Legal Issues: Alabama Department of Public Health Fatality Management Conference

Legal Issues
Alabama Department of Public Health Fatality Management Conference

John R. Wible, General Counsel Brian Hale, Associate General Counsel Greg Everett, General Counsel, AlaHA
ADPH, 2008 1
OBJECTIVES - OUTLINE

State/County Public Health Powers The Nature of Emergencies
Proclamations and Declarations Orders and Powers federal and state
Quarantine State and Federal Cross Border Issues Jurisdictional Conflicts Decedents Issues First Amendment Problems
ADPH, 2008 2
Powers of State Board of Health and Health Officer
Functions of the State Board of Health Supervise county health officers and Boards Advise Governor on disease outbreaks Declare and abate nuisances Declare and abate diseases outbreaks Isolate, commit and treat infected persons Proclaim and supervise quarantine Supervise ESF-8 (See State EOP) ADPH Incident Commander
ADPH, 2008 3
Measures Available Without Emergency Declaration

To control communicable disease, public health can exercise certain measures without declaring public health emergency -- including

Mandatory Surveillance Quarantine/Isolation Travel Restrictions Contact tracing Vaccinations/Medical Examinations

ADPH, 2008 4
Government Authority to Act in Emergencies: Model

100
100 0
Prevention/ Preparedness Response Mitigation Recovery
100
0
Legal authority is at its peak at the emergencys peak As crisis comes under control, legal authority is subject to greater legal constraints
100
0
And attention shifts to
Prevention/ Preparedness
ADPH, 2008
Response
Mitigation
Recovery
responsibility for costs and damages/losses
What are Public Health Emergencies?
Stand-Alone Public Health Emergencies
Public health emergencies w/o other emergency conditions E.g. Food-borne outbreak, school measles or TB outbreak
Combined Public Health Emergencies
Additional, complicating emergency conditions exist E.g., earthquake/hurricane/tornado impacts water, sanitation and/or medical infrastructure
ADPH, 2008 6
Declarations and Proclamations

What are Declarations and Proclamations?
Public announcements
Legal determinations

Made by an authorized government official
Triggering special emergency powers

Allowing expenditure of emergency funds
ADPH, 2008 7
Emergency Declarations
Red Scare Genesis of Emergency
management Under Code of Ala.1975, 31-9-2,Governor proclaims an emergency defined as:
Enemy attack, sabotage or other hostile action; Fire, flood and other natural causes.
Public Health Emergencies, a special class

ADPH, 2008 8
Governors Powers
Governor Bob Riley (R) Alabama
Typically, the Governor has authority to: Make orders, rules and regulations; To utilize all state employees; To utilize any state or local officers or agencies, granting state officer immunity to such, including volunteers.
ADPH, 2008 9
Emergency Orders Drafted or Contemplated

Proclamation of State of Emergency Fatality Management Issues Altered Standards of Care Vaccine Rationing Isolation and Quarantine Social Distancing closing mass events
ADPH, 2008
10
Key Federal Declarations

Public Health Emergency
Stafford Act Emergency Stafford Act Major Disaster
ADPH, 2008
11
The Stafford Act

Stafford Act is the principal discretionary federal authority to assist state and local governments in responding to catastrophic events of any type
Activated by presidential declaration of a major disaster or an emergency
The Stafford Act provides for federal authorities and funds to:

Plan and provision pre-event Send equipment and FEMA manpower in-event
Send the Army is a catastrophic event (though not for police power functions)
Back pay post-event
ADPH, 2008 12
Public Health Emergencies: Federal

Secretary of HHS can declare Public Health Emergency under 319 of The Public Health Services Act
Emergency lasts for 90 days, unless earlier terminated, or extended, by Secretary Under declaration, Secretary may take such action as may be appropriate to respond to the public health emergency
ADPH, 2008 13
What is Quarantine?
Isolation is when youve got it while Quarantine is when you might have it. Ancient History What happens and how does it work?
ADPH, 2008
14
Federal Quarantine/Isolation
The Surgeon General/CDC, may detain, examine, or conditionally release persons suspected of carrying certain communicable diseases. 42 USC 264 Authority applies only if the communicable disease has been designated in an executive order of the President

SARS was added to list in only two weeks Avian flu was added to the list in April 2005
ADPH, 2008 15
Procedural Requirements
Federal statutes specify few procedural requirements for imposition Constitution requires due process when depriving an individual of liberty

