COMMENTARY

Int. J. Public Health, 07 January 2025

Volume 69 - 2024 | https://doi.org/10.3389/ijph.2024.1607894

The Imperative of Public Health Expertise in Ecuadorian Health Leadership: A Call for Competency-Based Appointments

  • 1. One Health Research Group, Universidad de Las Américas, Quito, Ecuador

  • 2. Universidad Católica de Santiago de Guayaquil UCSG y Universidad de Guayaquil UG, Guayaquil, Ecuador

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Commentary Letter

In the past three decades, Ecuador’s health system has faced frequent ministerial turnover, often appointing leaders with limited training in public health policy and management. Although many ministers have strong clinical backgrounds, their lack of public health expertise has hindered a cohesive vision, raising concerns about the leadership’s capacity to tackle the nation’s complex health challenges effectively. The Ministry of Health is responsible for upholding the right to health, promoting health, preventing diseases, overseeing surveillance, and providing integrated care. It also develops clinical protocols and management guidelines, delivers health services, and conducts studies comparing national and international health management best practices [1, 2]. To adequately fulfill these responsibilities, a master’s degree in public health should be the minimum requirement for those considered for the position of Minister of Health. While ministers are indeed supported by technical personnel, they must have enough training to understand technical matters and not be overly reliant on staff or influenced by conflicts of interest [3]. Advanced public health training equips leaders with essential knowledge about financing, management, cost-effectiveness, and health communication, enabling them to evaluate and implement comprehensive health policies [4, 5].

A health minister requires both managerial skills to oversee health services and advocacy skills to ensure that potential effects on population health are integrated into the work of other government departments and ministries [6]. Helath Ministers require strong knowledge of epidemiology and public health preparedness, highlighted by challenges from global health crises like COVID-19. However, the Ministry faces internal issues impacting ministerial effectiveness, including overlapping responsibilities in regulations, unclear accountability, fragmented technical programs, and departments prioritizing specific professions over broader functions [7]. Furthermore, governance within the health sector is heavily influenced by institutional power dynamics. This lack of governance can severely hinder the performance of the Ministry of Health, contributing to systemic failures [8, 9].

Over the past 30 years in Ecuador, most health ministers have lacked advanced degrees or experience in key areas such as public health, epidemiology, or health systems management (see Table 1). This absence of qualifications hinders effective public health leadership, which demands an integrated, evidence-based approach to address social, environmental, and behavioral health determinants [1013].

