How (not) to promote sub-national ownership of national initiatives in decentralised health systems: The free maternal and child health programme in Nigeria, 2008–2015

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Study Justification:
The study aimed to investigate why the free maternal and child health (MCH) program in Nigeria, implemented between 2008 and 2015, was not adopted or scaled-up by sub-national governments after the pilot phase. Understanding the reasons behind this lack of ownership is crucial for promoting the success of national health initiatives in federal systems.
Highlights:
1. The program design had conflicting goals: to ensure program performance while also gaining the buy-in of sub-national government politicians and bureaucrats.
2. Limited involvement of sub-national governments in the program design resulted in limited ownership during implementation.
3. Limited oversight of implementation by sub-national government policymakers contributed to the program’s underperformance.
4. Efforts to promote sub-national ownership should prioritize inclusiveness in design, implementation, and oversight.
5. Well-resourced community advocacy is essential for encouraging sub-national governments to adopt and scale-up national health initiatives.
Recommendations:
1. Ensure inclusiveness in program design by involving sub-national governments in the decision-making process.
2. Provide adequate resources for community advocacy to promote sub-national adoption and scale-up.
3. Strengthen oversight mechanisms to ensure sub-national government policymakers are actively involved in program implementation.
4. Prioritize capacity building for sub-national government officials to enhance their understanding and ownership of national health initiatives.
Key Role Players:
1. National Health Ministry/Department
2. Sub-national Government Health Departments
3. Community Health Advocacy Groups
4. Program Design and Implementation Team
5. Research and Evaluation Team
Cost Items for Planning Recommendations:
1. Capacity building workshops and training for sub-national government officials
2. Resources for community advocacy campaigns (e.g., materials, outreach activities)
3. Research and evaluation activities (data collection, analysis, reporting)
4. Coordination and communication expenses between national and sub-national government entities
5. Monitoring and oversight mechanisms to ensure program implementation and performance

The strength of evidence for this abstract is 7 out of 10.
The evidence in the abstract is based on a qualitative evaluation of the free maternal and child health programme in two states in Nigeria. The study utilized data from program documents, in-depth interviews, and focus group discussions. The analysis identified key factors that contributed to the limited adoption and scale-up of the program by sub-national governments. While the study provides valuable insights, the evidence could be strengthened by including a larger sample size and conducting a quantitative analysis to complement the qualitative findings. Additionally, future research could explore the experiences of other states in Nigeria to further validate the findings.

Background: Promoting the sub-national ownership of national health initiatives is essential for efforts to achieve national health goals in federal systems where sub-national governments are semi-autonomous. Between 2008 and 2015, Nigerian government implemented a pilot free maternal and child health (MCH) programme in selected states to improve MCH by reducing physical and financial barriers of access to services. This study was conducted to better understand why the programme was neither adopted nor scaled-up by sub-national governments after pilot phase. Methods: We conducted a qualitative evaluation of the programme in Imo and Niger States, with data from programme documents, in-depth interviews (45) and focus group discussions (16) at State and community levels. Data was analysed using manual thematic coding approach. Result: Our analysis indicates that the programme design had two mutually dependent goals, which were also in tension with one another: 1. To ensure programme performance, the designers sought to shield its implementation from sub-national government politics and bureaucracy; and 2. To gain the buy-in of the same sub-national government politicians and bureaucrats, the designers sought to demonstrate programme performance. The potential for community advocacy for sub-national adoption and scale-up was not considered in the design. Therefore, limited involvement of sub-national governments in the programme design limited sub-national ownership during implementation. And limited oversight of implementation by sub-national government policymakers limited programme performance. Conclusion: Efforts to promote sub-national ownership of national initiatives in decentralised health systems should prioritise inclusiveness in design, implementation, and oversight, and well-resourced community advocacy to sub-national governments for adoption and scale-up.

