The Question of Decentralized Health Governance and Strengthening Fund Structure to fight COVID-19 Crisis in North Bengal

Farhat Hossain 
In the year 2005, The National Rural Health Mission
(NRHM) was launched to strengthen the rural health services and proper
financial management. The health care services in urban areas with a population
of more than 50000 are covered by the Nation Urban Health Mission (NUHM). The
National Health Mission (NHM) was initiated in the year 2013 by including NRHM
and NUHM. The NHM mainly funded by the central government and implemented
through the concept of decentralized governance of health services. The major
development under NHM was the transfer of Flexi pool fund directly to the
different states (State Health Societies) in the country and to the respective
district health societies (Narwal, 2015). The decentralized structure of health
societies are executed at different levels and units of governance like State,
districts and blocks. The fund sharing ratio of the central government to the
state government is 60:40. Firstly the funds are released by the central
government to the State health Societies (SHS) then SHS release it to the
District health societies (DHS) and the corresponding lower-level units. It is
mention in the operating manual of NHM (2013) that at least 70 percent of funds
should be allocated to the districts and high priority districts allocated 30
percent more of funds. Other than this, the district with tribal and vulnerable
population should be given special attention. But if we travel through
district-level funding in West Bengal it gives reverse trends.

The higher
proportion of scheduled caste and scheduled tribe population resides in North
Bengal. The districts of Jalpaiguri and Cooch Behar are having highest
concentration of scheduled caste population with 37.65 percent and 50.17
percent respectively. The highest proportio of scheduled tribe population are
found in the district of Darjeeling with 21.52 percent followed by Jalpaiguri (18.89
percent) and Dakshin Dinajpur (16.43 percent).
religious distribution is quite different in North Bengal. The Maldah and Uttar
Dinajpur are identified as minority concentration districts of category A with
49.72 percent and 47.36 percent of the Muslim population. The other two
districts i.e. Cooch Behar and Dakshin Dinajpur also belong to category A of
Muslim minority with 23.34 percent and 24.2 percent respectively. It is evident
from the ICSSR project (2008) on minority concentration districts that the
levels of development in accessing the basic services was very poor and
unfortunately have glaring disparity. These four districts are relatively
deficient in terms of amenities and services and also suffer from the
continuous process of underdevelopment.
The major challenges of
health system is to strengthen and implement the goals defined in NHM fund as
per the norms and allocate to district and block level health governance. The
mission flexi pool fund of release and expenditure under NHM is shown in table
1. The fund release was quite high for the western plain region in the year
2008-09 and then it followed by eastern plain and southern plain region. In the
year 2017-18, the fund release is higher for eastern plain region and followed
by western plain and southern plain region. 
It is very surprising fact that southern plain consist of two districts
i.e. North and South 24 Parganas and the proportionate share of fund release
was quite high for these two districts in comparison to other districts of West
Bengal.  On the other side, Purbo and
Paschim Mednipur district of Western plain region have higher share of fund
release as compared to Bankura and Purulia district of Western Plain region.  North Bengal shares 23.38 per cent out of the
total fund release of the state as compared to 33.61 per cent of western plain
region in the year 2008-09. Over the period of time (2008-09 to 2017-18), the
fund release is increased for North Bengal by 1.89 per cent.  The district wise fund release is quite low
for Uttar Dinajpur and Dakshin Dinajpur and it is highest for North 24 Pargana,
South 24 Pargana and Paschim Mednipur. Although, Uttar Dinajpur, Kochbihar and
Malda are the high priority districts as per NHM goals and also have vulnerable
population. But it did not receive sufficient attention by the State Government
and these districts are also known as migrant labour concentrated areas. It is
clearly depicted in the table 1 and 2 that there are regional disparity in
terms of fund release by the state. 

Table-1: District/Region wise Mission flexi pool Fund
Release and Expenditure under NHM

[Note: The mission flexi pool fund is not available for Kolkata.
Therefore, the estimate for mission flexi funds of Southern Plain region
composed of two districts only i.e. North 24 Parganas and South 24  Parganas]
Source: Computed from Unpublished data Collected by the Researcher from
Govt. of West Bengal
Table 2: District/Region wise Proportionate
Share of Mission flexi pool Funds Release and Expenditure under NHM

Inadequate Health Care
System in North Bengal
There are insufficiencies of rural health
infrastructure in North Bengal to treat majority of the rural patients and not
fulfilling the norms of NHM (see Fig 1). The average population served per
rural health care institution are very high in North Bengal as compare to rest
of Bengal. Although, the population density is low in the districts of North
Bengal with 804 persons per as compare to 1029 persons per sq. km in West
Bengal (Census, 2011).
Average population
served per PHC, BPHC and rural hospital beds are quite high in North Bengal as
compared to the state average and rest of the Bengal. Average population served
per BHC beds in North Bengal 87457 persons in comparison to 51604 persons in
West Bengal. The corresponding figure for PHC and rural hospital beds in North
Bengal are 11267 and 7307 persons in contrast to 8919 and 6643 persons in West
Bengal (Health on March 2015-16). It is reported in Uttarbanga Sambad (26.03.2020;
31.03.2020 and 05.04.2020) that there are lack of resources in the government
hospitals to deal with Covid-19 crisis. The health care institutions reported the
facts before media and accepted the limitations to tackle the COVID-19 crisis
due to the limited availability of health manpower, equipment, masks, sanitizer,
Personal Protection Equipment (PPE) kit and insufficient health infrastructure.       
Fig -1: Health Infrastructure
under NHM and Institution of Governance 

