BRISBANE CITY COUNCIL
LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 12:
PANDEMIC SUB-PLAN
July 2014 edition
BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
REFERENCES
Further information on emergency planning can be found in:

Australian Emergency Manuals Series, Manual 3 – Multi-Agency Incident Management

Australian Emergency Manuals Series, Manual 43 – Emergency Planning

Disaster Management Act 2003 (Qld), effective 21 May 2014

Brisbane City Council Brisbane Incident Management System (BIMS), August 2011

Brisbane City Council Local Disaster Management Plan 2014

Brisbane City Council Local Disaster Coordination Centre SOP, 2014

Queensland Local Disaster Management Guidelines, September 2012

Queensland Pandemic Influenza Plan, 2009

2013-2014 Queensland State Disaster Management Plan

National
Action
Plan
for
Human
(http://www.dpmc.gov.au/publications/pandemic)

World Health Organisation Website (www.who.int/en/)

Australian Health Management Plan for Pandemic Influenza
(www.flupandemic.gov.au/internet/panflu/publishing.nsf/)

Qld Government and pandemic preparedness website
(http://www.qld.gov.au/health/alerts/pandemic-influenza/)
Influenza
Pandemic
(2011)
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
Emergency Management and Health Plans for Managing Influenza Pandemic
This diagram is taken from the National Action Plan for Human Influenza Pandemic (2011).
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
AMENDMENT REGISTER AND VERSION CONTROL
This Pandemic Sub-plan will be reviewed, practiced and updated annually in accordance with the
procedures mandated by the Brisbane LDMG.
It shall be reviewed at least once each year by a committee of appropriately qualified and
experienced personnel. The committee shall, as a minimum, consist of senior staff from Corporate
Risk Management and a representative of Brisbane LDMG.
1.
Proposed amendments to this sub-plan are to be forwarded in writing to the Manager,
Disaster Management Office (MDMO), who may approve minor amendments.
2.
Proposed amendments that affect the intent of this sub-plan, roles and responsibilities
or external agencies must be endorsed by the Local Disaster Coordinator (LDC) and/or
the MDMO and may be forwarded to the Brisbane LDMG for approval if required. This
type of amendment is referred to as a major amendment.
3.
Endorsed amendments are to be listed in the table below.
4.
Version control of this sub-plan is managed by the Disaster Management Office.
Reissue of this sub-plan following amendment or review will be recorded in the table
below and advice of reissue will be distributed throughout the disaster management
network. Recipients should take all appropriate action to ensure they are in possession
of the most recent version, and that previous versions in both hard copy and electronic
forms are archived accordingly. Further information can be requested by contacting the
Disaster Management Office.
Pandemic Sub-plan Version Control
Version
Date
Reviewed by
Endorsed by
Comments
1.0
March 2012
Manager, Disaster Management
Office
Chair, Brisbane LDMG
2012 official
version
Principal Risk & Compliance
Officer
Manager, Disaster
Management Office
Revisions
Chair, Brisbane LDMG
2013 official
version
1.1
January
2013
District Disaster Coordinator
Divisional Manager, Organisational
Services
Coordinator, Disaster Management
Office
2.0
2.1
May 2013
September
2013
Manager, Disaster Management
Office
District Disaster Coordinator
Manager, Disaster Management
Office
Principal Risk & Compliance
Officer
Separated from
Corporate
Pandemic Plan.
5. This sub-plan is to be reviewed:

On activation of an event requiring the use of this sub-plan

On activation of similar disaster management plans in other states, territories or
overseas where considered possible

