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The case for integrating oral health into primary
health care
Santosh Jatrana, Peter Crampton, Sara Filoche
Severe disparities in oral health and inequities in access
to oral health care exist globally.1–4
These inequities are inconsistent with the vision of equity and social justice
in global health as laid down by the non-binding Alma-Ata Declaration on Primary
Health Care.5 The original vision for Primary
Health Care (PHC) encapsulated in the Alma Ata Declaration did not include a
strategy to integrate oral health within general health programmes, however in
2002, in response to the global challenges of the burden of oral health
diseases, the WHO Global Oral Health Programme was reoriented to give
‘priority’ to the integration of oral health with general health
programmes.6
The World Health Organization’s (WHO’s) The
Global Goals for Oral Health and The Global Oral Health Programme
detail the means to address the unmet oral health needs of the world’s
population. The Global Goals for Oral Health proposed goals and
objectives which are guided by the principles of disease prevention and health
promotion in consideration of local realities—i.e. the epidemiology of
oral diseases and the socioeconomic
conditions.7
The Global Oral Health Programme, currently one of
the priority programmes under the charge of the Department of Chronic Diseases
and Health Promotion within the WHO, formulated policies and necessary actions
to ensure the continuous improvement of oral health. The strategy emphasises
that greater efforts should be put on developing global policies based on the
common-risk factor approaches, focussing on modifiable risk behaviours related
to diet, nutrition, use of tobacco and excessive alcohol
consumption.8,9 It also emphasises that oral
health is integral and essential to general health as the risks to health are
linked, and that oral health is a determinant of general health.
Reaffirming its commitment to achieve oral health integrated
within PHC, in 2007 the World Health Assembly adopted a resolution which called
for an action plan for promotion and integrated disease prevention in oral
health.10 It emphasised the need to incorporate
oral health into prevention and control of noncommunicable diseases (NCDs)
within the framework of enhanced primary health care. The resolution also called
for increased budgetary provisions for oral health care.
This paper discusses current knowledge regarding oral health
in relation to general health and health care strategies and frameworks, to
highlight that oral health care is an important component of primary health
care. The authors also propose that oral health care should be integrated into
primary health care in New Zealand. This could be achieved by placing oral
health within the broader framework of PHC as encapsulated by the Alma-Ata
Declaration and the New Zealand Primary Health Care Strategy, as discussed in
the following sections.
Oral health and diseaseThe WHO definition of oral health highlights the physical,
social, and psychological importance of oral health, defining oral health as:
A natural, functional,
acceptable dentition which enables an individual to eat, speak, and socialise
without discomfort, pain or embarrassment, for a lifetime, and which contributes
to general well being.11
The biological description of oral health is one that
conceptualises oral health as the absence of oral diseases, such as dental
caries (tooth decay), and periodontal diseases (gum
disease).11 The endpoint of these diseases
(e.g. a hole in the tooth causing severe pain and discomfort) is typically when
most people are likely to seek dental care.12
At first glance, treatment (e.g. filling the hole) appears
to fit well with the biological description of oral health. However, in the
majority of cases the endpoint treatment does not target the disease
processes,13 which leaves the diseases active.
Moreover, there is a life-time risk of developing these
diseases.14,15 The WHO definition of Oral
Health is therefore more constructive as it encapsulates the meaning of oral
health and disease in its entirety.
It is important to note that oral diseases also include oral
mucosal lesions and oropharyngeal cancers, human immunodeficiency virus/acquired
immunodeficiency syndrome (HIV/AIDS)-related oral disease and orodental
trauma.16 These are all major public health
problems worldwide, and are impacted on by a number of different factors such as
sociobehavioural, environmental, and host-genetics factors, and the general
health of the individual.16 However, because of
their prevalence 17, the reasons for seeking
dental care, and historically because they have been considered the most
important global oral health burdens 16 we will
focus on dental treatment of dental caries and periodontal diseases for the
purpose of this paper.
Dental caries and periodontal diseases are complicated to
treat as they are caused by a number of different bacteria present in the mouth
(dental plaque) and are impacted on by a range of different
factors.14,15 These factors include
socioeconomic position, host-genetics, and age.