TABLE 1

NameGenderAge at the time of assuming the positionPeriodEducation up to the date of assuming the position of minister of healthProgram o projectAppointing government
Edgar Rodas AndradeMale62 yearsAugust 10, 1998January 21, 2000• Doctor of Medicine and SurgeryThe Cotacachi experience of decentralization and the formation of a health council was developedJamil Mahuad
Fernando Rodrigo Bustamante RiofríoMaleN/AJanuary 22, 2000January 23, 2001• Doctor of Medicine and Surgery
• Specialist in Internal Medicinea
Gustavo Noboa
Patricio Jamriska JácomeMaleN/AJanuary 23, 2001October 1, 2002• Doctor of Medicine and Surgery
• Specialist in Gynecology and Obstetricsa
Vicente Antonio Habze AuadMaleN/AOctober 1, 2002January 15, 2003• Doctor of Medicine and Surgery
Francisco Xavier Andino RodríguezMale38 yearsJanuary 15, 2003August 22, 2003• Doctor of Medicine and Surgery
• Master’s Degree in Epidemiologya
• Specialist in Neurologya
The pentavalent vaccine was introduced into the vaccination schedule. The strategy against malaria was changed to early diagnosis and timely treatment. Treatment of HIV-AIDS with antiretrovirals was started and the program was strengthened together with that of sexually transmitted diseasesLucio Gutiérrez
Ernesto Macario Gutiérrez VeraMale65 yearsAugust 22, 2003December 17, 2003• Doctor of Medicine and Surgery
• Specialist in Clinical Pathologya
Teófilo Lama PicoMale66 yearsDecember 17, 2003April 20, 2005• Doctor of Medicine and SurgeryStrengthening of health areas. Development of Universal Health Insurance (AUS). Beginning of the process of decentralization of health to municipalities (Quito, Guayaquil, Cotacachi)
Wellington Sandoval CórdovaMale66 yearsApril 22, 2005December 29, 2005• Doctor of Medicine and SurgeryAlfredo Palacio
Iván Jacinto Zambrano CedeñoMaleN/ADecember 29, 2005May 30, 2006• Doctor of Medicine and Surgery
Guillermo José Wagner CevallosMaleN/AMay 30, 2006January 15, 2007• Doctor of Medicine and Surgery
• Higher Diploma of Fourth Level in Local Development and Health
• Specialist in Gynecology and Obstetricsa
Caroline Judith Chang CamposFemale46 yearsJanuary 15, 2007April 21, 2010• Doctor of Medicine and Surgery
• Specialist in Health Service Management
• Master’s degree in health management for Local Developmenta
• Doctorate in Health Sciencesa
Implementation of the transformation process of the health sector. Tariff for the exchange of services in the public and complementary network. New Constitution that incorporates health as a right and universal access. Health system based on primary healthcare. Accelerated plan to reduce maternal mortality. Development of the Comprehensive Family and Community Healthcare Model and implementation of basic health teams. 8 new vaccines were incorporated into the Expanded Immunization ProgramRafael Correa
David Chiriboga AllnuttMaleN/AApril 21, 2010January 13, 2012• Doctor in Medicine and Surgery
Carina Isabel Vance MaflaFemale35 yearsAugust 23, 2012November 13, 2015• Bachelor of History and Political Science
• Master of Public Health
Implement labeling of processed foods
Margarita Beatriz Guevara AlvaradoFemaleN/ANovember 13, 2015January 6, 2017• Doctor of Medicine and Surgery
• Master of Sexual Educationa
María Verónica Espinosa SerranoFemale34 yearsJanuary 6, 2017May 24, 2017• Medical Doctor
• Master of Public Healtha
Implementation of a medical program in the neighborhood
May 24, 2017July 3, 2019Lenin Moreno
Catalina de Lourdes Andramuño ZeballosFemaleN/AJuly 3, 2019March 21, 2020• Doctor of Medicine and Surgery
• Specialist in Health Service Management
• Master of in Public Health
• Doctorate in Public Management and Governancea
Juan Carlos Zevallos LópezMale63 yearsMarch 21, 2020March 1, 2021• Doctor of Medicine and Surgery
• Specialization in Cardiology
Rodolfo Enrique Farfán JaimeMale63 yearsMarch 1, 2021March 19, 2021• Doctor of Medicine and Surgery
• Higher Diploma in Higher Education
• Specialist in General Surgery
• Master’s Degree in higher Education
• Doctor of Educationa
Mauro Antonio Falconí GarcíaMale45 yearsMarch 19, 2021April 8, 2021• Doctor of Medicine and Surgery
• Specialist in Emergency Medicine and Disasters
Camilo Aurelio Salinas OchoaMale38 yearsApril 8, 2021May 24, 2021• Doctor of Medicine and Surgery
• Master’s degree in health management and administration
Ximena Patricia Garzón VillalbaFemale51 yearsMay 24, 2021July 7, 2022• Doctor of Medicine and Surgery
• Doctor of Philosophy Public Health Occupational Health for Health Professionals
Implemented the vaccination against COVID-19 with the coordination of various sectors. Before a ministerial program was a presidential programGuillermo Lasso
José Leonardo Ruales EstupiñanMale65 yearsJuly 7, 2022November 23, 2023• Doctor of Medicine and Surgery
• Specialist in Health Research and Administration
The 10-year health plan was drawn up
Franklin Edmundo Encalada CaleroMale49 yearsNovember 23, 20231 June 14, 2024• Doctor of Medicine
• Specialist in General Surgery
• Master’s Degree in Curriculum Design
• Master’s Degree in Health Management and Direction
Daniel Noboa
Manuel Antonio Naranjo Paz y MiñoMale69 YearsJune 18, 2024Current• Doctor of Medicine
• Specialist in Internal Medicine

Description of ministers of the Ministry of Public Health of Ecuador during the 21st century.

a

Studied during or completed after the MoH appointment.

Although the primary role of a health minister is to manage and oversee the national health system, their responsibility also extends to proposing public policies that can be evaluated through tangible improvements in health indicators, such as infant mortality. We believe that this is a significant issue for health governance. Therefore, we conducted an analysis based on the significant reductions in infant mortality during specific periods, identifying the ministers in charge and the outcomes associated with their tenure, highlighting changes that could reflect the impact of effective leadership and policy implementation (Figure 1).

