Legislature(2019 - 2020)Anch LIO Lg Conf Rm
07/29/2020 10:00 AM House STATE AFFAIRS
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| Audio | Topic |
|---|---|
| Start | |
| Presentation(s): Covid-19 Workplace Safety: Reducing Virus Transmission on the Job | |
| Adjourn |
* first hearing in first committee of referral
+ teleconferenced
= bill was previously heard/scheduled
+ teleconferenced
= bill was previously heard/scheduled
| + | TELECONFERENCED | ||
ALASKA STATE LEGISLATURE
HOUSE STATE AFFAIRS STANDING COMMITTEE
Anchorage, Alaska
July 29, 2020
10:01 a.m.
MEMBERS PRESENT
Representative Zack Fields, Co-Chair
Representative Jonathan Kreiss-Tomkins, Co-Chair (via
teleconference)
Representative Sara Hannan (via teleconference)
Representative Andi Story (via teleconference)
Representative Steve Thompson (via teleconference)
MEMBERS ABSENT
Representative Grier Hopkins
Representative Sarah Vance
Representative Laddie Shaw
OTHER LEGISLATORS PRESENT
Representative Kelly Merrick (via teleconference)
COMMITTEE CALENDAR
PRESENTATION(S): COVID-19 WORKPLACE SAFETY: REDUCING VIRUS
TRANSMISSION ON THE JOB
- HEARD
PREVIOUS COMMITTEE ACTION
No previous action to record
WITNESS REGISTER
SHELLY MILLER, Professor of Mechanical Engineering
University of Colorado Boulder
Boulder, Colorado
POSITION STATEMENT: Testified during the presentation on COVID-
19 workplace safety.
JULIA LUONGO, PhD, Air Quality Consultant
Ramboll Shair
San Francisco, California
POSITION STATEMENT: Testified during the presentation on COVID-
19 workplace safety.
ANDREW ELSBERG, MD, Emergency Physician
Anchorage, Alaska
POSITION STATEMENT: Testified during the presentation on COVID-
19 workplace safety.
JAKE METCALFE, Executive Director
Alaska state employees Association/ American Federation of
state, County, and Municipal Employees
Anchorage, Alaska
POSITION STATEMENT: Testified during the presentation on COVID-
19 workplace safety.
CHARLES BRASINGTON
Department of Law
City & State
POSITION STATEMENT: Commented during the presentation on COVID-
19 workplace safety.
JOSHUA WILSON, Business Agent
Alaska Correctional Officers Association
Anchorage, Alaska
POSITION STATEMENT: Testified during the presentation on COVID-
19 workplace safety.
MARVIN JONES
Unite Here Local 878
Anchorage, Alaska
POSITION STATEMENT: Testified during the presentation on COVID-
19 workplace safety.
ACTION NARRATIVE
10:01:31 AM
CO-CHAIR ZACK FIELDS called the House State Affairs Standing
Committee meeting to order at 10:01 a.m. Representatives Hannan
(via teleconference), Story (via teleconference), Thompson (via
teleconference), Kreiss-Tomkins (via teleconference), and Fields
were present at the call to order.
^PRESENTATION(S): COVID-19 Workplace Safety: Reducing Virus
Transmission on the Job
PRESENTATION(S): COVID-19 Workplace Safety: Reducing Virus
Transmission on the Job
10:01:50 AM
CO-CHAIR FIELDS announced that the only order of business would
be a presentation on COVID-19 workplace safety and reducing
virus transmission on the job.
