RESURGENCE OF
TUBERCULOSIS
DOTS FAILURE OR
THOUGHT FAILURE!
Ravindran
Chetambath
Professor & Head
DM Wayanad Institute of Medical
Sciences
Wayanad, Kerala
Abstract
India
implemented the Revised National TB Control Program (RNTCP) as a national
government run system that used a thrice weekly regimen administered by DOT.
Cure
rates in India have been comparable with countries using daily dosing. At the
same time Multidrug resistance and Extensive drug resistance were reported from
many parts of the country. This prompted reconsideration of the existing
program and introduction of daily regimen in place of intermittent regimen.
When a new program is being implemented it is important that we should take
stock of the defects of previous program leading to its failure and try to
correct them.
Key Words
Revised
National Tuberculosis Control Program, Directly observed short course, Multidrug
Resistance, Daily regimen
Introduction
The
World Health Organization (WHO) declared tuberculosis (TB) a global public
health emergency in 1993 and since then intensified its efforts to control the
disease worldwide1. Revised National Tuberculosis Control Programme
(RNTCP) and directly observed treatment short course (DOTS) were introduced in
the country after a pilot study in 1997. The programme was introduced in a
phased manner covering the whole population of the country by 2006.It enjoyed
the back up of infrastructure of health care system, a new hierarchal human
resource chain and huge external funding. The concept of daily, directly
observed therapy, incorporating a full six months of Rifampicin has been
adopted by the majority of countries worldwide as a major part of Stop TB
Strategy2. Lower rates of cure in National TB Control program (NTP)
highlight the operational challenges of delivering a daily regimen over an
extended period of time2, 3.
India implemented the Revised National TB Control Program (RNTCP) as a national
government run system that used a thrice weekly regimen administered by DOT4.
Cure rates in India have been comparable with countries using daily dosing. TB
mortality has dropped significantly, and the prevalence of TB has declined slightly
over the last two decades4. The therapeutic regimens given under
direct observation as recommended by WHO have been shown to be highly effective
for both preventing and treating TB 5. It was propagated with much fanfare
and enthusiasm and even the protagonists became ardent believers by the course
of time. It took 30 years for the national tuberculosis control program to be
declared a failure, but it took only 10 years or less to say that RNTCP is not
achieving the desired result. Now the revised program is being re-revised
citing examples of multidrug resistance and extensive drug resistance.
Directly observed
therapy short course
Directly observed therapy short course (DOTS) is the
internationally recommended strategy to ensure cure of tuberculosis. It has
become the standard for the diagnosis, treatment and monitoring of tuberculosis
worldwide and has been implemented in 182 of 211 countries, covering more than
77% of world's population6,7 in response to the growing threat of this disease.
In India, under the Revised National Tuberculosis Control
Program (RNTCP), the percentage of smear-positive re-treatment cases out of all
smear-positive cases is 24%8. The causes of re-treatment include relapse, failure, and
default in treatment. RNTCP does not follow up the patients for any period of
time after successful completion of treatment to determine whether they
relapse. Due to the fact that
India has the maximum number of cases and highest burden of TB in the world, an
effective TB control program in India is essential. It also will have global
implications in the international TB control effort. There is no statistically significant
difference between the two treatment groups in terms of cure or treatment
completion. Hill categorically admits that superiority of DOTS over
unsupervised therapy for routine TB care has not yet been shown in an
evidence-based fashion9. His contention is that it is not better in suboptimal
settings and indicates that the program quality must be strong enough to yield
its optimal benefits. Of the new
smear-positive patients registered under Category 1, the default and failure
rates were 12% and 5%, respectively, reported by Chandrasekaran in 2006 and 16%
and 4%, respectively, reported by Thomas10. Mehra recorded a failure rate of 3.4%11. The
distribution of default and failure cases in Category 2 patients was 22% and
14%, respectively, in the study by Mukherjee12. Hill in his review
of studies from around the world, calculated an average failure rate to be 2.4%
±2.2% for 21 culture-based studies and 2.5% ±1.7% for nine smear-based studies9. Nevertheless,
high relapse rate of 11-13% has been reported in patients treated by DOT under
RNTCP from several different locations in India over the last many years 10,
13, 14.
