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BACKGROUND: Patient referral prioritizations is an essential process in coordinating healthcare delivery, since it organizes the waiting lists according to priorities and availability of resources. OBJECTIVE: This study aims to highlight the consequences of decentralizing ambulatory patient referrals to general practitioners that work as family physicians in primary care clinics. METHODS: A qualitative case study was carried out in the municipality of Rio de Janeiro. The ten health regions of Rio de Janeiro were visited during fieldwork, totalizing 35 hours of semi-structured interviews and approximately 70 hours of analysis based on the Grounded Theory. RESULTS: The findings of this study show that the obstacles to adequate referrals are beyond the management of vacancies, ranging from the standardization of prioritization criteria to ensuring the proper employment of referral protocols in diverse locations assisted by overloaded health workers with different backgrounds and perceptions. Efforts in decentralizing patient referral to primary care still face the growing dilemmas and challenges of expanding the coverage of health services while putting pressure on risk assessment, as well as sustaining the autonomy of physicians' work while respecting the eligibility when ordering waiting lists. CONCLUSION: A major strength of this work is on the method to organize and aggregate qualitative data using visual representations. Limitations concerning the reach of fieldwork in vulnerable and hardly accessible areas were overcame using snowball sampling techniques, making more participants accessible.

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Objectives: To develop and test a framework to assess the potential of public health systems to maintain a resilient performance. Methods: Quantitative data from public databases and qualitative data from technical reports of Brazilian health authorities were used to develop the framework which was assessed and modified by experts. Fuzzy logic was used for the mathematical model to determine scores for four resilient abilities - monitoring, anticipation, learning, and response - and an aggregated coefficient of resilient potential in health care. The coefficient measures used data from before the coronavirus disease 2019 (COVID-19) pandemic. These were compared with measures of the actual performance of health systems in 10 cities in Brazil during the pandemic. Results: The coefficient of resilient potential in health care showed that the cities most affected by COVID-19 had lower potential for resilient performance before the pandemic. Some local health systems had adequate response capabilities, but other abilities were not well developed, which adversely affected the management of the spread of COVID-19. Conclusions: The coefficient of resilient potential in health care is useful to indicate important areas for resilient performance and the different types of resilience capacities that can be considered in different contexts and levels of public health systems. Regular assessment of the potential of health systems for resilient performance would help highlight opportunities for continuous improvement in health system functions during chronic stress situations, which could strengthen their ability to keep functioning in the face of sudden disturbances.

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BACKGROUND: As health systems struggle to tackle the spread of Covid-19, resilience becomes an especially relevant attribute and research topic. More than strength or preparedness, to perform resiliently to emerging shocks, health systems must develop specific abilities that aim to increase their potential to adapt to extraordinary situations while maintaining their regular functioning. Brazil has been one of the most affected countries during the pandemic. In January 2021, the Amazonas state's health system collapsed, especially in the city of Manaus, where acute Covid-19 patients died due to scarcity of medical supplies for respiratory therapy. METHODS: This paper explores the case of the health system's collapse in Manaus to uncover the elements that prevented the system from performing resiliently to the pandemic, by carrying out a grounded-based systems analysis of the performance of health authorities in Brazil using the Functional Resonance Analysis Method. The major source of information for this study was the reports from the congressional investigation carried out to unveil the Brazilian response to the pandemic. RESULTS: Poor cohesion between the different levels of government disrupted essential functions for managing the pandemic. Moreover, the political agenda interfered in the abilities of the system to monitor, respond, anticipate, and learn, essential aspects of resilient performance. CONCLUSIONS: Through a systems analysis approach, this study describes the implicit strategy of "living with Covid-19", and an in-depth view of the measures that hampered the resilience of the Brazilian health system to the spread of Covid-19.

