The
analysis of government expenditure on health during the 1980s in
AP by IHS happens to be one of the first contributions towards
building up of state health accounts in
India
. Funded by the International Health Policy Program (IHPP),
World Bank (Washington DC), this study covered not only standard
medical programs like curative and preventive care, but also
health related activities such as primary education, water
supply, sewerage, sanitation, housing, and community
development. Such an approach provided a much clearer picture of
government’s overall orientation toward social development. A
key finding of the study was that the resource allocation for
public hospitals was skewed towards urban tertiary hospitals
with first referral (district and sub district level) hospitals
receiving inadequate attention. The study recommended a
deliberate one time investment to increase secondary hospital
stock.The evidence base provided by the study was a key driver for the
subsequent World Bank AP First Referral Health Systems Project
and reallocation of resources to the secondary care sector.
The experience gained from analysis of public health spending
was instrumental in designing one of the first electronic
compilation of government budget and accounts data in the
country. The Institute also developed a software called
Government Expenditure Analyst (GEA) which allowed analysis of
expenditure data upto the sub head level. Expertise gained at
the IHS in electronic compilation of government budget data
contributed to preparation of the first budget data on disk in
India
. The first Budget Data on Disk of the Andhra Pradesh Government
was released by the State Finance Minister in 1998. The IHS was
one of the collaborating Institutions contributing to
development and delivery of this new service.A key area of the
Institute’s work in supporting health sector reforms in the
country has been in the area of National Health Accounts.
Information about the sources and uses of funds for health is a
key input in deciding how public monies are best used. The
Institute has established State Health Accounts (2001-02) for
Andhra Pradesh to support development of medium term strategies
for health. This DfID
funded exercise was the first comprehensive Health Accounts in
the country. Extensive consultations with various stakeholders
combined with a literature review mapped out the different
financing sources, financing agents and providers of health in
the State. Using a combination of primary surveys and secondary
data, flow of funds from various sources (public, private and
external) through a variety of financing agents were traced.
Financing Agents are institutions or entities that channel funds
provided by financing sources and use the funds to pay for, or
purchase, the activities inside the health accounts boundary.
Some of the key Financing Agents in the State include health and
other related departments, local governments, households, NGOs,
social and private insurance, private and public enterprises. Flow
of funds from various agents to different public and private
providers (end users or final recipients of health care funds)
and functions (services or activities that providers deliver
with their funds) were also traced. The exercise provided an
in-depth understanding of flow of funds within the public sector
and outside. It was found that public expenditure on health was
historically underestimated as previous analyses had focused on
health department alone, whereas number of departments within
the State such as Tribal Welfare, Rural Development, Women and
Child Welfare, Labour etc., local bodies (municipalities and
PRIs) and different central ministries incur health expenditure
in the State. It was found that while expenditure on primary
care was consistent with State policy goals, bulk of its
expenditure was on delivery of national programmes for disease
control and RCH. Basic ambulatory care services were neglected
with low allocation for drugs and supplies. Though significant
proportion of patients of public providers, particularly
hospitalized patients were poor, they incurred substantial out
of pocket expenditure which was met through borrowings, loans
and sale of assets. Expenditure on health insurance and
financial protection schemes accounted for about 10% of total
health spending which was mostly contributed by social insurance
and other employer managed schemes of government, private and
public sector enterprises. There were no financial protection
schemes for the poor and more than 85% of the population did not
have any kind of financial protection against ill health. User
fees charged by the public hospitals were negligible which did
not appear to have potential to even partially offset
expenditure by DoHMFW providers, as was initially envisaged
under the medium term health strategies. Decentralization of
health care and involvement of local bodies to enhance
performance of public health system was a key policy goal.
Though the Constitutional Amendment Acts, subsequent state
legislation and executive orders assign an impressive list of
health functions to local bodies only 0.3% of the total funds
for health in AP flow through Local Bodies. Local Bodies are the
primary providers of communicable disease control services such
as chlorination of water, vector control etc., in the State and
lack of resources is a key constraint. In 2001-02, 97% of the
PRI funds came from central and state government sources.
Operationalization of health policy goals would therefore
require substantial widening of resource base of local bodies
either through increased powers to raise their own revenues or
increased devolution of funds to local bodies by state and
central governments. These findings fed into development of the
medium term health sector strategies of the State. Another
learning experience was the need for robust household
expenditure estimates. Since such expenditure data is available
from periodical surveys there is need for a suitable
inflator.The SHA exercise had used a GSDP inflator to estimate
household expenditure based on 1995-96 NSSO survey on health
care. Validation based on subsequent survey in 2004 indicated
that household expenditure was underestimated in SHA. The growth
rate in monthly per capita expenditure on medical institutional
and non institutional items captured by annual NSSO surveys
between specific surveys on health care was found to be a more
robust inflator. Accordingly it was found that households
contributed 73% of the total health expenditure compared to the
initial estimate of 60%. The methodologies outlined for
development of health accounts in the State was adopted by the
National Macroeconomic Commission on Health of Government of
India.
The Institute provided support at the national level as an
institutional partner of the NHA cell of the Ministry of Health
and Family Welfare, which was set up to institutionalize NHA in
the country as per requirements of National Health Policy of
India, 2002. The Institute provided support in developing the
Indian Classification of NHA based on the International
Classification of Health Accounts (ICHA) and estimation
procedures.