Living Management by Indicators: A Didactic Guide for Improving Management Instruments to Support Decision-Making Based on the DigiSUS System.
Health Planning; Monitoring; Unified Health System; Health Indicators; Health Information Systems.
The Brazilian Unified Health System (SUS) structures its management based on an integrated cycle of planning, execution, and monitoring. Despite the normative clarity of this model, challenges persist, such as multiple systems, fragmentation of information, and technical limitations for data analysis. The effectiveness of management depends on the qualified use of health indicators, understood as appropriate metrics to measure the achievement or non-achievement of the planned goal, highlighting the mammography screening coverage indicator. This study aims to develop a technical-didactic guide for monitoring the mammography screening coverage indicator in the SUS planning instruments registered in DigiSUS, which will transparently and evidence-basedly support decision-making in management, SUS auditing, and social control. This is an exploratory, descriptive, and applied research study, conducted in three stages: diagnosis of inconsistencies and gaps in the completion of the indicator in the planning instruments (PMS, PAS, RDQA, and RAG) of the 55 municipalities in the Sobral Health Region, Ceará, referring to the four-year period 2022–2025; applied research under the normative (laws, ordinances, and manuals), operational, and informational dimensions (focused on identifying the structural limitations of DigiSUS, interpreted in light of Herbert Simon's Theory of Bounded Rationality) and strategic dimensions (based on PAHO guidelines and the principles of the 2030 Agenda — SDGs 3, 16, and 17); and the final stage, construction of the didactic guide. The results revealed structural weaknesses in the system, with gaps in the records and a lack of standardization that make systematic monitoring unfeasible. It was identified that the operational limitation of DigiSUS, when importing aggregated data from SIA/SUS, makes it impossible to disaggregate screening mammography data, compromising the reliable calculation of the indicator. It was also observed that monitoring is conducted primarily as a formal requirement, with a scarcity of interpretive analyses, which implies a risk of misallocation of resources and failure to achieve the agreed targets. As a deliverable, in addition to the Didactic Guide, this work presents an Essay-type article. It concludes that investing in the consistency and granularity of indicators is essential to effectively implement the management cycle, optimize public resources, and expand access to actions capable of reducing breast cancer mortality.