Social Accountability and Legal Empowerment for Quality Maternal Health Care

Unacceptably high rates of maternal morbidity and mortality affect the Global North and the Global South. Among many challenges, policy-makers and researchers cite concerns about quality of care, respectful maternity care, and implementation of evidence-based strategies and national guidelines at the frontlines of the health system. Informal payments are one concern that cut across these three challenges; they represent poor quality care; they are often experienced as disrespect by patients; and, health care worker demands for such payments by definition conflict with national policy. Social accountability and legal empowerment are two approaches that are increasingly used to address quality of care concerns in maternal health and poor implementation at the frontlines of the health system. This dissertation is comprised of three chapters (papers), all of which focus on these challenges in maternal health in low and middle income countries (LMICs). They apply concepts and methods from health policy and systems research (HPSR) to undertake theoretically-informed analyses that straddle two fields: (1) accountability, and, (2) global maternal health. The first chapter is a critical interpretive synthesis that summarizes the evidence base on the prevalence, drivers, and impact of informal payments in maternal health care; critically interrogates the paradigms that are used to describe informal payments; and, finally, synthesizes the policy and funding debates directly related to informal payments. The paper finds that though assessing the true prevalence of informal payments is difficult given measurement challenges, quantitative and qualitative studies have identified widespread informal payments in health care in many low and middle income countries in Asia, Africa, and Latin America. Studies and conceptual papers identified both proximate, immediate drivers of informal payments, as well as broader systemic causes. These causes include norms of gift giving, health workforce scarcity, inadequate health systems financing, the extent of formal user fees, structural adjustment and the marketization of health care, and patient willingness to pay for better care. Similarly, there are both proximate and distal impacts, including on household finances, patient satisfaction and demand for health care, and provider morale. Despite the ground level relevance of informal payments, they are generally not adequately addressed in global policy frameworks and strategies, or in standard metrics of health system performance. Though this absence does not necessarily imply lack of financial or other attention to informal payments, it makes inattention more likely, and regardless, represents a notable silence. Informal payments have been studied and addressed from a variety of different perspectives, including anti-corruption, ethnographic and other in-depth qualitative approaches, and econometric modeling. Synthesizing data from these and other paradigms illustrates the value of an inter-disciplinary approach. Each lens adds value and has blind spots. These attributes in turn affect the solutions proposed. The paper concludes that the same tacit, hidden attributes that make informal payments hard to measure also make them hard to discuss and address. A multi-disciplinary health systems approach that leverages and integrates positivist, interpretivist, and constructivist tools of social science research can lead to better insight and policy critiques. The second chapter is a descriptive case study of a social accountability project seeking to decrease health provider demands that women make informal payments in Uttar Pradesh (UP), India. Women in UP are often asked to make informal payments for maternal health care services that the central or state government has mandated to be free. The chapter is a descriptive, contextualized case study of a social accountability project undertaken by SAHAYOG, an NGO based in UP. The study methods included document review; interviews and focus group discussions of program implementers, governmental stakeholders, and community activists; and participant observation in health facilities. The study found that SAHAYOG adapted their strategy over time to engender greater empowerment and satisfaction among program participants, as well as greater impact on the health system. Participants gained resources and agency; they learned about their entitlements, had access to mechanisms for complaints, and, despite risk of retaliation, many felt capable of demanding their rights in a variety of fora. However, only program participants seemed able to avoid making informal payments to the health sector; they largely were unable to effect this change for women in the community at large. Several features of the micro and macro context shaped the trajectory of SAHAYOG’s efforts, including caste dynamics, provider commitment to ending informal payments, the embeddedness of informal payments in the health system, human resource scarcity, the overlapping private interests of pharmaceutical companies and providers, and the level of regional development. Though changes were manifest in certain health facilities, as a group, providers did not necessarily embraced the notion of low caste, tribal, or Muslim women as citizens with entitlements, especially in the context of free government services for childbirth. SAHAYOG assumed a supremely difficult task. Project strategy changes may have made the task somewhat less difficult, but given the population making the rights claims and the rights they were claiming, widespread changes in demands for informal payments may require a much larger and stronger coalition. The third paper is an explanatory case study of a hybrid legal empowerment and social accountability effort led by the Mozambican NGO, Namati Moçambique. Established in 2013, Namati Moçambique runs a multi—pronged health paralegal and policy advocacy program that employs community paralegals as Health Advocates and trains Village Health Committees (VHCs). The study sought to uncover how the program affected the relationship between citizens and the health sector, how the health sector and citizens responded, and what role contextual factors played. The case study had two components: 1) a retrospective review of 24 cases 2) qualitative investigation of the Namati program and program context. The cases came from a total of 6 sites in 3 districts. Program implementers, clients, Village Health Committee (VHC) members, and health providers were interviewed or participated in focus groups as part of the research. The study found that though they are unable to address some deeply embedded national challenges, Health Advocates successfully solved a variety of cases affecting poor Mozambicans in both urban and rural areas. Health Advocates took a variety of steps to resolve these cases, some of which entailed interactions with multiple levels of the government. We identified three key mechanisms, or underlying processes of change that Namati’s work engendered, including: bolstered administrative capacity within the health sector, reduced transaction and political costs for health providers, and provider fear of administrative sanction. In addition to case resolution, stakeholders highlighted individual satisfaction at having one’s complaint remedied and individual empowerment among clients and Health Advocates as stemming from the project. Health Advocates and VHCs developed functional working relationships with providers, in part because they addressed issues that providers felt were important, and engendered community satisfaction with the Health Advocate, and ultimately, trust in the health system. The case resolution focus of legal empowerment brought procedural teeth, helping to ensure that new relationships result in immediate improvements, thus instigating a circle of relationship building and health system improvements

