Professional Documents
Culture Documents
Manual of Operations
Department of Health
Manila, Philippines
1st Edition
Manual of Operations
1st Edition
Manual of Operations
Table of Contents
Acknowledgement
iii
Acronyms. v
1. Rationale for an Early Warning System..
6
7
7
9
9
9
10
10
10
12
Event-based Surveillance
Coordination Between BASE and the Notifiable Disease Reporting System of
PIDSR.
12
13
14
14
15
5. Surveillance Procedures.
17
Reportable Events
Detection of an Event
Reporting Methods.
Verification
Event Assessment.
Event Updates.
Responding to an Event
Feedback and Monitoring..
17
20
21
21
23
26
27
29
Annexes
Annex A - Verification of an Event
Annex B Assessment of an Event
Annex C Event Update
4
BOQ
Bureau of Quarantine
CHD
CESU
EBS
Event-based Surveillance
HAI
HEMS
ILI
Influenza-like Illness
NEC
NIC
PESU
PHSID
PIDSR
RESU
RITM
SARS
Section 1
The earths climate is changing. In most places, average temperatures are rising.
Scientists have observed a warming trend beginning around the late 1800s. The
most rapid warming has occurred in recent decades. Most of this recent warming
is very likely the result of human activities.1
The earth is heating up because gases (e.g. carbon dioxide) produced from
vehicles, power plants, deforestation, and other sources are building up in the
atmosphere, acting like a thick blanket over our planet. The levels of these gases
are increasing at a faster rate than at any time in hundreds of thousands of years.
This thick blanket of gases traps heat. We call this phenomenon as greenhouse
effect (Figure 1).
http://epa.gov/climatechange/basicinfo.html
Because global temperatures, precipitation, sea levels and the frequency of some
extreme weather are expected to increase, global warming could affect you in
many ways. Our health, agriculture, forests, water resources, energy, coasts,
wildlife and recreational opportunities would all react to climate changes.
In a warming climate, extreme events like floods and droughts are likely to
become more frequent. More frequent floods and droughts will affect water
quality and availability. For example, increases in drought in some areas may
increase the frequency of water shortages and lead to more restrictions on water
usage. An overall increase in precipitation may increase water availability in
some regions, but also create greater flood potential.
Global warming will have a direct effect on human health but many of the
changes will have mainly indirect effects by changing natural ecosystems,
affecting such aspects as food production, vector-borne diseases, and a number
of other infectious and non-infectious diseases. Figure 2 displays the chain of
events that results from an increasing accumulation of gases in the atmosphere.
Box 1
What is an early warning
system?
It is a system that provides
timely and effective information
that allows individuals exposed
to a hazard to take action to
avoid or reduce their risk and
prepare for effective response.
Figure 2. Effects of climate change to human health and the role of health monitoring and
surveillance
Increase in the
level of carbon
dioxide, methane,
nitrous oxide in
the atmosphere
Enhanced
greenhouse
effect
Global
warming
Climate
Change
Direct effects
to human
health
Heat stroke
Alterations in immune
response
Indirect effects
to human
health
Health
Monitoring and
Surveillance
Section 2
BASE is an early warning system at the community level for early detection and
response to epidemic-prone diseases and other public health threats.
Box 2
What is sensitivity?
Sensitivity refers to the ability of a
disease surveillance system to
identify all cases of diseases or
conditions under surveillance.
Among the mechanisms used to
make the system more sensitive
includes the use of broad case
definitions and reporting of rumors
as in the case of event-based
surveillance.
Guiding Principles
BASE is owned by the community and operates in the context of our health-our
good-our responsibility. Local people should be the health analysts and
presenters of their own health situation while health workers play the role of
catalytic facilitation.
BASE is a tool that helps a community cope better with the effects of climate of
change. It is an important instrument for sustainable development.
9
BASE is an adjunct to, not a replacement of, routine disease surveillance (PIDSR).
Goal
BASE aims to compliment NOT
replace the Philippine Integrated
Disease Surveillance and Response
system.
Objective
To detect outbreaks of infectious diseases and other public health threats at its
earliest possible stage in order to implement timely and effective public health
response.
Surveillance Approach
Box 3
What is event-based
surveillance?
Event-based surveillance is the
organized and rapid capture of
information about events that are
a potential risk to public health.
Event can be rumors and other ad-hoc reports transmitted through formal
channels (i.e. PIDSR) and informal channels (i.e. media, health workers and
nongovernmental organizations reports).
