the reform to regionalization in quebec: towards a new model of local governance in health care...
TRANSCRIPT
The Reform to Regionalization in Quebec: Towards a New Model of
Local Governance in Health Care
Elisabeth MARTIN, Ph.D candidateMarie-Pascale POMEY, M.D., Ph.D.
Pierre-Gerlier FOREST, Ph.D.
2006 National Healthcare Leadership Conference
Victoria (BC), June 12 & 13, 2006
Acknowledgments
Research project funded by the Canadian Institutes of Health Research
Research grant # 136723
Quebec research team: Laval University and University of Montreal
Presentation outline
1. Research project: objectives, theoretical framework and methodology
2. History of regionalization in Quebec (1971-2001)
3. Presentation of Bill 25
4. Governemental agenda, decision agenda, policy choice
5. Implementation
6. Conclusion: key success factors and challenges ahead
THE RESEARCH PROJECT
The research project
Results from a research project: A Cross-Provincial Comparison of Health Care Policy Reform in Canada (H. Lazar, PI)
6 case studies of policy reform undertaken in 5 provinces (AB, SK, ON, QC, NFL)
One case study on regionalization of health services
Research objectives
Describe the policy-making process Analyze the factors that explain why the
public policy-making process unfolded the way it did
To identify patterns in the distribution of these factors across policies within a province and across provinces
To derive policy implications for federal and provincial policy-makers
Theoretical framework
Theoretical framework rooted in John Kingdon’s public policy work (2002, 2nd edition):– Governemental agenda– Decision agenda– Policy choice
Variables:– Institutions– Interests– Ideas– External events
Methodology
Data gathered through 10 semi-structured interviews with key actors and decision-makers involved in the reform process
Interviews were transcribed, coded (NVivo) and analysed
Analysis of relevant literature:– Grey and scientific literature on regionalization– Governmental publications & reports
INTRODUCTION: Regionalization of health
services in Quebec
3 key moments in the history of regionalization in Quebec
1971- 12 Health and Social Services Regional Councils
1991- 18 Health and Social Services Regional Boards
2003- Adoption of Bill 25 transforming the Boards into 18 Health and Social
Services Agencies
BILL 25: A new reform of regionalization
Bill 25: Transformation of the regional governance structures
Transformation of the Health Boards into Agencies:– Former mandates and powers remain for at least
2 years– New mandate: development of Local Services
Networks
Long-term Care Centre(CHSLD)
HospitalLocal Community
Service Centre (CLSC)Health and Social Services Centre
(HSSC)
Bill 25: Development of Local Services Networks
LOCAL TERRITORY
GOVERNMENTAL AGENDA: 1980s-2002
How the problem emerged?
Health reforms of the 1990s– Mergers & service integration
Clair Commission of 2000– Criticizes regional boards
Introduction of Bill 28 in 2001– Brings changes to governance (boards)
DECISION AGENDA: 2002
Quebec Liberal Party electoral platform
At the end of 2002, the Liberal Party presented their electoral platform for the 2003 elections
Content of the platform:– Regional Health Boards were to be abolished – Service coordination was to be transfered to the local health
care institutions– Creation of a 2 tiers system: provincial and local levels
April 2003: Liberal Party wins the elections
POLICY CHOICE: 2003
Elaboration of the project: June – October 2003
June 2003: Ministry of Health starts to work on the elaboration of a reform proposal for the Minister– Influence of Alberta’s regionalization model– Conclusion: regional level is necessary
The Ministry’s proposition was not totally in line with the content of the Liberal Party political platform– Regional authorities remain but are transformed– But → integration of services at the local level
The parliamentary commission: November and December 2003
Few actors supporting the project entirely:– Medical and hospitals associations
Consensus on the objectives of the reform– Service integration– Responsibility for the health of the population
Division and opposition on the means to achieve the objectives
– Transformation of the Boards into Agencies– Institutions mergers (inclusion of hospitals)
The remodeled proposition
Bill 25 was modified following the parliamentary commission
Hospitals can be excluded from the mergers because of: – The absence of such services on a territory– The complexity involved in integrating those
services particularly considering: The size of the territory served by the institution The number or the capacity of the facilities Sociocultural, ethnocultural or linguistic characteristics
of the population served.
THE IMPLEMENTATION OF THE REFORM
Implementation of the reform: January – June 2004
The Ministry of Health implementation strategy:– No standardized model, no precise instructions – Agencies and the local institutions to come up with
proposals on how to configure their local services networks
– Propositions could differ from one territory to another with respect to size of networks, territorial delimitations and type of institutions merged.
Agencies had to submit their regional organizational plans by the end of April.
Implementation of the reform: January – June 2004
The proposals were studied by the Minister of Health between April and June
A few changes were made to the initial proposals submitted by the Agencies
June 23rd 2004:– 95 Health and Social Services Centres (HSSCs)
were created and more than 700 new board members were appointed.
Since July 2004…
Development of clinical projects Introduction of Bill 83 in November 2005
– Regional level of governance survives
Before/after
MAY 2004
452 institutions 328 public 124 private
JUNE 2005
357 institutions 95 HSSCs
– 79 including an hospital
100 public– 32 hospitals– 12 long term care facilities– 40 rehabilitation centres– 16 youth centres
122 private
CONCLUSION
Key success factors
Major reform, quick reform
Military commando strategy
Bill 25 or the «let’s do it» law
Clear consensus on the targeted objectives
Key success factorscontinued...
Minister of health’s credibility & personality
Support from key actors
Support from the Agencies A good political process:
– Strategic support– Timing– Willingness– Opening
Challenges ahead
Protecting primary care, health promotion and prevention
Future of the regional level Integration & networks Getting health professionnals on board Time for transition of management teams Financing
Conclusion: Innovation and continuity
An innovative reform to improve health services
A reform in line with Quebec’s regionalization heritage
No changes to core features of regionalization model:– Region’s boundaries– 3 tier system of governance
THANK YOU!
QUESTIONS AND COMMENTS?