The community health worker as service extender, cultural broker and social change agent: a critical interpretive synthesis of roles, intent and accountability

This paper is a critical interpretive synthesis of community health workers (CHWs) and accountability in low-income and middle-income countries. The guiding questions were: What factors promote or undermine CHWs as accountability agents? (and) Can these factors be intentionally fostered or suppressed to impel health system accountability? We conducted an iterative search that included articles addressing the core issue of CHWs and accountability, and articles addressing ancillary issues that emerged in the initial search, such as 'CHWs and equity.' CHWs are intended to comprise a 'bridge' between community members and the formal health system. This bridge function is described in three key ways: service extender, cultural broker, social change agent. We identified several factors that shape the bridging function CHWs play, and thus, their role in fomenting health system accountability to communities, including the local political context, extent and nature of CHW interactions with other community-based structures, health system treatment of CHWs, community perceptions of CHWs, and extent and type of CHW unionisation and collectivisation. Synthesising these findings, we elaborated several analytic propositions relating to the self-reinforcing nature of the factors shaping CHWs' bridging function; the roles of local and national governance; and the human resource and material capacity of the health system. Importantly, community embeddedness, as defined by acceptability, social connections and expertise, is a crucial attribute of CHW ability to foment local government accountability to communities

“Our fear is finished,” but nothing changes: efforts of marginalized women to foment state accountability for maternal health care in a context of low state capacity

Background Women in India are often asked to make informal payments for maternal health care services that the government has mandated to be free. This paper is a descriptive case study of a social accountability project undertaken by SAHAYOG, a nongovernmental organization in Uttar Pradesh, India. SAHAYOG worked with community-based organizations and a grassroots forum comprised of low caste, Muslim, and tribal women to decrease the prevalence of health provider demands that women and their families make informal payments. Methods The study entailed document review; interviews and focus group discussions with program implementers, governmental stakeholders, and community activists; and participant observation in health facilities. Results The study found that SAHAYOG adapted their strategy over time to engender greater empowerment and satisfaction among program participants, as well as greater impact on the health system. Participants gained knowledge resources and agency; they learned about their entitlements, had access to mechanisms for complaints, and, despite risk of retaliation, many felt capable of demanding their rights in a variety of fora. However, only program participants seemed successfully able to avoid making informal payments to the health sector; health providers still demanded that other women make payments. Several features of the micro and macro context shaped the trajectory of SAHAYOG’s efforts, including deeply rooted caste dynamics, low provider commitment to ending informal payments, the embeddedness of informal payments, human resources scarcity, and the overlapping private interests of pharmaceutical companies and providers. Conclusion Though changes were manifest in certain fora, providers have not necessarily embraced the notion of low caste, tribal, or Muslim women as citizens with entitlements, especially in the context of free government services for childbirth. Grassroots advocates, CBOs, and SAHAYOG assumed a supremely difficult task. Project strategy changes may have made the task somewhat less difficult, but given the population making the rights claims and the rights they were claiming, widespread changes in demands for informal payments may require a much larger and stronger coalition

