After implementing an IPC intervention in select Nigerian military tertiary facilities nearly one year into the COVID-19 pandemic, there was no improvement in overall IPC readiness as evidenced by a slight decline of 1.5% since the baseline score of 81.2%. However, IPC readiness varied considerably across modified WHO core IPC program components, certain individual questions, assessment time points, and facilities. Readiness was consistently high over time in the component of ‘IPC guidelines, policies, and SOPs’. ‘Infrastructure’ and ‘monitoring and remediation’ needed improvement at baseline and improved somewhat by follow-up. Although baseline scores were high across ‘IPC program structure, funding and leadership engagement’, ‘training, knowledge and practice’, and ‘biosafety and waste management’, follow-up scores declined considerably. ‘PPE materials availability and adequacy’ improved, while ‘triage and screening’ remained the same at follow-up with small improvements.
Interpretation of findings
At baseline, all participating facilities reported having an IPC program with one or more dedicated IPC focal persons, but none reported this position was full time, which is consistent with recent survey results from other low-income countries and that could lead to other facility-wide deficits [
20]. Surprisingly, by follow-up, Facility 3 reported no IPC program nor designated focal person despite having an IPC committee, and facilities 3 and 4 reported that facility leadership was no longer routinely meeting with the IPC committee or focal person. Although we did not conduct further assessment beyond the follow-up questionnaire, we speculate that this may have been tied to standard military service rotations or personnel transfer out to facilities in the military health system where COVID-19 burden and IPC needs were greater by follow-up assessment, or perhaps due to attrition, reprioritization of resources for other urgent clinical needs, or COVID-19 fatigue a year into the pandemic. Funding for IPC was not formally budgeted for at the health facility level in 2021, which has been reported to be problematic in other low-income healthcare settings [
18,
19]. The annual cost for implementing an IPC intervention or program was low in the context of PLHIV services delivery, suggesting an opportunity to improve structure and funding of IPC programs in Nigerian military tertiary facilities for patient care and safety, HCW safety, and pandemic preparedness.
Participating facilities were successful in ensuring the availability of IPC policies, guidelines and SOPs across a range of applicable topics at follow-up. This success was attributed to the incident command and control structure instituted by NMOD-HIP at the outset of the pandemic, as well as the PEPFAR CQI culture that promotes the accessibility of policies, guidelines and SOPs [
20,
21]. These findings were a stark contrast to WHO findings from a survey of other low-income countries where missing SOPs were common [
18].
We found that the infrastructure component scored lowest at follow-up, which is consistent with other Nigerian reports and the global literature on IPC-related infrastructure in low-income countries [
18,
22]. Ventilation in patient waiting areas was one reason for this. Challenges with proper ventilation in waiting areas and lack of an air filtration system are features that are common in facilities in the low or middle-income country setting [
23]. This was reflected in our interventional reliance on administrative controls such as masking and creating additional waiting area space outdoors under tents. These efforts were in addition to preexisting routine practices in line with national COVID-19 policy, including use of standing fans, opening of windows for cross ventilation, and appropriate triage of respiratory illness patients. In the laboratory setting, use of air extractor fans was a requirement.
Conversely, functional hand hygiene stations were available at key facility points for all facilities. A Nigerian survey of water sanitation and hygiene in 2019 found that only 65% of urban facilities had improved water access on premises, and 70% had hand hygiene facilities at points of care and water and soap at toilets [
24]. Furthermore, 51% of urban facilities segregated, treated and disposed of waste safely, whereas all facilities we assessed had access to functional waste treatment and documented waste management procedures [
24]. That said, Facility 3 reported insufficient waste bins for segregation of waste at follow-up, which serves as a reminder that ongoing assessment, quality improvement and sufficient funding are required to ensure continued adherence to IPC best practices and to replace supplies and materials over time.
While we asked a different set of questions, our tertiary facility findings are similar to a primary health care setting intervention implemented across 22 African nations including Nigeria, where IPC gaps were commonly cited and measures of screening and triage declined [
25]. Our facilities reported employing triage procedures, signage, screening of HCWs, visitors and patients at entrance for COVID-19 symptoms. Yet when it came to using tools like checklists and/or maintaining records of triage and screening, facilities fell short. Notably, documentation of HCW screening was not consistently maintained at follow-up, and facility 2 reported no longer screening HCWs daily with or without documentation. In high- and middle-income countries, digital syndromic surveillance tools that rely on self-administered screening checklists were adopted early in healthcare settings and other businesses for COVID-19 screening, risk profiling and triaging. In African countries, this form of surveillance was not widespread, and was primarily performed within smaller subsets of populations as research, with study teams administering screening questions and capturing self-reported information. Outside of these settings save for a handful of countries, self-screening has largely lacked documentation and relied on voluntary self-reporting of symptoms, exposure and testing to national systems. The lack of documentation and/or response may be due to stigma, concern for loss of income, and perceived level of importance of self-reporting symptoms, among other reasons [
26,
27].