Notice and hearing requirements Showing detention needed to protect public health Right to counsel; reviewable final decision Access to food, water, medical supplies & treatment Basic needs for survival
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Provision for the following is required:

Encouraging Voluntary Compliance

Large quarantine with consent of those involved is more effective Even with voluntary compliance, there are factors that undercut compliance:
Lost wages or income Groceries and essential services Boredom
ADPH, 2008 17
Alternatives to Mandatory Quarantine/Isolation

In lieu of quarantine, the objective of preventing transmission of disease may be met by:
Use of masks, gloves Snow Day and Shelter-in-Place Voluntary isolation/quarantine (in designated facility) Telephone monitoring in the home Work Quarantine Active use of law enforcement officers to serve process and monitor
These options are less restrictive alternatives to mandatory quarantine

ADPH, 2008
18
Cross Border Issues
Commerce Clause Interstate Commerce Closing the Border

Interstate Transportation of Dead Bodies EMAC and licensing issues Full Faith and Credit Issues DoD Authority

Governor US PHS Quarantine
Insurrection Act
Posse Commitatus Act
John Warner National Defense Auth. Act 2007

ADPH, 2008 19
Jurisdiction Issues at the Scene

State / Local Agencies

Sheriff and Local law enforcement agency Fire and Medical personnel HazMat Team/Bomb Squad/Radiation and Biohazard Personnel State/County Public Health Coroner/ME jurisdiction of the body
Federal Agencies PDD-39

FBI domestic terrorism, NBC incidents FAA/NTSB airline/transportation incidents FEMA consequence management HHS/CDC public health events Homeland Security -Major Events (HSPD-5) HHS Components: CPB, ICE and Coast Guard
ADPH, 2008 20
Jurisdictional Quandary
What to do with conflicts?
Its confusing at best at a mass scene, so use ICS Procedure form a Unified Command
ADPH, 2008
21
Decedents Issues
Interstate Transport Non-Traditional Burial

Local Cemetery Establishment Regulation Record-keeping Funeral Directors signatures 24 hour cremation rule Re-interment Non-desecration (abuse) of a corpse
5-Year declaration of death

ADPH, 2008 22
Conflicts with Religious Beliefs First Amendment

Congress shall make no law respecting an establishment of religion, or prohibiting the free exercise thereof. . . Religious Freedom Restoration Act.
Cheema v. Thompson Sikh knife Case

Burial practices, vertical monuments prohibited
Animal Sacrifice prohibition
Warner v. City of Boca Raton
Church of the Likumi Babalui, Inc. v. City of Hialea
Hill v. State (Ala. 1956) Snake handling

State laws/rules protecting public health and safety
OK if minimal infringement of religious liberty.
ADPH, 2008
23
Shakespeare Said:
"The first thing we do, let's kill all the lawyers"
Well, maybe not. But lets not let the lawyers get in the way of good public health.
ADPH, 2008 24

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Legal Issues

Alabama Department of Public Health Fatality Management Conference

State/County Public Health Powers The Nature of Emergencies

Proclamations and Declarations Orders and Powers federal and state

Powers of State Board of Health and Health Officer

Measures Available Without Emergency Declaration

Mandatory Surveillance Quarantine/Isolation Travel Restrictions Contact tracing Vaccinations/Medical Examinations

Government Authority to Act in Emergencies: Model

And attention shifts to

responsibility for costs and damages/losses

What are Public Health Emergencies?

Stand-Alone Public Health Emergencies

Combined Public Health Emergencies

Declarations and Proclamations

Made by an authorized government official

Triggering special emergency powers

Public Health Emergencies, a special class

Emergency Orders Drafted or Contemplated

Key Federal Declarations

The Stafford Act

Activated by presidential declaration of a major disaster or an emergency

Public Health Emergencies: Federal

Provision for the following is required:

Encouraging Voluntary Compliance

Alternatives to Mandatory Quarantine/Isolation

These options are less restrictive alternatives to mandatory quarantine

Cross Border Issues

Commerce Clause Interstate Commerce Closing the Border

Governor US PHS Quarantine

Posse Commitatus Act

John Warner National Defense Auth. Act 2007

Jurisdiction Issues at the Scene

Federal Agencies PDD-39

Interstate Transport Non-Traditional Burial

5-Year declaration of death

Conflicts with Religious Beliefs First Amendment

Cheema v. Thompson Sikh knife Case

Warner v. City of Boca Raton

Church of the Likumi Babalui, Inc. v. City of Hialea

Hill v. State (Ala. 1956) Snake handling

OK if minimal infringement of religious liberty.

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