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The Primary Health-Care System in China

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The Primary Health-Care System in China Review The primary health-care system in China Xi Li*, Jiapeng Lu*, Shuang Hu, KK Cheng, Jan De Maeseneer, Qingyue Meng, Elias Mossialos, Dong Roman Xu, Winnie Yip, Hongzhao Zhang, Harlan M Krumholz†, Lixin Jiang†, Shengshou Hu† Lancet 2017; 390: 2584–94 China has made remarkable progress in strengthening its primary health-care system. Nevertheless, the system still *Joint first authors faces challenges in structural characteristics, incentives and policies, and quality of care, all of which diminish its †Joint senior authors preparedness to care for a fifth of the world’s population, which is ageing and which has a growing prevalence of chronic National Clinical Research non-communicable disease. These challenges include inadequate education and qualifications of its workforce, ageing Center of Cardiovascular and turnover of village doctors, fragmented health information technology systems, a paucity of digital data on everyday Diseases, State Key Laboratory clinical practice, financial subsidies and incentives that do not encourage cost savings and good performance, insurance of Cardiovascular Disease, Fuwai Hospital, National policies that hamper the efficiency of care delivery, an insufficient quality measurement and improvement system, and Center for Cardiovascular poor performance in the control of risk factors (such as hypertension and diabetes). As China deepens its health-care Diseases, Chinese Academy reform, it has the opportunity to build an integrated, cooperative primary health-care system, generating knowledge from of Medical Sciences and practice that can support improvements, and bolstered by evidence-based performance indicators and incentives. Peking Union Medical College, Beijing, China (X Li PhD, 1,13 J Lu PhD, Shu Hu PhD, Introduction 2015. Additionally, the government instituted universal H Zhang MPH, Prof L Jiang MD, The primary health-care system in China, which provides health insurance coverage,10 a basic public health service Prof She Hu MD); Institute of basic clinical care and public health services to a fifth of programme,14 and a national essential drug system,15,16 all Applied Health Research, University of Birmingham, the world’s population, has a notable history. Since its of which improved access to and affordability of primary 17 Birmingham, UK establishment in the early 1950s, it contributed sub- health care. Acknowledging the in creasing pressure (Prof KK Cheng PhD); General stantially to a reduction in the burden of communicable, exerted by an ageing population, behavioural changes,18 Practice Development and maternal, and neonatal diseases through the 1960s and and rapid urbanisation,19 the government’s Healthy China Research Center (Prof KK 1,2 20 Cheng) and School of Public 1970s, and helped advance the global primary health-care 2030 plan envisions the primary health-care system as a Health (Prof Q Meng PhD), movement enshrined in the Declaration of Alma-Ata in means of addressing the emerging dual burden of chronic Peking University Health 1978.3 In subsequent decades, the system faced substantial non-communicable diseases21–23 and increasing health Science Center, Beijing, China; challenges after market-based reforms in the health- expenditures.1 Despite the importance of primary health Department of Family 4,5 6 Medicine and Primary Health care sector, including inadequate government funding care in China and its recent reforms, there is insufficient Care, Ghent University, Ghent, and weakening of the support of public health-care knowledge about both the current system and the effect of Belgium providers.7 These policy changes led to unintended recent policy changes. (Prof J De Maeseneer PhD); consequences such as surging costs,8 diminished access In this Review, we aim to assess the primary health-care Department of Health Policy, 8 9 London School of Economics to care, widening inequities, and an erosion of the system and provide a foundation for policy and practice and Political Science, London, health-care workforce.10,11 improvements to ensure efficient delivery of high- UK (Prof E Mossialos PhD); Sun As part of China’s new health-care reform, initiated quality primary health care, particularly to tackle chronic Yat-sen Global Health in 2009,12 the government increased its subsidies to non-communicable diseases. We sought to assess the Institute, Sun Yat-sen University School of Public primary health-care institutions from ¥19 billion state of evidence related to the primary health-care system Health, Guangzhou, (US$2·8 billion) in 2008 to ¥140 billion ($20·3 billion) in in China, with specific attention towards identifying the Guangdong, China challenges in structural characteristics, incentives