Upon annual review of Council’s Local Disaster Management Plan in accordance
with the Disaster Management Act 2003 (Qld)
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CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
6. This sub-plan, together with its supporting standard operating procedures (SOPs), is to
be tested annually. The MDMO is to brief relevant stakeholders and the Brisbane LDMG
on the results of testing this plan.
7. In accordance with legislation, the Brisbane Local Disaster Management Plan and all its
underpinning sub-plans will be approved by the Chair of the Brisbane LDMG annually.
DISTRIBUTION LIST
Number of
Copies
Hard Copy/
Electronic
Manager, Disaster Management Office
Master Copy
Hard Copy
Council Intranet Site
Master Copy
Electronic
Chair – Brisbane LDMG
1
Hard Copy
Deputy Chair – Brisbane LDMG
1
Hard Copy
Local Disaster Coordinator
1
Hard Copy
District Disaster Coordinator
1
Hard Copy
QFES Area Director
1
Electronic
Recipient
LDCC - 3 sites, 1 at each site,
1 per site (3)
Hard Copy &
electronic
Hard Copy
Corporate Risk Manager
1
Risk & Compliance Manager
1
Hard Copy
Corporate Risk Management Intranet Site
1
Electronic
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
TABLE OF CONTENTS
REFERENCES ................................................................................................................................ i
Emergency Management and Health Plans for Managing Influenza Pandemic .............................ii
AMENDMENT REGISTER AND VERSION CONTROL .................................................................. iii
DISTRIBUTION LIST ......................................................................................................................iv
TABLE OF CONTENTS .................................................................................................................. v
1.0 INTRODUCTION .................................................................................................................... 1
1.1 Background ......................................................................................................................... 1
1.2 Context ................................................................................................................................ 1
1.3 Potential Impacts of a Pandemic ......................................................................................... 2
1.4 Council’s Pandemic Planning Framework............................................................................ 2
1.5 Assumptions........................................................................................................................ 3
2.0 FRAMEWORK FOR ACTION ................................................................................................. 4
2.1 National Arrangements ........................................................................................................ 4
2.2 Queensland Arrangements .................................................................................................. 4
2.3 Council’s Responsibilities .................................................................................................... 5
2.4 Levels of Alert ..................................................................................................................... 5
2.5 Response Phases ............................................................................................................... 5
2.6 Activation and Escalation .................................................................................................... 6
2.7 Decision-making and Communication Paths ....................................................................... 6
3.0 COUNCIL’S ROLE AND RESPONSIBILITIES ....................................................................... 7
3.1 Council Responsibilities ....................................................................................................... 7
3.2 Council Response ............................................................................................................... 7
3.2.1 Coordination Groups ........................................................................................................... 8
3.3 Significant Activities ............................................................................................................. 8
3.4 Council Tasks ...................................................................................................................... 9
3.5 Corporate Communication ................................................................................................... 9
3.6 Disaster Management Office ............................................................................................... 9
4.0 KEY ISSUES ........................................................................................................................ 11
4.1 Adoption of a graduated response ..................................................................................... 11
4.2 Maintaining business continuity for essential services ....................................................... 11
4.3 Managing community consequences................................................................................. 11
4.4 Communication strategy .................................................................................................... 11
4.5 Coordinating Council’s response with external agencies ................................................... 12
5.0 APPENDICES ...................................................................................................................... 13
Appendix 1: WHO Pandemic Phases ............................................................................................ 13
Appendix 2: Federal Government Pandemic Phases .................................................................... 14
Appendix 3: State Government Pandemic Phases ........................................................................ 15
Appendix 4: Acronyms and Abbreviations ..................................................................................... 16
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CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
1.0
INTRODUCTION
Brisbane City Council (Council) has a legislative obligation to be able to respond to and recover
from a broad range of natural and human-made disaster events. Council currently meets its
legislative requirements and obligations under Section 57(1) of the Queensland State
Government’s Disaster Management Act 2003.
This Pandemic Sub-plan is a twin document to Council’s Corporate Pandemic Plan. The two
documents should be used in conjunction and updated accordingly.
1.1
Background
An influenza pandemic is a disease outbreak that occurs worldwide when:

a new strain of influenza virus emerges, to which there is no, or very limited, immunity

the virus causes disease in humans

the virus is easily spread between humans.
In the absence of immunity, a new influenza strain can spread rapidly across the globe, causing
worldwide epidemics or a pandemic, with high numbers of cases and deaths. It can also be of
moderate severity as seen in the H1N1 (Human Swine) pandemic in 2009.
There have been regular but repeated occurrences of pandemics during the last century. The
risk of a pandemic, whether it originates from the H1N1 or H5N1 (Avian) virus or some other
source, will remain in the future, with the level of risk elevated by an increasingly mobile world
population.
Prior planning and properly coordinated response measures can minimise the impacts of a
Pandemic. The principal purpose of this Plan is to outline a management framework for:
1.2