Most authorities are convinced that DOTS improves treatment
effectiveness, drug resistance rates, and overall TB control. It
is a fact that the intermittent regimen used under the program is equally
effective under direct observation as compared to the daily regimen, and
choosing a daily regimen does not undermine the successes of the program 15,
16. There are no good quality studies that may cast light over the
preferences, adherence, and felt problems of the clients of the RNTCP. Without
understanding the wishes and the problems seen from the patients, it may be
difficult to modify a strategy so strongly advocated by the WHO and many other
international organizations working with TB. Role of HIV, Multi Drug Resistant
(MDR) TB, re-infection with a different strain of Mycobacterium tuberculosis
and outcomes in the pediatric age group, also need to be investigated for
relapse. However, based on the above evidences and in the interest of having
uniformity of care across all healthcare sectors it is decided to introduce
daily regimen under RNTCP. It is argued that this will help to achieve universal
access to quality TB care and prevent development of drug resistance. When such
a decision is taken and program is being reintroduced, it will be better to
take stock of what went wrong in the previous programs. It will help the
program managers to take corrective steps so that the new program will not have
the same fate after a few years.
Reasons for Failure
The three main causes of failure of TB treatment relate to
the actions of doctors in prescribing incorrect regimes, problems with the
drugs being delivered (either the quantity or the quality), and the patients failing
to take sufficient quantity of the drugs.
I.
Doctors – Not adhering
to guidelines or following inappropriate guidelines.
II.
Drugs –Poor quality, irregular
supply and wrong delivery (dose/combination). In some case drugs are unsuitable
due to the presence of drug resistance.
III.
Patients –Lack of
information, Lack of money for treatment and/or transport, fear of actual or
presumed side effects, lack of commitment to a long course of drugs and other
co morbidity.
Apart from the above we have to consider few other reasons
for the program failure. This is because system did not correct certain
inherent causes of failure of the previous program (NTP).
1)
Administrative failure
The initial enthusiasm once the program was launched faded
away too quickly. There was lack of commitment on the part of administrators.
Most of the program managers and contractual staff were committed and RNTCP
gained a lot of ground among common man due to their hard work. Most of the
medical college faculty who were suspicious initially cooperated and it was
bringing good result. This was mainly due to the concerted effort of program
managers, District TB officers, medical college core committee members and
contractual staff. But after few years these staff were shuffled and their
grievances were never attended. Contractual staff on meager wages struggled to
get that amount released in time. District program managers of NHM were
responsible for dealing finances. Since they have many other programs to look
after, due importance to TB program was never given. Once commitment is lost
and enthusiastic workers left for greener pastures we can imagine the fate of
the program.
Treatment adherence is
a critical determinant of treatment outcomes. Poor outcome and emergence of drug
resistance are mainly due to irregular and incomplete treatment. The DOTS strategy
has been the backbone of TB programs for the last decade. In certain places,
strict adherence to the program by healthcare worker has resulted in
cost-effective and sustainable control of TB epidemics. However, accumulating
evidence has pointed to the effectiveness of a wide variety of approaches
including community and family-centered DOTS, which is more achievable for most
developing healthcare systems and produce comparable outcomes to healthcare
worker supervised DOTS.
However in a larger
perspective, treatment support system developed with mutual trust and respect
between the patient, family, providers, treatment supporters and the health
system. This will promptly identify and address all possible factors that could
lead to treatment interruptions. This includes not only medical factors such as
co-morbidities, adverse drug reactions and emergencies, but also take care of
various social, vocational, nutritional, economic and psychological stress
experienced by the patient throughout the course of treatment. Regular and
effective supervision by the health supervisors at various levels and close
monitoring of the progress made by the patient on treatment are critical
components to ensure high standards of care. Capacity building among health
care workers and engaging local community based organizations, self-help groups
and patient support groups could prove to be effective interventions to promote
treatment adherence 17, 18. Supervision and support should be
individualized and should include a range of recommended interventions
including patient counseling and education. An important element of the patient
centered strategy is to assess and promote adherence to the treatment regimen,
and, to address poor adherence when it occurs. These measures should be
tailored based on the patient's clinical and social history. It also should be
mutually acceptable to the patient and the provider.
