SHIELD WORKPACKAGE 1 REPORT Critical Analysis of Ghana’s Health System With a focus on equity challenges and the National Health Insurance John Gyapong, Bertha Garshong, James Akazili, Moses Aikins, Irene Agyepong, Frank Nyonator April 2007 Table of contents List of Figures ...............................................................................................iii List of Tables.................................................................................................iii List of boxes..................................................................................................iv Acronyms .......................................................................................................v Acronyms .......................................................................................................v Acronyms .......................................................................................................v Executive Summary.....................................................................................vii 1. INTRODUCTION .........................................................................................1 1.1 Background and purpose .......................................................................1 1.1 Specific objectives and report structure: .............................................2 2. METHODS ...................................................................................................3 2.1 Document review....................................................................................3 3. CONTEXT....................................................................................................4 3.1 Geography..............................................................................................4 3.2 The Macro-Economy ..............................................................................4 3.3 Political and administrative organisation ................................................5 3.4 Demography...........................................................................................6 3.5 Health status of Ghanaians ....................................................................8 3.5.1 Health status indicators....................................................................8 3.5.2 Institutional Maternal Mortality .......................................................10 3.5.3 Disease Burden .............................................................................11 4. OVERVIEW OF THE HEALTH SYSTEM AND CHALLENGES ................13 4.1 Introduction...........................................................................................13 4.1 Health sector reform.............................................................................13 4.1.1 Organisation and Management......................................................14 4.2 Health service provision, health facilities and human resources in Ghana ........................................................................................................16 4.2.1 Health services provision (Public Sector).......................................16 4.2.1.1 The CHPS strategy ........................................................................... 18 4.2.1.2 Access to services............................................................................. 20 4.2.1.3 Service delivery efficiency ................................................................. 21 4.2.1.4 Priority public health programmes..................................................... 21 4.2.2 Health service provision (private sector) ........................................22 4.2.3 Health facilities...............................................................................22 4.2.4 Human Resources .........................................................................24 4.3 History of health care financing in Ghana.............................................28 4.4 The National Health Accounts ..............................................................29 4.5 Trends in health sector financing: GoG, donor funds and Internally Generated Funds .......................................................................................33 4.5.1 Cash management issues .............................................................36 4.5.2 Resource allocation between levels of the health system..............37 4.5.3 Resource allocation between regions ............................................38 4.5.4 Changing sources of revenue for the health sector .......................39 4.5.5 Other financing sources: HIPC funds.............................................40 4.5.6 The National Health Insurance Scheme ........................................41 4.5.6.1 Exempt categories-NHIS................................................................... 43 4.5.6.2 Sustainability of financing.................................................................. 45 4.5.6.3 Future role of the NHIS ..................................................................... 48 4.5.6.4 Recent Studies on Health Insurance in Ghana: Key findings............ 53 4.5.6.5 Research agenda to support health financing (including National Health Insurance) policy and programme development and implementation in Ghana............................................................................................................ 56 5. FINANCING AND BENEFIT INCIDENCE ISSUES ...................................66 5.1 Introduction...........................................................................................66 5.2 Financing incidence..............................................................................67 5.2.1 General tax ....................................................................................67 5.2.1.1 Direct tax ........................................................................................... 67 5.2.1.2 Indirect taxes ..................................................................................... 68 5.2.2 Non-tax incidence analysis ............................................................70 5.3 Benefit incidence ..................................................................................70 6. CONCLUSIONS ........................................................................................72 REFERENCES ..............................................................................................75 ii List of Figures Figure 1: Poverty incidence by region in 1991/92 and 1998/99 (poverty line=900,000 cedis per annum) ........................................................................................................ 5 Figure 2 : Regional Distribution of Population (2000 Census) .................................... 7 Figure 3: The Ten Administrative Regions of Ghana .................................................. 8 Figure 4: Infant mortality and Under five mortality by region 2006.............................. 9 Figure 5: Infant and under 5 mortality by expenditure quintile (MICS 2006)............. 10 Figure 6: Institutional Maternal Mortality by Region 2004 ......................................... 11 Figure 7: Relationship of the MoH to the various sectors and organisations ............ 16 Figure 8: Organizational structure of Ghana health services delivery....................... 17 Figure 9: Per capita OPD visits 1995-2004............................................................... 21 Figure 10: Health Care Expenditure in Ghana, 2002 (NHA 2006 using 2002 data) . 32 Figure 11: Percentage share of total Government (GoG + IGF + Donors + HIPC) budget for 2006 ......................................................................................................... 36 Figure 12: Flow of funds to the public health sector (2001 % of expenditure) .......... 37 Figure 13: Distribution of resources between health services levels 2002 MTEF..... 38 Figure 14: Trends in real per capita resources between regions (% below or above national average) ...................................................................................................... 39 List of Tables Table 1: Health Status indicators .....................................................................8 Table 2: Top ten diseases reported at outpatient departments 2002 .............12 Table 3: Regional Distribution of Health Facilities-2004 and relation to population distribution ....................................................................................22 Table 4: Distribution of Hospital beds by Region and Ownership - 2004 in relation to population distribution ...................................................................23 Table 5: Health Staff Population ratios...........................................................24 Table 6: Selected Health Staff: Population Ratio (both public and private) 2005...............................................................................................................25 Table 7: Distribution of health Professionals by Region 2004........................26 Table 8: Migration and Destination of Ghanaian Nurses................................27 Table 9: Summary of Health Care Financing Sources and Agents, 2002 in billion of Cedis (US$1 =8500 Cedis) ..............................................................31 Table 10: Summary of expenditure on services, 2006 ...................................33 Table 11: Financial sector-wide indicators .....................................................34 Table 12: Shares of Government budget for 2006 (¢ million) ........................35 Table 13: NHIS coverage, by region, 2006 ....................................................42 Table 14: Breakdown of NHIS membership: 2006 .........................................43 Table 15: Issues from 2005 and 2007 stakeholder meetings on priority issues for research put into a modification of Kutzin’s framework of functions of the health care financing system .........................................................................57 Table 16: Summary of tax health care payment, incidence, data source and proposed method of measurement ................................................................69 Table 17: Distribution of Total Health Subsidies by location and Quintile 1989 and 1992........................................................................................................71 iii List of boxes Box 1: Vision 2020 priority areas ...................................................................13 Box 2: MTHS and PoW priority areas ...........................................................14 Box 3: The implementation of CHPS requires the completion of six "milestones" in an identified health zone........................................................19 Box 4:Ghana NHIS Minimum Health Care Benefits .......................................44 Box 5: Ghana NHIS Excluded Benefits..........................................................45 Box 6: Constraints to growth of income from premiums include: ...................46 iv Acronyms AAK……. ADHA…… AIDS……… AR………… BAR……… BOR……… BMC……… CHAG……. CHO……… CHPS…….. CR……….. CWIQ……. DANIDA…. DCE……… DFID……… DMHIS…… DPF……… EDL……… ER………… GAR………. GDP………. GHS………. GLSS……… GoG……… GPRS…….. GSS………. HIPC……… HIV…….… HWF…….. IGF……….. ILO……….. IMCI……… ISSER……. Abura Asebu Kwamankese Additional Duty Hours Allowance Acquired Immunodeficiency Disease Syndrome Ashanti Region Brong Ahafo Region Bed Occupancy Rate Budget Management Centre Christian Health Association of Ghana Community Health Officer Community-based Health Planning and Services Central Region Core Welfare Indicator Questionnaire Survey Danish Development Agency District Chief Executive Department for International Development District Mutual Health Insurance Scheme Donor Pooled Fund Essential Drug List Eastern Region Greater Accra Region Gross Domestic Product Ghana Health Service Ghana Living Standard Survey Government of Ghana Ghana Poverty Reduction Strategy Ghana Statistical Service Highly Indebted Poor Country Human Immunodeficiency Virus Health Workers Fund Internally Generated Funds International Labour Organisation Integrated Management of Childhood Illnesses Institute of Social, Statistics and Economic Research ITNs………. Insecticide-Treated Nets Acronyms Km………… LI…………. MDAs……… MDBS……… MDG…… MoFEP…… MoH……. MTEF……. NGO……… NHA……… NHI………. NHIC…….. NHIF…….. NHIS…….. NPG……… NR……….. Kilometres Legislative Instrument Ministries, Departments and Agencies Multi-donor Budget Support Millennium Development Goals Ministry of Finance and Economic Planning Ministry of Health Medium Term Expenditure Framework Non-Governmental Organisation National Health Accounts National Health Insurance National Health Insurance Council National Health Insurance Fund National Health Insurance Scheme Non-government Providers Northern Region v OOP……… OPD……… PIT………. POW…….. RNE……… SHIELD….. SPA……… SSNIT…… SWAP…… TB……….. UER…….. UK………. UNICEF….. USA………. UWR……. VAT…….. VCT…….. VR……… WHO ……. Out-of-pocket Out-patients Department Personal Income Tax Programme of Work Royal Netherlands Embassy Strategies for Health Insurance for Equity in Less Developed countries Service Provision Assessment Social Security and National Insurance Trust Sector-wide Approach Programme Tuberculosis Upper East Region United Kingdom United Nation International Children and Education Fund United States of America Upper West Region Value Added Tax Voluntary Counselling and Treatment Volta Region World Health Organisation vi Executive Summary Ghana has committed to achieving the Millennium Development Goals (MDGs) by 2015. However, Ghana and other developing countries have seen little progress towards achieving the MDGs and there are doubts as to whether most of the developing countries including Ghana can achieve these goals, and in particular the health related MDGs of maternal and child health and HIV/AIDS. Among the myriad problems militating against the achievement of the MDGs in the health sector are the inequities in the health care financing, and delivery of health care in Ghana. The SHIELD project is set out to critically evaluate existing inequities in health in South Africa, Tanzania and Ghana and the extent to which health insurance mechanisms could address equity challenges. The purpose of this report is to critically assess the inequities in the health care system, particularly the financing and delivery of health care in the country through a review of relevant documents. Equity challenges in the health system Results of the document review revealed both geographical and financial inequities in terms of resource distribution and service provision. The Northern sector of the country is more deprived than the Southern sector. The health system indicates that after more than 50 years of independence, the health status of the country is that of a developing country at the onset of a health transition, with predominance of communicable disease conditions, malnutrition, high infant mortality and generally poor reproductive health with the emergence of non-communicable diseases, such as, diabetes and cardiovascular diseases. These conditions are largely exacerbated by poor access to health services. Despite progress made over the years, geographic and financial access to health care remains a challenge. Ghana currently faces inadequate numbers of qualified human resources due to the low production levels of medical personnel which fall short of annual requirements. The human resource problem is compounded by a high rate of internal and external attrition. The public sector is loosing large numbers of its health workers primarily to the private-for-profit sector and mission facilities. The health personnel-population ratios illustrate both a wide geographical disparity and a difference between cadres of personnel. There are inequities in the distribution of the health facilities in the country. There are more beds and other health facilities in proportional terms in Ashanti, Eastern, Volta, Western and vii the Greater Accra Regions than the rest of the country. Even though there has been a general increase in the health facilities in the country, the three Northern Regions, the poorest in the country, have not seen any increases. Further review focusing on health care financing in Ghana indicates that fee-paying is not new in Ghana. Hospital fee system has been operational since the first colonial hospital was built in 1868. As part of health sector reforms in 1980s, user fees known as the ‘cash and carry’ was introduced as means of sustaining the health services, which adversely affected utilization. The exemption policy was introduced to address the burden of user fees on the poor and certain vulnerable groups in the society. Even though the government allocation to health has seen some level of improvement over the years, health care financing still remains a major challenge in the country. In the 2006 budget, the health sector share increased to from 12% to about 19%. To increase access to health care for the population, various small scale pilot health insurance schemes emerged. To test the feasibility and acceptability of a pre-paid, riskpooling financial arrangement at the community levels, studies on health insurance were carried out to support government implementation of the National Health Insurance Scheme (NHIS) meant to replace the ‘cash and carry’ as an alternative health care financing mechanism in the country. The findings of the studies showed that there were challenges ranging from perception of providers, premium payment mechanism, benefit package, resource mobilisation, and scheme administration and management. Apart from the health insurance studies, two key stakeholder meetings were held in 2005 and 2007, to inform research areas for policy and programme development in health insurance implementation. In all these, the pertinent question is “what is the burden of health care financing and benefit incidence in the country?” The SHIELD project’s aim is to critically evaluate existing inequities in health care in Ghana, and the extent to which health insurance mechanisms could address existing equity challenges. This work was carried out with the aid of a grant from the International Development Research Centre, Ottawa, Canada and financial support received from the European Community's Sixth Framework Programme. viii 1. INTRODUCTION 1.1 Background and purpose Like many other developing countries, Ghana has committed itself to achieving the Millennium Development Goals (MDGs) by 2015. However, Ghana and most of developing countries have seen little progress towards achieving the MDGs. There are doubts as to whether most of the developing countries including Ghana can achieve these goals (World Bank 2004), particularly health related goals such as, maternal and child health and HIV/AIDS. Among the factors influencing the achievement of the MDGs in the health sector are the inequities in the health care financing and delivery of health care. Access to effective health interventions is low, particularly for the poorest, resulting in unnecessary high morbidity and mortality. Currently there is increasing interest and debate about the need to promote equity in the health system, so that the poor and vulnerable groups, who tend to have the highest disease burden and the least ability to pay for health care services, are adequately catered for. Of particular interest are the geographical and financial inequities in the health system and the extent that those who live in rural areas are often discriminated against in terms of health services provision. Another dimension in the current health system debate is the pluralistic mix of public/private sector financing and how this affects the delivery of health care. In the 1980s, promoting the growth of private health care financing and provision was a key element of the Ghana health sector reform. This was justified by the inability of the public health sector to provide quality and efficient health care to the growing population in the face of deteriorating economic conditions. The private health sector today thus remains an important player in the financing and delivery of health care. Of increasing concern however, are the geographical and physical service provision inequities in the health system, which need to be identified and addressed. Any meaningful intervention on inequity requires a preliminary map of existing inequities in the general health system. The purpose of this report (which is part of the SHIELD1 project) is to critically evaluate the inequities in financing and delivery of health care in the country through a review of policy and non-policy documents. This 1 Strategies for Health Insurance for Equity in Less Developed countries 1 report is the product of work package 1 as outlined in the proposal (http://www.idrc.ca/fr/ev-102522-201-1-DO_TOPIC.html). The SHIELD project is overall, tasked with critically evaluating existing inequities in health in South Africa, Tanzania and Ghana, focussing on the extent to which health insurance mechanisms could address equity challenges. 