Events also include those related to the occurrence of disease in humans, such as
clustered cases of a disease or syndromes, unusual disease patterns or
unexpected deaths as recognized by health workers and other key informants in
the community; and events related to potential exposure for humans, such as
10
11
Section 3
Barangay Sensors
- Health workers
- Designated community
members
- General public
WHO
Barangay
BASE Unit
NEC
Event
Other Sensors
- Health facilities
- Media
- Schools
CESU/MESU
RESU
PESU
Events are detected and reported by barangay sensors that include health care
workers, schools and designated community groups (e.g., Barangay officials,
Barangay Health Workers, traditional healers).
12
The BASE Unit receives reports from the sensors and conducts event
confirmation and preliminary assessment. If the event does not fit into the
definition of a reportable event then no further action is needed and the case
is considered closed. The whole process of reporting and response to an event is
discussed in Section 5.
The process of filtering reports at the barangay and municipal/city levels offers
two advantages: 1) It triggers prompt response at the barangay level, 2) The
higher levels of the system (e.g., national or provincial) are not overwhelmed by
the voluminous reports from the local level and they can focus most of their time
on routine disease surveillance activities and providing technical assistance to
local levels.
Some events may not necessarily be detected and reported early at the barangay
level. For example, an increase in the number of deaths of cholera in a particular
hospital is an event that warrants immediate investigation. This type of event
could be detected by the routine surveillance system. Once this event is
recognized, the BASE Unit is informed immediately so that they can conduct
further search of similar cases or deaths in their barangay and implement
immediate public health measures.
13
Section 4
BASE could not operate effectively without a functional MESU or CESU. These
units are responsible in the day-to-day operations of BASE. This includes
verification or confirmation of reported events, outbreak investigation, provision
of technical support, maintenance of event database and capability building.
The BASE unit should be established in the Barangay Hall. The Barangay
Chairman shall designate a BASE coordinator (a BHW or a non-health
personnel) to man the unit. In addition to the BASE coordinator, the midwife
assigned in the area shall automatically be a staff of the BASE unit. Members
of the Barangay Health Emergency Response Team (BHERT) could also be a
member of the BASE staff.
The BASE unit should have a space in the Barangay Hall and equipped with
following logistics:
1)
2)
3)
4)
5)
6)
14
The primary function of the BASE unit is to receive reports and conduct
preliminary assessment of the event. The details of this are discussed in the
succeeding parts of this section.
The MHOs or CHOs are the most senior officials at the local level that should
provide overall leadership and direction during the process. Without their
commitment and support it would be difficult to convince the barangay officials
and other community stakeholders to participate in the BASE system.
Identify all stakeholders and orient them about the BASE. The rationale, goal,
objective and implementation arrangements of BASE should be clear to them
before coming up with a consensus.
Consensus means that ALL stakeholders agree on the concept of BASE. It also
means that ALL barangays are committed to participate in the implementation of
BASE. The MHO/CHO will determine if a memorandum of agreement is necessary
among stakeholders as an official declaration of their consensus.
Conduct a planning workshop with all the primary stakeholders. These are the
Barangay Chairpersons, Barangay BASE Unit staff, MESU/CESU staff and other
15
stakeholders the MHO/CHO believes would have a major role to play in the
surveillance operations.
The final output of Step 4 is an approved plan with the corresponding budget.
The plan should be part of the overall PIDSR plan of the RHU/CHO.
Among the priority activities under this step are training, installation of the
software, coordination and response.
Develop a simple monitoring tool that could be used to assess the performance
of the system. The performance indicators may include timeliness of reporting,
completeness of reports and timeliness of event assessment and response.
16
Section 5
Surveillance Procedures
Reportable Events
What are the two types of reportable events?
Box 4
What is a reportable event?
Box 5
What are the reportable events?
1.
2.
3.
4.
5.
6.
7.
Box 6
What is a cluster?
A cluster is an aggregation of cases
of a disease in a given area over a
particular period of time without
regard to whether the situation is
an outbreak or not.
Since most outbreaks often begin
as a cluster, therefore, clustering of
cases will serve as an early warning
sign of an impending outbreak.
This warrants immediate
investigation and implementation
of control measures.
Vomiting
Diarrhea with vomiting
Yellow discoloration of eyes or skin
Most of the diseases detected under this event could be endemic in some
areas of the country.
