Aims of the strategy
The purpose of this EqIA is identify how Dorset Council will respond if the call was made by central government to mobilise COVID-19 variant surge testing.
This impact assessment has been developed using the following methods:
- desk top analysis of current guidance, finding and research (both local and national)
- feedback and evidence from partners involved in Dorset Together
- data intelligence from various resources including Dorset Together and Trusted Voices
This impact assessment is based on a situation that is constantly evolving with new evidence emerging on a regular basis about the nature and extent of COVID-19 variants, a most recent case were surge testing took place was in Lambeth, a suburb of London.
As a result, this EqIA should be viewed as very much a ‘live’ document and be used by the council and partners to inform decision-making during potential variant outbreaks and will be updated as and when necessary e.g. when new information becomes available or if an outbreak happens.
Operation Eagle will be invoked in the instance that COVID-19 variants of concern (VOC) have been identified, via genome sequencing and HM Government requests that surge testing be carried out in specific postcode area/s in the Dorset Council area. Residents in the affected post code area/s will be requested voluntarily to carry out a COVID-19 surge test whether they have symptoms or not. This will enable Dorset Public Health, working closely with Public Health England (PHE), NHS Test & Trace and the Joint Biosecurity Centre (JBSC) to closely monitor any community spread of new variants and restrict further transmissions.
Surge testing is increased testing (including door-to-door testing in some areas) and enhanced contact tracing, it was introduced by the government in February 2021. Surge testing and genomic sequencing is being used to monitor and suppress the spread of coronavirus and to better understand new variants. It can involve mobile testing units (MTUs) and test collect and drop points in various locations within the postcode area/s, there may also be requirements for door-to-door testing as the first testing to be implemented, whilst the team assess the situation further and if further testing services are required. This supports the dynamic and evolving testing approach.
The provision for assisted testing should be offered if anyone should request this. Assisted testing will be available at the mobile testing unit (MTU) drive through and walk-in sites. Testing vans, if used as an alternative where no suitable collection and drop of hub exists, will also have the capacity to offer assisted testing.
People will be asked to self-test at home or seek support from family member or friend to carry out the swab for them. If there is a genuine request to support swabbing in the person’s home (this will need to be extenuating circumstances) a request will be made to the Testing Cell who will review and seek assisted swabbing. There is a very limited resource for assisted swabbing and will be done on a case by case approach.
Planning and delivery of COVID-19 variant surge testing in Dorset will be known as Operation Eagle, this will detail how the council and other partners would deliver surge testing, however, if a variant is identified, dynamic decisions will have to be taken at the time of activation based on the nature, location and scale of testing required and the prevailing circumstances at that present time.
If a variant is identified, Dorset Local Resilience Forum will be notified of the request to implement Operation Eagle by the Department of Health and Social Care (DHSC) via the Director of Public Health, during office hours or the Public Health Dorset (PHD) on call consultant out of hours and a plan of action will be put in place, often very short notice is give, so something that would normally be planned weeks in advance can be launched in less than 24 hours’ time.
The Dorset Council Emergency Planning Duty Officer will be notified by Public Health Dorset that a formal notification to test has been received and will invoke Operation Eagle.
Current symptomatic and asymptomatic testing provision will continue to operate and are separate to Operation Eagle.
Background to the proposal
On the 23 March 20, the UK government imposed a 'lockdown', banning all 'non-essential' travel and contact with people outside one's home and closing non-essential businesses, venues, amenities, and places of worship.
COVID-19 can make anyone seriously ill, but for some people the risk is higher. The NHS have defined two levels of risk:
- very high risk (clinically extremely vulnerable)
- high risk (clinically vulnerable)
A full list of who is potentially included in each of these levels of risk can be found on NHS.UK - people at higher risk from coronavirus.
As the COVID-19 pandemic has evolved emerging data is starting to show that COVID-19 is having adverse impacts on people with certain characteristics. Public Health England in their recent research have found the following information
- COVID-19 diagnosis rates increased with age for both males and females
- working age males diagnosed with COVID-19 were twice as likely to die as females
- among people with a positive test, when compared with those under 40, those who were 80 or older were seventy times more likely to die.
- people from Black ethnic groups were most likely to be diagnosed. Death rates from COVID-19 were highest among people of Black and Asian ethnic groups.