10:03:12 AM
SHELLY MILLER, Professor of Mechanical Engineering, University
of Colorado Boulder, provided her background in air pollution
engineering with a specialty in indoor environments. She said
her focus is on indoor sources of pollution and how to reduce
exposure to toxic contaminants, including indoor airborne
infectious disease transmission. She informed the committee
that she has been actively involved in the coronavirus pandemic
since March as one of the 36 world experts who petitioned World
Health Organization (WHO) to recognize that a component of
COVID-19 was being transmitted through inhalation exposure to
virus-containing particles. Subsequently, WHO acknowledged
inhalation as one of three potential transmission routes, along
with exposed surfaces and respiratory droplets. She expressed
particular concern about airborne transmission of virus-
containing particles that can be inhaled from the general
environment. She explained that the source of those particles
is infected individuals who could be asymptomatic. She stressed
the importance of reducing the source of exposure and
controlling the emissions from infected individuals. She
pointed out that masks are an engineering source control. She
said limiting the contaminants from entering the environment
raises the chances of controlling the problem. Additionally,
she recommended social distancing because more distance between
people decreases the concentration of airborne particles they
generate and lowers the chance of inhaling those particles. She
reiterated that without the protection of masks or social
distancing, the risk of exposure is high. She pointed out that
another way to reduce infection risk in buildings is to ensure
that they are providing 100 percent outside air to dilute the
concentration of potentially infectious particles. She also
recommended that buildings avoid recirculating indoor air;
however, if they must, she suggested a filter with at least a
MERV-13 rating or air cleaners to reduce the concentration of
virus-containing particles in the air. In order to contain the
pandemic by limiting exposure and reducing risk, she strongly
recommended using all the available approaches, including masks,
social distancing, better building ventilation, and limited time
indoors.
10:07:41 AM
CO-CHAIR FIELDS asked if unmasked individuals who are seven feet
apart could transmit COVID-19 via aerosol transmission.
DR. MILLER answered yes. She explained that an infected
individual who is not wearing a mask and talking loudly is
generating particles that possibly contain the virus, which once
in the air, can travel for many meters, stay aloft for hours,
and circulate the entire room.
10:08:48 AM
CO-CHAIR FIELDS questioned whether experts have considered if
the virus can be transmitted through a building's ductwork from
one room to another.
DR. MILLER said experts have been actively trying to understand
that questions by analyzing specific outbreaks, including the
Diamond Princess outbreak and others in indoor environments.
She explained that it is concerning because other infectious
diseases are transmitted through the ductwork in buildings, such
as the flu and tuberculosis, which is why 100 percent outside
air and recirculating with MERV-13 filters is recommended.
10:10:09 AM
CO-CHAIR FIELDS questioned whether the average building's HVAC
system introduces 100 percent outside air in each cycle or some
recirculation is typical.
DR. MILLER asserted that buildings are not designed for 100
percent outside air because it is less energy efficient. She
said most buildings are designed and operated for thermal
comfort, which provides 20 percent outside air and 80 percent
recirculated air. She further noted that areas that require
more heating or cooling rely heavily on recirculated air that
has been conditioned and less on outside air. She recommended
the addition of supplemental air conditioning/cleaning from air
purifiers, which requires a HEPA filter recirculating air
cleaner, if 100 percent outside air cannot be introduced.
10:11:28 AM
CO-CHAIR FIELDS inquired about the science behind UV air
treatment in ductwork in an addition to filtration.
DR. MILLER said for recirculated air, UV light is a viable
option to disinfect airborne virus as it moves through the
ductwork. She only recommended UV light if the installation of
a MERV-13 filter is not possible for a specific HVAC system with
lower filtration capabilities. She noted that it would have to
be designed and operated by an engineer for maintenance
purposes.
10:13:36 AM
JULIA LUONGO, PhD, Air Quality Consultant, Ramboll Shair,
informed the committee that she received her PhD from the
University of Colorado Boulder studying indoor air quality
dynamics and how ventilation systems impact indoor air quality.
She noted that she is a mechanical engineer - not a medical
doctor - speaking from the standpoint of aerosol science. She
introduced the difference between droplets and aerosols.
Droplets, she said, are larger particles that fall quickly from
the air and could land on someone's body, while aerosols are
smaller particles released when breathing, talking, or coughing,
which float through the air and could be inhaled. She noted
that Aerosols stay afloat for hours and consequently, could be
responsible for both short- and long-range virus transmission.
She said architectural variety is one of the most challenging
aspects of controlling indoor air quality. Every building has
different ventilation systems, layouts, building materials, age,
or occupancy density, which all impact indoor air quality and
therefore, risk of aerosol transmission. She reiterated that
there isn't a one-size-fits-all plan for mitigating viral
transmission risk indoors. She stated that the rate of outdoor
air ventilation is one of the most important factors that
impacts the risk of indoor aerosol transmission. In other
words, bringing in more outside air can dilute virus-containing
particles and reduce the risk that an individual could breathe
in enough virus to become infected. She noted that it's not yet
known how many particles are required to initiate infection, but
increasing dilution or ventilation reduces the risk that a
sufficient number of viral particles are be encountered by
someone inside. Per WHO, she listed "the three Cs" that reduce
risk: crowded spaces, close contact settings, and confined or
enclosed spaces with poor ventilation. She stressed that
ventilation systems do not always work as designed; further, the
American Society of Heating, Refrigeration, and Air Conditioning
Engineers (ASHRAE) convened a panel of experts who issued
recommendations for infection control with ventilation systems.
