical Infrastructure Resilience Strategy - planning to maintain continuity of the food supply during significant national emergencies.
Health Aspects of Chemical, Biological and Radiological (CBR) Hazards (2000) - This manual has been issued in response to a recognised need to have medical information widely available to the health and medical community for the treatment of persons affected by CBR hazards.
8.3. Victorian plans - Department of Health and Human
Services
Victorian Ebola Virus Disease Response Plan (2014)
Victorian Health Management Plan for Pandemic Influenza (2014)
Victorian Action Plan for Human Influenza Pandemic (June 2012)
Victorian Public Health & Wellbeing Plan 2011 – 2015.
State Health Emergency Response Plan (third edition, 2013)
Victorian Health Priorities Framework 2012-2022: Metropolitan Health Plan
Community Support and Recovery Sub Plan - Victorian Department of Human Services March 2008
Victorian Government ICT Strategy 2014 - 2015
8.4. Regional plans
Eastern Region Local Government Regional Pandemic Plan
10 Pandemic Sub-Plan
8.5. Municipal plans
Municipal Emergency Management Plan
Manningham Healthy City Strategy & Action Plan 2017-2021
9. Pandemic Emergency Measures
Health and its support systems are vulnerable to loss and disruption from a variety of acute hazards,
including:
1. Health events, such as pandemic influenza, chemical spills and nuclear contamination
2. Hazards secondary to emergencies and disasters, such as cholera outbreaks following floods
3. System destabilises, such as earthquakes or acute energy shortages.
The management of the risks associated with such hazards is central to the protection and promotion
of public health.
The Department of Health and Human Services (DHHS) State Health Emergency Response Plan
(SHERP) outlines the policies, procedures and emergency management arrangements for public
health emergencies, including infectious disease incidents. Under the SHERP, the responsibility for
controlling infectious disease emergencies lies with the Communicable Diseases Prevention and
Control Unit (CDPCU) of DHHS and, in particular, with the Chief Health Officer (CHO) as the Incident
Controller (IC).
For an influenza pandemic, the Victorian Government has a Victorian Influenza Pandemic Plan
(2014), which sets out the actions undertaken at various severity levels during an influenza
pandemic.
The decision to respond relies on transmissibility, severity, mortality rates, demographic/community
impacts and rate of change. Additional emergency management arrangements will also be put in
place as per the Emergency Management Manual Victoria (EMMV), to ensure:
1. Clarity about the command and control responsibilities for the incident
2. Management and control of the incident are adequately resourced
3. Adequate communication occurs throughout the incident; specifically within DHHS and other Government agencies, external stakeholders and the community.
The State Health Emergency Response Plan (SHERP) will be used to facilitate multi agency
response. As outlined in EMMV, the State Emergency Response Coordinator is the Chief
Commissioner of Police, whose role it is to coordinate all activities of all agencies with roles and
responsibilities in an emergency. The SHERP is available via the Department of Health and Human
Services website.
The role of local government, as outlined in the National Action Plan, is to:
Determine and maintain pandemic influenza policies and plans consistent with the role of local government and complementing relevant state, territory and national policies and plans
Maintain business continuity plans to enable the delivery of local government essential services
11 Pandemic Sub-Plan
Support national, state and territory response and recovery by representing the needs of local communities and contributing to their continuing viability
Support state and territory emergency management frameworks
Work with business and the community
In partnership with state and territory governments, inform the public of planning and preparation under way and maintain information to the public during the response to, and recovery from, an influenza pandemic
Work with their respective state and territory government to develop public education material and ensure effective ‘bottom up’ information exchange is undertaken.
10. Business Continuity Plan (BCP)
Council’s BCP will be kept entirely separate from this plan, but will operate in parallel during a
pandemic emergency, to ensure Manningham City Council, as an organisation, can continue to
operate, serve the community and implement the pandemic plan.
11. Community profile
This information is contained in Part 2 - Area Description and Risk Assessment, of the Municipal
Emergency Management Plan (MEMP). It is necessary to ensure that the MEMP is checked before
any additional information is sought.
