COVID-19 Vaccination Program 

Interim Operational Guidance 

for Jurisdictions

Centers for Disease Control and 

Prevention (CDC)

September 16, 2020

Version 1.0

COVID-19 Vaccination Program 

Interim Playbook for 

Jurisdiction Operations
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Table of Contents

Executive Summary ....................................................................................................................................................5

Section 1: Public Health Preparedness Planning........................................................................................................6

Improvement Planning .......................................................................................................................................6

COVID-19 Vaccination Program Planning ...........................................................................................................6

Section 2: COVID-19 Organizational Structure and Partner Involvement..................................................................8

Planning and Coordination Team (Internal) .......................................................................................................8

State-Local Coordination ....................................................................................................................................8

Tribal Communities.............................................................................................................................................8

COVID-19 Vaccination Program Implementation Committee (Internal and External).......................................9

Related Guidance and Reference Materials.......................................................................................................9

Section 3: Phased Approach to COVID-19 Vaccination........................................................................................... 10

Phase 1: Potentially Limited COVID-19 Vaccine Doses Available .................................................................... 11

Phase 2: Large Number of Doses Available; Supply Likely to Meet Demand.................................................. 12

Phase 3: Likely Sufficient Supply...................................................................................................................... 12

Related Guidance and Reference Materials.................................................................................................... 13

Section 4: Critical Populations................................................................................................................................. 14

Identifying and Estimating Critical Populations............................................................................................... 14

Estimating Population Groups for Initial COVID-19 Vaccine Distribution During Phase 1 .............................. 15

Describing and Locating Critical Populations................................................................................................... 15

Related Guidance and Reference Materials.................................................................................................... 16

Section 5: COVID-19 Vaccination Provider Recruitment and Enrollment............................................................... 17

Vaccination Provider Recruitment................................................................................................................... 17

Vaccination Provider Enrollment..................................................................................................................... 18

COVID-19 Vaccination Provider Training ......................................................................................................... 20

Role of Commercial and Federal Partners....................................................................................................... 21

Related Guidance and Reference Materials.................................................................................................... 21

Section 6: Understanding a Jurisdiction’s COVID-19 Vaccine Administration Capacity.......................................... 22

Related Guidance and Reference Materials.................................................................................................... 23

Section 7: COVID-19 Vaccine Allocation, Ordering, Distribution, and Inventory Management ............................. 24

Allocation......................................................................................................................................................... 24

Ordering........................................................................................................................................................... 24

Distribution ...................................................................................................................................................... 25
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Inventory Management................................................................................................................................... 26

COVID-19 Vaccine Recovery ............................................................................................................................ 26

Section 8: COVID-19 Vaccine Storage and Handling ............................................................................................... 27

Satellite, Temporary, and Off-Site Clinic Storage and Handling Considerations............................................. 27

Section 9: COVID-19 Vaccine Administration Documentation and Reporting........................................................ 29

Section 10: COVID-19 Vaccination Second-Dose Reminders.................................................................................. 30

Section 11: COVID-19 Requirements for Immunization Information Systems or Other External Systems............ 31

System Infrastructure ...................................................................................................................................... 32

COVID-19 Vaccination Provider Preparation ................................................................................................... 32

Data Management........................................................................................................................................... 32

Ordering and Inventory ................................................................................................................................... 33

Related Guidance and Reference Materials.................................................................................................... 33

Section 12: COVID-19 Vaccination Program Communication ................................................................................. 35

COVID-19 Vaccination Communication Objectives......................................................................................... 35

Key Audiences.................................................................................................................................................. 35

Broad Communication Planning Phases.......................................................................................................... 35

Communication Activities................................................................................................................................ 36

Messaging Considerations............................................................................................................................... 36

Communication Channels................................................................................................................................ 36

Partners and Trusted Sources.......................................................................................................................... 37

Crisis and Risk Communication........................................................................................................................ 37

Related Guidance and Reference Materials.................................................................................................... 38

Section 13: Regulatory Considerations for COVID-19 Vaccination ......................................................................... 39

Emergency Use Authorization Fact Sheets...................................................................................................... 39

Vaccine Information Statements..................................................................................................................... 39

Section 14: COVID-19 Vaccine Safety Monitoring................................................................................................... 40

Vaccine Adverse Event Reporting System ....................................................................................................... 40

Vaccine Safety Datalink.................................................................................................................................... 40

Clinical Immunization Safety Assessment Project........................................................................................... 40

Section 15: COVID-19 Vaccination Program Monitoring......................................................................................... 41

CDC Dashboards............................................................................................................................................... 41

Resources......................................................................................................................................................... 41

Messaging ........................................................................................................................................................ 42
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Local Jurisdictions............................................................................................................................................ 42

Appendix A: COVID-19 Vaccination Planning Assumptions for Jurisdictions (revised 9/15/2020)......................... 43

Appendix B: COVID-19 Vaccination Scenarios for Jurisdictional Planning—Phase 1, Q4 2020 (updated 9/15/2020)

................................................................................................................................................................................. 47

Appendix C: Phase 1 Population Group Worksheet Example ................................................................................. 52

Appendix D: CDC IIS Data Requirements for COVID-19 Vaccine Monitoring.......................................................... 53

Appendix E: Countermeasures Injury Compensation Program............................................................................... 55

Appendix F: Liability Immunity for Covered Persons .............................................................................................. 56
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Executive Summary

Immunization with a safe and effective COVID-19 vaccine is a critical component of the United States strategy to 

reduce COVID-19-related illnesses, hospitalizations, and deaths and to help restore societal functioning. The goal 

of the U.S. government is to have enough COVID-19 vaccine for all people in the United States who wish to be 

vaccinated. Early in the COVID-19 Vaccination Program, there may be a limited supply of COVID-19 vaccine, and 

vaccination efforts may focus on those critical to the response, providing direct care, and maintaining societal 

function, as well as those at highest risk for developing severe illness from COVID-19.

This document serves as an interim playbook for state, territorial (including the US-affiliated Pacific Islands 

[USAPI] of American Samoa, the Commonwealth of the Northern Mariana Islands, Guam, the Federated States 

of Micronesia, the Republic of the Marshall Islands, and the Republic of Palau), and local public health programs 

and their partners on how to plan and operationalize a vaccination response to COVID-19 within their 

jurisdictions. The document’s sections cover specific areas of COVID-19 vaccination program planning and 

implementation and provide key guidance documents and links to resources to assist those efforts. Many, but 

not all, of the COVID-19 Vaccination Program activities described may overlap with routine activities; routine 

immunization and pandemic influenza program activities can serve as a foundation for COVID-19 vaccination 

planning. 

Centers for Disease Control and Prevention (CDC) Immunization and Vaccines for Children Cooperative 

Agreement funding recipients (i.e., “awardees”) should use this document to develop their COVID-19 

vaccination plans. Within their vaccination plans, awardees must address all requirements outlined in the 

playbook and clearly describe their responsibility for ensuring activities are implemented. Awardees should 

submit their plans to their CDC project officer by October 16, 2020.

Information in this interim playbook will be updated as new information (e.g., recommendations for pregnant 

women or pediatric populations) becomes available.
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Section 1: Public Health Preparedness Planning

Pandemic vaccination response planning requires collaboration among a wide range of public- and privatesector partners, including immunization and public health emergency preparedness programs, emergency 

management agencies, healthcare organizations, industry groups that include critical infrastructure sectors, 

policy makers, and community vaccination providers (e.g., pharmacies, occupational health settings, doctors’ 

offices). Many of these partners are engaged regularly in seasonal influenza and other outbreak vaccination 

campaigns, and many served as vaccination providers1 during the 2009 H1N1 pandemic. However, significant 

additional planning is needed to operationalize a vaccination response to COVID-19, which is much larger in 

scope and complexity than seasonal influenza or other previous outbreak-related vaccination responses. 

Following the planning and improvement guidance below can assist in developing a jurisdiction’s baseline 

readiness to launch the COVID-19 Vaccination Program.

Improvement Planning

Improvement planning is the identification of strengths, areas for improvement, and corrective actions that 

results from workshops, exercises, or real-world events. Jurisdictions should use a consistent approach for 

improvement-related activities across each of their COVID-19 vaccination preparedness planning components. 

Gaps in program planning are often identified when plans are tested, whether through a real event, such as a 

hepatitis A outbreak, or a full-scale vaccination exercise. Jurisdictions should test their COVID-19 vaccination 

program plans, and after testing, assign roles and responsibilities with target completion dates for specific tasks 

to ensure that corrective actions are fully implemented. Periodic review and revision of plans are integral to the 

improvement process. Jurisdictions should support continuous quality improvement as they move through 

different phases of workshops, exercises, and actual COVID-19 vaccination program implementation, making 

and operationalizing improvements in an ongoing manner.

COVID-19 Vaccination Program Planning

Prior to plan development, it is important for jurisdictions to have full situational awareness. There are many 

unknowns and unanswered questions at this time. For example, it is not yet known which vaccines will be 

available, in what volumes, at what time, with what efficacy, and with what storage and handling requirements. 

However, jurisdictions should review all current planning assumptions to assist with early planning efforts. (See 

Appendix A: COVID-19 Vaccination Planning Assumptions for Jurisdictions.)

In addition to current situational awareness, there is much to learn from past experiences. Jurisdictions may find 

it helpful to review their 2009 H1N1 pandemic vaccination response plans and lessons learned. After-action 

reports and improvement plans from that time provide an opportunity for jurisdictions to build on prior 

strengths and determine any gaps that may need to be addressed. 

After plans have been drafted, it is important to identify any weaknesses by conducting exercises, including

workshops or tabletop, functional, or full-scale exercises. This may be particularly valuable for any activities 

planned with external partners. For example, vaccination clinics in temporary or off-site settings, such as those

planned for essential workers, are an excellent opportunity for exercises. Specific procedures to assess could 

include cold chain management, vaccine administration and documentation, traffic flow, or social distancing and 

sanitation measures. The Federal Emergency Management Agency (FEMA) has posted information on its 

1

For the purposes of this document, “vaccination provider” refers to any facility, organization, or healthcare provider 

licensed to possess/administer vaccine or provide vaccination services. A “COVID-19 vaccination provider” is any 

vaccination provider who has been enrolled in the COVID-19 Vaccination Program.
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Homeland Security Exercise and Evaluation program that jurisdictions may find useful as they plan their own 

exercises. 
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Section 2: COVID-19 Organizational Structure and Partner Involvement

Pandemic vaccination planning is a combined state and local responsibility that requires close collaboration 

between public health, external agencies, and community partners. Depending on the specific jurisdiction’s 

governance structure, the jurisdiction may play a key role in ensuring readiness at all levels. It is imperative that 

both state and local jurisdictions as well as tribal organizations and their planning partners clearly understand 

each other’s roles and responsibilities in the COVID-19 Vaccination Program.

Planning and Coordination Team (Internal)

An internal COVID-19 Vaccination Program planning and coordination team is critical to ensure the vaccination 

response to COVID-19 is thoughtfully planned and successfully executed. A wide array of expertise should be 

represented among team members. Jurisdictions should consider broad inclusion from the immunization 

program, preparedness program, legal affairs, media/public affairs, and crisis and emergency risk 

communication (see Section 12: COVID-19 Vaccination Program Communication for additional information on 

crisis communication planning). In addition, the team should include clinical expertise as well as representatives 

of programs that serve the early populations of focus (e.g., Bureau of Aging, state licensing board, HIV/AIDS 

program, rural health office). It may even be helpful to include representation from a local public health 

jurisdiction for implementation perspective. Team members should be assigned responsibilities based on their 

individual expertise to best enhance plan development and activities coordination before and during the 

response. To mitigate any unexpected situations affecting a team member, each team member should have a 

backup representative to ensure coverage of each specialty area remains intact throughout the COVID-19 

Vaccination Program. For any roles that are not adequately staffed, efforts should be made to recruit for and fill 

any team member vacancies as early as possible.

State-Local Coordination

State governance structures vary from centralized to decentralized. In a centralized state, legal authority is 

concentrated in the central state government, which makes decisions and performs most functions. Conversely, 

in a decentralized state, authority and responsibilities are dispersed and distributed across regions and areas.

Regardless of the jurisdiction’s governance structure, it is imperative that state and local authorities combine

and coordinate efforts. State-level personnel must closely monitor activities at the local level to ensure the 

COVID-19 Vaccination Program is implemented throughout the jurisdiction in adherence with federal guidance 

and requirements, and that there is equitable access to COVID-19 vaccination across all areas. Local personnel

likely have a better understanding of perceptions, unique challenges, and successful mitigation strategies within 

their communities. Aligning areas of responsibility as well as specific tasks can help to complement rather than 

duplicate efforts at either level, maximizing the efficient use of resources and overall quality of the COVID-19 

Vaccination Program.

Tribal Communities

Although CDC is working directly with the Indian Health Service (IHS) at the federal level, plans have not been 

finalized. It is important that jurisdictions include tribal leaders and tribal organizations in their planning 

efforts. While IHS may provide vaccination services to the populations they serve, plans are currently in 

development regarding vaccine distribution to tribal health facilities, including urban facilities, that are not 

officially connected to IHS. Those facilities may need to work through their jurisdiction to receive vaccine. It is 

also critical that jurisdictions reach out to any non-federally recognized tribes in their area to ensure they have 

access to vaccination services, since these groups will likely not be served by IHS.
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COVID-19 Vaccination Program Implementation Committee (Internal and External)

Reaching intended vaccine recipients is essential to achieving desired levels of COVID-19 vaccination coverage. 

To ensure equitable access to vaccinations, information about populations within a jurisdiction and the logistical 

requirements for providing them access to COVID-19 vaccination services will require collaboration with external

entities and community partners who are familiar with how they obtain healthcare and other essential services. 

Jurisdictions should establish a COVID-19 Vaccination Program implementation committee to enhance 

development of plans, reach of activities, and risk/crisis response communication messaging and delivery. 

Committee membership should include leadership from the jurisdiction’s COVID-19 planning and coordination 

team as well as representatives from key COVID-19 vaccination providers for critical population groups 

identified by CDC (see Section 4: Critical Populations), as well as representatives from other sectors within the 

community, such as:

• Emergency management agencies

• Healthcare coalitions

• Immunization coalitions

• Local health departments

• Health systems and hospitals (including critical access hospitals for rural areas, in-patient psychiatric 

facilities)

• Community health centers

• Rural Health Clinics (RHCs)

• Pharmacies

• Long-term care facilities (LTCFs; includes nursing home, assisted living, independent living (e.g., 

intermediate care facilities for individuals with intellectual and developmental disabilities), skilled 

nursing facilities)

• Businesses and occupational health organizations

• Health insurance issuers and plans

• Education agencies and providers

• Correctional facilities

• Churches or religious leaders and institutions

• Tribal leaders

• Organizations serving racial and ethnic minority groups

• Organizations serving people with disabilities

• Organizations serving people with limited English proficiency

• Community representatives

• Entities involved in COVID-19 testing center organization

This committee will be helpful in advocating for and developing strategies to ensure equitable access to COVID19 vaccination services. If needed, a Memorandum of Understanding (MOU) between the jurisdiction and 

partners can help to cement roles, responsibilities, and the level of support to be provided. 

Related Guidance and Reference Materials

CDC’s public health preparedness resources can assist jurisdictions and tribal organizations with strategic 

planning to strengthen their public health capabilities.

