Infrastructure capability and preparedness
The study found that majority of the health facilities were not infrastructural prepared for EVD outbreaks. Most of the health facilities did not have case definition books and SOPs on EVD, and did not conduct simulation exercises or drills. In addition, most had non-functional Rapid Response Teams with minimal trainings. There was a general lack of VHF incident command centers and high-level isolation units in most facilities. Treatment and management guidelines for EVD were present in few facilities. In all facilities the burial and disposal guidelines were not readily available. On a positive note, most of the facilities had enough drugs, medical equipment, running water and detergents. However, personal protective equipment were limited in most facilities. These findings are particularly worrying, considering that western region of Uganda, especially in neighboring districts have previously reported outbreaks of VHF (9,10,25) and the fact there is a current EVD outbreak neighboring DRC (3). Therefore, its worrying if these structures are missing in district since Ebola outbreaks normally cause panic and health care workers have been reported to abandon their posts. It is not a surprise to find deficiencies in infrastructure in decentralized health systems such as those in Uganda (26).Loopholes in any of components of preparedness can increase the risk of transmission of EVD in health care and laboratory settings (27). Despite such challenges Uganda has experience in management of VHFs such as Ebola and has set up systems to work on surveillance and coordination with neighboring countries such as DRC (28).
The findings of this study showed that lower health facilities such as HC III and IVs did not have most of the infrastructure. In a related study in Ghana, it showed that health facilities were not ready to handle EVD cases (29). Limited funding from government to health systems to support equipping of these facilities to quickly identify, isolate and refer EVD cases may be the cause of such deficiencies. Small health facilities, such as HC II and III, especially those that have less than 200 beds are always less prepared compared to the bigger facilities with more bed capacity (30). The current study found that hospitals were found to have the required infrastructure. Furthermore, at the district level it was found that Rubirizi district is more prepared to detect, identify and manage the index EVD case than Kasese District. This may be due to fact that Kasese district has a bigger population to serve, and thus more health facilities, than Rubirizi district. Rubirizi district is relatively newly created district new and does not have a district hospital established. Its highest health facility (HC IV) is currently serving as the district referral and thus will have almost the same level of funding as the Kasese District referral hospital.
Surprisingly, majority of the facilities did not have a copy of the case definition book despite fact that Uganda has availed this information to all health facilities (28). Anecdotal evidence has suggested that even when these case definitions are available at health facilities, they are always not utilized and a copy will be kept in a records office. This supports the findings of this study which shows that the health in-charges may not even be aware of the availability of these materials are available at their stations. The case definition book of EVD forms part of the core infrastructures and lack of this book implies that health care workers are most likely to miss suspect cases and identification of potential cases of EVD. This poses not only a great risk to the heath care workers but also leads to straining of the health care system.
Majority of the facilities did not have RRTs and for those that formed the RRT committees they are reported non-functional. Therefore, meetings are not regularly held. This was confirmed by lack of evidence of existence of minutes of meetings. No wonder most health facilities reported that they didn’t conduct simulation exercises and drills in preparation for EVD outbreaks. In addition, majority of members of the RRT committees were not trained in Ebola preparedness and outbreak response. Ebola response requires harmonized coordination of all teams and the community. So, lack of rapid response teams means chaotic and improvised actions in case the case of Ebola emerged, and this will compromise communication and early containment of an outbreak. The Uganda, when there are epidemics RRT are constituted at district level. Currently, there are on-going efforts to train RRT (28) and conduct simulation exercises (31). These are key in providing immediacy of experience that other training methods usually don’t provide (32).
Some of the health facilities assessed neither had VHF incident management centers nor high level isolation units. The study didn’t observe any clinician’s notification files at almost half of the health facilities. Almost half of the facilities assessed, had no space for triage as well as spaces that could allow a one meter distance between a HCW and a patient. Infection Prevention and Control (IPC) guidelines were only observed at a few of the health facilities. In addition, many of the health facilities didn’t have EVD management protocols and treatment guidelines for EVD. All the health facilities in both districts didn’t have guidelines for burial and/or disposal of corpses for EVD. This implies that if a suspected index case of EVD dies, there is no ready team in the nearby area to ensure safe and dignified burials of the corpse which puts the entire community at a greater risk of contracting the disease when they get involved in burying their people who may have died of EVD. WHO provides guidelines and checklist for countries to be better prepared for EVD at various levels (1). Lack of isolation units led to some of health care workers being affected by EVD in Gulu Uganda (6). The local government should try its best to have isolation units in place especially for these districts that are near DRC where there is an on-going EVD outbreak.
