Democratic Republic of Congo (DRC) declared their tenth outbreak of Ebola in 40 years on 1 August 2018. The outbreak is centred in the northeast of the country, in North Kivu and Ituri provinces; cases have also been reported in South Kivu. With the number of cases having surpassed 3,000, it is now by far the country's largest-ever Ebola outbreak. It is also the second-biggest Ebola epidemic ever recorded, behind the West Africa outbreak of 2014-2016.
During the first eight months of the epidemic, until March 2019, more than 1,000 cases of Ebola were reported in the affected region. However, between April and June 2019, this number doubled, with a further 1,000 new cases reported in just those three months. Between early June and the beginning of August, the number of new cases notified per week was high, and averaged between 75 and 100 each week; since August, this rate has been slowly declining. Just 70 cases were identified throughout all of October. Although remaining comparatively low, this figure has fluctuated throughout the end of 2019 into early 2020; in December, cases sharply rose from 11 cases reported per week to 24 cases the following week, before stabilising back down to 14 cases per week by the end of the year.
Latest figures - information as of 11 January 2020; figures provided by DRC Ministry of Health via WHO.
While there are positive signs that the number of cases is slowly reducing, the outbreak remains a serious public health concern, and it is unclear when it may end.
Although the proportion of new Ebola cases previously identified and monitored as contacts has increased in the last few months, the rate is still hovering at around one-third. However, 40 per cent of new Ebola cases were never registered as contacts, showing that identifying and following up contacts of people diagnosed with Ebola remains difficult. Reasons include the movement of people (such as in the case of motorbike taxi drivers), to downright fear in some communities which hinders engagement.
New Ebola patients are confirmed and isolated with an average delay of five days after showing symptoms, during which time they are both infectious to others and miss the benefit of receiving early treatments with a higher chance of survival.
On 11 June 2019, Uganda announced that three people had been positively diagnosed with Ebola, the first cross-border cases since the outbreak began. After several weeks with no recorded cases, the Ugandan government announced a new case on 29 August; the patient, a young girl, sadly died.
On 14 July 2019, the first case of Ebola was confirmed in Goma, the capital of North Kivu, and a city of one million people. The patient, who had travelled from Butembo to Goma, was admitted to the MSF-supported Ebola Treatment Centre in Goma. After confirmation of lab results, the Ministry of Health decided to transfer the patient to Butembo on 15 July, where the patient died the following day. On 30 July, a second person in Goma was diagnosed with Ebola; they died the next day and two more cases were announced.
No new cases have since been recorded in either Uganda or in Goma.
In reaction to the first case found in Goma, on 17 July 2019, the World Health Organization (WHO) announced that the current Ebola outbreak in DR Congo represents a public health emergency of international concern (PHEIC).
In mid-August, the epidemic spread to neighbouring South Kivu province - becoming the third province in DRC to record cases in this outbreak - when a number of people became sick in Mwenga, 100 kilometres from Bukavu, the capital of the province.
Since November, an upsurge in violence in North Kivu and Ituri provinces has disrupted the provision of care, surveillance, vaccination, contact tracing and other activities of the Ebola response, forcing us to remain extremely vigilant about the resurgence of the disease.
Given the ongoing challenges in responding to the outbreak, MSF believes that Ebola-related activities should be integrated into the existing healthcare system, in order to improve proximity of the services to the community and ensure that it remains functional during the outbreak.
Background of the epidemic
Retrospective investigations point to a possible start of the outbreak back in May 2018 – around the same time as the Equateur outbreak earlier in the year - although the outbreak wasn't declared until August. There is no connection or link between the two outbreaks.
The delay in the alert and subsequent response can be attributed to several factors, including a breakdown of the surveillance system due to the security context (there are limitations on movement, and access is difficult), and a strike by the health workers of the area which began in May, due to non-payment of salaries.
A person died at home after presenting symptoms of haemorrhagic fever. Family members of that person developed the same symptoms and also died. A joint Ministry of Health/World Health Organization (WHO) investigation on site found six more suspect cases, of which four tested positive. This result led to the declaration of the outbreak.
The national laboratory (INRB) confirmed on 7 August 2018 that the current outbreak is of the Zaire Ebola virus, the most deadly strain and the same one that affected West Africa during the 2014-2016 outbreak. Zaire Ebola was also the virus found in the outbreak in Equateur province, in western DRC earlier in 2018, although a different strain than the one affecting the current outbreak.