1.1 Specific objectives and report structure: 1. To describe the inequities in the health system. 2. Identify those perceived to be disadvantaged by the health system. The report is divided into six sections. Section One provides a general introduction and outlines the objectives of the report. Section Two examines the methods, which includes a document review of published and unpublished literature. Section Three outlines the context: the geography and people, the socio-economic, political and health status, including the profile of the disease burden facing the country. A detailed description of the health system and its challenges are presented in Section Four, as well as factors affecting the financing and delivery of health services. Section Five examines issues of financing and benefit incidence and how the Ghana SHIELD programme of work will develop the comprehensive analysis of the financing and benefit studies in work packages (WP) 2 and 3. Finally, Section Six draws some conclusions and highlights the key equity challenges facing the health system in general. 2 2. METHODS 2.1 Document review A critical review and synthesis of existing relevant documents was carried out. The research team undertook an extensive search for relevant documents from the various ministries and university libraries. The team also searched through websites of institutions such as the Policy, Planning, Monitoring and Evaluation (PPME) of the Ghana Health Service. The type of information that was sought included the distribution of health facilities and personnel, health care financing and financial management and health service provision. The preliminary results of the document review were also presented and discussed at the SHIELD workshop in Johannesburg in October 2006. 3 3. CONTEXT 3.1 Geography Ghana is located on the West coast of Africa, about 750km North of the equator on the Gulf of Guinea, between the latitudes of 4º -11.5º north. The capital, Accra, is on the Greenwich meridian (zero line of longitude). The country has a total land area of 238,305 km² and shares boundaries with Burkina Faso, to the North Cote d’Ivoire to the west and Togo on the east. Ghana has a tropical climate, characterised most of the year by moderate temperatures (generally 21-32ºC (70-90ºF)), constant breezes and sunshine (Ghana Statistical Service 2005). There are two main rainy seasons, from March to July and from September to October. Annual rainfall in the South averages 2,030mm but varies greatly throughout the country, with the heaviest rainfall in the western region and the lowest in the north. 3.2 The Macro-Economy Ghana is well endowed with natural resources, and has roughly twice the per capita output of the poorer countries in West Africa. Even so, Ghana with a GDP of about US$400, remains heavily dependent on international financial and technical assistance (World Bank, 2004). Gold, timber, and cocoa production are major sources of foreign exchange. The domestic economy continues to revolve around subsistence agriculture, which accounts for 35% of GDP and employs 60% of the work force, mainly small landholders (World Bank 2004). Policy priorities include tighter monetary and fiscal policies, accelerated privatisation, and improvement of social services. Inflation (about 10% in 2006) has eased recently, but still remains a major internal problem (Ghana Health Equity Assessment, 2006). At 5.8%, in 2004, the growth rate of the economy fell short of the Government of Ghana’s (GoG) projections2. With budget deficits consistently higher than planned, the GoG borrowed heavily on the domestic market to fill the gap, diminishing available credit for private investment (although most bank lending is to the Government or large businesses and institutions). Ghana joined the Heavily Indebted Poor Country (HIPC) initiative 2002, and a total of $700 million in debt writeoff at the end of 2004 was obtained (Ghana Statistical Service 2005). However, 2 http://www.alacratore.com/country_snapshot/Ghana (accessed on 03/04/07) 4 slippage occurred in the first year of the International Monetary Fund agreement, which ended in late November 2002 (World Bank 2004). Since then, some progress has been made (petroleum pricing liberalisation is the most noteworthy) in addressing crucial national issues. Not withstanding this, the economic gap between the rich and the poor is still a major challenge. A study in 2002 by the Ghana Centre for Democratic Development, found a frightening picture of mass unemployment and underemployment and a perceived widening of the gap between the rich and the poor (20% of the poorest enjoy only 8.4% of the national income, whilst the richest 20% enjoyed as much as 41.7%). Wide regional variations of poverty are also observed (see Figure 1). From the Ghana Living Standard Survey 4 (GLSS 4), published in Aim et al. 2001, poverty levels reduced in all regions except in Central, Northern and Upper East regions where there was a rise in poverty incidence. Upper East region was revealed as being the most deprived of all the regions, closely followed by the Upper West and Northern Regions. Figure 1: Poverty incidence by region in 1991/92 and 1998/99 (poverty 100 90 80 70 60 50 40 30 20 10 0 1991/92 To ta l A sh an ti B .A ha fo N or th er n U .W es t U .E as t V ol ta 1998/99 C en tra l G .A cc ra E as te rn W es te rn Percentage line=900,000 cedis per annum) Region Source:GLSS 4 (unpublished), Atim et al. 2001 3.3 Political and administrative organisation Ghana is a democratic parliamentary democracy. There is an elected Government with a President, a Cabinet, a Parliament and an independent judiciary. The country is divided into 10 regions (see Figure 3) and 138 decentralised districts. The districts are administered by the District Assemblies and headed by a District Chief Executive 5 (DCE), who is nominated by the President and endorsed by the district elected representatives. Ghana continues to enjoy a stable political environment despite increasing instability in the region and sub-region. The deteriorating situation in neighbouring Cote d’Ivoire is a cause for serious concern. To date, the numbers of returning Ghanaians and foreign refugees have been manageable (Ghana Statistical Service, 2005). However, Ghana is not equipped to handle large refugee flows and could easily be overwhelmed if the situation worsens. On the domestic front, there are chieftaincy disputes from one end of Ghana to the other (Ghana Health Equity Assessment, 2006) Although basic reforms are in place for the acceleration of decentralisation and delegation of responsibility for provision of many social services to district governments, commitment at the national level is missing (Ghana Statistical Service, 2005). Key ministries, such as health and education, have yet to relinquish centralised control and function to the districts, and planned levels of resources are not yet available to District Assemblies and local authorities (Ghana Statistical Service, 2005). 3.4 Demography Ghana’s population was estimated at 18.4 million in the 2000 Population and Housing Census. Its population structure is typical of a developing country with about half of the total population below 15 years of age. Ghana is no longer 20% urban and 80% rural as traditionally quoted. Increasingly more and more of the population of Ghana live in urban areas. The results of the 2000 population and housing census showed that approximately forty four percent (44%) of the population of Ghana live in urban localities. The rural /urban classification of localities in the census is population based, with a locality population size of 5,000 or more being classified as urban and less than 5000 classified as being rural. Apart from the Accra and the Kumasi Metropolis with populations of 1,658,937 and 1,170,270 respectively, the population of localities defined as urban based on the population in the 2000 census ranged from a small rural town such as Essam in the Western region with a population of 5,019, to Tamale with a population of 202,317. Despite the wide range of population density in the localities defined as urban, when the population of localities currently classified as urban is compared for 6 the 3 census periods of 1970, 1984 and 2000 that there is a clear trend towards more and more Ghanaians migrating from low density population rural localities to live in higher density urban localities. The extent of urbanisation in the country varies by region from a high of 88% urban in the Greater Accra region, to a low of 16% urban in the Upper East region. This is illustrated in figure 2 Figure 2 : Regional Distribution of Population (2000 Census) 90 87.7 80 70 60 51.3 50 43.8 40 36.3 37.5 37.4 34.6 30 27 26.6 19.1 20 15.7 17.5 15.4 11.1 10.2 9.6 9.6 10 8.6 8.4 3.2 2.1 4.4 1.9 1.4 3.4 2.5 2.8 4.91.1 3 1.7 2.7 0 W C GA V E Ash BA N UE UW All Share of population Proportionurban Intercensal growthrate Source: Ghana Statistical Service Slightly over one third of the population of Ghana (34.5%) live in the two most highly urbanised regions of Ashanti (19.1%), and Greater Accra (15.4%). These are also the two regions, which are growing most rapidly, with an intercensal growth rate of 4.4% in Greater Accra, and 3.4% in Ashanti. In terms of religion, Christianity is predominant in the country with Islam and traditional religions also practised. There are many local languages but the official language is English. 7 Figure 3: The Ten Administrative Regions of Ghana 3.5 Health status of Ghanaians 3.5.1 Health status indicators The health indicators of Ghana, illustrated in Table 1, show a general improvement in most of the indicators over a fifteen year period from 1988-2003. However, during the same time period, infant, under-five mortality and neonatal mortality rates have worsened. This is a very worrying development, given the Ghana Health Sector’s efforts under the Ghana Poverty Reduction Strategy (GPRS) to achieve the health related Millennium Developments Goals by 2015. Table 1: Health Status indicators Indicator 1988 1993 1998 2003 Infant Mortality Rate (per 1000 live births) 77 66 57 64 Under 5 Mortality Rate (per 1000 live births) 155 119 108 111 Neonatal Mortality Rate (per 1000 live births) 44 41 30 43 Post-Neonatal Mortality Rate (per 1000 live births) 33 26 27 21 Crude Birth Rate (per 1000) 47 44 39 33 Crude Death Rate (per 1000) 17 12.5 10 10 Life Expectancy at birth (in years) 54 55.7 57 58 Total Fertility Rate 6.4 5.5 4.6 4.4 Source: 2005 Review of Ghana Health Sector Programme of Work 8 Mortality rates of children in rural communities have been consistently higher than for urban residents. Regionally, differences in mortality are quite marked. Western Region has the lowest of 45 IMR per 1000 live births with 114 for Upper West (Figure 4). Under five mortality in Upper West (191) is three times that of Western Region (66). In 2003 Ghana Demographic Health Survey (GDHS), the Upper East Region, one of the poorest in Ghana, recorded a decrease in child mortality, whilst nearby regions with similar socio-economic conditions recorded increases. A team of health experts assessed factors that contributed to the sharp decline in child mortality in the Upper East region. Their main findings showed significant improvements attributable to the implementation of Accelerated Child Survival and Development activities, increased resources for the health system and extensive support for community based health activities (UNICEF Ghana 2006). In 2006, UNICEF Ghana also undertook the Multiple Indicator Cluster Survey (MICS) which looked at IMR and U5MR indicators in particular. Figure 4 further shows there is no marked improvement as under-five mortality is still the same at 111 per 1000 live births, and IMR in fact, worsened from 64 in 2003, to 71 in 2006. Figure 4: Infant mortality and under five mortality by region 2006 Total Upper West Upper East U5MR Northern Ahanti IMR Brong Ahafo Eastern Volta Greater Accra Central Western 200 191 180 160 142 140 133 120 114 113 111 106 102 100 92 86 93 88 83 80 72 71 68 66 69 60 57 61 60 45 40 20 0 Source: Ghana MICS 2006 It is generally observed that poorer people have higher under-five and infant mortality than their richer counterparts. The difference in Under 5 mortality between the poor and the rich is striking, as illustrated in Figure 5 below. 9 Figure 5: Infant and under 5 mortality by expenditure quintile (MICS 2006) 140 126 118 120 80 101 100 100 75 100 79 65 65 64 Middle Fourth Richest 60 40 20 0 Poorest Second IMR U5MR Source: MICS 2006 3.5.2 Institutional Maternal Mortality In 2004, a total of 824 institutional maternal deaths were reported out of a total of 453,096 deliveries (Health Sector Review 2006). The national institutional maternal mortality rate was thus calculated as 186 deaths per 100,000 live births. Although this is still high, it shows some progress, and a reduction of 214 deaths per 100,000 live births in 2001, to 204 deaths per 100,000 live births in 2003. Even though the institutional maternal mortality rates are not considered reliable due to the ineffective data gathering and storage, they are quite useful pointers. The regional distribution shows that the Eastern (ER) and Volta (VR) Regions had the highest maternal deaths in 2004 with the Upper West Region (UWR) showing the lowest (see Figure 6). This is another source of concern if Ghana is to meet the reduction in maternal mortality as required by the MDGs (Health Sector Review 2006). 10 Figure 6: Institutional Maternal Mortality by Region 2004 300 250 200 150 100 50 0 WR CR GAR VR ER AS BA NR UE UW NAT Region Source: Ghana Health Sector Review 2006 3.5.3 Disease Burden After 50 years of independence, the health status of the country is that of a developing country at the onset of a health transition with a predominance of communicable disease conditions, malnutrition, high infant mortality, and generally poor reproductive health, with only recently emerging importance of noncommunicable diseases, such as, diabetes and cardiovascular diseases. Most diseases are preventable and easily treatable. Over time, the pattern of diseases in the population has not shown any significant changes. Malaria still tops the list of diseases managed at the outpatient departments of clinics and hospitals (44%), followed by upper respiratory tract infections (6.8%), diseases of the skin (4.3%) and diarrhoeal diseases (4.2%). Hypertension, a disease commonly found in adults, also falls within the top 10 causes of outpatient visits in Ghana (at 2.8 %). The high prevalence of hypertensive diseases and other chronic conditions is reflected in the aging population (Ghana Statistical Service, 2005). communicable diseases are increasing with lifestyle changes. The non- Hypertension, diabetes, chronic renal diseases, cancer and mental diseases are increasing and there is a rise in alcohol and tobacco use, and substance abuse. Road traffic accidents are now responsible for approximately 1,300 deaths and 10,000 injuries per year (WHO, 2006). 11 Table 2: Top ten diseases reported at outpatient departments 2002 Disease Male Female Total % Malaria 1,523,807 1,835,384 3,359,191 43.94 Acute Respiratory Infection 246,693 272,959 519,652 6.80 Skin Disease and ulcers 157,754 167,508 325,262 4.25 Diarrhoeal Diseases 154,473 167,931 322,404 4.22 Hypertension 78,918 133,436 212,354 2.78 Home/Occupational accidents 103,491 84,452 187,943 2.46 Acute Eye Infection 92,357 94,877 187,234 2.45 Pregnancy & related _ 150,613 150,613 1.97 Intestinal worm Infestation 70,985 80,345 151,330 1.98 Rheumatism & Joint pains 66,098 80,454 146,552 1.92 complications Source: GHS Annual Report 2003 Table 2, shows that malaria and acute respiratory infection, skin diseases and diarrhoeal diseases are major health challenges in the country though all of these are preventable. Another major challenge are complications arising from pregnancy. This is particularly worrying because even though it only affects women of childbearing age, it still stands out as one of the top ten conditions in the country. According to HIV sentinel survey data, the national median prevalence has declined for a second time from 3.1% in 2004 to 2.7% in 2005 (WHO, 2006). The commercial sex workers in Accra and Kumasi had respective rates of 76% and 82% in 2001, which reduced to 54% in 2002 in Accra (WHO, 2006). Guinea worm disease particularly, affects fifteen districts in the Northern, Brong Ahafo and Volta Regions and results in significant suffering and reduction in food production. 