Pandemic influenza-specific resources on vaccine and other medical countermeasures may be helpful in 

strategizing for other COVID-19-related situations.
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Section 3: Phased Approach to COVID-19 Vaccination

Due to changing vaccine supply levels at various points during the COVID-19 Vaccination Program, planning 

needs to be flexible but as specific as possible to accommodate a variety of scenarios. A key point to consider is 

that vaccine supply will be limited at the beginning of the program, so the allocation of doses must focus on 

vaccination providers and settings for vaccination of limited critical populations as well as outreach to these 

populations. The vaccine supply is projected to increase quickly over the proceeding months, allowing 

vaccination efforts to be expanded to additional critical populations and the general public. It is important to 

note that recommendations on the various population groups to receive initial doses of vaccine could change 

after vaccine is available, depending on each vaccine’s characteristics, vaccine supply, disease epidemiology, and 

local community factors.

Final decisions are being made about use of initially available supplies of COVID-19 vaccines. These decisions will 

be partially informed by the proven efficacy of the vaccines coming out of Phase 3 trials, but populations of 

focus for initial COVID-19 vaccination may include: (see Section 4: Critical Populations)

• Healthcare personnel likely to be exposed to or treat people with COVID-19.

• People at increased risk for severe illness from COVID-19, including those with underlying medical 

conditions and people 65 years of age and older

• Other essential workers

Jurisdictions should be planning in terms of three phases: 

1. Phase 1: Potentially limited supply of COVID-19 vaccine doses available

o Focus initial efforts on reaching the critical populations listed above. Ensure vaccination 

locations selected can reach populations, manage cold chain requirements, and meet reporting 

requirements for vaccine supply and uptake. 

2. Phase 2: Large number of vaccine doses available 

o Focus on ensuring access to vaccine for members of Phase 1 critical populations who were not 

yet vaccinated as well as for the general population; expand provider network.

3. Phase 3: Sufficient supply of vaccine doses for entire population (surplus of doses)

o Focus on ensuring equitable vaccination access across the entire population. Monitor vaccine 

uptake and coverage; reassess strategy to increase uptake in populations or communities with 

low coverage.

The following graph illustrates the three phases of the COVID-19 Vaccine Program and populations of focus in 

each phase.
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 *Planning should consider that there may be initial age restrictions for vaccine products.

 **See Section 4: Critical Populations for information on Phase 1 subset and other critical population groups.

Phase 1: Potentially Limited COVID-19 Vaccine Doses Available

In the initial phase, or Phase 1, of the COVID-19 Vaccination Program, initial doses of vaccine will likely be

distributed in a limited manner, with the goal of maximizing vaccine acceptance and public health protection 

while minimizing waste and inefficiency. The key considerations in planning for this phase are:

• COVID-19 vaccine supply may be limited.

• COVID-19 vaccine administration efforts must concentrate on the initial populations of focus to achieve

vaccination coverage in those groups. 

• Inventory, distribution, and any repositioning of vaccine will be closely monitored through reporting to 

ensure end-to-end visibility of vaccine doses.

Jurisdictions can employ strategies to address these constraints, including: 

• Concentrating early COVID-19 vaccine administration efforts on the initial critical populations identified 

above and in Section 4: Critical Populations.

• Providing COVID-19 vaccination services in closed point-of-dispensing (POD) settings that allow for the 

maximum number of people to be vaccinated while maintaining social distancing and other infection 

control procedures (e.g., large hospitals and satellite, temporary, or off-site settings)

Jurisdictions should prioritize enrollment activities for vaccination providers and settings who will administer 

COVID-19 vaccine to the populations of focus for Phase 1, giving consideration to those who live in remote, rural 

areas and may have difficulty accessing vaccination services. Simultaneously, jurisdictions should develop 

operational procedures for any temporary or mobile clinics planned for Phase 1 prior to receipt of vaccine. 
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Additional information on COVID-19 vaccination provider outreach and clinic settings is located in Section 5: 

COVID-19 Provider Recruitment and Enrollment.

Three scenarios are provided in Appendix B: COVID-19 Vaccination Scenarios for Jurisdictional Planning – Phase 

1, Q4 2020 to assist with planning for Phase 1. Each hypothetical scenario presents variations in product 

availability, number of vaccine doses allocated, storage and handling requirements, and administration by 

theoretical vaccine product. These three scenarios may be especially helpful in conducting any workshops or 

exercises.

As jurisdictions are performing Phase 1 activities, they should be thinking ahead to Phase 2. Jurisdictions may 

consider the need for additional vaccinators to staff PODs, contract needs for vaccination services, and 

reviewing state practice acts to allow for expanded professional practice, if necessary.

Phase 2: Large Number of Doses Available; Supply Likely to Meet Demand

As the supply of available vaccine increases, distribution will expand, increasing access to vaccination services 

for a larger population. When larger quantities of vaccine become available, there will be two simultaneous 

objectives:

1. Provide equitable access to COVID-19 vaccination for all critical populations to achieve high COVID-19 

vaccination coverage in these populations in the jurisdiction.

2. Ensure high uptake in specific populations, particularly in groups that are higher risk for severe 

outcomes from COVID-19.

The key considerations in planning for Phase 2 are:

• COVID-19 vaccine supply will likely be sufficient to meet demand for critical populations as well as the 

general public.

• Additional COVID-19 vaccine doses available will permit an increase in vaccination providers and 

locations.

• A surge in COVID-19 vaccine demand is possible, so a broad vaccine administration network for surge 

capacity will be necessary.

• Low COVID-19 vaccine demand is also a possibility, so jurisdictions should monitor supply and adjust 

strategies to minimize vaccine wastage.

Jurisdictions should adapt to the increase in COVID-19 vaccine supply levels by:

• Expanding vaccination efforts beyond initial population groups in Phase 1 with emphasis on equitable 

access for all populations.

• Administering vaccine through:

o Commercial and private sector partners (pharmacies, doctors’ offices, clinics)

o Public health sites (mobile clinics, Federally Qualified Health Centers [FQHCs], RHCs, public 

health clinics, temporary/off-site clinics)

Phase 3: Likely Sufficient Supply

Ultimately, COVID-19 vaccine will be widely available and integrated into routine vaccination programs, run by 

both public and private partners.

The key considerations in planning for Phase 3 are:

• Likely sufficient COVID-19 vaccine supply where supply might exceed demand

• Broad vaccine administration network for increased access 
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Strategies that jurisdictions should consider:

• Continuing to focus on equitable vaccination access to vaccination services

• Monitoring COVID-19 vaccine uptake and coverage in critical populations and enhancing strategies to 

reach populations with low vaccination uptake or coverage

• Partnering with commercial and private entities to ensure COVID-19 vaccine and vaccination services 

are widely available

• Monitoring supply and repositioning refrigerated vaccine products to minimize vaccine wastage

Related Guidance and Reference Materials

CDC’s Roadmap to Implementing Pandemic Influenza Vaccination of Critical Workforce provides additional 

information and tools for state and local planners on how to operationalize and implement specific plans for 

targeting critical workforce groups during an influenza pandemic response. The document also includes tools 

and resources for tracking progress on critical workforce vaccination planning and activities within a jurisdiction.

Though currently specific to an influenza pandemic, it may help to inform the approach for COVID-19 

vaccination planning for critical workforce.
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Section 4: Critical Populations

CDC’s Advisory Committee on Immunization Practices (ACIP), the National Institutes of Health, and the National 

Academies of Sciences, Engineering, and Medicine (NASEM) are working to determine populations of focus for 

COVID-19 vaccination and ensure equity in access to COVID-19 vaccination availability across the United States. 

CDC has established an ACIP work group to review evidence on COVID-19 epidemiology and burden as well as 

COVID-19 vaccine safety, vaccine efficacy, evidence quality, and implementation issues to inform 

recommendations for COVID-19 vaccination policy. A key policy goal is to determine critical populations for 

COVID-19 vaccination, including those groups identified to receive the first available doses of COVID-19 vaccine 

when supply is expected to be limited.

After a short period of potentially limited vaccine supply, supply will likely increase quickly, allowing vaccination 

efforts to be expanded to include additional critical populations as well as the general public. Jurisdictions 

should develop plans to ensure equitable access to vaccination for each of the critical populations identified 

below.

Identifying and Estimating Critical Populations

The first step in planning is to identify and estimate the critical populations within a jurisdiction. These 

populations (listed in no particular order) may include but are not limited to:

• Critical infrastructure workforce

o Healthcare personnel (i.e., paid and unpaid personnel working in healthcare settings, which may 

include vaccinators, pharmacy staff, ancillary staff, school nurses, and EMS personnel)

o Other essential workers (see additional guidance from the Cybersecurity and Infrastructure 

Security Agency [CISA])

Note: The critical infrastructure workforce varies by jurisdiction. Each jurisdiction must decide which

groups to focus on when vaccine supply is limited by determining key sectors that may be within 

their populations (e.g., port-related workers in coastal jurisdictions)

• People at increased risk for severe COVID-19 illness

o LTCF residents (i.e., nursing home, assisted living, independent living facility residents)

o People with underlying medical conditions that are risk factors for severe COVID-19 illness

o People 65 years of age and older

• People at increased risk of acquiring or transmitting COVID-19

o People from racial and ethnic minority groups

o People from tribal communities

o People who are incarcerated/detained in correctional facilities

o People experiencing homelessness/living in shelters

o People attending colleges/universities

o People who work in educational settings (e.g., early learning centers, schools, and 

colleges/universities)

o People living and working in other congregate settings

• People with limited access to routine vaccination services

o People living in rural communities

o People with disabilities

o People who are under- or uninsured

Estimates of these groups should be as accurate as possible to minimize potential waste of vaccine, constituent 

products, or ancillary supplies. Partner agencies and organizations may be helpful in determining accurate 
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estimates of these population groups. Such organizations might include the jurisdiction’s emergency 

management agency, labor department, chamber of commerce, healthcare coalitions, and chronic 

disease/nutrition groups, as well as the U.S. Department of the Interior, federal executive boards, and the 

Association of Continuity Professionals. 

Estimating Population Groups for Initial COVID-19 Vaccine Distribution During Phase 1

In the event that the jurisdiction’s allocation during Phase 1 is insufficient to vaccinate all those included in the 

initial populations of focus, it is important for jurisdictions to identify and estimate the subset groups (i.e., Phase 

1-A, Phase 1-B) within these initial populations of focus to determine who will receive the first available doses of 

COVID-19 vaccine. Jurisdictions can review current ACIP work group considerations for assistance in identifying, 

prioritizing, and estimating Phase 1 sub-population groups. 

Jurisdictional considerations for Phase 1 subset groups may include, for example: 

❖ Phase 1-A: Paid and unpaid people serving in healthcare settings who have the potential for direct or 

indirect exposure to patients or infectious materials and are unable to work from home.

❖ Phase 1-B: People who play a key role in keeping essential functions of society running and cannot 

socially distance in the workplace (e.g., healthcare personnel not included in Phase I-A, emergency and 

law enforcement personnel not included in Phase 1-A, food packaging and distribution workers, 

teachers/school staff, childcare providers), and people at increased risk for severe COVID-19 illness, 

including people 65 years of age or older.

There may be insufficient COVID-19 vaccine supply initially to vaccinate all those who fall into the Phase 1-A 

subset, so jurisdictions should plan for additional subsets within that group. Phase 1-B and Phase 2 planning 

may also benefit from identifying subsets of population groups if there is high demand for vaccine. The U.S. 

Department of Labor’s Occupational Safety and Health Administration has information on classifying 

workers at risk (low to very high based on position within an organization) for exposure to SARS-CoV-2. This 

information could prove helpful in determining subsets of critical populations for vaccination. 

Describing and Locating Critical Populations

To improve vaccination among critical population groups, jurisdictions must ensure these groups have access to 

vaccination services. To inform COVID-19 vaccination provider outreach efforts, jurisdictions need to know 

where these groups are located. Jurisdictions should create visual maps of these populations, including places of 

employment for the critical infrastructure workforce category, to assist in COVID-19 vaccination clinic planning, 

especially for satellite, temporary, or off-site clinics. The federal government will release a dashboard that 

includes a mapping tool that may assist jurisdictions with this task. Additional information on the dashboard will 

be shared when available.

Public health programs should establish procedures to communicate key messages and coordinate vaccination 

logistics for these groups. Programs should establish points of contact (POCs) for each organization, employer, 

or community (as appropriate) within the critical population groups. Partnerships with trusted community 

organizations can facilitate early agreement on communication channels and methods for rapidly disseminating 

information and ultimately ensuring these groups have access to vaccination. (See Section 12: COVID-19 

Vaccination Program Communication.) Some of these partners could include: 

• Community Health Centers

• FQHCs

• RHCs

• Critical access hospitals

• Pharmacies
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• Organizations and businesses that employ critical workforce

• First responder organizations

• Non-traditional providers (e.g., community health workers, doulas) and locations (e.g., dialysis centers, 

community centers) serving people at higher risk for severe illness

• Other locations or facilities for shared or congregate housing serving people at higher risk for severe 

illness (e.g., homeless shelters, group housing, correctional facilities, senior living facilities)

• Locations where people 65 years of age and older gather (e.g., senior centers, food pantries)

• Religious groups and other community groups

• In-home care organizations

• Schools and institutions of higher learning

Jurisdictions should prioritize describing and locating the Phase 1 initial populations of focus (see above) in their 

planning efforts, as these groups will be the first to be vaccinated before other critical populations.

A sample worksheet for collecting critical population POCs and other pertinent information is in Appendix C: 

Phase 1 Population Group Worksheet Example.

Related Guidance and Reference Materials

Advisory Committee on Immunization Practices

NASEM Preliminary Framework for Equitable Allocation of COVID-19 Vaccine

Johns Hopkins Center for Health Security Interim Framework for COVID-19 Vaccine Allocation and Distribution in 

the United States

The HHS Office for Civil Rights (OCR) webpage on Civil Rights and COVID-19 has several resources, including: 

• BULLETIN: Civil Rights, HIPAA, and the Coronavirus Disease 2019 (COVID-19)

• BULLETIN: Ensuring the Rights of Persons with Limited English Proficiency in Health Care During COVID19

• BULLETIN: Civil Rights Protections Prohibiting Race, Color, and National Origin Discrimination During 

COVID-19: Application of Title VI of the Civil Rights Act of 1964

• Information on the resolution of complaints filed with HHS OCR such as those that allege age and 

disability discrimination due to a state’s crisis standards of care guidelines, etc.

Mapping Medicare Disparities Tool can be used to identify areas of disparities between subgroups of Medicare 

beneficiaries in health outcomes, utilization, and spending. It can assist with investigating geographic and racial 

and ethnic differences in health outcomes and inform decisions to focus on certain populations and 

geographies. 
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Section 5: COVID-19 Vaccination Provider Recruitment and Enrollment

An adequate network of trained, technically competent COVID-19 vaccination providers in accessible settings is 

critical to COVID-19 Vaccination Program success. For this reason, COVID-19 vaccination provider recruitment 

and enrollment may be the most critical activity conducted before vaccine becomes available. Jurisdictions and 

tribal organizations should concentrate early planning efforts on engaging those vaccination providers and 

services that can rapidly vaccinate initial populations of focus (see Section 4: Critical Populations) as soon as a

COVID-19 vaccine is available (Phase 1). Subsequent planning should include measures for recruiting and 

enrolling enough providers to vaccinate additional critical populations and eventually the general population 

when sufficient vaccine supply is available (Phases 2 and 3).

