service delivery system lecture 3: reach and impact
TRANSCRIPT
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Service Delivery System
Lecture 3: Reach and Impact
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Review
• In units 1 and 2 we defined – Health systems– Agents, Units, Institutions– Adaptation, Adjustment, Coherence– Incentives, Contracts
• We laid out 7 basic subsystems in healthPrimary health service delivery systemHealth workforceLeadership and governance to assure qualityHealth systems financingSupplying medical products and technologiesHealth systems informationHouseholds
• Today we focus on primary health service delivery
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Outline
• Ingredients of the services system– Local Example from Vietnam
• Reach vs. impact on the “last mile”
• Institutional norms of service delivery system
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Part 1: Ingredients of Primary Care
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Ingredients
• Primary service delivery made up of– Health care service
providers– Facilities– Drugs and supplies– Governance
• Maintaining each ingredient is the work of an entire additional subsystem
• Agents• Units• Institutions
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Centrality of Health Services
Health Services Delivery
Households
GovernanceHealth Financing
Health Workforce Supplies
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Ingredients must be combined
• Primary clinics take things that aren’t medical care and make them into medical care– Drug on the shelf is not medical care until
you’ve handed it to a patient who has that disease
– A nurse is not medical care until she is sitting with a patient putting a bandage on them
• The way this is coordinated requires thought and management
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Design of Primary Health Care
• Different levels of Facilities– Primary, Secondary, Tertiary– Public, Private, NGO
• Different specialties
• Variable quality
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Performance Metrics
• What do we want to get out of the primary health care delivery system?
• World Health Report 2000– Stewardship– Financial equity– Responsiveness to people’s non-medical
expectations (dignity and respect)– Equity (Fair delivery to rich and poor; delivery
without barriers)
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ExamplesCountry Example Metrics Affected
Philippines: decentralization of responsibility for primary health care to local governments in 1993. Assets, staff and budgets transferred to local level. Health workers now report to local government, not to MoH. Supervision by MoH has become more difficult. Stewardship
Financial equity
Dignity and Respect
Equity
Mali: independent health centres are not-for-profit cooperative establishments owned, financed and managed by community; recruit their own staff. Few financially independent in practice.
Croatia: previously centrally employed, salaried ambulatory care physicians. Now they are independent contractors.
From ‘Table 3.2 Examples of organizational incentives for ambulatory care’, World Health Report 2000
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From Matsuda 1997
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Utilization Patterns in Vietnam
World Bank 2000
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Vietnamese Health ExpenditureITEM 2000 2002 2004 2006
Total Expenditure on Health as % of GDP of which: 5.4 5.2 5.7 6.6
Government Exp on Health (% of Total Expend) 30.1 30 26.9 32.4
Private Expenditure on Health (% of Total Expend) 69.9 70 73.1 67.6
Government Exp on Health (% of Total Expend) 6.4 6.1 4.7 6.8
External Resources for Health as % of Govern. Expend
2.6 3.4 1.9 2.2
Out-of-Pocket Expenditure (% of Total Expend) 91 86.5 86.1 89.5
Social Security spending on Health % of Gov. Expend 19.7 19.6 28.7 38.8
Prepaid plans as % of Private Expenditure on Health 4.1 2.3 2.8 2.5
Per capita Total Expenditure on Health (US$) 21 22 31 46
Per capita Total Expenditure on Health at PPP ($) 132 147 188 264
Per capita Government Expenditure on Health (US$) 6 7 8 15
Per capita Government Expenditure on Health PPP ($) 40 44 51 86
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Part 2: Last Mile: Impact and Reach
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The Last Mile Problem
•High capacity conduits•Centralized•Easily manipulated
•Low capacity conduits•Spatially disbursed•Costly to access
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The Last Mile: Examples
•Fiberoptic trunk lines•Arteries•Interstate highways•Tertiary hospitals
•Copper wire•Capillaries•Back roads•Rural drug sellers
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Concrete vs. Abstract Metaphors
• Thinking about the “last mile” provokes mental images of concrete resources and people in space
• Last mile problems transcend “who” and “what”• Locus of control is critical
– Last mile problems affect processes and institutional performance
– Managing these problems requires going down last miles
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Last mile in health is not just about supplies
• Health care delivery requires “hardware” plus “software”– Not just the drug, the
indications, side effects, motivational counseling
– Not just the diagnostic, the interpretation and the decision making
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Impact
• Definition of “Impact”—the effect of treatment on the treated
• To achieve high impact– Be selective– Apply best inputs in the best place
• Farmer puts one bag of fertilizer on the best soil• Teen pregnancy prevention programs in a church
• A more technical word for “impact” is “in-tensive margin
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Systems and Incentives
• What are the political and organizational factors that determine degree of centralization?– Incentives of decision-makers and agents
• How does centralization affect the impact of primary services on the poor?– Incentives of decision-makers and agents
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Reach
• Definition of “Reach”-The ability to bring more people into treatment
• To achieve high reach– Do not be selective– Apply inputs as broadly as possible
