0242/2024 - Percepção de gestores municipais sobre o Sistema de Vigilância Alimentar e Nutricional: estudo qualitativo multicêntrico
Perception of municipal managers about the Food and Nutritional Surveillance System: a multicenter qualitative study
Autor:
• Cláudia Machado Coelho Souza de Vasconcelos - Vasconcelos, C. M. C. S. - <claudia.vasconcelos@uece.br>ORCID: https://orcid.org/0000-0002-3395-6143
Coautor(es):
• Brena Barreto Barbosa - Barbosa, B.B - <brena.barreto@aluno.uece.br>ORCID: https://orcid.org/0000-0002-1536-614X
• Bárbara Hatzlhoffer Lourenço - Lourenço, B. H. - <barbaralourenco@usp.br>
ORCID: https://orcid.org/0000-0002-2006-674X
• Raimunda Magalhães da Silva - Silva, R.M - <rmsilva@unifor.br>
ORCID: https://orcid.org/0000-0002-4849-1502
• Luiza Jane Eyre de Souza Vieira - Vieira, L.J.E.S. - <janeeyre@unifor.br>
ORCID: https://orcid.org/0000-0002-5220-027X
• Antonio Augusto Ferreira Carioca - Carioca, A.A.F - <carioca@unifor.br>
ORCID: https://orcid.org/0000-0002-1194-562X
Resumo:
Este estudo teve como objetivo compreender as percepções de gestores da atenção primária à saúde sobre o Sistema de Vigilância Alimentar e Nutricional (SISVAN) do Brasil. Trata-se de estudo qualitativo, realizado nas cinco regiões do Brasil, com 13 gestores experientes na gestão pública das cidades de Rio Branco, Niterói, Novo Hamburgo, Fortaleza e Cuiabá. A construção de dados se deu por meio de entrevistas semiestruturadas e a análise do material discursivo envolveu análise temática e síntese entre o material empírico, o referencial teórico (Saúde Coletiva e o filósofo Michel Foucault) e aportes contextuais. Emergiram três temáticas: Gestor municipal no Sistema Único de Saúde; Alimentar o SISVAN é um problema, um desafio e papel de toda equipe; e Estratégias e perspectivas da gestão para melhoria da cobertura e qualidade dos dados do SISVAN. O SISVAN foi compreendido como potência para o Sistema de Saúde, no entanto, desafios emergiram, tais como sobrecarga do sistema de saúde, dos gestores, dos profissionais, recursos escassos e precarização do trabalho. A compreensão do próprio trabalho em saúde como uma micropolítica e um campo relacional se mostrou essencial para promover a interprofissionalidade e a participação de todos os envolvidos.Palavras-chave:
Vigilância Alimentar e Nutricional; Atenção Primária à Saúde; Gestores de Saúde; Pesquisa Qualitativa.Abstract:
This study aimed to understand the perceptions of primary health care managers regarding Brazil\'s Food and Nutritional Surveillance System (SISVAN). It is a qualitative study conducted across the five regions of Brazil, involving 13 experienced managers in public managementthe cities of Rio Branco, Niterói, Novo Hamburgo, Fortaleza, and Cuiabá. Data collection involved semi-structured interviews, and the analysis of the discursive material included thematic analysis and synthesis among empirical material, theoretical framework (Public Health and philosopher Michel Foucault), and contextual contributions. Three themes emerged: Municipal manager in the Unified Health System; Feeding into SISVAN is a problem, a challenge, and the role of the entire team; and Strategies and management perspectives for improving the coverage and quality of SISVAN data. SISVAN was understood as a strength for the Health System; however, challenges emerged, such as health system overload, managerial and professional burdens, scarce resources, and job precariousness. The understanding of health work itself as micropolitics and a relational field proved essential for promoting interprofessionality and the participation of all involved parties.Keywords:
Food and Nutritional Surveillance; Primary Health Care; Health Manager; Qualitative Research.Conteúdo:
Acessar Revista no ScieloOutros idiomas:
Perception of municipal managers about the Food and Nutritional Surveillance System: a multicenter qualitative study
Resumo (abstract):
This study aimed to understand the perceptions of primary health care managers regarding Brazil\'s Food and Nutritional Surveillance System (SISVAN). It is a qualitative study conducted across the five regions of Brazil, involving 13 experienced managers in public managementthe cities of Rio Branco, Niterói, Novo Hamburgo, Fortaleza, and Cuiabá. Data collection involved semi-structured interviews, and the analysis of the discursive material included thematic analysis and synthesis among empirical material, theoretical framework (Public Health and philosopher Michel Foucault), and contextual contributions. Three themes emerged: Municipal manager in the Unified Health System; Feeding into SISVAN is a problem, a challenge, and the role of the entire team; and Strategies and management perspectives for improving the coverage and quality of SISVAN data. SISVAN was understood as a strength for the Health System; however, challenges emerged, such as health system overload, managerial and professional burdens, scarce resources, and job precariousness. The understanding of health work itself as micropolitics and a relational field proved essential for promoting interprofessionality and the participation of all involved parties.Palavras-chave (keywords):
Food and Nutritional Surveillance; Primary Health Care; Health Manager; Qualitative Research.Ler versão inglês (english version)
Conteúdo (article):
Percepção de gestores municipais sobre o Sistema de Vigilância Alimentar e Nutricional: estudo qualitativo multicêntricoPerception of municipal managers of the Food and Nutrition Surveillance System: A multicenter qualitative study
Cláudia Machado Coelho Souza de Vasconcelos (0000-0002-3395-6143) claudia.vasconcelos@uece.br 1
Brena Barreto Barbosa (0000-0002-1536-614X) brena-barreto@hotmail.com 2
Bárbara Hatzlhoffer Lourenço (0000-0002-2006-674X) barbaralourenco@usp.br 3
Raimunda Magalhães da Silva (0000-0001-5353-7520) rmsilva@unifor.br 2
Luiza Jane Eyre de Souza Vieira (0000-0002-5220-027X) janeeyre@unifor.br 2
Antonio Augusto Ferreira Carioca (0000-0002-1194-562X) carioca@unifor.br2
1. Universidade Estadual do Ceará, Programa de Pós-graduação em Nutrição e Saúde. Av. Dr. Silas Munguba, 1700 - Campus do Itaperi. Fortaleza, CE CEP: 60.714.903 Brasil
2. Universidade de Fortaleza, Programa de Pós-graduação em Saúde Coletiva. Av. Washington Soares, 1321 - Edson Queiroz - CEP 60811-905 - Fortaleza-CE Brasil
3. Universidade de São Paulo, Departamento de Nutrição, Faculdade de Saúde Pública. Avenida Doutor Arnaldo 715 - 2º andar, São Paulo/SP, CEP: 01246-904. Brasil
Corresponding Author: Antonio Augusto Ferreira Carioca (carioca@unifor.br)
Funding
The study was funded by the National Council for Scientific and Technological Development of the Ministry of Science, Technology and Innovation (CNPq/MCTI) and the Department of Science and Technology of the Secretariat of Science, Technology, Innovation and Strategic Inputs for Health, of the Ministry of Health (Decit/SCTIE/MS), through the MS-SCTIE-Decit/CNPq Notice N° 26/2019, besides the General Coordination of Food and Nutrition of the Department of Health Promotion, of the Primary Health Care Secretariat, of the Ministry of Health (CGAN/DEPROS/SAPS/MS) – Process N° 442852/2019-3.