developing resilience so Council can continue to deliver essential services to the
community despite pandemic conditions;

fulfilling Council’s obligation to its employees to take all reasonable care to prevent their
exposure to a pandemic;

providing assistance to the community, within the context of a role in government, to
withstand and recover from a pandemic; and

ensuring management decisions and services are undertaken in coordination with the
State and Federal Government’s pandemic response.
Context
Internationally, the peak body is the World Health Organisation (WHO) of the United Nations.
WHO maintains an extensive global monitoring program for all communicable diseases,
including influenza. WHO developed the Pandemic Influenza Phases of Alert (see Appendix 1).
Within Australia, The Quarantine Act 1908 allows the Governor-General to declare an
epidemic, providing extensive powers to the Minister for Health – powers that override State
measures. Responsibility for implementing the Australian Health Management Plan for
Pandemic Influenza lies with health services, emergency services and governments at all levels.
It requires a whole of government response. Australia has adopted a modified form of the WHO
Pandemic Influenza Phases of Alert. The national strategy (see Appendix 2) (echoed in
Queensland planning documents) hinges on Containment for as long as possible. If this fails,
the strategy switches to Maintenance of Essential Services.
A human influenza pandemic outbreak in Queensland will be a controlled notifiable condition
under the Public Health Act 2005. The Director-General of Queensland Health is responsible for
the overall management and control of the response to any public health emergency; however
coordination with federal counterparts and public messaging is often undertaken by the Chief
Health Officer. The Queensland Pandemic Influenza Plan (May 2009) provides a basis for the
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
State’s response to a Pandemic. Community consequences will be managed using the disaster
management arrangements as specified in the Disaster Management Act 2003 (Qld).
1.3
Potential Impacts of a Pandemic
The severity of pandemics is variable; therefore it is not possible to fully predict the gravity and
range of impacts that Brisbane would suffer during a future pandemic.
The majority of pandemic planning (including WHO, Federal and State) is directly focussed on
influenza, as this is the most likely form of pandemic. A severe influenza pandemic may:
1.4

Last for 3 months

Result in 40 per cent of the population displaying clinical signs of infection

Lead to 50 per cent of staff not reporting for work during the peak of the pandemic

Cause 2.5 per cent of those affected to die of the disease.
Council’s Pandemic Planning Framework
Council’s Pandemic planning framework has the following five components:
The Brisbane City Council Local Disaster Management Plan is the principal document
outlining Council’s emergency response to a range of hazards and disaster events.
This Pandemic Sub-plan outlines Council’s emergency response during the pandemic to assist
the City and the community.
The Corporate Pandemic Plan – sets out the framework for Council’s response to a pandemic.
The focus of the Corporate Pandemic Plan is principally about the continuity of services.
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CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
The Crisis Communication SOP addresses the roles and responsibilities for ensuring the
ongoing flow of up-to-date information to stakeholders during a crisis.
Critical Services’ Business Continuity Plan Pandemic Appendix provides contingency planning
focussed at maintaining specific critical services during a pandemic. Contact Corporate Risk
Management for more details.
1.5
Assumptions
Council’s pandemic planning is based on the following assumptions:





That there will be some warning of the pandemic. In 2009 the outbreak was first
identified in Mexico with the WHO communicating the identified spread to other
countries.
That the pandemic’s progress will follow a linear route through the alert phases.
That the Australian Government, via the Chief Medical Officer of Australia, will
announce the escalation from one alert phase to another.
That the community consequences will be managed in accordance with the Disaster
Management Act 2003 and Council’s Disaster Management arrangements.
That the Queensland Government will provide frameworks to coordinate activities
across jurisdictional boundaries, including:
o Activation of State Disaster Management Group on notification of suspected
or confirmed cases
o Liaison with federal and local governments to ensure consistent messages
o Containment operations
o Public communication
o Maintenance of essential services
o Social distancing measures
o Industrial relations legislation.
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CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
2.0
2.1
FRAMEWORK FOR ACTION
National Arrangements
The peak national planning body is the Office of Health Protection within the Australian
Government Department of Social Services. Convened by the Department of the Prime Minister
and Cabinet in the event of an influenza pandemic, the peak Australian implementation body is the
National Pandemic Emergency Committee (NPEC). The NPEC has the role of overseeing the
development and implementation of the National Action Plan for Human Influenza Pandemic
September 2011 (NAPHIP) and supporting the Council of Australian Governments in its role of
achieving cooperation among governments.
The Australian Government’s roles are to:






implement the national plan
ensure policies and strategies are developed beforehand to guarantee a quick
response
assume a central coordination role, especially with regard to national surveillance and a
national response
report to jurisdictions on the spread of the virus
redefine priorities for vaccines and anti-virals
provide leadership in virus isolation and typing, and molecular work throughout the
Asia-Pacific region.
While the NAPHIP outlines how the Commonwealth, State, Territories, and Local Government
have agreed to work together, the detailed plan that the combined governments will follow is
provided in the Australian Health Management Plan for Pandemic Influenza December 2009.
2.2
Queensland Arrangements
The Queensland Pandemic Influenza Plan May 2009 outlines the State’s response to a pandemic.
Implementation will be coordinated by Queensland Fire and Emergency Services and the State
Disaster Management Group (SDMG) which includes representatives from each of the major State
Government departments and the Local Government Association of Queensland.
Queensland Health (QH) will be the lead Queensland Government agency during an influenza
pandemic. QH will have a strong leadership role within SDMG, particularly because most
government policy responses will have regard to expert health advice about the nature of the virus
and how it can best be contained and managed.
The community consequences will be managed within the disaster management framework
specified in the Disaster Management Act 2003 (Qld).
The Queensland Government responsibilities of relevance to Council (as outlined in the NAPHIP)
are to:








determine and maintain appropriate policies, legislation and plans
report influenza outbreaks and action taken
maintain a response and recovery capability
have primary responsibility for public and animal health monitoring, surveillance and
response
maintain business continuity plans for the State’s essential services
maintain cooperative relationships with owners and operators of critical infrastructure
regarding preparedness, continued operation and recovery
have primary responsibility to respond and recover from a pandemic influenza outbreak
implement agreed preparedness strategies and administer emergency management
arrangements
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CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)


2.3
work with local government, business and the community to respond to and recover
from an influenza pandemic
work with the Commonwealth Government and the local government to develop public
education material.
Council’s Responsibilities
Brisbane City Council’s responsibilities as a local government body (as outlined in the NAPHIP) are
to:







2.4
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;
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; and
work with the Queensland State Government to develop public education material and
ensure effective ‘bottom up’ information exchange is undertaken.
Levels of Alert
Australia has adopted a modified version of the WHO definitions for pandemic preparedness. The
WHO monitors global pandemic risks and provides regular updates of alert phases. The Chief
Medical Officer of Australia is guided by WHO and will determine the relevant Australian Phase.
The WHO (Appendix 1), Australian Government (Appendix 2), and Queensland Government
(Appendix 3), Pandemic Alert Phase charts can be found in this chapter’s appendices.
The Australian and Queensland plans do not have an equivalent phase to match the WHO’s Phase
1 and 2. The Queensland and Australia “Alert” phase equates closely to the WHO Phase 3.
It is not necessary, nor is it likely during the early stages of a pandemic, that each system of Alert
would be set at an equivalent phase. Depending upon the timing, location and the severity of the
outbreak a different WHO and Australian phase alert can be expected. However, it is expected that
a high degree of uniformity will occur between the Australian and Queensland alert phases, since
pandemics will spread rapidly through Australia.
2.5
Response Phases
The national strategy relies on Delay and then Containment for as long as possible. If this strategy
is unsuccessful, the strategy changes to that of Sustaining Essential Services. This may be varied
in the event of a milder form of pandemic as experienced during the 2009 Human Swine Influenza
outbreak, when a new PROTECT phase was developed to address a pandemic of milder impact.
The strategy has identified key milestones that signal the need to consider changes in the wholeof-government operational approach during a pandemic:




