THE REPUBLIC OF UGANDA

MINISTRY OF HEALTH

Guidelines for Designation, Establishment and Upgrading of Health Units

Prepared by:

The Health lnfrastructure Working Group

2011
 Table of Contents

1.0 Background to the Guidelines.............. .........................4

2.0 Objective of the Guidelines.............. ..........4

3.0 Rationale for development of the Guidelines ..................5

4.0 Criteria for designation, establishment and upgrading of health facilities .,...............6

4.1 General Strategic Positioning ,...............6

4.2 Criteria for Designation of Levels of Services Delivery of Health Units ........... ..........................6

4.3 Criteria for Establishment of new Health Units. ..........7

4.4 Criteria for Upgrading of Health facilities ....................-/

5.0 Procedure for designation, establishment and upgrading of health facilities........ ..........................8

6.0 Application of the Guidelines............. ........9

Annex 1: Application for establishment and upgrading of Health Facilities....... ..............12

Annex 2: Staffing Norms for Health Centre ll to General Hospital....... ........ 16

FOREWORD

Over time, it has been observed that there is continued mismatch between health
infrastructure development and other resources such as personnel, equipment, medicines

and supplies across the country, This has resulted in inefficiency in investments and service

delivery in the sector. 0n the other hand, there have been several requests by districts and

other stakeholders for establishment of new facilities and upgrading of existing ones from

one level to another, Whereas the relevant criteria for health facilities development has
been stated or implied in the Health Sector Strategic and lnvestment Plan, the requests

indicate that it is not well articulated. lt has therefore become necessary to develop more

detailed guidelines for establishment of new facilities as well as upgrading existing ones,

These guidelines have been prepared by the Ministry of Health to enhance economy,
efficiency and effectiveness in infrastructure development and harmonise it with other inputs

to improve service delivery in the health sector. They are specifically aimed at providing
criteria and procedures for designating level of service and upgrading of health centres from

one level to another as well as establishing new ones. These guidelines and procedures
apply to both government and private-nolfor-profit facilities.

Another challenge has been the disagreements on the designation of levels of health
facilities between the different stakeholders, lt is therefore necessary that clear and more

detailed guidelines are provided to avoid such contradictions in future.

Districts and other stakeholders intending to establish or upgrade health facilities are urged

to strictly adhere to these guidelines. No requests for creation or upgrading of facilities will

be considered or approved unless it meets the set criteria and has followed the procedures

prescribed in these guidelines.

-@',*g'-'r=
Dr, JaneHth Aceng
DIRECTOR GENERAL HEALTH SERVICES
GUIDELINES FOR DESIGNATION, ESTABLISHMENT AND UPGRADING OF HEALTH FACILITIES

1.0 Background to the Guidelines

The Policy and objective of the Health Sector Strategic and lnvestment Plan on Health lnfrastructure
Development is to provide a network of functional, efficient and sustainable Health lnfrastructure within 5km

walking distance to every homestead. Health lnfrastructure is composed of Buildings, Medical and hospital

equipment, Communicatian systems & equipment and Ambulance and franspor(a(rbn fac(tities.

Over the last 10 years of HSSP I & ll, many stakeholders including central and local governments, Non-

Government Organisation as well as communities have invested in health infrashucture development that

has resulted into an increase in the number of health facilities as demonstrated in Table 1 . lt has however
been noted that there has been a mismatch between investments in health lnfrastructure and other
components of the health services delivery which need to be harmonised.

Table 1: lncrement in number of health units between 2004 and 2011

Level of Health Unit 2004 2011

GoU PNFP Total GoU PNFP Total
Hospital {6 42 97 65 62 127
Health Centre lV 151 12 163 166 14 180
Health Centre lll 718 164 882 868 251 1119
Health Centre ll 1 055 388 1443 1 662 496 2158
Totals 1979 606 2585 2761 823 3584
Source; Health facilities lnventories 2004 & 2011

This guideline is intended to provide the criteria for designation, upgrading and establishment of health

facilities to enhance efficiency and effectiveness of subsequent infrastructure investments towards

improved service delivery. lt should be adhered to whenever stakeholders wish to establish, upgracle or

assign a level of service delivery to an existing health unit.