ABSTRACT
This study aimed to understand the perceptions of primary healthcare managers of the Brazilian Food and Nutrition Surveillance System (SISVAN). This qualitative study was conducted in the five Brazilian regions with 13 experienced public managers from Rio Branco, Niterói, Novo Hamburgo, Fortaleza, and Cuiabá. Data were collected through semi-structured interviews, and the analysis of the discursive material involved thematic analysis and summaries between the empirical material, the theoretical framework (Public Health and philosopher Michel Foucault), and contextual inputs. Three themes emerged: Municipal manager in the Unified Health System; Feeding SISVAN is the entire team’s problem, challenge, and role; and Management strategies and perspectives to improve the coverage and quality of SISVAN data. SISVAN was understood as a powerful tool for the Health System. However, some challenges emerged, such as an overload of the health system, managers, and professionals, scarce resources, and precarious work. Understanding health work as a micropolitics and relational field was essential to promote interprofessionality and the participation of all those involved.
Keywords: Food and Nutrition Surveillance; Primary Health Care; Health Managers; Qualitative Research.
INTRODUCTION
The Food and Nutrition Surveillance System (SISVAN) is an important information source for managing health policies, especially the National Food and Nutrition Policy (PNAN). Managing food and nutrition actions is one of the PNAN guidelines and is relevant for the organization of nutritional care in the SUS1.
Despite being a system proposed in Brazil since 1990, some studies point out weaknesses and challenges to its use, although advances are perceived as a progressive increase in coverage of nutritional status2. Some reported weaknesses were low coverage2-4 and incipient strategies for continuing education on the subject5.
The use of the system is historically associated with the granting of programs or benefits, such as the Bolsa Família Program6. More recently, the federal government has required a food counterpart from SISVAN to release financial resources linked to programs such as Proteja7.
Despite the recording of information, the lack of data analysis and resulting actions show that the information from SISVAN is not being used adequately in the municipal management of primary care of the Unified Health System (SUS)8. The low coverage of the system results in insufficient data to achieve its final objective, leading to poor use by health professionals and managers9. The latter is essential for SISVAN’s effective functioning since the lack of adequate infrastructure, data analysis, and use of the information collected for planning actions and management contribute to its underutilization8.
Therefore, there is an urgent need to understand the inherent weaknesses in using SISVAN in multicenter studies, especially when considering perspectives of managers who play a vital role in this process. This understanding is essential to propose actions that effectively impact the organization of nutritional care in Primary Health Care (PHC), facing the many challenges at national and local levels.
Given the above, considering that SISVAN is an information system that supports health actions and services whose functioning affects the quality of care provided to the population and the efficiency of public management, and the few studies that attempted to understand the experience of managers regarding this system, this article aimed to grasp the perception of municipal managers regarding SISVAN in five cities of each Brazilian region.
METHODOLOGICAL PATH
This study adopts the epistemological perspective of the qualitative approach to health research. The study scenarios involved public management environments, such as PHC Units (UBS) and coordination offices linked to the PHC in the municipal health secretariats in the following five cities that cover the five Brazilian macro-regions: Cuiabá (MT), Fortaleza (CE), Rio Branco (AC), Novo Hamburgo (RS), and Niterói (RJ). Two UBS were selected in each municipality, one located in a neighborhood with a low Human Development Index (HDI) and the other with a high HDI. The contextual characteristics of the locations are described in Table 1. The scenarios evaluated have different levels of coverage of SISVAN and family health teams and different socioeconomic contexts.
The participants were included in the study purposefully and selected deliberately, as were the study settings, per the accumulated information regarding the research questions. This approach contrasts with statistical sampling, which is guided by probabilities and, therefore, incongruent in epistemological terms with comprehensive studies10. When inviting participants, we prioritized municipal public managers working in PHC with considerable experience in management positions nominated by the Health Secretariats of the participating cities. During the fieldwork, we also included a municipal health secretary from one of the cities in the study to enhance the understanding of this management level regarding SISVAN. The inclusion of different management positions (health units and health departments) is justified by the different roles and responsibilities in managing Food and Nutrition Surveillance (VAN) related to the research objective.