16 The modifiable risk factors associated with
these diseases, which are also common to other chronic diseases such as
diabetes, include excess alcohol consumption, tobacco use, dietary habits, and
hygiene. 18 The dynamic relationship between
the host and the oral microflora means that there is a life-long need for
everyone to have good oral health care.15
Poor oral health issues have been long neglected in New
Zealand and elsewhere and are at “epidemic”
proportions.19 Common misconceptions include
that dental caries have largely disappeared, are trivial and are easily
treatable.20 However, most New Zealanders have
dental caries by adulthood, comparing unfavourably with Australia and the
UK.11
Recent reports also show that childhood caries are at their
highest since records began in 1990.11,21 In
2004, nearly 50% of 5-year-old children had dental caries. This is particularly
alarming as research suggests that oral health at age five predicts oral health
in adulthood. 11 The prevalence of periodontal
diseases in New Zealand is harder to gauge due to lack of epidemiological
studies in this area. However, based on international records and current
knowledge, advanced adult periodontitis, leading to severe loss of supporting
periodontal tissues and tooth loss, does not tend to exceed a prevalence of
10–15 % in most populations.22
Gingivitis, a form of periodontal disease (gingival
inflammation without any bone loss about teeth and no pockets deeper than 3 mm
23) is more common. Based on a report from the
US, approximately 50% of the adult population has gingivitis around three or
four teeth at any given time.24
PHC, the Declaration of Alma Ata and the New Zealand Primary Health Care StrategyThe concept of PHC was granted recognition in 1978 at the
International Conference on PHC. Its values, along with a set of principles and
core activities, were spelled out in 10 articles that are known as The
Declaration of Alma Ata.5 It defines PHC as
5:
Primary health care is
essential health care based on practical, scientifically sound and socially
acceptable methods and technology made universally accessible to individuals and
families in the community through their full participation and at a cost that
the community and the country can afford to maintain at every stage of their
development in the spirit of self-reliance and self-determination. It forms an
integral part of both the country’s health system, of which it is the
central function and main focus, and of the overall social and economic
development of the community. It is the first level of contact of individuals,
the family and the community with the national health system bringing health
care as close as possible to where people live and work, and constitutes the
first element of a continuing healthcare process.
New Zealand’s Primary Health Care Strategy (PHCS),
which borrows extensively from the Alma Ata Declaration in wording and ideology,
defines quality primary health care as essential health care based on practical,
scientifically sound, culturally appropriate, and socially acceptable
methods25 that is:
This
definition of primary health care represents a shift from the general practice
model that has characterised New Zealand’s primary health care system in
the past. In New Zealand, as in much of the world, health policy is increasingly
recognising primary health care as central to health service provision. Within
the framework of the Alma Ata Declaration, health services are being reoriented
with an increasing focus on reducing financial and other barriers to primary
care.
Accompanying this reorientation is the increasing use of
capitation funding for primary care services and the formation of non-profit
primary health organisations (PHOs) with responsibility for enrolled
populations.25,26 These policy changes have
resulted in a substantial reduction of GP charges and pharmaceutical
charges.27,28
Dental care deliveryIn New Zealand the cost of oral health services is high.
Physician services and medicines are heavily subsidised by the
government—however, in contrast, private financing (either as
out-of-pocket payments or as private insurance) dominates dental care.
Public funding contributes only 25% of dental care
expenditure in New Zealand, and is concentrated on children and
adolescents.29 Public funding for dental care
for children up to the age 12 years is offered through a school-based dental
therapist system.30 Services offered include:
oral examination and prophylaxis, fissure sealing, cavity preparation and
placement of fillings, extraction of primary teeth, and referral of patients as
required. For adolescents up to the age 18 to qualify for publicly-funded care,
they must register with private dentists paid under public contract.
Most contracts are based on a capitation fee that covers a
defined package of services; however, for some dentists, contracts for
adolescent care remain on a fee-for-service basis. However, public subsidisation
of adult dental care is very limited and targeted at particular groups at
hospital-based dental clinics, such as special needs and medically compromised
patients and some emergency dental services (relief of pain and infection
only).31 The majority of the adult population
is responsible for the full costs of dental care services. The healthcare effect
of this age-related change in entitlement to state assistance for dental care
has been found to be associated with adverse
oral-health.32
Cost barriers in access to dental careThe results of a recently conducted New Zealand study
demonstrated that approximately 16%, 23%, and 7% of adults respectively reported
deferring seeing their doctor, dentist, or collecting a prescription during the
preceding year because they could not afford the cost of a visit or
prescription.33
The access problem because of cost was significantly higher
for dental care than for seeing a GP or collecting a prescription mainly
because, unlike a GP’s visit, which is largely government funded,
individuals predominantly fund their own dental care.