Identification of a new human influenza pandemic virus that has sustained human-tohuman community transmission anywhere in the world
Entry of the virus into Australia
The severity of the virus is understood, including its spread and impact on the
Australian community
A customised vaccine is widely available
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CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)

2.6
The end of the pandemic, measured by disease activity returning to seasonal levels
Activation and Escalation
The response actions contained in this Pandemic Sub-plan will be activated when the DELAY
phase of a new pandemic virus is announced by the Australian Government. Council’s Disaster
Management Arrangements may also be activated, based on advice from the Queensland
Government or on direction from the Lord Mayor or the Chief Executive Officer.
Escalation will be conducted to match escalation at national and/or state level.
2.7
Decision-making and Communication Paths
Diagram taken from the National Action Plan for Human Influenza Pandemic (2011).
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CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
3.0
3.1
COUNCIL’S ROLE AND RESPONSIBILITIES
Council Responsibilities
Council has responsibilities in any major disaster, some with an external focus (managing the
community consequences of the event), and some with an internal focus (maintaining the
continuity of essential business processes).
External Focus – Disaster Management Arrangements.
Under the Brisbane City Council Local Disaster Management Plan, Council applies its
comprehensive disaster management arrangements to manage the community consequences of
any event.
During a pandemic, the priorities are:



to maintain the essential services which Council provides to the community;
to communicate with the community about Council core business; and
to support Queensland and Australian Government initiatives to manage the impacts of
the pandemic.
Internal Focus – Business Continuity Plans.
Council has a series of Business Continuity Plans (BCPs) covering its essential business services
(refer to Council’s Corporate Pandemic Plan and Corporate Risk Management Office for further
details). Further information on Council’s procedures for business continuity planning is contained
in SP510 Business Continuity Plans.
During a pandemic, the priorities are to maintain the core functions of the direct delivery of
essential services to the public, and the internal services necessary to support the external
essential services.
The Corporate Business Continuity Plans are as follows:
Critical Community Services
Customer Contact Centre
Flood Warning
Regulatory Services
Brisbane Metropolitan Transport Management Centre
Transport Bus Services
Waste Management
CityCat & CityFerries Services
Critical Support Functions
Cash Flow
Commercial Services (including Payroll)
Corporate Accommodation
Human Resources
Information & Communication Technology
Media & Communications
3.2
Council Response
Council’s response will change as the pandemic progresses. The basic phase response
descriptions are:
ALERT
Being alert to the risk of a pandemic and preparing for a pandemic
DELAY
Once the pandemic virus emerges overseas, keeping the virus out of Australia
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CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
CONTAIN
Once the pandemic virus does arrive in Australia, limiting the early spread
(LDCC activation if required)
SUSTAIN
Sustaining the response, while waiting for a pandemic vaccine
CONTROL
Controlling the pandemic spread with a vaccine
RECOVER
Once the pandemic is under control, returning to normal, while remaining
vigilant (LDCC stand down)
In the context of a milder form of influenza pandemic, a reduced response level PROTECT focuses
on identifying those who are most susceptible to the virus and who require medical care and
intervention to reduce suffering.
In the initial ALERT, DELAY and CONTAIN phases, Council will focus on staff hygiene education
and planning for escalation of the pandemic.
If the containment operations are unsuccessful – which is a strong possibility based on previous
pandemics – the strategy switches to Sustaining Essential Services. Council will focus on
maintaining:
1. essential services it provides for the community, together with critical internal support
functions, and
2. managing the community consequences of the event.
If the Brisbane LDMG and/or the LDCC are stood up, priorities are likely to be:

Negotiations with other government service providers to share or release Council resources

Communication to the public about pandemic issues (ensuring consistency with QLD
Health messaging)