2. Occurrence of a single case of an infectious disease that has already been eradicated
or eliminated in the country or in the community
Measles has been eliminated in our country. Therefore, a single case of this
disease is considered an outbreak.
The deadly African Ebola Virus Hemorrhagic Fever disease does not exist in
any area of the Philippines. Therefore, one reported case of this disease and
laboratory-confirmed would constitute an outbreak. Among the emerging
diseases included in this category are SARS and human avian influenza.
This event would most likely be captured in the routine surveillance system.
These are events in which humans are exposed to a particular condition that
has the potential to cause serious disease or death. This includes the
following:
a) diseases and deaths in animals (e.g., avian influenza, reston-ebola
infection in pigs or monkeys)
b) contaminated food products or water (e.g., contaminated milk product)
c) environmental hazards including chemical and radio-nuclear events
(e.g., mosquito breeding areas, sulfur dioxide leaks in a geothermal
plant, oil spill)
6. Disease outbreak
Even if the BASE system failed to detect the early stage of an outbreak and
prevent its spread, a full-blown disease outbreak in any area of the country
should be reported.
Detection of an Event
Who will detect or identify the events in the barangay?
Primary Sensors
a) Barangay Health Workers (BHW) the BHWs are primary event identifiers in
the barangay. This would be part of their routine activity in the barangay that
includes household visits.
b) Health Care Workers (HCW) - the HCWs are the midwives and nurses of the
RHU/CHO assigned in the barangay. This also includes malaria field personnel in
malaria endemic areas. The HCWs and BHWs are the primary event identifiers in
the barangay. Since BASE does not involve routine reporting, the participation of
HCWs in this activity does not necessarily add significant load to the HCWs daily
activities.
c) Disease Surveillance Coordinators (DSC) these are designated surveillance
personnel in hospitals and other health care facilities involved in routine disease
surveillance reporting under PIDSR. This also includes DSCs in schools with clinics.
d) Allied Health Professionals this includes physicians and other health
professionals in the private sector.
Secondary Sensors
a) Designated Community Members this includes the Barangay Officials, BHERT,
traditional healers, and other community groups identified by the MHO/CHO.
b) Other Sectors this includes other government agencies (e.g., DA) and nongovernment organizations (NGOs), etc.
c) General Public this includes all people in the barangay. However, inclusion of
the general public in reporting events should only be considered if the BASE
system is prepared enough to accommodate voluminous reports from the
community. Preparation includes community awareness campaigns to ensure
that the general public knows what to report and where to report, assessment
and response mechanisms are in place.
20
Reporting Methods
How do members of the community report an event to BASE?
Hotline
A hotline communication should be established at the BASE Unit and MESU/CESU.
The hotline could be a dedicated cell phone/telephone landline or both. These
hotlines should be open to the general public 24 hours a day, 7 days a week.
Direct Reporting
Any member of the community may report to the BASE Unit by personal
appearance, through text (SMS), radio or by phone. The report should have the
what, where, when, and who information about the event. There is no form that the
reporter needs to fill in. It is the primary responsibility of the BASE staff to extract
this information from the reporter or from other reliable sources during the
verification process.
Verification
Who will verify the reported event and
how is it done?
Box 7
Transparency
Transparency is very important in
the verification and assessment
stage particularly if the event is a
public health risk. If there is a
motive of concealing the event for
fear of repercussions or other
reasons, then the system fails and
everybody will be at risk.
4) Inquire for case/s of the reported illness that may have been admitted or sought
consultation from any of the health facilities in the area.
5) Inquire from local media practitioners who may have knowledge of the event.
The BASE unit staff should explore other appropriate methods of determining the
existence of the reported event.
Whenever an event is reported, the BASE staff will obtain basic information of the
event and record this in a logbook. A sample logbook is shown in Annex B. In
barangays where BASE units have access to computer and internet connection, the
data could be entered directly into an electronic database.
Part 1 of the logbook contains the basic information gathered during the verification
process. This includes the following:
Event ID.......................
This is the date and time in which BASE unit staff received the report
or knew the existence of the event. This information is used in
determining the reporting (time of event to reporting) and response
time (time of report to the time action was initiated).
This refers to any event that fits the description of a reportable event
discussed under Section 5 of this manual.
This means the specific place where the event occurred. First, the
barangay/s affected should be clearly stated. Second, the specific
location of the event in the barangay should be described (e.g.,
street, purok, house, school, food establishment, farm). This
information is important in determining the probable source of the
outbreak or risk of illness.