12. Communication
Pandemic messaging will be produced by the Department of Health and Human Services in
consultation with the Australian Government and communicated to Council via ‘Situation Reports’.
These reports will detail the number of cases, dedicated flu clinics, school closures, border control,
business information, and Australia’s current pandemic phase.
Public messaging will give advice on preventing and containing the pandemic, number of deaths and
areas worst affected. National announcements regarding key milestones will be made by the Prime
Minister (or delegate), following consultation with states and territories (through the National
Pandemic Emergency Committee) and relevant commonwealth agencies.
At the municipal level, communication procedures are outlined in the Communications and Media
Sub-Plan (TRIM D14/88708). Council’s Communications and Marketing Unit is responsible for both
community and internal staff pandemic communications, supported by the Social & Community
Services and Health & Local Laws Units. All Council service units will have a responsibility to
distribute approved information as provided by Communications and Marketing, e.g. health to
restaurants, engineers to contractors, social and community to community groups and CALD
community leaders, etc. Council’s Communication and Marketing Unit will prepare a script based on
DHHS advice, for customer service staff or other Council staff who may take calls from the general
public seeking help and information during a pandemic.
12 Pandemic Sub-Plan
12.1. Key Stages of Communication
STAGE COMMUNICATION
1 – Proactive communication
Planning and proactive
communication
Preparation of key messages
Focus on promoting facts/ key information of pandemic in Victoria, contact key agencies and prevention through hygiene measures
Internal communication and briefings
Community and staff education
Information/ updates
Liaison with Eastern Metropolitan Region (EMR) councils, Municipal Association of Victoria (MAV), DHHS and health agencies.
2 – Pandemic management
information
Influenza case/s in
Manningham – response and
containment
Regular updates: information and advice to staff and community/ with revised key messages to cater for new information
Messages to focus on communicating services available/ clarifying Council’s role and referral to appropriate agencies
Communicating actions to ensure business continuity
Communicating occupational health & safety measures for staff
Liaison with EMR councils, MAV, DHHS and health agencies.
3 – Crisis communication
Widespread cases and high
service demands
Regular updates: information and advice to staff and community/ with revised key messages to cater for new information (e.g. vaccinations, use of masks, staffing & service arrangements etc.)
Communications of temporary closures of facilities/ sporting events/mass gathering activity
Messages to focus on communicating services available/ clarifying Council’s role and referral to appropriate agencies
Communicating actions to ensure business continuity
Off-site communications
Liaison with EMR councils, MAV, DHHS and health agencies.
13 Pandemic Sub-Plan
12.2. Communication Methods
INTERNAL EXTERNAL
Councillor briefing
EMT briefing
Manager/ Coordinator briefing
Staff briefing
M-focus articles
DL brochure – attached to payslip
FAQs
Intranet page
All users emails
Posters
Website page
Media release
Fact sheets and posters
Advertising – Leader newspaper
Local radio briefs
Podcast
Targeted mail drops
Multi-lingual communication
13. Control strategies
This plan identifies a number of strategies that may need to be undertaken in the event of a
pandemic. Depending on the transmission mode of the agent, varied control measures will be
implemented to prevent/limit transmission. During a pandemic, agencies within the Manningham
municipality may be required to assist with control strategies appropriate to the nature of the
contagion. This will be handled within existing emergency management arrangements; incorporating
both response and relief arrangements as detailed in the MEMP (TRIM D13/11009).
13.1. Social distancing (Isolation)
Social distancing (isolation) can minimise the risk of transmission. Advice will be forwarded to staff
based on State information, including suggestions to minimise contact.
13.2. Limiting mass gatherings
Mass gatherings have the capacity to spread viruses among participants. Events/ places that may
be considered as mass gatherings include schools/education facilities, concerts, large sporting
events, citizenship ceremonies, festivals, shopping centres, cinemas, nightclubs and places of
worship.
