The Canadian Pandemic Influenza Plan for the Health Sector

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Annex K: Communications

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Preface - August 2009

In mid-March of 2009, the Government of Mexico began tracking an increasing number of cases of influenza-like illness in the state of Veracruz. Tests of Mexican samples, conducted by Canada's National Microbiology Laboratory at the request of Mexico, confirmed the outbreak of H1N1 influenza virus in late April. Also in late April, the first cases of the same H1N1 influenza virus were confirmed by health authorities in Canada and the United States. By the following month, the H1N1 virus was spreading rapidly not only in Mexico, the United States and Canada but also in several other countries around the world.

On June 11, 2009 the World Health Organization (WHO) declared a global pandemic on the basis of uncontrolled spread of the H1N1 influenza virus. A second wave of the pandemic is expected in Canada by the 2009 influenza season.

While this updated Communications Annex (Annex K) of the Canadian Pandemic Influenza Plan for the Health Sector is not specific to the H1N1 influenza virus pandemic of 2009-2010, it will continue to serve as the guideline for federal, provincial and territorial governments' communications during the response and recovery phases of the H1N1 pandemic.

During the 2009 periods of interpandemic, pandemic alert and pandemic phases, the federal, provincial and territorial (F/P/T) governments worked in close collaboration on ongoing disease surveillance; laboratory testing; analysis of epidemiological data on the evolving virus to inform future public health actions; research into vaccines and appropriate diagnostic and treatment actions; and development of protocols, guidelines and updates for health care professionals. As well, governments coordinated public health measures to minimize community transmission and to mitigate the effects of the H1N1 virus on Canada's health care system.

Communicating frequently and effectively with Canadians about H1N1 influenza virus symptoms, infection prevention, minimizing spread of the virus and when to seek treatment has been a major feature of that F/P/T government cooperation.

Throughout the pandemic alert and pandemic phases, staff of the F/P/T governments have regularly consulted with each other and worked together in developing risk communications plans and implementing a broad range of public information actions consistent with the goals and principles of the Canadian Pandemic Influenza Plan. These cooperative communications actions included: developing and using common pandemic message frames; sharing news release and media material; conducting technical media briefings and updates on pandemic developments in Canada and abroad; participating in the implementation of a social marketing strategy on infection and prevention control; and directing Canadians seeking information about the H1N1 influenza virus and public health information to a web-based F/P/T pandemic information portal, www.fightflu.ca.

1. Introduction

The objective of the Communications Annex is to show how Canada's health partners are preparing to respond to the public communications challenges associated with an influenza pandemic. Canadians will need accurate, timely and consistent information so that they can take appropriate action to help minimize death, illness and social disruption. The Communications Annex was developed in partnership by F/P/T governments through the Special F/P/T Advisory Committee (SAC) on H1N1 Flu Virus.

The strategies outlined here provide the framework for consistent and coordinated public communications across all involved organizations. Strategies and tactics outlined in this document provide guidance to the organizations identified and will be implemented pending available resources.

The Annex outlines a cascading approach to pandemic communications that is closely aligned with the WHO's pandemic phases. Roles, responsibilities and strategies are outlined by jurisdiction and by WHO pandemic phase, so that communications are appropriate to the threat level. Currently, activities for the interpandemic, pandemic alert and pandemic periods are identified. The Annex reflects current thinking on pandemic influenza communications and will continue to be revised as the plans of organizations evolve and new information and research become available.

Pandemic influenza communications planning is based on a strategic risk communications approach. This means that we would openly communicate pandemic influenza risks and control options, and that assumptions, values, methods and plans will be clear and accessible. Where facts are uncertain or unknown, the strategic risk communications approach supports transparency about information gaps and efforts to fill them.

The strategies outlined here are designed to promote well-coordinated, effective communications from F/P/T governments and other health partners. Each level of government in Canada has unique stakeholders and responsibilities. The Communications Annex acknowledges these differences while reflecting the ongoing need for all levels of government to deliver consistent messages during an influenza pandemic.

Operational plans for public communications will reside within the specific organizations involved in the response to an influenza pandemic. The Communications Annex provides a working tool to ensure that these operational plans are closely tied to the roles and responsibilities highlighted here.

Provincial, territorial health ministries and/or local authorities assume lead responsibility for public communications within their jurisdiction. If the pandemic moves beyond a single province/territory (P/T) or if a national emergency is declared, the Public Health Agency of Canada (PHAC) is the lead organization for national health communications, providing leadership in coordination of communications strategies and activities and in ensuring consistent messaging.

2. Interpandemic Phase – National Communications Goals

2.1 Citizen

To raise awareness of the threat of pandemic influenza (and other types of influenza) by building on annual influenza campaigns, leading to better self-protective measures.

2.2 Stakeholders/partners

To develop a comprehensive pandemic plan, with clearly identified roles and responsibilities, aligned with risk communications.

2.3 Organizational

To demonstrate leadership and coordination among jurisdictions in influenza and pandemic preparedness.

• 2.3.1 Public Health Agency of Canada
• 2.3.2 Health Canada
• 2.3.3 Provinces/Territories

3. Pandemic Alert Phase - National Communication Goals

3.1 Citizen

To inform citizens that organizations are mobilizing and that there is an elevated/increasing risk. Implementation of self-protective measures (if in Canada) so that citizens can develop a personal/family plan.

3.2 Stakeholders/partners

To communicate elevated/increasing risk signaling the need to start mobilizing their organizational plans. Alignment of response and messages.

3.3 Organizational

To demonstrate active leadership and alignment of risk minimization – morbidity, mortality and social disruption – and response activities (performance), while guaranteeing readiness to act (in case of escalation). Alignment of response and messages.

• 3.3.1 Public Health Agency of Canada
• 3.3.2 Health Canada
• 3.3.3 Provinces/Territories

4. Pandemic Phase – National Communications Goals

4.1 Citizen

To promote implementation of family/personal plans and encourage people to seek and follow direction from authorities.

4.2 Stakeholders/partners

To mobilize their plan fully and to follow direction from authorities. Alignment of response and messages.

4.3 Organizational

To demonstrate ongoing and effective management. Alignment of response and messages.

• 4.3.1 Public Health Agency of Canada
• 4.3.2 Public Safety Canada
• 4.3.3 Provinces/Territories
• 4.3.4 Provinces/Territories

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