Emergency Management Planning
Working Group (EMPWG)
Current state of VT higher education
pandemic planning
Al Turgeon
Executive Assistant to the VP for Finance & Enterprise Services
University of Vermont
Mark Peluso, MD
Director, Health Center
Middlebury College
Mark Doughty
Health and Safety Officer
Norwich University
VT Higher Education Pandemic Flu Symposium
UVM Davis Center
2 November 2007
Emergency Management Planning
Working Group (EMPWG)
Overview
• A look at history
– Past flu pandemics
– Higher education response
– Response at VT institutions
• Pandemic plans at other colleges and universities
– National
– Vermont
• UVM’s plans to respond to a flu pandemic
• Norwich University’s plans
• Middlebury College’s plans
Emergency Management Planning
Working Group (EMPWG)
Brief History of Flu Pandemics
Emergency Management Planning
Working Group (EMPWG)
Flu Pandemics are a Part of Human History
• A flu pandemic has hit every 10-50 yrs throughout recorded history
• 3 pandemics occurred in this past century:
– 1918-19 ‘Spanish Flu’ (H1N1): infected 20-40% of the world’s population. 2.5% of
those who caught it died (20-40 million people worldwide, 550,000 in the U.S.). In
VT 25% of deaths in 1918 were attributed to the Spanish flu.
– 1957-58 ‘Asian Flu’, (H2N2): virus was quickly identified due to advances in
technology and a vaccine was produced; elderly had the highest rates of death,
about 70,000 deaths in the U.S.
– 1968-69, ‘Hong Kong Flu’ (H3N2): caused approximately 34,000 deaths in the
U.S.; virus returned in 1970 and 1972 and still circulates today.
• A pandemic will occur again (like hurricanes, tornados, blizzards,
volcanic eruptions)
• It is not known exactly when, or which strain of virus will precipitate
widespread infection
Emergency Management Planning
Working Group (EMPWG)
Three Flu Pandemics in the 20th Century
Emergency Management Planning
Working Group (EMPWG)
Universities did not Evacuate for the 1918 Flu
• Most schools stayed open and instituted social distancing measures
•
University of Saskatchewan closed its campus but continued classes and social events
in isolation
•
Dartmouth cancelled classes for 2 weeks—325 cases, 5 deaths among 967 students
“I did not follow the suggestion of the War Dept that we suspend operations…for we
were so near panic here that I felt the whole College would disappear if that were
done.” –President Hopkins, Oct 4, 1918
•
Middlebury was placed under martial law; grounds under armed guard; students
confined to campus; village streets patrolled to ensure that no students left “the hill.”
• Many institutions were under military control, which reduced illness and
death only to the degree that social distancing was enforced
•
Princeton instituted protective sequestration and rigorous safety measures – only 68
cases and no deaths among 1142 students
• Some schools delayed start of the fall semester: Berkeley, Minnesota
Emergency Management Planning
Working Group (EMPWG)
UVM Preparations for the 1918 Spanish Flu
Emergency Management Planning
Working Group (EMPWG)
Pandemic Plans at other
Colleges & Universities
Emergency Management Planning
Working Group (EMPWG)
A Look at Other Institutions’ Pandemic Plans
Plans consulted:
Arizona State University
University of California-Davis
Carnegie Mellon
Case Western University
University of Illinois
University of Indiana
University of Iowa
Loyola University
University of Maryland
Michigan State University
University of Michigan
University of Minnesota-Twin Cities
University of New Hampshire
University of North Carolina-Chapel Hill
Penn State University
Virginia Military Institute
Winston-Salem State University
Emergency Management Planning
Working Group (EMPWG)
A Look at Other Institutions’ Pandemic Plans
Three primary courses of action if pandemic occurs mid-semester:
1. “Temporary closure/multiple semester interruptions” -- suspend classes
and all but essential operations for several weeks
– 47% - Arizona State, Carnegie Mellon, Indiana, Maryland, UNC-Chapel Hill, Penn
State, VMI, Wright State
2. “Plan to plan” – decide what to do based on the unfolding situation
– 29% - Case Western, Illinois, Iowa, UC-Davis, UNH
3. “Remote instruction” -- continue instruction online or via other alternative
means
– 24% - Loyola, Michigan State, Minnesota School of Public Health, Winston-Salem
State
No schools plan to close for an extended period of time
(i.e., through multiple waves)
Emergency Management Planning
Working Group (EMPWG)
Vermont Institutions’ Pandemic Plans
Vermont has 25 colleges and universities, of these:
1. Three (12%) plan to evacuate and close completely
(up to one or two semesters):
– Champlain, Middlebury, Norwich
2. Two (8%) plan to evacuate, close temporarily, and/or