We obtained the discursive material through semi-structured interviews with 13 managers. Four managers were linked to management in the UBS, four were from technical areas or coordinators related to PNAN, one was a health secretary, and the remaining were in coordination offices or technical areas unspecific to food and nutrition, linked to the Municipal Health Secretariats. The interviews were scheduled during the managers’ working hours, at their respective workplaces, or in a virtual environment, per their availability. They were held between July 2021 and June 2022 by a professional with experience in the studied field. The interviewers had no previous contact with the respondents and explained the research objectives during the interviews, using the following guiding questions in the roadmap: “What is SISVAN to your management?”; “How are SISVAN data collected and used in the daily routine of health services?”; “What are SISVAN’s strengths?”; “What are SISVAN’s weaknesses?”; “How do you perceive SISVAN’s use and support for its users?”; “Could you point out some SISVAN challenges?” and “Based on these challenges, could you tell us about possible recommendations to alleviate them?”
The mean duration of each interview was 60 minutes. The interviews were audio-recorded with the consent of the participants after signing the Informed Consent Form (ICF). The statements were identified by the initial letter G (manager), followed by increasing Arabic numerals, as in the examples (G1, G2, ...) to preserve the individual identification of the respondents when presenting the results.
The information power principle11 was adopted to close the sample; the necessary density or subjective accumulation was considered to answer the research question. The researchers transcribed the audio-recorded discursive material. The analysis of the discursive material involved Braun and Clarke’s thematic analysis12, which proposes a six-stage implementation (familiarizing with the data, generating initial codes, searching for themes, reviewing themes, defining and naming themes, and producing the report).
The material was subjected to cross-sectional and vertical readings by two independent researchers with doctorates in public health and teaching experience in primary care, which allowed the understanding of the meaning of the “whole” of each statement. The identification of the central themes aggregated the many dimensions identified in the narratives and represented the axes of the network of meanings. The researchers developed this construct based on the themes and dimensions emerging from the empirical material articulated with the theoretical framework of Foucault, Merhy, and Peduzzi. The identified themes were discussed among the researchers, and these themes were organized into a structured codebook.
The empirical material allowed us to analyze three relevant themes: a) Municipal manager in the SUS and SISVAN; b) Feeding SISVAN is the entire team’s problem, challenge, and role; c) Management strategies and perspectives to improve SISVAN data’s coverage, quality, and use. The Research Ethics Committee of the University of Fortaleza approved the research under Opinion N° 4.348.452 and CAAE 31540320.9.1001.5052.
RESULTS AND DISCUSSION
We spoke with 13 managers linked to the Health Secretariats of the municipalities included in the study (three from Rio Branco/AC – G1, G2, and G3; three from Niterói/RJ – G4, G5, and G6; two from Novo Hamburgo/RS – G7 and G8; two from Fortaleza/CE – G9 and G10; and three from Cuiabá/MT – G11, G12, and G13), totaling nine women and four men. Twelve respondents were between 35 and 59, and one was over 60. All declared having Higher Education: seven nurses, four nutritionists, one psychologist, and one lawyer. The time of experience in management ranged from 3 to 22 years, with a mean of 12 years (Table 1).
SUS municipal manager and SISVAN
Management in the SUS is complex and involves different levels and hierarchies. Public policy managers have several duties and responsibilities16, which the study participants described. As for the role of health secretaries, we highlight the statement by participant G8:
“What is our management policy here [...] if I have a specific technician who heads a policy, I need to give him autonomy here within his technical knowledge [...]. I am here much more to see the whole [...] than to get involved in the technical implementation of the day-to-day policy”. (G8)
The manager’s statement highlights the organizational dimension of healthcare management and the relevance of a collaborative approach. This dimension involves work’s technical and social distribution, encompassing elements such as teamwork, coordination, communication activities, and management function17. SISVAN management requires effective integration between sectors and health professionals and coordinated actions with other health policies and programs18. Participants also discuss the responsibilities of state and federal management with public policy, highlighting the importance of promoting greater coordination and collaboration between different levels of government.
