A PROMISE KEPT: HOW SIERRA LEONE’S PRESIDENT INTRODUCED FREE HEALTH CARE IN ONE OF THE POOREST NATIONS ON EARTH, 2009 - 2010 SYNOPSIS When Ernest Bai Koroma assumed the presidency of Sierra Leone in 2007, he promised to run his government as efficiently as a private business. A few years earlier, a brutal 11- year civil war had ended, leaving an estimated 50,000 dead and an additional two million displaced. The effects of the war gutted the government’s capacity to deliver basic services. Koroma launched an ambitious agenda that targeted key areas for improvement including energy, agriculture, infrastructure and health. In 2009, he scored a win with the completion of the Bumbuna hydroelectric dam that brought power to the capital, Freetown. At the same time, the president faced mounting pressure to reduce maternal and child death rates, which were the highest in the world. In November, he announced an initiative to provide free health care for pregnant women, lactating mothers and children under five years of age, and set the launch date for April 2010, only six months away. Working with the country’s chief medical officer, Dr. Kisito Daoh, he shuffled key staff at the health ministry, created committees that brought ministries, donors and non- governmental organizations together to move actions forward, and developed systems for monitoring progress. Strong support from the center of government proved critical to enabling the project to launch on schedule. Initial data showed an increase in utilization rates at health centers and a decline in child death rates. Michael Scharff drafted this case study on the basis of interviews conducted in Freetown, Sierra Leone and London, U.K., in September and October 2011. Case published February 2012. See related cases, “Turning on the Lights in Freetown, Sierra Leone: Completing the Bumbuna Hydroelectric Plant, 2008-2009” and “Delivering on a Presidential Agenda: Sierra Leone’s Strategy and Policy Unit, 2010-2011.” INTRODUCTION mothers and children under five years of age in In March 2010, Sierra Leone’s president, less than a month, but the tour revealed that Ernest Bai Koroma, undertook a nationwide repairs to health centers were behind schedule. helicopter tour to evaluate progress on a national The delays threatened to derail plans. health-care initiative. The government planned The president convened a meeting at his to launch free care for pregnant women, lactating home with his advisers, health staff and the heads ISS is program of the Woodrow Wilson School of Public and International Affairs: successfulsocieties.princeton.edu. ISS invites readers to share feedback and information on how these cases are being used: [email protected]. © 2012, Trustees of Princeton University. This case study is made available under the Creative Commons Attribution-NonCommercial-NoDerivatives 4.0 International License. Michael Scharff Innovations for Successful Societies of donor groups, and threatened to fire everyone if projects through ministries. With the help of the delays continued. Ultimately, he did not fire Victor Strasser-King, a Sierra Leonean who anyone, but to those seated in his living room, the served as head of the group, Koroma’s threat highlighted the president’s personal government was just months away from finishing investment in the project and his commitment to the dam project. success. Just six months earlier, most people in A series of events created an opportunity not the room that night would never have imagined only to take some of the lessons emerging from that Sierra Leone could organize free maternal the Bumbuna experience and use them to improve and child health care, at least not so soon—or that health care for women and children, but also to the main champion would be the president improve coordination at the cabinet level, in the himself. center of government. This case chronicles the When he came to office in 2007, five years innovations a reform team led by Dr. Kisito after an 11-year civil war left an estimated 50,000 Daoh, the chief medical officer in the Ministry of dead and two million displaced, the then 54-year- Health and Sanitation (hereafter referred to as the old Koroma, a former insurance broker, promised health ministry), put in place with the president’s to bring business efficiency to his government. help. The case demonstrates how the innovations One of his first priorities was to develop improved both cabinet effectiveness and made Sierra Leone’s second Poverty Reduction Strategy progress in providing better health services. Paper, a template for national development, Between August 2009 and April 2010 when the drafted on the basis of conversations with president launched the program, the team created government officials, national civic leaders and aid structures and processes for defining priorities, donors every three years. The strategy paper, generating action, monitoring progress and which Koroma labeled his “Agenda for Change,” coordinating