Understanding the causal mechanisms driving the 10/20 policy’s impact on ANC
Examining the findings stratified by wealth group raises important questions with regard to the causal mechanisms by which the 10/20 policy might have impacted the coverage, timing, frequency, and source of antenatal care. We hypothesized that reducing the cost of accessing ANC might lead to earlier ANC initiation, higher coverage of ANC, and increased number of ANC visits. Additionally, we expected that any increases in 4+ ANC coverage would be accompanied by increases in the proportion of ANC users who sought care from the public sector and the proportion of public facility-based ANC users who sought care at a primary care facility. Finally, we hypothesized that increased patient volumes in public primary care facilities as a result of the 10/20 policy might contribute to reduced content of care in the public sector.
Instead, we found that while the 10/20 policy had no impact on the timing of ANC initiation among worse-off women, the proportion of worse-off ANC users who made four or more ANC contacts began to increase at a faster rate immediately after the 10/20 policy was introduced. This suggests that for worse-off women, the policy was unable to immediately change practices around the timing of the first ANC visit among users, but successfully increased the proportion of women who made four or more ANC visits. We also found that while the policy did not increase the proportion of worse-off women using public sector care, it did accelerate improvements in receipt of good content of care among worse-off users of public facility-based ANC. As the policy change was associated with a shift towards greater use of public hospitals among worse-off users of public facility-based care, these findings suggest that the observed improvements in content of ANC among worse-off women may have been due to a combination of decreased use of public sector primary care facilities and increased number of ANC visits. Among better-off women, the 10/20 policy was associated with improvements in the timing, and number of visits. However, in contrast with our hypotheses, these improvements were also accompanied by decreased use of public sector facilities and no change in the use of primary care or content of care among users of public facility-based ANC.
A critical look into the design, implementation, and context of the 10/20 policy provides helpful insights for understanding why the policy may not have had the expected effect on a primary care service such as ANC. For instance, the 10/20 policy aimed to improve the financial accessibility of primary care but did not include any interventions to address other barriers that influence whether a woman accesses one or more ANC visits during her pregnancy. Although indirect financial costs, such as paying for transportation to and from health facilities, can serve as a significant barrier to care, the 10/20 policy only addressed direct costs for ANC in public primary care facilities. A study on catastrophic health spending in Kenya found that transportation costs account for nearly one quarter of households’ total out-of-pocket spending on health, and that the burden of transportation costs relative to total spending was highest among the poor [
43]. This suggests that the high costs of transportation may have significantly influenced the impact of the 10/20 policy on ANC service use. In terms of non-financial barriers, a qualitative study on women’s beliefs and practices around ANC in Kenya revealed that while raising money for out-of-pocket fees sometimes required women to postpone their first ANC visit, factors related to women’s knowledge, beliefs, and traditions appeared to be more influential contributors to delayed ANC initiation [
44]. Additionally, findings from two quantitative studies on determinants of ANC timing in Kenya also suggest that barriers including distance, knowledge, and customs might also inhibit early ANC initiation, as evidenced by the impact of factors such as living in a community with access to a community health worker, being from certain ethnic groups, parity, and being married on the timing of women’s first ANC visits [
45,
46]. The fact that only better-off women experienced immediate increases in early ANC initiation after the introduction of the 10/20 policy therefore supports findings from other research suggesting that sometimes the impacts of user fee exemptions are inequitable because the poor tend to be disproportionally affected by indirect financial and non-financial barriers to healthcare [
47].
With regard to source of care, there are many possible reasons why the policy did not lead to an increased use of public primary care facilities for ANC among the worse-off. For instance, although ANC services were intended to be available at the lowest levels of care, the 2004 Kenya Service Provision Assessment (KSPA) reported that only 77% of dispensaries offered ANC, compared to 86% of health centers and 84% of hospitals [
16]. Further, the 2004 KSPA found that among facilities offering ANC, availability of the resources and infrastructure necessary for quality ANC was low, particularly in health centers and dispensaries [
16]. In addition to this lower availability of quality ANC services in public primary care facilities, distrust related to the lack of clarity around the conditions of the policy; facilities’ failure to comply with the policy’s recommended fees; and concerns about the policy’s impact on quality of care may have also acted as deterrents. A qualitative study examining perceptions of the 10/20 policy among community members and health workers found that both the general public and health workers were confused about which aspects of care were covered under the policy and which services and groups were eligible for fee exemptions [
21]. The study also found that some health providers and community members believed that the 10/20 policy reduced the cost of seeking care at the expense of quality of care, particularly in terms of drug availability [
21]. Additionally, two nationally representative surveys of health facilities in Kenya found that 6 to 8 years after the 10/20 policy was introduced, health facility staff reported routinely overcharging for ANC in both health centers and dispensaries [
23,
24]. An assessment conducted in 2012, for instance, found that public health centers and dispensaries reported charging KSh 58 and KSh 46 per ANC visit, respectively, while hospitals reported charging similar fees of KSh 55 per visit [
24]. Finally, although the 10/20 policy purportedly reduced user fees in public primary care facilities, by many accounts, services were already being provided for free in some public dispensaries prior to the policy change [
8,
11,
12,
21]. Thus, in some areas, rather than decreasing fees at the dispensary-level, the 10/20 policy potentially introduced official fees that previously did not exist.