“The State rather monitors. It does not have a more effective role. They act [...] much more motivated, sometimes, by the Ministry of Health than by their initiative, because it is difficult for the Ministry to bring anything directly to the municipalities, as they always use the State as the source of control and distribution of these policies, so the State functions much more as an intermediary than as an effective partner in implementing the policies”. (G8)
The hierarchical way the SUS operates, emphasizing decentralization – redistribution of responsibilities between government levels – is fundamental to supporting universal access and ensuring the right to health19. This structure influences the establishment of power relationships and the demand for organized information among those involved in implementing the VAN, including the Ministry of Health, state and municipal managers, professionals, and users. Foucault20 argues that power and knowledge are interrelated. Power is productive; it builds knowledge and shapes discourse. The discourse that establishes society in a privileged way is that of knowledge holders. Even the lack of specific knowledge indicates a social position since there is no neutral knowledge20.
Some managers showed limited knowledge about SISVAN, relating it only to managing information from the Bolsa Família Program (PBF). The most extensive record of information on nutritional status in the system still derives from beneficiaries of this conditional cash transfer program, as this is one of the PBF’s conditionalities2.
“What is my vision of SISVAN? Is it that vision of filling out the Bolsa Família program forms, is that it?” (G10)
Managers’ restricted association of SISVAN with PBF contrasts with the program’s intersectoral approach, in which education and health conditionalities leverage the care possibilities, with the systemic dimension of healthcare management described by Cecílio17. This dimension encompasses the creation of regular and regulated connections between health services and the establishment of networks or lines of care to promote comprehensive care. For effective healthcare management, it is necessary to consider the complex interactions between health programs and other sectors, promoting the integration and coordination of information and actions17.
The managers interviewed mentioned the importance of their role in SISVAN’s effective implementation at the municipal level and in convincing and motivating the team to collect and use information on nutritional status and food consumption, as reported:
“[...] because I also think that there is a bit of my role in this capacity or initiative to convince colleagues about filling it out, right?” (G4).
Now, if knowledge and power are interrelated20, the restricted understanding of managers about SISVAN, as previously mentioned, can impact their ability to induce work processes related to the system. The manager’s role in PHC is crucial to lead and convince health teams to conduct actions to improve the quality of services provided21. We noted that the manager encourages implementing health surveillance actions, aligned with the SUS principles, and contributes to consolidating a “surveillance society”, described by Michel Foucault22. In this context, strategies such as constant observation, establishment of standards, and supervision of activities are employed. They aim to shape individual behavior and keep a productive hierarchical power system22, as some managers in this study reported.
“[...] we will tie it to the system, which is a childcare appointment, not the other one where the child arrived with a fever. You will not tie it to consumer care because the doctor will not stop at that, right? In childcare, we will condition the continuity of the registration progress to the marker’s completion. If the marker is not filled in the appointment, we cannot proceed as it cannot confirm”. (G7)
SISVAN was perceived as an important instrument for municipal management, contributing to the formulation of strategies and actions to improve the VAN:
“So, I think that the greatest importance of this system is to provide information to managers so that policies and surveillance plans can be created [...] then you will identify [...] at the federal, state, and municipal levels that you will know your territory, users, families?” (G4)
SISVAN is recognized as an information system for diagnosing the nutritional status and food consumption of the population, from which several actions can be outlined, such as establishing, evaluating, and monitoring public policies, programs, and projects; referrals at health care levels; formation of educational groups; health promotion actions; structuring of obesity care lines; creation of protocols; and training human resources23. However, a previous study revealed the managers’ underuse of health indicators in their service planning and control actions24, which was also evidenced in this study.
“So, planning around the information from SISVAN is great. SISVAN provides much information. However, we are not doing it now. I won\'t deny it.” (G10).