In the event of a pandemic, mass gatherings organised within or by the municipality will be reviewed
in line with the DHHS advice. The DHHS will determine the approach based on the particular nature
of the contagion and advise private business and event organisers of their obligation to close and
cancel events. Council’s Social & Community Service Unit will make the decision to cancel council
managed events.
14 Pandemic Sub-Plan
Municipal Events
Australia Day Carols by Candlelight
Cinema Under the Stars
Dapper Day Out (Senior's Afternoon Tea
Dance)
Epic Youth Festival Family Festival at Finns
Healthy Lifestyles Week Heritage Week Manningham
Iranian Society of Vic (Iranian Fire Festival)
Warrandyte Festival Mullum Mullum Festival
Passion Play Pottery Expo
Reconciliation Week Program Senior's Multicultural Gathering
Spring Outdoor (Environmental Events) Templestowe Village Festival
View the events calendar here.
13.3. Work from home/ restricting work place entry
As a minimum, on declaration of the Australian ‘Contain Phase’, agencies will, via their BCP,
determine the need to advise staff and visitors not to attend if they have symptoms of the pandemic
or have been in contact with someone who has/d symptoms of the pandemic.
Employees shall be advised not to come to work when they are feeling unwell, particularly if they are
exhibiting symptoms associated with the pandemic. Unwell employees will be advised to see a
doctor and to stay at home until symptom free and medical clearance has been provided.
Staff who have recovered from the pandemic related illness are unlikely to be re-infected (most will
have natural immunity) and will be encouraged to return to work as soon as medical clearance is
provided. In extreme cases, it may be desirable that staff do not gather in the same place. In this
instance, work from home (remote) practices may need to be authorised and then supported by the
IT department.
13.4. Council Visitors
In order to prevent and limit the likelihood of pandemic transmission between Council staff and
visitors, the following actions should be undertaken. The following procedures are currently in place
at both Council offices, and will remain even in inter-pandemic times.
Hand sanitiser dispensers, laminated health/ information (staff must wash hands), visitor use sanitisers, posters and poster frames. P2 masks, individual sachet wipes, bacterial wipes, aprons and gloves are available in storage
Stringent cleaning procedures and the use of anti-bacterial cleaning products
Enhanced cleaning and servicing of air conditioners
Sanitary waste management, including the installation of foot pedal operated lidded bins
A dedicated budget allowance for essential supplies In response to pandemic extra precautions would be taken to prevent infection. These include:
Reducing staff travel and using other non-contact methods of communication
Implementing the Visitor Policy to restrict entry to the public and contractors into Council Offices
Cancelling/ relocating mass gatherings, such as festivals
Stock piling cleaning products
15 Pandemic Sub-Plan
Implementing enhanced cleaning services
Distributing face masks to ADSS home workers
Distributing hand sanitiser and alcohol wipes
Enhanced cleaning and servicing of air conditioners. Or switching off/ isolating air conditioning in favour of providing natural ventilation.
Some of these actions will only be implemented if the pandemic is particularly infectious or severe.
13.5. Virtual Municipal Emergency Coordination Centre
(MECC) operations
The Manningham MEMP details arrangements for the normal operation of the MECC. Should social
isolation be considered as the most appropriate control strategy by the control agency, the MECC
can still be managed by staff remotely logging onto Crisisworks. Communication via telephone rather
than gathering in the predetermined MECC facility should also be considered. As a pandemic is likely
to be long running, consideration should be given to incorporating the MECC role into a person’s
normal role. The long-running nature of pandemic also means the MECC may not need permanent
full staffing.
13.6. Municipal waste collection arrangements
This plan complements Council’s waste contract arrangements by ensuring that all current contracts
include the provision for pandemic planning. The current municipal waste collection contractor will
work with DHHS and Environmental Protection Agency (EPA) regarding suitable disposal of
contaminated waste product during a pandemic. It is anticipated that standard weekly waste
collections would continue, which would prevent any build-up of waste in the municipality.
