This page describes the role of organisations across government during a pandemic, including the Health and Safety Executive (HSE). It provides links to information about the devolved administrations in Scotland, Wales and Northern Ireland.
The page also explains the arrangements employers should make to prepare for a pandemic situation and how to respond if one is declared.
What a pandemic is
A pandemic is where an infectious disease spreads across whole countries, international boundaries or continents at the same time. It is usually driven by a new biological agent (virus, bacteria, fungi or other organism) to which there is no population immunity.
The last pandemic was caused by COVID-19 and previous pandemics were caused by pandemic influenza viruses. Pandemic influenza can occur when a new influenza virus emerges which is markedly different from recently circulating strains and to which humans have little or no immunity.
The next pandemic could be caused by any infectious agent.
Department of Health and Social Care’s role
Public health plays a crucial role in managing pandemics. The Department of Health and Social Care (DHSC) is responsible for public health in the UK, in conjunction with the UK Health Security Agency (UKHSA) and the devolved administrations in Scotland, Wales and Northern Ireland. Infectious diseases surveillance is conducted throughout the year by the following public health agencies in each of the UK nations:
- UK Health Security Agency
- Public Health Scotland
- Public Health Wales
- HSC – Northern Ireland Public Health Agency
During a pandemic situation DHSC, on behalf of the government and devolved administrations, will publish public health guidance for the general public, different environments and workplaces.
You can find more information on the roles of DHSC, UKHSA and the NHS during a pandemic, including one involving influenza, in:
- Framework for managing the response to pandemic diseases (NHS England)
- Standing Committee on Pandemic Preparedness (GOV.SCOT)
- Pandemic flu (on GOV.UK)
HSE’s role
HSE is not responsible for declaring a pandemic or a challenging situation such as a national emergency. However, once a pandemic has been officially declared, HSE will adopt a proportionate approach to enforcing the law so dutyholders and employers, and others, can manage risks effectively and proportionately.
Under the Health and Safety at Work Act, employers have a general duty to ensure, so far as is reasonably practicable, the health, safety and welfare of their employees at work. If an employer is correctly following the relevant public health guidance for their sector, they will be taking reasonably practicable precautions to control workplace risks.
During a pandemic situation, HSE may publish workplace-specific guidance to help employers and employees implement public health advice. HSE will also produce additional workplace-specific guidance, when required, by working closely with:
- other government departments (such as UKHSA)
- industry bodies
- relevant groups and organisations (for example the Advisory Committee on Dangerous Pathogens, the NHS, the Department for Environment, Food and Rural Affairs, or the Animal and Plant Health Agency if the biological agent is a zoonotic agent)
- trade union representatives
What employers should do
Depending on an employer’s work activity, they should consider the possibility of a pandemic situation as part of their wider emergency arrangements. Although a pandemic declaration is likely to impact most employers, some workplaces will be affected more quickly and in a more significant way. For example, a health-related employer such as an NHS trust will be greatly impacted by a pandemic situation, so employers should consider how they will be prepared to respond.
If a pandemic is declared, there will be public health guidance and advice associated with that declaration and in some cases legal requirements may be enacted by the government.
A pandemic can be caused by different types of biological agents, so it is not possible to predict the specific nature of public health guidance and how this could impact different types of workplaces.
During a pandemic, employers should look out for:
- public health guidance from DHSC etc
- specific workplace guidance, most of which is likely to be published by HSE
Fit testing capacity for respiratory protective equipment
Risk assessments should be carried out:
- as part of scenario planning for a pandemic
- during a pandemic itself, or
- as part of pre-empting how an organisation might respond to a pandemic situation
If these risk assessments identify that people will be required to wear tight-fitting respiratory protective equipment (RPE), dutyholders must ensure they have sufficient capacity to carry out fit testing. In this context, capacity means access to both:
- competent people to carry out fit-testing procedures, and
- the associated equipment, such as the solution required during the tests
This can be achieved by having either in-house expertise and facilities, or using competent third-party providers who can carry out the fit-testing procedures, such as those in the Fit Test Providers Accreditation Scheme.
Taking into account the likely demand for such expertise and equipment in the event of a pandemic, these assessments and/or plans should be realistic. You should consider whether internal expertise or external support can be scaled up at short notice if arrangements are in place.
Being able to access the RPE itself is not the only requirement. Organisations that do not usually use this type of equipment, but find themselves needing it as part of the assessment process, must take additional measures. These include:
- gaining sufficient knowledge of fit-testing requirements
- ensuring the RPE is provided
- implementing systems to ensure affected people are provided with suitable information, instructions and training to ensure the RPE can be used effectively
Find out more
There is general guidance on fit testing basics. This includes links to advice on fit testing for the employer and those conducting fit tests.
Deliberate work with a pandemic biological agent
As a pandemic is caused by a biological agent, research and diagnostic activities will be required by many dutyholders, such as:
- universities
- public health organisations
- research institutes
- microbiology diagnostic laboratories in hospitals
- commercial organisations developing diagnostic tools
Employers have a responsibility to protect workers doing planned work with biological agents, for example in laboratories. You can find more guidance on deliberate activities with biological agents.
In some circumstances, research or other type of activities may need to be carried out with biological agents with pandemic potential. For example, in the case of the influenza virus, strains with pandemic potential may need to be handled during deliberate activities in laboratories. The Advisory Committee on Dangerous Pathogens has advice on Experimental working with influenza viruses of pandemic potential.