Feeding SISVAN is the entire team’s problem, challenge, and role.
Anthropometric and food consumption data for SISVAN are collected in the daily routine of health services, during appointments, educational groups, vaccination rooms, and specific program activities in schools. However, despite these efforts, some gaps are still found in the collection and operation of SISVAN, which results in low coverage, except for the Bolsa Família Program beneficiaries, whose nutritional status monitoring is a conditionality6.
“If you calculate coverage, it is very low regarding the municipality\'s population. It is less than 10% when you look at the anthropometric data [...]. However, regarding food consumption, it is not even 1%. It is very low, very low: it does not exist.” (G6)
Data collection on food consumption markers is virtually nonexistent in Brazil3,4, and when it does occur, it is predominantly performed by nutritionists. This information highlights the need to increase the adherence and participation of individuals involved in SISVAN (users, health professionals, and managers) and seek strategies to increase coverage and make the system more comprehensive and representative regarding people’s health demands9. Low coverage can be understood against the numerous challenges identified for implementing the SISVAN:
“We have several institutional problems: human resources, material problems with equipment, the Internet...” (G4)
The lack of qualified human resources and inadequate infrastructure can compromise data collection, recording, and analysis. It hinders efforts to monitor and assess the nutritional status of the population9. At the municipal level, obsolete computers, slow internet, lack of or unmaintained anthropometric equipment, work overload for managers and health professionals, high turnover, and precarious work for primary care professionals are some of the difficulties highlighted by managers and which have already been reported previously in the literature8,9, suggesting that there have been no major changes in this setting in the last decade.
These institutional challenges point to the need for adequate investment and support to strengthen the capacity of municipalities to deal with SISVAN demands to overcome barriers related to human and material resources. However, managers inform insufficient funds for PNAN in general, including the purchase of anthropometric equipment, as follows:
“So since last year, when we received funds from the Ministry to buy anthropometric equipment [...] that is, BRL 30,000 for a municipality that has 24 health units, equipping the health units is not enough for me... [...] to buy the equipment, which is an incentive. It came in 2018, and then nothing came again [...] So, it is very little. It is very little compared to the number of things we would have to do.” (G7)
The Fund for Financing Food and Nutrition Actions (FAN), established in 2006, does not allow the purchase of permanent materials but rather consumables for actions to strengthen the VAN25. Only one manager mentioned this resource:
“So today the Ministry makes available to the municipality BRL 30 thousand from the Food and Nutrition Fund (FAN). So, the FAN actions, we can only spend this money on educational actions, so to speak, and even actions that implement SISVAN...” (G7)
Historically, there has been no linkage of resources to SISVAN coverage. Initially, SISVAN was adopted as a requirement for municipalities to adhere to social programs, although this was not the purpose of its creation26. Recently, transferring some funds has been linked to fulfilling VAN’s goals. Strengthening and decentralizing financial resources is essential to ensure that SISVAN is used effectively and related actions and programs receive sufficient funds for their implementation and success27. Managers believe that responsibility for failure to execute system actions should not fall exclusively on health professionals.
“[..] we can\'t demonize the professional who is on the frontline, because we know that it\'s hard work, difficult, and there are many systems to feed.” (G7)
Although the workload of healthcare professionals responsible for collecting and entering data into the system is recognized, managers understand that there is a “disciplinary pyramid” in which information is transferred from the bottom (those at the “frontline") to the top (management). However, this directed power, intended to increase work productivity, can also have the opposite effect, as a form of resistance20.
There is a complexity in the power relationships, resistance, and subjectivity in the work dynamics in health, and one should understand and analyze the interaction and dispute in this context28. For example, managers perceived the data collection and insertion into the system by professionals as an unwanted task, representing an additional workload or considered just another “service” to be performed by professionals.
