Testimony
Statement by
Charles A. Schable, M.S. Director,
Bioterrorism Preparedness and Response Program National Center for Infectious Diseases
Centers for Disease Control and Prevention
U.S. Department of Health and Human Services
on
CDC Bioterrorism Preparedness Efforts: Protecting the Public Health
before the
The Committee on Science United States House of Representatives
|
May 3, 2004
Good morning, Mr. Chairman and
members of the Committee. I am Charles A. Schable, M.S., Associate
Director for Emergency Response and Preparedness, National Center for
Infectious Diseases (NCID), Centers for Disease Control and Prevention
(CDC), and Director of NCID's Bioterrorism Preparedness and
Response Program. It is a pleasure to testify before your committee.
CDC's mission, as part of the Department of Health and Human
Services, is to protect the health and safety of the American people
through activities that range from terrorism preparedness and
response, to promoting worker safety, to preventing birth defects and
limiting the spread of infectious diseases. The program I lead
provides agency-wide coordination, with CDC's Office of Terrorism
Preparedness and Emergency Response, to prepare our nation for and
rapidly respond to a bioterrorism event anywhere in the United States.
Thank you for the opportunity to join you in Kansas to testify today
about CDC's bioterrorism preparedness efforts.
CDC continues to make vast strides
toward achieving optimal terrorism preparedness and emergency response
capacity at the federal, state and local levels and is committed to
strengthening the capacity of the public health system to respond to
both routine and emergent health threats. To achieve this imperative,
we must continue to prepare the broader public health infrastructure
to respond to a wide range of public health emergencies. Today, I will
address how CDC works with state and local governments to prepare for
a bioterrorist attack, explain some of the systems and tools used by
CDC to detect and respond to a bioterrorist attack and describe
CDC's role in response and coordination with other state and local
health officials, and other health service providers.
State and Local
Readiness
Today, as a result of the more than
$3 billion investment Congress and the Administration devoted over the
past three fiscal years, the frontlines of public health are better
prepared to detect terrorism and deal with its consequences, and there
are specific initiatives underway at CDC and in each state to make
America safer.
While much progress has been made
strengthening the nation's defenses against biological attacks,
President Bush instructed his administration to review its efforts and
find new and better ways to secure America. The result of this review
is Biodefense for the 21st Century, a recently approved
presidential directive that builds on our past accomplishments,
specifies roles and responsibilities, and integrates the programs and
efforts of various communities - national security, public health, law
enforcement, etc. - into a sustained and focused national
effort.
In 1999, CDC began a program of
providing technical assistance and funding to state, local and
territorial public health departments to develop capacity to respond
to terrorism events and related public health emergencies. In FY 2002,
Congress appropriated a substantial increase in funding for this
preparedness effort, and CDC's state and local cooperative
agreement program has grown rapidly as a result. The resources
provided through this cooperative agreement program support 62
grantees in the development of critical public health preparedness
capacities, including preparedness planning and readiness assessment;
surveillance and epidemiology; biological and chemical laboratory
capacity; communications systems and information technology; health
information dissemination and risk communication; and education and
training.
States and localities have made
substantial progress toward achieving optimal levels of preparedness
since the terrorist attacks of fall 2001. For example, every state has
developed an emergency preparedness and response plan and nearly 90
percent of states have trained public health practitioners in
responding to terrorism. In addition, every state either has achieved
or is moving toward around-the-clock capacity to send and receive
critical health information, and 42 states can transmit information
among state and local public health officials, hospitals, emergency
departments, and law enforcement. CDC's overarching goal in this
arena is to have systems in place in each community that protect
citizens from infectious diseases, environmental threats, and
terrorism, and these achievements represent substantial progress
toward that end.
Commensurate with CDC's
agency-wide emphasis on rigorous measurement of programmatic impact,
CDC will begin pilot testing performance indicators in FY 2004 in an
effort to better define and establish a fundamental level of public
health preparedness. The data generated by these standardized
indicators will provide a framework for future cooperative agreement
guidance, allow for accurate evaluation of grantee progress, and
enable more targeted technical assistance. Moreover, these data will
make an essential contribution toward defining what it actually means
to be "prepared" at the state or local level. CDC
anticipates incorporating the goals, objectives, and measures of this
performance indicators effort into the state and local cooperative
agreement guidance for FY 2005.
CDC's Role in
Response
In the event of a bioterrorist attack
in the United States, CDC would provide public health advice to and
support the Department of Health and Human Services in orchestrating
the public health response to the attack. CDC would confirm that a
biological agent had been released, identify the agent, determine how
the agent was or is transmitted, and provide guidance in the
development and implementation of effective control measures. CDC
would assist the state and local health agencies in addition to the
efforts described above, by providing federal resources in support of
critical health and medical efforts, to include medical materiel
housed within the Strategic National Stockpile; deploying public
health subject matter experts and technicians to assist in managing
efforts necessary to detect possible additional bioterrorist attacks;
and providing recommendations on immunization and prophylaxis of the
at risk population and guidance and recommendations for the treatment,
isolation or quarantine of infected individuals. CDC would provide
recommendations related to occupational safety issues for first
responders and work on risk communication issues related to public
health.