2.0 Objective of the Guidelines

The main objective of these guidelines is to enhance economy, efficiency and effectiveness in infrastructure

development and harmonising it with other input for improved service delivery in the health sector. The

guidelines are specifically aimed at providing criteria for:

- Designating levels of service delivery to health centres

- Upgrading of health centres from one level to another

- Establishment of new health facilities

3.0 Rationale for development of the Guidelines

According to the Health Sector Strategic and lnvestment Plan (HSSIP), there is a mismatch between health

infrastructure and the health workforce across the country which has resulted in the inefficient use of these

two critical investments. lt has also been observed that accommodation for staff in existing facilities
remains a big challenge and is the major reason for low staff numbers. lnadequate or poor medical
equipment in existing facilities is also of great concern as many of the existing health facilities lack the

necessary equipment while only 40% of the available equipment is in good condition. There is therefore

need to rationalise health infrastructure investments to ensure that they effectively and efficiently contribute

towards improved health service delivery.

Furthermore, the criteria for designation of level of service delivery to health centres in HSSPI was based

on administrative units whereby each parish was expected to have a HC ll; a HC lll for each sub-county, a

health centre lV for a health sub-district or county and hospital for each district, The plan also made

reference to population, but this was majorly for identifying administrative units which were densely

populated as to deserve more than one health centre of a particular level. The overriding principle for
establishment of new health centres was, and still remains, to provide health services to within 5 km

distance, The HSSP I assumed that by providing facilities by administrative units as indicated above, the

criteria for Skm walking distance would be achieved. However over the years, many of these
administrative units have been subdivided and reduced in size and population; as more and more districts

were created, Going by the HSSP I criteria would therefore result in an over investment.

On the other hand, there have been several requests by districts and other stakeholders for establishment

of new facilities and upgrading of existing facilities from one level to another. Whereas the relevant criteria

has been stated or implied in the Health Sector Strategic and lnvestment Plan, some of the requests seem

to indicate that it is not well understood and therefore the need for more detailed criteria to guide the
processes for establishment of new facilities as well as upgrading existing ones.

Another problem has been the disagreements on the designation of levels of health facilities between the

different stakeholders. There have been several incidences of disagreement on the levels assigned to

health centres between parties concerned with infrastructure, medicines and supplies as well as staffing;
the communities; the districts authorities and other government departments. lt is therefore necessary that

clear and more detailed guidelines are provided to avoid such contradictions in future.

4.0 Criteria for designation, establishment and upgrading of health facilities

4.1 General Sfrafegic Positioning

The general strategy of the HSSIP on health infrastructure development is:

- Consolidation of the existing facilities so that they can effectively deliver the services at their

designated levels of service

- To ensure that new health units are located in those areas which are underserved and thereby
enable increased accessibility

4.2 Criteria for Designation of Levels of Servrces Delivery of Health lJnits

Seven levels of health care delivery, which determine the level of infrastructure at the respective levels of

service, have been identified as indicated in Table 2. The levels assigned to individual health centres in
the Ministry of Health Facilities' lnventory of May 2011 shall be maintained. The strategy thereafter should

be to consolidate the assigned level of service in accordance with the strategies of the HSSIP by providing

missing facilities as necessary. Designation of new levels of service delivery to health facilities, especially

to higher levels of services, shall follow the criteria for upgrading of health facilities outlined in these
guidelines,