• Farmer spreads one bag of fertilizer over 10 acres• Teen pregnancy prevention programs on the radio
• A more technical word for “reach” is “ex-tensive margin
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Fundamental Laws of Service Delivery
• Law 1) Population Benefit=Reach Impact
• Law 2) In any budget, there is a tradeoff between reach and impact
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Example of Law 1
• Example from TB– Reach is number of people who can access
diagnostic testing for TB in less than 1 week of 1st symptoms
– Impact is number of people who complete 100% of directly observed treatment (DOTS) if diagnosed
• Reaching more people with better treatment means less TB
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TB Model: Impact Matters
Population Benefit=Reach Impact
TB Burden
Impact
TB as function of diagnostic quality
0
50
100
150
200
250
300
350
20 21 22 23 24 25 26 27 28 29 30
Proportion of Active TB Patients Diagnosed by Clinic
TB
Bu
rden
Average Diagnostic Delay 25 Weeks Average Diagnostic Delay 8.3 Weeks
Average Diagnostic Delay 4.1 Weeks Average Diagnostic Delay 5 Weeks
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TB Model : Reach Matters
Population Benefit=Reach Impact
TB Burden
High Reach Low Reach
TB Burden as a function of Diagnostic Delay
0
50
100
150
200
250
300
350
0 5 10 15 20 25
Average Diagnostic Delay in Weeks
TB
Bu
rden Proportion Diagnosed 20%
Proportion Diagnosed 26%
Proportion Diagnosed 30%
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Dual Impact of Reach and Impact
Population Benefit=Reach Impact
Reach
Impact
TB as a function of Reach and Impact
0
20
40
60
80
100
120
0 5 10 15 20 25 30
Mean Delay in Weeks Between Symptoms and Diagnosis
Per
cen
t D
iag
no
sed
At
Pre
sen
tati
on
TB Burden 0.004 TB Burden 0.0045 TB Burden 0.0055 TB Burden 0.006
High Burden
Low Burden
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Illustration of Law 2
• Buying more TB reach means– Investing in training front line public and
private workers to make the diagnosis• More clinics in more places that know how to
diagnose• More diagnostic facilities
• Buying more TB impact means– Investing in training public TB facilities to
maintain good DOTS programs
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It is like fighting a battle
• General has to defend a mile long line of defense (Reach)
• Has different quality troops (Impact)– Cannon ($100)– Cavalry ($10)– Foot soldiers ($1)
• Can’t afford cannon for every inch of the line• Shouldn’t use only foot soldiers
– Deploy forces strategically– Achieve ideal mix
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Managing Primary Service Delivery
• Each unit has a certain amount of effectiveness– Can improve the unit– Can build more low quality units
• Who manages the big decision of where the troops go?– Market forces– Public policy
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Part 3: Institutions that govern reach
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Governments, Markets, NGOs affect Reach
• Governments (MOH)– Government decides location of workers located in space– “Command and control” incentives
• Service obligations• Constructing, buying, new facilities
– Political factors and population needs enter these decisions• Markets
– Primary service agents seeking revenue– Looking for patients with ability and willingness to pay– Assessing competition
• NGOs– Organizations locate facilities and hire staff– Population needs and organizational convenience enter decisions– Impact capacity of governments and markets by hiring away their staff
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Government Institutions
• Hierarchical levels of decision making– Center, province, district– Decision-making can be centralized or
decentralized
• Budgets need to be allocated across primary, secondary, and tertiary services– National hospitals, provincial hospitals, health
stations– Costs escalate at hospitals
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Hospitals
• Hospitals and politics– Hospitals have economic gravity
• Impact hundreds of health worker livelihoods• Supply chains and financing infrastructures are hard to
change
– Hospitals have political gravity• Civic pride• Sense of security for middle/upper class
• Hospitals have limited preventive impact, limited relevance to 98% of clinical problems
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Ecology of Medical Care-USA
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Incentives in Hospitals
• For-profit hospitals– Owners maximize: Profit=Revenue-Cost
• Bring in more revenue from more paying customers receiving high price services
– Competition with other hospitals in urban areas– Compete on quality and price
• Minimize costs without sacrificing quality
• Government hospitals– Administrator maximizes: Job security
• Minimize scandals• Satisfy supervisors• Satisfy local powerful elites
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Hospitals vs. Health Stations
• The balance between primary vs. tertiary is both a political question and a public health question– Political gravity of hospitals pulls them to
centers of political power– Gravity of hospitals pulls public funds towards
them
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Health Station Incentives
• Health stations often suffer resource limits– Low salaries– Supply shortages
• Incentives of health planners– Good distribution of health stations at lowest recurrent
cost• (Fixed cost: cost of building a station)• (Recurrent cost: cost of salaries and supplies)
• Incentives of primary health workers– Maximize Income and be somewhat concerned with
patient health
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Syndrome 1: Private Market
• Definition: Private “marketosis” is when health workers at public facilities maintain private practices– Natural outcome of the incentives in the system
• Everyone is partly happy– Public administrator gets a remote health station
staffed from 10AM till 4PM– Health worker gets supplementary income– Patient gets access to a health worker who would
otherwise not be in this remote location• Still has to pay
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Is private marketosis bad?