12 4. OVERVIEW OF THE HEALTH SYSTEM AND CHALLENGES 4.1 Introduction In spite of the attention given to the health sector over the years, geographic and financial access to health care still remains a challenge3. This section reviews the health system in the country. The section is structured as follows: • Health sector reform, including its strategic plans and objectives; • Health service provision, health facilities and human resources; • The history of health care financing in Ghana, and • The financing of the health sector including the sources of financing, the distributions and expenditure. 4.1 Health sector reform Many changes have taken place in the health sector in the past decades. Before and after independence the MoH assumed the role of sole provider of health care services in the country with collaboration from the missions and para-government agencies (the military, police and the mines) (Service Provision Assessment Survey 2002). These services were oriented towards curative, rather than preventive care and involved programmes that were largely supported by donors. The Government long-term vision for growth and development was formulated in 1996 and called “Ghana Vision 2020”. This Vision is aimed at propelling Ghana from a low-income country, to a middle-income country by 2020. The Vision documents define the nation’s areas for priority attention in the medium and long terms as contained in Box 1 below Box 1: Vision 2020 priority areas • Maximising the healthy and productive lives of Ghanaians • Fair distribution of the benefits of development • attainment of a national economic growth rate of 8% • Reduction of the population growth rate from 3% to 2.75% • The promotion of science and improved technology as tools for growth and development The annual report of the Ghana Health Service (2003) clearly indicates that there are still people living beyond 8km radius to a health facility, though the WHO recommended distance is 5km, which affects access to health care services, especially among the poor and other vulnerable groups who can not access health care 3 13 The Medium-Term Health Strategy (MTHS) and a five-year Programme of Work (PoW) was also developed for 1997 to 2001 by the MoH, also aimed at guiding the development of health in Ghana. The second five-year PoW known as PoW II was also developed for 2002 to 2006. The objectives of the MTHS and the first PoW are outlined in Box 2. Box 2: MTHS and PoW priority areas • Increase geographical and financial access to basic services • Better quality of care in all facilities and during outreaches • Improve efficiency in the health sector • Closer collaboration and partnership between the health sector and communities, other sectors, and private providers both allopathic and traditional • Increased overall resources in the health sector, equitably and efficiently distributed Indeed, the mission statement of the MoH summarises the focus and direction of the health sector and is as follows: “As one of the critical sectors in the growth and development of the Ghanaian economy, the mission of the health Ministries, Departments and Agencies is to improve the health status of all people living in Ghana through the development and promotion of proactive policies for good health and longevity; the provision of universal access to basic health service and provision of quality health services which are affordable and accessible. These services will be delivered in a humane, efficient, and effective manner by well trained friendly, highly motivated, and client oriented personnel” 4.1.1 Organisation and Management Before the reforms of the health sector, the MoH developed its own policies, implemented and regulated them, evaluated its own performance and developed the human resources needed for the health sector. This was deemed to be inefficient and so the need was felt to decentralise roles and responsibilities. This resulted in the passage of the 525 Act, establishing the Ghana Health Service (GHS) in 1996 as the implementing body for public sector services, and thereby leaving the policy and 14 regulatory duties to the MoH. The operationalisation of the MoH is thus guided by the Civil Service Act. The separation of functions between the MoH and the main service provision agencies - Ghana Health Service and the teaching hospitals is expounded in Act 525. Another important service provider is the private sector which includes the NGOs and traditional health systems (Figure 7). With regards to regulation, the bodies set up include the Medical and Dental Council, Food and Drug Board, Pharmacy Council, and Nurses and Midwives Council. The reorganisation of the health sector is part of reforms being undertaken to improve efficiency in the health system. Other aspects of the reforms include a decentralised planning and budgeting system, strengthening of financial management, and a performance monitoring system. Strengthening of existing regulatory bodies and existing laws as well as the Sector-Wide Approach (SWAP) are all an integral part of the health sector reforms. The health sector is organised along a five-tier system: national, regional, district, sub-district and community levels. The Minister is the head of the health sector. The MoH is responsible for policy formulation, planning, and donor coordination and resource mobilisation. The GHS under the authority of a Director-General is responsible for service delivery. A Ghana Health Service Council is in place to oversee the activities of the Ghana Health Service. The teaching hospitals i.e. KorleBu and Komfo Anokye are autonomous bodies, complete with management boards. 15 Figure 7: Relationship of the MoH to the various sectors and organisations Ministry of Health (MoH) Public Sector Private sector GHS Private-for-profit Teaching Mission-Based Providers Traditional Other sectors Education Traditional Medicine Providers Quasigovernment institutions Other Private Alternative Medicine Statutory Bodies Civil Society Organisation Faith Healers Food and Agric. Works and Housing Local Gov’t and Rural Dev’t Environment, Science and Tech. Source: Ghana Service Provision Assessment (2002) 4.2 Health service provision, health facilities and human resources in Ghana 4.2.1 Health services provision (Public Sector) At the regional level, curative services are delivered at the regional hospitals and public health services are delivered by the District Health Management Team (DHMT), as well the public health division of the regional hospital (Ghana Service Provision assessment 2002). The Regional Health Administration (RHA) provides supervision and management support to the districts and sub-districts within each region. At the district level curative care is provided by district hospitals, many of which are mission based. District Health Administration (DHA) provides supervision and management support to the sub-districts. At the sub district level both preventive and curative services are provided by the health centres (Figure 8). They also provided outreach services to the communities 16 within their catchment areas. Basic preventive and curative services for minor ailments are being addressed at the community and household level with the introduction of the Community-based Health Planning and Services (CHPS)4. National attention is drawn to the role of traditional birth attendant and traditional healers. Figure 8: Organisational structure of Ghana health services delivery National (MoH/Ghana Health Service providing policy and strategic direction) Tertiary (apex of the referral system) Regional (provides specialised clinical and diagnostic care etc) Districts (a district hospital provides support to sub-districts in various respects including referral and emergencies and training etc) Sub-districts (a health centre services a geographical area with 15 000 to 30 000 population. It provides basic curative care, disease prevention services and maternity services (primary health care). Community (health delivered through community health nurses, outreach programmes, resident or itinerant herbalists, traditional birth attendants and/or retail drug peddlers) 4 Further explanation of CHPS is provided 17 4.2.1.1 The CHPS strategy A study known as the Community Health and Family Planning Project (CHFP)5 in the mid-1990s in the Kassena-Nankana district of Ghana showed that providing close-toclient services reduced mortality and fertility (Debpuur et al., 2002). In particular, the study found that a single nurse (called a Community Health Officer) equipped with a motorbike and relocated to a village health centre, could outperform an entire subdistrict health centre, increasing the volume of health service encounters in study areas eight-fold, and improving immunisation and family planning coverage (Bosu et al., 2004). The Ghana Health Service began to explore how to translate the research findings into policy for improved health service delivery in 1999. With support from development partners, managerial structures were established, training modules developed and staff training undertaken to start CHPS in ten lead districts, one from each region. Since then, CHPS has been seen as the key strategy to provide equitable and pro-poor health services in line with the objective of the GPRS and the health sector’s PoW I and II. Operationally, CHPS is defined as a “strategy for the health care delivery system to provide cost-effective and adequate quality basic primary health services to individuals and households in the communities where they live through engaging the community in the planning and delivery of services”. As part of the initial piloting of the Navrongo experiment in more generalisable GHS settings, investment was made to rapidly implement the experiment in the Nkwanta district in the Volta Region, in what has come to be known as the Nkwanta Replication Project Experience. Implementing CHPS in this district, as well as in the Abura Asebu Asamankese (AAK) district in the Central Region, and the Birim North district in the Eastern Region, in particular, have helped in promoting the GHS ownership of the CHPS process (Nyonator et al., 2003; Nyonator, 2004; Bosu et al., 2004) The CHPS approach includes the following elements, aimed at improving the efficiency of the district health system: • Establishing CHPS in all districts; • Strengthening the sub-district health systems to support CHPS; and 5 Also known as the Navrongo Experiment 18 • Re-orienting district hospitals to provide the referral support for the sub-district health systems. Successful implementation requires a number of factors, which are illustrated in Box 3. Box 3: The implementation of CHPS requires the completion of six "milestones" in an identified health zone 1. Health service work areas or zones have been delineated for primary health care outreach activities 2. Community leaders are oriented and involved in the health programme 3. A Community Health Compound has been established where a resident nurse provides health services, 4. Community Health Officers have been selected, trained and relocated to community locations 5. Equipment for transportation has been mobilised 6. Volunteer health organisers have been trained and deployed to support the Programme Source: Bosu et al., 2004 Potential benefits of CHPS as a pro-poor health strategy The key benefits of the CHPS model, particularly for the poor, include: • Direct service delivery to the community could foster provider-consumer interaction. As one woman in her community remarked to the former Director of Medical Services, “Now, if the nurse tells me something and I forget, I can ask her about it when we meet at the market place”; • The CHO is potentially on call for 24 hours every day of the week; • When combined with community-based health insurance and the health sector’s exemption policy, CHPS provides a unique mechanism to provide service to the poor who will otherwise be constrained by physical and financial access; • Improved service outputs could hasten the achievement of GPRS and MDG targets; and • CHPS provides an opportunity to deliver a wide range of preventive, promotive and curative health services including interventions, which may be considered a 19 priority from the perspective of the poor, such as, TB, malaria, HIV, guinea worm control and community integrated Management of Childhood Illnesses (IMCI). The Challenges of CHPS Even though CHPS is seen as a well tested initiative in reducing inequities and promoting geographical access to basic health care, it has a number of challenges (Nyonator 2005), that does not make it one-size fit all strategy. The challenges include: • Nurses who are the key players in the CHPS concept are worried about transfers to communities that do not have basic social amenities; • Supervisors and managers are worried about constrains in fuel, equipment, drugs, facilities, and manpower resources; • The government’s capacities to expand CHPS, conduct operations research, monitor and evaluate the program, and disseminate lessons learned are other constrains; and • Above all, the enormous resource required to roll out CHPS to all parts of the country is a major constrain. 4.2.1.2 Access to services Attendance is an indicator of service delivery and thus provides an indication of accessibility (geographical, financial, cultural etc), Outpatient Patient Department (OPD) visits in general have remained the same, though with significant regional variations. Encouragingly, outpatient visits per capita have increased minimally but steadily over the last five years (see Figure 9). 20 Figure 9: Per capita OPD visits 1995-2004 No of OPD Visits per ca 0.6 0.49 0.5 0.4 0.49 0.5 0.52 0.45 0.32 0.34 0.37 0.38 0.4 0.3 OPD VISITS 0.2 0.1 0 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 Year 4.2.1.3 Service delivery efficiency The best sector-wide efficiency measure available until recently was bed occupancy rates (BOR). This only applies to the use of hospital facilities for inpatient care and is incomplete. Without either turnover rates or Average Lengths of Stay (ALOS) it is not possible to interpret this indicator with certainty. The national data suggest that BORs declined from 62.7% to 58.4% over the year and there has been a steady decline since 2001 (GHS 2006). There are wide variations. Teaching hospitals record BORs above 90%, but some district hospitals has BOR as low as 40%. This implies that many hospitals are technically inefficient and may suggest that patients prefer to by-pass some hospitals in order to seek care in teaching hospital. 4.2.1.4 Priority public health programmes As noted in the 2002, 2003 and 2004 Health Sector Reviews, there has been overall stagnation in most public health service outputs between 2002-5, and most targets set by the MoH have not been met (GHS 2006). Some of the priority interventions that have a major impact on mortality include: • Maternal and child heath; • Reproductive health services; • Supervised delivery 21 • Essential Obstetric Care (EOC); and • Nutrition for child survival and development. 4.2.2 Health service provision (private sector) Currently, the private sector contributes 35% of health services in the country. Government support is targeted to raise this to 65% in the next 10 years. The private sector, however, provides basic curative health services and very few preventive services. Modalities for the supervision and monitoring of services of NGOs and the private sector are under development. 4.2.3 Health facilities In Ghana, health facilities are public, private not-for-profit e.g. the Christian Health Association of Ghana (CHAG), and private self financing. Public facilities include the teaching hospitals and all GHS facilities (hospitals, polyclinics, health centres, health posts, CHPS compounds, small clinics), including the 10 regional hospitals. Private facilities include hospitals, maternity homes, clinics, and chemical sellers. Chemical sellers are more wide-spread in rural communities and usually the first point of call. In the private sector, Greater Accra Region has almost a quarter (24.8%) of all private health facilities, with Ashanti following with 20%. Upper East Region recorded the least, 1.6% of all private health facilities in the country. There are more health facilities (over 60%) and beds (over 70%) in Ashanti, Eastern, Volta, Western, and Greater Accra regions than the rest of the Regions in the country (see Table 3 and 4). This is understandable given the large population sizes in these areas. Comparing the population size and the health facilities, these Regions appear to have more pressure on their health facilities than Regions like Upper East and Upper West. This trend is similar to the distribution of beds. In terms of ownership of beds, government facilities have more than 50% of the bed capacity in the country (see Table 4). Table 3: Regional Distribution of Health Facilities-2004 and relation to population distribution Region Western (WR) Central (CR) Greater Accra (GAR) Volta (VR) Population 2000 1,924,577 1,593,823 2,905,726 1,635,421 Teaching Hospital 0 0 1 0 22 Regional hospitals 1 1 1 1 Other facilities 310 263 308 338 Total 311 264 310 339 Eastern(ER) 2,106,696 0 1 389 390 Ashanti (AR) 3,612,950 1 0 445 446 Brong Ahafo (BAR) 1,815,408 0 1 250 251 Northern (NR) 1,820,806 0 1 193 194 Upper East (UER) 920,089 0 1 132 133 Upper West (UWR) 576,583 0 1 101 102 Total 18,912,079 2 9 2,729 2,740 Source: GHS 2005 Policy Planning Monitoring & Evaluation Division (PPME)- Table 4: Distribution of Hospital beds by Region and Ownership - 2004 in relation to population distribution Region Population Government Mission 2000 Quasi- Private Total Government Western 1,924.577 1,050 480 308 0 1,838 Central 1,593,823 1,130 366 54 0 1,550 G.Accra 2,905,726 2,871 0 759 593 4,223 Volta 1,635,421 1,260 967 47 0 2,274 Eastern 2,106,696 1,410 929 174 0 2,513 Ashanti 3,612,950 1,769 1196 256 594 3,815 B.Ahafo 1,815,408 384 1011 44 9 1,448 Northern 1,820,806 722 339 0 0 1,061 U.East 920,089 469 253 0 0 722 U.West 576,583 346 336 0 0 682 18,912,079 11,411 5,877 1,642 Total 1,196 20,126 Source: GHS 2005Policy Planning Monitoring & Evaluation Division (PPME) Available evidence (Ghana Statistical Service, 2005) shows that there is a general increase in the number of health facilities in both the public and private sectors. The number of hospitals in the public sector increased from 251 in 1991 to 333 in 2001. For Greater Accra Region, the number of hospitals almost doubled within the period, while the number of hospitals in Ashanti Region increased by a third. On the other hand, the number of hospitals in the Northern, Central, Volta, and Upper East Regions remained almost the same over the period. With regard to health centres, significant increases in the numbers occurred in all regions. 