First declared in Mangina, a small town of 40,000 people in northern North Kivu province, the epicentre of the outbreak appeared to progressively move towards the south, first to the larger city of Beni, with approximately 400,000 people and the administrative centre of the region. As population movements are very common, the epidemic continued south to the bigger city of Butembo, a trading hub. Nearby Katwa became a new hotspot near the end of 2018 and cases had been found further south, in the Kanya area. Meanwhile, sporadic cases also appeared in neighbouring Ituri province to the north.
Throughout 2019, hotspots of cases would die down, only to flare again weeks or even months later - often after 42 days (twice the 21-day incubation period for the disease) had passed - and often with little or no indication of the chain of transmission. This signifies that surveillance and contact tracing of cases remain significant challenges in overcoming this outbreak.
Overall, the geographic spread of the epidemic appears to be unpredictable, with scattered small clusters potentially occurring anywhere in the region. This pattern, along with the lack of visibility on the epidemiological situation, and flareups in former hotspots, is both extremely worrying and makes ending the outbreak even more challenging.
30 Jul 2018
MSF receives an alert about suspect cases of Ebola near Beni/Mangina, North Kivu.
31 Jul 2018
An MSF team from the nearby project of Lubero (roughly 3 hours away by car) goes on site to investigate.
01 Aug 2018
The Ministry of Health declares an Ebola outbreak in Mangina, North Kivu, northeastern Democratic Republic of Congo
02 Aug 2018
MSF prepares to respond to the outbreak, within the response plan of the Ministry of Health
06 Aug 2018
MSF isolation unit opens in Mangina; teams undertake infection prevention and control
07 Aug 2018
Zaire Ebola virus is confirmed, although a different strain from the Equateur outbreak
14 Aug 2018
30-bed MSF treatment centre opens in Mangina; rapidly expands to 68 beds
24 Aug 2018
MSF begins offering therapeutic drugs to eligible patients in the ETC in Mangina
02 Sep 2018
MSF team arrives in Butembo following a potential case, which is later confirmed
20 Sep 2018
MSF opens a 28-bed Ebola Treatment Centre in Butembo in partnership with the Ministry of Health.
24 Sep 2018
MSF sends a team to Tchomia, on Lake Albert in Ituri, to attend to 2 confirmed cases and later sets up a treatment centre.
17 Oct 2018
WHO announces that the situation does not constitute a Public Health Emergency of International Concern.
20 Oct 2018
An armed attack in Beni's Rwenzori area leaves 12 people dead; Ebola activities temporarily stop but restart a few days later.
09 Nov 2018
The current outbreak records its 319th case, making it the country's biggest-ever known Ebola outbreak.
15 Nov 2018
MSF opens a transit centre for suspect cases in Beni, to support the capacity of the ETC.
29 Nov 2018
The outbreak becomes the second-biggest ever recorded outbreak of the disease, behind the West Africa outbreak of 2014-2016
27 Dec 2018
Announcement of postponed elections in Beni and Butembo sparks unrest, causing Ebola activities in Beni to be temporarily suspended
04 Jan 2019
MSF opens a new ETC in Katwa, near Butembo, and a transit centre in Bwana Sura, in Ituri province
24 Feb 2019
ETC in Katwa, North Kivu, is attacked and partly burnt down; MSF forced to suspend activitiesRead more
27 Feb 2019
A second MSF-run ETC, this time in Butembo, is attacked; we are forced to evacuate staff and suspend activities in the areaRead more
30 Mar 2019
The outbreak passes 1,000 confirmed cases of Ebola.
12 Apr 2019
WHO finds once again that the outbreak does not constitute a Public Health Emergency of International Concern (PHEIC)
03 May 2019
The epidemic passes 1,000 deaths
11 Jun 2019
Uganda announces confirmed cases of Ebola, the first cross-border cases in the outbreak
14 Jun 2019
In the wake of the cross-border cases, WHO finds - for the third time - that the outbreak doesn't constitute a PHEIC
For the first time since February, MSF returns to providing care for Ebola-positive patients in an area of active transmission (in Bunia)
12 Jul 2019
DR Congo Ministry of Health announces that no clinical trial of new vaccines would be authorised during the current Ebola outbreak
14 Jul 2019
First Ebola case found in Goma, the capital of North Kivu. They are admitted to the MSF-supported ETC but dies two days later
17 Jul 2019
The WHO emergencies panel reconvenes for a fourth time, and now finds that the outbreak does constitute a PHEIC.