and (Prof D R Xu MPP); Department financing policies, and quality of care, according to a of Global Health and Search strategy and selection criteria Population, Harvard T H Chan framework designed for the assessment of primary 24 School of Public Health, We searched the PubMed, MEDLINE, and China National health-care systems. We employed the following meth- Boston, MA, USA Knowledge Infrastructure databases (CNKI) on July 28, 2016, ods: a narrative literature review of both published and (Prof W Yip PhD); Section of grey literature; a quantitative data analysis of results Cardiovascular Medicine, to identify relevant studies on seven domains of primary Department of Internal health care in China—structure, human resources, electronic from a recent national survey of primary health-care Medicine, Yale School of health record system, finance, insurance, medications, and administrators, providers, and patients; and interviews Medicine, New Haven, CT, USA with national experts to interpret themes that emerged (Prof H M Krumholz MD); quality of care. In PubMed and MEDLINE, we used MeSH and Department of Health Policy free-text terms in conjunction to increase sensitivity to from the literature review and the survey (appendix). and Management, Yale School potentially appropriate literature published, in English or of Public Health, New Haven, Chinese, between 1966 and 2016. MeSH terms included Structural characteristics CT, USA (Prof H M Krumholz); “primary health care”, “general practice”, “general Infrastructure, professionals, and services and Center for Outcomes 25 Research and Evaluation, practitioners”, “physicians, family”, “community health According to the Declaration of Alma-Ata, a primary Yale-New Haven Hospital, services”, “delivery of health care”, and terms for each specific health-care system is designed to provide universally New Haven, CT, USA domain. Search terms and all their possible synonyms and accessible essential health care to individuals and (Prof H M Krumholz) spellings are identified in the full search strategy (appendix). families in the community as the first level of contact We used a similar strategy in CNKI to include literature with the national health system. In China, the primary published in Chinese journals. health-care system provides generalist clinical care and basic public health services. 2584 www.thelancet.com Vol 390 December 9, 2017 Review Primary health-care institutions provided 55% of outpatient care (4·4 billion visits) and 18% of inpatient Key messages care (41·7 million hospital admissions) in China in 2016,26 • The primary health-care system in China has contributed substantially to reductions in mainly for common clinical conditions (appendix). the burden of diseases. With the 2009 health-care reform, access to and affordability of Clinical care capabilities vary substantially across primary primary health care has substantially improved through increased government funding, health-care institutions. Of the 3602 institutions in our universal health insurance coverage, the basic public health service programme, and an national survey, 109 (52%) of 210 community health essential drug system. However, challenges remain. centres and 248 (85%) of 293 township health centres • Primary health-care doctors in China have low levels of training, commonly do not provided inpatient care. The median number of beds have certifications, and experience high rates of burnout. Primary health-care was 40 (IQR 27–59) for community health centres, and professionals are paid low wages and minimal benefits. Moreover, payment policies do 36 (IQR 20–60) for township health centres. Overall, not reward high-quality care. Many younger doctors are considering leaving the 98 (47%) of 210 community health centres and 204 (70%) profession, and a large proportion of doctors in village clinics are past retirement age. of 293 township health centres had an internal medicine department, 80 (38%) versus 187 (64%) had a surgery • Application of information technology (IT) is fragmented. IT systems for clinical care department, and 46 (22%) versus 138 (47%) had an are often unavailable; when available, they are not interoperable. IT systems for emergency department. Additionally, traditional Chinese public health services are more widespread, but they are not integrated with clinical medicine is widely provided: 160 (76%) community health practice. The resulting lack of linked digital data impedes the implementation of centres and 201 (69%) township health centres have a decision support as well as the timely generation of evidence from everyday primary specific department of traditional Chinese medicine health-care practice. (panel). Ten (5%) community health centres and • In China’s new health-care reform, government subsidies are not enough to offset the 28
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