Vaccination Provider Recruitment

Jurisdictions are encouraged to immediately reach out to potential COVID-19 vaccination providers and target 

the appropriate settings so that COVID-19 vaccination services are accessible to the initial populations of focus 

when the first COVID-19 vaccine doses arrive. Providers and settings that maximize the number of people who 

can be vaccinated should be prioritized for enrollment; however, jurisdictions should ensure social distancing 

and other infection control procedures can be maintained in selected settings (see CDC guidance on vaccination 

during a pandemic). All providers/settings, especially those enrolled for Phase 1, must able to meet the 

reporting requirements discussed in Section 9: COVID-19 Vaccine Administration Documentation and Reporting

and Section 11: COVID-19 Requirements for Immunization Information Systems or Other External Systems. 

Jurisdictions should consider partnering with the private sector and with local hospitals or health systems to 

provide COVID-19 vaccination in the closest proximity possible to the initial populations of focus. For example, 

partnering with critical access hospitals will be key to vaccinating Phase 1 populations in rural areas. Suggested 

early COVID-19 vaccination providers/settings include:

• Large hospitals and health systems

• Commercial partners* (e.g., pharmacies)

• Mobile vaccination providers

• Occupational health settings for large employers

• Critical access hospitals, RHCs, community health centers, or other central locations that can provide 

vaccination services for a broad area

*CDC is working to engage large pharmacy partners to assist with on-site vaccination in LTCFs. These 

partners have existing distribution and administration infrastructure (including cold chain) 

and relationships with some LTCFs to provide medication and, in some cases, vaccination services (e.g., 

seasonal influenza) for staff and residents in LTCFs; this may reduce burden on jurisdictional health 

departments. CDC will ensure jurisdictions have visibility on this work with large pharmacy partners.

Jurisdictions should recruit additional COVID-19 vaccination providers to expand equitable access to COVID-19 

vaccination when vaccine supply increases. Enrollment activities should be tracked so vaccination providers are 

not approached multiple times. Establishing and building upon existing relationships with community partners 

and collaborating with medical societies, state licensing boards, the state Medicaid agency, state rural health 

office, IHS/tribal health entities, and health insurance issuers and plans in the area, may assist jurisdictions in 

identifying COVID-19 vaccination providers and the population groups they serve. Jurisdictions should consider 

engaging both traditional and nontraditional vaccination providers and settings, including: 

• In-patient healthcare facilities 

o Large hospitals could potentially operate as open PODs.

• LTCFs (e.g., nursing home, assisted living, independent living, and skilled nursing facilities)
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• Doctors’ offices and other outpatient facilities (particularly those treating patients at higher risk of 

severe COVID-19 illness)

• Pharmacies

• Occupational health settings

• Organizations serving people at higher risk for severe illness from COVID-19 (e.g., dialysis centers, social 

service organizations)

• In-home care provider organizations

• Congregate settings (e.g., correctional facilities)

• Colleges and universities

• Homeless shelters

• Locations where people 65 years of age and older gather (e.g., senior centers, food pantries)

• FQHCs and RHCs

Jurisdictions and tribal organizations should determine the need for additional vaccination services such as 

satellite, temporary, or off-site clinics to meet demand/need not met by other enrolled COVID-19 vaccination 

providers. These clinics may operate as either closed or open PODs. 

It is important to consider infection control measures that are currently necessary when selecting COVID-19 

vaccination clinic settings:

• Providing specific appointment times or other strategies to manage patient flow and avoid crowding and 

long lines.

• Ensuring sufficient staff and resources to help move patients through the clinic flow as quickly as 

possible

• Limiting the overall number of clinic attendees at any given time, particularly for people at higher risk 

for severe illness from COVID-19

• Setting up a unidirectional site flow with signs, ropes, or other measures to direct site traffic and ensure 

physical distancing between patients

• When feasible, arranging a separate vaccination area or separate hours for people at increased risk for 

severe illness from COVID-19, such as older adults and people with underlying medical conditions

• Making available a point of contact for any reasonable accommodation needs for people with disabilities

• Ensuring vaccination locations are accessible to individuals with disabilities consistent with disability 

rights statutes such as the Americans with Disabilities Act and Section 504 of the Rehabilitation Act of 

1973

• Selecting a space large enough to ensure a minimum distance of 6 feet between patients in line or in 

waiting areas for vaccination, between vaccination stations, and in postvaccination monitoring areas.

Note: ACIP recommends that providers consider observing patients for 15 minutes after vaccination to 

decrease the risk for injury should they faint. For mobile or drive-through vaccination clinics, it is 

important to assess parking to accommodate vaccine recipients as they wait after vaccination.

Vaccination Provider Enrollment

To receive/administer COVID-19 vaccine, constituent products, and ancillary supplies, vaccination provider

facilities/organizations must enroll in the federal COVID-19 Vaccination Program coordinated through their 

jurisdiction’s immunization program. Enrolled COVID-19 vaccination providers must be credentialed/licensed in 

the jurisdiction where vaccination takes place, and sign and agree to the conditions in the CDC COVID-19 

Vaccination Program Provider Agreement. These conditions are detailed in the agreement itself:
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1. Administer COVID-19 vaccine in accordance with ACIP recommendations. (Note: ACIP will review data 

on the safety and efficacy of each available COVID-19 vaccine and vote on recommendations for use.)

2. Within 24 hours of administering a dose of COVID-19 vaccine and adjuvant (if applicable), record in the 

vaccine recipient’s record and report required information to the relevant state, local, or territorial 

public health authority. (See Appendix D: CDC IIS Data Requirements for COVID-19 Vaccine Monitoring). 

The provider must maintain the vaccine administration records for at least 3 years following vaccination, 

or longer if required by state, local, or territorial law. These records must be made available to any 

federal, state, local, or territorial public health department to the extent authorized by law.

3. Not sell or seek reimbursement for COVID-19 Vaccine and any adjuvant, syringes, needles, or other 

constituent products and ancillary supplies provided by the federal government.

4. Administer COVID-19 vaccine regardless of the vaccine recipient’s ability to pay.

5. Provide an Emergency Use Authorization (EUA) fact sheet or vaccine information statement (VIS), as 

applicable, to each vaccine recipient/parent/legal representative prior to vaccination.

6. Comply with CDC requirements for vaccine management, including storage and handling, temperature 

monitoring at all times, complying with jurisdiction’s instructions for dealing with temperature 

excursions, and monitoring expiration dates. Providers must keep all records related to COVID-19 

vaccine management for a minimum of 3 years, or longer if required by law.

7. Report COVID-19 vaccines and adjuvants that were unused, spoiled, expired, or wasted as required by 

the jurisdiction’s immunization program.

8. Comply with federal instruction regarding disposal of unused COVID-19 vaccine and adjuvant.

9. Report adverse events to the Vaccine Adverse Event Reporting System (VAERS).

10. Provide a completed COVID-19 vaccination record card to every vaccine recipient/parent/legal 

representative.

11. Comply with the U.S. Food and Drug Administration’s requirements, including EUA-related 

requirements, if applicable. Providers must also administer COVID-19 vaccine in compliance with all 

applicable state and territorial vaccine laws.

Failure of any enrolled COVID-19 vaccination provider organization or vaccination location under its authority to 

meet the conditions of the agreement may impact whether COVID-19 vaccine product orders are fulfilled and 

may result in legal action by the federal government.

Enrolled COVID-19 vaccination providers must also fully complete the CDC COVID-19 Vaccination Provider Profile

form for each location where COVID-19 vaccine will be administered. The profile form collects the following 

variables for each location:

• Address and contact information

• Days and hours of operation

• Vaccination provider type (e.g., medical practice, pharmacy, LTCF)

• Settings where vaccine will be administered (e.g., hospital, university, temporary or off-site clinic)

• Number of patients/clients served 

• Influenza vaccination capacity during the peak week of the prior (2019–2020) influenza season

• Populations served (e.g., pediatric, adult, military, pregnant women)

• Current IIS reporting status

• Vaccine storage unit capacity in volume and ability to maintain required temperatures

The profile form includes a field where the brand/model/type of storage unit is to be listed, requiring an 

attestation from the medical/pharmacy director or vaccine coordinator that each unit will maintain the relevant 
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required temperatures (i.e., refrigerated [2°C to 8°C], frozen [-15° to -25°C], ultra-cold [-60° to -80°C]. If desired, 

the immunization program may request photos of vaccine storage units for confirmation.

Both forms (agreement and profile) may be submitted to the jurisdiction electronically, and it is permissible for 

an immunization program to develop and administer these forms in the IIS or other system.

Note: A vaccine coordinator is the POC for receiving vaccine shipments, monitoring storage unit temperatures, 

managing vaccine inventory, etc. Immunization programs should encourage enrolled facilities/organizations to 

designate a vaccine coordinator role at each location as well as a back-up vaccine coordinator.

Provider enrollment activities that immunization programs must complete include:

• Ensure provider agreement, profile form, and redistribution agreement (if applicable) are thoroughly

and accurately completed by each enrolled provider, retained on file for a minimum of 3 years, and 

made available to CDC upon request

• Verify COVID-19 vaccination providers (prescribers only, e.g., MD, DO, RPh, NP, PA) have active, valid 

licensure/credentials to possess and administer vaccine.

• Onboard COVID-19 vaccination providers to the jurisdiction’s IIS or other external system using an 

expedited process. 

• Enter ship-to site information for each enrolled COVID-19 vaccination provider location in the Vaccine 

Tracking System (VTrckS) via direct upload or extensible XML information set (ExIS).

• Report COVID-19 vaccination provider enrollment data electronically to CDC twice a week (i.e., Monday 

and Thursday by 9:00pm EST), using CDC-provided Comma Separated Values (CSV) and JavaScript Object 

Notation (JSON) templates to report via a Security Access Management Services (SAMS)–authenticated 

mechanism. CDC will monitor provider enrollment progress (see Section 15: COVID-19 Vaccination 

Program Monitoring).

• Ensure that all COVID-19 vaccination providers have been trained appropriately and have the 

appropriate equipment at their location to manage any serious adverse events. (Note: For new 

vaccination providers and nontraditional provider settings, it will be helpful to furnish vaccination clinic 

planning guidance to ensure optimum staffing, layout, supplies, and infection control procedures are in 

place.)

COVID-19 Vaccination Provider Training

Training of COVID-19 vaccination providers is vital to ensure the success of the COVID-19 Vaccination Program. 

CDC will have many educational resources available for use (even some for co-branding), but immunization 

programs may develop or use other materials in conjunction with CDC materials. Jurisdictions should determine 

the most efficient methods for training delivery and tracking. Jurisdictions will not be required to provide 

training for federal entities and commercial partners receiving direct vaccine allocations from CDC.

COVID-19 vaccination providers must understand the following:

• ACIP COVID-19 vaccine recommendations, when available

• How to order and receive COVID-19 vaccine

• COVID-19 vaccine storage and handling (including transport requirements) 

• How to administer vaccine, including reconstitution, use of adjuvants, appropriate needle size, anatomic 

sites for vaccine administration, avoiding shoulder injury with vaccine administration, etc.

• How to document and report vaccine administration via the jurisdiction’s IIS or other external system

• How to manage vaccine inventory, including accessing and managing product expiration dates (see 

Section 7: COVID-19 Vaccine Allocation, Ordering, Distribution, and Inventory Management)
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• How to report vaccine inventory 

• How to manage temperature excursions

• How to document and report vaccine wastage/spoilage

• Procedures for reporting moderate and severe adverse events as well as vaccine administration errors

to VAERS

• Providing EUA fact sheets or VISs to vaccine recipients

• How to submit facility information for COVID-19 vaccination clinics to CDC’s VaccineFinder (particularly 

for pharmacies or other high-volume vaccination providers/settings)

Role of Commercial and Federal Partners

Some multijurisdictional vaccination providers (e.g., select large drugstore chains, some IHS locations, Veterans 

Administration clinics and hospitals, and other federal providers) will enroll directly with CDC to order and 

receive COVID-19 vaccine. CDC will notify jurisdictions of any entities receiving direct allocations within their 

areas. These direct partners will be required to report vaccine supply and uptake information to each respective 

jurisdiction. Jurisdictions may partner with commercial entities that are enrolled directly with CDC to reach their 

populations. Large drugstore chains, for example, may be particularly helpful in conducting PODs as well as

vaccinating LTCF residents and staff. Health insurance issuers and plans may also assist in informing their 

enrollees about vaccination efforts. 

Related Guidance and Reference Materials

HHS authorization for state-licensed pharmacists to administer vaccines
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Section 6: Understanding a Jurisdiction’s COVID-19 Vaccine Administration 

Capacity

Occupational health settings, temporary vaccination clinics, 

and closed PODs may be particularly useful for vaccination 

of critical infrastructure workers and other select critical 

populations early in the COVID-19 vaccination response 

when vaccine supply may be limited. However, once vaccine 

supply increases, leveraging a wide variety of potential 

community COVID-19 vaccination providers and settings is 

essential to providing equitable access to COVID-19 

vaccination for all people in all communities. Public health 

programs should understand their jurisdiction’s overall 

potential COVID-19 vaccine administration capacity, using a 

variety of COVID-19 vaccination provider types and settings. 

“Vaccine administration capacity” is defined as the 

maximum achievable vaccination throughput regardless of 

public demand for vaccination. If a jurisdiction has a good 

understanding of its COVID-19 vaccination providers and 

locations and their vaccine administration capacities, then 

planners can generate rough estimates of COVID-19 vaccine 

administration capacity in their jurisdiction and their ability 

to reach various COVID-19 vaccination coverage goals.

Important elements to consider in estimating vaccination capacity:

• Estimated number of existing vaccination provider locations in the jurisdiction, by type or vaccination 

setting, and the populations served (e.g., adults, children)

• Estimated potential weekly COVID-19 vaccine administration capacity (throughput) 

• Estimated vaccination provider participation rate in the COVID-19 Vaccination Program

When assessing vaccine administration capacity, other important factors to consider include:

• COVID-19 vaccine storage capacity at a given location (e.g., quantity of COVID-19 vaccine that can be 

stored, storage equipment and temperature monitoring devices that meet CDC requirements)

• Existing vaccine administration capacity during seasonal influenza or other high vaccination periods

• Current staffing levels

• Routine immunization programs being conducted simultaneously that may affect throughput for COVID19 vaccination in certain vaccination provider settings

• Infection control measures (i.e., scheduling, distancing, donning and doffing personal protective 

equipment, cleaning/sanitation procedures) that may slow the vaccination process

• Timing and duration of COVID-19 vaccination provider participation due to changes in staffing or other 

resources throughout the response

• Clinic closure due to environmental or other factors (e.g., seasonal weather, wildfires, holidays)

Jurisdictions should seek input from a variety of COVID-19 vaccination providers to inform this process. Previous 

vaccination exercises or campaigns may also provide helpful information. 