30 Jul 2019
A second person in Goma is found to have Ebola and subsequently dies the following day
01 Aug 2019
Third and fourth cases are confirmed in Goma. The patients were subsequently cured.
03 Aug 2019
MSF opens a 50-bed ETC in northern Goma, where all patients with the disease were transferred upon opening.
16 Aug 2019
The first two cases are confirmed in South Kivu province, becoming the third province to record cases in the current outbreak.
28 Aug 2019
The outbreak passes 3,000 cases and 2,000 deaths.
23 Sep 2019
MSF urges the creation of an independent committee to manage Ebola vaccines, given a lack of transparency by WHO.Independent Ebola vaccination committee is needed
17 Oct 2019
The health centre in Lwemba where MSF was supporting non-Ebola health needs was partly burnt down.
02 Nov 2019
A radio journalist, working in Lwemba as part of the Ebola response, is murdered.
10 Nov 2019
Biakato transit centre is transformed into a 20-bed ETC following an increase in local cases.
14 Nov 2019
MSF and partners start a trial in Goma using an investigational vaccine from Johnson&Johnson.
27 Nov 2019
Several people working in the Ebola response are killed and others injured during attacks in Biakato, Ituri province.
04 Dec 2019
MSF withdraws team from Biakato after a series of attacks on Ebola responders and infrastructure.As security situation deteriorates, MSF withdraws staff from Biakato
24 Dec 2019
MSF takes difficult decision to stop activities in Biakato due to military presence in hospitalsMilitary presence leads MSF to stop activities in Ebola-affected Biakato
Located in northeastern DRC, North Kivu province is a densely-populated area with approximately 7 million people, of whom more than 1 million are in Goma, the capital, and about 800,000 in Butembo. Despite the rough topography and the bad roads in the region, the population is very mobile.
North Kivu shares a border with Uganda to the east (Beni and Butembo are approximately 100 kilometres from the border). This area sees a lot of trade, but also trafficking, including ‘illegal’ crossings. Some communities live on both sides of the border, meaning that it is quite common for people to cross the border to visit relatives or trade goods at the market on the other side.
The province is also well-known for being an area of conflict for over 25 years, with more than 100 armed groups estimated to be active. Criminal activity, such as kidnappings, are relatively common and skirmishes between armed groups occur regularly across the whole area.
Widespread violence has caused population displacement and made some areas in the region quite difficult to access. While most of the urban areas are relatively less exposed to the conflict, attacks and explosions have nonetheless taken place in Beni, an administrative centre of the region, sometimes imposing limitations on our ability to run our operations.
Cases have also been confirmed in North Kivu's neighbouring provinces, Ituri to the north and, more recently, South Kivu.
Existing MSF presence in the area
MSF has had projects in North Kivu since 2006. Today, we have regular projects along the Goma-Beni axe as follows:
- Lubero hospital: paediatric/nutrition care and treatment of sexual and gender-based violence.
- Bambu-Kiribizi: Two teams support local emergency room and paediatric and malnutrition in-patient departments, plus care and treatment of sexual and gender-based violence.
- Rutshuru hospital: MSF withdrew from the hospital at the end of 2017. However, in light of the volatile conditions in the region, we have returned to support emergency room, emergency surgery and paediatric nutrition programmes.
- Goma: HIV programme supporting four medical centres (including access to antiretroviral treatment).
Across three provinces - Ituri, North Kivu and South Kivu - 29 health zones have reported cases of Ebola, 28 of them in Ituri and North Kivu. Of these 29, 13 are considered active transmission zones, meaning that they had notified new confirmed cases within the last 21 days (being the maximum incubation period for the Ebola virus). Of these 13, most cases are located in Mabalako, Butembo, Kalunguta (North Kivu) and Mambasa (Ituri), which are the current hotspots - Butembo, a previous hotspot, experienced a resurgence of cases in December. Kalunguta and Mambasa likewise recorded new cases after going more than 42 days without recorded cases. South Kivu recorded cases in Mwenga health zone in August 2019, becoming the third province in DRC to be affected in the current outbreak, but has recorded no new cases since.
The first case of Ebola in Goma, a city of 1 million people, was reported on 14 July; while a few more cases were found, the city has not recorded any new cases in more than 42 days (twice the maximum incubation period for the disease).