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[ABSTRACT]. Objectives. To develop and test a framework to assess the potential of public health systems to maintain a resilient performance. Methods. Quantitative data from public databases and qualitative data from technical reports of Brazilian health authorities were used to develop the framework which was assessed and modified by experts. Fuzzy logic was used for the mathematical model to determine scores for four resilient abilities – monitoring, anticipation, learning, and response and an aggregated coefficient of resilient potential in health care. The coefficient measures used data from before the coronavirus disease 2019 (COVID-19) pandemic. These were compared with measures of the actual performance of health systems in 10 cities in Brazil during the pandemic. Results. The coefficient of resilient potential in health care showed that the cities most affected by COVID-19 had lower potential for resilient performance before the pandemic. Some local health systems had adequate response capabilities, but other abilities were not well developed, which adversely affected the management of the spread of COVID-19. Conclusions. The coefficient of resilient potential in health care is useful to indicate important areas for resilient performance and the different types of resilience capacities that can be considered in different contexts and levels of public health systems. Regular assessment of the potential of health systems for resilient performance would help highlight opportunities for continuous improvement in health system functions during chronic stress situations, which could strengthen their ability to keep functioning in the face of sudden disturbances.

[RESUMEN]. Objetivos. Elaborar y examinar un marco para evaluar el potencial de los sistemas de salud pública de man- tener un desempeño resiliente. Métodos. Para elaborar el marco, se emplearon datos cuantitativos de bases de datos públicas y datos cualitativos de informes técnicos de las autoridades de salud brasileñas. A continuación, este marco fue evaluado y modificado por expertos. Se utilizó la lógica difusa en el modelo matemático empleado para determinar la puntuación de cuatro capacidades resilientes (seguimiento, anticipación, aprendizaje y respuesta) y un coeficiente agregado de potencial resiliente en la atención médica. Para las medidas del coeficiente se emplearon datos previos a la pandemia de la enfermedad por el coronavirus del 2019 (COVID-19), que se compararon con las medidas del desempeño real de los sistemas de salud en diez ciudades de Brasil durante la pandemia. Resultados. El coeficiente de potencial resiliente en la atención de salud indicó que las ciudades más afec- tadas por la COVID-19 presentaban un menor potencial de desempeño resiliente antes de la pandemia. En algunos sistemas de salud locales la capacidad de respuesta era adecuada pero otras capacidades no estaban suficientemente desarrolladas, lo que afectó de manera negativa el manejo de la propagación de la COVID-19. Conclusiones. El coeficiente de potencial resiliente en la atención de salud es útil para indicar aspectos importantes del desempeño resiliente y los diferentes tipos de capacidades de resiliencia que pueden considerarse en diferentes contextos y niveles de los sistemas de salud pública. La evaluación periódica del potencial de los sistemas de salud para tener un desempeño resiliente ayudaría a poner de relieve las opor- tunidades de mejora continua de las funciones del sistema de salud en situaciones de estrés crónico, lo que podría fortalecer su capacidad para seguir funcionando frente a perturbaciones repentinas.

[RESUMO]. Objetivos. Desenvolver e testar uma estrutura de avaliação do potencial dos sistemas de saúde pública de manter um desempenho resiliente. Métodos. Dados quantitativos de bancos de dados públicos e dados qualitativos de relatórios técnicos das autoridades sanitárias brasileiras foram utilizados para desenvolver a estrutura, que foi avaliada e modificada por especialistas. A lógica fuzzy foi utilizada na criação de um modelo matemático para determinar a pontuação em quatro capacidades de resiliência (monitoramento, antecipação, aprendizagem e resposta) e um coeficiente agregado do potencial de resiliência na atenção à saúde. O coeficiente foi calculado utilizando dados anteriores à pandemia da doença provocada pelo coronavírus de 2019 (COVID-19). Esses dados foram comparados com medidas do desempenho real dos sistemas de saúde em 10 cidades brasileiras durante a pandemia. Resultados. O coeficiente de potencial de resiliência na atenção à saúde revelou que as cidades mais afetadas pela COVID-19 tinham menor potencial de desempenho resiliente antes da pandemia. Alguns sistemas de saúde locais tinham capacidades de resposta adequadas, porém as outras capacidades não estavam bem desenvolvidas, o que prejudicou o gerenciamento da propagação da COVID-19. Conclusões. O coeficiente de potencial de resiliência na atenção à saúde é útil para indicar áreas importantes para um desempenho resiliente e os vários tipos de capacidade de resiliência que podem ser considerados em diferentes contextos e níveis dos sistemas de saúde pública. Uma avaliação periódica do potencial de desempenho resiliente dos sistemas de saúde ajudaria a assinalar oportunidades para melhorias contínuas das funções desses sistemas durante situações de estresse crônico, o que poderia aumentar sua capacidade de continuar funcionando diante de perturbações repentinas.