- an analysis of survival among confirmed COVID-19 cases and using more detailed ethnic groups, shows that after accounting for the effect of sex, age, deprivation and region, people of Bangladeshi ethnicity had around twice the risk of death than people of White British ethnicity. People of Chinese, Indian, Pakistani, Other Asian, Caribbean, and Other Black ethnicity had between 10 and 50% higher risk of death when compared to White British
- people who live in deprived areas have higher diagnosis rates and death rates than those living in less deprived areas. The mortality rates from COVID-19 in the most deprived areas were more than double the least deprived areas, for both males and females.
- there were 54 men and 13 women diagnosed with COVID-19 with no fixed abode, likely to be rough sleepers., this estimate to represent 2% and 1.5% of the known population of women and men who experienced rough sleeping in 2019.
The results of this very recent research need to be considered and future work should consider that some population groups are more adversely affected by this virus.
The next relaxation of lockdown restrictions is Stage three due no earlier than 17th May with the following, which will hugely increase the tourism foot fall to Dorset being an area of natural outstanding beauty:
This is what will be allowed
- people can meet in groups of up to 30 outdoors
- six people or two households can meet indoors
- domestic overnight stays allowed with people not in your household or bubble
- pubs, restaurants, and other hospitality venues can seat customers indoors
- up to 30 people can attend weddings or other life events, like christenings
- remaining outdoor entertainment, such as outdoor theatres and cinemas can open
- indoor entertainment such as museums, theatres, cinemas, and children's play areas can open
- performances and large events can restart, but with limits on audience numbers
- hotels, hostels and B&Bs can reopen
- international leisure travel may resume
- adult indoor group sports and exercise classes can restart
Stage four (no earlier than 21 June):
This is what will now be allowed
- it's hoped all legal limits on social contact will be removed
- no legal limits on the number of people who can attend weddings, funerals, and other life events
- nightclubs will be allowed to reopen
The four tests for easing restrictions are
- the coronavirus vaccine programme continues to go to plan
- vaccines are sufficiently reducing the number of people dying or needing hospital treatment
- infection rates do not risk a surge in hospital admissions
- new coronavirus variants do not fundamentally change the risk of lifting restrictions
Dorset Council has an established Corporate Incident Management Team (IMT) who can be stood up at pace, the purpose of this group was to coordinate activity for the lifecycle of the incident and will continue to manage any postcode variants.
Further information about the work of each of these groups and Dorset Council's response to COVID-19 can be found in the following committee reports:
- Dorset Council Cabinet - Covid 19 (Dorset Council Cabinet meeting held on the 5 May 2020)
- Resources Scrutiny Committee - Covid-19 response (Dorset Council Resources Scrutiny Committee held on the 2 June 2020.
Intelligence and Communication
Data, information, evidence and research used and how it has influenced the decision-making process
The following sources of data have been used:
- Census and Office for National Statistics (2011-2018) taken from Dorset Insight State of Dorset 2019
- information collated by the sub-groups within the Community Shield Cell at Dorset Council
- Local Government Information Unit (LGIU) Briefing Note: Local government and COVID-19 - issues for disadvantaged groups (April 2020)
- Local Government Association COVID-19 Testing case studies
- Public Health England; Disparities in the risk and outcomes of Covid-19 (June 2020)
- the Equality Act 2010 and Public Sector Equality Duty - guidance notes
Census and Office for National Statistics have provided information on the breakdown of Dorset residents and some of the key headlines are:
Population total of 376,480 of which:
- 51.1% is female (192,380)
- 48.9% is male (184,100)
- 28.6% is aged 65+ years (107,810)
- 55.4% is aged between 16-64 years (208,740)
- 95.6% identify as White British
- 4.4% identify as Black and minority ethnic
- 1.7% main language is not English
- in 2018 1,045 NINos (National Insurance numbers) were all allocated to adult overseas nationals this is a decline of 7.5% on the allocated in 2017
- 65.1% of the population identify as Christian
- 25.4% have no religion
- 80.9% of residents report having very good or good health
- 11.9% of residents provide unpaid care
- 182,677 residential properties in Dorset
-
72.4% are owner occupied
-
13.7% are privately rented
-
40.5% of dwellings are detached and 15.6% are flats/maisonettes
-
15.2% have no car or van in the household
-
170,602 residents aged 16-74 in employment
-
4,491 households include an Armed forces person
-
12,110 parents identify as being a lone parent
Dorset Explorer (mapping tool), provides a wealth of geographical information about Dorset, has been configured to include an additional layer to provide Operation Eagle information such as areas of deprivation, numbers of households in postcode areas and infrastructure information such as care homes, schools, workplaces data.
