Health sector priority setting at meso-level in lower and middle income countries: Lessons learned, available options and suggested steps
Introduction
Health needs always exceed the available resources, so priority-setting is a key element in health resource allocation. It is traditionally undertaken by governments responding to market failures in health care, and to support public goods like immunisation. However, in both developed and developing countries the process of setting priority for public spending in health has been perennially difficult, and the subject of considerable debate. Prudent governments take priority-setting seriously because the resources at their disposal – budget, staff time, equipment and facilities – are precious, and all have alternative uses inside and outside the health sector. Ideally, governments should collaborate with other stakeholders during the priority setting process (PSP), including population representatives, local interest groups and development partners, to determine how best to utilise available resources. Such inclusive priority-setting has been recommended for decades (Navarro, 1969, Paalman et al., 1998), but can be very difficult and affected by context, often resulting in funding choices influenced primarily by history, or “grand-fathering”. Another key issue is the difference between the macro-level priority-setting that occurs at national level and has been the subject of much research and comment, and the more program-focused priority-setting that occurs at meso-level, on which far less has been written, and which is the subject of this paper.
In decentralised systems the focus of national or macro-level priority-setting in health is usually which interventions may be financed with public money, while the difficult task of deciding the mix of programs, resources and strategies for delivering interventions is usually undertaken by meso-level authorities (e.g. provinces, states or districts). Ideally, the PSPs at each level are linked, and allocations reflect the needs and preferences of all stakeholders in a well-described, cascading and participatory process. The outcome would meet the efficiency goal of health economists, the effectiveness goal of clinicians and be legitimate and reasonable according to relevant policies and cross-sectoral inputs. Moreover, the outcome would be equitable and just, and the process itself would be accepted by all (McDonald and Ollerenshaw, 2011, Sibbald et al., 2009). In practice, priority-setting seems difficult at any level and the links between the levels have not been well described, particularly in lower- and middle-income countries (LMICs).
Effective priority-setting is probably even more important now as populations increase, expectations of good health rise, technical solutions to health problems expand and yet resources become increasingly stretched. This is particularly the case for many LMICs negotiating the epidemiologic transition and the so-called double burden of disease (Abegunde, Mathers, Adam, Ortegon, & Strong, 2007), and especially for meso-level authorities considering solutions for a new constellation of issues. Money wasted on a failed PSP or misguided allocations could have been spent on alternative processes or interventions. Indeed, the problems identified in priority-setting at macro-level are most likely accentuated at meso-level, especially in LMICs where limitations to effective priority-setting are likely to be greater. In the increasing number of LMICs with decentralised health systems, these limitations may even outweigh the benefits of greater local experience and accountability among local managers (compared to managers in centralised systems). Accordingly, LMIC authorities should benefit from a review of others' experiences and suggestions on how to proceed with health priority-setting at sub-national levels.
We sought to assess the evidence on processes available to guide meso-level LMIC health authorities considering strategies for scale-up of accepted health interventions. We therefore conducted a comprehensive review of studies describing meso-level PSPs, their impact on resource allocation and related lessons from the field. Given the dearth of reports from meso-level, we also included review articles on macro-level PSPs. We first report our review of the literature here. Drawing on this review of processes and experiences and additionally on the perspectives of experts, particularly those related to what is feasible in LMICs, a roadmap for approaching meso-level health priority-setting in such contexts is proposed.
Section snippets
Method
This research was undertaken during 2012 in the context of work to develop evidence-based recommendations on how to develop and use investment scenarios to take forward the United Nations Secretary General's Global Strategy for Women's and Children's Health in LMICs of the Asia-Pacific region (Jimenez-Soto, Alderman, Hipgrave, Firth, & Anderson, 2012). Our objective was thus to critically review formal processes for priority-setting in LMICs from a policy perspective.
Results
Table 1 summarizes the 75 reports describing an approach to priority setting (“approaches” articles) that met our inclusion criteria. It divides them according to the named approach described and whether they described processes in high-income countries (HICs) or LMICs.
Discussion
Priority-setting is an important and difficult component of the process of health resource allocation, with which health and finance authorities, community leaders and other stakeholders have struggled for decades. In seeking to assist LMICs prioritise allocation of resources to scale up recommended health interventions we reviewed the related literature on approaches to priority-setting. Our focus was on meso-level which is increasingly the setting for health resource allocation as various
Acknowledgements
The work reported in this paper was funded by WHO through the Partnership for Maternal, Newborn and Child Health as part of an agreement with the University of Queensland.
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