Pandemic Sub-Plan - A sub-plan of the Manningham Municipal Emergency Management Plan Version 2.1 TRIM D14/34199 - Manningham Council

Page created by Brandon Hansen

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)

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Endorsement                                                                                  3
1.     Introduction                                               Error! Bookmark not defined.
2.     Purpose                                                    Error! Bookmark not defined.
3.     Relief Principles                                          Error! Bookmark not defined.
4.     Relief Coordination                                        Error! Bookmark not defined.
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5.     Support for individuals and Communities                    Error! Bookmark not defined.
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       5.1.1. Emergency Accommodation (Shelter)                    Error! Bookmark not defined.
       5.1.2. Food and Water                                       Error! Bookmark not defined.
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       5.1.4. Spontaneous Volunteers                               Error! Bookmark not defined.
       5.2. Essential Services                                     Error! Bookmark not defined.
       5.2.1. Drinking Water for Households/Marinating Food Supplies       Error! Bookmark not
       5.2.2. Replacement of Water used in Response                Error! Bookmark not defined.
6.     Communicating in Relief                                    Error! Bookmark not defined.
7.     Impact Assessment                                          Error! Bookmark not defined.
8.     Evaluation, Exercising and Maintenance                     Error! Bookmark not defined.
9.     Appendix 1 – MRM Standard Operating Procedure              Error! Bookmark not defined.
10. Appendix 2 – List of Acronyms and Abbreviations               Error! Bookmark not defined.
11. Appendix 3 - Sub-Plan Amendment Record                        Error! Bookmark not defined.

2    Pandemic Sub-Plan
This plan was formally adopted and endorsed by:

3   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
       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.

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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       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       PROTECT A pandemic virus which is mild
                  Australia causing a small number            in most but severe in some and
                  of cases and/or a small number              moderate overall is established
                  of clusters.                                in Australia
 SUSTAIN          Pandemic virus is established in
                  Australia and spreading in the
 CONTROL          Customised pandemic vaccine
                  widely available and is beginning
                  to bring the pandemic under
 RECOVER          Pandemic controlled in Australia but further waves may occur if the virus drifts
                  and/or is re-imported into Australia.

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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
                                                                                                 Approx 12,000
                  Scarlet        Early Childhood             - School attendance restrictions    (Australia)
    1830 – 1880                                              - Cleansing, fumigation of public   (3,225 in Vic)
                  Fever          epidemic
                                                               places and affected homes         87% under 10
                                                                                                 years old

    1836 – 1838   Influenza      Pandemic                    - Public health messaging           Not indicated

    1857 – 1860   Influenza      Pandemic                    - Public health messaging           Not indicated
                                                             - Formal isolation and quarantine
                                 Local epidemic with            implemented                      607 cases
                                                             - Vector (rat) control programs
    1894 - 1930   Plague         pandemic potential                                              resulting in 159
                                                             - Area quarantine, fumigation,
                                 (Worldwide pandemic)                                            deaths
                                                                cleansing, demolition and
                                                                special burials.
                                 Local epidemic with         - Federal quarantine imposed        2,900 cases
                                                             - Mass vaccination via priority
    1897 – 1940   Smallpox       pandemic potential                                              resulting in 44
                                                                listing (61,000 vaccines)
                                 (Worldwide pandemic)                                            deaths
                                                             - Cleansing and fumigation
                                                              - Isolation and quarantine         130,000 cases
    1889 – 1891   Influenza      Pandemic                                                        resulting in 2,500
                                                              - Public education
                                                              - Home quarantines
                                 Epidemic with                - Vaccination                      2,000 deaths
    1903 – 56     Polio
                                 pandemic potential           - Public education                 recorded
                                                              - Border isolation
                                                              - Public wearing of masks
    1918 – 1919   Influenza      Pandemic                                                        14,000 deaths
                                                              - Closure of public places and
                  Encephalitis   Epidemic with
    1918 – 1928                                              - Home isolations                   600 deaths
                  Lethargica     pandemic potential
                                                             -   Wearing of masks
    1957 - 58     Influenza      Pandemic                                                        800 deaths
                                                             -   Public education
                                                             -   Wearing of masks
    1968 – 1969   Influenza      Pandemic                                                        1,000 deaths
                                                             -   Public education
                                                                                                 23,033 cases
    1982 –                                                   - Public education                  resulting in 5,116
                  HIV/AIDS       Pandemic
    current                                                  - OH&S procedures                   (in Australia as at
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.

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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         Area of    Influenza A virus     Estimated       Estimated          Age groups
    of emergence          origin     subtype (type of      case fatality   attributable       most affected
    and common                       animal genetic                        excess mortality
    name                             introduction/recomb                   worldwide
                                     ination event)
    1918                  Unclear    H1N1 (unknown)        2–3%            20–50 million      Young adults
    “Spanish flu”
    1957–1958             Southern   H2N2 (avian)
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.

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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

8.3. Victorian plans - Department of Health and Human
       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

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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,
     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
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
        Maintain business continuity plans to enable the delivery of local government essential

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   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.

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12.1.            Key Stages of Communication
STAGE                          COMMUNICATION

 1 – Proactive communication        Preparation of key messages
                                    Focus on promoting facts/ key information of
 Planning and proactive
                                     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            Regular updates: information and advice to staff
 information                         and community/ with revised key messages to
                                     cater for new information
 Influenza case/s in
                                    Messages to focus on communicating services
 Manningham – response and           available/ clarifying Council’s role and referral to
 containment                         appropriate agencies
                                    Communicating actions to ensure business
                                    Communicating occupational health & safety
                                     measures for staff
                                    Liaison with EMR councils, MAV, DHHS and
                                     health agencies.
 3 – Crisis communication           Regular updates: information and advice to staff
                                     and community/ with revised key messages to
 Widespread cases and high
                                     cater for new information (e.g. vaccinations, use of
 service demands                     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
                                    Off-site communications
                                    Liaison with EMR councils, MAV, DHHS and
                                     health agencies.