Box 1: Key Public and Private Sector 

Vaccination Settings

• Healthcare provider offices and 

other outpatient clinics

• Public health clinics

• Chain and independent 

pharmacies

• School-based health centers

• Worksites and other occupational 

health clinics

• Hospitals 

• Temporary or off-site vaccination 

clinics* 

• Mobile vaccinators

*Community locations where state and local 

agencies dispense and administer medical 

countermeasures [MCMs] to the public, also known 

as “points of dispensing” [PODs])
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Related Guidance and Reference Materials

CDC has developed a tool to assist with estimating vaccination capacity. A pandemic influenza version of this 

tool, the PanVax Tool for Pandemic Vaccination Planning, is available on the CDC website. The tool is currently 

being updated.
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Section 7: COVID-19 Vaccine Allocation, Ordering, Distribution, and 

Inventory Management

Initial supplies of COVID-19 vaccine may be available in fall 2020. Early dose distribution will be limited; 

therefore, phased allocation of early vaccine doses will likely be necessary. Populations of focus for initial 

COVID-19 vaccine doses are expected to include healthcare workers (including ancillary staff, vaccinators, and

staff in LTCFs), other essential workers, and people at higher risk for severe COVID-19 illness 2. See Section 4:

Critical Populations for more information. Jurisdictions should anticipate allocations to shift during the response 

based on supply, demand, vaccine characteristics, and disease epidemiology and should plan for high-demand 

and low-demand scenarios. 

Allocation

The federal government will determine the amount of COVID-19 vaccine designated for each jurisdiction. The 

jurisdiction’s immunization program will then be responsible for managing and approving orders from enrolled 

providers within their jurisdiction using this allotment. The amount allotted will change over time, which may be 

based on critical populations recommended for vaccination by ACIP (with input from NASEM), COVID-19 vaccine 

production and availability, and overall population of the jurisdiction. 

Federal agencies and additional commercial partners will also receive allocations directly from CDC once larger 

volumes of vaccine are available. CDC is currently developing procedures to ensure that jurisdictions and tribes

have full visibility of COVID-19 vaccine supply and vaccination activities among these entities located within their 

boundaries.

Immunization programs should develop allocation methods for critical populations of focus in early- and limitedsupply scenarios. Prior to receiving an initial vaccine supply, jurisdictions should determine COVID-19 vaccine

order allowances among their vaccination providers based on the critical populations they serve. Allotments of 

doses to vaccination providers within a jurisdiction should be based on:

• ACIP recommendations (when available)

• Estimated number of doses allocated to the jurisdiction and timing of availability

• Populations served by vaccination providers and geographic location to ensure distribution throughout 

the jurisdiction

• Vaccination provider site vaccine storage and handling capacity

• Minimizing the potential for wastage of vaccine, constituent products, and ancillary supplies

• Other local factors

See Section 4: Critical Populations for more information.

Ordering

COVID-19 vaccination providers enrolled by the jurisdiction will order COVID-19 vaccine through their 

jurisdiction’s immunization program. Most jurisdictions will ask COVID-19 vaccination providers to place orders 

using systems and procedures routinely used for ordering publicly funded vaccines (e.g., IIS/ExIS upload to CDC’s 

VTrckS for provider direct order entry), though some jurisdictions may have augmented systems. 

CDC will provide jurisdictions with regular updates on the available vaccine supply and vaccine product-specific 

allocations for their enrolled COVID-19 vaccination providers in VTrckS. During Phase 1 of the vaccination 

program, when there is limited vaccine supply for critical populations, immunization programs should approve 

2

Subject to any vaccine product-specific age restrictions
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orders based on the likely populations served by a vaccination provider, the provider’s capability to store and 

handle various COVID-19 vaccine products, and existing inventory. The minimum order size and increment for 

centrally distributed vaccines will be 100 doses per order; though early in the response, some ultra-cold (-60°C

to -80°C) vaccine (if authorized for use or approved) may be shipped directly from the manufacturer in larger

quantities. CDC will share more information on these shipments as it becomes available.

Ancillary supplies will be packaged in kits and will be automatically ordered in amounts to match vaccine orders 

in VTrckS. Each kit will contain supplies to administer 100 doses of vaccine, including: 

• Needles, 105 per kit (various sizes for the population served by the ordering vaccination provider)

• Syringes, 105 per kit

• Alcohol prep pads, 210 per kit

• 4 surgical masks and 2 face shields for vaccinators, per kit

• COVID-19 vaccination record cards for vaccine recipients, 100 per kit

For COVID-19 vaccines that require reconstitution with diluent or mixing with adjuvant at the point of 

administration, mixing kits with syringes, needles, and other needed supplies will also be included. Ancillary 

supply kits will not include sharps containers, gloves, and bandages. Additional personal protective equipment 

(PPE) may be needed depending on vaccination provider site needs. 

Facilities ordering outside of their jurisdiction’s allocation (i.e., commercial and federal entities with federal 

MOUs in place) will order directly from CDC, and CDC will be responsible for approval of those orders. 

Distribution

COVID-19 vaccines and ancillary supplies will be procured and distributed by the federal government at no cost 

to enrolled COVID-19 vaccination providers. CDC will use its centralized distribution contract to fulfill orders for 

most vaccine products and associated ancillary supplies. Some vaccine products, such as those with ultra-cold 

temperature requirements, will be shipped directly from the manufacturer to the vaccination provider site.

Jurisdictions should ensure accurate and complete shipping information (e.g., shipment address, provider 

contact information, shipping hours) is available in VTrckS for all vaccine shipments to enrolled vaccination 

providers. 

COVID-19 vaccine (and diluent or adjuvant, if required) will be shipped to vaccination provider sites enrolled by 

the jurisdiction’s immunization program within 48 hours of order approval. Because of cold chain requirements, 

ancillary supply kits (and diluent, if applicable) will ship separately from vaccine but should arrive before or on 

the same day as vaccine. 

The federally contracted vaccine distributor uses validated shipping procedures to maintain COVID-19 vaccine 

cold chain and minimize the likelihood of vaccine loss or damage during shipment. Once a vaccine product has 

been shipped to a COVID-19 vaccination provider site, the federal government will neither redistribute the 

product nor take financial responsibility for its redistribution. (See Section 8: COVID-19 Vaccine Storage and 

Handling for more information.) 

Whenever possible, vaccine should be shipped to the location where it will be administered to minimize 

potential breaks in the cold chain. However, there may be circumstances where COVID-19 vaccine needs to be 

redistributed beyond the identified primary CDC ship-to sites (i.e., for orders smaller than the minimum order 

size or for large organizations whose vaccine is shipped to a central depot and requires redistribution to 

additional clinic locations). In these instances, vaccination provider organizations/facilities, third-party vendors, 

and other vaccination providers may be allowed, if approved by the jurisdiction’s immunization program, to 

redistribute COVID-19 vaccine, if validated cold-chain procedures are in place in accordance with the 
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manufacturer's instructions and CDC’s guidance on COVID-19 vaccine storage and handling. These entities must 

sign and agree to conditions in the CDC COVID-19 Vaccine Redistribution Agreement for the sending 

facility/organization and have a fully completed and signed CDC COVID-19 Vaccination Provider Profile form for 

each receiving location. Jurisdictions should be extremely judicious in allowing redistribution and limit any 

redistribution to refrigerated vaccines only. 

Immunization programs may occasionally allow local transport of vaccines from one location to another within 

their jurisdictions, if adherence to cold chain and tracking requirements are maintained. CDC does not pay for or 

reimburse jurisdictions, COVID-19 vaccination provider organizations, facilities, or other entities for any 

redistribution beyond the initial designated primary CDC ship-to location, or for any vaccine-specific portable 

refrigerators and/or qualified containers and pack-outs. (See Section 8: COVID-19 Vaccine Storage and Handling

for more information.)

Inventory Management

COVID-19 vaccination providers will be required to report inventory of COVID-19 vaccines, and jurisdictions must 

ensure this inventory information is submitted with each order. 

It is anticipated COVID-19 vaccines will initially be authorized under an EUA. Vaccines authorized under an EUA 

will contain slight variations from approved Food and Drug Administration (FDA) products, including: 

• Expiration Date: The vaccine vials and cartons will not contain a printed expiration date. Expiration 

dates may be updated based on vaccine stability studies occurring simultaneously with COVID-19 

vaccine distribution and administration. Current expiration dates by vaccine lots for all authorized

COVID-19 vaccines will be posted on a US Department of Health and Human Services (HHS) website 

(weblink pending), accessible to all COVID-19 vaccination providers. To ensure that information systems 

continue to work as expected, CDC has worked with FDA and the manufacturers to include a twodimensional (2D) barcode on the vaccine vial (if possible) and carton (required) labels that includes a

National Drug Code (NDC), lot number, and a placeholder expiration date of 12/31/9999 to be read by a 

scanner. The placeholder 12/31/9999 expiration date is not visible on the vaccine packaging nor found 

anywhere else; it is only to facilitate information system compatibility. CDC is developing “beyond use 

date” (BUD) tracker labels to assist clinicians with tracking expiration dates at the point of vaccine 

administration. The label templates will be available on the CDC website.

• Manufactured Date: A manufactured date will be on the packaging and should not be used as the 

expiration date when documenting vaccine administration. This date is provided to help with managing 

stock rotations; however, expiration dates should also be considered (see above) as using manufactured 

date alone could have some limitations.

• 2D Barcode: The 2D barcode available on the vaccine carton (also on the vials for some vaccines) will

include NDC, lot number, and a placeholder expiration date of 12/31/9999.

• QR Code: Each vaccine manufacturer will include a Quick Response (QR) code on the vaccine carton for 

accessing FDA-authorized, vaccine product-specific EUA fact sheets for COVID-19 vaccination providers 

and COVID-19 vaccine recipients.

A list of authorized COVID-19 vaccine products with corresponding EUA fact sheets for healthcare providers and 

vaccine recipients, and up-to-date expiration information by vaccine lot will be available on an HHS website.

COVID-19 Vaccine Recovery

Details of COVID-19 vaccine recovery are still being finalized and will be communicated when available. 
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Section 8: COVID-19 Vaccine Storage and Handling

COVID-19 vaccine products are temperature-sensitive and must be stored and handled correctly to ensure 

efficacy and maximize shelf life. Proper storage and handling practices are critical to minimize vaccine loss and 

limit risk of administering COVID-19 vaccine with reduced effectiveness. Jurisdictions should work with staff at 

each COVID-19 vaccination provider site to ensure appropriate vaccine storage and handling procedures are 

established and followed.

It is expected that cold chain storage and handling requirements for COVID-19 vaccine products will vary in 

temperature from refrigerated (2°C to 8°C) to frozen (-15 to -25°C) to ultra-cold (-60°C to -80°C in the freezer or 

within the dry ice shipping container in which product was received). Ongoing stability testing may impact these 

requirements. Note: These temperatures are based on information available as of 9/04/2020. Updated 

information will be provided as it becomes available. 

For a reliable cold chain, three elements must be in place: 

• Well-trained staff

• Reliable storage and temperature monitoring equipment

• Accurate vaccine inventory management

The cold chain begins at the COVID-19 vaccine manufacturing plant, includes delivery to and storage at the 

COVID-19 vaccination provider site, and ends with administration of COVID-19 vaccine to a person. Jurisdictions 

and vaccination providers are responsible for maintaining vaccine quality from the time a shipment arrives at a 

vaccination provider site until the dose is administered. To minimize opportunities for breaks in the cold chain, 

most COVID-19 vaccine will be delivered from CDC’s centralized distributor directly to the location where the 

vaccine will be stored and administered, although some vaccine may be delivered to secondary depots for 

redistribution. Certain COVID-19 vaccine products, such as those with ultra-cold temperature requirements, will 

be shipped directly from the manufacturer to the vaccination provider site. If redistributing vaccine, jurisdictions 

must adhere to all cold chain requirements and should limit transport of frozen or ultra-cold vaccine products.

An addendum to the Vaccine Storage and Handling Toolkit that specifically addresses COVID-19 vaccines is 

currently being developed in addition to other training materials. 

Satellite, Temporary, and Off-Site Clinic Storage and Handling Considerations

Satellite, temporary, or off-site clinics in collaboration with community or mobile vaccinators may assist 

jurisdictions in providing equitable access for COVID-19 vaccination. However, these situations require 

additional oversight and enhanced storage and handling practices, including:

• The quantity of COVID-19 vaccine transported to a satellite, temporary, or off-site COVID-19 vaccination 

clinic should be based on the anticipated number of COVID-19 vaccine recipients and the ability of the 

vaccination provider to store, handle, and transport the vaccine appropriately. This is essential to 

minimizing the potential for vaccine wastage and spoilage.

• COVID-19 vaccines may be transported—not shipped—to a satellite, temporary, or off-site COVID-19 

vaccination clinic setting using vaccine transportation procedures outlined in the upcoming COVID-19 

addendum to CDC’s Vaccine Storage and Handling Toolkit. The procedures will include transporting 

vaccines to and from the provider site at appropriate temperatures, using appropriate equipment, as 

well as monitoring and documenting temperatures.

• Upon arrival at the COVID-19 vaccination clinic site, vaccines must be stored correctly to maintain 

appropriate temperature throughout the clinic day.
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• Temperature data must be reviewed and documented according to guidance in the upcoming COVID-19 

addendum to CDC’s Vaccine Storage and Handling Toolkit. 

• At the end of the clinic day, temperature data must be assessed prior to returning vaccine to fixed 

storage units to prevent administration of vaccines that may have been compromised.

• As with all vaccines, if COVID-19 vaccines are exposed to temperature excursions3 at any time, the 

temperature excursion should be documented and reported according to the jurisdiction immunization 

program’s procedures. The vaccines that were exposed to out-of-range temperatures must be labeled 

“do not use” and stored at the required temperature until further information on usability can be 

gathered or further instruction on disposition or recovery is received.

Jurisdictions and tribal organizations should review CDC’s revised Guidance for Planning Vaccination Clinics Held 

at Satellite, Temporary, or Off-Site Locations as well as Vaccination Guidance During a Pandemic. These 

resources provide information on additional considerations that are necessary during the COVID-19 pandemic, 

including social distancing, PPE use, and enhanced sanitation efforts.

3 A “temperature excursion” is an event in which the COVID-19 vaccine is exposed to temperatures outside the range(s) 

prescribed for storage and/or transport.
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Section 9: COVID-19 Vaccine Administration Documentation and Reporting

CDC requires that vaccination providers enrolled in the COVID-19 Vaccination Program report certain data 

elements for each dose administered within 24 hours of administration. (See Appendix D: CDC IIS Data 

Requirements for COVID-19 Vaccine Monitoring). Jurisdictions should assess the capability of COVID-19 

vaccination providers to meet federal and jurisdiction-specific reporting requirements before or upon 

enrollment. The required data elements are located on the ISD Awardees SharePoint site. COVID-19 vaccination 

providers may view the data requirements on CDC’s IIS website. Jurisdictions should be prepared to provide

additional support or technical assistance for smaller vaccination providers or rural clinic settings.

Jurisdictions must facilitate and monitor IIS reporting by enrolled vaccination providers. Each vaccination 

location should be ready (including trained staff, necessary equipment, and internet access) to report vaccine 

administration data to the IIS or other external system at the time of vaccination. If data will be entered off site, 

vaccination providers must ensure the required data are reported to the IIS or other designated system within 

24 hours. Reporting data may be transmitted daily from the jurisdiction’s designated system to the CDC via the 

IZ Gateway4“Connect” component. Additional information on the reporting process and specifications will be 

shared as soon as they have been finalized. Jurisdictions will not be responsible for reporting data from federal 

agencies or commercial partners who receive vaccine allocations directly from CDC. 