Further information needed to help inform this proposal
An analysis of Trusted Voices membership, as these members could help to deliver messages and encourage testing either in specific communities or more generally across a postcode area.
Engagement or consultation that has taken place as part of this EqIA
The initial desktop analysis was developed during April 2020, this was shared with the following for information and feedback
| Date | Activity | Status |
|---|---|---|
|
April - ongoing |
Initiated the development of the EqIA, group members have assisted with scoping the plan |
Complete |
|
Late April 2021 |
Virtual draft EqIA discussion with Marc Eyre – Emergency Planning Service Manager - Assurance Susan Ward-Rice, Diversity & Inclusion Officer Lynn Reynolds – Digital and Change Project Manager |
Complete |
|
Early-May 2021 |
Draft EqIA circulated to Operation Eagle champions for comments and feedback. |
Complete |
|
Mid May-2021 |
Virtual discussions with councillors. The focus of these discussions to enable councillors to provide insights into the impact of possible COVID-19 variants in their wards, parishes, and town councils feedback on the draft EqIA. The communications plan helps to engage and deliver this |
In action Plan for Paul Beecroft to manage |
|
Mid May-2021 |
Discussion of final draft with EqIA group to sign off - SWR |
Complete |
|
Mid June 2021 - Onwards |
Operation Eagle to manage action plan |
Not Started |
Feedback
As this in an evolving piece of work, consultation is not required. There will be briefings to town and parish councils, wards, and councillors to keep them up to date on the project.
Assessment
Impacts of the strategy
| Impact on who or what | Effect | Details |
|---|---|---|
|
Age |
Neutral |
If there is a variant outbreak in a postcode area, information stored on Dorset Explorer will detail the demographics of that area, including age. Operation Eagle will involve every person over 16 living and working in the area identified to be strongly encouraged to take a COVID test, whether they are showing symptoms or not. Mobile testing units could be deployed in the specified postcode area to offer testing and collect and drop points could also be set up in various locations. Although the risk for severe illness with a COVID-19 variant still remains with age, even for those who have been vaccinated, Operation Eagle is a voluntary programme and residents and workers in the specified postcode will be strongly encouraged to be tested. If someone requires assisted testing this will be offered. Assisted testing will be available at mobile testing unit drive through and walk-in sites. Testing vans, if used as an alternative will also have the capacity to offer assisted testing. People will be asked to self-test or seek support from family member or friend to carry out the swab for them. If there is a genuine to request to support swabbing in a person’s home a request will be made to the Testing Cell, but this is a limited resource. As part of its engagement work, Public Health Dorset has initiated COVID-19 Trusted Voices; a network of community organisations, who Public Health Dorset will work with to get local messages out into communities. Children and young people: All secondary schools and colleges in Dorset are already offering pupils and students COVID-19 testing (rapid lateral flow tests) to carry out at home. Pre-school children and primary aged pupils are not tested with rapid lateral flow tests, but staff are testing on a regular basis. |
|
Disability: (including physical, mental, sensory and progressive conditions |
Unclear |
f there is a variant outbreak in a postcode area, information stored on Dorset Explorer will detail the demographics of that area, including disability and long-term health conditions. Operation Eagle will involve every person over 16 living and working in the area identified to be strongly encouraged to take a COVID test, whether they are showing symptoms or not. Mobile testing units could be deployed in the specified postcode area to offer testing and collect and drop points could also be set up in various locations. There are things we need to consider for different disabilities and long-term health conditions:
People may not have access to accessible information, so may not be aware of that there is a variant outbreak and the need to test. Any communications on a website needs to be accessible and alternative formats may be needed for any written communication.
There may be different levels of signing and literacy skills, so any messaging needs to be clear and concise and key information in a variety of formats, e.g. British Sign Language video, SMS text, email and testing staff should have access to interpreting services Face masks may profoundly affect the ability for people to lip-read and hear
People with learning disabilities may be more impacted by COVID-19 and experience reduced health outcomes compared to people who do not have learning disabilities. Complex and changing information may be difficult to understand, some people may need support to interpret information. Although easy read is recommended for use, it can time to translate information into easy read and there is a risk that due to the pace of change, that any information becomes quickly out of date. Any communications need to be plain English.
Some people may find changes in routine and services challenging, causing anxiety and stress to themselves but also their carers. Nuances in national guidance and local guidance can be confusing can lead to stress. Communication messages need to be factual and clear about what is expected of people and how they can participate. Also need consistent with messages or provide reasons for the change.