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ABSTRACT Objectives. To develop and test a framework to assess the potential of public health systems to maintain a resilient performance. Methods. Quantitative data from public databases and qualitative data from technical reports of Brazilian health authorities were used to develop the framework which was assessed and modified by experts. Fuzzy logic was used for the mathematical model to determine scores for four resilient abilities - monitoring, anticipation, learning, and response - and an aggregated coefficient of resilient potential in health care. The coefficient measures used data from before the coronavirus disease 2019 (COVID-19) pandemic. These were compared with measures of the actual performance of health systems in 10 cities in Brazil during the pandemic. Results. The coefficient of resilient potential in health care showed that the cities most affected by COVID-19 had lower potential for resilient performance before the pandemic. Some local health systems had adequate response capabilities, but other abilities were not well developed, which adversely affected the management of the spread of COVID-19. Conclusions. The coefficient of resilient potential in health care is useful to indicate important areas for resilient performance and the different types of resilience capacities that can be considered in different contexts and levels of public health systems. Regular assessment of the potential of health systems for resilient performance would help highlight opportunities for continuous improvement in health system functions during chronic stress situations, which could strengthen their ability to keep functioning in the face of sudden disturbances.

RESUMEN Objetivos. Elaborar y examinar un marco para evaluar el potencial de los sistemas de salud pública de mantener un desempeño resiliente. Métodos. Para elaborar el marco, se emplearon datos cuantitativos de bases de datos públicas y datos cualitativos de informes técnicos de las autoridades de salud brasileñas. A continuación, este marco fue evaluado y modificado por expertos. Se utilizó la lógica difusa en el modelo matemático empleado para determinar la puntuación de cuatro capacidades resilientes (seguimiento, anticipación, aprendizaje y respuesta) y un coeficiente agregado de potencial resiliente en la atención médica. Para las medidas del coeficiente se emplearon datos previos a la pandemia de la enfermedad por el coronavirus del 2019 (COVID-19), que se compararon con las medidas del desempeño real de los sistemas de salud en diez ciudades de Brasil durante la pandemia. Resultados. El coeficiente de potencial resiliente en la atención de salud indicó que las ciudades más afectadas por la COVID-19 presentaban un menor potencial de desempeño resiliente antes de la pandemia. En algunos sistemas de salud locales la capacidad de respuesta era adecuada pero otras capacidades no estaban suficientemente desarrolladas, lo que afectó de manera negativa el manejo de la propagación de la COVID-19. Conclusiones. El coeficiente de potencial resiliente en la atención de salud es útil para indicar aspectos importantes del desempeño resiliente y los diferentes tipos de capacidades de resiliencia que pueden considerarse en diferentes contextos y niveles de los sistemas de salud pública. La evaluación periódica del potencial de los sistemas de salud para tener un desempeño resiliente ayudaría a poner de relieve las oportunidades de mejora continua de las funciones del sistema de salud en situaciones de estrés crónico, lo que podría fortalecer su capacidad para seguir funcionando frente a perturbaciones repentinas.