Unpacking power dynamics in research and evaluation on social accountability for sexual and reproductive health and rights.

Over the past decade, social accountability for health has coalesced into a distinct field of research and practice. Whether explicitly stated or not, changed power relations are at the heart of what social accountability practitioners seek, particularly in the context of sexual and reproductive health. Yet, evaluations of social accountability programs frequently fail to assess important power dynamics. In this commentary, we argue that we must include an examination of power in research and evaluation of social accountability in sexual and reproductive health, and suggest ways to do this. The authors are part of a community of practice on measuring social accountability and health outcomes. We share key lessons from our efforts to conduct power sensitive research using different approaches and methods.First, participatory research and evaluation approaches create space for program participants to engage actively in evaluations by defining success. Participation is also one of the key elements of feminist evaluation, which centers power relations rooted in gender. Participatory approaches can strengthen 'traditional' health evaluation approaches by ensuring that the changes assessed are meaningful to communities.Fields from outside health offer approaches that help to describe and assess changes in power dynamics. For example, realist evaluation analyses the causal processes, or mechanisms, grounded in the interactions between social, political and other structures and human agency; programs try to influence these structures and/or human agency. Process tracing requires describing the mechanisms underlying change in power dymanics in a very detailed way, promoting insight into how changes in power relationships are related to the broader program.Finally, case aggregation and comparison entail the aggregation of data from multiple cases to refine theories about when and how programs work. Case aggregation can allow for nuanced attention to context while still producing lessons that are applicable to inform programming more broadly.We hope this brief discussion encourages other researchers and evaluators to share experiences of analysing power relations as part of evaluation of social accountability interventions for sexual and reproductive health so that together, we improve methodology in this crucial area

‘We all have the same right to have health services’: a case study of Namati’s legal empowerment program in Mozambique

Background Legal empowerment and social accountability are two strategies that are increasingly used to address gaps in healthcare in low- and middle-income countries, including failure to provide services that should be available and poor clinical and interpersonal quality of care. This paper is an explanatory case study of a legal empowerment effort that employs community paralegals and trains Village Health Committees (VHCs) in Mozambique. The research objective was to explore how community paralegals solved cases, the impact paralegals had on health services, and how their work affected the relationship between the community and the health sector at the local level. Methods The case study had two components: (1) a retrospective review of 24 cases of patient/community grievances about the health system, and (2) qualitative investigation of the program and program context. The case reviews were accomplished by conducting structured in-depth interviews (IDIs) with those directly involved in the case. The qualitative investigation entailed semi-structured Key Informant Interviews (KIIs) with district, provincial, and national health managers and Namati staff. In addition, focus group discussions (FGDs) were held with Health Advocates and VHC members. Results Case resolution conferred a sense of empowerment to clients, brought immediate, concrete improvements in health service quality at the health facilities concerned, and seemingly instigated a virtuous circle of rights-claiming. The program also engendered incipient improvements in relations between clients and the health system. We identified three key mechanisms underlying case resolution, including: bolstered administrative capacity within the health sector, reduced transaction and political costs for health providers, and provider fear of administrative sanction. Conclusions This study contributes to the limited literature regarding the mechanisms of legal empowerment case resolution in health systems and the impact of hybrid legal empowerment and social accountability approaches. Future research might assess the sustainability of case resolution; how governance at central, provincial, and district level is affected by similar programs; and to what extent the mix of different cases addressed by legal empowerment influences the success of the program