23 4.2.4 Human Resources The provision of human resources in adequate quantity, and with appropriate competence to provide health care services is critical in improving equity in access to health care services. Ghana is currently severely short of qualified human resources for health (GHS, 2003), targets for 2010 are shown in Table 5. According to the health sector review in 2006, the health sector has a work force of about 43,000 people. The public sector employs about 41,000 of which 4.8% are medical doctors, 34.7% are nurses (including midwives), 3.3% are pharmacists and 57.2% are nonclinical staff. The main issue is the large number of non-clinical staff compared with numbers of clinical staff in the health sector. Table 5: Health Staff Population ratios Category of staff Current Target for 2010 Doctors 1: 10,000 1: 5,000 Nurses 1: 1,587 1: 1,000 Pharmacists 1: 14,286 1: 10,000 Source: GHS (2005) Review of Ghana Health Sector Programme of Work The low numbers can be attributed partly to the low production levels of medical personnel from the available training institutions, which always fall short of annual requirements. In 2002, for instance, the medical training schools in Ghana produced only 159 physicians, as against a potential demand of over 1,000. This situation is also exacerbated by the high rates of emigration of trained doctors, inequitable distribution of staff and great disparities between the urban southern regions and the more rural northern ones. This has resulted in a very low level of medical personnelto-population ratios, that can barely support the optimal running of the present health system, let alone any scaled-up health system. For instance, the Ghana Service Provision Assessment (SPA, 2002) estimated for the year 2002 one doctor to a population of about 1: 8,554. A review of the health sector in 2006 showed a marked and wide geographical disparity across the country. Whilst Greater Accra has 3 doctors to 10,000 people, Northern region has 1 doctor to 100,000 people (see Table 6). Greater Accra has already reached the 2010 target staff: population ratios for doctors, nurses and pharmacists (see Table 6). However, a visit to any health institution including Korle-Bu teaching hospital reveals a woefully inadequate number of staff on duty taking care of both outpatients and inpatients. 24 Table 6: Selected Health Staff: Population Ratio (both public and private) 2005 Doctors/10000 Nurse/10000 pop Pharmacists/10000 Regions pop Western 0.5 4.4 0.2 Central 0.4 5.9 0.2 3 12 2.6 Volta 0.4 6.3 0.1 Eastern 0.5 6.6 0.2 Ashanti 1 4.1 0.6 Brong Ahafo 0.4 3.4 0.1 Northern 0.1 3.4 0.1 Upper East 0.4 7.1 0.1 Upper West 0.2 5.6 0.03 Greater Accra pop Source: Health Sector Review 2006 An aspect of the supply of health personnel relates to spatial distribution (see Table 7 for detail breakdown). While doctors are mainly stationed in hospitals, the regional share of doctors suggests a substantial mismatch between the number of hospitals and the number of doctors actually employed. For instance, Greater Accra Region and Ashanti Region have a little over half (55%) of the hospitals (both public and private) in Ghana but have 69% of doctors. On the other hand, Volta with 8.9% of hospitals has 4.7% of doctors, and the three northern regions with 7.6% of hospitals have only 5.1% of doctors. 25 Table 7: Distribution of health Professionals by Region 2004 Profession Medical Officers Dental Surgeons Pharmacists Medical Assistants Professional Nurses Auxiliary Nurses Physiotherapists Health Service Administrators Health Educators Biologists/Entomologists Accountants/Accounts Officers Dispensing Technicians/ Assistants Estate Officers Human Resource Managers Dental Technologists/Therapists Biostatistics Officers Catering Officers/Cooks Dieticians Nutrition Officers Technical Officers Administration Staff Medical Laboratory Technologists Other Professional Staff Other technical staff Artisans/Tradesmen Security/Guards/Watchmen Other Staff Grand Total Ashanti 308 4 64 69 1,278 669 4 26 6 13 162 250 7 2 4 5 80 3 2 206 28 12 7 152 91 183 2,017 5,652 B. Ahafo 55 1 15 42 552 433 3 11 10 5 144 101 4 4 1 3 28 1 3 156 29 5 7 107 67 141 1,275 3,203 Central 47 2 12 36 578 523 0 11 2 1 75 86 3 2 0 1 70 1 1 88 22 3 4 62 72 118 1,163 2,983 C.Admin 35 1 15 1 20 0 0 9 9 13 4 0 5 5 0 3 2 0 7 53 50 4 32 22 66 31 291 678 Eastern 75 1 20 38 895 956 2 15 0 2 141 122 2 2 0 4 70 1 0 141 21 12 3 119 81 81 1,630 4,434 26 G. Accra 480 11 81 57 2,295 1,249 9 14 1 8 282 133 6 3 6 3 152 7 2 227 38 31 8 117 110 123 1,819 7,272 Northern 24 1 8 41 543 435 2 10 1 3 54 52 6 1 1 1 39 1 4 79 14 6 1 75 42 62 767 2,273 U.East 29 0 7 34 387 302 0 5 1 2 56 36 3 1 4 36 1 3 67 6 3 13 47 40 91 401 1,575 U.West 9 0 4 16 336 115 1 5 1 1 57 22 2 1 0 1 17 0 2 44 14 3 3 51 24 68 487 1,283 Volta 49 0 12 26 763 668 3 12 1 3 106 75 3 1 1 1 82 0 2 93 43 6 3 77 135 123 1,745 4,033 Western 57 1 16 41 494 480 1 7 1 4 79 50 4 1 0 1 58 0 3 99 15 5 3 56 55 69 1,029 2,629 Total 1,168 22 254 401 8,141 5,830 25 124 33 55 1,160 927 45 23 17 23 634 15 29 1,253 280 90 84 885 783 1,090 12,624 36,015 Of late, the human resource problems seem to be compounded by a high rate of internal and external attrition. The public sector is losing large numbers of its health workers primarily to the private-for-profit sector and to mission health institutions. The more serious threat seems to emanate from external attrition. The situation is no different with other health workers such as nurses, pharmacists and laboratory technicians. The State of the Ghanaian Economy Report for 2002 (ISSER 2003) notes that 68% of medical officers, trained between 1993 and 2000, have left the country. The major beneficiaries of Ghana’s loss of medical personnel include the United States of America (USA), United Kingdom (UK), Germany and Canada. The USA, for instance, is estimated to be employing 1,200 physicians of Ghanaian origin; whilst United Kingdom has about 300 doctors, South Africa 150 and Canada 50 (ISSER 2003). Ironically, there seem to be more Ghanaian doctors working outside the country than inside Ghana. Ghana is also losing nurses in high numbers. The attrition of nurses however, reached alarming proportions during the past 5 years (see Table 8). It is estimated that Ghana has lost about 50% of its professional nurses to UK, USA and Canada in the last 10 years. The available records show that about 1,209 nurses left Ghana in 2002 compared to 387 in 1999. Table 8: Migration and Destination of Ghanaian Nurses 1998 1999 2000 USA 50 42 44 UK 97 265 646 Canada 12 13 26 South Africa 9 4 3 Others 4 4 8 Total 172 328 727 Source: Health Sector Review 2006 2001 129 738 46 2002 81 405 33 2003 80 317 10 Total 426 2468 140 2 8 923 6 5 530 407 24 29 3087 The increasing outflow of medical personnel has worsened the already precarious human resource situation and created a human resource gap in the health sector. This does not auger well for equitable access and sustainability of the health system and also negates economic growth and poverty reduction, since wealth is linked to health. 27 4.3 History of health care financing in Ghana Ghana has a fragmented history of health care financing. Before Ghana’s independence in 1957, user charges were instituted in all public health facilities and so health care has historically, been financed through taxation, user fees and donor support. After independence in 1957, health services became free to the public and were financed through general tax and donor support. Nevertheless, sustaining the quality and delivery of health services became problematic. Following the general reforms perpetuated by the World Bank and the International Monetary Fund (IMF) in 1985, the Ghana Ministry of Health (MOH) introduced significant client out-of-pocket payments (user fees) at points-of-service in the public health facilities. The aim was to recover at least 15% of recurrent operating costs. Though user fees for clients had existed earlier, the amounts paid were minimal and more of a token. The objective of recovering at least 15% of recurrent costs was met by only a few countries (Crease 1991). However, access and utilisation studies showed a significant reduction in the use of health services especially in rural areas (Crease 1991; Asenso-Okyere and Dzator 1997; Atim 1998) after the introduction of user fees. User fees, commonly called the ‘cash and carry’ system in Ghana, have undoubtedly contributed to inequitable health service access and utilisation between different socio-economic groups and between poor rural and richer urban dwellers (Waddington and Enyimayew 1990; Nyonator and Kutzin 1999). In the late 1980s, the MOH began to consider the feasibility of health insurance as an alternative to user fees. A number of pilot schemes were put in place to test the viability and feasibility of this alternative health care financing scheme. Some of the pilot schemes that were set up have led to some increases in utilization and access, promoting equity and efficiency in the areas in which these schemes existed (Atim et al. 2001). In addition to the Government initiated pilot schemes, a number of community-based pre-payment schemes sprang up and by 2002, there were more than 159 mutual health organisations covering just about 1% (220,000) of the population of the country (Atim et al. 2001). These schemes operated on a pre-payment basis, and most were owned and operated by health care providers (e.g., Nkoranza Health Insurance scheme-NKHIS), with a few having strong community involvement (e.g., Dangwe West Health Insurance Scheme (DWHIS) and Okwahuman Health Insurance scheme-(OHIS). 28 Despite the many community based health insurance schemes, user fees are still a major part of health care financing and this is because the insurance schemes cover a relatively small population. Although user fees are an important source of funding for health services in Ghana (Nyonator and Kutzin 1999), it is also well documented in the literature that it has negative implications for health service utilisation especially among the poor (Arhin 2001; Wagstaff and van Doorslaer 2003). Due to the inherent inequities associated with user fees, there was strong political support in 2001 when the Government announced the introduction of a National Health Insurance (NHI) scheme to replace ‘cash and carry’ or user fees at the point of service. This policy was translated into legislation in 2003. The NHI encompasses multiple schemes, with a mandatory health insurance scheme for those working in the formal sector, a district mutual health insurance (DMHI) scheme in each of the country’s 138 districts, private mutual health insurance schemes and private commercial insurance schemes, in order to afford all Ghanaians the opportunity to join a health insurance scheme of their choice (Government of Ghana 2003). The NHI is aimed at offering members access to health care without having to pay at the point of access and to offer affordable and sustainable medical care in the longer term. Ghana has thus implemented most of the known health care financing mechanisms: general tax, out-of-pocket (OOP), donor funding and health insurance (community based and the national health insurance). The next section summarises the sources of financing, financing intermediaries, and the expenditure patterns as contained in the National Health Accounts (NHA). 4.4 The National Health Accounts The National Health Accounts (NHA) seeks to trace all the health resources that flow through the health system. In other words, they constitute a systematic, comprehensive, and consistent monitoring of resource flows in the country’s health system. The NHA was specifically designed to inform the health policy process, including policy design and implementation, policy dialogue, and the monitoring and evaluation of health care interventions. Ghana conducted its first NHA in 2006 using 2002 data. Preliminary results of the NHA show that out-of-pocket (OOP) constitutes 24% of the total health expenditure in 2002 and expenditure from MoH and local/municipal government (district assemblies) constitute 20% each. The rest of 29 the financing agents were insignificant (see Table 9). It is however, not surprising that contributions from private insurance was insignificant, as private insurance in Ghana is virtually non-existent (see Table 9). The table also reveals that donor funding as a source of health care financing was significant. The percentage of donor funding is 20%. With regards to financing flow, figure 10 provides an overview of the flow of funds between key financing intermediaries (i.e. direct purchasers of health services) and health care providers. Over 60% of total health care funds in Ghana flow via public sector financing intermediaries (primarily the national, regional municipal district health authorities). According to the NHA, about 24% of the total health care funds flow through households (as OOP) (see Figure 10). Table 10 shows that over 60% of the total health care expenditure go to curative care. These preliminary results are still being reviewed. 30 Table 9: Summary of Health Care Financing Sources and Agents, 2002 in billion of Cedis (US$1 =8500 Cedis) Financing agents General Tax HPIC savings fund Parastatal employer fund Ministry of Health (MoH) & SWAp 186 Ministry of Education (MoE) 49 Ministry of Local Gov’t & Rural 143 Development (MLG & RD) Regional Government 110 Local/Municipal Government 297 (Districts Assemblies) Social security funds Parastatals (quasi Gov’t) 151 Private employee insurance program Private Insurance Enterprise (other than social insurance) Private household out-of-pocket NPISH (implementing agencies) Private firms and corporations (other than health insurance) Rest of the World (Donors) Not specified by any kind 736 49 151 Sub Total (Total Health Expenditure-THE) Financing agents spending on 21 health related items Total 757 49 151 Total (%) 31% 2% 6% Source: National Health Accounts GHS 2006 (unpublished) Private employer funds Households Other private funds HCF as a % of THE 78 Rest of the Total world Donor/NGO 214 478 49 143 33 70 33 94 176 461 7.5% 19.6% 151 0 0.0% 6.4% 0.0% 0 20.4% 2.1% 6.1% 0.0% 570 133 570 134 161 24.3% 5.7% 6.8% 27 26 501 2,349 1.1% 0.0% - 161 161 751 161 7% 31 3 0.441 6 30 - 754 32% 0.441 0% 507 21% 2,379 - 100% Figure 10: Health Care Expenditure in Ghana, 2002 (NHA 2006 using 2002 data) Ministry of Local Gov’t & Rural Dev’t 143b MoH & SWAp 478b Donors 26b Local/Munic ipal District 461b Private Household, Outof-pocket payment 570b NPISH implementin g agencies 134b Ministry of Educ 49b Parastatal (quasi gov’t) 151b Regio nal Gov’t 176b Tertiar y Hospit als 177b Private hosp. for profit 359b Region al Hospit als 137b Districts Hospitals 350b Public Health centres 145b >50billion cedis Other admin 160b Gov’t admin of health 425b Alternative or Traditional practice 5b * Private firms & corporation (other than health insurance) 161b Offices of physician’s private clinics 293b <50billion cedis * Source: National Health Accounts (NHA) 2006 using 2002 data 32 Gov’t assisted notfor-profit hosp 50b Offices of dentists 4b Dispensing chemists 157b Providers not specified by any kind 2b All other ambulances health care services 37b Provision and admin of public health prog. 34b Table 10: Summary of expenditure on services, 2006 Services Curative care Prevention and public health programmes Pharmaceuticals and other nondurables Health administration Capital formation Other Total Source: GHS 2006 (unpublished) As a %age of total expenditure on health 66.3% (inpatient: 19.9% and outpatient: 46.4%) 8.4% 6.7% 18.6% 0.0% 0.0% 100 4.5 Trends in health sector financing: GoG, donor funds and Internally Generated Funds Based on the limited data available, the government budgetary commitment and actual spending on health, as a proportion of total government spending have increased significantly over the years (see Table 11). For instance, GoG recurrent spending on health has consistently increased from 10.2% in 2001 to 14.5% in 2005. Total government spending in 2002 was around 41 percent higher than budgeted, largely due to the increase in the personal emolument (Item 1). It is estimated that expenditure on health care in 2002 was about ¢1,100 billion. Comparing data for the first two quarters of 2001 and 2002, there was a 9% increase in real per capita expenditure on personnel emoluments (Item 1) and a 4.5% decrease in real per capita non-salary expenditure (Items 2-4). A trend in the last few years has been the growth in spending on personal emoluments and other salary adjustments due partly to the Additional Duty Hours Allowance (ADHA), which was extended to most health staff. The Budget-MTEF therefore imposes neither a hard fiscal constraint on the sector as a whole, nor on control of individual items. The Budget for 2003 for instance, allocated only 16% of the government health budget to non-salary items. It is expected that important nonstaff expenditure will be put under increasing pressure in future years. 33 Table 11: Financial sector-wide indicators MOH 2001 baseline - (19992000) 5.9% 9.1% 2002 2002 Budget actual 2003 2003 Budget actual % GOG budget 10.3% 11.1% 11.5% spent on health system % GOG recurrent 11.0% 10.2% 10.5% 11.0% 12.0% budget spent for health 12.9% 30.2% 17.8% 16.1% % GOG recurrent health spending on non-salary items (2 &3) % of 63.0% NA earmarked/direct donor funds to total donor fund % IGF from NA NA prepayment schemes % spending on 48.5% 33.3% 40.9% 47.8% district and below (6 (items 2 & 3) mths) Total % spending on 41.0% 24.6% district from DPF & GOG3 Total exemptions for 14.36 regions (based on 6 regions6) % of exemptions 37.6% spent on ANC % of exemptions 16.9% spent on aged % of exemptions 43.3% spent on under-5 years % of exemptions 1.6% spent on the poor Source: Programme of Work, 2002; Ghana Statistical Service 2005. 