In addition to reporting vaccine administration, jurisdictions must put processes in place to match first and 

second doses including addressing the need to exchange data with or query other jurisdiction’s systems and/or 

the Immunization Data Lake5to obtain immunization history, if applicable. 

Jurisdictions should ensure redundant measures and procedures are in place for recording vaccine 

administration data in instances of connectivity problems or failures in the jurisdiction’s IIS or other system. The 

jurisdiction’s IIS should collect, report, and submit data directly to CDC’s Immunization Data Lake and 

jurisdictional reporting requirements. (Additional information on CDC data requirements is forthcoming.)

Planning activities should include onboarding to IZ Gateway Connect and Share6(if feasible) components; 

exchanging data with other jurisdictions through the IZ Gateway; generating coverage reports for use within the 

jurisdiction; and providing data to CDC that meet defined standards.

4 The Immunization Gateway (IZ Gateway) facilitates electronic messaging of vaccination records in a secure infrastructure 

allowing IIS systems across the nation to share vaccine administration data not only between jurisdictions, but also with 

provider organizations (e.g., Department of Defense, Federal Bureau of Prisons, IHS, Department of Veterans Affairs) that 

do not exchange data with the IIS today.

5 The Immunization Data Lake is a cloud-hosted data repository to receive, store, and manage COVID-19 vaccination data 

for doses administered, vaccination coverage, ordering, inventory, and distribution. The Data Lake will provide a catalogue 

of different COVID-19 vaccine-related data sources that can be used to aid in monitoring COVID-19 vaccine ordering, 

distribution, coverage, and uptake. Data streams currently being onboarded to the Data Lake include provider enrollment 

data, VTrckS, and VaccineFinder.

6 There are multiple ways to onboard to the IZ Gateway, including Connect and Share.

• Connect enables large national and non-traditional vaccination systems for satellite/temporary/off-site clinic 

settings to report and query immunization data with IISs, using the gateway’s centralized data exchange, avoiding 

multiple individual, and point-to-point connections. 

• Share allows exchange of immunization data between IIS jurisdictions by automating message triggers through the 

IIS for patients immunized outside of their jurisdiction, to route messages to the patient’s state of residence 

through the IZ Gateway.
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Section 10: COVID-19 Vaccination Second-Dose Reminders

For most COVID-19 vaccine products, two doses of vaccine, separated by 21 or 28 days, will be needed. Because 

different COVID-19 vaccine products will not be interchangeable, a vaccine recipient’s second dose must be 

from the same manufacturer as their first dose. Second-dose reminders for vaccine recipients will be critical to 

ensure compliance with vaccine dosing intervals and achieve optimal vaccine effectiveness. COVID-19 

vaccination providers should make every attempt to schedule a patient’s second-dose appointment when they 

get their first dose. 

COVID-19 vaccination record cards will be provided as part of vaccine ancillary kits. Vaccination providers should 

be highly encouraged to complete these cards with accurate vaccine information (i.e., vaccine manufacturer, lot 

number, date of first dose administration, and second dose due date), and give them to each patient who 

receives vaccine to ensure a basic vaccination record is provided. Vaccination providers should encourage 

vaccine recipients to keep the card in case the IIS or other system is not available when they return for their 

second dose. The card provides room for a written reminder for a second-dose appointment. If vaccine 

recipients have a smartphone, they may consider documenting their vaccine administration with a photo of 

their vaccination record and entering the date the next vaccine dose is due on their electronic calendar.

Redundant methods and systems should be used to remind vaccine recipients about their need for second 

doses. Jurisdictions should assess current practices for patient reminder/recall in existing healthcare provider 

organizations. Public health programs should work with occupational health providers and partners to consider 

the most appropriate and effective method of issuing second-dose reminders. A jurisdiction’s IIS can be 

particularly useful for centralized reminder/recall (see Section 11: COVID-19 Requirements for IIS or Other 

External Systems). Many pharmacies and healthcare systems have their own systems for patient notifications 

and reminders, some using functionality within their electronic health record (EHR) systems. Jurisdictions may 

consider exploring the use of automated patient phone calls (“robocalls”), emails, and SMS text message-based 

systems. Health plans may also help to notify their enrollees about second doses based on claims information.
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Section 11: COVID-19 Requirements for Immunization Information Systems or 

Other External Systems

IISs, also known as “vaccine registries,” are 

confidential, population-based, computerized 

databases for recording information on vaccine doses. 

IISs are maintained by a jurisdiction’s immunization 

program. 

IISs have a range of capabilities. Many IISs can

exchange data with EHRs, so that documentation of 

vaccine administration is automatically uploaded 

through bidirectional data exchange between EHRs 

and the IIS. EHRs that interface with jurisdiction IISs 

may improve the pace and accuracy of vaccine 

administration data capture. Some EHRs may leverage 

2D barcoding technology on vaccine vials and VISs to 

allow for rapid, accurate, and automatic capture of 

vaccine administration data, such as vaccine lot 

number, vaccine manufacturer, and expiration date. In 

many jurisdictions, routine vaccination providers enroll 

in public vaccine programs, order vaccines, report 

inventory, document vaccine spoilage/wastage, and 

remind patients when vaccine doses are due using the 

IIS. 

Using the IIS to document COVID-19 vaccine dose administration is beneficial on many fronts. When using the 

IIS, vaccination providers are able to determine if a patient is due for the first or second dose of vaccine. This is 

especially helpful in a pandemic situation when people may receive first and second vaccine doses at different 

locations. The IIS will also help to ensure that first and second doses are administered using the same vaccine 

product and appropriately spaced according to ACIP-recommended intervals. Based on a jurisdiction’s discretion 

and IIS functionality, COVID-19 vaccination providers may use IISs to: 

• Preregister or enroll in the COVID-19 vaccination program

• Place orders for COVID-19 vaccine

• Document vaccine administration

• Manage and report vaccine inventory

• Report vaccine spoilage/wastage

• Provide reminders to COVID-19 vaccine recipients indicating when the next dose of a multidose vaccine 

is due 

CDC is making available a vaccination clinic mobile application that may be used to register patients and record 

dose-level vaccination data that meets CDC reporting requirements. IIS and other external systems that support 

COVID-19 response efforts must have solid infrastructure, engaged partners, high-quality data, and efficient 

processes for managing vaccination. The objectives for these areas are described below. 

Immediate Priorities for Immunization Programs 

Related to Data Reporting:

• Determine and implement a solution for 

documenting vaccine administration in 

temporary or high-volume settings (e.g., 

CDC mobile app, IIS or module that 

interfaces with the IIS, or other 

jurisdiction-based solution)

• Ensure system capacity for data exchange, 

security, storage, and reporting

• Enroll vaccination provider 

facilities/organizations anticipated to 

vaccinate essential workers

• Connect IIS to the IZ Gateway

• Establish required data use agreements

• Assess and improve data quality

o Ensure data are available, secure, 

complete, timely, valid, accurate, 

consistent, and unique 
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System Infrastructure

Jurisdictions should take certain steps to ensure the IIS or other external system’s infrastructure is ready to 

support the COVID-19 Vaccination Program. Each jurisdiction should ensure their IIS infrastructure meets 

COVID-19 response data exchange, storage, and reporting requirements. The hardware and software on which 

the IIS depends should be up to date. For IISs that use a vendor platform, the IIS should be on the latest version 

of the platform. 

The jurisdiction’s IIS must operate as expected to appropriately support COVID-19 vaccination tracking efforts. 

The jurisdiction should prioritize testing and implement fixes for defects and enhancements that impact the IIS’s 

ability to support COVID-19 response efforts.

The jurisdiction must use a system that supports dose-level accountability—from the time vaccine leaves the 

distributor until the vaccine is administered or unused vaccine is returned—and provides data to CDC that meet 

defined standards. Jurisdictions will need to have a solution (either leveraging existing or new) for extracting 

required data from their IIS as a contingency for network outages. The specifications to support the data 

extracts will be provided by CDC to ensure data submissions align with the format required for submission to the 

COVID-19 clearing house (a secure data lake). Jurisdictions should also develop and test backup solutions for 

offline use if the internet is unavailable. 

Jurisdictions should explore and implement available IIS functionality for sending second-dose reminders (see 

Section 10: COVID-19 Vaccination Second-Dose Reminders) for vaccine recipients. This will be critical to ensure 

recipients complete the COVID-19 vaccine series.

COVID-19 Vaccination Provider Preparation

As jurisdictions enroll providers in the COVID-19 Vaccination Program (see Section 5: COVID-19 Vaccination 

Provider Recruitment and Enrollment), it is critical that they onboard providers to the IIS. Jurisdictions should 

have expedited processes in place to rapidly onboard vaccination providers expected to support Phase 1 

activities and efficient processes to onboard vaccination providers expected to support expanded efforts in 

Phases 2 and 3. 

Jurisdictions may conduct nontraditional COVID-19 vaccination clinics, such as temporary, off-site, or mobile 

vaccination clinics to reach critical populations, particularly during early vaccination efforts. This may require 

jurisdictions to identify, enroll, and train additional partners to report doses administered in the system 

designated to support those efforts.

Data Management

The jurisdiction’s IIS should collect and report data to satisfy CDC and jurisdictional reporting requirements. 

(Additional information on CDC data requirements is forthcoming.) Planning activities should include onboarding 

COVID-19 providers to the IIS, ensuring adequate IIS capacity, and establishing processes to ensure provider 

reporting within 24 hours of administration. IISs should also consider leveraging the IZ Gateway Connect and 

Share (if feasible) components for exchanging data with and/or querying other jurisdictions to obtain a 

consolidated vaccination record; using systems designed to support satellite, temporary, or off-site vaccination 

clinics; and generating coverage reports for use within the jurisdiction. Jurisdictions should be prepared to 

update their Clinical Decision Support (CDS) systems when CDC CDSi (Clinical Decision Support for 

immunizations) resources are updated.

Jurisdictions must have necessary policies in place to facilitate data collection and sharing with CDC and other 

jurisdictions. Jurisdictions onboarding to the IZ Gateway will be required to sign the Data Use Agreement (DUA) 

with Association of Public Health Laboratories (APHL) to participate in both IZ Gateway Connect and IZ Gateway 
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Share. Jurisdictions will also need to execute the MOU to share data with other jurisdictions through the IZ 

Gateway.

• APHL – Jurisdiction DUA IZ Gateway (3August2020revision) When executed, the APHL and jurisdiction 

DUA allows for the jurisdiction to participate in the Connect component and to identify which (if any) 

other components to enable (Share, Provider-initiated Multi-jurisdictional Data Exchange, Access and/or 

Access: Consumer-initiated Multi-jurisdictional Data Exchange). This document was updated Aug 3, 2020 

for this expanded use.

• Memorandum of Understanding between Jurisdictions to Exchange Data The Share component 

enables the exchange of immunization information across IIS jurisdictions. To enable the Share 

component, a jurisdiction must execute an Interjurisdictional MOU with jurisdictions with which it will 

exchange data. The MOU allows data exchange to occur through the IZ Gateway or an alternative 

mechanism with any state or jurisdiction that signed the MOU.

Jurisdictions will also need to execute a DUA with CDC so CDC can access their IIS data for national coverage 

data analysis. CDC will make the CDC-IIS DUA template available when it is finalized. 

Ordering and Inventory

Jurisdictions must have processes in place for managing and tracking COVID-19 vaccine ordering and inventory. 

Planning activities should include reviewing business processes and IIS functionality to identify and implement 

improvements; developing a plan to order, monitor, and manage COVID-19 vaccine inventory in the IIS using 

CDC standards; and exploring opportunities to adopt 2D barcoding technology to improve data quality. 

Related Guidance and Reference Materials

CDC Vaccination Clinic Mobile Application: Vaccine Administration Management System (VAMS)

• VAMS: An overview of the functionality of the four VAMS modules: IIS jurisdictions, 

employers/organizations, clinics, and vaccine recipients. (Located in SharePoint)

Provider Onboarding

• CDC Provider IIS Participation Community of Practice: An overview of the CDC Provider IIS Participation 

Community of Practice and ideas for addressing important provider IIS participation issues, including 

onboarding, EHR assistance, data quality, and provider training and outreach presented as a webinar on 

April 10, 2019.

• American Immunization Registry Association (AIRA Data Validation Guide – for the IIS Onboarding 

Process (2017): A guide with recommendations on the data validation process within onboarding

• Onboarding Consensus-Based Recommendations (2018): A guide for improving and standardizing 

onboarding intended for technical and programmatic staff that make up IIS onboarding teams and for 

program administrators responsible for allocation of onboarding resources 

Data Quality

• IIS Data Quality Blueprint ― A guide to help immunization program awardees address and advance data 

quality within IISs

• Data Quality Assurance in Immunization Information Systems: Incoming Data (2008): A summary of best 

practice guidelines and immediate actions an IIS can take to improve data quality
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• IIS Data Quality Practices to Monitor and Evaluate Data at Rest (2018): Practical guidance on techniques, 

methodologies, and processes for IISs to use in assessing the quality of data at rest, including 

demographic and immunization record information that is currently in the live, production environment 

(e.g., database or other data store). The primary audience for the guide includes IIS managers and staff 

with responsibility for ensuring IIS data quality.

• Consolidating Demographic Records and Vaccination Event Records (2017): Consensus-based best 

practice recommendations to support the process of consolidating demographic and vaccination event 

records.

Immunization Gateway (IZ Gateway)

• Immunization Gateway Information Sheet (Located in SharePoint available to immunization programs)

• Immunization Gateway Overview (Located in SharePoint available to immunization programs)

• Immunization Gateway Q&As for IIS Awardees (Located in SharePoint available to immunization 

programs)

Ordering and Inventory

• Immunization Information System Inventory Management Operations (2012): Consensus-based best 

practice recommendations for IISs to support immunization program requirements for provider 

organizations’ vaccine inventory management and associated IIS reports that support the vaccine 

inventory management needs of provider organizations and grantee immunization programs.

• Decrementing Inventory via Electronic Data Exchange (2016): Consensus-based best practice 

recommendations to support the process of decrementing inventory via electronic data exchange.

• Guidance on Unit of Sale/Unit of Use Lot Numbers (2018): Clarifications to the process and expectations 

for management of vaccine lot numbers.

• Vaccine Code Set Considerations (2020): A general overview of vaccine code sets and brief description of 

how code sets support multiple and varied IIS functions, including electronic data exchange with EHRs 

and other health information systems and vaccine ordering and inventory management.
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Section 12: COVID-19 Vaccination Program Communication

Starting before COVID-19 vaccines are available, clear, effective communication will be essential to 

implementing a successful COVID-19 Vaccination Program. Building vaccine confidence broadly and among 

groups anticipated to receive early vaccination, as well as dispelling vaccine misinformation, are critical to 

ensure vaccine uptake. 

A successful COVID-19 Vaccination Program will have lasting effects on the nation’s immunization system and 

overall vaccination efforts in the future. Using risk communication principles along with the CDC’s recently 

developed Vaccinate with Confidence framework, jurisdictions can develop and implement timely, evolving 

plans as the foundation for their overall COVID-19 vaccination communication efforts.