Accountability strategies for sexual and reproductive health and reproductive rights in humanitarian settings: a scoping review

Background Many of the 35 million women and girls aged 15–49 requiring humanitarian assistance have inadequate access to the sexual and reproductive health (SRH) services to which they are entitled. Ensuring accountability is critical to realizing their SRH and reproductive rights (RR). Objectives This scoping review examines the extent and nature of existing evidence on accountability strategies for SRH in humanitarian settings in different geographical scopes/contexts, and contextualizes these findings in the larger thematic literature. This review seeks to answer the following questions: What accountability strategies are employed to address the availability, accessibility, acceptability, and quality of SRH in humanitarian settings? What do we know about the successes and challenges of the given strategies? What are the implications for practice? Methods We consulted public health, social science, and legal databases including SCOPUS, PubMed, ProQuest, and LexisNexis for peer-reviewed articles, as well as Google Advanced search for grey literature; the search was conducted in March 2019. We searched for relevant articles and documents relating to accountability, humanitarian, and SRH and/or RR. To identify key challenges not reflected in the literature and additional grey literature, 18 key informants from international NGOs, local government bodies, academia, and donor agencies were interviewed from March–June 2019. Results A total of 209 papers and documents were identified via our literature searches and interviews for review. We identified three categories of approaches to accountability in our background reading, and we then applied these to the papers reviewed a priori. We created a fourth category based on our findings. The categories include: (1) humanitarian principles, codes of conduct, and legal instruments; (2) technical, performance, and impact standards; (3) efforts to solicit and address the rights and needs of the affected populations, or “listening and responding,” and, (4) accountability demands made by affected populations themselves. Almost all papers identified referred to challenges to realizing accountability in humanitarian contexts. There are promising accountability approaches – some specific to SRH and some not - such as open-ended feedback from affected populations, quality improvement, and practical application of standards. Reflecting a largely top down orientation, papers concentrate on accountability mechanisms within humanitarian work, with much less focus on supporting affected populations to deepen their understanding of structural causes of their position, understand their entitlements, or access justice. Conclusion In the last 20 years, there has been increasing standard and guideline development and program experiences related to accountability in humanitarian settings. Yet, the emphasis is on tools or mechanisms for accountability with less attention to changing norms regarding SRH and RR within affected communities, and to a lesser extent, among implementers of humanitarian programs or to institutionalizing community participation

A summative content analysis of how programmes to improve the right to sexual and reproductive health address power.

Introduction Power shapes all aspects of global health. The concept of power is not only useful in understanding the current situation, but it is also regularly mobilised in programmatic efforts that seek to change power relations. This paper uses summative content analysis to describe how sexual and reproductive health (SRH) programmes in low-income and middle-income countries explicitly and implicitly aim to alter relations of power. Methods Content analysis is a qualitative approach to analysing textual data; in our analysis, peer-reviewed articles that describe programmes aiming to alter power relations to improve SRH constituted the data. We searched three databases, ultimately including 108 articles. We extracted the articles into a spreadsheet that included basic details about the paper and the programme, including what level of the social ecological model programme activities addressed. Results The programmes reviewed reflect a diversity of priorities and approaches to addressing power, though most papers were largely based in a biomedical framework. Most programmes intervened at multiple levels simultaneously; some of these were ‘structural’ programmes that explicitly aimed to shift power relations, others addressed multiple levels using a more typical programme theory that sought to change individual behaviours and proximate drivers. This prevailing focus on proximate behaviours is somewhat mismatched with the broader literature on the power-related drivers of SRH health inequities, which explores the role of embedded norms and structures. Conclusion This paper adds value by summarising what the academic public health community has chosen to test and research in terms of power relations and SRH, and by raising questions about how this corresponds to the significant task of effecting change in power relations to improve the right to SRH