teach remotely:
– UVM, VTC
3. Twenty (80%) plan to plan or pandemic response not
known
– Remaining schools
Emergency Management Planning
Working Group (EMPWG)
UVM’s Plans to Respond to
a Flu Pandemic
Emergency Management Planning
Working Group (EMPWG)
Who’s Involved in UVM Pandemic
Planning Unit Representatives
Working Group
Co-chairs
Al Turgeon & Estelle Maartmann-Moe
4 undergraduate students
Student Gov’t Association
5 graduate students
Graduate Student Senate, HESA program
3 faculty
Medicine, Nursing
5 Staff
Admissions, Development, Registrar, Student Financial
Services, UVM veterinarian
18 Administrators/Directors
AFS, Athletics, CIO, Communications, Controller, Dining
Services, HR, International Education, Physical Plant, Police,
Procurement, Research, Residential Life, Risk Management,
Student Life, Transportation & Parking,
VT Dept of Health
Cort Lohff, MD; Wanda Cosman, RN
•
•
•
•
•
•
•
•
•
•
•
•
•
Agriculture – Skip Fanus
Business – Nicole Chittenden
Continuing Ed – Cathi Cody-Hudson
Engineering – Dan Harvey
Honors College – Patti Redmond
Extension - TBD
Rubenstein School - Shari Halik
Arts and Sciences – TBD
Medicine – Chris Grace
Education and Social Services – TBD
Nursing and Health Sciences – TBD
Development – Caroline Gilley
Fed, State and Community
Relations – Joe Speidel
• Others TBD
Emergency Management Planning
Working Group (EMPWG)
UVM Objectives for Pandemic Response
•
Minimize the risk of the pandemic flu to faculty, staff, and students;
•
Continue functions essential to the University’s continuity of operations during
a pandemic;
•
Continue non-essential operations during a pandemic as far as possible;
•
Support students who remain at UVM;
•
Demonstrate compassion and sensitivity in balancing the work requirements
of faculty and staff with their need to care for themselves and their families;
•
Support the federal, state, and local response to the pandemic within the
means available to the University;
•
Provide clear, accurate, and timely information to the University community
about the pandemic and the University’s response;
•
After the pandemic, resume normal teaching, research, and service
operations as soon as possible.
Emergency Management Planning
Working Group (EMPWG)
UVM Planning Efforts to Date
•
UVMer attendance at pandemic planning conferences, workshops, and other events
•
UVM participated in Statewide Pandemic drill
•
Emergency Management Planning Working Group formed in February 2007 with
developing a University pandemic response plan as its initial task
•
Emergency Operations Group led a training on the Incident Command System and a
tabletop exercise on an influenza pandemic in March 2007
•
Working Group is identifying key policy issues for resolution by President and senior
University administrators
•
Working Group is meeting with Deans, Directors, and Vice Presidents to discuss unit
planning efforts
•
Working relationships with key external partners--Fletcher Allen Health Care, the
State of Vermont and the Vermont Department of Health, the City of Burlington, and
other institutions of higher education in Vermont
•
Emergency website established with pandemic information
•
Two open forums on flu pandemic threat held for UVM community
Emergency Management Planning
Working Group (EMPWG)
A Pandemic will Interrupt Operations and
Threaten Institutional Continuity
• CDC advises to plan for multiple disease waves
• Each wave is expected to last 6-8 weeks in the local area, or 8-12 weeks on a national
scale
• CDC advises universities to close for up to 12 weeks in a high-severity pandemic, 4 weeks
in a medium-severity pandemic (no closure advised for low-severity pandemic)
Therefore…
• UVM needs a response plan that protects institutional continuity in the face of…
•
•
•
•
•
Uncertain pandemic duration
Uncertain pandemic severity
Uncertain number, frequency, and seasonality of pandemic waves
Tuition dependency
Health and safety risks
Emergency Management Planning
Working Group (EMPWG)
Normal Operations Will Pose Health Risks in a
Severe Pandemic
 Traditional on-campus classes and other social gatherings are counter to
community mitigation and social distancing measures advised by public
health officials

It will be in the best interest of students’ health to evacuate communal living
situations such as University residence halls and return home.
 If all students were to remain at UVM, the University would not have the
staffing or facilities to provide adequate medical care for the expected
numbers of ill students.
 Delays and interruptions in supply chains will create shortages of food and
other supplies. The University will not be able to feed and support its
normal on-campus residential population of 4,500 students.
