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ORIGINAL ARTICLE
Open Access

The Costs and Cost-Effectiveness of a District-Strengthening Strategy to Mitigate the 3 Delays to Quality Maternal Health Care: Results From Uganda and Zambia

Benjamin Johns, Peter Hangoma, Lynn Atuyambe, Sophie Faye, Mark Tumwine, Collen Zulu, Marta Levitt, Tannia Tembo, Jessica Healey, Rui Li, Christine Mugasha, Florina Serbanescu and Claudia Morrissey Conlon on behalf of the Saving Mothers, Giving Life Working Group
Global Health: Science and Practice March 2019, 7(Supplement 1):S104-S122; https://doi.org/10.9745/GHSP-D-18-00429
Benjamin Johns
aInternational Development Division, Abt Associates Inc., Bethesda, MD, USA.
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  • For correspondence: ben_johns@abtassoc.com
Peter Hangoma
bDepartment of Health Policy and Management, School of Public Health, University of Zambia, Lusaka, Zambia.
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Lynn Atuyambe
cDepartment of Community Health and Behavioral Sciences, School of Public Health, College of Health Sciences, Makerere University, Kampala, Uganda.
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Sophie Faye
aInternational Development Division, Abt Associates Inc., Bethesda, MD, USA.
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Mark Tumwine
dUganda Country Office, U.S. Centers for Disease Control and Prevention, Entebbe, Uganda.
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Collen Zulu
eU.S. Agency for International Development, Lusaka, Zambia.
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Marta Levitt
fBureau for Global Health, U.S. Agency for International Development, Washington, DC, USA, and RTI, Washington, DC, USA. Now with Palladium, Abuja, Nigeria.
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Tannia Tembo
gCentre for Infectious Disease Research in Zambia, Lusaka, Zambia.
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Jessica Healey
hU.S. Agency for International Development, Lusaka, Zambia. Now based in Monrovia, Liberia.
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Rui Li
iDivision of Reproductive Health, U.S. Centers for Disease Control and Prevention, Atlanta, GA, USA.
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Christine Mugasha
jU.S. Agency for International Development, Kampala, Uganda.
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Florina Serbanescu
iDivision of Reproductive Health, U.S. Centers for Disease Control and Prevention, Atlanta, GA, USA.
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Claudia Morrissey Conlon
kBureau for Global Health, U.S. Agency for International Development, Washington, DC.
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    FIGURE 1

    Results of Sensitivity Analysis for Uganda and Zambia

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    TABLE 1.