In a five country survey (UK, USA, Canada, Australia, and
New Zealand), the incidence of not visiting a dentist due to cost was much
greater than not visiting a physician in all the countries surveyed; this is
expected as access to dental care is more dependent on user contributions than
is medical care in each country. However, cost seems more of a barrier in New
Zealand than in the UK, Canada, and Australia.
New Zealand adults were the most likely (37%) and UK adults
were the least likely (19%) to say that they needed dental care but did not see
a dentist because of costs in the past year.34
The US (35%), Australia (33%), and Canada (26%) were between the two extremes.
The findings of this survey were correlated closely with countries’
insurance systems and cost-sharing policies. Except for the UK, all these
countries do not include dental care in the basic public program. The relatively
high access to dental care in the UK reflects comprehensive dental funding.
Oral health and general healthThe relationship between oral and general health has been
increasingly recognised during the past two
decades35 and there is a growing body of
evidence that indicates that specific oral conditions can be related to specific
medical conditions 35,36 These have been shown
to include heart disease35,37,
diabetes38 and pre-term low weight
babies.39,40
Oral health is integral to general
health38 primarily because oral diseases have
risk factors in common with other chronic diseases and because, in the case of
periodontal diseases, of their inflammatory and infectious
nature.16 36 The control of oral diseases is
considered to be essential in the prevention and management of the other
associated systemic conditions 35 although more
research in this area is needed.
In the case of the association between periodontal disease
and heart disease, a meta-analysis of 5 prospective cohort studies (86,092
patients) indicated that individuals with periodontal disease had a 1.14 times
higher risk of developing coronary heart disease than the controls (relative
risk 1.14, 95%CI 1.074–1.213,
p<0.001).37 The case-control studies (1423
patients) showed an even greater risk of developing coronary heart disease (OR
2.22, 95%CI 1.59–3.117, p<0.001).37
The authors concluded that periodontal disease may be a risk
factor for coronary heart disease and called for prospective studies to be
carried out to evaluate risk reduction with the treatment of periodontal
disease. Other studies report similar findings and conclusions, calling for
further research in this important area of public health.
41-43
In 2007 over 200 articles were published in the English
literature examining the relationship between periodontal disease and diabetes
over a 50-year period.44 Periodontal disease is
considered one of the chronic complications of diabetes mellitus, both in Type
1and Type 2 forms.45 Inflammatory periodontal
diseases may increase insulin resistance in a way similar to obesity, thereby
aggravating glycaemic control. However, further research is needed to clarify
this aspect of the relationship between periodontal diseases and
diabetes.45
A report on the relationships between diabetes and
periodontal diseases and the effects of periodontal infection on glycaemic
control and diabetes complications showed consistent evidence of greater
prevalence, severity, extent, or progression of at least one manifestation of
periodontal disease in 13 of the 17 studies
reviewed.46
In the same report, treatment and longitudinal observational
studies provided evidence to support periodontal infection having an adverse
effect on glycaemic control, although not all investigations reported an
improvement in glycaemic control after periodontal treatment, and requires
further investigation.46
Dental caries are often associated with xerostomia (dry
mouth) as a result of head and neck radiation, drug use (such as methamphetamine
known as “meth mouth” 47 and
salivary gland diseases such as Sjögren’s syndrome (a multisystem
auto-immune condition) and HIV disease.48.
Integration of oral with primary health careIntegration of oral health and dental care into primary
health care is important because of the integral nature of oral health with
general health. Conventional dental treatment focuses primarily on the endpoint
of disease and fixing it—e.g. in the case of dental caries, filling the
cavity.49 This, combined with the current
dental delivery system is not effective in achieving sustainable oral health
improvements across populations, nor in reducing the oral health equity
gap.50,51 This is because an endpoint treatment
approach does not take into account the disease processes nor the multifactorial
nature of oral diseases, or the commonality of risk factors with other chronic
conditions.13 16 50,52 Moreover, such an
approach is less appropriate for prevention-based interventions at community
levels and thus serves relatively few people at high costs.