Emergency Management Planning
Working Group (EMPWG)
Potential Courses of Action
1.
Close the University, continue only critical functions
2.
Close the University, continue critical functions and revenuegenerating functions
3.
Continue operations without students
4.
Sequester students on campus
5.
Multiple semester interruptions
6.
Transition to remote instruction
Emergency Management Planning
Working Group (EMPWG)
Decision Criteria for UVM Response Strategy
•
•
•
•
•
•
Protects health and safety of students, faculty, and staff
Protects business continuity of the University
Addresses the needs of students and parents in terms
of safety, quality of education/student experience,
equity, and affordability
Addresses the needs of faculty and staff in terms of
quality of education, occupational safety, and
employment practices
Is within institution’s capacity to deliver
Is consistent with the University’s public service role
Emergency Management Planning
Working Group (EMPWG)
UVM’s Pandemic Response Strategy
UVM will plan for a flexible response that consists of temporary closure
followed by
(a) on-campus instruction or
(b) remote instruction,
based on pandemic wave severity.
Why a flexible response?
• The University must be prepared to deliver instruction in order to maintain tuition revenues
-- remote instruction let us do that with the least risk
• The University should be prepared to close as an intermediate measure
• The University should be prepared to return students to campus if possible given
pandemic severity, for the least interruption to the student experience and institutional
continuity
• Planning for a flexible response may serve the University well in another emergency
Emergency Management Planning
Working Group (EMPWG)
UVM Planning Process
Emergency Management Planning
Working Group (EMPWG)
UVM Pandemic Planning Scenario
Emergency Management Planning
Working Group (EMPWG)
Base Response Plan Format
I. Introduction
II. Pandemic Threat & Risk Assessment
a. Planning Assumptions and Scenario
b. Pandemic Phases
c. University Campus Districts, Activities, and Populations
d. Impact Analysis
e. Critical & Essential University Functions, Vulnerabilities, and Campus
Locations
III. Pandemic Response
a. Mission & Objectives
b. Policies Supporting the Pandemic Response
c. Phases of Incident/Emergency Management
d. Organization & Assignment of Responsibilities (ICS)
Emergency Management Planning
Working Group (EMPWG)
Base Response Plan Format (continued)
e. Concept of Operations
i) Mitigation
ii) Preparedness
iii) Response
Academic Continuity
Research Continuity
Health Services and Safety
Administrative and Facilities Services
Information Technology Infrastructure and Business
Continuity
Human Resources and Financial Continuity
Enrollment Management and Student Affairs
Community Outreach and Service Continuity
Continuity of Governance/Line of Succession
University Interface with External Pandemic Response
Organizations
iv) Recovery & Demobilization
IV. Plan Management
Emergency Management Planning
Working Group (EMPWG)
Unit Continuity of Operations Plan Format
•Background Information for Pandemic Influenza
•UVM’s Core Planning Assumptions
•Your Unit’s Objectives
•Unit Planning Assumptions
•Emergency Communications Systems
•Emergency Access to Information and Systems
•Your Unit’s Essential Functions
•Social Distancing Measures: Alternative Work Arrangements and Scheduling
•Your Unit’s Leadership Succession
•Key Internal (Within UVM) Dependencies
•Key External Dependencies
•Mitigation Strategies and Preparation for a Pandemic
•Plan for Communicating and Exercising Your Pandemic Response & COOP
•Recovery after the Pandemic
•Special Considerations for Your Unit
•Additional Resources Needed for Your Unit
Emergency Management Planning
Working Group (EMPWG)
What’s Ahead
20 Sept – 30 Oct
WG uses scenario to perform functional analyses
WG teams draft key components of UVM plan
31 Oct – 6 Dec
Prepare draft UVM plan and appendices
2 Nov
VT higher education pandemic planning symposium
21 Dec
Issue first draft UVM pandemic response plan for review and comment
28 or 29 Jan
Unit planning training/kick-off meeting
11 Feb
Campus open forum
18 Mar
Campus open forum
1 May
Unit plans due to Deans/VPs
Emergency Management Planning
Working Group (EMPWG)
Norwich University’s Plans to Respond
to a Flu Pandemic
Emergency Management Planning
Working Group (EMPWG)
Norwich’s Choice to Close
•
•
Norwich University chooses to close its doors and
cease operations upon confirmation of the first case of
pandemic flu in North America
This approach was chosen for the following reasons:
– During times of uncertainty a conservative approach is
recommended
– We lack good information about when state and federal officials
will close transportation centers possibly stranding students on
campus
– Consultation with other university officials indicates that this is the
preferred approach
Emergency Management Planning
Working Group (EMPWG)
Middlebury College’s Plans to Respond
to a Flu Pandemic
Emergency Management Planning
Working Group (EMPWG)
Middlebury’s Planning Assumptions
1.
