There is nothing more difficult to take in hand, more
perilous to conduct, or more uncertain in its success, than to take the
lead in the introduction of a new order of things.
-Niccolo Machiavelli
Recently, the University of Pittsburgh Medical Center (UPMC) Center for Biosecurity hosted an invitation-only conference titled The 2009 H1N1 Experience: Policy Implications for Future Infectious Disease Emergencies. Cited key conclusions were the following:
- The prioritization and distribution of
vaccine in future influenza pandemics should be reexamined.
- Improvements are needed in the healthcare
response to a large-scale bioterrorism attack.
- The role of disease containment measures
in the response to a SARS-like emerging infectious disease should be
reconsidered.
Unfortunately, there was no focus on the front-end piece, the one piece essential to response: an effective biological threat detection and warning system.
As one of the original group of individuals who called for the creation of the National Biosurveillance Integration Center (then called the "National Biosurveillance Integration System") under HSPD-7, -9, -10, NSPD-33, and Public Law 110-53, it is disheartening to see criticism of a key component of our nation's security apparatus without engaging in open discussion with those who have professional experience in operational biosurveillance:
"The problem is there is no strategy," said Tara O'Toole of the
University of Pittsburgh's Center for Biosecurity. "They
wanted to build a national hurricane watch for public health
emergencies. But just as we saw with Hurricane Katrina,
just watching the hurricane coming is not enough." [August 10, 2007]
The National Biosurveillance Integration System, which is supposed to
bring together federal agencies to improve the detection and
characterization of biological agents, has been criticized by GAO and
the Homeland Security Department's inspector general as being
ineffective and under-resourced.
Tara O'Toole, the department's new undersecretary for science and
technology, told a House panel last week the effort had been suspended.
But the department clarified her remarks this week, saying the effort is
being reworked under the leadership of Alexander Garza, DHS chief
medical officer.
No time line was given for when decisions about the program would be
made. [March 3, 2010]
Indeed. We certainly do need effective leadership.
What is also required is an effective operational bridge between early warning and response. When we briefed ASPR/HHS several months before the 2009 H1N1 influenza pandemic, Dr. Vanderwagen admitted (paraphrased), "even if we had credible warning of an influenza pandemic, we wouldn't know what to do with it." I respected him greatly for his candor. It is unfortunate we made no further progress in the dialog in the months before the pandemic.
There actually was a strategy to NBIC, and one that was vetted with every federal agency with an operational stake in biodefense at the original Concept Design Review meetings. But there was minimal support inside DHS
to implement the program properly and other federal agencies refused to
share information with the nascent center. It was a sociological
problem first and foremost. And Machiavellian. Nearly identical
challenges and contention in implementing this concept as the
idea of storm forecasting in the 1800s. Same kind of bickering and
fighting among academics, politicians, and bureaucrats over control of
operationalization of the concept that winds up delaying effective
realization of a public benefit by decades.
In a recent testimony by Dr. Alex Garza, NBIC "provided critical biosurveillance information... on the 2009 H1N1 influenza pandemic". It would be helpful to understand the definition of "critical" along with a full review of what early warning information was recognized by NBIC analysts and conveyed to decision makers in the form of a warning.
Much to CDC and Dr. Besser's credit, the issue of effective communication of threat information was addressed in an open forum. The facilitator spoke much truth in her guidance for effective risk communication. The contention around the warning of the 2009 H1N1 influenza pandemic was nearly identical to the public's anger about perceived withholding of tornado warning information in the 1940s and 1950s. The bottom line is the public now knows warning information is out there, and they have a right to seeing threat information as quickly as possible- even in an atmosphere of uncertainty.
Our experience during the pandemic was quite revealing. The timeliness issues with CDC have already been discussed here. The broader public health community generally did not promote informal surveillance processes to share information. With but two notable exceptions, none of the federally-funded public health and healthcare professional organizations we engaged (and we approached all of them) shared situational awareness information during the pandemic. Federal, state, and local authorities pleaded for access to our information but wound up rarely ever sharing information or answering questions about reports in their areas of responsibility. The public would be quite surprised to see the email transcripts during the early days of the crisis of us admonishing public health organizations to share information.
Those that rose to the occasion were individual healthcare providers, and they were heroic in their efforts to be appropriately transparent about medical grid loading and strain, anxiety levels of staff, and unusual clinical findings without compromising patient privacy. This is how we were able to detect events and event features more quickly than official communication channels. Indeed, during the emergence of the pandemic, conversation with public health officials became operationally irrelevant.
We are observing a similar phenomenon in Haiti, where the major multi-million dollar NGOs are not readily engaging in informal information sharing about disease incidence. However, smaller more agile humanitarian groups and individual responders are.
Our conclusion from these experiences is the bigger and more complex the organization, the less able it is to share critical information in a timely fashion during crises and disasters.
Our team has demonstrated the feasibility of issuing
timely warning information for biological events such as:
- Near-real time operational biosurveillance support to the 2004 tsunami disaster
response theater
- Detection of SARS laboratory accident in Taiwan (2004)
- Detection of Marburg hemorrhagic fever in Angola for the first
time in history (2005)
- Detection of streptococcus suis in swine and humans in China
(2005)
- Detection of PRRS in swine in China with subsequent impact on
global heparin production (2005)
- The spread of H5N1 avian influenza in Asia, Europe, and Africa
(2005 and 2006)
- Detection of Ebola hemorrhagic fever outbreaks in Africa
- First forecast and detection of Rift Valley fever in East Africa
(2006)
- Detection of hoof and mouth disease laboratory accident at
Pirbright, UK (2007)
- Detection of melamine-contaminated baby formula via
reporting of unusual renal disease in babies in China
- Detection of Reston filovirus (and Ebola relative) in the
Philippines with subsequent impact on pork futures (2008)
- Detection and warning of vaccine-drifted A/H3N2 in 2007
- Detection and warning of the Mexico crisis,
later found to be the beginning of the 2009 H1N1 influenza pandemic
- Warning of H1N1 resurgence in the United States (summer
2009)
- Warning of adverse health outcomes involving H1N1 infection
in indigenous peoples (worldwide)
- Warning of medical care demand for pulmonary bypass (ECMO)
during the H1N1 pandemic
- Provision of operational biosurveillance support to the Haiti
disaster response effort (2010)
Improvements in biological threat warning have actually occurred, and a professional discipline has now been present for several years now. We openly invite decision makers to engage people with operational experience dealing with these issues as soon as possible before the next infectious disease crisis presents itself.
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