8.0% 2004 actual 12.9% 12.0% 14.0% 43% 43.0% 50.0% 45% 5.0% 10.0% The large increase in salary requirements has altered the balance of funding between government and non-government sources. In the period 1998 and 2002 the proportion of funding from GoG sources increased to around 70%. The composition of GoG and donor funding has changed significantly over the last five years. The 6 . Northern, Ashanti, Greater Accra, Central, Brong Ahafo and Upper East. 34 proportion of the GoG budget spent on personal emolument has increased since 1998 from around 55% to more than 80%. The reasons for the increases in overall GoG spending on health could be attributable to the generally positive macroeconomic climate, including real GDP growth of 5-6% per annum over 2003-2005. Inflation rates also declined although they are still above 10%. Tax revenue also increased from 17% of GDP in 2001 to 22% in 2005 (Government of Ghana 2005) The GoG budgets for 2006 include projections for donor funding and internally generated revenue (IGF, or user fees). The health share of the national cake as indicated in Table 12 shows that the share of GoG spending on health is second only to education (19% of the total and its share of the HIPC spending is also relatively high (15%). The health sector is third to economic affairs and education in terms of total share of government spending in the 2006 Budget (Figure 11). How is management of the funding system in the health sector? The next section describes cash management system in the MoH with illustration of the flow of funds in the health sector. Table 12: Shares of Government budget for 2006 (¢ million) GoG Share (GoG) Public services 1,460,546.7 8% Defence 879,079.5 5% Health 3,465,062.3 19% Public order 1,043,100.6 6% Economic Affairs 2,422,444.0 14% Environment 66,392.4 0% Housing 1,478,825.8 8% Recreation 151,194.4 1% Education 6,812,333.9 38% Social protection 112,191.3 1% Total 17,891,170.9 100% Source: Ministry of Health 2006 IGF + donors Share (IGF/donors) HIPC Share (HIPC) 401,943.7 0.0 1,202,979.3 75,420.8 5% 0% 14% 1% 179,700 0 200,000 25000 13% 0% 15% 2% 4,928,729.8 36,026.1 1,305,065.9 59,559.1 659,570.0 57% 0% 15% 1% 8% 405,000 0 197,000 25,000 300,000 30% 0% 14% 2% 22% 0% 35,000 100% 1,366,700 3% 100% 5,706.7 8,675,001.4 35 Figure 11: Percentage share of total Government (GoG + IGF + Donors + HIPC) budget for 2006 Education 28% Social protection 1% Public services 7% Defence 3% Health 17% Recreation 1% Public order 4% Housing 11% Economic Affairs 28% Environment 0% Source: Ministry of Health 2006 4.5.1 Cash management issues Funding for the health sector is allocated through multiple channels (see Figure 12). The Ministry of Health has control of three main accounts: the health account (actually two accounts in Cedis and US Dollars), which is used flexibly mainly to finance service and investment items, a Cedi account for the service budget allocated by the Ministry of Health, and the Aid Pool Account, which is used to hold funding for earmarked programmes financed by donors. Funding for administration (Item 2) is allocated to Budget Management Centres (BMCs) by the Ministry of Finance through the district treasuries, while funding for personnel is paid directly through the commercial banking system to health staff (see Figure 13). Funding for investment is allocated directly by the Ministry of Finance, based on procurement plans and orders developed by the Ministry of Health. Some donors also finance programmes directly and (should) report spending to the Ministry of Health based on agreed programmes of work (Ensor and McIntyre 2004). 36 Figure 12: Flow of funds to the public health sector (2001 % of expenditure)7 Service (item 3) Ministry of Finance Development Partners Ministry of Health Controller General Service account 1.7% Investment (item 4) Health Account 2.2% Capital procurement Aid pool 6.4% 13.4% 15.8% Pooled earmarked funds 5.5% Direct earmarked funds Regions Regional & district Treasuries 7.2% 2.2% 12.4% 5.4% 11.3% Administration (item 2) 41.8% BMCs 4% IGF Commercial banking system Payroll (item1) 14.6% Staff Source: Ministry of Health audited Financial Statements, 2001 in Ensor and McIntyre 2004. 4.5.2 Resource allocation between levels of the health system The existing distribution of staff is an important factor driving the resource allocation between levels of the health system (Ghana Health Service 2003). This is due to the fact that personnel emoluments account for the vast majority of health care expenditure. A key target driving consideration of redistribution between levels is the GPRS health sector target of devoting 50% of recurrent expenditure to districts and below by 2004 (although the POW II target for this indicator is only 42%) (Ensor and McIntyre 2004). Expenditure on headquarters (MoH and GHS), was slightly lower than budgeted, while expenditure at teaching and psychiatric hospitals (24% of total expenditure), was considerably above the MTEF allocation (19%). Part of the reason for this is the greater proportion of Government of Ghana (GoG) and Donor Pool Fund (DPF) disbursements, relative to budgets is given to these facilities, rather than to the district levels and below. (See Figure 13). 7 Rounding errors may mean percentages don’t add to 100%. 37 Figure 13: Distribution of resources between health services levels 2002 MTEF 50 45 40 % share 35 30 25 20 15 10 5 0 TH PH RHS DHS MoH HQ GHS HQ Levels of health services Source: 2002 MTEF and Ministry of Health Financial Report for June 2002 in Ensor and McIntyre 2004 4.5.3 Resource allocation between regions An analysis of the decision-making process for allocating resources between individual regional offices, regional hospitals, district offices and district health facilities was undertaken in 2001 (Ghana Health Services 2003: Ensor and McIntyre 2004). This report indicated that the formula used relied heavily on equal allocations for facilities within the same level and on indicators of utilisation rather than need for health services (e.g. 30% of the funds for regional hospitals are allocated equally per facility and the other 70% on the basis of workload) (Ensor and McIntyre 2004). The report stressed that in order to promote greater equity, it was essential to allocate resources between regions and districts on the basis of the relative need for health services in each area (e.g. size of the population, demographic composition, level of deprivation, mortality rates, etc.). The 2002 PoW commits to “refining resource allocation criteria to address health inequities” while the overall PoW II more explicitly states that the “resource allocation formulae [should be] revised to include health needs, poverty and gender issues”. Only minor changes have been made to the resource allocation formula to date and no needs-based indicators have been included. However, considerable efforts have been made to redistribute resources to some of the most deprived regions through taking a ‘top-slice’ from the GHS budget 38 for targeting to these regions before the other allocations are made (Ensor and McIntyre 2004) (see Figure 14). Figure 14: Trends in real per capita resources between regions (% below or above national average) 100 80 60 40 2000 20 2002 0 Ashanti -20 Brong Ahafo Central Eastern Greater Northern Upper Region Accra East Upper West Volta Western -40 -60 Sources: Ensor and McIntyre 2004 4.5.4 Changing sources of revenue for the health sector During the health system review, it was also observed that the health sector sources of funding are changing. This change would be dramatic if the NHI scheme gathers momentum and health partners shift their funds to budget support. The other main changes affecting resource inflows are the shift to multi-donor budget support (MDBS) by some of the main donors to the health sector and the relative growth of the earmarked funding. In 2005, the EU shifted its support to MDBS, the World Bank, DFID and the Royal Netherlands Embassy (RNE) are currently debating the modalities of shifting their support for 2007 (MOH 2006). These are the largest contributors to the health fund. According to the September 2005 financial statement, the World Bank provided 45.7% of all donor assistance for the year; DFID 14.5%; RNE 13.2% and DANIDA 10.6%. For 2006, the main funders of health care are the RNE (18.7% of total aid to the sector); DFID (13%); and DANIDA (10%). The Danish government has set an upper limit of 25% of its aid which can be channelled through budget support, but faces the prospect of being the only donor to the Health Fund in 39 2007. The shift to MDBS, which is consistent with the Paris Declaration on Aid Effectiveness 2005, and the Ghana Partnership Strategy (MOH 2006) poses a potential threat to the health sector budget which must be managed carefully. Major concerns include whether: • GoG resources to health will fall if partners shift support to MDBS; • The MoFEP disbursement procedures will be more cumbersome or less flexible and predictable than the current Health Fund arrangements; and • There will be a loss of sectoral dialogue with donors, which could feed into ‘lost profile’ within MDGS and result in potential reductions in allocation and spending from the current health partners. Despite overall increases in GoG budget allocations to the health sector over the years, much needed salary increases and the other allowances have exerted severe financial pressure. At the same time, Government and donors have embarked on a number of initiatives to increase the flow of funds into the system such as the Heavily Indebted Poor Countries (HIPC) initiative, Global Funds for AIDS, TB and Malaria and promoting health insurance. 4.5.5 Other financing sources: HIPC funds One potential source of some additional financing for the health sector relates to debt relief resources. Under the enhanced HIPC initiative, Ghana will have reduced debtservicing payments (Ensor and McIntyre 2004). Debt relief does not increase government revenue, unless there are related grants and credits. It simply allows the Government to increase the share and value of the discretionary budget by reducing the statutory payment budget component (which includes debt repayment allocations). According to the 2003 Budget Statement, debt relief savings amounted to approximately $275 million in 2002, $183 million through traditional debt relief and $92.5 million as additional relief from HIPC. The majority of HIPC poverty reduction funds disbursed were made available to District Assemblies (DAs) (each of the 103 District Assemblies received ¢1 billion), Municipal Assemblies (each received ¢1.5 billion) and Metropolitan Assemblies (each received about ¢2.75 billion) (Ensor and McIntyre 2004: Ghana Statistical Service 2005). The only condition attached to this 40 funding was that it had to be spent on education, health, water and/or sanitation (Ensor and McIntyre 2004). The concern is whether there was equity in the allocation of these HIPC funds. A macro-economic policy analysis commented prior to these HIPC allocations that it appeared as if “the Government is intent on spreading [poverty reduction] resources evenly across regions and districts”. This assessment seems accurate, based on the actual 2002 allocations and some would question whether this approach is equitable. Figure 4 shows that population size differences translate into the average per capita HIPC allocations being above the national average in districts in deprived regions (i.e. Northern, Upper East and Upper West Regions) and below average in districts located in less deprived regions (i.e. Greater Accra). However, if one also takes into account the distribution of poverty between areas, with very high levels in the three northern regions and extremely low levels in Greater Accra region, the allocation of HIPC funds per poor person is extremely inequitable, (Ensor and McIntyre 2004). The argument that can be made is that fairness could be promoted, and a more dramatic impact on poverty reduction achieved, by taking inter-regional poverty incidence levels into account when determining future allocations to local, municipal and metropolitan districts. 4.5.6 The National Health Insurance Scheme Another potential source of funds is Health Insurance. International evidence however suggests that voluntary insurance schemes do not add much to the health sector’s resources, compared with that of user fees (Musau 1999; Ensor 1999; Ensor 2001; Dong et al 2003; Ekman 2004; McIntyre et al 2005; Baltussen et al 2006; Aikins and Arhinful 2006). Their main benefit is to smoothen expenditure on health care, a major advantage for the poor if they are willing and able to contribute (Atim 1999; Atim 2001; Aikins 2003; Dong et al 2003). Compulsory health insurance scheme act like a hypothecated tax and may generate additional resources for the health sector (McIntyre et al 2005). However, there should be no expectation that even the full implementation of the National Health Insurance (NHI) programme will close the financing gap if the intention is to fund universal and comprehensive health care. Results of the NHI implementation to date indicate slow enrolment levels, especially from the informal sector. The premium levels benefit package and exemptions are 41 issues of concern that would need to be examined if the NHI is to achieve its objectives8. Enrolments are still low and many members have not obtained their ID cards, even after several months following registration. According to the 2006 health sector review, a total of 120 district mutual health insurance schemes (DMHIS) are operating, with an overall coverage of 22% of the population. Coverage, however, does not equate to membership numbers.(Health Sector Review 2006). The membership varies significantly by region, with the highest proportion by far being in Brong Ahafo (nearly 27% coverage), where there were many independent schemes before the establishment of the NHI scheme. Overall, the average is just under 16% nationally (see Table 13). However, these members are not entitled to benefit from services until 6 months (mandatory waiting period) after they have paid their premium, which is a source of concern. The number of ID card-holders (those who are entitled to receive free services) is much smaller: 6.8% nationally. The prediction (by the NHI Council) that coverage will reach 50% in 2006 (Health Sector Review 2006) has not been achieved. Table 13: NHIS coverage, by region, 2006 % of pop. % of ID card Estimated Membership pop. ID holders holders population members 963,448 67,995 7.1% 34,159 3.6% U.East 561,866 52,870 9.4% 21,564 3.8% U.West 1,790,417 270,451 15.1% 82,244 4.6% Northern 1,968,205 525,252 26.7% 432,075 22.0% B.Ahafo 3,924,925 592,449 15.1% 201,840 5.1% Ashanti 2,042,753 284,863 14.0% 74,711 3.7% Western 1,687,311 234,449 13.9% 47,597 2.8% Central 3,576,312 597,768 16.7% 106,803 3.0% G.Accra 2,274,453 385,577 17.0% 318,706 14.0% Eastern 1,636,462 211,680 12.9% 68,963 4.2% Volta TOTAL 20,426,152 3,223,354 15.8% 1,388,662 6.8% Source: Health Sector Review 2006 Region 8 Within the next five years, every resident of Ghana shall belong to a health insurance scheme that adequately covers him or her against the need to pay out-of-pocket at the point of service use in order to obtain access to a defined package of acceptable, quality health services.” (National Health Insurance Policy Framework for Ghana, 2004) 42 4.5.6.1 Exempt categories-NHIS A major threat to the sustainability of the NHIS is the large proportion of members that fall within exempt categories (see Table 14). Only 12% of current members are formal sector workers, and a further 16% are informal sector workers. Thus, a full 72% of members do not pay for the services which they receive (the largest proportion being children, though only children of two paid up parents are eligible for this ‘exemption’). There is also anecdotal evidence that premium collectors, (who are already paid a 10% commission to enrol members), may also be taking bribes to register people as indigents (Health Sector Review 2006). This will increase the proportion of non-paying members even more. The District Mutual Health Insurance Schemes (DHMIS) also have an incentive to enrol the exempt, as they are paid a premium of ¢ 80,000 per person per annum from the National Health Insurance Council9 (NHIC), which is higher in many cases than the premium informal sector workers are charged (¢ 72,000) (Health Sector Reform 2006). Boxes 4 & 5 show the benefit package including the excluded package for the NHIS. Table 14: Breakdown of NHIS membership: 2006 Membership coverage Formal sector Informal sector Paying members Pensioners Children 70+ Indigent Overall exempt Total Source: Health Sector Review 2006 Number 468,092 615,450 1,083,542 43,208 1,751,175 266,421 790,078 2,850,882 3,934,424 Proportion of members 11.9% 15.6% 27.5% 1.1% 44.5% 6.8% 20.1% 72.5% 100.0% The National Health Insurance Council is the governing body that regulates, registers, licenses accredits and supervises the operations of Health Insurance Schemes. 