13.7. Personal Protective Equipment (PPE)
The Commonwealth has the National Medical Stockpile of PPE and the criteria for its use are outlined
in the Australian Health Management Plan for Pandemic Influenza. DHHS also has a state stockpile.
These stockpiles are intended to protect healthcare workers in hospitals, flu clinics and DHHS staff
if they are involved in direct patient care.
Local government and other agencies do not have a role in frontline health care work, therefore are
not eligible for the state or commonwealth stockpiles. When planning for a pandemic, local
government and other agencies need to consider their BCP and look at the risks of operating core
business functions and how they will protect staff at risk.
13.8. Food Delivery
AUSFOODPLAN-Pandemic addresses National food supply during a pandemic. The plan includes
arrangements for grocery stores to implement social distancing, and continue to supply groceries,
hygiene and sanitary products. The Plan does not cover vulnerable communities that are sick or not
able to get to stores. The role of food supply at the State level is shared between DELWP/ DJPR
and DHHS. If local food deliveries are required, this will be managed within the existing Emergency
Management arrangements.
16 Pandemic Sub-Plan
13.9. Pharmaceutical Access
Whilst it is expected that normal pharmaceutical business will continue to operate, each business
will determine its own risk exposure and level of operation. In a pandemic this may impact the ability
for the community to access pharmaceutical supplies. In this eventuality, the State Pandemic
Incident Management Team will be required to manage the supply of pharmaceutical goods.
13.10. Vaccination / Immunisation
Advice on the process of mass vaccination is provided in the Mass Vaccination Guide, which forms
Appendix 8 of the Victorian Health Management Plan for Pandemic Influenza. The Manningham
Mass Vaccination Plan (TRIM D13/14560) is based on the guide, and outlines the method and detail
for Manningham’s Health Department to undertake vaccination during a pandemic. If requested by
the Department of Health, Council will activate and implement the Plan, which details:
Activation
Vaccination strategy (priority groups)
Routine vaccination in the inter-pandemic periods
Mass vaccination centres––session structure and management (administration, documentation, consent etc.)
Logistics coordination / requirements
Various pro forma documents (immunisation consent form, record of administration and report of suspected adverse events).
The nature of the contagion will determine the configuration and/or the need for additional clinics.
The DHHS will determine whether other locations across the region are required for use as a
vaccination clinic, such as scout halls or community facilities. Eastern Melbourne Medical Local will
work with agencies to establish other centres upon request. Neighbouring municipalities should be
contacted to provide details of their pre-planned vaccination centres.
Agencies will need to remain flexible in the event of extraordinary requests.
13.11. Mass fatality
The Victorian Institute of Forensic Medicine (VIFM) is responsible for all deceased persons where
there is no doctor’s certification of death. The VIFM has a capacity for normal operations and surge
capacity arrangements for a significant number of deceased persons. The VIFM will use the Disaster
Victim Identification INTERPOL Guidelines to identify multiple bodies after a mass fatality (likely in a
pandemic). Cultural sensitivities are taken into account and teams are briefed on local religious
beliefs, cultural attitudes and practices and political systems.
Depending upon the emergency and situation, there remains an unlikely potential that local
government may be requested to assist. Requests would be made to Victoria Police, and the
Municipal Emergency Response Coordinator (MERC) would make any requests of the Municipal
Emergency Resource Officer (MERO).
In ALL instances, detailed advice should be obtained from the VIFM.
13.11.1. Ovals
The VIFM may request a location to establish a temporary storage facility. The VIFM has
17 Pandemic Sub-Plan
arrangements in place for the supply of refrigerated shipping containers, the support services
required to fit them out and the staff to manage them. A location such as a sporting oval would be
suitable and would hold between 60 – 100 containers, depending upon whether a mortuary is also
established on site.
Other considerations should include:
Location – away from schools, community facilities or residential areas
Vehicular access for two wheel drive vehicles
Access to power – Supply grid or generator/s
Access to water – mains preferred
Security – temporary fencing with black screening mesh
Signage
Sites should be identified on a needs basis and agencies will need to remain flexible when selecting
sites.