This means date and time when the event occurred. The time should
be indicated particularly on events where there is sudden clustering
of cases of a disease or injury (e.g., food poisoning, chemical burns).
This information is critical in determining the probable source of the
outbreak or the nature of the disease.
22
Specify the age and sex if there are few (<10) cases. If there are
more cases, just provide the range of ages (youngest to oldest). This
information is very important particularly in determining the nature
of the disease and the management or treatment that should be
provided.
Number of
deaths
Other information
Reporter information
Verification status
Verification
ongoing.
Event exists
Transparency is very important at this stage particularly if the event is a public health
risk. If there is a motive of concealing the event for fear of possible repercussions or
other reasons, then the system fails and everybody will be at risk.
A reported event is more likely to be true if they are confirmed by multiple different
sources of information, reported by a trained health worker or contains clear
information about the event as to time, place and person.
23
Event Assessment
Once an event is confirmed to be real, the BASE coordinator or any of the BASE
trained staff shall proceed in the preliminary assessment. If the BASE unit has no
technical capacity to perform the assessment, the MESU/CESU shall take the lead in
the assessment.
Table 1 presents the questions that will guide the assessment process. If any of the
questions has a YES answer, then the event is considered a potential public health
risk and a response is triggered.
Assessment Question
Response
YES
Human health
events
Non-human
health events
NO
If the event is a non-human health event, the BASE staff should coordinate with the
appropriate government agency in the verification and assessment process. For
example, the Bureau of Animal Industry (BAI) should be involved if the event is about
deaths in animals. Events like chemical spill, release of poisonous gas, etc, BASE
should coordinate with the Department of Environment and Natural Resources
(DENR).
24
After the assessment, Part 2 of the event logbook (Annex B) should be filled up
which includes the following information:
Event ID.........................
Actions taken.
Remarks.
Check this option if there are still cases of the disease or the risk is
still exists (e.g., chemical spill) regardless of whether control
measures are being implemented or not.
Controlled.
Check this option if there are no new cases of the disease reported
or the risk has been eliminated.
Closed..
Check this option if the event is not a public health risk or the event
has already been controlled.
25
Event Updates
If the status of the event is Ongoing, then the BASE unit should provide regular
updates on the situation. The frequency of releasing updates may vary depending on
the severity or urgency of the situation. Daily update for at least three days to one
week is required for ongoing disease outbreaks and non-human health events such
as environmental hazards that are categorized to have high public health risk.
For ongoing events, the BASE staff should fill in Part 3 of the Event Logbook (Annex
C). If the system is computerized, then the update information shall be encoded into
an electronic database. The information required in Part 3 are the following:
Event ID.........................
Event update as of
(date and time)
Indicate the date and time the update was recorded into the event
logbook or encoded into the computer database.
Cases
Deaths.
Actions taken.
Remarks.
Ongoing..
Check this option if there are still cases of the disease or the risk is
still exists (e.g., chemical spill) regardless of whether control
measures are being implemented or not.
Controlled.
Check this option if there are no new cases of the disease reported
or the risk has been eliminated.
Closed..
Check this option if the event is not a public health risk or the event
has already been controlled.
For ongoing events that are of national or international concern, the National
Epidemiology Center (NEC) of the Department of Health shall require LGUs to
26
provide regular update of the situation. NEC as the designated IHR (International
Health Regulation) focal point shall provide these updates to WHO.
Responding to an Event
The BHERT should be organized. The primary functions of the team includes the
following:
a. Provide preliminary response activities to a confirmed event. This includes
early detection and management of cases.
b. Conduct community information and education campaign.
c. Manage response activities to be more efficient and effective.
d. Coordinate and collaborate with other stakeholders and/or agencies.
Collaboration should be done with other appropriate government or nongovernment agencies depending on the nature of the event.
Once a suspected disease outbreak is confirmed, the BASE unit staff should inform
the CHO/MHO immediately. The PIDSR guidelines (Annex D) on procedures for
epidemic response, declaration and containment shall be followed.
The National Epidemiology Center should be informed immediately for any disease
outbreaks of national or international concern (Annex C, PIDSR Guidelines, Section
VIII, B4.d).
For all identified outbreaks, the MHO/CHO should assess whether they have
sufficient local capacity to undertake the outbreak investigation and response, and
arrange for additional assistance if required.
Figure 5 shows the flow of reporting, investigation and response to a reported event.