FIGURE 1

FIGURE 1

Trends in Infant Mortality Rate in Ecuador (1998–2024) with Ministerial Terms Highlighted. The blue line represents the infant mortality rate per 1,000 live births, while the red line shows the yearly percentage change in the rate. Gray vertical lines indicate changes in ministerial leadership, with ministers labeled.

Although not much can be inferred from non-causal ecological data, the graph illustrates Ecuador’s infant mortality rate (IMR) from 1998 to 2024, with percentage changes between consecutive years in red. It shows some notable changes. Ministerial changes are marked by vertical dashed lines, with ministers identified by name. There has been a consistent decline in IMR from 31.17 deaths per 1,000 live births in 1998 to 11.345 in 2024, although the rate of decline has slowed in recent years. The most significant decreases occurred between 2000–2005 and 2009–2012. Although the reduction in infant mortality is influenced by many circumstances and determinants typical of a country transitioning from low to middle income, a noticeable slowdown in the decline of the infant mortality rate (IMR) occurred between 2010 and 2020. More recently, (2021–2023) oversaw modest declines in the IMR, despite the challenges posed by the COVID-19 pandemic (Table 2).

TABLE 2

MinisterPeriodStart IMREnd IMRTotal change (%)MPH degree
Edgar Rodas Andrade1998–200031.17028.159−9.65%No
Fernando Rodrigo Bustamante Riofrío2000–200128.15926.653−5.35%No
Patricio Jamriska Jácome2001–200226.65325.148−5.64%No
Vicente Antonio Habze Auad2002–200325.14823.642−5.99%No
Francisco Xavier Andino Rodríguez2003–200523.64221.837−7.64%Yes (MPH)
Wellington Sandoval Córdova2005–200621.83720.935−4.13%No
Guillermo José Wagner Cevallos2006–200720.93520.032−4.32%No
Caroline Judith Chang Campos2007–201020.03217.507−12.60%Yes (MPH)
David Chiriboga Allnutt2010–201217.50715.884−9.28%No
Carina Isabel Vance Mafla2012–201515.88414.484−8.82%Yes (MPH)
Margarita Beatriz Guevara Alvarado2015–201714.48413.895−4.07%Yes (MPH)
María Verónica Espinosa Serrano2017–201913.89513.214−4.91%Yes (MPH)
Catalina de Lourdes Andramuño2019–202013.21412.827−2.93%Yes (MPH)
Juan Carlos Zevallos López2020–202112.82712.440−3.02%No
Ximena Patricia Garzón Villalba2021–202212.44012.053−3.11%Yes (MPH)
Franklin Edmundo Encalada Calero2023–202411.66611.345−2.75%No
Manuel Antonio Naranjo Paz y Miño2024-on11.345N/AN/ANo

Ecuadorian ministers of health (1998–2024), infant mortality rates (IMR), and total percentage change in IMR by ministerial tenure.

Bold values in the table represent the largest percentage decrease in Infant Mortality Rate (IMR) during the tenure of a specific Minister of Health, highlighting periods of the most significant improvements in public health outcomes.

In Ecuador, significant milestones in public health were achieved, particularly before the year 2000. Key figures during their tenure led important vaccination campaigns and successfully managed the 1991 cholera outbreak, reducing infant mortality and advancing the Comprehensive Family and Community Health Program [14]. Between 1990 and 2006, the country saw critical reforms, such as the decentralization of health management to municipalities, the formation of Cantonal Health Councils, and the proposal of Universal Health Insurance in 2005–2006 [15]. However, in 2009, these decentralization efforts were reversed with the re-centralization of the health management system [16], undoing much of the progress that had been made.

During 2014, the introduction of new food labeling regulations, which made nutritional information more accessible and positioned Ecuador as a global reference in non-communicable disease prevention was an important contrbution. However, this period was also marked by controversial decisions, including the closure of the National Institute of Hygiene and Tropical Medicine, the elimination of the National Service for the Eradication of Malaria (SNEM), and the shutdown of vaccine production in Ecuador [17]. Despite these public health initiatives, the reduction in infant mortality rates (IMR) during this period was less pronounced compared to other periods. While some improvements were made, the IMR did not decrease as significantly as might have been expected, highlighting a period where public health outcomes did not fully align with the scale of reforms introduced.