13 50 52 As Mertz and O’Neil state,
‘What is needed is a turn towards a system (of care) that meets the
principles of primary health
care’.53
Current evidence indicates that delaying dental care can
lead to serious illness as adverse oral health has a profound impact on general
health, quality of life, and economic wellbeing, as discussed in the preceding
sections.54,55 Failure to provide medically
necessary dental care undermines the effectiveness and efficiency of general
medical care. 56
It is for the above described reasons that oral health
policies and programmes should be an integral part of national primary health
care. Integration of oral health into strategies for promoting general health
will enhance both oral and general health. While improving oral health is one of
the health objectives of the New Zealand Health
Strategy,57 providing accessible and affordable
oral health services does not feature prominently in the current Primary Health
Care Strategy. 25 This study emphasises that
oral health care is primary health care and we need a health care system that
meets the principles of primary health care.
What does it mean to integrate oral health with primary
health care? It broadly means bringing dental care and primary health care under
one roof, thus providing dental care services as part of comprehensive primary
health care. It means having more public responsibility in financing, and
delivery of oral health care with universal access to preventive as well as
restorative dental care. Currently, unlike a GP visit, New Zealanders primarily
meet the cost of their own dental and oral health services. However, treating
the funding of basic dental services differently from other medical services is
contrary to the view expressed by the WHO that oral health is integral to
overall health and an important part of primary health care.
6
Moreover, as mentioned before with the current oral health
system, dental and oral health programmes tend to follow a biomedical approach
(individual behaviour risk factors) and largely ignores the influence of
socio-political factors as key determinants of health. The common risk factor
approach, in which coordinated action is focussed upon a set of shared risk
conditions and their associated behaviours, aims to address the common
determinants of chronic conditions, including oral
diseases.58,59 Oral health and disease are
impacted on by diet, hygiene, smoking, alcohol use, stress, and
trauma.16 As these risk factors are common to a
number of other chronic diseases, adopting a collaborative approach would be
more rational than one that looks at the diseases in isolation.
This above mentioned collaborative approach emphasises
meeting the patient’s needs early on, by reorienting oral health services
towards prevention, self-management and early intervention, thus reducing
avoidable hospital visits and admissions. Like primary health care, dental care
should aim to maintain good oral health of the population and not merely treat
the endpoints of oral diseases.
Currently, in New Zealand and elsewhere, the cost of oral
health services is high. Consequently, the use of services is often prompted by
symptoms; and publically funded oral health care is largely oriented towards
select populations e.g. children, adolescents, low-income adults, special needs
and medically compromised patients, with some emergency dental services (relief
of pain and infection only).31
The insufficient emphasis on primary prevention of oral
diseases, poses a considerable challenge for several groups of people,
particularly women, older adults, and those from lower socioeconomic groups, who
face greater barriers in accessing oral health due to cost barriers.
33 It remains a challenge in many countries,
including New Zealand, to establish prevention-oriented oral health systems
based on the Primary Health Care Approach and to reduce cost barriers to
accessing oral health care.
It is encouraging to note that the New Zealand Government
has started the process of integrating oral health with general health
programmes with the publication of a strategic vision for oral health in New
Zealand. 11 The challenge for national health
authorities is to translate this strategic vision into practice for the benefit
of those who have unmet oral health needs because of cost. Moreover, a number of
primary care practices, such as Wellington People’s Centre and Hokianga
Health, provide dental services as part of integrated extended primary health
care services.
In the future strong emphasis should be given to ensure
integration of primary health care and oral health care to ensure overall good
health, healthy individuals, and healthy populations.
ConclusionThis paper has highlighted the need for dental and oral
health to be integrated within a PHC framework. It has shown that dental and
oral health care clearly meet the requirements for PHC, and that there is need
for a preventative orientated approach towards oral health care.
Competing interests: None known.
Author information: Santosh Jatrana,
Research Fellow, Department of Public Health, University of Otago, Wellington;
Peter Crampton, Dean and Head of Campus, University of Otago, Wellington; Sara
Filoche, Research Fellow, Department of Pathology and Molecular Biology,
University of Otago, Wellington
Correspondence: Santosh Jatrana, Department
of Public Health, University of Otago, Wellington, PO Box 7343, Wellington, New
Zealand. Fax: +64 (0)4 3895319; email: santosh.jatrana@otago.ac.nz
References:
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