    Activities and Interventions Included in the Costing Estimates

    Activity or InterventionImplemented in Uganda, Zambia, or Botha
    Activities targeting delay 1b
        Train community groups (VHTs and SMAGs) to promote facility delivery and birth preparednessUganda and Zambia
        Procure bicycles, equipment, and supplies for community groupsUganda and Zambia
        Provide financial support to community activities (e.g., funding to attend monthly meetings, supervision costs, community assessment mappings)Uganda and Zambia
        Produce a documentary about safe motherhood using traditional leadersZambia
        Run mass media campaigns on safe motherhood (including development of materials, air time costs, and translation costs), engage community drama groupsUganda and Zambia
        Identify and engage community change champions in safe motherhoodZambia
        Provision of revolving Fund for Village Saving SchemesUganda
        MNH outreach (project or community staff visits to communities)Uganda and Zambia
    Activities targeting delay 2b
        Distribution of subsidized vouchers for transport to delivery in EmONC facilities, public and private(transport to antenatal and postnatal care were added in Phase 2)Uganda
        Procurement of ambulances, motorcycles, and motorbikes for transportation and referralsUganda and Zambia
        District-level transport committees to improve referralUganda
        Renovate MWHs near hospitals for high-risk womenUganda and Zambia, primarily Zambia
        Train MWH staff to operate maternity homes; costs and revenue from income-generating activities; provision of food for those in maternity homes (as applicable)Zambia
    Activities targeting delay 3b
        Provide antenatal careUganda and Zambia
        Provide basic delivery careUganda and Zambia
        Provision of comprehensive emergency care (blood transfusion/cesarean delivery)Uganda and Zambia
        Upgrade care in neonatal special care units, including purchase of equipment, training, and provision of essential medicinesUganda and Zambia
        Increase facility EmONC capacity, including purchase of EmONC equipment and provision of essential medicinesUganda and Zambia
        Establish/expand/refurbish maternity blocks, neonatal special care units, laboratories, pharmacies, and operating theatersUganda and Zambia
        Hire new doctors, nurses, and midwivesUganda and Zambia, primarily Uganda
        Train health workers in essential newborn care and neonatal resuscitationUganda and Zambia
        Train doctors in surgical obstetric care and nurses in anesthesia, train/mentor nurses in basic EmONCUganda and Zambia
        Other training and mentoring (e.g., rapid syphilis screening, PMTCT, essential newborn care, UBT, maternal and perinatal death reviews)Uganda and Zambia; UBT in Zambia
        Supervision of frontline workers to maintain/improve skills in obstetrics/newborn careUganda and Zambia
        Provide essential medicinesUganda and Zambia
        Provide training and oversight for maternal death reviewsUganda and Zambia
        Conduct health facility assessmentsUganda and Zambia
    Health systems strengthening and program managementc
        Strengthen supply chain through training on procurement and stock managementUganda and Zambia
        Build capacity of facility staff to supervise community health workers (first delay)Zambia
        Provide computer-based medical records (SmartCare)Zambia
        Strengthen pharmacy, laboratory, and blood supplyUganda and Zambia
        Train health workers in data collection and health information systems (DHIS2)Uganda and Zambia
        Strengthen program management (staff, vehicles, meetings, workshops, etc., including management of SMGL program, monitoring and evaluation, etc.) (above facility costs)Uganda and Zambia
        Build provincial and district health team capacity with SMGL-supported staff (above facility costs)Uganda and Zambia
    • ↵Abbreviations: DHIS2, district health information system 2; EmONC, emergency obstetric and neonatal care; MNH, maternal and newborn health; MWH, maternity waiting home; PMTCT, prevention of mother-to-child transmission; SMAG, Safe Motherhood Action Group; SMGL, Saving Mothers, Giving Life; UBT, uterine balloon tamponade; VHT, Village Health Team.

    • a In countries shown in boldface, the activities were conducted in both SMGL and comparison districts, although frequently at lower intensity/scale in comparison districts than in SMGL districts. Source: Interviews with implementing partners and district and provincial health office staff.

    • ↵b Primary delay addressed refers to which of the 3 delays the activities is assumed to mainly address (since some of the inputs/activities may address more than one).

    • ↵c Categorized as primarily addressing the third delay unless otherwise noted.

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    TABLE 2.

    Parameters Used to Calculate District Costs of MNH Care, Life-Years Lost Due to Maternal Death, and Incremental Cost-Effectiveness of Deaths Averted