Table 2: Levels of Health Service

ce delive
Leyel '::
I Aig,gt:::,,::,,,,:, :t.. Services provided
r,PoriUlation
Health Cenke I Village 1,000 Community based preventive and Promotive Health Services. Village Health
(Villaoe Health Teams) committee or similar status.
Health Cenke ll 5,000 Preventive, Promotive and Outpatient Curative Health Services, outreach
care, and emergency deliveries.
Health Centre lll 20,000 Preventive, Promotive, Outpatient Curative, Maternity, inpatient Health
Services and Laboratory services.
Health Centre lV Health 100,000 Preventive, Promotive Outpatient Curative, Maternity, inpatient Health
Sub-Dishict Services, Emergency surgery and Blood transfusion and Laboratorv services.
General Hospital 500,000 ln addition to services offered at HC lV, other general services will be
provided. lt will also provide in service kaining, consultation and research to
community based health care proqrammes.
Regional Refenal 2,000,000 ln addition to services offered at the general hospital, specialist services will
Hospiial be offered, such as psychiatry, Ear, Nose and Throat (ENT), Ophthalmology,
dentistry, intensive care, radiology, pathology, higher level surgical and
medical services.
National Referral These provide comprehensive specialist services. ln addition, they are
Hosoital involved in teachinq and research.
Source; Health facilities lnventory 2A11
4.3 Criteria for Establishment of new Health Units
As earlier stated, most of the existing health facilities are constrained in delivering services designated for

their respective level especially due to lack of staff, staff houses and equipment. Consequently,
establishment of new facilities should be limited as this would further aggravate the problem of
inadequately facilitated health units, Notwithstanding the constraints, new facilities shall be established in

either of the following circumstances:

L Where a community of about 5,000 people is not in reach of a health unit within 5 km walking

distance. A Health Centre llwould then be established

2. lf access to available health units for recognisable community is observed to be constrained by

geographical features such as mountains, water, conflict or othenruise. The appropriate level of

facility in this case would be determined by survey and assessment on a case by case basis.
Factors to consider would include but not be limited to population of the community, distance to

health facilities of different levels and ease of attracting staff to work in the area,

4.4 Criteria for Upgrading of Health facilities

It has been observed that most of the existing health facilities are constrained in delivering services
designated for their respective level especially due to lack of staff, staff houses and equipment. Higher

levels of services require more of these inputs to function effectively. Any proposals to upgrade
(infrastructural or otherwise) of health facilities should therefore be properly planned with evidence of

resources to ensure that all the necessary inputs shall be available to avoid wasteful investments, ln this

regard, upgrading of health facilities shall only be recommended if the following criteria with regards to

lnfrastructure and staffing are met:

4.4.1 lnfrastructurerequirements
1. The health centre should have all the medical buildings and equipment for the current level of service.

2. There should be at least 50% of staff houses' requirements of the current level of service.

3. There should be a clear plan for providing the additional infrastructure for the higher level anticipated

Table 3 shows the basic requirements for medical buildinqs and the 50% staff houses for Health Centre Il
to General Hospital. The Medical Equipment standard lists and standard buildinq ptans. by level, can be
obtained on request from the Health lnfrastructure Division, Ministrv of Health.
Table 3: Standard building infrastructure requirements by level of health unit

Level of Health Unit Basic Buildinqs' Requirements

Hospital Medical Buildinqs - Male Ward [at least 15 beds]
- Out Patient Department - Mortuary
- AdministrationOffices - Placenta Pit and Medical Waste Pit
- Operation Theake [2 rooms]
- Female Ward [at least 15 beds] Slaffhouses
- Paediahic Ward [at least 15 beds] - B0No. Housing Units+ Ancillary
- Maternitv Ward lat least 15 bedsl structures
Health Centre lV Medical Buildinqs - Mortuary
- Out Patient Department - Placenta Pit and Medical Waste Pit
- Drug Store with HSD Office
- Operation Theatre Sfaffhouses
- General Ward - 18N0. Housing Units + Ancillary
- Maternitv Ward structures
Health Centre lll Medical Buildinqs Slaffhouses
- Out Patient Department - 1ONo. Housing Units + Ancillary
- Maternity / General Ward structures
- Placenta Pit & Medical Waste Pit
Health Centre ll Medical Buildinqs Slaffhouses
- OutpatientDepartment - 4No. Housrng Units + Ancillary
- Emergency Delivery structures
- Placenta Pit
- Medical Waste Pit

4.4.2 Staffingrequirements
To qualify for upgrading, the following criteria should be met:

1. The staffing at the health centre should be at least 65% of the core technical staff of the current level of

service

2. There should be a clear plan of how the additional staff for the upgraded level of services is scheduled

to be realised.