We will identify the threat before it reaches campus
2.
We will enforce the closure of the campus and require that students
evacuate in a rapid but orderly manner to their pre-designated
locations
–
–
–
The campus may be closed for several months, or 1-2 semesters
The College will not provide housing or dining services for students
during the closure
Others living in College student residences will also need to vacate
College buildings
Emergency Management Planning
Working Group (EMPWG)
Middlebury’s Planning Assumptions
3. All students must develop and record a personal plan for sustained campus
closure
– Evacuation plan requested from all students each year via web-based Banner
database
• Two evacuation locations with contact information and means of travel
• Willingness to transport or house other Middlebury students
– Students who have not entered a plan will not be permitted to register for
classes in the second semester after matriculation until a plan is entered
– The College will share the initial plan with families of students; subsequently,
students will update their families on their plans
– Students can update their plan at any time
– Students should have access to a rideshare board
– Data from student plans may be used by the College for evacuation planning
purposes
– A website may be created to assist students in creating an effective evacuation
plan
– The College will use software to advise students about driving distance/ time
from Middlebury
– The College may support student initiatives in organizing shared transportation
Emergency Management Planning
Working Group (EMPWG)
Middlebury’s Planning Assumptions
4. Students are responsible for the validity and execution of their plans
– Failure of a student to execute a personal evacuation plan will not
entitle the student to receive shelter or services from the College after
the College is closed
– If a personal evacuation plan fails, the student is responsible for quickly
developing an alternate plan
– Students, not the College, will be responsible for communicating with
their families during an evacuation. We assume that students will use
their own or a friend’s cell phone for communication during an
emergency
– In an emergency the College may not have ready access to student
evacuation plans, and it cannot assume responsibility for
communicating information about students’ plans or locations during an
evacuation
Emergency Management Planning
Working Group (EMPWG)
Middlebury’s Planning Assumptions
5. The College will develop a Rapid Alert System to communicate
closure to the Middlebury Community
–
–
The system may change as technology progresses, but it would
likely include announcements on the web, a dedicated telephone
line, and effective use of area media
The system may also be used to request that fellow students,
regional alumni, and local citizens temporarily house those students
in need
6. The College may make available some recommended and safe
practices for the temporary hosting of students in private homes
7. We anticipate that 20-40% of all workers will be unable to perform
duties because of death, illness, or family demands during the period
of closure
Emergency Management Planning
Working Group (EMPWG)
Middlebury’s Planning Assumptions
8. College infrastructure and facilities will remain intact as long as the
human resources required for servicing them are available
9. The College will begin to develop a Mission Continuity Plan that, in the
event of a long-term closure, might enable many students to continue
their education and progress toward graduation
10. The College will strive to treat students and their families fairly with
respect to reimbursement of fees paid in the event of a closure
11. In a long-term closure, the College will strive to maintain operations
that are mission-critical, for example, payroll operations, admissions
program, College advancement function, and provision of web
services. The ability to maintain such operations will of course depend
upon the severity and nature of the emergency.
Emergency Management Planning
Working Group (EMPWG)
Middlebury’s Planning Assumptions
12. The College will make every effort to continue meeting payroll and
providing benefits to employees, although the severity of a crisis
could limit its capacity to do this
13. We will attempt to reopen as soon as it is medically safe to do so,
while taking into account the time in the academic year schedule
when a pandemic occurs. For example, even if it were safe to
reopen on December 8 we probably would not do so until early
January
14. In Communicating about pandemic planning, the College will aim for
a balance between encouraging people to take the pandemic
planning efforts seriously and creating a sense of panic in the
community
Emergency Management Planning
Working Group (EMPWG)
Middlebury Pandemic Alert Levels
Emergency Management Planning
Working Group (EMPWG)
Middlebury Response Protocol
Emergency Management Planning
Working Group (EMPWG)
Middlebury Response Protocol
Emergency Management Planning
Working Group (EMPWG)
Middlebury Response Protocol
Emergency Management Planning
Working Group (EMPWG)
Questions?
Al Turgeon
Working Group Chair, Executive Assistant to VP for Finance & Enterprise Services
University of Vermont
albert.turgeon@uvm.edu
802-656-9904
W. Mark Peluso
Director, Health Center
Middlebury College
wpeluso@middlebury.edu
802-443-5135
Mark Doughty
Health & Safety Officer
Norwich University
mdoughty@norwich.edu
802-485-2696