    NumberParameterValueData SourceNotes
    Costs (all)
    1Discount rate3%WHO-CHOICE recommendation34Locally published discount rates used in sensitivity analysis (15% in Uganda and 9.7% in Zambia)35,36
    Costs 2012
    2Costs associated with the first delayVaries by district (see Table 4)Interviews with health facility staff, district health office staff, provincial health office staff, and implementing partners in comparison districtsInterviews covered the period 2012 through 2016; start-up activities and capital costs were tracked. Costs for existing maternity waiting homes are included.
    3Costs associated with the second delayVaries by district (see Table 4)Interviews with health facility staff, district health office staff, provincial health office staff, implementing partners, and review of ambulance log books in comparison districtsInterviews covered the period 2012 through 2016; start-up activities and capital costs were tracked.
    4Unit cost of ANCVaries by type of facility (see Table 3)Data collection at health facilities in comparison districts, interviews with implementing partnersInclusive of facility overhead costs
    5Number of ANC visitsRatio of ANC visits to number of facility birthsData from health facility registers/district health offices in comparison districtsNumber of facility births based on SMGL districts data from 2012
    6Unit cost of vaginal deliveryVaries by type of facility (see Table 3)Data collection at health facilities in comparison districts, interviews with implementing partnersInclusive of facility overhead costs and admissions (for mother and newborn)
    7Number of vaginal deliveriesVaries by districtData from health facility registers/district health offices in comparison districts, Serbanescu and colleagues30Number for SMGL districts in 2012
    8Unit cost of cesarean deliveryVaries by type of facility (see Table 3)Data collection at health facilities in comparison districts, interviews with implementing partnersInclusive of facility overhead costs and admissions (for mother and newborn)
    9Number of cesarean deliveriesVaries by districtData from health facility registers/district health offices in comparison districts, Serbanescu and colleagues30Number for SMGL districts in 2012
    10Above community/facility costsVaries by district (see Table 4)Interviews with health facility staff, district health office staff, provincial health office staff, and implementing partners in comparison districtsInterviews covered the period 2012 through 2016; start-up activities and capital costs were tracked.
    11Total costs of MNH care in 2012CalculationBased on parameters 2–10
    Costs 2016
    12Costs associated with the first delayVaries by district (see Table 4)Interviews with health facility staff, district health office staff, provincial health office staff, and implementing partners in SMGL districtsInterviews covered the period 2012 through 2016; start-up activities and capital costs tracked. Costs for maternity waiting homes are included.
    13Costs associated with the second delayVaries by district (see Table 4)Interviews with health facility staff, district health office staff, provincial health office staff, implementing partners, and review of ambulance log books in SMGL districtsInterviews covered the period 2012 through 2016; start-up activities and capital costs were tracked.
    14Unit cost of ANCVaries by type of facility (see Table 3)Data collection at health facilities in SMGL districts, interviews with implementing partnersInclusive of facility overhead costs
    15Number of ANC visitsRatio of ANC visits to number of facility birthsData from health facility registers/district health offices in SMGL districtsNumber of facility births based on SMGL districts data from 2016
    16Unit cost of vaginal deliveryVaries by type of facility (see Table 3)Data collection at health facilities in SMGL districts, interviews with implementing partners.Inclusive of facility overhead costs and admissions (for mother and newborn)