The decreased use of public sector care among better-off ANC users after the 10/20 policy could be due to the comparative costs of seeking care in public versus private facilities after the policy change. A nationally representative survey of the fees charged by health facilities years after the 10/20 policy was introduced revealed that the cost of ANC was comparable between public and private facilities at the dispensary level [
24]. Although the study also found that the fees for ANC in hospitals and health centers were higher in the private sector than in the public sector, the difference in pricing may not have been a sufficient barrier to stop better-off women from switching to private sector care [
21,
24].
With regard to receipt of good content of ANC, the observed improvement in content of ANC among worse-off women may also be related to changes in the global guidelines on ANC around the same time that the 10/20 policy was introduced. From 1996 to 1998, the WHO conducted a multi-country randomized control trial of a new four-visit model of ANC delivery. Later, in 2002, the WHO published guidelines on the focused, or four-visit, ANC model and which interventions should be provided during each visit [
48]. Simultaneously in 2001, this model was piloted in two out of Kenya’s then 72 districts and later scaled up to 19 additional districts in 2002 [
49]. Although there were no national standards or guidelines for implementing focused ANC in Kenya at the time of the 10/20 policy change [
49], it is plausible that as these guidelines were being piloted in select districts, there was a more general emphasis on improving the content of ANC throughout the country.
Comparing effects of 10/20 policy on coverage of ANC vs. delivery care
Despite evidence that women’s experiences during ANC can influence care seeking for childbirth [
27‐
34], most studies on the effects of user fees on maternal health service coverage have looked exclusively at delivery care. Our study demonstrates the value of examining the influence of health financing strategies on a broader range of maternal health outcomes and comparing findings across service types and sub-populations. The findings suggest that there were important differences and similarities between the impact of the 10/20 policy on coverage of antenatal care versus delivery care. In a recent paper using Kenya DHS data to examine the impact of the 2004 10/20 policy on coverage and source of delivery care, Obare et al. found that the proportion of women who delivered outside of a health facility immediately increased at the population level and among poor women (defined as the bottom two wealth quintiles), but had no immediate effect on home-based delivery care among wealthy women (defined as the top two wealth quintiles) [
26]. Further, the study found no immediate effect of the 2004 10/20 policy on use of public facility-based delivery care; instead, the observed reduction in facility-based care was due to decreased use of private facilities and increased home-based births among the poor [
26]. While Obare and colleagues’ findings suggest that the 2004 10/20 policy change was associated with decreased coverage of institutional deliveries, particularly among the poor, our findings suggest that the policy change was associated with increased coverage of 4+ ANC, particularly among the better-off. Thus, although the 10/20 policy’s impact on antenatal and delivery care coverage may have differed, both studies suggest that the policy contributed to better improvements in service coverage for women with higher socioeconomic status compared to those with lower socioeconomic status. These findings are consistent with other studies reporting that fee exemption policies may not always reduce inequities in access to care, particularly if non-financial barriers are not sufficiently addressed [
47,
50‐
52].
There are a few plausible explanations for why the impact of the 10/20 policy change in 2004 might have differed between ANC and delivery care. For example, the impact of the policy might be related to the nature of the service. While ANC is an outpatient, largely preventative and promotive service, facility-based childbirth care is an inpatient service requiring a skilled provider. As a result, the proportion of health centers and dispensaries that offered delivery care in the early months after the policy change was substantially smaller than the proportion that offered ANC [
16]. Due to these differences in service availability, the potential for the 10/20 policy to facilitate a population-level increase in use of facility-based delivery care was lower than for facility-based ANC. Secondly, it is likely that facilities’ inconsistent compliance with the policy impacted ANC and delivery care differently. Qualitative research conducted after the 10/20 policy was introduced suggests that health facilities often did not adhere to the policy’s recommended charges, and health care users were charged additional fees for certain drugs, laboratory tests, and services [
21,
23,
24]. Health centers providing any inpatient services, in particular, reported that the 10/20 registration fees did not provide adequate cost recovery, which contributed to their noncompliance with the policy [
21,
24]. Additionally, a nationally representative survey of Kenyan health facilities conducted in 2010 found that facility in-charges reported higher levels of overcharging for delivery services compared to ANC [
23]. This study was conducted 6 years after the 10/20 policy was introduced and the findings may therefore be related to the duration of time passed since the policy change. However, given the comparatively higher costs for providing delivery care, it is conceivable that this practice of greater overcharging for delivery care was also prevalent during the time immediately after the policy change.