Despite some variation at project outset, all sites had some basic IPC training which may be attributed to military’s experience with EVD and Lassa fever outbreaks [
9,
10]. These efforts included in-service training of HCWs in IPC generally. The NMOD-HIP also trained over 400 HCWs on COVID-19-specific IPC measures early in the pandemic [
20]. Further opportunity exists to build upon this foundational knowledge and direct IPC focal persons and others into established IPC certification pathways such as through the Infection Control African Network, or enhance knowledge through open source resources such as the OpenWHO core IPC competency trainings [
18,
28]. In the military context, meeting the frequency of new training needs due to high turnover driven by military rotations and duty tours remains an ongoing operational challenge. The decline reported in training at Facility 2 in relation to biosafety and waste management could reflect this.
Although continuous medical masking has been shown to significantly decrease HCWs’ risk for respiratory infection in healthcare facilities in areas with community transmission of COVID-19, sub-optimal PPE use may sustain risk of transmission [
29‐
31]. Practical, in-person training that includes PPE donning, use and doffing is essential and was included in our intervention. Interactive IPC training for HCWs and nursing home staff with emphasis on medical devices and hand hygiene can enhance knowledge and improve patient outcomes [
32]. In a 2020 international survey of nearly 3000 HCWs from different cadres, the majority had never received formal PPE training, which was strongly associated with low confidence in PPE use [
33].
In comparison to a study of Nigerian civilian primary care facilities where PPE availability decreased over time, the availability of PPE in our tertiary facilities generally increased overall or was maintained [
26]. Contributing factors could include the variability in PPE availability throughout the pandemic, the difference in timing of interventions, or the possibility of improved PPE access at the tertiary facility level versus primary care, and the deliberate inclusion of PPE distribution in our intervention [
34‐
36]. However, facilities reported inconsistent internal distribution to staff working outside of COVID-19 treatment areas, a problem that has been reported in other regions globally and which aligns with US CDC and Nigerian CDC guidance in 2020 about PPE resourcing according to three levels (conventional, contingency, crisis) of operational status [
37‐
39]. We speculate that internal rationing may have occurred, which would have been out of step with facility-level policy as well as PPE stockpiles reported to be available during intervention. Regardless of why, this underscores the importance of PPE commodity security for pandemic preparedness and response.
Kimani et al. 2022 found that only 38% of 777 health facilities surveyed in Kenya during the first year of the COVID-19 pandemic reported routinely monitoring HCW IPC practices [
40]. In general, we found that monitoring and remediation activities such as audits of adherence to IPC best practices and SOPs were occurring at baseline and continued through to follow-up. However, conducting audits using routinized tools was an area for improvement, and one facility surprisingly did not meet any of the minimum criteria for this component at either baseline or follow-up. Despite PEPFAR’s strong culture of CQI, other IPC activities may have taken precedence over monitoring and remediation at this facility during a rapidly evolving pandemic, reflecting local and cultural priorities and determinants [
41].
Public health implications
Our intervention helped inform PEPFAR’s recently revised strategic direction.
Reimagining PEPFAR’s Strategic Direction: Fulfilling America’s Promise to End the HIV/AIDS Pandemic by 2030 outlines five pillars including one on public health systems and security [
42]. Pillar foci include strengthening regional and national public health institutions, protecting the health workforce, and leveraging PEPFAR assets to improve health systems resilience and responsiveness while sustaining HIV services and impact. In line with this revised strategy, IPC has been established as one of the PEPFAR core standards for all country programs receiving funding, and integrated into PEPFAR’s facility assessment CQI tool (Site Improvement through Monitoring) [
21].