13.11.2. Burial sites
In rare, exceptional circumstances, Council could be asked to identify possible sites for burial of
deceased persons. These areas should be carefully considered, as they are likely to remain as
cemeteries and/or at very least, memorial sites into the future, and the site will have little chance of
repatriation and return to its previous use. Consideration should be given to the use of existing
cemeteries such as Anderson’s Creek and Templestowe Cemeteries.
A typical site would require a long, relatively shallow trench where each body would be separated
by a piece of chipboard type material. Bodies would ideally be wrapped in plastic, and clearly
identified with some form of reference number and recorded on a map or plan. Bodies would not be
stacked on top of each other, to facilitate exhumation and reburial by families at a later date if
required.
If requested to provide such a location, Council may also be required to supply excavators, chipboard
dividers, cable ties and tags that will not degrade (e.g. metal tag with engraving or stamps).
The deceased will need to be photographed, have a DNA sample taken and photo of their teeth –
all to be catalogued and sent to a central repository (most probably at the VIFM Central Office).
Unless exceptional circumstances existed, this would be done by the VIFM or their authorised
agents.
13.11.3. Cremation
Unless specific directions are issued by the VIFM, cremation will not be considered in the event of
mass fatality situations. In the event directions are issued, detailed information as to specific
requirements will be given at that time by the relevant authority. There are no crematoriums in
Manningham.
13.12. Health Services
Eastern Health is the agency responsible for the primary health care services within the Manningham
municipality.
In order to prevent the spread of influenza infection within hospitals during a pandemic, the DHHS
will implement a designated hospital model. This model includes the implementation of pandemic
18 Pandemic Sub-Plan
clinics as patient numbers increase, to contain transmission and to reduce the workload on hospital
emergency departments and GP clinics. Within Eastern Health, Box Hill Hospital is the only hospital
that has been identified by the DH as being one of sixteen Victorian designated hospitals. Council
will receive relevant information from hospitals and health providers through the Department of
Health and Human Services.
Inner Eastern Melbourne Medicare Local will support Eastern Health in the set up and staffing of
community pandemic clinics. For a list of general practice providers available during an emergency
go to iemml.org.au
Inner Eastern Melbourne Medicare Local will provide a liaison between agencies and
practitioners/clinics during a pandemic event.
Any additional support for the establishment of additional clinics should follow existing Emergency
Management arrangements and will be coordinated by the Incident Controller and the Incident
Management Team.
13.13. Civil disturbance
It is likely that, as health and mortality issues increase, the responsibility of the justice system will
rapidly expand through greater calls for service, added security responsibilities for health care and
related facilities, enforcement of court-imposed restrictions, public education, control of panic and
fear and associated behaviours, and ensuring that the public health crisis is not used as an
opportunity for individual or organisational (criminal) gains.
Public health emergencies pose special challenges for Victoria Police, whether the threat is
manmade (e.g. the anthrax terrorist attacks) or naturally occurring (e.g. flu pandemics). Policing
strategies will vary depending on the cause and level of the threat, as will the potential risk to the
responding officers.
Depending on the threat, the role of Victoria Police may include enforcing public health orders (e.g.
quarantines or travel restrictions), securing the perimeter of contaminated areas, securing health
care facilities, securing vaccination centres, controlling crowds, investigating scenes of suspected
biological terrorism, and protecting national stockpiles of vaccines or other medicines. If this occurs,
the request will originate from the controlling agency (DHHS), but a protocol with DHHS outlines that
all necessary PPE will be provided by DHHS.
The Victoria Police Influenza Pandemic Plan identifies police responsibility on the following potential
impacts:
Increased violence at fever clinics
Hijacking of vehicles transporting vaccines
Burglaries on pharmaceutical companies and chemists
Black market selling vaccines
Continuous demand for extra services from Customs, Department of Health and Human Services, Quarantine Services
Police members reluctant to enter home where persons suspected to be affected
Large scale absenteeism of police staff
No access to sufficient levels of PPE
IT technology collapse
Limited capacity of remote dispatch centre
Prisoner management
19 Pandemic Sub-Plan
14. Recovery Arrangements
Manningham’s recovery arrangements are detailed in the Recovery Plan, available at TRIM
D13/9909. The recovery arrangements in a pandemic are coordinated by the Department of Human
Services and will be long lasting and operate parallel to response activities.