    17Number of vaginal deliveriesVaries by districtSerbanescu and colleagues30Number for SMGL districts in 2016
    18Unit cost of cesarean deliveryVaries by type of facility (see Table 3)Data collection at health facilities in SMGL districts, interviews with implementing partnersInclusive of facility overhead costs and admissions (for mother and newborn)
    19Number of cesarean deliveriesVaries by districtData from health facility registers/district health offices in SMGL districts, Serbanescu and colleagues30Number for SMGL districts in 2016
    20Above community/ facility costsVaries by district (see Table 4)Interviews with health facility staff, district health office staff, provincial health office staff, and implementing partners in comparison districtsInterviews covered the period 2012 through 2016; start-up activities and capital costs were tracked.
    21Total costs of MNH care in 2016CalculationBased on parameters 12–20In Uganda, included cost of patients referred to Fort Portal referral hospital
    Deaths in 2012
    22Number of facility-based deliveriesVaries by districtPOMS and unpublished district data,31 district offices in SMGL districtsNumber of deliveries for SMGL districts in 2016 multiplied by the institutional delivery rate in 2012
    23Maternal death ratio534 deaths (Uganda) and 370 deaths (Zambia) per 100,000 live birthsSerbanescu and colleagues30
    24Perinatal death rate39.3 (Uganda) and 37.9 deaths (Zambia) per 1,000 birthsSerbanescu and colleagues30
    25Number of maternal deathsCalculationParameter 22 × proportion of deliveries with live births/100,000 × Parameter 23
    26Number of perinatal deathsCalculationParameter 22/1,000 × Parameter 24
    27Total number of deathsCalculationParameter 25 + Parameter 26
    28Life-years lost due to deathYears of life left estimated as 62.5 and 45.6 for perinatal and maternal death in Uganda and 62.3 and 45.7 for perinatal and maternal death in ZambiaWHO life tables40,41Assume average age at death for maternal death is 27.5, for perinatal in first 2 days of life
    Deaths in 2016
    29Number of facility-based deliveriesVaries by districtPOMS and unpublished district data,31 district offices in SMGL districtsNumber for SMGL districts in 2016; varied in sensitivity analysis based on results for all SMGL districts24
    30Maternal death ratio300 deaths (Uganda) and 231 deaths (Zambia) per 100,000 live birthsSerbanescu and colleagues30Decreased the percentage reduction in deaths results by 10 percentage points in sensitivity analysis
    31Perinatal death rate34.4 (Uganda) and 28.2 deaths (Zambia) per 1,000 birthsSerbanescu and colleagues30
    32Number of maternal deathsCalculationParameter 29 × proportion of deliveries with live births/100,000 × Parameter 30
    33Number of perinatal deathsCalculationParameter 29/1,000 × Parameter 31
    34Total number of deathsCalculationParameter 32 + Parameter 33
    35Life-years lost due to deathYears of life left estimated as 62.5 and 45.6 for perinatal and maternal death in Uganda and 62.3 and 45.7 for perinatal and maternal death in ZambiaWHO life tables40,41Assume average age at death for maternal death is 27.5, for perinatal in first 2 days of life. Years of life left estimated as 62.5 and 45.6 for perinatal and maternal death in Uganda and 62.3 and 45.7 for perinatal and maternal death in Zambia.
    Incremental cost-effectiveness
    36Incremental costsCalculationParameter 21 − Parameter 11In sensitivity analysis, reassess with all donor costs treated as incremental costs.
    37Incremental deaths avertedCalculationParameter 34 − Parameter 27
    38Incremental life-years gainedCalculationParameter 35 − Parameter 28
    39Incremental cost per death avertedCalculationParameter 36/Parameter 37
    40Incremental cost per life-year gainedCalculationParameter 36/Parameter 38
    • Abbreviations: ANC, antenatal care; MNH, maternal and newborn health; POMS, Pregnancy Outcome Monitoring Survey; SMGL, Saving Mothers, Giving Life; WHO CHOICE, World Health Organization's Choosing Interventions that are Cost-Effective.