9 43 Box 4:Ghana NHIS Minimum Health Care Benefits Outpatient Services Consultations including reviews: these include both general and specialist consultations. Requested investigations (including laboratory investigations, x-rays, ultrasound etc) for general and specialist out-patients services. Medication (prescription drugs on National Health Insurance Scheme Drugs List, traditional medicines approved by Food and Drugs Board and prescribed by accredited practitioners). Out-patients/Day Surgical Operations. (e.g. hernia repair, incision and drainage etc) Out-Patient Physiotherapy. Inpatient Services General and Specialist In-patient care Requested investigations (including laboratory investigations, x-rays, ultrasound scanning etc) for in-patient care Medication (Prescription drugs on National Health Insurance Scheme Drug List, blood and blood products) Cervical and Breast Cancer treatment Surgical Operations In-Patient Physiotherapy Accommodation (General Ward) Feeding (where available). Other Specific Services Oral Health Services Pain Relief (e.g. incision and drainage, tooth extraction, temporary relief) Dental Restoration (simple Amalgam filling, Temporary Dressing) Eye Care Services Refraction Visual Fields A-Scan Keratometry Cataract removal Eye Lid Surgery Maternity Care Antenatal Care Deliveries (normal and assisted) Caesarean Section Postnatal Care Emergencies All emergencies shall be covered. These refer to crisis health situations that demand urgent intervention. They shall include: Medical emergencies Surgical emergencies (including brain surgery due to accidents) Paediatric emergencies Obstetric and Gynaecological emergencies (including Caesarean Section) Road Traffic Accidents Dialysis for acute renal failure Public Health Services funded under special programme Some services are already being provided free of charge by Government through its public health programs. Under the National Health Insurance Scheme government will continue to provide these services free of charge. These include: Immunization Family planning In-patient and Out-patient treatment of mental illness Treatment of Tuberculosis, Onchocerciasis, Buruli Ulcer, Trachoma Confirmatory HIV test for AIDS Patients 44 Box 5: Ghana NHIS Excluded Benefits The NHIS is intended to cover basic healthcare treatment. As such, certain services will not be covered under the National Health Insurance Scheme. District health insurance schemes have the discretion to decide whether or not they will offer the following services as additional benefits to their members. Rehabilitation other than physiotherapy Appliances and prostheses (optical aids, hearing aids, orthopaedic aids, dentures etc) Cosmetic surgeries and aesthetic treatments HIV retroviral drugs (symptomatic treatment of opportunistic infections and other AIDS related diseases will be covered). Assisted reproduction (e.g. artificial insemination) and gynaecological hormone replacement therapy Echocardiography Photography Angiography Orthopaedics Dialysis for chronic renal failure Organ transplantation All drugs that are not listed on the NHIS drugs list Heart and brain surgery (other than those resulting from accidents) and cancer treatment (other than breast and cervical) Mortuary services Diagnosis and treatment abroad Medical examinations for purposes other than treatment in accredited health facilities (e.g. visa application, educational, institutional, driving license etc) VIP ward (accommodation) Source: MOH 2004, NHI Policy Framework for Ghana: Revised version. At present, 3.87% of the total population have been registered as indigents under the NHIS, which is higher than the original budget estimate of 0.5%, but lower than the estimated 27% of the population which are classified as ‘very poor’. The process for identifying indigents, carried out by the DHMIS with community involvement, is currently vague and open to abuse. It is not clear if ceilings are set for the proportion of indigents which can be enrolled by a DHMIS, and if so, whether this ceiling is uniform or related to poverty rates in the district. 4.5.6.2 Sustainability of financing The revenue for the NHIS currently comes from a 2.5% levy on VAT; mandatory payroll deductions of 2.5% of the 17.5% Social Security and National Insurance 45 Trust10 (SSNIT) contributions for formal sector workers; and graduated premiums for the informal sector.11 Box 6 outlines some of the constraints to growth. Box 6: Constraints to growth of income from premiums include: • The large informal sector (80% are working in the private informal sector, according to the 2000 census (Ghana Statistical Service 2002)), for which is hard to enforce membership (membership is currently voluntary for this group, but the plan is to move towards compulsory membership); • The large size of the groups which are eligible for exemption (for example, children under 18 constitute 41.3% of the population); • The low premiums, which are currently being paid12. Any increase in these would reduce the scheme’s attraction to the informal sector and stretch willingness and ability to pay; • The fact that most of the formal sector is already covered now (it will never be fully enrolled; there is a right to opt for private insurance cover). Source: Health Sector Review 2006 Financial viability is also potentially threatened by the comprehensive nature of the benefits package, as currently designed (it covers all services, with only a few restrictions on prosthetics, cosmetic surgery etc.)13. There are no co-payments, including drugs, and as both clients and providers have an interest in increasing the number and quality of services offered, the insurance schemes will have to develop systems for controlling cost escalation. Monitoring data collected in Brong Ahafo and Eastern Region by DANIDA in 2005, show that costs per OPD and per admission are higher for insured than for non-insured clients, which is probably due to a Employees contribute 5% and employers contribute 12.5% making a total of 17.5%. This is meant to act as a retirement benefit to employees. With the NHIS, 2.5% of the 17.5 % is deducted as part of the National Health Insurance Fund. Because of this deduction, formal employees are exempted from paying premiums to become members of the National Health Insurance Scheme. 11 The levy on VAT (expected to yield ¢ 1.34 billion in 2006 and currently providing about twothirds of the NHIS revenue at national level) is not related to the size of coverage, so there is a curious perverse incentive for the NHIS to not extend coverage too high - higher coverage will lead to higher claims, but without significantly increasing revenue as the premia are low and the majority of members are exempt, if current patterns continue (MOH 2006) 12 Premia are meant to be graduated, from ¢72,000 to ¢ 480,000, according to income. However, it is not possible to make assessments of income so in practice virtually all are paying the bottom tariff. The regional report for Eastern Region for 2005, for example, quotes rates as ranging from ¢72,000 to 80,000 per adult. The average per paying adult is ¢74,000. 13 Schemes prior to the NHIS tended to offer more limited packages – commonly outpatient care was excluded (Whitaker & Walford 2003). 10 46 combination of supply-induced demand and/or moral hazard14. Another study of the Nkoranza scheme in 2005 showed a high rate of caesarean delivery (15%), whereas universal indications for this surgical procedure range from 5-10%. Restrictions on self-referrals to secondary and tertiary care will also be an important way of curbing costs in future, as the unit costs of care rise steeply at higher levels in the health system. The level of overheads being carried by the NHI Fund15 (NHIF) is also of concern. By March 2006, ¢114 billion had been disbursed by the NHIC, of which 33% was spent on administration. The NHIC employs 22 people at national level, but in each district it pays for a staff of five and allowances to a board of 15 local members. While higher set-up costs are to be expected at the start of a scheme, this proportion should fall as the scheme grows and should be monitored to ensure that it does not remain higher than the stipulated limit of 20%16. Of most immediate concern is the possibility that the fund, or at last district funds, will run out of cash. This is to be expected as insurance schemes enrol members but need to pay for services before the fund has been fully funded by accumulated premiums. To date, the NHIF has benefited from the build up of formal sector worker contributions before the scheme was launched; the failure to sign contracts with tertiary institutions (which are now getting under way); and the lag time between joining and being eligible to benefit from services. As these financially advantageous circumstances fade, some of the schemes may face cash flow deficits. This could be potentially catastrophic. The NHIF would be unable to pay providers and confidence would be lost. Providers might then be reluctant to exempt members from charges so that consumers’ confidence in the scheme would be eroded. Generally, this means that young insurance schemes need to be capitalised during their first few years if operation. The problem may be avoided in the case of the NHIF by the continued inflow of revenues from VAT and SSNIT, but it would be better to be certain. It has been agreed to build some cash flow scenarios under different 14 Moral hazard is the tendency to abuse the scheme by clients, providers or both. On the part of clients, this is commonly done by consumption of unneeded services because they no longer have to pay out of pocket and the service appears free. On the part of providers, this is commonly done by provision of unnecessary services and over billing in order to earn more revenue. (Ghana Health Service 2004) 15 The NHIF is a fund set up by Government where funds accrued from various sources are deposited for disbursement to District Health Insurance Schemes. 16 District Assemblies (DAs) have also assisted with set-up costs, such as office equipment and computers, as have interested donors such as DANIDA. 47 revenue and cost assumptions to test the robustness of the NHIF’s future cash flow position. One of the objectives of the insurance scheme was to reduce financial barriers and so increase utilisation. This is now being reported in areas where the schemes are operational and may be an indicator of success, rather than ‘frivolous use’ of services as is generally assumed. Although increased health service activity is of prime importance, utilisation rates should be monitored, preferably by region and socio-economic group, as there is a risk that increased usage by the insured actually reduces access for the poor. The highest risk is that those with good access to facilities are more likely to join and to increase their demand for services. This will eat up a greater share of the public budget too, as the NHIS currently only covers the user fee component of costs (less than a fifth of full costs). The growth in utilisation also poses a challenge to quality of services, given the limited capacity and staffing in many areas. Accreditation of private providers, quality assurance of existing public and mission facilities (which has yet to be carried out), and the creation of an incentive for health workers, are all equally important to ensure that quality does not deteriorate. At present, provider facilities are paid on a fee-for-service basis, which is the familiar system, but it is prone to supply-induced demand. The NHIC initially drew up national tariffs for drugs and services, but they were found to be higher than the prices charged by facilities. As a result, in most cases, facilities charge the NHIF at IGF rates for both drugs and services. There are alternative charging arrangements that might have advantages in containing costs and increasing the incentives providers have to be efficient. For example, the mission sector has standardised fees for different cases, irrespective of the number of consultations or admission days, and it would not be difficult to do the same in the government sector. 4.5.6.3 Future role of the NHIS Although the NHIS aims to replace IGF income, it offers the potential to shift purchasing of all, or parts, of curative care from the MoH to the NHIS (Health Sector 48 Review 2006). This would leave the GHS BMCs as the purchasers of public health services (‘non-personal’ services). However, it is important to separate this discussion from another important one: whether the NHIS might eventually be a more efficient mechanism for purchasing care from providers and its potential as a fund-raising mechanism. In light of the points made above, the NHIS should be seen primarily as a way of smoothing health care costs for households, rather than adding to the sector budget as a whole. Although it has brought in additional funds in the form of the VAT levy, the MoFEP is able to offset that against other sources, so its overall resource mobilisation effect may be neutral. There are already plans for a new phase of reforms to the system from within the NHIC, which is currently both the regulator of schemes and also the manager and conduit for funds (Health Sector Reform 2006). The plan is to separate those functions and also to cut costs and increase the size of the risk pool by creating a unified scheme, with zonal offices (rather than the current system of independent mutual schemes at district level). This would make benefits ‘portable’ without the need for schemes to compensate each other. The NHIC would also like employers to make a contribution equal to that of employees (2.5% of SSNIT). Also under discussion is the creation of a uniform price (at a higher level) for informal sector workers and the option of offering two packages – a basic one, and one with higher quality (non-clinical) features, such as food and accommodation. While many of these suggestions make sense from a business point of view, they would increase the cost to employers and members, and may have labour market consequences that may not prove acceptable. The implementation of the NHIS in Ghana proceeded with various forms of insurance schemes some of which never went beyond the planning stage. Table 15 provides an overview of the various forms of schemes including the current NHIS which has grown to replace all existing schemes. 49 Table15: Overview of health insurance in Ghana Name Features Stated objectives Provision of free medical care for civil servants and some beneficiaries Civil servant Health Care Schemes (i.e. Ashanti & Upper West Regions) Existing Public Sector Health Care Schemes “Centralized National Health Insurance Company”* Earlier Public Sector Initiatives To mainstream compulsory Social Insurance Scheme for SSNIT employees and registered cocoa farmers Forty-seven MHOs nationwide functional in 2001 Community initiatives To improve financial access to health care Revenue collection - Past 4 years, Government annual allocation of ¢3.5 billion (June 2000) - Channelled through the Regional Health Administration for all MDAs - Formal sector contributes 5% of salary; - Registered cocoa farmers contributes 7.19% of producer price - Pilot rural-based communityfinanced schemes for non-formal sector - Annual contribution by members - Schemes collection premiums Pooling of funds Purchasing Provision Free medical care for 76,703 civil servants, their spouse & 4 children - Comprehensive services (primary care & hospital services) - Fee for service - Mainly public providers - All SSNIT contributors - Registered cocoa farmers Comprehensive services (primary care & hospital services) Enrolees register with single preferred provider - 86,822 total members -Low risk-equalization between insurers - Mainly outpatient services at primary health care - Public & Mission facilities depending on the originators of the Scheme 50 Name Features Nationwide Mutual Medical Insurance – 1993 under the auspices of the Society of Private Medical Practitioners Private Sector Initiative Metropolitan Health Insurance Plan – Metcare Private Sector Initiative Ghana Healthcare Private Sector Stated objectives Revenue collection - Annual contribution by members - Premium collection by Insurance company Pooling of funds Social responsibility Metropolitan Insurance Company - Based on commercial & industrial medical Aid Society of Zimbabwe - 15,000 members on full coverage - 25,000 members on partial coverage Access to basic facilities SSNIT Established by SSNIT in 1999 51 Purchasing a) Classic package: - ¢2 million per annum for out-patient care; - ¢5 million per annum for In-patient care; b) Premier package: - ¢3 million per annum for out-patient care; - ¢8 million per annum for In-patient care; c) Executive package: - ¢5 million per annum for out-patient care; - ¢10 million per annum for In-patient care; d) Prestige package: - Most comprehensive package; e) Sankofa package: Design for those living aboard who wants to buy package for relatives living in Ghana a) General Care Policy for basic health care at ¢20,000; Provision Registered members of the Society of Private Medical Practitioners. In 1997, Scheme ran into technical solvency with National Insurance Commission. ` Both government and private facilities 200 private hospitals & Name Features Company Initiative Stated objectives at affordable contribution Revenue collection - Annual To improve District-wide Current contribution by Public financial Health members Initiatives access by Insurance - Schemes replacing the Schemes in existing “Cash collection all 138 premiums and carry” district - NHI system functional to some decree Framework of analysis adapted from (Kutzin, 2001) Pooling of funds Purchasing Provision - 180,000 employees b) Premier Care Policy for basic and private health care at ¢40,000; c) Super Care Policy most comprehensive at ¢80,000 Comprehensive services (primary care & hospital services) clinics& pharmacies - 22% of total population but only 6.8% currently have IDs to enable them access services *This scheme never took off 52 Public, mission facilities in the districts and some private facilities 4.5.6.4 Recent Studies on Health Insurance in Ghana: Key findings The Ghana-Dutch Collaboration for Research and Development which was established in the year 2000, has sponsored most recent research in the health sector. Research conducted on health insurance can be classified into four main areas: 1) Design and implementation; 2) Community views and perceptions; 3) Evaluation; and 4) Provider perspective. In all, details of seven studies have been summarised in Table 16. The findings of the studies range from perception of providers, premium payment mechanism, benefit package, resource mobilization, and scheme challenges. 