Efforts to improve IPC readiness programmatically and ensure consistent uptake can be facilitated through integration into ongoing CQI activities. Since 2021, the IPC needs assessment questionnaire with stoplight scoring has been integrated into routine facility assessments across Nigerian military facilities. The results and tools also helped inform the inclusion of IPC formally into an existing PEPFAR facility assessment tool across PEPFAR-supported national HIV programs for quality improvement. Additional budgetary support from both PEPFAR and NMOD-HIP was allocated in the second half of 2021 to support assessment and intervention across an expanded number of facilities. This approach to embedding IPC components as routine practice with continuous monitoring and remediation could help continue to keep IPC program costs low, ensure dedicated resources in program budgets, and help maintain program fidelity over time, even as outbreaks and pandemics wane.
Strengths and limitations
Our work had several strengths, including the modification of an established IPC framework that afforded our intervention consistency and reliability, the use of a stoplight color scheme consistent with existing CQI activities to facilitate staff understanding, and deliberate inclusion of HCW cadres from various disciplines to promote a ‘community’-level response and safety. Additionally, NMOD-HIP had strong prior experience in management of EVD and Lassa outbreaks as well as research and program evaluation. The intervention was embedded within the existing financial and technical assistance for HIV service delivery, and the NMOD-HIP had a command and control structure that provided an ideal environment to quickly test an intervention that might be rolled out to other Nigerian facilities and PEPFAR-supported national HIV programs.
Globally, changes in policies and guidelines were continual and often occurred in response to the availability of funding, material resources and emerging scientific evidence during the COVID-19 pandemic. Notably, our intervention was conducted nearly a year into the COVID-19 pandemic in 2021 in the context of an existing program focused on HIV service delivery and the first phase of COVID-19 vaccine availability in Nigeria; thus, results reflect IPC readiness mid-pandemic. By that time, the Nigerian Federal Ministry of Health and Social Welfare had already made available national IPC policies specific to COVID-19 which the NMOD pushed out to its facilities. The Nigerian military had also taken other major operational and guidance measures to protect HCWs and PLHIV, including establishing COVID-19 isolation and treatment centers, procuring PPE, and providing prior COVID-19 IPC training. The mature partnership between PEPFAR, MHRP, and NMOD-HIP had had time to draw upon and reallocate existing lines of funding to shore up IPC measures, including prioritizing this proof of concept intervention for testing. Given this context and timing it is not surprising that there were no reports of, e.g. PPE stock-outs, which had plagued hospitals around the world in the first year of the pandemic. In fact, the baseline results of this work were used to inform requests to PEPFAR and NMOD for additional IPC funding that was made available in late 2021, which also permitted expansion of efforts to other facilities. Thus, findings from this work must be carefully considered in relation to this mid-pandemic context, as they neither reflect the ‘worst case’ scenario of the early pandemic, nor the learning and subsequent expanded funding. However, the timing may have importantly permitted the identification and remediation of challenges such as supply tracking, distribution and accessibility across departments within facilities, which otherwise might not have been apparent at pandemic outset when procurement challenges were rampant.
Our work also had several important limitations. Collection of COVID-19 HCW testing results and isolation and quarantine outcomes were outside the scope of this project given the urgency of associated need and our program evaluation approach which was not intended to cover collection of protected health information. Instead, we focused on comparing baseline and follow-up IPC readiness, which we felt was a reasonable approach for an initial project, and which afforded lessons that could be applied to other settings and when scaling.
Our follow-up results showed declines in IPC readiness across three of eight components, and no change in a fourth, although this masked some improvements and declines in readiness at facility level. It is possible that awareness of IPC and related practices was improved in the context of the IPC intervention, empowering respondents to be more critical of their facility IPC program at follow-up. As the assessment tool was designed to be used by an outside party working in conjunction with the IPC focal person for the facility, we cannot exclude the possibility of respondent bias in our results, nor that the source of the information did not adequately capture the changes made. COVID-19 fatigue mid-pandemic may have also played a role.
While the assessment content was based on long-standing, globally-established IPC literature, tools and thematic areas of relevance to COVID-19 IPC, in hindsight some questions were less useful to guiding intervention development or were not actionable if gaps were identified due to the funding and scope limitations of the project. For example, a question in the ‘infrastructure’ section asked about environmental ventilation including natural, mechanical and UV irradiation to purify air to reduce COVID-19 and other respiratory infection transmission. Mechanical ventilation and UV irradiation methods were not relevant facility-wide. Rather, they were only available to COVID-19 treatment centers that were not included in the IPC intervention. Further, we were unable to remediate the gap fully where inadequate natural and mechanical ventilation were observed and documented in participating departments, which would have required additional project funding.