This algorithm serves as a guide to
27
Event
Sensor collects
information and report
the event to BASE unit
No
Real
event?
Event
recorded
as closed
Yes
BASE staff conducts
event assessment
Event
recorded
as closed
No
Event is a
public health
risk?
BASE
cannot
decide
BASE
coordinator/staff
reports the event
to CESU/MESU.
BASE and
CESU/MESU
conduct joint event
assessment.
Yes
Event is of
national or
international
concern?
No
BASE
coordinator/staff
records and reports
the event to
CESU/MESU.
CESU/MESU
enters event into
the BASE
database.
Yes
BASE staff notifies
CESU/MESU within 24
hours after the event
was detected.
CESU/MESU notifies
PESU, RESU and NEC
within 24 hours and
enters event in the
BASE database
NEC informs
WHO, provides
support in the
investigation
and monitors
progress of the
situation.
BASE capable
for preliminary
investigation
and response
activities?
No
CHO/MHO provides
support for the
investigation and
response activities.
Yes
BASE in
coordination
with BHERT and
BHS conduct
preliminary
investigation and
response
activities.
BASE submits
report to
CESU/MESU and
records event as
closed.
CESU/MESU
updates BASE
database and
record event as
closed.
28
The BASE unit should maintain an Event Bulletin Board. The bulletin contains basic
information of the recent events monitored. The board should be located in a
conspicuous place in the barangay hall. In this manner, the barangay hall officials,
employees and the public are aware of the events monitored by BASE. This type of
feedback should maintained even if the BASE unit is utilizing an electronic database
system.
Where
Bgy.
Nabasan,
Daraga,
Albay
When
First case:
08-19-10
Who
1st case: 5 yrs old,
male
2nd case: 20 yrs
old male
3rd case: 10 yrs old
female
1 death
Actions Taken
Status
Ongoing
Feedback meeting with all BASE staff should be conducted at least every quarter.
This activity should be led by the MESU/CESU.
The MESU/CESU staff should develop a simple mechanism of monitoring the BASE
system. Among the indicators that should be used in monitoring the performance of
BASE are the following: a) proportion of events verified, b) proportion of confirmed
events assessed, c) process of detection, reporting and response as described in the
algorithm (Figure 5).
29
Annex A
Event ID
R5-Alb-DarNaba-001
NCR-D1-MlaB10-001
NCR-D4-MlaB20-002
Date and
time
report
received
08-20-10
4:00 PM
08-24-10
9:00 am
08-24-10
9:00 am
Where did
this
happen?
When did
this
happen?
Cases of severe
diarrhea and
vomiting
Bgy.
Nabasan,
Daraga,
Albay
First case:
08-19-10
Foreigners
suspected of
having ebola
Manila
Not known
Chicken died of
avian flu sold in
public markets of
Manila
Not known
What is the
event?
Reporter Information
Not known
No. of
deaths
Name
Contact No.
Romeo
Cagas
09066506986
James
Buhain
741-89-65
Meriam
Alamo
09153457891
Not known
none
none
Other
Information
none
Verification
Status
Verification
ongoing
Event does
not exist
Event exists
Verification
ongoing
Event does
not exist
Event exists
Verification
ongoing
Event does
not exist
Event exists
* The information contained in this form are subject to changes during the course of event verification.
30
Annex B
Part 2 Event Assessment and Initial Response
Is the event a
Event ID
potential risk to
public health?
R5-Alb-Dar-Naba-001
Yes
No
Could not be
determined
Actions Taken
BHERT was deployed in the area immediately 1 hour after the report
was verified
BHS is opened 24 hrs for immediate treatment of diarrhea cases
PHO, CHD, and NEC have already been notified
Standby ambulance provided by LGU for referral of severe cases
Information campaign intensified in the affected and neighboring
barangays
Remarks
This could be an early stage of a
cholera outbreak. Stool samples have
already been sent to RITM for culture.
31
Annex C
Part 3 Event Update
Event ID
R5-Alb-DarNaba-001
Event update
as of
(date and
time)
Cases
Previous
no. of
cases
New
cases
Deaths
Total no.
of cases
Previous
no. of
deaths
Actions Taken
New
deaths
Total no.
of deaths
08-20-10
4:00 PM
10
13
Remarks
Additional cholera
treatment centers were
established in adjacent
barangays with suspected
cholera cases.
Residents were advised to
boil their drinking water and
practice personal hygiene
Status of the
Event
Ongoing
Controlled
Closed
32