53 Table16: Summary of recent studies on Health Insurance in Ghana Topic Evaluation of informal mutual health organisations in the southern and northern sector of Ghana (Baku et. al., Unpublished) Main Objectives To evaluate existing informal mutual health financing schemes and identify best practices, nagging problems, to inform policy decision on workable options for health financing in the formal sector. Key Findings Most scheme members were illiterate. Schemes studied employ a flat rate premium system. Quality of service is motivation for joining a scheme. Payment of premiums was by cash. Varied benefit packages. Resource mobilisation, major problem. Financing Health through community Health Insurance, what the community thinks (Galley & Afenyaadu, Unpublished). To explore the views of rural communities in the Juabeso-Bia district on Mutual Health Organisations. Community Satisfaction, Equity in coverage and implications for the sustainability of the Dangme West Health Insurance Scheme (Bruce et al., Unpublished) Perception and Demand for Mutual Health Insurance in To describe community perceptions of, experience and satisfaction with the Dangme West Health Insurance Scheme (Dangme Hewaminami Kpee or DHK); ability of scheme to equitably reach all households; and the potential influence of these on the sustainability of the scheme To provide relevant information that would lead to informed decision-making in the design and implementation of mutual health insurance schemes in the Many not involved in decisions making. Many prefer health insurance to cash and carry. Many prefer monthly contribution of premium. Premium payment influenced by ability to pay. Want the health insurance to be owned and managed by community members. Choice of treatment was based on quality of care, proximity, and cost. Contributors are contributing for free, quick, quality health services. Sources of set-up funds: Royalties from chiefs, SSNIT and HIPC fund. Other means of pre-financing: Deducting a percentage from the sale of cocoa beans from farmers. Wide expression of dissatisfaction. Less poor households registering in disproportionately higher numbers. Insured clients were made to wait longer than uninsured clients. Disapproval by providers when insured clients made multiple clinic visits. Reasons for refusal to renew: not having money, large household size, poor reception; quality of drugs given. Reasons for not registering: no money, no enough information and did not understand it etc. Existence of risk sharing groups like farmers groups etc. Some members prefer cash payments on instalment basis. Forcing the sick to pay before receiving 54 Topic the KassenaNankana district of northern Ghana. (Akazili et al., Unpublished) Main Objectives Kassena- Nankana District and other districts of similar socioeconomic and cultural values. Key Findings health care identified as the main setback. Members expect more fairness, some respect from health personnel etc. Age and area of residence influences one’s willingness to contribute to a MHIS. What are the staff saying”? Providers’ perspective of the National Health Insurance in Ghana (Cofie et al., Unpublished). Evaluating the effects of the National Health Insurance Act in GhanaBaseline report September 2005 (Sulzbach et al., Unpublished) 17 . To examine the health workers knowledge, perceptions and concerns and assess their readiness towards the implementation of the health insurance Major problems identified: Shortages of staff. Lack of transportation. Work pressures. Inadequate water supplies. Improper record keeping. Inadequate supervision. The insured more likely to seek formal health care than uninsured. Insured inpatients were significantly more likely than uninsured patients to receive an x-ray. Insured patients were largely able to afford their care. Uninsured patients did not have sufficient cash reserves to pay their bills. Insured women were significantly more likely to deliver by caesarean. Insured paid significantly less for delivery care than did uninsured women. Wealth was a significant factor in the outcome of interest. Mutual Health Organizations (MHOs) in Ghana and Implications for Improving the Success of Health Insurance (Bruce & Bultussen, Unpublished). To make an inventory of risk mechanisms and other technical features of Mutual Health Schemes and its effect on economic sustainability of schemes. 17 • • To provide the GHS with timely information on the implementation of the National Health Insurance Scheme at the district level. To monitor the effects of the implementation on providers at the district level. Private and public schemes had few measures in place to : (1) Control moral hazard and reduce adverse selection; and (2) Most schemes were managed by paid staff. Very few public schemes and slightly more private schemes use actuarial methods to set premiums and define benefit packages. Financial performance indicators varied widely between schemes. Both public and private MHIS make only limited use of risk management techniques This study was funded by PHRplus 55 4.5.6.5 Research agenda to support health financing (including National Health Insurance) policy and programme development and implementation in Ghana Apart from the health insurance studies listed above, key stakeholders have held two meetings, in 2005 and 2007 as part of work financed by the Netherlands Organisation for Scientific Research. The main goal was to inform selection of research areas (see Table 17) to make sure that research on health financing and community health insurance in Ghana contributes to contribute to useful and meaningful information to input into policy and programme development and implementation (GHS 2007). Below is a table showing priority areas for research in health financing in Ghana, as discussed by the key stakeholders, using Kutzin’s framework (Agyepong, et al. 2007). 56 Table 15: Issues from 2005 and 2007 stakeholder meetings on priority issues for research put into a modification of Kutzin’s framework of functions of the health care financing system Function Sources of revenue to support the scheme and methods of collection /fund mobilisatio n Cross Cutting Research Issues and impact questions How to increase overall Impact of premium coverage of NHIS: Increasing payments on voluntary enrolment in the equity (are district mutual health insurance different socioschemes and therefore the size economic groups of the risk pool and revenue registering generated from premiums (preequally and paid resources) therefore equally o Who enrolls? benefit from the o What makes people to general enroll or not (issues of trust and solidarity, government tax revenue willingness to pay, ability subsidies to the to pay, expectations, NHIS) socio-economic o Who background, literacy) benefits o Impact solutions as o What spread payments??? impact on o Costs of increasing health enrolment status Sustainability of the current o What benefit package and groups of impact on exempt in relation to the out of premiums, amounts generated pocket by the National Health Insurance Currently available research information Priority policy questions Samuel Prah (2006) Factors contributing to low registration of the NHIS in Kassena Nankana district. MPH thesis, UG-SPH Robert Adatsi (2006) Factors affecting enrollment in the NHIS – A Study from the Ho Municipality. MPH thesis, UG-SPH Agyepong I.A., Bruce E.S., Narh-Bana S., Ansah E., Gyapong M. (2006) Making health insurance and equitable and pro-poor financing mechanism in Ghana: some reflections. Medical Education Resources Africa (MERA). January 2006. Issue 21. Ghana Edition. Pages 5 – 14 Arhinful Daniel Kojo (2003) The Solidarity of Self-Interest. Social and Cultural feasibility of rural health insurance in Ghana. University of Amsterdam. Doctoral thesis. Asenso-Okyere WK, Osei-Akoto I, Anum A, Appiah EN ( 1997) Willingness to pay for health insurance in a developing economy. A pilot study of the informal sector of Ghana using contingent valuation. Health Policy. Dec;42(3):223-37 Atim C. (1999) Social movements and health insurance: a critical evaluation of voluntary, non-profit insurance schemes with case studies from Ghana and Cameroon. Soc Sci Med.;48(7):881-96 Daniel Kojo Arhinful August 2005Evaluation of Danida Supported Health Insurance Schemes Operating From 2001- 2003: Okwawuman Health Insurance Scheme Eastern Region Unpublished work Dr. Moses Aikins September 2003 Emerging Community Health Insurance Schemes/Mutual Health Organizations in Ghana: Danida’s Achievements and Challenges Unpublished work Supervised by Ib Bygbjerg Health Insurance Schemes In Northern Ghana: 57 Function Cross Cutting Research Issues and impact questions payments Levy and supported provided by o What other government tax revenue impact on How to mobilize funds to cover reduction exempt groups too poor to pay. of Premiums catastroph o Basis for setting ic health premiums expenditur o Is there a need to e standardize premiums or leave it open to the Impact of decentralization schemes o Willingness to pay and Public-private partnerships ability to pay premiums o Use of non cash Community mobilisation/ payments especially in participation in rural subsistence governance, economies with little social support cash flow networks) o Implementation of exemptions /subsidies o Should there be copayments? o If co-payments introduced: Optimal level of co-payments with health insurance (deductibles, ceilings) Currently available research information Priority policy questions A case study of Salamba Women’s Health Insurance Scheme November 2003. Unpublished work Dr Moses Aikins Jaman South Health Insurance Scheme, Brong-Ahafo Region. External Evaluation, 2004 Unpublished work (Study) Moses Aikens (2004) Tano Health Insurance Scheme External Evaluation. Unpublished work George Y. Segnitome September, 2005 The District Mutual Health Insurance Scheme In Bosomtwe-Atwima-Kwanwoma. The Expectations Of The Community. Student thesis Patience Fakornam Doe September, 2005Community Perceptions Of Asuogyaman Health Insurance Scheme: A Case Study Of The AdjenaGyakiti Sub-District. A Dissertation Richard Fosu 1999 Community Based Health Insurance Scheme In Nkoranza District – Design, Implementation, Management And Patronage A Dissertation George Abraham, 2003. Evaluation Of The Susu Health Insurance Scheme In Manhyia Hospital, Kumasi (Ashanti Region). Student dissertation Dr. Francis Boakye Takyi August, 2002 Community Health Financing: The Wayforward In Agogo Sub District. A Dissertation Adjei Adjeisah George June, 1999 Demand For Health Insurance: A Survey Of Formal Sector Employees In The Birim South District Of The Eastern Region, Ghana. A Thesis Amoako, Kwame August, 2001Factors Affecting The Feasibility Of A Community Health Insurance Scheme At Poyentanga In The Wa District. Student dissertation C. Lawuo Mulbah-Gwesa September, 2002 The Dangme West Community Health Insurance Scheme: How Affordable is the Premium? Student dissertation 58 Function Priority policy questions Currently available research information Cross Cutting Research Issues and impact questions Pooling of health care revenues Allocation of resources Where and how to pool funds: o Is the current arrangement of independent fund holding by district level MHO adequate o Should we consider regional level fund pooling How to allocate financial resources between central/sub national/community levels or between levels/types of services (public health interventions, PHC and hospital sector) o What are roles of central and local government (in lieu of decentralisation) with regards to financing service provision (essential package of services) and/or o With regards to reaching poor/vulnerable – removing or decreasing Henry Dako Offei-Akoto (2002) Factors Affecting Feasibility Of A Community Health Insurance Scheme In Funsi Area Of Wa District. Student dissertation Impact on equity and access Impact of decentralisation Public-private partnerships Impact on equity and access Impact of decentralisation Public-private partnerships 59 Function Priority policy questions Cross Cutting Research Issues and impact questions Currently available research information financial access barriers Costs and cost-benefits of various interventions Economic evaluation and costeffectiveness of resource allocation and alternative use of resources. How much is being spent on administration versus payment of benefits and entitlements What is the cost of running the national health insurance council versus the costs of running the district mutual health insurances schemes i.e. how much money stays at the central level versus how much goes to the implementation levels? How to compose/revise benefit package to be covered by insurance o Basis for package o Cost effectiveness of package o Cost analysis (affordability for the scheme) o Coverage of essential services for the 60 Function Priority policy questions Currently available research information Cross Cutting Research Issues and impact questions population Possibility of standardisation, based on cost analysis and objectives of the NHIS Is the insurance scheme financially sustainable under current arrangements o Costs of running schemes versus revenue o Effectiveness of risk equalisation o Impact of NHIS on uptake of services and cost of care o Methods of minimising abuse by schemes, providers and clients o Purchasing and provider payment arrangeme nts and behavior How effective are the current contracting arrangements and performance agreements for various types of services and service providers o Inpatient care o Outpatient care o Public sector o Private not-for-profit o Private self financing (for Impact on equity and access Provider autonomy Public-private partnerships Impact on quality of care o How is provider Asenso-Okyere, W. K., Osei-Akoto, Isaac, Anum, Adote & Adukonu, Augustina (1999) The behavior of health workers in an era of cost sharing: Ghana's drug cash and carry system. Tropical Medicine & International Health 4 (8), 586593..1999. Daniel Kojo Arhinful August 2005Evaluation of Danida Supported Health Insurance Schemes Operating From 2001- 2003: Okwawuman Health Insurance Scheme Eastern Region Unpublished work Dr. Moses Aikins September 2003 Emerging Community Health Insurance Schemes/Mutual Health Organizations in Ghana: Danida’s Achievements 61 Function Priority policy questions profit) What are the most appropriate provider payment forms /mechanisms by levels and type of care o Public health interventions o Primary health care o Hospital care Contractual arrangements with providers Claims administration Efficiency of gatekeeper system (including client acceptability) Costing of services Incentives/motivations of payment mechanisms o On providers o On quality of care o On consumers What are the effects of the provider payment and contractual agreements on provider financial viability o Revenue of local health facilities in relation to expenditure o Impact of NHIS on uptake of services and Cross Cutting Research Issues and impact questions behaviour towards clients in the context of NHIS o Revenue of local health facilities o Impact of NHIS on uptake of services and cost of care o Efficiency of service delivery o Treatment and costs of insured versus non insured Relationships between scheme and providers Currently available research information and Challenges Unpublished work Agyepong I.A., Bruce E.S., Narh-Bana S., Ansah E., Gyapong M. (2006) Making health insurance and equitable and pro-poor financing mechanism in Ghana: some reflections. Medical Education Resources Africa (MERA). January 2006. Issue 21. Ghana Edition. Pages 5 – 14 Dr Moses Aikins Jaman South Health Insurance Scheme, Brong-Ahafo Region. External Evaluation, 2004 Unpublished work (Study) Dr Moses Aikins & Ms. Gifty Okang April 2006 Utilization and Cost of Health Care under the District Health Insurance Schemes: A case study of Brong-Ahafo and Eastern Regions (September - December 2005). Unpublished work Dr Moses Aikins & Ms. Helen Dzikunu. Utilization by and Cost of Health Care of the Insured Poor in Saboba-Chereponi District, Northern Region June 2006. Unpublished work Moses Aikens (2004) Tano Health Insurance Scheme External Evaluation. Unpublished work Kenneth Kwablah Yao-Dablu The Effect Of The Nkoranza Community Health Insurance Scheme On Access To Health Care, December, 2000. Student thesis Dan Osei (2006) Developing Unit Cost Data for health facilities to achieve cost standardization for an Effective National Health Insurance Scheme. Unpublished work 62 Function Priority policy questions o o Benefits and Entitlement General Currently available research information Cross Cutting Research Issues and impact questions cost of care Efficiency of service delivery Treatment and costs of insured versus non insured Composition of benefit package, what services have to be included and for whom Cost-sharing arrangements for benefit package (exempted population or services) Designing and Implementing exemptions: How to identify the indigent or too poor to pay o How to identify the poor and vulnerable o Individual versus household measurement of and identification of ‘indigent’ status o Geographical versus categorical targeting o Costs of identifying the indigent How to manage NHIC – Scheme Impact on access and equity Stierle F , Kaddar M., Tchicaya A., Schmidt-Ehry B. (1999) Indigence and access to health care in sub-Saharan Africa. The International Journal of Health Planning and Management Volume 14, Issue 2 , Pages 81 - 105 Amoako N, F Feeley, and W Winfrey. (2002). Health Financing in Ghana: Willingness to Pay for Normal Delivery Benefits in a Community- Based Health Insurance Plan. Washington DC: USAID/Commercial Market Strategies Project. Baltussen R., Bruce E., Rhodes G., Narh-Bana S.A. and Agyepong I. 63 Function Priority policy questions manageme nt issues, regulation and relationshi ps between players and stakeholde rs18 relations o Need for networking and experience sharing between zones /districts and between implementers and national policy makers o Monitoring and evaluation How to manage scheme provider relationships What is an optimal management information system o In general, what information should governments and MHO collect o Data analysis of NHIS database o Development of monitoring and evaluation system: for accountability and lesson learning between schemes o Software (standardized) Currently available research information Cross Cutting Research Issues and impact questions (2006), Management of mutual health organizations in Ghana. Tropical Medicine & International Health, Volume 11 Issue 5 Page 654 Daniel Kojo Arhinful August 2005Evaluation of Danida Supported Health Insurance Schemes Operating From 2001- 2003: Okwawuman Health Insurance Scheme Eastern Region Unpublished work Dr. Moses Aikins September 2003 Emerging Community Health Insurance Schemes/Mutual Health Organizations in Ghana: Danida’s Achievements and Challenges Unpublished work Supervised by Ib Bygbjerg Health Insurance Schemes In Northern Ghana: A case study of Salamba Women’s Health Insurance Scheme November 2003. Unpublished work Dr Moses Aikins Jaman South Health Insurance Scheme, Brong-Ahafo Region. External Evaluation, 2004 Unpublished work (Study) Moses Aikens (2004) Tano Health Insurance Scheme External Evaluation. Unpublished work Veronica Asafo Adjei (2004) Social Security Systems for the excluded majority. The extension of health insurance to the informal sector in Ghana. Student dissertation 18 Not all the issues here require research per see. At the most they may require simple operational investigations to inform design of a way forward. However they were raised at the stakeholder meeting as unanswered issues in implementation of concern 64 Function Priority policy questions Cross Cutting Research Issues and impact questions Currently available research information Process documentation o Analysis of the policy process of introducing MHO Knowledge and awareness of implementers o Implementation procedures o Knowledge of policy, NHI framework o Information flow: translating national policy to district implementation o Need for regular meetings scheme/providers/clients per scheme /district Source: MoH/GHS 2007 Research agenda to support National Health Insurance Implementation in Ghana. 