The staffinq norms for HC ll to General Hospital are annexed to these quidelines

5.0 Procedure for designation, establishment and upgrading of health facilities

The Constitution of Uganda (1995) and the Local Government Act (1997) mandate the Local governments

to plan, budget and implement health policies and health sector plans. Accordingly, provision of health
services in Uganda has been decentralised to districts and health sub-districts which play a key role in the

delivery and management of health services. These local governments manage public general hospitals

and health centres as well as supervising and monitoring all heatth activities including those in the private

sector. Local Governments therefore are well placed to determine the health facilities requirements in their
areas and identifying the needs for establishment of new health units and those that require upgrading.
However, the Ministry of Health Headquarters like all other national level institutions / departments has
retained, among others, the functions of resource mobilisation, policy formulation, setting standards and

quality assurance, ln light of this framework, the Ministry of Health has set out the following procedures in

Table 4 for authorisation of establishment of new and upgrading of existing health units intended to ensure

that the criteria outlined in these guidelines are adhered to.

6.0 Application of the Guidelines

These Guidelines and procedures apply to both government and private-nolfor-profit facilities. They shall

also be part of the requirements for issuance of licences.

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Annexes

Annex '1: Application Form for Upgrading / Establishment of health facilities

Annex 2: Staffing Norms for HC ll to General Hospital

11
Annex 1: Application for establishment and upgrading of Heatth Facitities

12
 MINISTRY OF HEALTH

APPLICATION FOR ESTABLISHMENT AND UPGRADING OF HEALTH FACILITIES

SHCT'*N l: T0 SF rlLLnA nY APFLICAruT

1. Applicant:

Category Local Governmenl Private Not for Profit Private

Name

Request for:

a. Upgrading: From: . To:

b. Establishment of New: Level of Health Facility:

3. Details on the Location of Health Centre proposed for Upgraded / Establishment

(i) District:

(ii) Health Sub-district:

(iii) Sub-county:

(iv) Parish:

(v) Distance to the nearest Health Facility

Direction Distance Level of Facilitv

East ..km

West ..km

South ,.km

13
 North km

(vi) Specialgeographicalfeatures:

(vii) Population information

Geoqraphical Area Population

Parish

Sub-Countv

Health Sub-District

4. Plan for development and operational resources for the requested facility

a, Planned source of funds for development:

b. Currents staffing levels:Attach detailed list

c. Plan for acquiring staff (additional in case of upgrading):

d. What will be the source of funds for operational expenses?

Signature by authorised person: Name:

Date:

I4
 $gCTlON ll: EVAIUATI*hI ffiY T$"iF U$TRICT HilALTH TIAM ffo Se conrp!*fcd Sy Slsfrief *{e*/ffr
Offincrl

5. lnformation submitted is accurate: Yes

[l No l-l
6. Request justifiable and feasible: Yes l^l No f
7. Approval: Request Approved Request not approved: l-^ I

District Health Officer

N.B: If approved, the request should be submifted to the District Councilthrough the standing committee on Health for
ratification

SfeTf*N lf l: AFFR*VAL 8Y TL{g [}|$TR!*T CSU$\$CIL {I* b* e*rwpleted &y f&e 0&fef
S dn: rn rs fra fi r'"c $ffire$

L Request approved by District Council: Yes E No

lf approved, attach District CouncilResolution / Minute

Sign & Stamp: Date:

Chief Administrative Officer

15
Annex 2: Staffing Norms for Health Centre Ilto General Hospital

16