Our study districts did not have burial teams for EVD. In a study conducted by Wamala et al. (33) early transmission of Ebola cases was due to burial rituals at community level. Last burial rites and practices in Africa involve family members preparing the corpse for burial including washing, touching and being in close proximity with corpse. This would be a risky practice if a family died from unsuspected Ebola disease. In the first EVD outbreak in northern Uganda, establishment of burial teams were found to be instrumental in containing the disease and stopping transmission within the community (6). Safe and dignified burial is an important control measure in limiting transmission of Ebola at community level (34). Mbonye et al. (28) recommend a national response team to train local burial teams since they form a critical infrastructural component and according to Okware (6) Uganda has started doing that.
Logistical capability and preparedness
The study found that more than half of the health facilities were not logistically prepared. A related health care logistics the supply chain redesign of pharmaceutical products and logistics system saturation is still an important challenge that the healthcare sector faces (35). This implies that in case of a disease outbreak a lot health facilities will struggle to provide the required logistics to its staff and might have to depend on national level emergency mobilization efforts to respond adequately without putting themselves and other patients at risk of contracting infection. Patients infected with EVD, who seek emergency care, expose ‘front-line’ healthcare workers to significant risk of contracting the infection. Considering the highly contagious nature of the body fluids from individuals with symptomatic infection, dealing with Ebola mandates that healthcare workers follow standard safety precautions rigorously in order to safeguard themselves and the people with whom they interact (36).
In addition, the findings of this study show that Rubirizi district was doing poorly compared to Kasese in terms of logistics. The disaggregated data showed that all the facilities in Rubirizi didn’t have logistical abilities. This might be expected since these health facilities receive different quotas of funding from the Ministry of Health. The study also found that all health facilities irrespective of level of health care, had no budget for responding to EVD nor did the facilities assessed have any funding towards VHF preparedness efforts. Primary Health Care funding (PHC) is very meagre and it cannot be squashed to handle any EVD preparedness activities. Decreased budgetary support from the government may be eroding the little gains of preparedness of Uganda’s health care system (37). Funding for preparedness is key before, during and after an outbreak (38). Resource mobilization at whatever stage of an outbreak, and especially preparedness, is vital because the fight against Ebola epidemics is highly resource intensive. This may be in form of medical and support staff, finances, vehicles, food, clothing, personal items or as hospital and laboratory equipment and supplies. To succeed in resource mobilization, there is need for multi-sectoral collaboration between ordinary citizens, civil society organizations, political and faith-based organizations, as well as local and international development partners and government departments (39).
Medical equipment was also another area that was missing in the facilities implying that, preparedness for, and response to the EVD index case may be routinely compromised. The medical equipment that were missing included containers for sample collection and storage and PPE. PPE weren’t observed at health facilities implying that in case of the suspected index EVD case, even taking off the highly pathogenic specimen from the suspect, will either take long to be done, or the person taking it will have to remove the specimen without the PPE and that person will be more of a ransom to the EVD disease outbreak than a responder in actual sense. Presence of PPEs does not necessarily mean they will be used properly and in a timely manner by all HCWs. However, their presence will improve staff commitment and confidence while in isolation units (6). The most available logistics in majority of health facilities were disinfectants and detergents and transport for samples. This is to be expected as these are logistics that are used in other hospital activities on a day to day basis. For example, detergents are used in cleaning wards and disinfectants is used to clean surfaces soiled with blood and other fomites and this may explain their presence as the facilities will have a budget to purchase the items. Delivering of supplies and logistics in an epidemic situation, such as was in West Africa, has many challenges and countries need to learn the concept of prepositioning supply kits within the country as a way of preparedness (40).