COVID-19 Vaccination Communication Objectives

• Educate the public about the development, authorization, distribution, and execution of COVID-19 

vaccines and that situations are continually evolving.

• Ensure public confidence in the approval or authorization process, safety, and efficacy of COVID-19 

vaccines.

• Help the public to understand key differences in FDA emergency use authorization and FDA approval

(i.e., licensure).

• Engage in dialogue with internal and external partners to understand their key considerations and needs 

related to COVID-19 vaccine program implementation.

• Ensure active, timely, accessible, and effective public health and safety messaging along with outreach 

to key state/local partners and the public about COVID-19 vaccines.

• Provide guidance to local health departments, clinicians, and other hosts of COVID-19 vaccination 

provider locations. 

• Track and monitor public receptiveness to COVID-19 vaccination messaging. 

Key Audiences

Messaging should be tailored for each audience to ensure communication is effective.

• Healthcare personnel (i.e., organizations and clinicians who will receive information about receiving and 

administering vaccine) 

• Health insurance issuers and plans (coverage for vaccine, in-network providers)

• Employers

• Government and community partners and stakeholders 

• Public/consumers

o Essential workers

o Those in groups at risk for severe outcomes from COVID-19 infection

o Those in groups at increased risk of acquiring or transmitting COVID-19 

o Those with limited access to vaccination services

Broad Communication Planning Phases

Messaging should be timely and applicable for the current phase of the COVID-19 Vaccination Program.

• Before vaccine is available

• Vaccine is available in limited supply for certain populations of early focus (Phase 1)

• Vaccine is increasing and available for other critical populations and the general public (Phase 2)

• Vaccine is widely available (Phase 3)
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Communication Activities

• Communicate early about the safety of vaccines in general and have easily accessible, government 

information to address myths, questions, and concerns.

• Keep the public, public health partners, and healthcare providers well-informed about COVID-19 

vaccine(s) development, recommendations, and public health’s efforts.

• Engage and use a wide range of partners, collaborations, and communication and news media channels 

to achieve communication goals, understanding that channel preferences and credible sources vary 

among audiences and people at higher risk for severe illness and critical populations, and channels vary 

in their capacity to achieve different communication objectives.

• Communicate proactively whenever possible, anticipating issues and forecasting possible problems 

before they reach broad awareness.

• Ensure that communications meet the requirements of the Americans with Disabilities Act, the 

Rehabilitation Act, the Patient Protection and Affordable Care Act, the Plain Language Act, and other 

applicable disability rights laws for accessibility.

• Use information and education campaigns to extend reach and increase visibility of vaccine 

recommendations and resources.

• Work closely with partner agencies, representatives of local communities with critical populations, and 

intermediaries to achieve consensus on actions, consistency in messages, and coordinated 

communication activities.

• Communicate transparently about COVID-19 vaccine risks and recommendations, immunization 

recommendations, public health recommendations, and prevention measures.

Messaging Considerations

Public health messages and products should be tailored for each audience and developed with consideration for 

health equity. It is important to use plain language that is easily understood. Information should be presented in 

culturally responsive language and available in languages that represent the communities. Jurisdictions should 

be careful to address all people inclusively, with respect, using non-stigmatizing, bias-free language. Insufficient 

consideration of culture in developing materials may unintentionally result in misinformation, errors, confusion, 

or loss of credibility. When developing/utilizing materials, jurisdictions should check for the following: 

• Are there words, phrases, or images that could be offensive to or stereotypical of the cultural or 

religious traditions, practices, or beliefs of the intended audience? 

• Are there words, phrases, or images that may be confusing, misleading, or have a different meaning for 

the intended audience (e.g., if abstract images are used, will the audience interpret them as intended)?

• Are there images that do not reflect the look or lifestyle of the intended audience or the places where 

they live, work, or worship? 

• Are there health recommendations that may be inappropriate or prohibited for the social, economic, 

cultural, or religious context of the intended audience? 

• Are any toll-free numbers or reference web pages in the message in the language of the intended 

audience? 

These considerations and any others that emerge during message development and deployment should be 

reviewed again when material is translated.

Communication Channels

Even perfectly developed messages and materials will provide no benefit if they are not received by the 

intended audience. Jurisdictions and tribal organizations should explore how specific groups are most likely to 
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access information with the communication methods available to them. Feedback mechanisms such as a web 

page or e-mail account to allow the audience to express concerns, ask questions, and request assistance are 

extremely important, and creating such mechanisms should be a priority for jurisdictions.

Traditional media channels 

• Print

• Radio

• TV

Digital media 

• Internet

• Social media

• Text messaging

Partners and Trusted Sources 

Working to engage and empower partners is critical to reinforcing COVID-19 vaccination messages. Efforts with 

partners and trusted sources should be integrated into other channels in addition to programmatic and 

community engagement efforts. These partners include:

• State and local government

• Employers

• Healthcare providers (including federally funded safety net and in-home care providers)

• Health insurance issuers and plans 

• Educators

• Unions and professional organizations

• Organizations serving minority populations and people with disabilities

• Community and faith-based groups

Crisis and Risk Communication

Crisis and emergency risk communication (CERC) is the application of evidence-based principles to effectively 

communicate during emergencies. These principles are used by public health professionals and public 

information officers to provide information that helps people, stakeholders, and entire communities make the 

best possible decisions for themselves and their loved ones. CERC recognizes that during emergencies, we work 

under impossible time constraints and must accept the imperfect nature of our choices. 

CERC principles include:

• Be First

• Be Right 

• Be Credible

• Express Empathy

• Show Respect

Jurisdictions must have communication messaging before, during, and after COVID-19 vaccine is available to 

help communities understand the importance of vaccination as well as the benefits and risks. Communicating 

what is currently known, regularly updating this information, and continuing dialogue with media and other 

partners throughout the vaccine distribution and administration process is essential to establish and maintain 

trust and credibility.
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Related Guidance and Reference Materials

Jurisdictions should regularly review available CDC COVID-19 Communication Resources. CDC has developed 

COVID-19 One-Stop Shop Toolkits for communication, including toolkits tailored for different populations as well 

as a social media toolkit. To reach essential workers for vaccination, jurisdictions may need to assist industry and 

businesses in communicating with employees about vaccination clinics. CDC’s COVID-19 Communications Plan 

for Select Non-Healthcare Critical Infrastructure Employers may be helpful for this purpose. 

CDC’s CERC manual is available online, including online trainings, and examples of how CERC is applied during 

emergencies, at https://emergency.cdc.gov/cerc/manual/index.asp.

The World Health Organization has developed a guide that provides strategies and tools to support effective 

communication planning and management in response to vaccine safety events. 
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Section 13: Regulatory Considerations for COVID-19 Vaccination

Initially available COVID-19 vaccines may be authorized for use under an EUA issued by FDA or approved as 

licensed vaccines. 

Emergency Use Authorization Fact Sheets

The EUA authority allows FDA to authorize either (a) the use of an unapproved medical product (e.g., drug, 

vaccine, or diagnostic device) or (b) the unapproved use of an approved medical product during an emergency 

based on certain criteria. The EUA will outline how the COVID-19 vaccine should be used and any conditions that 

must be met to use the vaccine. FDA will coordinate with CDC to confirm these “conditions of authorization.” 

Vaccine conditions of authorization are expected to include distribution requirements, reporting requirements, 

and safety and monitoring requirements. The EUA will be authorized for a specific time period to meet response 

needs (i.e., for the duration of the COVID-19 pandemic). Additional information on EUAs, including guidance and 

frequently asked questions, is located on the FDA website.

Product-specific EUA fact sheet for COVID-19 vaccination providers will be made available that will include 

information on the specific vaccine product and instructions for its use. An EUA fact sheet for vaccine recipients 

will also be developed, and both will likely be made available on the FDA website and through the CDC website. 

Jurisdictions should ensure providers know where to find both the provider and recipient fact sheets, have read 

and understand them, and are clear on the requirement to provide the recipient fact sheet to each 

client/patient prior to administering vaccine.

Vaccine Information Statements

VISs are required only if a vaccine is added to the Vaccine Injury Table. Optional VISs may be produced, but only 

after a vaccine has been licensed (e.g., such as with zoster vaccines). Plans for developing a VIS for COVID-19 

vaccine are not known at this time but will be communicated as additional information becomes available.

Additional information on VISs is located at https://www.cdc.gov/vaccines/hcp/vis/current-vis.html. 
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Section 14: COVID-19 Vaccine Safety Monitoring

An “adverse event following immunization” is an adverse health problem or condition that happens after 

vaccination (i.e., a temporally associated event). It might be truly caused by the vaccine or it might be purely 

coincidental and not related to vaccination.

CDC continuously monitors the safety of vaccines given to children and adults in the United States. VAERS, coadministered by CDC and FDA, is the national frontline monitoring system for vaccine safety.

Vaccine Adverse Event Reporting System 

Healthcare providers should report clinically important adverse events following COVID-19 vaccination to 

VAERS. VAERS is a national early warning system to detect possible safety problems with vaccines. Anyone—a 

doctor, nurse, pharmacist, or any member of the general public—can submit a report to VAERS. VAERS is not 

designed to detect whether a vaccine caused an adverse event, but it can identify “signals” that might indicate 

possible safety problems requiring additional investigation. The main goals of VAERS are to: 

• Detect new, unusual, or rare adverse events that happen after vaccination

• Monitor for increases in known side effects

• Identify potential patient risk factors for particular types of health problems related to vaccines

• Assess the safety of newly licensed vaccines

• Detect unexpected or unusual patterns in adverse event reports

Per the CDC COVID-19 Vaccination Program Provider Agreement, COVID-19 vaccination providers are required to 

report adverse events following COVID-19 vaccination and should report clinically important adverse events 

even if they are not sure if the vaccination caused the event. Vaccine manufacturers are required to report to 

VAERS all adverse events that come to their attention. VAERS data-sharing agreements with Department of 

Defense and IHS healthcare facilities are being coordinated through the federal government. Jurisdictions should 

ensure that the COVID-19 vaccination providers they enroll understand the procedures for reporting adverse 

events to VAERS. More information on submitting a VAERS report electronically can be found at 

https://vaers.hhs.gov/reportevent.html.

The following two programs require no actions from jurisdictions but are provided for informational purposes 

only to help in fielding questions about COVID-19 vaccine safety monitoring.

Vaccine Safety Datalink

The Vaccine Safety Datalink (VSD) is a collaboration between CDC’s Immunization Safety Office and nine 

healthcare organizations. This active surveillance system monitors electronic health data on vaccination and 

medical illnesses diagnosed in various healthcare settings and conducts vaccine safety studies based on 

questions or concerns raised from medical literature and VAERS reports. 

Clinical Immunization Safety Assessment Project

CDC’s Clinical Immunization Safety Assessment Project is a national network of vaccine safety experts from 

CDC’s Immunization Safety Office and seven medical research centers. This project conducts clinical research 

and assesses complex adverse events following vaccination. Healthcare providers can request a consultation for 

a complex vaccine safety issue with an individual patient at CISAeval@cdc.gov. 
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Section 15: COVID-19 Vaccination Program Monitoring

Continuous monitoring for situational awareness throughout the COVID-19 Vaccination Program is crucial for a 

successful outcome. Prior to receiving COVID-19 vaccine, jurisdictions should establish procedures for

monitoring various critical program planning and implementation elements, including performance targets, 

resources, staffing, and activities. 

CDC Dashboards

To provide situational awareness for jurisdictions and the general public throughout the COVID-19 vaccination 

response, CDC will have two dashboards available.

The Weekly Flu Vaccination Dashboard will include weekly estimates of influenza vaccination for adults, 

children, and pregnant women (when approved for these groups) using existing (National Immunization Survey 

[NIS]-Flu) and new (IQVIA) data sources. Data and estimates from additional sources will be added, as available. 

The COVID-19 Vaccination Response Dashboard will include:

• Data for planning (e.g., estimates of critical population categories, number and attributes of healthcare 

providers and facilities)

• Implementation data (e.g., number of enrolled COVID-19 vaccination providers, COVID-19 vaccine 

supply and distribution, COVID-19 vaccine administration locations)

• COVID-19 vaccine administration data 

The COVID-19 Vaccination Response Dashboard will be implemented in stages based on data availability and 

shareability. Both dashboards will include a view tailored for jurisdictions, available through SAMS, and a view 

for the general public on CDC’s website.

Resources

Jurisdictions and tribal organizations should regularly monitor their resources to avoid unexpected obstacles to 

the progress of their COVID-19 Vaccination Programs. 

Staffing

Having enough adequately trained staff with current situational awareness is key to a successful COVID19 Vaccination Program. Specialized expertise is required, and it is important to have backups in each 

specialty area to guard against interruption of activities because of illness or other personal situations. 

For example, if staff are supporting temporary or off-site COVID-19 vaccination clinics, the hours are 

likely to be long and physically taxing. Managers and supervisors need to regularly check in with and 

support assigned staff’s wellness and overall resilience to perform the assigned tasks.

Inventory

Important activities during the COVID-19 Vaccination Program might be halted if certain supplies are 

depleted without replenishment. Jurisdictions may find it helpful to develop lists and track inventory for 

various program components (e.g., temporary/off-site clinics, vaccination provider enrollment and 

training, vaccine management). Regular monitoring of such records will foster early prompts to order 

and replenish supplies and ensure availability as needed. For example, jurisdictions will need to project 

and monitor use of PPE throughout the response and have ordering and procurement protocols in place 

for securing additional supplies.
COVID-19 VACCINATION PROGRAM 

INTERIM PLAYBOOK FOR JURISDICTION

OPERATIONS – September 16, 2020

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Messaging

CDC will provide timely messaging throughout the COVID-19 vaccination response via all-jurisdiction calls, 

regular e-mail communication, and website updates. Jurisdictions and tribal organizations should routinely 

monitor both CDC and local-level messaging to inform their communications efforts. Variations in messaging can 

create confusion and hamper the effective implementation of the vaccination program. Messaging must be

clear, current, and received as intended by the audience. Monitoring social media can be helpful in assessing 

message delivery and reception and dispelling inaccurate information.

Local Jurisdictions

Constant communication and coordination with local jurisdictions and tribal organizations are instrumental 

during all phases of the COVID-19 Vaccination Program in both centralized and decentralized operational 

structures. Long before the vaccination program begins, roles and responsibilities should be established and well 

understood at all levels. This will help avoid misperceptions as well as gaps in planning and implementation. 

Throughout the COVID-19 Vaccination Program, jurisdictions should monitor and maintain awareness of locallevel strategies and activities, providing technical assistance as needed. This visibility can help ensure local 

jurisdictions and providers adhere to recommendations and guidance from CDC and state and local authorities.
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Appendix A: COVID-19 Vaccination Planning Assumptions for Jurisdictions

(revised 9/15/2020)

Many COVID-19 vaccine candidates are in development, and clinical trials are being conducted simultaneously 

with large-scale manufacturing. It is not known which vaccines may be approved or authorized for use by FDA or 

when such authorizations or approvals will take place. COVID-19 Vaccination Program plans must be flexible and 

accommodate multiple scenarios. For the purpose of initial planning, consider the following assumptions. 