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12.2.            Communication Methods
INTERNAL                                         EXTERNAL

         Councillor briefing                            Website page
         EMT briefing                                   Media release
         Manager/ Coordinator briefing                  Fact sheets and posters
         Staff briefing                                 Advertising – Leader newspaper
         M-focus articles                               Local radio briefs
         DL brochure – attached to payslip              Podcast
         FAQs                                           Targeted mail drops
         Intranet page                                  Multi-lingual communication
         All users emails                               Facebook
         Posters                                        Twitter

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

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.

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Municipal Events
Australia Day                                      Carols by Candlelight
                                                   Dapper Day Out (Senior's Afternoon Tea
Cinema Under the Stars                             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
        Cancelling/ relocating mass gatherings, such as festivals
        Stock piling cleaning products

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   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.

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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

16   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

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

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

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

13.12.           Health Services
Eastern Health is the agency responsible for the primary health care services within the Manningham

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

17   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

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

        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

18   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:-


         Encourage people to return to their ‘normal’ social routine.
         Facilitate community events.
         Work with CALD communities.
         Provide measures to restore emotional and psychological wellbeing.


         Return to regular retail spending.
         Return to work and disposable income.
         Decreased demand on the health system.


         Return to normal use of essential and community infrastructure (the public transport
         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          Consequence to the community
     influenza pandemic
     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/          Depression, loneliness
     Breakdown of community
     support mechanisms
     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          Reduced capacity to treat all patients, patients with
     medical centres                   minor problems less likely to be admitted

19    Pandemic Sub-Plan
Impact as a result of an   Consequence to the community
     influenza pandemic
     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       More pressure on already struggling services.
     vulnerable people and      Increases care requirements of vulnerable people. Less
     emergence of new groups    numbers of carers available.
     Closure of public places   Reduced ability to buy supplies, loss of entertainment
     Widespread economic        Increase in crime. Stress on families. Businesses will
     disruption                 struggle. Reduced ability to buy essential supplies.
                                Reduced employment
     Psychological health       Trauma, depression
     Manage health people       Survivor guilt

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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 -     Functions/Meetings     180               9840 9300
     Function Room
     The Pines Learning Centre -     Functions/Meetings     75 combined or    9840 9300
     Rooms 16/17/18                                         25 each
     The Pines Learning Centre -     Functions/Meetings     100 combined      9840 9300
     Rooms 13/14                                            or 50 each
     The Pines Learning Centre -     Meetings               20                9840 9300
     Room 15
     Koonarra Hall                   Functions/Meetings     80                9840 9300
     Templestowe Memorial Hall -     Functions/Meetings     100               9840 9300
     Main Hall
     Templestowe Memorial Hall -     Meetings               30                9840 9300
     Meeting Room
     East Doncaster Public Hall      Functions/Meetings/1   100               9840 9300
                                     6th, 18th, 21st
     Bulleen & Templestowe           Functions/Meetings     110               9840 9300
     Senior Citizens Centre - Main
     Bulleen & Templestowe           Meetings               40                9840 9300
     Senior Citizens Centre -
     Bingo Room
     Bulleen & Templestowe           Meetings               15                9840 9300
     Senior Citizens Centre -
     Library Room
     Doncaster Senior Citizens       Functions/Meetings     100               9840 9300
     Centre - Main Hall

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Facility               Capability           Capacity       Contact
     Doncaster Senior Citizens    Meetings             30               9840 9300
     Centre – Lounge
     Doncaster Senior Citizens    Meetings             12               9840 9300
     Centre - Committee Room
     Doncaster Senior Citizens    Crafts/Meetings      20               9840 9300
     Centre - Craft Room
     Warrandyte Senior Citizens   Functions/Meetings   100              9840 9300
     Wonga Park Hall              Functions/Meetings   100              9840 9300
     Currawong Bush Park -        Meetings             20               9840 9300
     Conference Centre
     Currawong Bush Park -        Meetings             15               9840 9300
     Environment Centre
     Currawong Bush Park -        Camping              12               9840 9300
     Heimat Centre - Main Hall    Functions/Meetings   100              9840 9300
     Heimat Centre - Multi-       Functions/Meetings   60               9840 9300
     purpose Room
     Domeney Recreation Centre    Functions/Meetings   60               9840 9300
     - Room 2
     Domeney Recreation Centre    Functions/Meetings   60               9840 9300
     - Room 4
     Domeney Recreation Centre    Functions/Meetings   60               9840 9300
     - Room 5
     Domeney Recreation Centre    Functions/Meetings   120              9840 9300
     - 4&5 Combined

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 -

         Victorian Action Plan- June 2012 -

22    Pandemic Sub-Plan$FILE/Victoria

        Commonwealth public information -
        Eastern Region Local Government Regional Pandemic Plan - 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 -
        AHMPPI -
        Department of Health – Ebola publications -
        Emergency Management Manual Victoria -

23   Pandemic Sub-Plan
16. Version Control
     VERSION         SECTION         DATE          DESCRIPTION

 1.0               All sections   2014         Plan developed            Esther Daniel

                                               Plan reviewed and
                                  December     scope transitioned from
 2.0               All Sections                                          Helen Napier
                                  2014         influenza only to all
                                               types of pandemic

 2.1               All Sections   March 2019   Branding update

24    Pandemic Sub-Plan
Contact Details
Council’s Emergency Management Team 9840 9333
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