• Some say “Yes”– Goal of “totally free” care at minimal government cost
is not realized– Poor face lack of financial protection– Push to make dual practice illegal
• Some say “No”– Unrealistic to expect “totally free” care unless
government pays wages that one can live on– Solved the main public problem of getting health
workers to remote areas– Patients pay for what they get
• What do you think?
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Diagnosing pathological private market
• Symptoms:– Health station salaries are well below what a
health worker can earn in private practice– Health station utilization rates are low– Household surveys report high proportion of
out of pocket payments even in remote areas– Drive around and see private practices with
busy waiting rooms
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Treating Private Market Pathology
• Ask former health station workers for advice on incentives for dual practice
• Improve finance at public health stations– Demand side strengthening with insurance– Supply side finance with contracting or
budgeting
• Improve non-financial incentives at public health stations
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NGOs/Private Not for Profits
• NGOs mix features of government facilities and private facilities– Uses salaried workers– Can do private things like charge user fees– Can use ‘reputation’ to pull in more demand– Deployment based on interest of the NGO and those
they are serving
• Service mix not always tied to government objectives– Donors pick darling diseases, darling locations– Use facilities for vertical programs
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Syndrome 2: NGO-overload
• Definition: “NGO-overload” is when health sector NGOs well-intended activities interfere with the smooth performance of the primary service delivery system
• Examples– Poaching talented health workers from other sectors– Undermining referral patterns in public/private sector– Reorienting health system priorities to suit the
interests of donors over the interests of community– Keeping private sector from delivering solutions
• Free condoms, bed nets, ARVs, stops private entrepreneurs• Subsidies for “free” items can be unstable subject to donors
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Is NGO-overload bad?
• Some say “Yes”: Primary health systems structure should reflect national autonomy national priorities.
• Some say “No”: NGOs inject new resources that would not otherwise be in health system, in return why not give them a voice in the system
• What do you think?
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Diagnosing NGO-overload
• Salaries for health workers are rising
• Prices of primary health goods are falling
• Budgets full of line items around NGO priorities: HIV/AIDS, TB, Family planning, vaccines
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Treating NGO-overload
• Dis-engagement– Some countries just say “no”
• Engagement– Some countries adopt sector-wide
approaches (SWAPs)– Ministry of Health convenes meetings to
establish minstry’s priorities and invites input
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Part 4: Institutions that govern impact
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Impact
• Best health impact from doing the right thing at the right time– Requires good health workforce– Good governance– Good supply system
• Covered in later units of the workshop
• Choices on “reach” spill over to choices on “impact”
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Private Markets and Impact
• To the extent that private market imposes user fees on the poor, adherence with treatment can lower impact
• Do health workers practice same level of quality in their private practices as public?
• Governance systems have had difficulty governing the impact of workers who are entirely private
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Reach, Impact, and the Poor
• Different political systems. None is naturally oriented to the poor– Liberal Democratic
• USA– Egalitarian-Authoritarian
• Cuba– Traditional-Inegalitarian
• Brunei– Authoritarian-Inegalitarian
• Sudan– Populist
• Kenya
• Whether decentralizing serves the poor depends:– Which decision makers
care about the poor?• Power is the currency of
all political systems• Poor people don’t have
power
•Public health systems natural tendency is to serve power not need
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Summary
• Primary health care (PHC) delivery system takes ingredients (providers and supplies) makes services
• Reach and Impact suffer from last mile problems– They need to occur on last mile– They are easiest to do on first mile
• Institutions in PHC prey to 2 syndromes– Private market pathology and NGO-overload
• Performance metrics can help diagnose• Understanding incentives helps treat.
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Exercise on Performance Metrics
• Methods for how to measure these indicators
• Break into groups and decide on how to make indicator meaningful for local use.