2)
Role of private practitioners
India continues to have high TB incidence, and, the mortality
due to TB is still unacceptably high. The challenges of TB control in India are
magnified by the existence of parallel systems for TB diagnosis and treatment –
the public and the private. Each system takes care of approximately half of the
TB cases19.The methods and standards vary greatly depending on
whether public or private care is accessed and furthermore what type of private
care is sought, from super-specialty tertiary institutions to non-qualified
providers 20. RNTCP was implemented through the existing health care
system, the pivotal role being played by district TB centers. There were
additional staff supplement with adequate materials and funds. Every peripheral
health center is empowered to take up the challenge of diagnosing, treating and
monitoring TB patients. Since medical colleges are the opinion leaders in
health care and trains new generation of doctors and paramedics there was an attempt
to bring all medical colleges in the loop and hence task force is being
organized in public and private medical education institutions. At the same
time we are all aware that 50-60% of health care delivery in the country is
through private practitioners. They work in institutions as well as
individually. RNTCP, to a large extent, failed to bring these practitioners in
to its fold. There were many concerns for them which were not addressed
properly. Hence treatment of tuberculosis through private practitioners
remained largely out of the program. Many institutions do not want to join a
Govt. run program for fear of auditing. But most important of all is the fear
of exposing their know how in treating tuberculosis. I know many practitioners
using non rifampicin containing regimen, non-pyrazinamide containing regimen
and levofloxacin based first line treatment. Many have more concern on liver dysfunction,
peripheral neuropathy etc. and hence load the patient with two or more
vitamins. This will all lead to non-compliance. Once therapeutic response is
poor these patients are referred to the program. This previous treatment
history is also poorly documented and may be a source of bias. It has been
recorded that patients turn up at RNTCP after seeking medical care from many
providers in the private sector. It might be true that many TB patients may see
an advantage in not reporting previous treatment, in order to escape with a
lighter 6-month treatment instead of a more punishing 8-month treatment
regimen. When drug resistance is being reported from many parts of the country,
these same practitioners started blaming the program.
3)
Availability of drugs in the open market
When the Govt. is committed to provide good quality anti TB
drugs to patients in the country, why the drugs were made available in the open
market? When these potent drugs are freely available, there is a chance to
misuse these drugs to the extent of treating with inadequate regimen,
inadequate dosing etc. This will lead on to failure and development of
resistance. If it was banned when RNTCP was expanded to cover the whole nation,
all the patients (suspected or diagnosed) will be brought to the single window
of DOTS. This will ensure uniform treatment, treatment completion and follow
up.
4)
Overemphasis on sputum microscopy and neglecting clinical and
radiological evidence.
In NTP the main disadvantage being pointed out is
overemphasis on radiology. X ray being highly sensitive but poorly specific,
leads to more of false positives. When we turned to RNTCP the emphasis shifted
to sputum microscopy. This is a highly specific test even though sensitivity is
poor. So we have a proportion of false negatives in the society. Actually the
planners should have developed a more realistic diagnostic test combining both.
In the recent guidelines a new entity is included as clinically diagnosed TB
which is diagnosed through clinical and radiological methods. Overdependence of
sputum microscopy led to a peculiar situation in which clinicians failed to use
their clinical judgment but blindly followed sputum microscopy result. Even
after improvement in staining and detection, the sputum pick up remained as low
as 60%. So 40% of TB cases roam around without being detected. When these
patients are reported as negative after repeated sputum examination, there is hesitancy
in starting anti-TB drugs. This leads to delay in starting treatment and
progression of disease.
Conclusion
Urgent efforts are necessary for the control of tuberculosis
in the country. Both intermittent and daily regimens are proved to be effective
in treating tuberculosis. What is most essential is to ensure adherence to the
program both from patient’s side and provider side. It is important to take
stock of the factors leading to failure of previous programs and to take
appropriate measures so that what is implemented now remains the standard of
care for TB in years to come.
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