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    TABLE 3.

    Average Unit Cost of Selected Services at Health Facilities in 2016

    UgandaZambia
    SMGL-Supported DistrictsComparison DistrictSMGL-Supported DistrictsComparison Districts
    Vaginal delivery
        Health center III$41$42
        Health center IV$45$57
        Health center$42$18
        District/general hospital$26$25$12$28
        Referral hospital$24Not available$125$112
    Cesarean delivery
        Health center IV$202$337
        District/general hospital$163$140$33$616
        Referral hospital$79Not available$495$458
    Antenatal care visit
        Health center III$3.66$5.49
        Health center IV$3.59$5.07
        Health center$4.50$3.96
        District/general hospital$5.03$4.60$6.96$10.75
        Referral hospital$4.92Not available$38.90Not available
    • Abbreviations: SGML, Saving Mothers, Giving Life.

    • Notes: The table includes only costs incurred at the facility level; it does not include training of facility staff. Results are presented in US 2016 dollars inclusive of capital and facility overhead costs. Data were not collected from the referral hospital receiving cases from Masindi.

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    TABLE 4.

    Total Costs Per District and Sources of Financing

    Estimated Total Costsa per SMGL DistrictSources of Financinga
    SMGL-Supported DistrictsComparison Districts
    20162012GovernmentDonorPrivateGovernmentDonorPrivate
    Uganda
        Costs associated with:
            The first delay$300,422$00%100%0%100%0%0%
            The second delay$58,165$40,1232%98%0%100%0%0%
            The third delay$983,364$613,32948%27%24%94%3%3%
            Above community/facility costsb$156,931$00%100%0%100%0%0%
        Total cost$1,498,881$653,45235%49%16%96%2%2%
        Average number of facility deliveries14,4199,947
        Total cost per facility delivery$103.95$65.70
    Zambia
        Costs associated with:
            The first delay$116,590$7,60810%90%N/A52%48%N/A
            The second delay$107,149$10,23940%60%N/A100%0%N/A
            The third delay$799,081$405,23474%26%N/A97%3%N/A
            Above community/facility costsb$161,593$1,6630%100%N/A100%0%N/A
        Total cost$1,184,413$424,74455%45%N/A97%3%N/A
        Average number of facility deliveries6,0444,194
        Total cost per facility delivery$195.98$101.27
    • Abbreviations: N/A, not applicable; SMGL, Saving Mothers, Giving Life.

    • ↵a Results are presented in US 2016 dollars, with capital and start-up costs converted to annual equivalent costs.

    • ↵b Includes costs for offices located in districts, general and office support staff, program vehicles, and other general management and planning activities.

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    TABLE 5.

    Incremental Cost-Effectiveness of SMGL in Uganda and Zambia

    Number of Facility Deliveries in 2016aNumber of Maternal DeathsbNumber of Perinatal DeathsbIncremental Deaths Averted (Maternal and Perinatal)Incremental Life-Years GainedTotal CostcIncremental CostcIncremental Cost per Death AvertedcIncremental Cost per Life-Year Gainedc
    Uganda
        Without SMGL19,8931281,114$1,306,904
        With SMGL28,838869921649,549$2,997,763$1,690,859$10,311$177
    Zambia
        Without SMGL8,83940450$849,489
        With SMGL12,087283411217,362$2,368,826$1,519,338$12,514$206
    • Abbreviation: SGML, Saving Mothers, Giving Life.

    • ↵a The number of district deliveries in 2016 multiplied by the institutional delivery rate for 2012 (for “without SMGL”) and for 2016 (for “with SMGL”) reported in Serbanescu et al.30

    • ↵b Estimated using the 2016 facility deliveries with SMGL (for both “with SMGL” and “without SMGL”) and the total maternal/perinatal death rates for all SMGL-supported districts in 2016 (for with SMGL) and 201230 with adjustments for national-level secular trends (see Supplement 1) to estimate deaths if SMGL had never occurred (for without SMGL).

    • ↵c Results are presented in US 2016 dollars, and represent the totals for the 2 SMGL-supported districts included in the analyses.

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Global Health: Science and Practice: 7 (Supplement 1)
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The Costs and Cost-Effectiveness of a District-Strengthening Strategy to Mitigate the 3 Delays to Quality Maternal Health Care: Results From Uganda and Zambia
Benjamin Johns, Peter Hangoma, Lynn Atuyambe, Sophie Faye, Mark Tumwine, Collen Zulu, Marta Levitt, Tannia Tembo, Jessica Healey, Rui Li, Christine Mugasha, Florina Serbanescu, Claudia Morrissey Conlon
Global Health: Science and Practice Mar 2019, 7 (Supplement 1) S104-S122; DOI: 10.9745/GHSP-D-18-00429

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The Costs and Cost-Effectiveness of a District-Strengthening Strategy to Mitigate the 3 Delays to Quality Maternal Health Care: Results From Uganda and Zambia
Benjamin Johns, Peter Hangoma, Lynn Atuyambe, Sophie Faye, Mark Tumwine, Collen Zulu, Marta Levitt, Tannia Tembo, Jessica Healey, Rui Li, Christine Mugasha, Florina Serbanescu, Claudia Morrissey Conlon
Global Health: Science and Practice Mar 2019, 7 (Supplement 1) S104-S122; DOI: 10.9745/GHSP-D-18-00429
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