65 5. FINANCING AND BENEFIT INCIDENCE ISSUES 5.1 Introduction Identifying and measuring the existing health care financing and benefit mechanisms to establish their level of progressivity, or relative burden on the poor compared with the rich, as well as identifying and evaluating the factors19 influencing health care financing burden are critical for achieving equity within the health system. The SHIELD project will define financing and benefit incidence as “the distribution of the health care financing burden between different socio-economic groups” and “the distribution of health care benefits emanating from the consumption of health care services between different socio-economic groups” respectively. New methodological tools have been developed to improve the measurement of equity in health care financing and provision (van Doorslaer et al. 1993). Unfortunately, the application has remained focused on the health care systems of developed countries (Wagstaff and van Doorslaer 1993; Wagstaff et al. 1999), with very limited application in developing countries, including those in Sub-Saharan Africa (Cissé et al. 2006). The Ghana SHIELD programme of work will generate comprehensive and detail incidence data which will be based on existing household data from the Ghana Living Standard Survey and the Core Welfare Indicator Questionnaire Survey (GLSS V and CWIQ) and case studies at the community and household levels. The need for comprehensive financing and benefit incidence data emanates from the fact that there are very limited studies on these important indicators of the health system. For instance, a literature search revealed only one known study related to financing incidence by Stephen Younger on tax incidence in Ghana, carried out over tens year ago (Younger 1996). Another literature search on benefit studies also revealed one study by Lionel Demery on incidence of social spending in Ghana in 1995 (Demery et al. 1995). With these limited studies, the Ghana SHIELD programme of work has the onus responsibility of carrying out ground-breaking comprehensive financing and benefit incidence studies for the health sector in the country. 19 Contribution rates and structure, nature of risk pooling, exemptions mechanism, subsidy, purchasing, benefit package, provider payment mechanisms, quality of care 66 5.2 Financing incidence In evaluating the financing incidence of the health system, it is important to analyse the burden, or the progressivity, of each of the identified financing mechanisms. It is also important to weight each of the financing mechanisms, establishing their contributions to the overall progressivity of health care financing.. Currently in Ghana, health care payment mechanisms include general tax, the national health insurance contributions, and out-of-pocket payments. 5.2.1 General tax 5.2.1.1 Direct tax Income taxes are deducted from the wages and salaries of the formal sector. The vast majority of these employees work either in the civil service or in public enterprise, even though a few large private companies also deduct tax directly from income. This tax would appear progressive and this is supported in a study conducted Younger in 1996 (Younger 1996). Younger used the 1988 GLSS to analysis the progressivity of this tax, and found that personal income tax (PIT) was progressive. “Daily Tax”20 is also captured in Younger’s analysis. ‘Daily Tax’ is collected mostly from small scale self-employed businesses as presumptive income taxes. Younger found out that only 700 household (representing 23% of the sample) paid this type of tax, reflecting the large number of households engaged in selfemployment and thus explaining the widespread use of this tax. This tax was found to be regressive which lends support to the complaints from the small businesses about the fairness of this tax. Another tax was corporate tax (CT). The debate about this tax has largely been around whether increases in corporate taxation will result in lower wages, lower retail earnings, or higher prices. Some writers assume an equal share (50%) of burden for consumers and shareholders (mainly foreign owned in Ghana) for CT and others assume a 10% burden on consumers and 90% burden on shareholders of the companies (Younger 1996; Martinez-Vazquez 2004). This tax was not calculated in the Younger study. Rather, he analysed “annual taxes and licenses”. These are income taxes that pertain to larger family-owned enterprises, that file an annual income tax return. Some of these enterprises may or may not be 20 This is collected mostly from small, self-employed businesses as presumption income tax. The study revealed that 700 households, 23% of the sample paid this type of tax, reflecting the large number of households engaged in self-employment activities and the widespread use of this tax (Younger 1996) 67 incorporated. Few households were observed to pay these taxes and their impact was considered progressive. 5.2.1.2 Indirect taxes The indirect taxes analysed in the Younger study included excise tax (including taxes on alcoholic and non-alcoholic drinks and tobacco). Petroleum tax was considered to be the most controversial tax in the country. This tax is essentially an excise tax whose importance has grown over the years. Calculating the incidence of this tax across expenditure distribution is not straightforward. The tax on gasoline and motor oil coming from households’ direct consumption of these items was found to be highly progressive but only 49 households in the GLSS survey reported to have consumed them and of course these are the better off in society. Most of the petroleum products are taxed by firms rather than by household, so understanding the incidence requires tracing the impact through input-output tables, which is not currently available. However, input-output tables from other countries such as Cameroon and Madagascar all have a coefficient of 0.2 for the value of petroleum which can be applied to the Ghanaian context. Taxes on kerosene, by contrast, were found to be regressive. Consumption of kerosene is remarkably flat across households and so the burden from this source falls disproportionately on poorer households, whose consumption as a proportion of household income is higher.. Value Added Tax (VAT) is another indirect tax, but was not in place at the time of Younger’s analysis. The SHIELD project will analysis the progressivity of VAT including the NHIL (National Health Insurance Levy) which makes up 2.5 percent of the 15% of VAT. From international literature however, VAT is considered a regressive financing mechanism. A study by Wagstaff and others (1999) found indirect tax to be generally regressive in that the burden of these indirect taxes falls disproportionately on the poor. The Ghana SHIELD programme of work will comprehensively analyse the progressivity of the relevant taxes in the country. Table 18 below summarises the various taxes that SHEILD will analyse as part of the next phase of work. All the taxes will be combined to calculate the overall incidence in health care financing in the country as a whole. 68 Table 16: Summary of tax health care payment, incidence, data source and proposed method of measurement Payments Incidence towards health care Direct Personal Legal tax Income tax Tax (PIT) payer Property Tax Legal tax payer Shareho lders and consum Other tax er (e.g. 2.5% of SSNIT deduction for NHIS Indirect tax VAT NHIL consum Excise duty er Petroleum Other tax Corporate Tax Data source Proposed measurement GLSS V will be compared with actual tax revenue from MoFEP ♦Tax tables will provide information such as tax rates, rebates, exemption by income bands. ♦GLSS data will used to sort out and identify PI tax payers ♦HH will be sorted into tax/income bands ♦Tax rates will be applied to estimate the incidence of PIT ♦The estimate will be compared with actual PIT revenue and if there is different, appropriate triangulation will be done. ♦The GLSS questionnaire contains information on the value of the property of HH ♦The property tax schedule will be applied to the value of the PT of HH and estimated ♦This will be compared to the actual revenue collected on PT in 2000/2001 and adjustments will be made appropriately ♦ GLSS captured information on the values of shares held by households and so allocation of CT will based on shareholding (90%) of each HH and consumers (10%) ♦ This will be compared with the actual CT revenue collected by MoFEP and adjustments made. GLSS V will be compared with tax revenue from MoFEP GLSS will be compared with actual tax revenue from MoFEP GLSS which will be compared with 2000/2001 actual tax revenue from MoFEP method of ♦ From HH expenditure in the GLSS, SHEILD will identify the amount spent by HH on specific products ♦Indirect tax burden will then be calculated by applying the product specific tax rates to these amounts ♦This will be compared to actual indirect tax revenue by MoFEP for the period. 69 5.2.2 Non-tax incidence analysis There is no study of the incidence of non tax health care payments such as out-ofpocket (OOP) payments and so the Ghana SHIELD programme of work will undertake these incidences through analysis of the GLSS and case studies. Apart from tax, health care in Ghana is also financed by SSNIT contributions, the DMHIS premiums from the informal sector and OOP payments. Before allocating the above health care payments to income groups by quintiles of households, it will also be important to provide the incidence assumption as to who bears the burden of each, since the allocation of these health care payments depends on these assumptions. The incidence of SSNIT contributions falls on formal sector workers, that of the DMHIS contributions fall on insured non-formal sector workers. OOP payment is also assumed to directly affect the consumer of the service. Information on SSNIT and DMHI contributions will be obtained from the NHI headquarters and at the DMHIS offices. NHI has recently compiled information on the health insurance enrolment status, socio-economic, and other characteristics of the population of the country. Information on OOP payments will be obtained from GLSS and supplemented by data collected through the case studies at the district level. The Ghana SHIELD programme will analyse the incidence of all these non-tax payments. 5.3 Benefit incidence Benefit incidence studies examine how effectively governments are able to target their limited resources towards the needs of the poor (DFID 2002; EQUITAP 2005). They provide a revealing analysis of how, for example, groups disaggregated by income or gender, make varying use of primary and hospital services, in rural and urban settings. As said earlier, the only known benefit study on the incidence of social spending including health in Ghana was by Lionel Demery. . The study found that that Ghana was among a few countries like Indonesia, Kenya, and Brazil that had the weakest targeting of health spending, such that the richest gain far more from public sector health subsidies than the poorest (Demery et al. 1995). Whilst only 12% of poorest group benefited from public health spending, over 30% of the richest group benefited from public sector health spending in Ghana in 1989, and this was further worsened in 1992, such that the richest extended their benefit to 33% (see Table 19) (Demery et al. 1995). Some studies by DFID (2002), revealed that public health spending was progressive in 30 out of the 38 studies carried out. This means that the poorest 20% received more public subsidies than the richest 20% (DFID 2002). A study in South Africa on “who goes to the public sector for Voluntary 70 HIV/AIDS counselling and Testing (VCT)” also revealed that the poor access the services more than the rich (Thiede et al. 2004). The Ghana SHIELD programme of work will undertake a current and more comprehensive benefit study using data from GLSS and case studies at the community levels, as in the financing study. Table 17: Distribution of Total Health Subsidies by location and Quintile 1989 and 1992 1992 1989 Quintile Total subsidy Per Column Total subsidy Per Column in cedis capita share in cedis capita share subsidy subsidy 1(poorest) 2,880,692,360 1,044 22.3 6,840,891,628 2,296 11.4 2 3,097,164,616 1,122 13.1 9,133,250,125 3,065 15.5 3 4,170,340,720 1,511 17.7 11,003,644,532 3,692 18.7 4 6,250,275,304 2,265 26.5 12,599,421,137 4,228 21.4 5(richest) 7,171,896,004 2,599 30.4 19,414,621,689 6,515 32.9 Total 23,570,369,004 1,708 100 58,991,829,110 3,959 100 Urban 9,910,421,248 2,233 42.0 28,755,473,051 5,808 48.7 Rural 13,659,947,756 1,459 58.0 30,236,356,061 3,039 51.3 Source: Demery et al 1995 71 6. CONCLUSIONS The health sector in Ghana is confronted with several equity challenges ranging from financial and geographical access, resource allocation, funding of health services, access to basic services, service quality, utilisation, human resources and community involvement. In the area of financial access, the high cost services and management of user charges are critical. The poor are less inclined to report illness and seek treatment than the rich. In part, this is influenced by perceptions of service quality, but it is more related to the impact of health costs on household expenditure relative to income. For geographical access, about 40% of the population lives more than 15 kilometres from a health facility, this clearly falls short of the Alma Mata Declaration (1978) of ensuring that all people live a maximum of 8 kilometres from a health facility. Rural communities are particularly affected, since facilities are predominantly located in towns and villages along main roads and very few sub-district teams make regular, routine, trips to remote villages. Generally, resources are limited, and resource distribution is inadequately linked to health sector priorities. Inefficient allocation of resources also affects all aspects of service delivery. Financial allocations to secondary and tertiary facilities and staff emolument are disproportionate as compared to the primary level care. Indeed, resources available to the health sector have been shrinking over the years relative to the increase in population. This has had a direct impact on the ability of the MOH/GHS to run an efficient and effective system. The migration of health workers to the developed countries is also a major challenge to the health system. Globalisation has facilitated the growth of a flexible and mobile labour market. Shortages of medical doctors and nurses in the developed and economically better off counties, whose governments are keen to maintain adequate health services for their people, have encouraged the migration of an already disgruntled workforce to fill these shortages attracted by so called “pull factors”. The great demand for nursing personnel in particular, has intensified the migration problem. There is also movement of health workers within countries, from public to private sectors, rural to urban, and primary care settings to tertiary care institutions. This may be so because, the skills of these health professionals may be either under 72 utilised due to lack of modern equipment, or incentives available in the urban or private sectors may not be available in the rural or public sectors. Migration exacerbates the shortage within the sector and increases the workload for the remaining workforce. A majority of health care services are unavailable at most health facilities especially at the Northern sector of the country, due to staff shortages (due to attrition and insufficient training) and skill separation between different professional staff. At the same time, first level referrals are neither accessible nor appropriate for certain cases. A number of people perceive the quality of health services as poor and therefore choose alternative treatment sources. Confidence is undermined by frequent shortages of drugs and medical supplies, long queues, the absence of emergency services and poor staff behaviour. This has resulted in low utilisation of health services despite substantial investment aimed at improving access to health services. Nationally, outpatients’ visits at public institutions have increased marginally from 0.36 per capita in 1996 to 0.52 in 2005. Gradually the MOH/GHS is fostering collaboration with community and NGOs to deliver high quality services. Health care planning and delivery has been a top-down process, in which client satisfaction has been a low priority. In the past, attempts were made to involve communities in health care delivery system but this has not materialised. Many community-based volunteer health workers become disillusioned because logistical support systems fail, while the Ministry found that the supervision and regulation of unpaid semi-skilled workers was actually more costly than anticipated. At the same time, Village Health Committees set up to improve service responsiveness to client needs played little role in planning and evaluation of the health system. In recent years, the private health sector has grown considerably. Private not-forprofit providers, for instance, are estimated to account for 35% of health care nationally. Although their staff salaries are covered by the MOH, linkages between the private and public sectors are weak, leading to duplication and wastage. Contracting with the private sector has not received the necessary attention. It is also important to recognise that many health status determinants fall outside the mandate of the Ministry of Health. For instance, clean water and sanitation facilities have a critical role to play in improving people’s health status, but their provision 73 rests with other government departments. Similarly, there is a close relationship between literacy, fertility and the health of the family. To date, however, there have been few opportunities for inter-sectoral collaboration. Activities remain compartmentalized both at the centre and at the periphery. From the document review, it is evident that there are equity challenges in the Ghanaian health system regarding health care provision and financing. With regards to health care provision, CHPS, a primary health care strategy has its challenges relating to staff, as well as the financial resources to roll it out. The NHIS also has challenges with regards to general management and administration, the premiums, benefit package, waiting period, exemptions and cross-subsidisation among others. It is anticipated that the SHIELD project would provide empirical data to assist in addressing these inequities.. 74 REFERENCES Agyepong, I. Arhinful, K. and Baltussen, R. (2007) Stakeholder meetings on priority issues for research put into modification of Kutzin’s framework of functions of health care financing system. 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