Special assistance to vulnerable members of the community who are significantly impacted
by a reduction in government services
3.2.1 Coordination Groups
As soon as the DELAY phase is announced, Council is to establish resilient management
arrangements at organisational, divisional and branch level. This includes pandemic governance
arrangements in the form of:

a corporate Pandemic Executive Group (PEG) and/or Immediate Action Team

a corporate Pandemic Working Group (PWG)

various divisional/business unit pandemic groups.
The purpose of the PEG is to provide policy advice and make key decisions (with direction from the
Lord Mayor as required). The PEG will comprise a sub-group of the Executive Management Team,
including the CEO and selected Divisional Managers and the Manager, Disaster Management
Office if required.
The purpose of the PWG is to coordinate planning activities across Council. The PWG will identify
and analyse pandemic-specific issues, develop response options, and make recommendations for
the consideration of the PEG. The PWG will meet as frequently as required, to address
organisation-wide issues related to pandemic preparedness.
Refer to the Corporate Pandemic Plan for more information on Council processes.
3.3
Significant Activities
Important activities for Council as the risk of a pandemic escalates include:
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CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)




3.4
Communicating with staff and the community about the nature of the pandemic, the
associated risks, and appropriate responses. These messages will need to be
coordinated with those communicated by the Queensland and Commonwealth
governments.
Containing the spread of the pandemic through measures such as good personal
hygiene, altered working arrangements, use of personal protective equipment,
workplace entry control, increased cleaning, and higher standards of air conditioning
system operation and maintenance.
Ensuring the ongoing supply of vulnerable, critical goods and services from third
parties, including fuel and other consumables, hygiene-related products, and
telecommunications services. This may require preferential supply arrangements and/or
stockpiling.
Determining which Council services could be curtailed in order to ensure that essential
services continue to be provided and communicating any impacts to staff and the
general public.
Council Tasks
Council tasks are to:








3.5
Activate the PEG and the Pandemic Work Group
Place the Local Disaster Management Group (LDMG) on standby
Place the Local Disaster Coordination Centre (LDCC) on standby
Support Queensland Government agencies in Containment operations
During the “Alert” and “Delay” phases review plans for:
o Adopting a graduated response keyed to the pandemic phases
o Maintaining essential services at each stage of the pandemic
o Maintaining core functions of Council
Manage public awareness and public communication messages on areas of Council
responsibility (synchronised with Federal and State policies and other lifeline providers)
Maintain liaison with key State agencies and other key stakeholders
Ensure Council’s response and recovery actions are coordinated and synchronised with
those of other key stakeholders.
Corporate Communication
Corporate Communication tasks are to:







3.6
Review the Crisis Communication Plan
Prepare a communication strategy for keeping Council staff informed
Prepare the communication strategy for the general public
Maintain liaison with State and Federal counter-parts and other key external
stakeholders (e.g. NGOs)
Provide a senior officer for membership of the PWG
Activate the Crisis Communications Team to support the PWG, PEG or LDCC
Implement the communication and public awareness strategies.
Disaster Management Office
The Manager, Disaster management Office is to:


Maintain liaison with the DDC (District Disaster Coordinator)
Ensure continuity of staff for the LDCC, if it is activated
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



Provide briefings to the Lord Mayor, the LDC and the Brisbane LDMG
Manage liaison with key stakeholders
Attend the PEG as required
Provide a senior officer for membership of the PWG.
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4.0
KEY ISSUES
The key issues to be managed by Council in the event of a pandemic are:






4.1
Adopting a graduated response
Maintaining business continuity for essential services
Responding to requests for assistance from the State and Federal Governments
Managing community consequences
Implementing communication strategy
Coordinating Council’s response with external agencies.
Adoption of a graduated response
The response measures necessary in a severe pandemic are quite extreme. To the extent that the
onset of the pandemic allows, agencies should adopt a graduated response so the public is not
unduly alarmed.
4.2
Maintaining business continuity for essential services
Regardless of how severe the pandemic gets, essential services must be maintained to prevent a
breakdown of society and to facilitate the recovery phase. Council’s list of essential services for a
pandemic is at Appendix 4.
4.3
Managing community consequences
The social consequences of a pandemic could be widespread and the economic impacts long
lasting. This will pose significant challenges to Council, which has a key role in managing
community consequences. This will apply in the response phase and in the recovery phase, both
of which will likely be protracted.
4.4
Communication strategy
Council will need to communicate with two main groups – its own staff and the general public.
While other agencies may lead on specific aspects of pandemic communication, local residents
and businesses will look to Council for confirmation. Council’s messages need to be consistent
with those of other agencies and tiers of government.
The Federal Government, through the Department of Social Services, has prepared a
comprehensive communications strategy, including the following:





an engagement strategy to ensure that the news media receives timely, accurate and
authoritative information
a market research program to ensure that communications effectively meet public
needs
a public information campaign through the electronic, print and online media, supported
if necessary by delivery of materials directly to households
direct access information services such as call centres and websites
clinical information resources to support primary care providers.
The Queensland Government will implement a crisis communications model based on the counterterrorism public information arrangements, and will issue information via the following departments:
Premier and Cabinet; Queensland Health; Agriculture, Fisheries & Forestry; Emergency Services;
and Queensland Police Service. This model will include media releases, distribution of government
publications, website information, and an information hotline.
The Queensland Government Arrangements for Coordinating Public Information in a Crisis will be
used to provide leadership for the many cross-government communication activities that occur
should an influenza pandemic develop in Queensland. The Queensland Government will distribute
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CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
information to maintain public safety and meet public needs, keep people informed and engaged
and support Queensland Government crisis management activities.
4.5
Coordinating Council’s response with external agencies
Council has various roles: as a responsible employer; as a public transport provider; as a regulator;
and as a regional leader. Each role will place different demands on the organisation in a pandemic
and in each case Council will want its actions and strategies to be coordinated with other similar
agencies. Key relationships will be with Queensland Health via the Chief Human Resources Officer
and Queensland Fire and Emergency Services via the Manager, Disaster Management Office.
In particular Council has a Memorandum of Understanding (MOU) with the Qld Department of
Agriculture, Fisheries & Forestry to assist with the identification and removal of backyard poultry in
the event of H5N1 Avian Influenza being identified in them.
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In addition to the criteria defined in Phase 5, the
same virus has caused sustained community level
outbreaks in at least one other country in another
WHO region.
PHASE 5
PHASE 6
POST
PANDEMIC
PERIOD
Levels of influenza activity have returned to the
levels seen for seasonal influenza in most countries
with adequate surveillance.
Levels of pandemic influenza in most countries with
adequate surveillance have dropped below peak
levels.
The same identified virus has caused sustained
community-level outbreaks in two or more countries
in one WHO region.
PHASE 4
POST PEAK
PERIOD
Human-to-human transmission of an animal or
human-animal influenza reassortment virus able to
sustain community-level outbreaks has been
verified.
PHASE 3
PHASE 2
An animal influenza virus circulating in domesticated
or wild animals is known to have caused infection in
humans & is therefore considered a specific
potential pandemic threat.
An animal or human-animal influenza reassortment
virus has caused sporadic cases or small clusters of
disease in people, but has not resulted in human-tohuman transmission sufficient to sustain
community-level outbreaks.
No animal influenza virus circulating among animals
has been reported to cause infection in humans
DESCRIPTION
Complete communications
planning and initiate
communications activities
to communicate real and
potential risks.
Evaluate the pandemic
characteristics and
situation monitoring and
assessment tools for the
next pandemic and other
public health
emergencies.
Review lessons learned
and share experiences
with the international
community. Replenish
resources.
Promote beneficial
behaviours in
individuals for self
protection. Plan for use
of pharmaceuticals and
vaccines.
Promote beneficial
behaviours in
individuals for self
protection. Plan for use
of pharmaceuticals and
vaccines.
Complete communications
planning and initiate
communications activities
to communicate real and
potential risks.
Promote beneficial
behaviours in
individuals for self
protection. Plan for use
of pharmaceuticals and
vaccines.
Promote beneficial
behaviours in
individuals for self
protection. Plan for use
of pharmaceuticals and
vaccines.
Promote beneficial
behaviours in
individuals for self
protection. Plan for use
of pharmaceuticals and
vaccines.
REDUCING THE
SPREAD OF THE
DISEASE
Complete communications
planning and initiate
communications activities