WHO has declared the outbreak to be a Public Health Emergency of International Concern (PHEIC).
We have new tools and improvements in the medical management of this epidemic, compared to previous Ebola epidemics, such as new developmental treatments; a vaccine that has given indications of being effective; Ebola treatment centres are more open and accessible for the families of patients; and provision of a higher level of supportive care.
Despite this, there is a 66 per cent case fatality rate in the current outbreak. Nearly 18 months into the epidemic, the situation in the Ebola-affected areas of DRC has not improved and the number of Ebola cases continues to increase: over 3,000 cases and more than 2,000 deaths have been reported to date.
Many people continue to die in the community – either at home or in general healthcare facilities – and nearly half of new confirmed cases cannot be traced to an existing contact with Ebola.
Community mistrust and attacks on responders
The response to the outbreak has been marked by community mistrust towards the response. This is due to a complicated history and to many different reasons, but include community resentment on the focus on Ebola, when many other diseases continue to claim more lives, such as a severe measles outbreak; and community objections and anger over the presence of security forces surrounding the Ebola response. This mistrust towards the response has led to attacks, including on our Ebola Treatment Centres (ETCs) in Katwa and Butembo in February 2019, which led us to withdraw from running these centres.
The unrest, such as fighting between the army and armed groups in early May 2019, and again in November and December 2019, have at times brought many outbreak response activities to a standstill.
The mistrust and violent attacks against the Ebola response show no signs of abating; as recently as early November 2019, a radio journalist, Papy Mumbere Mahamba, was killed in Lwemba, Ituri province, reportedly for his involvement in the response. There were more than 300 attacks on Ebola health workers recorded in 2019, leaving six dead and 70 wounded.
High levels of insecurity continue to hamper the efforts to control the epidemic and have a negative impact on its evolution: the violence further discourages people from seeking care in Ebola treatment centres, resulting in an increased likelihood of the virus spreading across the healthcare system.
A new offensive of the national security forces against armed groups started at the end of October 2019 in the area around Beni and has continued across North Kivu. The intensifying military operations, and violent attacks by armed groups, has led to both movements of displaced people trying to flee the insecurity (potentially making surveillance and contact tracing even more difficult), and to protests against the military and the UN, including on some health workers in the Ebola response.
A series of attacks on Ebola responders - some of whom were killed - and on infrastructure in Biakato, Ituri province in late November and early December 2019, led us to make the difficult decision to temporarily withdraw our team, before withdrawing completely at the end of the year due to the presence of military and armed security in health centres, which violates MSF principles.
Ebola in Uganda
On 11 June, the Ugandan Ministry of Health and WHO confirmed three people from the same family had tested positive for Ebola in the Kasese district, western Uganda, which borders DRC. The family had travelled over the border into Uganda from DRC. They are the first cross-border cases in the current outbreak.
Two of the people sadly died, while the third person and two other members of the family, showing symptoms consistent with the disease, were repatriated to DRC.
After several weeks with no recorded cases, the Ugandan Ministry of Health announced on 29 August that a new case had been recorded in the country. A young girl, who had travelled from DRC with family, was diagnosed with Ebola and admitted to a treatment centre but unfortunately died the following day. Uganda has not recorded any further cases.
The response to the current outbreak
The DRC Ministry of Health (MoH) is leading the outbreak response, with support from WHO.
We believe it will not be possible to end this outbreak if there is no trust built between the response and the affected people. Response authorities and workers must listen to the needs of communities, restore people’s choice when it comes to managing their health, and involve the community in every aspect of the Ebola response.
MSF believes that Ebola-related activities should be integrated into the existing health care system to improve the proximity of services to the community and ensure the system remains functional during the outbreak. We aim to do this with our own Ebola-related activities wherever possible. This would help identify earlier on suspected cases and could encourage people to seek help more promptly at healthcare posts, clinics and hospitals that they know and trust.
MSF has been involved in the outbreak response, working with the Ministry of Health, since the declaration of the epidemic on 1 August 2018.
As of October 2019, we have more than 820 staff working in DRC responding to the Ebola outbreak.
We are supporting the Ebola response through patient care in two Ebola Treatment Centres (ETCs) in Beni and Goma in collaboration with the Ministry of Health. Two other ETCs, in Bunia and Biakato Mines, were handed over to the Ministry of Health in December 2019.