It is well documented that older people, people who have long term health conditions or a disability may be particularly vulnerable to COVID-19 and any variants and may experience reduced health outcomes. This group of people may have also been shielding for several months. Mitigating actions:
|
|
Gender Reassignment & Gender Identity: Sexual orientation: Marriage or civil partnership: Single parent families: |
Neutral |
At this present time, we do not anticipate Operation Eagle having an impact on this protected characteristic |
|
Pregnancy and maternity |
Positive |
At this present time, we do not anticipate Operation Eagle having an impact on this protected characteristic. There's no evidence that pregnant women are more likely to get seriously ill from a COVID-19 variant. But pregnant women have been included in the list of people at moderate risk (clinically vulnerable) as a precaution |
|
Race and Ethnicity |
Unclear |
f there is a variant outbreak in a postcode area, information stored on Dorset Explorer will detail the demographics of that area, including race and ethnicity. Operation Eagle will involve every person over 16 living and working in the area identified to be strongly encouraged to take a COVID test, whether they are showing symptoms or not. Mobile testing units could be deployed in the specified postcode area to offer testing and collect and drop points could also be set up in various locations. The Public Health England report Disparities in the risk and outcomes of Covid-19 highlighted that COVID-19 has had a disproportionate impact on Black, Asian and minority ethnic people and recent research is showing that this group are less likely to take up the vaccination. Several campaigns have recently been launched to encourage take up.
The above research strongly suggests that to encourage both vaccination take up and COVID testing, trusted channels like Black, Asian and Minority Ethnic-led organisations should be used to reach and address any concerns, these communities may have if there is a variant outbreak in a postcode area. As part of its COVID health promotion work, Public Health Dorset has initiated COVID-19 Trusted Voices; a network of community organisations, who Public Health Dorset will work with to get local messages out into communities including reassurance messages, this includes organisations such as Dorset Race Equality Council, Dorset Polish Centre and Kushti Bok (Gypsy & Traveller led organisation) to get messages out into the community. Gypsy, Roma, and Traveller people may also be at increased risk of COVID-19, as they are more likely to have an underlying health condition. There are 4 authorised sites within the Dorset Council area, if one of these sites is located in an outbreak area, any public health messages will be shared with the Gypsy & Traveller Liaison Team who work on the authorised sites and they will encourage testing. This is part of the communications plan. If unauthorised encampments take place within a postcode area that has a variant outbreak, the Gypsy and Traveller Liaison Team would encourage testing. Research data from ONS and Census 2011 show that 4.4% of Dorset’s residents identify as Black and minority ethnic and 1.7% identify as English not being their first language. Current insight shows we have a number of ethnically diverse communities in North Dorset and if a postcode area that has a variant outbreak, we would look to work with local community leaders and ensure that surge testing information was made available in relevant languages and that they would also offer reassurance and updates on the progress of surge testing. |
|
Religion or belief: |
Neutral/Unclear |
If there is a variant outbreak in a postcode area, Operation Eagle will involve every person over 16 living and working in the area identified to be strongly encouraged to take a COVID test, whether they are showing symptoms or not. Mobile testing units could be deployed in the specified postcode area to offer testing and collect and drop points could also be set up in various locations. As part of its COVID health promotion work, Public Health Dorset has initiated COVID-19 Trusted Voices; a network of community organisations, who Public Health Dorset will work with to get local messages out into communities. An analysis of Trusted Voices may need to take place to understand if faith leaders and faith organisations are included on this list and can be used as way of sharing messages within the local community |
|
Sex (consider both men and women): |
Neutral |
If there is a variant outbreak in a postcode area, Operation Eagle will involve every person over 16 living and working in the area identified to be strongly encouraged to take a COVID test, whether they are showing symptoms or not. Mobile testing units could be deployed in the specified postcode area to offer testing and collect and drop points could also be set up in various locations. Several studies have shown that COVID-19 may pose a greater risk to men than women, and more men dying from COVID-19. Some of this research suggests that women tend to have stronger immune systems than men and that men tend to engage in more risky behaviour such as ignoring physical distancing, and don’t take symptoms as seriously. This does not mean that some women are not also highly vulnerable, depending on their circumstances and information about the virus is changing all the time. If a variant is found, testing will ensure those who fall into this category are picked up quickly if they have a covid-19 variant and given support to have a test, even though it is not mandatory, increasing their likelihood of recovery. Access to registrar’s data will be available to Op Eagle. At this present time, we do not anticipate Operation Eagle having an impact on this protected characteristic. |