“Ah, one more thing to fill out! There’s no time, no opportunity!” (G4)
“People who work in the units see SISVAN as just another service. Many can’t see the importance of SISVAN.” (G2)
The lack of mutual recognition and understanding between managers and health professionals can create inequalities in the performance of activities. Merhy et al.28 emphasize that health work occurs in encounters where the parties influence each other. This understanding is aligned with Foucault’s perspective19 on the multiple coexisting discourses in society. Understanding health work as a micropolitics and a relational field emphasizes the relevance of power relationships in social contexts and is essential to promote equity and participation of all involved28. One concern of managers is with the necessary referrals and actions, that is, with new demands that will arise after food and nutritional surveillance actions escalate, as explained in the following statement:
“[...] because then you make a diagnosis that there are many obese people in that territory, but what then? How are you going to treat them? [...]” (G7)
Identifying food-and-nutrition-related health problems is an initial step toward increasing the use of SISVAN. However, it is essential to develop effective strategies for monitoring health demands. Notwithstanding this, the low resolvability of healthcare services, especially primary care, due to high demand and work overload among professionals, interferes with the health system’s ability to provide adequate and timely solutions for the needs of all individuals29. We also noted that some managers understood surveillance as a common field:
“[...] stronger in all categories, not only obviously in nutrition, right? For nutritionists, but for all categories, this issue of food surveillance should be given much greater importance in their training.” (G5)
The statements made by the managers highlight the importance of strengthening the VAN in all professional categories, not limited to nutrition, which ensures the VAN as a field practice, as defined by Gastão (2000), which is interdisciplinary and interprofessional, as opposed to core actions, which require some professional and disciplinary delimitation30. Peduzzi31 identifies interprofessionality as essential within the SUS since it involves the collaboration of different professionals to offer integrated and effective healthcare31. Interprofessional collaboration should be encouraged among managers because it contributes to the joint and shared management of resources, knowledge, and skills to improve the quality of health services32. Many aspects related to the proper execution of SISVAN actions are within the manager’s competence. However, one of the managers also raised the issue of some peers’ lack of preparation to take on the managing role.
“Our difficulty regarding management is having people with a professional profile: people who like what they do. Because many times people are in sectors that do not have a profile, that do not even know what they are doing there in the sector.” (G11)
One of Brazil’s main issues in healthcare management is the lack of professionals trained to perform as SUS managers, which includes insufficient technical training of healthcare professionals for management, the lack of adequate action in continuing education in this field, the high turnover of managers, and the constraints when addressing management models that differ from the traditional ones, which are centralizing, hierarchical, and bureaucratic33. Finally, we highlight the pandemic context that deteriorated the SISVAN implementation, which all managers mentioned.
So, this system\'s notifications and filling out were compromised, mainly because the number shrunk considerably [...]. I believe it was compromised; the focus was on COVID, right? So, it took focus away from other services there (G12).
PHC work processes have changed to meet specific demands of COVID-19, affecting the balance between emergency care demands and routine actions related to food and nutrition surveillance34.
Management strategies and perspectives for improving SISVAN’s data coverage and quality
Given the challenges identified, some experiences were reported to improve managers’ coverage, quality, and use of data. One strategy mentioned was the periodic sending of a letter congratulating professionals for the coverage achieved.
“I have. We send an email, write a letter, the secretary signs it for the units, and then I say: \'During this period we reached such and such percentages, the state reached so much, the Federal Government reached so much [...] thanks to your work\' [...]. So, we also started to give more positive feedback to the teams to empower them and give feedback…” (G7)
The positive feedback approach can significantly impact healthcare professionals’ motivation and engagement.35 By publicly recognizing work well done, managers encourage a sense of belonging and importance among the team, strengthening adherence and commitment to the system. Also, managers also emphasize the importance of the Ministry of Health actively listening to municipal managers in the context of SISVAN.