ASHRAE recommended knowing the environment and taking great
caution if poor ventilation, confined spaces, high occupancy, or
high emissions are present. She informed the committee that
wearing masks, increasing distance, and increasing outdoor air
ventilation rates can help reduce the risk of aerosol
transmission indoors. Regarding HVAC systems, she recommended
disabling demand control ventilation and opening outdoor air
dampers to 100 percent; keeping ventilation systems running
longer hours; and bypassing energy recovery ventilation systems
that could leak potentially contaminated exhaust air back into
the outdoor air supply. She also recommended prioritizing time
spend outdoors, reducing time of exposure, and controlling risk
factors, such as providing added filtration and the
aforementioned air cleaning strategies.
10:19:57 AM
REPRESENTATIVE THOMPSON sought to clarify whether aerosols
travel long distances.
DR. LUONGO confirmed that. She said aerosols can stay afloat
for many hours and are impacted by air currents.
CO-CHAIR FIELDS noted that the state has not implemented safety
controls for buildings occupied by state employees, psychiatric
facilities, correctional institutions, or long-term care
facilities.
10:21:04 AM
ANDREW ELSBERG, MD, Emergency Physician, said SARS-CoV-2 appears
to be transmitted both by droplet and aerosol. He explained
that droplets are a "friendlier" environment for coronavirus
and, depending on the surface, remain stable for 8-72 hours;
however, surface transmission is not considered a large driver
of transmission and can be mitigated by hand hygiene and regular
surface cleaning. He stated that close physical contact,
talking closely, coughing, or sneezing in close proximity are
the primary drivers; hence, the social distancing guidelines,
policies against working when symptomatic, and justification for
mask mandates. He added that aerosols are problematic in
prolonged enclosed exposure, such as offices, cars, or
airplanes. He listed several real-world examples of possible
aerosolized spread, including the restaurant in China, the choir
practice in Washington, and the call center in South Korea. He
pointed out that aerosolized virus appears to be stable for a
shorter time compared to droplets; however, if an asymptomatic
individual is shedding the virus at work, the virus is being
replenished into the environment and could spread throughout the
office. He reported that the Center for Disease Control and
Prevention (CDC) recommends N95 masks for healthcare workers in
direct contact with patients who tested positive for COVID-19.
He emphasized the importance of decreasing the amount of virus
that could enter an environment. He reported that the
positivity rate has more than tripled and continues to trend
upwards despite having broad-based asymptomatic screening that
dilutes results relative to other states. In Alaska, he said,
there were 51 hospitalizations in July compared to 15 total
hospitalizations in the month of June. He shared his
understanding that decreasing the amount of coronavirus in
Alaska's communities by implementing mask mandates in shared
indoor spaces and limiting gathering size and capacity in all
indoor spaces could mitigate the escalating outbreak and improve
workplace safety. He opined that continuing the current
statewide strategy would not change behavior or the spread of
disease. He shared his belief that strong sick leave policies
are also necessary, which should actively discourage working
while even mildly ill. He said using a "doctor's note policy"
would help maintain health care capacities. Additionally, he
advocated for a universal masking policy to decrease
transmission. He explained that masking decreases spread by
droplets and would lower the amount of virus in an environment,
likely decreasing the amount of aerosolized virus as well. He
opined that basic surgical masks, if available, should be the
standard, as studies indicate that they are twice as effective
as cloth masks. To conclude, he addressed one final point on
workplace safety. He said breakrooms have been identified as a
place of spread in Alaska, most likely because that is where
workers let their guard down and take their masks off to eat or
drink. He recommended educating workers on the importance of
avoiding congregate areas without a mask or while eating.
10:29:26 AM
CO-CHAIR FIELDS noted that Mr. Elsberg recommended a universal
masking policy before the virus spread rapidly in Alaska. He
asked whether the risk of catching coronavirus is greater at
work, home, or in a grocery store.