Systems and
Tools
An important element to successful
defense against any threat to the nation's public health, whether
naturally occurring or deliberately caused, continues to be accurate,
early recognition of the problem.
Disease surveillance systems can
prepare the nation for potential terrorist threats. "Disease
surveillance systems" or disease detection systems, address one
important aspect of our nation's overall public health
preparedness. CDC, in collaboration with our federal, state, and local
partners is working to build systems that can: (1) rapidly detect an
event in our communities; (2) mobilize the appropriate response to
contain the event, and (3) ensure affected communities quickly return
to a sense of normalcy. These are what we refer to as our foundations
of public health readiness.
National disease detection can best
be described as the ongoing collection, analysis and dissemination of
public health data related to illness and injury. These ongoing data
collection and analysis activities enable public health officials to
detect disease early, thus resulting in faster intervention to control
and contain the consequences created by the causative agents. Without
these early detection systems, the consequences of outbreaks of
infectious disease and human exposures to agents such as chemicals and
radiation would take a much greater toll by way of increased illness,
injury, and in some cases death. Recent events, such as the SARS,
monkeypox and avian influenza outbreaks, have underscored the
essential role early detection systems play in mobilizing rapid
response. Detection of a disease almost always occurs at the local
level where health care professionals encounter patients seeking
medical assessment or treatment. A clinician's ability to quickly
recognize and identify symptoms of unusual illnesses on the frontline
has been critical to the CDC's ability to recognize unfolding
disease events and implement containment measures to prevent further
spread of disease, thus mitigating further harm to the public.
Awareness and diagnosis of a
condition by a clinician or laboratory is a key element of our current
disease detection systems. Clinicians and laboratories report diseases
to state and local health departments, which in turn share information
with CDC. CDC works with its public health partners to define
conditions that should be reported nationally. Health departments
share these definitions and guidelines with health care providers,
infection control practitioners, emergency department physicians,
laboratorians, and other members of the health care system to ensure
accurate and timely reporting.
Many local reporters of disease
incidence still report to public health authorities on paper via
facsimile. If a case of illness is particularly unusual or severe
(such as a case of anthrax), the local health care worker may call the
local health department immediately to report the case. Current
reporting systems are largely paper-based and burdensome to both
providers and health departments, often resulting in reports which are
neither complete nor timely. In addition to initial detection, these
detection and reporting systems play a pivotal role in the detection
of subsequent cases and help support the management of the event once
a response/investigation are initiated. Such information is vital to
coordinating response decisions, which ultimately lead to the
containment of an outbreak.
A comprehensive detection and
reporting system requires a strong foundation at all levels of local,
state, and federal public health agencies. CDC has been working with
state and local health agencies for many years to build the public
health infrastructure to improve disease detection and reporting
systems.
Some examples of how states use their
bioterrorism funding include:
-
Initiating implementation of a
secure web-based disease detection and reporting system to improve
the timeliness and accuracy of disease reporting.
-
-
Implementing a new hospital
tracking system to detect possible outbreaks by monitoring the
number of patient admissions and ambulance diversions at hospitals.
This system provides a way for hospitals to obtain instant messages
and alerts.
-
-
Developing early warning systems
based on symptom data from emergency departments to detect unusual
patterns of illness and automatically alert hospitals and public
health agencies when the incidence of disease exceeds a critical
threshold. Use of such early warning systems might enable the
earliest possible response and intervention before an outbreak or
epidemic spreads.
-
Other related activities useful for
early detection of emerging infections or other critical biological
agents include CDC's Emerging Infections Programs (EIP). Through
the EIP, state and local health departments receive funds to conduct
population-based surveillance that goes beyond their routine function
to develop "next generation" surveillance science, and often
involves partnerships among public health agencies and academic
medical centers. In addition, CDC has established networks of
clinicians that serve as "early warning systems" for public
health by providing information about unusual cases encountered in the
clinical practices. As noted earlier, these relationships,
particularly between health care providers and local health
departments, are the foundation on which disease detection systems
operate.
Public Health Information
Network
For many years CDC has made
significant achievements in building or enabling state and local
health agencies to build information systems that support the practice
of public health. However, many of these systems operate in isolation,
not capitalizing on the potential for a cross-fertilization of data
exchange. A crosscutting and unifying framework is needed to better
integrate these data streams for early detection of public health
issues and emergencies. The Public Health Information Network (PHIN)
provides this framework. Through defined data, vocabulary standards
and strong collaborative relationships, the PHIN will enable
consistent collection and exchange of response, health, and disease
tracking data among public health partners. Ensuring the security of
this information is critical as is the ability of the network to work
reliably in times of national crisis. PHIN encompasses four key
components: (1) detection and monitoring; (2) analysis and
interpretation; (3) information dissemination and knowledge
management; and (4) public health response. Each of these components
is briefly described below.