Self-reported practices and Knowledge on etiology, transmission, control and prevention of EVD
In this study there was general low levels of self-reported practices and knowledge on etiology, mode of transmission, clinical signs and management of EVD in over 50 percent of the HCWs. This seems to agree with a study in Ethiopia amongst HCWs that showed nearly similar low levels of knowledge about EVD (41). Annan et al. (29) also demonstrated the same in HCWs in Ghana during the period of Ebola outbreak in West Africa. In Nigeria, HCWs were found to have inadequate knowledge about EVD (42). A similar study conducted by Benon et al. (18) in Kasese and Rubirizi districts showed total lack of knowledge about EVD amongst health workers. Interestingly, our current study found the self-reported level of knowledge of preparedness for EVD outbreaks slightly higher than as reported by Benon et al. (18). Poor understanding of EVD among HCWs may put lives of people at risk (43).
The levels of wearing gloves and face masks as a standard precaution practice for infection prevention and control was very low. This may be due to general lack of PPEs as observed above. The HCWs who use face masks as a standard precaution practice for infection prevention and control was very low. They were very few HCWs who knew and appreciated that avoiding to recap needles after use on a patient is a standard precaution practice aimed at infection prevention and control. The health care workers who knew and practiced hand washing before and after touching a patient as a standard precaution for infection prevention and control was equally very low. Previous outbreaks of EVD in Uganda have shown incidences where HCWs are not using protective gear well or were taking the precautions put in place for granted (6). Personal safety training focusing on safe wearing and removal of full-body equipment and working in pairs where colleagues watch over each other when wearing protective gears and when providing patient care were thought to be key in guaranteeing use of PPEs (39). In the current study, very few HCWs knew and appreciated recapping of needles after use on a patient as a standard precaution practice aimed at IPC. The HCWs who knew and practiced hand washing before and after touching a patient were equally low.
A significant number of HCWs responded that physical contact is the commonest mode of transmission of EVD. Whereas this could be the commonest mode of EVD transmission, the other modes of EVD transmission were less mentioned. A case in point here was contact with body fluids from an infected person, this was less mentioned, yet it is equally a direct and obvious mode of transmission of EVD from person to the other. This simply means that the HCWs do not include contact with the body fluids of an EVD infected patient as a mode of transmission when designing health care messages while preparing to sensitize the public during their health talks. Very few HCWs knew that contact with clothes and beddings of symptomatic EVD patients would be an obvious and direct mode of EVD transmission. The implication on this is that precautionary measures are not taking place. The good news is that the level of knowledge seems to have improved or slightly better than in a previous study by Benon et al. (18) though comparison may not be made since the respondents may have been different. Very few of the health care workers knew that getting in contact with infected animals would transmit the EVD to man. The two districts border Queen Elizabeth national park where a case of Marburg was reported in a Bat cave (9) and Anthrax in hippos (44,45). Occurrences of such zoonotic diseases in the vicinity should encourage HCWs to learn more about diseases such as Ebola.
The current study has its limitations. For instance, recruitment of health care workers was based on names provided by the District Health officers. We addressed this limitation by confirming absence and/or presence of names of the HCWs at facility level. There were HCWs who could have had extra lessons of Ebola during their course of trainings. We defined whom to interview to avoid the selection bias and gave all the health care workers an even chance to participate by providing enough time for answering questions and asking us questions. The current study weighted all the indicators as the same yet in theory some components are more critical than others. Our indicators were based on the WHO Ebola preparedness checklist of 2014 (1). The study design does not allow us to get a true picture of preparedness since it was conducted when the threat level for EVD outbreak was at the minimum. During an epidemic situation some infrastructure and health facilities that may not receive funding when the threat level is low will be activated and funded. Countries tend to have more funding for case management and disease outbreak response in general than for preparedness (38). Even though our results show that preparedness indicators can be used to monitor the extent of preparedness of communities, this tool seems to have been designed to be used mainly at national and sub-national level rather than community level. The preparedness indicator can be used as a tool to target interventions to the most vulnerable populations hence boosting preparedness. Countries can develop better tools that provide more detailed information on infrastructure and logistics needed for infectious disease outbreak preparedness such as EVD.