DR. ELSBERG indicated that infection depends on the amount of
virus an individual is in contact with and the length of
exposure time. He explained that brief exposure, like passing
someone in a grocery store while wearing a mask, would not
likely lead to infection. He recommended minimizing close
interaction with others and cited British Columbia's policies
based on the percent of interaction. He added that because the
virus spreads from asymptomatic individuals, prolonged contact
increases the risk of exposure to more virus for a longer period
of time.
10:31:42 AM
CO-CHAIR FIELDS asserted that coronavirus is being transmitted
at workplaces and yet, workplace safety standards and a
universal mask mandate are still nonexistent.
10:32:51 AM
JAKE METCALFE, Executive Director, Alaska state employees
Association/ American Federation of state, County, and Municipal
Employees, informed the committee that ASEA/AFSCME Local 52
represents 8,200 state employees across the state of Alaska who
enjoy working for the state and want to be safe in their place
of work. He explained that unions primarily exist because of
workers' safety concerns. In the 1970s, the Alaska State
Legislature passed the Public Employee Relations Act, which
includes a declaration of policy that read as follows:
The legislature finds that joint decision making is
the modern way of administering government. The
public employees have been granted the right to share
in the decision-making process affecting wages and
working conditions. They have become more responsive
and better able to exchange ideas and information on
operations with their administrators. Accordingly,
government is made more effective. The legislature
further finds that the enactment of positive
legislation establishing guidelines for public
employment relations is the best way to harness and
direct the energies of public employees eager to have
a voice in determining their conditions of work, to
provide a rational method of dealing with disputes and
work stoppages, to strike when the merit principles
where civil service is in effect, and to maintain
favorable political and social environment. The
legislature declares it is the public policy of the
state to promote harmonious and cooperative relations
between government and its employees and to protect
the public by ensuring effective and orderly
operations of government. These policies are
effectuated by recognizing the right of public
employees to organize for the purposes of collective
bargaining and requiring public employers to negotiate
with and enter into written agreements with employee
organizations on the matters of wages, powers, and
other terms and conditions of employment.
MR. METCALFE indicated that safety is one of the most important
conditions. He shared his belief that the workplace is safer
when the employer and employees negotiate over those conditions.
He pointed out that many employees have converted to telework,
which is an effective way to provide government services;
however, there are state offices that are requiring employees to
return to work. He expressed hope that ASEA/AFSCME Local 52
could negotiate the health and safety issues surrounding that
issue. He offered his belief that the workers who spend hours
in state offices are the best source of information regarding
workplace health and safety practices, which is why ASEA/AFSCME
demanded to bargain with the state. He noted that the state
denied the request to bargain on those issues. He asserted that
returning to work during the pandemic is a safety concern and a
matter of life and death for state employees. He suggested that
the administration set up worker councils in state buildings to
create a safe work environment by addressing issues like social
distancing, air quality, and a mask policy. He pointed out that
ASEA/AFSCME provided workplace safety mitigation plans to the
administration and has yet to see any action or response.
Additionally, with the help of experts, ASEA/AFSCME has come up
with workplace safety ideas based on employee interests that
would make the workplace safer. He urged the legislature to
make the administration follow the law.
10:42:09 AM
REPRESENTATIVE THOMPSON asked how many state employees have
tested positive for COVID-19.
MR. METCALFE answered one employee at McLaughlin Youth Center,
one employee at Alaska Psychiatric Institute (API), one at
Department of Health and Social Services (DHSS), and one at the
Pioneer Home. He said DHSS has been good about contacting
ASEA/AFSCME when a positive test is identified in one of its
facilities, but other departments have not been as willing to
share that information. He noted that there was another
positive case in the Atwood building last week. He explained
that when a case is identified, employees are primarily
concerned with the availability of testing. When that occurs,
he recommended implementing COVID-19 testing for all employees
to prevent further spread from asymptomatic individuals.
10:45:30 AM
REPRESENTATIVE STORY asked why the administration declined to
meet with ASEA/AFSCME to bargain on workplace health and safety
issues.