Public health information systems
must support functions that include:
-
Early event detection - BioSense
(described later in this testimony) is being developed to support
early event detection activities associated with a possible
bioterrorism threat. Regional health data will be sent to
authorized health officials detailing health trends that could be
related to a possible bioterrorism attack.
-
-
Routine public health surveillance
- The National Electronic Disease Surveillance System (NEDSS)
supports routine surveillance activities associated with the rapid
reporting of disease trends to control outbreaks. The NEDSS
platform allows states to enter, update and electronically transmit
demographic and notifiable disease data.
-
-
Secure communications among public
health partners - The Epidemic Information Exchange, or Epi-X,
technology allows for the secure exchange of communications among
participating public health partners via the web by providing
up-to-the-minute information, reports, alerts, and discussions
about terrorist events, toxic exposures, disease outbreaks, and
other public health events.
-
-
Management and dissemination of
information and knowledge - The Health Alert Network's
architecture upgraded the capacity of state and local health
agencies to communicate different health threats such as emerging
infectious and chronic diseases, environmental hazards, as well as
bioterrorism related threats.
-
-
Other functions include - Analysis
and interpretation of relevant public health data and public health
response systems.
PHIN will provide the framework for
these functions to serve as part of an integrated and interoperable
network critical in establishing a more effective public health
system.
Since the majority of the data
management needs come after disease is detected, CDC through PHIN is
investing in information systems to support our public health response
teams and our Director's Emergency Operations Center (DEOC) in
Atlanta and to assist state and local health agencies in tracking and
managing vital public health information before, during, and after an
event has occurred. CDC's DEOC, which opened in 2003, serves as
the centralized facility for collaboration to gather and disseminate
information to ensure a timely, coordinated and effective public
health response.
Biosurveillance Initiative
Recognizing the need to increase our
current disease surveillance and detection capabilities, the
President, on February 3, 2004, issued Homeland Security Presidential
Directive 9 (HSPD-9), which states in part:
"The Secretary of Homeland
Security shall coordinate with the Secretaries of Agriculture, Health
and Human Services, and the Administrator of the Environmental
Protection Agency, and the heads of other appropriate Federal
departments and agencies to create a new biological threat awareness
capacity that will enhance detection and characterization of an
attack."
CDC's role in this
biosurveillance initiative focuses on human health and involves three
distinct but interrelated elements. The first is BioSense, a
state-of-the-art, multi-jurisdictional data sharing program to
facilitate surveillance of unusual patterns or clusters of disease
around the country. This data sharing effort will support early
detection of potential terrorism events while minimizing the reporting
burden for state and local health departments and clinical
personnel.
The second element of the initiative
centers on the addition and expansion of quarantine stations at U.S.
ports of entry and assigning multidisciplinary teams of quarantine
officers, public health advisors, epidemiologists, and information
technicians to these sites. This effort will assure effective
monitoring of U.S. and international regulatory requirements for
travelers, rapid communication of disease intelligence information to
federal, state, local and international partners, and consistent
supervision of clinical and research material movement through ports
of entry.
The Laboratory Response Network,
which serves as a point of integration for federal, state, local and
territorial laboratories to ensure rapid and proficient laboratory
diagnosis of emerging bioagents and environmental contaminants, is the
third and final component of the biosurveillance initiative.
Additional resources in FY 2005 will allow the Laboratory Response
Network to expand its reach into food safety and animal diagnostic
labs, thereby strengthening the nation's laboratory infrastructure
for timely and accurate reporting of a potential bioterrorism
attack.
The biosurveillance initiative is
part of an interagency effort that crosses multiple sectors, including
food supply, environmental monitoring, and human health surveillance,
and its benefits will be felt in all state and local health
departments. By integrating these otherwise isolated data sources,
potential public health emergencies that may have gone undetected can
be identified more rapidly. Through the biosurveillance initiative and
ongoing capacity-building efforts at the state and local levels, the
FY 2005 budget request will continue to enhance frontline emergency
preparedness.
Conclusion
CDC is committed to working with
federal, state and local partners to protect the nation's health.
Our best public health strategy against disease is the development,
organization, and enhancement of public health disease detection
systems, tools, and the people needed to wield them. The astute
clinician remains the critical link in disease detection and
reporting. The first case of West Nile in 1999, and the first case of
anthrax reported in early October 2001, were identified by astute
clinicians. Training and education of these front-line health
protectors remain a high priority for CDC and will continue to be a
priority as we strive to improve all components of the nation's
disease detection systems.
While we have made substantial
progress towards enhancing the nation's capability to rapidly
detect disease within our communities, improving our response and
containment strategies, and developing plans to recover from tragic
events, much remains to be done. CDC is very grateful for the
congressional support received to date and looks forward to continuing
to work with Congress and Members of this committee as we strive to
protect the public's health from terrorism and other public health
emergencies.
Thank you for the opportunity to
testify on this most important topic. At this time I would be happy to
answer any questions.
Last Revised: May 3, 2004
|