We continue to provide care to suspect cases, and also manage decentralised isolation and Transit Centres for suspected Ebola patients. MSF is supporting existing health structures including treating common illnesses, and improving water and sanitation, building transit units within existing facilities, and implementing and strengthening triage and infection prevention and control activities (IPC).
In addition, our teams are reinforcing health promotion and community engagement in the areas where we are working. We are also working towards strengthening the disease surveillance system in our regular project areas, including in Goma.
MSF is currently running the following activities in the affected North-Kivu and Ituri provinces:
Goma – North Kivu province
- MSF has been providing medical care to suspected and confirmed cases in the 10-bed ETC in Munigi, on the outskirts of Goma. More than 840 patients have been admitted since February 2019.
- Vaccinating participants who have consented to take part in a clinical trial of a second investigative vaccine, Ad26.ZEBOV/MVA-BN-Filo from Johnson&Johnson.
- We are supporting emergency preparedness by reinforcing the surveillance system and ensuring there is adequate capacity to isolate suspected cases.
- MSF is undertaking health promotion and community engagement activities in Goma and the surrounds.
- Providing free primary healthcare for non-Ebola needs, including treating malaria, diarrhoea and respiratory and urinary tract infections.
Beni and surrounds – North Kivu province
- Managing a 20-bed ETC in Beni and managing and triaging suspect cases in three health centres.
- Providing infection prevention and control across Lubero and Beni.
- We are providing medical care to suspect cases in isolation awaiting test results.
- MSF teams are engaging in community and health promotion activities.
- Supporting access to free non-Ebola healthcare in multiple hospitals and health centres across Lubero and Beni.
Mabalako - North Kivu province
- Supporting four health centres with non-Ebola healthcare needs, including providing primary and secondary health care (including emergencies and laboratory needs).
- Improving water and sanitation needs.
- Community engagement and health promotion activities.
Bunia and surrounds – Ituri province
- Undertaking infection prevention and control measures in six health centres, including in Komanda, Rwampara, and Bunia general hospital
- Undertaking health promotion and community engagement activities in the communities.
Mayuano/Somé - Ituri province
- Managing a 12-bed transit centre in Mayuano, and a 1-bed isolation unit in Somé for suspect cases which have been integrated into healthcare facilities.
- Providing basic healthcare across four health centres.
- Providing infection prevention and control measures in healthcare facilities.
- Undertaking community involvement and engagement in activities.
Mambasa - Ituri province
- Managing basic healthcare centres and transit units in Binase and Salama.
- Managing the surveillance system in the Binase health zone.
- Implementing infection prevention and control in the community and infection prevention support at 10 health centres.
Bukavu - South Kivu province
- Managing transit centre in Bukavu, with a current capacity of 8 beds, and with possibility to transform into an ETC.
- Implementing infection prevention and control measures in five health facilities.
Unlike the 2014-2016 West Africa Outbreak, there now exists two vaccines against Ebola which are in clinical study phases and are not licenced. One, the rVSV-ZEBOV vaccine produced by Merck, has been used in a 'ring' vaccination strategy since the start of this year. Using this strategy - where the contacts of people diagnosed with Ebola are vaccinated (first-degree contacts), and their contacts (second-degree contacts) in turn are vaccinated - over 250,000 people have been vaccinated up to mid-November 2019.
In mid-November 2019, MSF teams started vaccinating people who had given their consent to participate in a clinical trial of a second investigational vaccine, Ad26.ZEBOV/MVA-BN-Filo, produced by Johnson&Johnson, following an announcement by the Ministry of Health in September.
While vaccination is a good measure designed to prevent the further spread of the disease, use of the vaccines in DRC during the outbreak is not without its challenges:
- The rVSV-ZEBOV vaccine requires to be transported in temperatures of around -60C to areas which are remote and often lack adequate roads and infrastructure.
- The new investigational Johnson&Johnson vaccine needs to be given in two doses, 56 days apart - requiring people to be followed up in a context notoriously difficult for follow-up.
- Identifying contacts and their contacts has been extremely challenging, with three-quarters of contacts not able to be traced or followed up to be vaccinated during this outbreak.
- WHO's approach to managing supplies and eligibility for the vaccine has been opaque, with even some frontline health workers - those who should be the first to get the vaccine - going unvaccinated.
We have urged for a change in vaccination strategy - given the above challenges - to go for a more expanded, geographically targeted approach, rather than the unreliable ring vaccination strategy.