RESUMO Objetivos. Desenvolver e testar uma estrutura de avaliação do potencial dos sistemas de saúde pública de manter um desempenho resiliente. Métodos. Dados quantitativos de bancos de dados públicos e dados qualitativos de relatórios técnicos das autoridades sanitárias brasileiras foram utilizados para desenvolver a estrutura, que foi avaliada e modificada por especialistas. A lógica fuzzy foi utilizada na criação de um modelo matemático para determinar a pontuação em quatro capacidades de resiliência (monitoramento, antecipação, aprendizagem e resposta) e um coeficiente agregado do potencial de resiliência na atenção à saúde. O coeficiente foi calculado utilizando dados anteriores à pandemia da doença provocada pelo coronavírus de 2019 (COVID-19). Esses dados foram comparados com medidas do desempenho real dos sistemas de saúde em 10 cidades brasileiras durante a pandemia. Resultados. O coeficiente de potencial de resiliência na atenção à saúde revelou que as cidades mais afetadas pela COVID-19 tinham menor potencial de desempenho resiliente antes da pandemia. Alguns sistemas de saúde locais tinham capacidades de resposta adequadas, porém as outras capacidades não estavam bem desenvolvidas, o que prejudicou o gerenciamento da propagação da COVID-19. Conclusões. O coeficiente de potencial de resiliência na atenção à saúde é útil para indicar áreas importantes para um desempenho resiliente e os vários tipos de capacidade de resiliência que podem ser considerados em diferentes contextos e níveis dos sistemas de saúde pública. Uma avaliação periódica do potencial de desempenho resiliente dos sistemas de saúde ajudaria a assinalar oportunidades para melhorias contínuas das funções desses sistemas durante situações de estresse crônico, o que poderia aumentar sua capacidade de continuar funcionando diante de perturbações repentinas.

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Objetivo: discutir os desdobramentos bioéticos, ocasionados pela atuação da operadora de saúde Prevent Senior, na Comissão Parlamentar de Inquérito da Pandemia (CPI da Pandemia). Metodologia: trata-se de uma análise documental, utilizando o relatório final produzido pela CPI da Pandemia, juntamente com a revisão da abordagem bioética principialista elucidada por Tom L. Beauchamp e James F. Childress. Resultados: a pesquisa apontou que, se os fatos descritos no relatório da CPI forem confirmados após o devido processo legal, princípios bioéticos não foram observados, bem como diplomas legais infringidos. Conclusão: diante do cenário pandêmico, os preceitos bioéticos são instrumentos imprescindíveis para o enfrentamento digno e justo das adversidades em saúde.

Objective: to discuss the bioethical reverberation, caused by the performance of the health operator Prevent Senior, in the Parliamentary Inquiry Commission of the Pandemic. Methods: this is a documentary analysis using the final report prepared by the Commission and a review of the principles-based bioethical approach outlined by Tom L. Beauchamp and James F. Childress. Results: the research showed that if the facts described in the Commission's report are confirmed after due process, it is evident that bioethical principles were not followed, and legal requirements were violated. Conclusion: in the face of the pandemic scenario, bioethical principles are an essential tool to deal with health adversities in a dignified and fair manner.

Objetivo: discutir los desarrollos bioéticos, provocados por la actuación del operador de salud Prevent Senior, en la, en la Comisión Parlamentaria de Investigación de la Pandemia (CPI de la Pandemia). Metodología: se trata de un análisis documental, utilizando el informe final elaborado por el CPI de la Pandemia, junto con la revisión del enfoque bioético principialista dilucidado por Tom L. Beauchamp y James F. Childress. Resultados: la investigación apuntó que si los hechos descritos en el informe del CPI son confirmados después del debido proceso de ley, no se observaron los principios bioéticos, así como de los diplomas legales infringidos. Conclusión: ante el escenario de la pandemia, los preceptos bioéticos son instrumentos esenciales para un enfrentamiento digno y equitativo de las adversidades em salud.

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By the time the present study was completed, Brazil had been the second epicenter of COVID-19. In addition, the actions taken to respond to the pandemic in Brazil were the subject of extensive debate, since some diverged from recommendations from health authorities and scientists. Since then, the resulting political and social turmoil showed conflicting strategies to tackle the pandemic in Brazil, with visible consequences in the numbers of casualties, but also with effects on the resilience of the overall health system. Thus, this article explores the actions taken in Brazil to cope with the pandemic from a systems analysis perspective. The structure of the domain was analyzed using Work Domain Analysis, and the activated functions were analyzed using the Functional Resonance Analysis Method, identifying the variability resulting from the conflicting strategies carried out and the consequences to the capacity of the Brazilian health system to respond resiliently to the pandemic. Results of the study show that functions that overlapped the operation of the overall system were introduced, causing the health system to operate under conflicting objectives, in which functions were created to restrict the outcomes of each other during the entire COVID-19 crisis.