The article titled “How (not) to promote sub-national ownership of national initiatives in decentralised health systems: The free maternal and child health programme in Nigeria, 2008–2015” discusses the challenges faced in promoting sub-national ownership of national health initiatives in Nigeria’s decentralised health system. The study focuses on the implementation of a pilot free maternal and child health (MCH) programme in selected states between 2008 and 2015.

The findings of the study highlight that the programme design had conflicting goals. On one hand, the designers aimed to ensure programme performance by shielding its implementation from sub-national government politics and bureaucracy. On the other hand, they also sought to gain the buy-in of sub-national government politicians and bureaucrats by demonstrating programme performance. However, the potential for community advocacy for sub-national adoption and scale-up was not considered in the design.

As a result, limited involvement of sub-national governments in the programme design led to limited sub-national ownership during implementation. Additionally, limited oversight of implementation by sub-national government policymakers further hindered programme performance.

The study concludes that efforts to promote sub-national ownership of national initiatives in decentralised health systems should prioritize inclusiveness in design, implementation, and oversight. It also emphasizes the importance of well-resourced community advocacy to encourage sub-national governments to adopt and scale up such programs.

The article was published in the International Journal of Health Planning and Management in 2022, Volume 37, No. 6.
AI Innovations Description
Based on the information provided, the recommendation to improve access to maternal health is to prioritize inclusiveness in the design, implementation, and oversight of national initiatives in decentralised health systems. This includes involving sub-national governments in the program design to ensure their ownership and engagement throughout the implementation process. Additionally, well-resourced community advocacy should be established to encourage sub-national governments to adopt and scale up the program. By addressing these factors, it is more likely that national initiatives aimed at improving maternal health will be effectively implemented and sustained at the sub-national level.
AI Innovations Methodology
To simulate the impact of the main recommendations mentioned in the abstract on improving access to maternal health, a mixed-methods approach could be employed. Here is a brief methodology:

1. Study Design: Conduct a comparative study in multiple states within a decentralised health system, such as Nigeria, where a national initiative to improve maternal health has been implemented. Select states that have varying levels of sub-national ownership and engagement in the program.

2. Data Collection:
a. Quantitative Data: Collect quantitative data on key indicators related to maternal health, such as maternal mortality rates, antenatal care coverage, skilled birth attendance, and access to emergency obstetric care. Gather this data from national health surveys, routine health information systems, and program monitoring data.
b. Qualitative Data: Conduct in-depth interviews with key stakeholders involved in the program, including national and sub-national government officials, healthcare providers, community leaders, and program beneficiaries. Also, conduct focus group discussions with community members to gather their perspectives on the program’s implementation and impact.

3. Data Analysis:
a. Quantitative Analysis: Analyze the quantitative data using statistical methods to compare the maternal health indicators between states with varying levels of sub-national ownership and engagement. This analysis will help identify any associations between sub-national ownership and improved maternal health outcomes.
b. Qualitative Analysis: Transcribe and analyze the qualitative data using thematic coding. Identify themes related to the involvement of sub-national governments in program design, implementation, and oversight, as well as the role of community advocacy. This analysis will provide insights into the factors influencing sub-national ownership and the impact on program performance.

4. Integration of Findings: Combine the quantitative and qualitative findings to provide a comprehensive understanding of the impact of sub-national ownership on improving access to maternal health. Identify any patterns or correlations between sub-national ownership, program design, implementation, and maternal health outcomes.

5. Recommendations: Based on the study findings, develop recommendations to improve access to maternal health by prioritizing inclusiveness in program design, implementation, and oversight. Emphasize the importance of involving sub-national governments in program design and fostering community advocacy for adoption and scale-up.

6. Dissemination: Publish the study findings in a peer-reviewed journal, such as the International Journal of Health Planning and Management, to contribute to the existing knowledge on promoting sub-national ownership of national initiatives in decentralised health systems.

By following this methodology, researchers can gain insights into the impact of sub-national ownership on improving access to maternal health and provide evidence-based recommendations for future program design and implementation.

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