COVID-19 VACCINE 

• Limited COVID-19 vaccine doses may be available by early November 2020 if a COVID-19 vaccine is 

authorized or licensed by FDA by that time, but COVID-19 vaccine supply may increase substantially in 2021. 

• Initially available COVID-19 vaccines will either be approved as licensed vaccines or authorized for use 

under an Emergency Use Authorization (EUA) issued by the U.S. Food and Drug Administration. 

• Cold chain storage and handling requirements for each COVID-19 vaccine product will vary from 

refrigerated (2°C to 8°C) to frozen (-15°C to -25°C) to ultra-cold (-60°C to -80°C) temperatures, and ongoing 

stability testing may impact these requirements. Note: These temperatures are based on information 

available as of September 15, 2020. Updated information will be provided as it becomes available.

• Jurisdictions should develop strategies to ensure the correct match of COVID-19 vaccine products and 

dosing intervals. Once authorized or approved by the FDA, two doses of COVID-19 vaccine, separated by 

either 21 or 28 days, will be needed for most COVID-19 vaccine products, and second-dose reminders for 

patients will be necessary. Both doses will need to match each other (i.e., be the same vaccine product). 

• Some COVID-19 vaccine products will likely require reconstitution with diluent or mixing adjuvant at the 

point of administration. 

COVID-19 VACCINE ALLOCATION 

• Final decisions are being made about use of initially available supplies of COVID-19 vaccines. These 

decisions will be partially informed by the proven efficacy of the vaccines coming out of Phase 3 trials, but 

populations of focus for initial COVID-19 vaccination may include: 

o Healthcare personnel likely to be exposed to or treat people with COVID-19 

o People at increased risk for severe illness from COVID-19, including those with underlying 

conditions and people 65 years of age and older 

o Other essential workers

• Allocation of COVID-19 vaccine to jurisdictions will be based on multiple factors, including: 

o Critical populations recommended by the Advisory Committee on Immunization Practices (with 

input from the National Academies of Sciences, Engineering, and Medicine) 

o Current local spread/prevalence of COVID-19

o COVID-19 vaccine production and availability 

• Jurisdictions should anticipate that allocations may shift during the response based on supply, demand, 

and risk. 

• Each jurisdiction should plan for high-demand and low-demand scenarios. 
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COVID-19 VACCINATION PROVIDER OUTREACH AND ENROLLMENT 

• To receive and administer COVID-19 vaccine and ancillary supplies, vaccination providers must enroll in 

the United States Government (USG) COVID-19 Vaccination Program, coordinated through their 

jurisdiction’s immunization program, by signing and agreeing to conditions outlined in the CDC COVID-19 

Vaccination Program Provider Agreement.

• CDC will make this agreement available to each jurisdiction’s immunization program for use in 

conducting outreach and enrolling vaccination providers. Jurisdictions will be required to maintain these 

agreements on file for a minimum of 3 years. 

• Jurisdictions will be required to collect and submit to CDC information on each enrolled vaccination 

provider/site, including provider type and setting, patient population (i.e., number and type of patients 

served), refrigerated/frozen/ultra-cold temperature storage capacity, and logistical information for receiving 

COVID-19 vaccine shipments. 

• Some multijurisdictional vaccination providers (e.g., select large drugstore chains, the Indian Health 

Service, other federal providers) will enroll directly with CDC to order and receive COVID-19 vaccine. These 

direct partners will be required to report vaccine supply and uptake information back to each respective 

jurisdiction. CDC will share additional information when available on these procedures to ensure 

jurisdictions have full visibility for planning and documentation purposes. 

• Jurisdictions may choose to partner with commercial entities to reach the initial populations of focus. 

• Routine immunization programs will continue. 

To be determined: 

• Specific multijurisdictional providers to be served directly by CDC 

COVID-19 VACCINE ORDERING AND DISTRIBUTION 

• COVID-19 vaccine and ancillary supplies will be procured and distributed by the federal government at 

no cost to enrolled COVID-19 vaccination providers. CDC will share more information about reimbursement 

claims for administration fees as it becomes available. 

• CDC will use its current centralized distribution contract to fulfill orders for most COVID-19 vaccine 

products as approved by jurisdiction immunization programs. Some vaccine products, such as those with 

ultra-cold temperature requirements, will be shipped directly from the manufacturer. 

• Jurisdiction-enrolled vaccination providers will follow the jurisdiction’s vaccine ordering procedures.

• COVID-19 vaccination providers will be required to report COVID-19 vaccine inventory each time a 

COVID-19 vaccine order is placed. 

• Vaccine orders will be approved and transmitted in CDC’s Vaccine Tracking System (VTrckS) by 

jurisdiction immunization programs for vaccination providers they enroll. 

• Vaccine (and adjuvant or diluent, if required) will be shipped to provider sites within 48 hours of order 

approval by the immunization program, if supply is available. Ancillary supply kits and diluent (if required) 

will ship separately from the vaccine due to different cold chain requirements, but shipment will be timed to 

arrive with or before the vaccine. 

• Ancillary supply kits will include needles, syringes, alcohol prep pads, COVID-19 vaccination record cards 

for each vaccine recipient, and a minimal supply of personal protective equipment (PPE), including surgical 

masks and face shields, for vaccinators. 

o Each kit will include supplies needed to administer 100 doses of vaccine. 

o Jurisdictions may need to plan for additional PPE, depending on vaccination site needs. 
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o For COVID-19 vaccines that require reconstitution with diluent or mixing adjuvant at the point of 

administration, these ancillary supply kits will include additional necessary syringes, needles, and 

other supplies for this purpose. 

o Sharps containers, gloves, bandages, and other supplies will not be included. 

• Minimum order size for CDC centrally distributed vaccines will be 100 doses per order for most vaccines. 

Minimum order size for direct-ship vaccines may be much larger. CDC will provide more detail as it becomes 

available. 

• Vaccine will be sent directly to vaccination provider locations for administration or designated depots 

for secondary distribution to administration sites (e.g., chain drugstores’ central distribution). 

• Once vaccine products have been shipped to a provider site, the federal government will not 

redistribute product. 

• Jurisdictions will be allowed to redistribute vaccines while maintaining the cold chain. However, with the 

challenge of meeting cold chain requirements for frozen or ultra-cold vaccines, jurisdictions should be 

judicious in their use of redistribution and limit any redistribution to refrigerated vaccines only. 

• Jurisdictions are not advised to purchase ultra-cold storage equipment at this time. Ultra-cold vaccine 

may be shipped from the manufacturer in coolers that are packed with dry ice. These coolers should be 

repacked with dry ice within 24 hours of receipt of shipment and repacked again within 5 days.

To be determined: 

• Vaccine disposal/recovery procedures 

COVID-19 VACCINE ADMINISTRATION DATA REPORTING 

• Jurisdictions will be required to report CDC-defined data elements related to vaccine administration 

daily (i.e., every 24 hours). CDC will provide information on these data elements to jurisdictions. 

• All vaccination providers may be required to report and maintain their COVID-19 vaccination 

information on CDC’s VaccineFinder. 

• CDC has prioritized jurisdiction onboarding to the Immunization (IZ) Gateway* to allow Immunization 

Information Systems (IISs) to receive data directly from national providers, nontraditional vaccination 

providers, and other external systems, as well as to report vaccine administration data to CDC. 

• Data Use Agreements (DUAs) will be required for data sharing via the IZ Gateway and other methods of 

vaccine administration data sharing with CDC and will be coordinated by each jurisdiction’s immunization 

program. 

To be determined: 

• Jurisdiction responsibility/involvement concerning reporting of data from multijurisdictional providers 

• Method and frequency for vaccination providers to report information to VaccineFinder 

COMMUNICATION 

• CDC will develop communication resources for jurisdictions and tribal organizations to use with key 

audiences. These resources will be available on a public-facing website currently under development, but 

jurisdictions and tribal organizations will likely need to tailor messaging and resources specific to special 

populations in their communities. 

• CDC will work with national organizations to disseminate key messages. 
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• Communication and educational materials about COVID-19 vaccination provider enrollment, COVID-19 

vaccine ordering, COVID-19 vaccine storage, handling, administration (i.e., reconstitution, adjuvant use, 

administration techniques), etc. will be available in a variety of formats. 

• When vaccine supply is available for expanded groups among the general population, a national COVID19 vaccine finder will be available on the public-facing VaccineFinder.

• A screening tool on the CDC website will help people determine their own eligibility for COVID-19 

vaccine and direct them to VaccineFinder. 

 

COVID-19 VACCINE SAFETY 

• Clinically important adverse events following any vaccination should be reported to the Vaccine Adverse 

Event Reporting System (VAERS). 

• Adverse events will also be monitored through electronic health record- and claims-based systems (e.g., 

Vaccine Safety Datalink). 

• Additional vaccine safety monitoring may be required under the EUA. 

*

The IZ Gateway is a portfolio of project components that share a common IT infrastructure. The IZ Gateway aims to rapidly 

onboard IISs to support readiness for COVID-19 vaccine response through data exchange, both among IIS and between IIS 

and federal providers, mass vaccination reporting, and consumer access tools. The IZ Gateway aims to increase the 

availability and volume of complete and accurate immunization data stored within IIS and available to providers and 

consumers regardless of their jurisdictional boundaries.
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Appendix B: COVID-19 Vaccination Scenarios for Jurisdictional Planning—

Phase 1, Q4 2020 (updated 9/15/2020)

The planning scenarios described below should be used by state and local jurisdictions to develop operation 

plans for early COVID-19 vaccination when vaccine supply may be constrained. The scenarios describe potential 

COVID-19 vaccine requirements, early supply estimates in the event that a vaccine is authorized under EUA, and 

populations that may be recommended for vaccination during this early period. These scenarios are designed to 

support jurisdictional, federal, and partner planning, but they are still considered hypothetical. The COVID-19 

vaccine landscape is evolving and uncertain, and these scenarios may change as more information is available. 

Planners should assume that by January 2021, significantly more COVID-19 vaccine may be available for 

distribution and plans will need to evolve to address additional vaccine availability. Please refer to COVID-19 

vaccine planning assumptions and additional guidance from the Centers for Disease Control and Prevention. 

Scenario 1: FDA has authorized vaccine A for Emergency Use Authorization 

(EUA) in 2020

Availability Assumptions 

Vaccine availability under EUA by

Candidate End of Oct 2020 End of Nov 2020 End of Dec 2020 Notes

Vaccine A ~2 million (M) doses 10M–20M doses 20M–30M doses Ultra-cold (-70 °C) storage 

requirements, for large sites only 

Distribution, Storage, Handling, and Administration Assumptions 

Vaccine A

SHIPMENT 

3 separately acquired components (mixed on site) 

1. Vaccine 

• Direct to site from manufacturer (on dry ice) 

• Multidose vials (5 doses/vial) 

2. Diluent 

• Direct to site from the US Government (USG) at 

room temperature) 

3. Ancillary supply kits (for administration and mixing)

• Direct to site from USG (at room temperature) 

ON-SITE VACCINE STORAGE 

Frozen (-70 °C ± 10 °C)

• Must be used/recharged within 10 days 

• Storage in shipping container OK (replenish dry ice 

within 24 hours of receiving shipment and again 5 days 

later) 

Thawed but NOT reconstituted (2–8 °C) 

• Must use within 5 days (discard unused doses after 5

days)

Reconstituted (room temperature) 

• Must use within 6 hours (discard any unused, 

reconstituted vaccine after 6 hours)

ORDERS 

Large quantities, to large administration sites only 

• Minimum order: ~1,000 doses 

• Maximum order: ~5,000 doses

ADMINISTRATION 

2-dose series (21 days between doses) 

• On-site mixing required; reconstitute with diluent just 

prior to administration 

• Administer by intramuscular (IM) injection

INITIAL POPULATIONS OF FOCUS AND ANTICIPATED VACCINE ADMINISTRATION SITES 

Healthcare personnel — public health, closed point of dispensing (POD), temporary/off-site vaccination clinics + 

potential for mobile clinics

Other essential workers — public health, closed POD, temporary/off-site vaccination clinics + potential for mobile 

clinics

People at higher risk of severe COVID-19 illness — potential for mobile clinics to long-term care facilities (LTCFs)
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Additional Considerations for Early Vaccination Planning 

• “Healthcare personnel” includes paid or unpaid persons serving in healthcare settings who have the potential 

for direct or indirect exposure to people with COVID-19 or infectious materials.

• Jurisdictions should plan for real-time shipment of doses.

• Administration sites (during Phase 1) will not be required to store vaccine products beyond the period of time 

Vaccine A can be stored in the ultra-cold shipment box. 

• Given the challenging storage, handling, and administration requirements, early vaccination should focus on 

administration sites that can reach critical populations with as much throughput as possible. 

• Stability testing is ongoing for Vaccine A; the storage and handling requirements presented here may shift. The 

requirements in these scenarios are likely the strictest set of requirements for which planning is needed. 

• Jurisdictions should consider partnering with the private sector and with local hospital systems to provide 

vaccine in closest proximity to the critical populations as possible, given limitations with the product. For 

example: Vaccine A may be administered through mobile clinics if multiple mobile clinics are planned over a 

short period of time to ensure sufficiently high throughput. 
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Scenario 2: FDA has authorized vaccine B for EUA in 2020 

Availability Assumptions 

Vaccine availability under EUA by

Candidate End of Oct 2020 End of Nov 2020 End of Dec 2020 Notes

Vaccine B ~1M doses ~10M doses ~15M doses Central distributor capacity required 

(-20 °C) 

Distribution, Storage, Handling, and Administration Assumptions 

Vaccine B

SHIPMENT ON-SITE VACCINE STORAGE 

2 separately shipped components 

1. Vaccine 

• To central distributor (at -20 °C) 

• Multidose vials (10 doses/vial) 

2. Ancillary supply kits 

• Direct to site from USG (at room temperature)

Frozen (-20 °C) 

• Storage in shipping container OK 

Refrigerated (2–8 °C) 

• Must use within 14 days 

Room temperature 

• Must use within 6 hours (discard any unused vaccine 

after 6 hours)

ORDERS 

Central distribution capacity required 

• Required by Dec 2020 

• Maintained at -20 °C 

ADMINISTRATION 

2-dose series (28 days between doses) 

• No on-site mixing required 

• Administer by IM injection

INITIAL POPULATIONS OF FOCUS AND ANTICIPATED VACCINE ADMINISTRATION SITES 

Healthcare personnel — healthcare clinics + healthcare occupational health clinics + public health, closed POD,

temporary/off-site vaccination clinics + mobile clinics

Other essential workers (specifics TBA) —occupational health + hospital clinics + public health, closed POD, 

temporary/off-site vaccination clinics

People at higher risk of severe COVID-19 illness (e.g., LTCF residents) — commercial pharmacy partners 

+ mobile clinics 

Additional Considerations for Early Vaccination Planning 

• “Healthcare personnel” includes paid or unpaid persons serving in healthcare settings who have the potential 

for direct or indirect exposure to people with COVID-19 or infectious materials.

• Jurisdictions should plan for real-time shipment of doses.

• Administration sites (during Phase 1) will not be required to store vaccine products beyond the period of time 

Vaccine B can be stored at 2–8 °C. 

• Given the challenging storage, handling, and administration requirements, early vaccination should focus on 

administration sites that can reach critical populations with as much throughput as possible. 