to communicate real and
potential risks.
Complete communications
planning and initiate
communications activities
to communicate real and
potential risks.
Complete communications
planning and initiate
communications activities
to communicate real and
potential risks.
COMMUNICATIONS
Continue surveillance to
detect subsequent
waves.
Actively monitor and
assess the evolving
impact and mitigation
measures.
Increase surveillance.
Monitor containment
operations. Share
findings with WHO and
the international
community.
Develop robust national
surveillance systems in
collaboration with
national animal health
authorities and other
relevant sectors.
SITUATION
MONITORING &
ASSESSMENT
Plan and coordinate for
additional resources
and capacities during
possible future waves.
Provide leadership and
coordination to
multisectoral resources
to mitigate the societal
and economic impacts.
Direct and co-ordinate
rapid pandemic
containment activities
in collaboration with
WHO to limit or delay
the spread of infection.
Develop, exercise and
periodically revise
national influenza
pandemic preparedness
and response plans.
PLANNING &
COORDINATION
MAIN ACTIONS
Prepare the health
system to scale up.
Prepare the health
system to scale up.
Prepare the health
system to scale up.
Prepare the health
system to scale up.
Prepare the health
system to scale up.
CONTINUITY OF
HEALTH CARE
PREVENTION
5.0
PHASE 1
PHASE
BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 12 PANDEMIC SUB-PLAN (V2.1)
APPENDICES
Appendix 1: WHO Pandemic Phases
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Appendix 2: Federal Government Pandemic Phases
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. Novel virus has not arrived
in Australia.
DELAY
Effective transmission of novel virus detected overseas in either:
- Small cluster of cases in one country overseas.
- Large cluster(s) of cases in only one or two countries overseas.
- Large cluster(s) of cases in more than two countries overseas.
Novel virus not detected in Australia.
CONTAIN
Pandemic virus has
arrived in Australia
causing small
number of cases
and/or small number
of clusters.
PROTECT
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.
A pandemic virus which
is mild in most but
severe in some and
moderate overall is
established in Australia
This information is current for 14 January, 2014
This information was issued on 06 January, 2011
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Appendix 3: State Government Pandemic Phases
Pandemic influenza - Australian phases
Australian
Description
Phase
Alert
A new flu virus with pandemic potential causes
severe disease in humans who have had contact
with infected animals. There is no effective
transmission between humans. The new virus has
not arrived in Australia.
Delay
Small clusters of human infection with the virus
overseas. Virus is becoming increasingly better
adapted to humans, but may not yet be fully
adapted (substantial pandemic risk).
Contain
Pandemic virus has arrived in Australia causing a
small number of cases.
Protect
A new disease of moderate severity (mild in most
but severe in some) is spreading in Australia.
Sustain
Control
Recover
Key Government Objective
To be alert to the pandemic risk and
prepare for a pandemic
Delay the virus arriving in Australia
Limit the spread of the virus
To identify the people in whom disease
may be severe and provide medical care
and interventions to reduce suffering
Pandemic virus is established in Australia and is Sustain the response while waiting for a
spreading in the community.
pandemic vaccine to be developed
Customised pandemic vaccine is widely available. Control the pandemic with a vaccine
Pandemic is controlled in Australia but further Return to normal while remaining vigilant
waves may occur.
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Appendix 4: Acronyms and Abbreviations
BCP
Business Continuity Plan
Brisbane LDMG
Brisbane Local Disaster Management Group
Council
Brisbane City Council
DDC
District Disaster Coordinator
H1N1
Swine Flu
H5N1
Avian Flu
LDC
Local Disaster Coordinator
LDCC
Local Disaster Coordination Centre
LM
Lord Mayor
MDMO
Manager, Disaster Management Office
MOU
Memorandum of Understanding
NAPHIP
NGO
National Action Plan for Human Influenza Pandemic, September
2011 (sometimes referred to as NAP in other Government
documents)
Non-Government Organisation
NPEC
National Pandemic Emergency Committee
PEG
Pandemic Executive Group
PWG
Pandemic Working Group
QFES
Queensland Fire and Emergency Services
QH
Queensland Health
SDMG
State Disaster Management Group
SOP
Standard Operating Procedure
WHO
World Health Organisation
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