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Debate on Performance Based Financing: we welcome your contributions !

1/15/2018

2 Commentaires

 
Bruno Meessen


This weekend, a rather critical article about PBF in Low-and Middle-Income countries was published in the BMJ Global Health. In this blogpost, we present you how the blog Health Financing in Africa intends to enhance the forthcoming debate.


The article signed by Elisabeth Paul and twenty three experts is accessible here. It deserves to be read. Everyone must certainly make up his/her own mind. In a way, the article relaunches a controversy that took place in the WHO Bulletin seven years ago, following an article I wrote with Agnès Soucat and Claude Sekabagara (both at the World Bank at that time). The purpose of our paper was to ensure that the PBF experiences which were starting in many countries at the time were integrated in a systemic vision, focused on the strengthening but also transformation of health systems. Our article of 2011 was addressed to all.

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We first wanted to set the boundaries for the collective work in progress, as the PBF movement already involved many national decision-makers, experts, technical assistants, researchers and donors. We notably wanted to avoid a distortion of PBF (for example as a strategy “captured” by a global or national actor concentrating on a single disease).  We also aimed to help the actors not directly involved in  PBF to understand better what could be built together and how PBF could help, in the mid- and long term, the other interventions that make up the richness of a health system and the action of external partners in the poorest countries.

The debate has been relatively limited since then, as many actors were focused on the implementation of PBF pilot projects or, for those involving researchers, on sometimes sophisticated evaluation and research protocols. I also had the impression that many of the observers or experts involved in PBF voluntarily subscribed to a systemic view of PBF, at least as a working hypothesis.

In another contribution, I will explain what I have spent part of my own energy on for the past seven years. Let's say, in a nutshell, that I embarked, on top of my scientific work, with limited resources and a bit of a ‘can do’ spirit, on a collective adventure to rebuild knowledge management for health systems in the LMICs, together with many colleagues and friends. This commitment among others materialized in the co-facilitation of three communities of practice. The Health Financing in Africa Blog has been an important part of this adventure, since I served as its main editor, and have also been a regular contributor.

The article by Paul and al clearly aims to make waves, to provoke a reaction. The HFA blog, which covers health financing in Africa, broadly defined, has published many contributions on PBF in recent years. Along the same lines, we therefore welcome reactions on the text of Paul et al. The editorial line of HFA is clear: we welcome the contributions of all kinds of experts (policy makers, practitioners, researchers, technical assistants...). For this series, contributions about  implementation will be particularly valuable, since according to Paul et al, this implementation is very problematic. We will publish both contributions supporting the line developed by Paul et al and contributions challenging the viewpoint. We invite the speakers to argue their point of view well.

In their article, Paul and al express many criticisms against PBF, but also against some actors. The article claims among others that the PBF CoP is not open to controversy. As the main facilitator of the PBF CoP, I naturally take this claim personally. In another article, I will elaborate on why I disagree with this statement. But to avoid from now on any possible ‘conflict of interest’, I informed Isidore Sieleunou, the lead facilitator of the CoP Financial Access to Health Services, with which the PBF CoP shares the blog HFA, that I do not want to be editor for these future blogs on PBF. Instead, Isidore will oversee the process and will be assisted by other CoP experts currently being identified. So if you want to make a contribution, we ask you to contact Isidore through email.


2 Commentaires
Gyuri Fritsche
1/19/2018 07:43:51 am

Paul et all’s critique is welcome and the authors may have hit the nail on the head regarding a few issues that plague Performance-Based Financing (PBF) based health reforms (http://gh.bmj.com/content/3/1/e000664). The lack of domestic ownership as manifest in the absence of Government funding in some places, or troubles with design and implementation of PBF approaches are real indeed and can be the main reasons for why some PBF programs in Low, -and Middle Income Countries (LMIC) may fail. However, in their attempt to take on PBF exclusively, the authors overlook several important factors:

Firstly, they ignore the fundamental problems plaguing LMIC health sectors in general: remnants of dysfunctional and underfunded colonial centrally managed health systems, which are the root cause of unnecessary, high maternal and child mortality. The authors’ claims are based on a rather small set of contexts, of which one (Burkina Faso) is showing good results (Steenland, M., et al. (2017). "Performance-based financing to increase utilization of maternal health services: Evidence from Burkina Faso." Soc Sci Med(3): 179-184.) and an enhanced and expanded version of the Burkina Faso PBF approach awaiting the results of an impact evaluation. Their second case, that of Benin, involves a PBF program which was rather successful at the outset but suffering from a general lack of autonomy in the health system for providers leading to lesser results and being confronted with a new president changing the direction of these reforms. In addition, the case of Benin also suffered the consequences from an unsuccessful process to improve the design, to enhance Ministry of Health ownership and to harmonize different PBF approaches. Their third example, Tanzania, was a rather small Pay-for-Performance pilot, which had multiple design faults.

The authors do acknowledge, though, that where government ownership of PBF was present (as e.g. expressed in domestic funding) such as in Rwanda and Burundi, this contributed substantially to the documented success of PBF approaches in those countries.

Secondly, they claim that PBF approaches are not efficient. This is untrue. In their assessment of whether ‘things work’, the authors bypass one crucial effect of PBF approaches: The efficiency of PBF programs or cost-effectiveness of PBF approaches is essentially through the impact on the quality of health services, for instance for women and children benefiting from such PBF programs. This increase, notably in settings coming from very low baselines, is so strong that even a moderately successful PBF approach in Zambia was shown to have been a very cost-effective intervention. Other examples: the Cameroon PBF program had strong impact on quality of care too. A chief driver of success in the Nigerian PBF approach, one of the two largest in the world, covering three states, is an impressive double difference of 49-percentage point increase in a composite measure of structural and process measures of quality of health services as compared to control districts (results pending). Sure, a country the size of Nigeria faces many challenges, but In Nigeria, not just structural quality improved significantly, but also content of care measures such as clinical quality for children visiting outpatient clinics and pregnant mothers visiting antenatal care clinics.

So, what to conclude from the authors’ analysis?

There is nothing wrong in looking critically at things. But should we abandon PBF? The authors argue PBF approaches in LMIC should be abandoned because of the presumed mixed results in three examples. Certainly. programs with no or detrimental effects on quality care should be abandoned. Such as is the case in many free health care policies in which no attention is given to compensating providers for their lost income. But well designed, implemented and locally owned PBF programs have shown substantial improvements, and can lead to real results in difficult circumstances.

György Fritsche




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