MR. METCALFE said the administration sent a letter expressing
the belief that they do not have to negotiate on safety
conditions involving the return to work. However, he asserted
that health and safety are mandatory conditions of bargaining;
therefore, ASEA/AFSCME would be filing an unfair labor practice
charge. He reiterated that state employees want to work and
would like to be part of the solution for creating a safe work
environment. He opined that the state should want to negotiate
with their employees.
10:48:30 AM
REPRESENTATIVE STORY asked if ventilation systems and air
quality have been assessed in state buildings.
MR. METCALFE said he's not aware of any action regarding
ventilation in state office buildings. He noted that
ASEA/AFSCME provided information pertaining to the expert
testimony from the previous committee hearing to Department of
Administration (DOA) and the governor's office, but there has
been no response. He reiterated that ASEA/AFSCME's continued
effort to share information and multiple offers to meet have
been repeatedly denied.
CO-CHAIR FIELDS deduced that the state has not performed
upgrades to MERV-13 filters or changed HVAC systems to provide
100 percent outside air in any of the office buildings. He
asked if that is correct.
MR. METCALFE said he has not been provided with that
information.
10:50:59 AM
CO-CHAIR FIELDS asked how long it typically takes to resolve an
unfair labor practice with the Alaska Labor Relations Agency.
MR. METCALFE said it's a process that takes time to be done
well.
CO-CHAIR FIELDS opined that refusing to bargain on a life and
death issue is an obvious violation of state law. He expressed
concern that ASEA/AFSCME will ultimately prevail, but in the
meantime, state employees and workplaces are at risk of becoming
a vector to further transmit the virus into Alaska's
communities.
10:52:08 AM
CO-CHAIR FIELDS asked for further detail on the at-risk
Department of Law (DOL) employee who was required to return to
work in person.
MR. METCALFE said the employee who works in the Anchorage
District Attorney's Office has health conditions that increase
her risk of severe illness from COVID-19. The employee is
concerned about returning to work in a building that lacks a
consistent mask or social distancing policy. He explained that
based on the return-to-work order, ASEA/AFSCME has requested to
bargain on those conditions to provide workplace standards and
mitigation practices for all employees. He restated his
suggestion for worker counsels that could discuss and
communicate employee needs.
10:56:18 AM
CO-CHAIR FIELDS read an email that the aforementioned DOL
employee sent to her supervisors requesting to continue
teleworking. The email read as follows:
I have serious concerns about coming back to work even
for a few days a week this soon. I personally do not
feel safe or comfortable coming back to work
physically at this time. I myself am extremely high
risk and my daughter is extremely high risk. My
daughter has an immunodeficiency that puts her in the
extreme high-risk category and her doctors have even
expressed that if she were to contract COVID-19 at
this time, she would most likely not survive.
10:57:34 AM
CO-CHAIR FIELDS recapped that prolonged exposure in a workplace
or household is the most likely place to contract COVID-19. He
pointed out that the DOL employee is being required to return to
work in an unsafe environment.
10:58:03 AM
CHARLES BRASINGTON, Department of Law, declined to comment.
CO-CHAIR FIELDS said it's unfortunate that for two hearings in a
row, state departments have declined to testify on their
participation in workplace safety.
10:58:53 AM
JOSHUA WILSON, Business Agent, Alaska Correctional Officers
Association (ACOA), noted that he has been representing
correctional officers in Alaska for over seven years. Regarding
PPE, he said officers are only regularly being offered cloth and
surgical masks, even when working in quarantined areas with
suspected or confirmed cases of COVID-19. He reported that
Department of Corrections (DOC) is still fit testing officers
for N95 masks; however, those officers are only provided one N95
mask to wear for the entire workweek. He noted that in one
facility, only size medium N95 masks were provided, so many
officers failed the fit test. He expressed frustration that
Anchorage police officers and Alaska state troopers are provided
with abundant N95 masks, while correctional officers are not.
Furthermore, he expressed concern about the lack of
communication regarding the identification of positive cases.
He reported that, per DOC's website, there's currently 15
remands who have tested positive for COVID-19 and two
individuals that are part of the inmate population who have
tested positive. He indicated that DOC continues to keep that
information from the officers at the exposed facilities. He
recommended reporting positive cases to the entire facility in
which they were identified. He also reported that testing is
not being widely advertised or received. Furthermore, he
expressed concern about the ongoing staffing issue. He said
officers are being forced to work on their days off to make up
for the staff shortage. He noted that this is happening despite
the legislature funding a recruitment team for DOC. He offered
his belief that DOC knew the funding was approved when the
governor signed the budget on April 6 and subsequently became
available on July 1. He added that DOC has yet to start
recruiting for the recruitment team, which would fix the
staffing shortage. He opined that with unemployment at a high,
there's people that could make excellent officers and DOC should
be recruiting them as quickly as possible.