The COVID-19 pandemic highlighted Ecuador’s severe shortage of public health expertise, resulting in one of the world’s highest excess death rates. Health ministers, often lacking local experience, communication skills, and disease management knowledge, struggled to provide clear public health messaging. This was worsened by significant mismanagement and corruption, including inflated prices for essential medications and supplies, which deepened the crisis [18, 19].

Corruption has long plagued the health sector, with some ministers facing serious allegations. For example, several scandals have involved the procurement of ambulances and other essential supplies at inflated prices, breaching public procurement laws [2022].

Ecuador’s health leadership has historically been marked by high ministerial turnover, driven by political interests. This instability, coupled with instances of corruption and controversial policies, has hindered effective public health initiatives and created fragmented health policies. While some achievements exist, persistent leadership issues have led to high malnutrition rates and ineffective campaigns on issues like traffic accidents and drug abuse, contrasting sharply with the successes of neighboring countries like Peru.

Appointing leaders focused solely on clinical medicine without a robust public health background poses several risks:

  • Fragmented Policies: Lacking public health foundations can lead to ineffective, fragmented policies [13, 23, 24].

  • Curative Bias: Overreliance on treatment instead of prevention perpetuates unsustainable healthcare costs [25].

  • Insufficient Emergency Preparedness: COVID-19 underscored the need for leaders skilled in epidemiology and crisis management [2628].

To better manage Ecuador’s health system, technical skills and public health experience should be prioritized over political considerations in minister selection. Ideal candidates would possess:

  • • Advanced public health qualifications.

  • • Proven experience in public health policy formulation and evaluation.

  • • Active public health research engagement.

  • • Strong leadership and communication skills to articulate a public health vision and make informed, evidence-based decisions.

Recent ministers have lacked communication competencies, resulting in fewer public health campaigns and diminishing the perception of health ministers as public health advocates.

Selecting health ministers is a nuanced task influenced by social, political, and contextual variables, particularly in developing nations like Ecuador. However, the logic and some of the evidence underscores that this process must be approached thoughtfully, prioritizing technical expertise over political considerations, to ensure sustainable public health progress [2933]. While the public often expects a Minister of Health to be an effective administrator, adept at managing public procurement and addressing operational challenges, what Ecuador urgently requires is a leader with expertise in prevention, health promotion, and ensuring equitable access to healthcare services.

These competencies are often lacking in physicians focused on curative, private-sector roles. This commentary highlights systemic issues, not as a complaint but as a reflection on persistent shortcomings. For example, despite a 25-year national malnutrition prevention program, Ecuador still has one of the region’s highest malnutrition rates. Even during economic booms, investment favored hospital infrastructure over essential primary healthcare. This manuscript urges Ecuadorian authorities to address these issues and adopt the recommended steps for strengthening national health leadership, shifting towards a comprehensive public health focus for sustainable health improvements.

Statements

Author contributions

Conceptualization: EO-P; methodology: EO-P, JI-C, and JV-G; software: JV-G and IS; validation: EO-P, JI-C, and WC; investigation: JI-C, JV-G, and IS; resources: JI-C, JV-G, and IS; data curation: JI-C; writing–original draft preparation: JV-G and IS; writing–review and editing: JI-C and EO-P; visualization: JI-C and EO-P; supervision: EO-P; project administration: JV-G and EO-P; funding acquisition: EO-P. All authors contributed to the article and approved the submitted version.

Funding

The author(s) declare that no financial support was received for the research, authorship, and/or publication of this article.

Conflict of interest

The authors declare that they do not have any conflicts of interest.

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Summary

Keywords

public health leadership, health policy, health system, infant mortality, Ecuador

Citation

Ortiz-Prado E, Suárez Sangucho IA, Cañizares Fuentes WR, Vasconez-Gonzalez J and Izquierdo-Condoy JS (2025) The Imperative of Public Health Expertise in Ecuadorian Health Leadership: A Call for Competency-Based Appointments. Int J Public Health 69:1607894. doi: 10.3389/ijph.2024.1607894

Received

24 August 2024

Accepted

20 December 2024

Published

07 January 2025

Volume

69 - 2024

Edited by

Lyda Osorio, University of the Valley, Colombia

Updates

Copyright

*Correspondence: Esteban Ortiz-Prado,

Disclaimer

All claims expressed in this article are solely those of the authors and do not necessarily represent those of their affiliated organizations, or those of the publisher, the editors and the reviewers. Any product that may be evaluated in this article or claim that may be made by its manufacturer is not guaranteed or endorsed by the publisher.

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