|
Carers: |
Positive |
f there is a variant outbreak in a postcode area, Operation Eagle will involve every person over 16 living and working in the area identified to be strongly encouraged to take a COVID test, whether they are showing symptoms or not. Mobile testing units could be deployed in the specified postcode area to offer testing and collect and drop points could also be set up in various locations. Collect and Drop sites will be points where people can collect test for those unable to leave their homes, such as people with disabilities, long-term conditions or who are neuro divergent. Collect and drop instructions will be issued with the testing kits and test can be carried out in the home. The opening times of mobile testing units and collect and drop points have not been set, but consideration will be given to people who may have caring responsibilities. Those with who have caring responsibilities may not live in the affected area, so any communications about surge testing would need to include information about residents informing carers (both informal and formal/paid carers) that they can be tested either through the mobile testing units or through the normal COVID testing centres. . |
|
Rural isolation: |
Neutral |
If there is a variant outbreak in a postcode area, Operation Eagle will involve every person over 16 living and working in the area identified to be strongly encouraged to take a COVID test, whether they are showing symptoms or not. Operation Eagle will provide a number of surge testing services from door-to-door, mobile testing units and collect and drop off locations in various locations. Operation Eagle would also involve working with town and parish councils to get messages out rural communities and villages. An analysis of Trusted Voices may need to take place to understand if organisations such as the National Farmers Union (NFU) is a member and could they be used as a way of getting messages out in the rural community. It would beneficial to also use the resources on Help and Kindness to share information using community organisations and business listed on this site. |
|
Social & economic deprivation |
Unclear |
If there is a variant outbreak in a postcode area, Operation Eagle will involve every person over 16 living and working in the area identified to be strongly encouraged to take a COVID test, whether they are showing symptoms or not. Operation Eagle will provide a number of surge testing services from door-to-door, mobile testing units and collect and drop off locations in various locations. Operation Eagle would also involve working with town and parish councils to get messages out. Dorset Explorer has a dedicated Operation Eagle layer to enable data interrogation relating to the citizen makeup within each post code area. A decision is then made at pace to which type of testing service is stood up first to get testing started, it will be a dynamic and continually evolving process. COVID-19 has had a disproportionate impact on people in more deprived areas and recent research is also indicating that there is a lower take up of the COVID vaccine in more deprived areas and there is a need to work more in partnership with local community organisations and leaders to share information and encourage vaccine take up and this approach would also be useful to use if there was a variant outbreak. It would beneficial to also use the resources on Help and Kindness to share information using community organisations and business listed on this site. |
|
Armed Forces communities |
Neutral |
Families living outside of an MOD establishment will be supported by Operation Eagle which will involve every person over 16 living and working in the area identified to be strongly encouraged to take a COVID test, whether they are showing symptoms or not at a number of surge testing services from door-to-door, mobile testing units and collect and drop off locations in various locations. However, for those who are serving, the Ministry of Defence will take the lead in testing. |
Key to impacts
Positive Impact
the proposal eliminates discrimination, advances equality of opportunity and/or fosters good relations with protected groups.
Negative Impact
Protected characteristic group(s) could be disadvantaged or discriminated against
Neutral Impact
No change/ no assessed significant impact of protected characteristic groups
Unclear
Not enough data/evidence has been collected to make an informed decision.
Action Plan
| Issue | Action to be taken | Person responsible | Date to be completed by |
|---|---|---|---|
|
Communications |
Checking Comms plan has incorporated using community resources and groups i.e. Trusted voices, faith leaders etc for example if English is not the first language |
Paul Beecroft |
Late June 21 |
|
Communications |
Communications with Town and Council Parishes |
Jessica Rice/Julia Long |
June/July 21 |
|
Communications |
Link in with Trusted Voices, Dorset Together group and Help & Kindness |
Jessica Rice/Julia Long |
July 21 |
|
Data |
Check sensitive data layer and what is includes for example protected characteristics. Local outbreak management plan layer and Mosaic etc. |
Jessica Rice/Julia Long/Rob Quincey/Pete Jackson |
July 21 |
|
Communications |
Information pack to be developed for test centre staff to include easy read information, autism friendly guide to testing and information interpretation and translation services. Investigate the possibility of surge testing information being transcribed into Braille. |
Susan Ward-Rice |
Late June 21 |
Name: Marc Eyre
Job Title: Service Manager, assurance
Date: 9th June 2021
Who has agreed this EqIA?
Equality Lead: Susan Ward-Rice Date:9 June 2021
Second sign off: Becky Forrester Date:9 June 2021