11:02:52 AM
CO-CHAIR FIELDS asked for an updated timeline on the opening of
the Palmer Correctional Center.
MR. WILSON offered his belief that DOC hired a superintendent;
nonetheless, he said there's been no hiring of officers or staff
for that facility and a timeline has not been provided. He
reported that upper management from DOC has not met with ACOA
since April 15 and DOA stopped its weekly meetings in the
beginning of June. He noted that ACOA sent another request to
meet last week and has not received a response.
CO-CHAIR FIELDS informed the committee that the Hilton Anchorage
was invited to appear at today's hearing to discuss coronavirus-
related safety issues; however, Hilton management did not
respond.
11:04:48 AM
MARVIN JONES, Unite Here Local 878, said since the previous
hearing, the Hilton Anchorage reported that its fourth employee
has tested positive for COVID-19. He stated that Unite Here
compiled a survey of 20 questions for various Anchorage hotels
to understand the conditions that employees are working under.
He noted that the survey is still being executed, but so far,
many workers are terrified to come to work, especially at the
Hilton Anchorage due to their recent outbreak. He reported that
aside from the four confirmed cases at the Hilton Anchorage, the
Sheraton Anchorage Hotel & Spa had one confirmed case and the
Coast Inn also had one confirmed case. He explained that
several hotels are being used to quarantine groups.
Furthermore, he observed that the Hilton Anchorage has exhibited
no change in behavior since the last committee hearing. He
offered his understanding that there is a lack of training
related to COVID-19 procedures for the workers at the Hilton
Anchorage. He also expressed concern about the excessive
leaking in the Hilton's lobby. He urged to committee to help
impose stronger safety regulations to protect city and state
workers from the coronavirus.
11:09:32 AM
CO-CHAIR FIELDS asked for the full list of hotels represented by
Unite Here.
MR. JONES listed the Sheraton Anchorage Hotel & Spa, Captain
Cook Hotel, Hilton Anchorage, Coast Inn, Clarion Suites Downtown
Hotel, Four Points by Sheraton, Westmark Anchorage hotel, Sky
Chefs, and Alsco.
11:10:24 AM
CO-CHAIR FIELDS observed that there have been four times as many
COVID-19 cases among workers at the Hilton Anchorage. He
offered his belief that employee safety practices do impact
whether a worker is likely to catch coronavirus based on the
higher infection rates at the Hilton. He asked if it makes a
difference when an employer takes steps to ensure workplace
safety during the pandemic.
MR. JONES said the Captain Cook Hotel assigned one of its towers
for quarantining specific groups, including workers from the
North Slope. He added that the hotel implemented a sanitation
squad specifically for cleaning the entire hotel. He said due
to the hotel's due diligence, there have been zero cases of
coronavirus at that location.
11:12:18 AM
CO-CHAIR FIELDS said he grows more concerned with each hearing
as more state employees are being asked to work in manifestly
dangerous situations. He expressed further concern that
Department of Labor & Workforce Development (DLWD) is not
working on a set of workplace safety standards. He noted that
the federal government has been taken to court over OSHA's
failure to issue workplace safety standards. He pointed out
that in Alaska, those workplace safety standards are delegated
to AKOSH.
11:13:16 AM
REPRESENTATIVE STORY echoed Chair Fields' concern about DOA's
failure to appear at today's hearing. She urged the
administration to work with the employee union and take these
safety concerns into consideration.
11:15:04 AM
ADJOURNMENT
There being no further business before the committee, the House
State Affairs Standing Committee meeting was adjourned at 11:15
a.m.
| Document Name | Date/Time | Subjects |
|---|---|---|
| How to minimise COVID-19 spread, Morawska 7.29.20.pdf |
HSTA 7/29/2020 10:00:00 AM |
|
| Questions Answered by Professor Lidia Morawska, PhD 7.29.20.pdf |
HSTA 7/29/2020 10:00:00 AM |