Recovery from a pandemic will focus mainly on three of the five environments:-
Social:
Encourage people to return to their ‘normal’ social routine.
Facilitate community events.
Work with CALD communities.
Provide measures to restore emotional and psychological wellbeing. Economic:
Return to regular retail spending.
Return to work and disposable income.
Decreased demand on the health system. Built:
Return to normal use of essential and community infrastructure (the public transport system).
Transition back into office buildings for people who were temporarily working from home.
Lessening demand on medical facilities. Possible outcomes during/ after a pandemic:
Impact as a result of an
influenza pandemic
Consequence to the community
Staff absenteeism Reduced ability to deliver basic services e.g. HACC and
health services. Loss of income. Extra stress on already
struggling families.
Death of employees Loss of local knowledge, will take longer to train new
person and restore the service, time for organisation to
find new person
Decreased socialisation/
Breakdown of community
support mechanisms
Depression, loneliness
Increased pressure on services Greater demand on resources, decrease in means of
distribution. Current receivers of care may receive
insufficient care
School closure Parents of dependent children can’t go to work.
Teachers and school staff can’t work. Economic loss
Increased need for information Conflicting messages and misinformed social media
groups can cause anxiousness and fear
Overloaded hospitals and
medical centres
Reduced capacity to treat all patients, patients with
minor problems less likely to be admitted
20 Pandemic Sub-Plan
Impact as a result of an
influenza pandemic
Consequence to the community
Animal abandonment Abandonment of the animal originally responsible for
carrying the flu. Fear of animals. Animal cruelty.
Eastern parts of Manningham affected.
Increased numbers of
vulnerable people and
emergence of new groups
More pressure on already struggling services.
Increases care requirements of vulnerable people. Less
numbers of carers available.
Closure of public places Reduced ability to buy supplies, loss of entertainment
Widespread economic
disruption
Increase in crime. Stress on families. Businesses will
struggle. Reduced ability to buy essential supplies.
Reduced employment
Psychological health Trauma, depression
Manage health people Survivor guilt
21 Pandemic Sub-Plan
15. Appendices
15.1. Contacts
For complete list, refer to Volume 2 of MEMP available at TRIM D13/10158.
15.2. Council facilities
Council owned facilities may be closed or co-opted during a pandemic depending on advice/
instruction from the Department of Health.
There will need to be a suspension of regular services to these facilities if they do close during a
pandemic (e.g. cleaning)
Regular users and booked users will need to be informed that the facilities are closed/ unavailable
until further notice.