efforts by ministries and agencies— emphasized progress in energy, agriculture, all of this in a government that had few highly transportation, education, health and other social trained or experienced managers or technical staff. services. Koroma focused on the needs of The team also developed a creative way to engage ordinary citizens. and coordinate donor involvement. With government capacity low in the wake of the war, Koroma found it difficult to make THE CHALLENGE progress on his agenda. The war had destroyed As 2009 began, the urgent need to improve much of the country’s infrastructure and displaced maternal and child health care in Sierra Leone government workers, leaving ministries and was clear, but the country seemed poorly departments without skilled employees. In positioned to respond. Sierra Leone ranked worst August 2009, Koroma was striving to complete in the world for both maternal mortality and the Bumbuna hydroelectric dam, which was to infant mortality. At the time, the risk that a provide the capital with its first reliable power woman would die during childbirth at some point source. The effort to improve electricity supply in her life was one in eight. One in 12 newborns had dragged on for years, beset by a lack of died within a year. Data showed that cost coordination among government ministries and deterred women from seeking care or bringing contractors. In an attempt to overcome capacity their children for treatment, and there were few problems in the ministries, the president grounds for optimism. In 2002, the health established a special advisory group that provided ministry had attempted to launch a free health- him with strategic advice on how best to drive key care program without first addressing ! © 2012, Trustees of Princeton University Terms of use and citation format appear at the end of this document and at successfulsocieties.princeton.edu/about/terms-conditions. Michael Scharff Innovations for Successful Societies fundamental challenges to the health sector, such Possibly to counter the whispers in the ministry as the low salaries and lack of medical supplies. corridors, the health minister called an emergency The initiative quickly fizzled. In 2005, Sierra meeting in the first week in August. He gathered Leone had eliminated user fees yet again, but the his senior staff and about a dozen donor government, weakened by the prolonged conflict, representatives, and told the group that he wanted could not enforce the law. Informal fees charged to make health care free for pregnant women and by health workers replaced formal fees, and the children. law did not provide for free medicines, which His proposal attracted enthusiasm from discouraged people from seeking care. international aid agencies and non-governmental Despite the setbacks, advocacy groups organizations. However, worried that a flood of continued to press for action. At the same time, visitors could inundate health centers if the policy makers in other parts of the world had initiative were not properly planned—and well begun to worry that African countries would fall aware of past failures to launch free care— far short of reaching Millennium Development international experts urged the minister to delay Goals—concrete targets, including improvements implementation until the ministry formulated a in child and maternal health, that U.N. member strategic plan. states agreed to achieve by the year 2015—and The health minister called on Daoh to help urged free health care for women and children. create a plan of action. Daoh had been a clinician They wanted Sierra Leone to join with Burundi, in Sierra Leone in the 1980s and rose through the Zambia and other countries in abolishing user ranks at the health ministry, eventually becoming fees. head of reproductive health and then chief When it came time to sign performance medical officer. He was an invaluable leader contracts with his ministers in early 2009, within the ministry. “Dr. Daoh made the President Koroma, sensing the importance of the difference in the ministry,” recalled Francesca issue, put making health care free for pregnant Pacitti, a former adviser with the Africa women, new mothers and young children in his Governance Initiative (AGI), a nonprofit health minister’s contract. The actual wording in organization headed by former U.K. Prime the contract, however, included few specifics on Minister Tony Blair. “He would have his team in how to deliver on this charge. Many other his office every morning at 8 a.m. You couldn’t priorities competed for the president’s attention, do something like free health care just from the and a year and a half after he assumed office, the top. You needed people in the ministry.” president still had focused little attention on the Daoh gathered the heads of the health issue. ministry’s eight directorates and sought counsel A series of events created an opportunity to from development partners. attempt, yet again, a free health-care program.