“In my opinion, the Health Ministry should listen to municipalities, capitals, and those cities with successful projects, put this knowledge into practice to build an effective food and nutrition surveillance system policy [...]” (G11)
Active listening and valuing the knowledge of municipal managers can improve the system, strengthening its effectiveness and impact on promoting the population’s health. Building an effective VAN policy requires cooperation between the different government levels and valuing local expertise36, aiming to ensure that actions are adapted to the specific realities of each location. Some managers mentioned conducting SISVAN-related training and education, with varying results regarding professional adherence. The importance of continuing education was highlighted in reports, emphasizing collaboration with Higher Education Institutions to strengthen this approach.
“Now we are working more on technical visits during supervision and calling people to do training, more on an individual level for system manipulation.” (G6)
“(...) the nutrition faculty is a great partner in several actions, and we work with training.” (G6)
These statements highlight the importance of improving professionals’ knowledge and skills in efficiently using SISVAN. Professionals’ lack of training to use SISVAN is seen as an obstacle to the adequate operation of the system2,9,10. The need for continuing training and education is reinforced as strategies to improve the use of the system, seeking more accurate and relevant results for health management. We emphasize that the future of SISVAN involves a more prominent political project of investment in the SUS in general, which allows for new management and work processes in which professionals and managers are not overburdened and weakened in their relationships, as seen in the following excerpt.
“[...] the professionals are very aware and excited. However, because they have weak ties and contract systems, that trained employee involved with the work understands that the service is important, and then leaves.” (G6)
The high turnover of qualified professionals in PHC is a reality that can compromise the stability and quality of the actions developed, hinder the construction of knowledge and keeping an engaged team37. Therefore, it is essential to seek strategies to strengthen bonds and ensure the permanence of these committed professionals through policies of appreciation and better working conditions. SISVAN’s co-management with a larger technical team allows for strengthening the technical support at the health unit level, as reported by one of the managers.
“[...] and we talked a lot with the health units, through the nutritionists as well, because we divide the entire municipality into territories and each one is responsible for a territory with 4 or 5 units. So, they are the ones who conduct this dialogue in the territory. They are co-managers of the territories\' food and nutrition policy.” (G7)
A decentralized and distributed power dynamic can be perceived when mentioning that nutritionists are responsible for discussing and co-managing food and nutrition policy in the territories. Although power often occurs as a domination of one group over others, it is not located exclusively in the hands of a few but operates in a network. It permeates all social relationships and manifests itself in practices and discourses17. In this sense, encouraging co-management and shared responsibilities through collective and collaborative work can constitute a productive form of power, benefiting VAN actions.
One study limitation was the long data collection period, which lasted more than 20 months and coincided with the COVID-19 pandemic. Changes in healthcare management may have occurred during this long period and could have affected experiences. These factors may have impacted responses, the search for healthcare facilities, and work processes. Although only healthcare managers from five municipalities participated in the study, we sought to ensure the representation of different socioeconomic contexts in all Brazilian regions.
FINAL CONSIDERATIONS
Understanding the perception of municipal managers about SISVAN reveals aspects of extreme relevance for VAN’s improvement and effectiveness. We noted the importance of coordination between different government levels, the need to train professionals and managers, and the search for effective partnerships and financing.
The need for an approach that exceeds mere data collection and recognition of power relations in healthcare management became evident. The perception of municipal managers about SISVAN reflected this complexity, revealing the mutual influence between those involved (managers and health professionals) and the need to recognize different knowledge and needs in health. Understanding health work as a micropolitics and a relational field was essential to promote interprofessionality and the participation of all those involved.
Aligned with the qualitative approach, the empirical material produced in this study represents material whose transferability is possible; however, without the intention of generalizing, not even in the spaces studied, as a reality that cannot be changed. In the context of PNAN, health services continue to face the challenge and responsibility of implementing the food and nutrition agenda while producing new experiences and management processes that effectively include information systems, including SISVAN. We believe it is essential that health services further discuss VAN’s role in organizing nutritional care in the SUS.
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