Facility Capability Capacity Contact
Ajani Centre Functions/Meetings 300 9840 9300
Ajani Community Hall Functions/Meetings 180 9840 9300
The Pines Learning Centre -
Function Room
Functions/Meetings 180 9840 9300
The Pines Learning Centre -
Rooms 16/17/18
Functions/Meetings 75 combined or
25 each
9840 9300
The Pines Learning Centre -
Rooms 13/14
Functions/Meetings 100 combined
or 50 each
9840 9300
The Pines Learning Centre -
Room 15
Meetings 20 9840 9300
Koonarra Hall Functions/Meetings 80 9840 9300
Templestowe Memorial Hall -
Main Hall
Functions/Meetings 100 9840 9300
Templestowe Memorial Hall -
Meeting Room
Meetings 30 9840 9300
East Doncaster Public Hall Functions/Meetings/1
6th, 18th, 21st
birthdays
100 9840 9300
Bulleen & Templestowe
Senior Citizens Centre - Main
Hall
Functions/Meetings 110 9840 9300
Bulleen & Templestowe
Senior Citizens Centre -
Bingo Room
Meetings 40 9840 9300
Bulleen & Templestowe
Senior Citizens Centre -
Library Room
Meetings 15 9840 9300
Doncaster Senior Citizens
Centre - Main Hall
Functions/Meetings 100 9840 9300
22 Pandemic Sub-Plan
Facility Capability Capacity Contact
Doncaster Senior Citizens
Centre – Lounge
Meetings 30 9840 9300
Doncaster Senior Citizens
Centre - Committee Room
Meetings 12 9840 9300
Doncaster Senior Citizens
Centre - Craft Room
Crafts/Meetings 20 9840 9300
Warrandyte Senior Citizens
Centre
Functions/Meetings 100 9840 9300
Wonga Park Hall Functions/Meetings 100 9840 9300
Currawong Bush Park -
Conference Centre
Meetings 20 9840 9300
Currawong Bush Park -
Environment Centre
Meetings 15 9840 9300
Currawong Bush Park -
Camping
Camping 12 9840 9300
Heimat Centre - Main Hall Functions/Meetings 100 9840 9300
Heimat Centre - Multi-
purpose Room
Functions/Meetings 60 9840 9300
Domeney Recreation Centre
- Room 2
Functions/Meetings 60 9840 9300
Domeney Recreation Centre
- Room 4
Functions/Meetings 60 9840 9300
Domeney Recreation Centre
- Room 5
Functions/Meetings 60 9840 9300
Domeney Recreation Centre
- 4&5 Combined
Functions/Meetings 120 9840 9300
15.3. Legislation
Quarantine Act 1908 (to be replaced by the Biosecurity Act)
Air Navigation Act 1920
Customs Act 1901
Privacy Act 1988
National Health Security Act 2007
Public Health and Wellbeing Act 2008
Emergency Management Act 1986 & Emergency Management Act 2013
Essential Services (Year 2000) Act 1999
Victorian Occupational Health and Safety Act 2004
SHERP 2013
15.4. Supporting documents
WHO guidance document; Pandemic Influenza Risk Management -
www.who.int/influenza/preparedness/pandemic/GIP_PandemicInfluenzaRiskManagementI
nterimGuidance_Jun2013.pdf
Victorian Action Plan- June 2012 -
23 Pandemic Sub-Plan
docs.health.vic.gov.au/docs/doc/DDC19944BFDA4659CA257A2300771B00/$FILE/Victoria
n%20Action%20Plan%20for%20Human%20Influenza%20Pandemic%20-
%20June%202012.pdf
Commonwealth public information - www.flupandemic.gov.au/internet/panflu/publishing.nsf
Eastern Region Local Government Regional Pandemic Plan - http://www.ifmp.vic.gov.au/Regions/Eastern Metropolitan Region/EMR MEMEG/Collaboration Groups/Eastern Metropolitan Councils Emergency Management Partnership (EMCEMP)/Eastern Metro Councils - EMP Regional Plans and Documents/Pandemic Influenza
Eastern Health Strategic Plan -
www.easternhealth.org.au/app_cmslib/media/umlib/about/eh7980%20strategic%20plan%2
0report%2036pp%20lr.pdf
AHMPPI -
www.flupandemic.gov.au/internet/panflu/publishing.nsf/Content/B11402BB723E0B78CA25
781E000F7FBB/$File/ahmppi-2009.pdf
Department of Health – Ebola publications - www.health.vic.gov.au/emergency/ebola.htm
Emergency Management Manual Victoria - www.emv.vic.gov.au/policies/emmv
24 Pandemic Sub-Plan
16. Version Control
VERSION SECTION DATE DESCRIPTION UPDATED
BY
1.0 All sections 2014 Plan developed Esther Daniel
2.0 All Sections December
2014
Plan reviewed and
scope transitioned from
influenza only to all
types of pandemic
Helen Napier
2.1 All Sections March 2019 Branding update Garth
Stewart
Contact Details
Council’s Emergency Management Team 9840 9333
http://www.manningham.vic.gov.au/emergency