• Stability testing is ongoing for Vaccine B; the storage and handling requirements presented here may shift. The 

requirements in these scenarios are likely the strictest set of requirements for which planning is needed. 

• Jurisdictions should consider partnering with the private sector and with local hospital systems to provide 

vaccine in closest proximity to the prioritized populations as possible, given limitations with the product. 
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Scenario 3: FDA has authorized vaccines A and B for EUA in 2020 

Availability Assumptions 

Vaccine availability under EUA by

Candidate End of Oct 2020 End of Nov 2020 End of Dec 2020 Notes

Vaccine A ~2M doses 10M–20M doses 20M–30M 

doses 

Ultra-cold (-70 °C), for large sites only 

Vaccine B ~1M doses ~10M doses ~15M doses Central distribution capacity required 

(-20 °C) 

Total ~3M doses 20M–30M doses 35M–45M doses 

Distribution, Storage, Handling, and Administration Assumptions 

Vaccine A

SHIPMENT 

3 separately acquired components (mixed on site) 

1. Vaccine 

• Direct to site from manufacturer (on dry ice) 

• Multidose vials (5 doses/vial) 

2. Diluent 

• Direct to site from USG (at room temperature) 

3. Ancillary supply kits 

• Direct to site from USG (at room temperature)

ON-SITE VACCINE STORAGE 

Frozen (-70 °C ± 10 °C) 

• Must be used/recharged within 10 days

• Storage in shipping container OK (replenish dry ice 

within 24 hours of receiving shipment and again 5 days 

later) 

Thawed but NOT reconstituted (2–8 °C) 

• Must use within 5 days (discard unused doses after 5

days)

Reconstituted (room temperature) 

• Must use within 6 hours (discard any unused, 

reconstituted vaccine after 6 hours)

ORDERS 

Large quantities, to large administration sites only 

• Minimum order: ~1,000 doses 

• Maximum order: ~5,000 doses

ADMINISTRATION 

2-dose series (21 days between doses) 

• On-site mixing required; reconstitute with diluent just 

prior to administration 

• Administer IM injection

PRIORITIZED POPULATIONS AND ANTICIPATED VACCINE ADMINISTRATION SITES 

Healthcare personnel — public health, closed POD temporary/off-site vaccination clinics + potential for mobile clinics

Other essential workers (specifics TBA) — public health, closed POD temporary/off-site vaccination clinics + potential 

for mobile clinics 

LTCF residents & staff — potential for mobile clinics to facilities

Vaccine B

SHIPMENT ON-SITE VACCINE STORAGE 

2 separately shipped components 

1. Vaccine 

• To central distributor (at -20 °C) 

• Multidose vials (10 doses/vial) 

2. Ancillary supply kits 

• Direct to site from USG (at room temperature)

Frozen (-20 °C) 

• Storage in shipping container OK 

Refrigerated (2–8 °C) 

• Must use within 14 days 

Room temperature 

• Must use within 6 hours (discard any unused vaccine 

after 6 hours)
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ORDERS 

Central distribution capacity required 

• Required by Dec 2020 

• Maintained at -20 °C 

ADMINISTRATION 

2-dose series (28 days between doses) 

• No on-site mixing required 

• Administer by intramuscular (IM) injection

INITIAL POPULATIONS OF FOCUS AND ANTICIPATED VACCINE ADMINISTRATION SITES 

Healthcare personnel — healthcare clinics + healthcare occupational health clinics + public health, closed POD, 

temporary/off-site vaccination clinics + mobile clinics

Other essential workers (specifics TBA) —occupational health + hospital clinics + public health, closed POD, 

temporary/off-site vaccination clinics

People at higher risk of severe COVID-19 illness — commercial pharmacy partners + mobile clinics

Additional Considerations for Early Vaccination Planning 

• “Healthcare personnel” includes paid or unpaid persons serving in healthcare settings who have the potential 

for direct or indirect exposure to people with COVID-19 or infectious materials. 

• Jurisdictions should plan for real-time shipment of doses. 

• Administration sites (during Phase 1) will not be required to store vaccine products beyond the period of time 

Vaccine A can be stored in the ultra-cold shipment box or Vaccine B can be stored at 2–8 °C.

• Given the challenging storage, handling, and administration requirements, early vaccination should focus on 

administration sites that can reach prioritized populations with as much throughput as possible. 

• Stability testing is ongoing for Vaccine A and Vaccine B; the storage and handling requirements presented here 

may shift. The requirements in these scenarios are likely the strictest set of requirements for which planning is 

needed. 

• Jurisdictions should consider partnering with the private sector and with local hospital systems to provide 

vaccine in closest proximity to the prioritized populations as possible, given the limitations with the product. 

For example: Vaccine A may be administered through mobile clinics if multiple mobile clinics are planned over 

a short period of time to ensure sufficiently high throughput. 
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Appendix C: Phase 1 Population Group Worksheet Example

Sub-Group Agency/Organization Point of Contact 

(POC) POC Number Contact e-mail Key Group

Estimate 

# in Key 

Group

Long Term 

Care

Town Nursing Home Jane Smith 123-456-7899 townnh@gmail.com Direct Care Staff 50

County Nursing Home John White 123-789-1234 conursinghome@co.gov Direct Care Staff 50

Hospitals

ABC Hospital Joe Admin 123-555-6666 jadmin@abchosp.com ICU Staff 50

Direct Care Staff 200

City X Hospital Sue Jones 123-666-5555 cityx@hospital.com Direct Care Staff 300

Public Health

Anywhere Health Dept. Ann Stewart 123-222-1234 astewart@cohd.gov Clinic Staff 50

Staff Providing Direct Care 40

Other 

Healthcare 

Essential 

Workers

County Emergency Services Sam Stone 123-555-9876 sstone@coems.gov Ambulance Staff 25

Medical Reserve Corp Mike Reserve 123-777-8888 mrcmike@mrc.com Clinic Volunteers 30

PHASE 1-A POPULATION GROUP: HEALTHCARE PERSONNEL
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Appendix D: CDC IIS Data Requirements for COVID-19 Vaccine Monitoring

CDC IIS DATA REQUIREMENTS FOR COVID-19 VACCINE ADMINISTRATION

BACKGROUND AND PURPOSE

The ongoing, rapid monitoring of COVID-19 vaccine uptake will be a critical part of the nation’s COVID19 response efforts. Immunization programs and immunization information systems (IIS) will play a 

critical role in vaccine delivery, the monitoring of vaccine doses administered, and generation of 

vaccination coverage estimates among several different population groups. 

A strong, nationally coordinated approach is critical to collecting, tracking, and analyzing vaccination 

data, especially in early phases of vaccine administration, which is expected to occur in non-traditional 

settings. This document outlines the anticipated vaccine administration data elements IIS will report to 

CDC. The required data elements in this document represent demographic and vaccination information 

routinely captured by an IIS during a vaccination event. In addition to the ability to collect and report 

these data elements, IIS will also be required to report information from these data elements 1) in a 

timely fashion (within 24 hours of administration) and 2) through a connection to the Immunization 

Gateway (IZ Gateway) or data lake. This will enable CDC to reliably track COVID-19 vaccinations and 

analyze vaccination coverage by demographic factors once vaccine supplies are available. The vaccine 

administration data elements in this document will continue to evolve to include inventory and 

distribution elements as those parameters are finalized.

DISCRETE DATA ELEMENTS

Table 1 includes each data element that IIS will be required to report to CDC. Table 2 includes each 

data element that will be optional for IIS to report to CDC. Optional data requirements will support 

additional national coverage analysis and vaccination monitoring efforts. Data elements are also 

categorized as “Mass Vaccination” or “Standard”. Standard data elements are likely already collected 

by IIS, whereas Mass Vaccination data elements are likely to require enhancements or a Mass 

Vaccination module for data collection and reporting. Any identifiable data elements will be used to 

facilitate deduplication of data within the Immunization Data Lake, an analytic environment that will 

be used to consolidate, deduplicate, and reconcile vaccine administration information from multiple 

sources (e.g. jurisdictional immunization programs, pharmacies, Department of Defense, Veterans 

Affairs, Bureau of Prisons, Indian Health Service). Identifiable elements will not be stored in the Data 

Lake environment.

Table 1. Required Data Elements 

Required Data Element Mass Vaccination or Standard

Data elements required for IIS to report Mass Vaccination = may require mass vaccination module 

or enhancement

Standard = IIS Core Data Element commonly collected 

during routine vaccination 

Administered at location: facility name/ID Standard

Administered at location: type Standard

Administration address (including county) Standard

Administration date Standard

CVX (Product) Standard

Dose number Standard

IIS Recipient ID* Standard

IIS vaccination event ID Standard
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Lot Number: Unit of Use and/or Unit of Sale Standard

MVX (Manufacturer) Standard

Recipient address* Standard

Recipient date of birth* Standard

Recipient name* Standard

Recipient sex Standard

Sending organization Standard

Vaccine administering provider suffix Standard

Vaccine administering site (on the body) Standard

Vaccine expiration date Standard

Vaccine route of administration Standard

Vaccination series complete Mass Vaccination

*Identifiable Information

Table 2. Optional Data Elements 

Optional Data Element Mass Vaccination or Standard

Data elements optional for IIS to report (e.g., state 

mass vaccination tool collects this information)

Mass Vaccination = may require mass vaccination module 

or enhancement

Standard = IIS Core Data Element commonly collected 

during routine vaccination

Comorbidity status (Y/N) Mass Vaccination

Recipient ethnicity Standard

Recipient race Standard

Recipient missed vaccination appointment (Y/N) Mass Vaccination

Serology results (Presence of Positive Result, Y/N) Mass Vaccination

Vaccination Refusal (Y/N) Standard

*Identifiable Information
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Appendix E: Countermeasures Injury Compensation Program

The Public Readiness and Emergency Preparedness Act (PREP Act) authorizes the Countermeasures Injury 

Compensation Program (CICP) to provide benefits to certain individuals or estates of individuals who sustain a 

covered serious physical injury as the direct result of the administration or use of covered countermeasures 

identified in and administered or used under a PREP Act declaration. The CICP also may provide benefits to 

certain survivors of individuals who die as a direct result of the administration or use of such covered 

countermeasures. The PREP Act declaration for medical countermeasures against COVID-19 states that the 

covered countermeasures are:

• Any antiviral, any other drug, any biologic, any diagnostic, any other device, any respiratory protective 

device, or any vaccine, used:

o To treat, diagnose, cure, prevent, mitigate, or limit the harm from COVID-19, or the transmission of 

SARS-CoV-2 or a virus mutating therefrom, or

o To limit the harm that COVID-19, or the transmission of SARS-CoV-2 or a virus mutating therefrom, 

might otherwise cause; or

• Any device used in the administration of any such product, and all components and constituent materials of 

any such product.

Covered Countermeasures must be ''qualified pandemic or epidemic products,'' or ''security countermeasures,'' 

or drugs, biological products, or devices authorized for investigational or emergency use, as those terms are 

defined in the PREP Act, the Federal Food, Drug, and Cosmetic Act (FD&C Act), and the Public Health Service Act, 

or a respiratory protective device approved by National Institute for Occupational Safety and Health (NIOSH) 

under 42 CFR part 84, or any successor regulations, that the Secretary of the Department of Health and Human 

Services determines to be a priority for use during a public health emergency declared under section 319 of the 

Public Health Service Act.

For more information about the CICP, visit the program’s website at www.hrsa.gov/cicp, email cicp@hrsa.gov, 

or call 1-855-266-CICP (1-855-266-2427).
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Appendix F: Liability Immunity for Covered Persons

The Declaration Under the Public Readiness and Emergency Preparedness Act (PREP Act) for Medical 

Countermeasures Against COVID-19 provides liability immunity to covered persons. The third amendment to the 

declaration defines “covered persons” as follows:

“V. Covered Persons 

42 U.S.C. 247d–6d(i)(2), (3), (4), (6), (8)(A) and (B) 

Covered Persons who are afforded liability immunity under this Declaration are ‘‘manufacturers,’’ 

‘‘distributors,’’ ‘‘program planners,’’ ‘‘qualified persons,’’ and their officials, agents, and employees, as 

those terms are defined in the PREP Act, and the United States. 

In addition, I [the Secretary] have determined that the following additional persons are qualified 

persons: 

(a) Any person authorized in accordance with the public health and medical emergency 

response of the Authority Having Jurisdiction to prescribe, administer, deliver, distribute or 

dispense the Covered Countermeasures, and their officials, agents, employees, contractors and 

volunteers, following a Declaration of an emergency; 

(b) any person authorized to prescribe, administer, or dispense the Covered Countermeasures 

or who is otherwise authorized to perform an activity under an Emergency Use Authorization in 

accordance with Section 564 of the FD&C Act; 

(c) any person authorized to prescribe, administer, or dispense Covered Countermeasures in 

accordance with Section 564A of the FD&C Act; and 

(d) a State-licensed pharmacist who orders and administers, and pharmacy interns who 

administer (if the pharmacy intern acts under the supervision of such pharmacist and the 

pharmacy intern is licensed or registered by his or her State board of pharmacy), vaccines that 

the Advisory Committee on Immunization Practices (ACIP) recommends to persons ages three 

through 18 according to ACIP’s standard immunization schedule. 

Such State-licensed pharmacists and the State-licensed or registered interns under their supervision are 

qualified persons only if the following requirements are met: 

• The vaccine must be FDA authorized or FDA-approved. 

• The vaccination must be ordered and administered according to ACIP’s standard immunization 

schedule. 

• The licensed pharmacist must complete a practical training program of at least 20 hours that is 

approved by the Accreditation Council for Pharmacy Education (ACPE). This training program 

must include hands-on injection technique, clinical evaluation of indications and 

contraindications of vaccines, and the recognition and treatment of emergency reactions to 

vaccines. 

• The licensed or registered pharmacy intern must complete a practical training program that is 

approved by the ACPE. This training program must include hands-on injection technique, clinical 
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evaluation of indications and contraindications of vaccines, and the recognition and treatment 

of emergency reactions to vaccines. 

• The licensed pharmacist and licensed or registered pharmacy intern must have a current 

certificate in basic cardiopulmonary resuscitation. 

• The licensed pharmacist must complete a minimum of two hours of ACPE-approved, 

immunization-related continuing pharmacy education during each State licensing period. 

• The licensed pharmacist must comply with recordkeeping and reporting requirements of the 

jurisdiction in which he or she administers vaccines, including informing the patient’s primarycare provider when available, submitting the required immunization information to the State or 

local immunization information system (vaccine registry), complying with requirements with 

respect to reporting adverse events, and complying with requirements whereby the person 

administering a vaccine must review the vaccine registry or other vaccination records prior to 

administering a vaccine. 

• The licensed pharmacist must inform his or her childhood-vaccination patients and the adult 

caregiver accompanying the child of the importance of a well-child visit with a pediatrician or 

other licensed primary care provider and refer patients as appropriate. 

Nothing in this Declaration shall be construed to affect the National Vaccine Injury 

Compensation Program, including an injured party’s ability to obtain compensation under that 

program. Covered countermeasures that are subject to the National Vaccine Injury 

Compensation Program authorized under 42 U.S.C. 300aa–10 et seq. are covered under this 

Declaration for the purposes of liability immunity and injury compensation only to the extent 

that injury compensation is not provided under that Program. All other terms and conditions of 

the Declaration apply to such covered countermeasures.”