Cited from NHM PIP operative manual, MOHFW, GOI

Health and Outcomes in North Bengal
The state of West Bengal is unique in the
country where left government ruled for more than a quarter of a century. The
two major public initiatives had implemented by West Bengal Government in 1977
was land reforms and decentralisation which impacted positively in reducing
poverty, and in the process of growth and development of the State. However, it
is evident from various literature (Raychoudhuri and Haldar, 2009 and Purohit,
and government
reports (WBHDR, 2004; Planning commission, 2002) that the inter-district and
intra-regional differences in the state are widening. The six northern
districts are considered as backward region due to the insufficient
socio-economic outcomes and lack of infrastructure facility.

Other than this the process of decentralisation is
also very poor in the districts of North Bengal. The evolution report of the
Department for International Development (DFID) of Strengthening Rural Decentralisation
(SRD) programme identified that these priority districts requiring more focus
intervention and need planning on poverty. It is also found that the Fiduciary
Risk Assessment (FRA) was also high in these districts.
As per the Annual Administrative
Report (2008-09), Panchayat and Rural Development Department, Govt of West
Bengal, m
ost of the districts in North
Bengal are the worst-performing districts in terms of service delivery by the
panchayats of the respective districts
. The literature on decentralisation of service delivery
suggests that local-level democracy may not function well due to unequal
distribution of assets, literacy, social status and political participation.
The poverty alleviation effort of the West Bengal panchayats was not achieved
successfully due to the phenomenon of limited accountability of gram panchayats
in the presence of high inequality in socioeconomic status and political power
(Bardhan and Mookerjee, 2003).

per the NHM manual there should be certain committees like Rogi Kalyan Samiti (RKS) at the district and block level and people’s
organization such as Village Health Sanitation and Nutrition Committee (VHSNC)
at gram panchayat level (See Fig-1). These committees are needed for
decentralized outcome based planning and implementation. But these types of
committees are not functioning properly as per the NHM guidelines. The Rogi Kalyan Samiti or patient welfare
committee is an effective management structure for proper functioning and
management of the hospital. The main objective of the RKS is to ensure proper
accountability of public health providers to the society, proper availability
of essential drugs, proper scientific disposal of hospital waste, provide
drinking water subsidized food, medicine and cleanliness, introduce
transparency in the management of funds, supervise the implementation of
National Health Programmes, display of citizen charter, upgrade and modernize
health service facility and undertake construction and expansion of building as
per the hospital need (GOI, 2015).

Rogi Kalyan Samiti is functioning at
the district level only. At the block level, RKS is ineffective to address the
various objectives. It is found from my fieldwork in the districts of
Darjeeling and Uttar Dinajpur that only two meeting were conducted during six
months at the block level. There are absences of activities between the Village
Health Sanitation and Nutrition Committee (VHSNC) and the sub-centre in North
Bengal region. During my field visit, it was found that all the interacted ANM
and ASHA workers were not aware of the constitution of Village Health
Sanitation & Nutrition Committee and it’s functioning. ASHA workers were
unaware about their membership in the VHSNCs. The ANM and ASHA workers are not
aware of the role of VHSNC and refer it as a function of Panchayat Samiti
(Block Political Unit).

this backdrop, it is very important to promote institutionalization of
panchayat raj with functions like health, finance and functionaries. The
Committees like Rogi Kalyan Samiti (RKS) and Village Health Sanitation and
Nutrition Committee (VHSNC) is the important instrument towards facilitation of
inter-sectoral coordination, local community participation in decision making
and improving facility based health care services (Narwal, 2015). But recently,
State government announces withdrawing of power from the Rogi Kalyan Samities and makes it more centralised to overcome the
present crisis (ABP Ananda report on 9/04/2020). The centralized system of
health administration is creating more problems to deal with the COVID-19
crisis in rural populace of North Bengal. It has been already predicted by many
researchers and scientists that the villages may become the hotspot of the
disease after lifting the 21 days lockdown (The Hindu dated 09/04/2020). The Government
of West Bengal identified seven hotspots in the states which include Egra, Howrah, Tehatta, Eastern Command
Hospital (Kokata), Haldia, Kolkata
, and Kalimpong.
About 15 cases of COVID-19 are getting treated in North Bengal Medical College and Hospital (NBMCH) and Dr. Chang’s Private Hospital in
Matigara. But it is very surprising fact to the people of North Bengal that the
Siliguri town and adjoining areas are not identified as Hotspots of COVID-19
though both the NBMCH and Dr. Chang’s Hospital are situated in Siliguri only. This
pandemic requires more engagement of panchayats with the collaborative effort
of self-help groups to set up quarantine facilities within the village premises
and provide masks, sanitizer, food and safe drinking water to the vulnerable populace
and migrant labourers. During this health crisis Government should promote Mobile Health Services in the
inaccessible terrain of North Bengal which include the facility of doctor,
lifesaving medicines and diagnostic testing kits.

researcher is a Ph.D Scholar, Special
Centre for the Study of North-East India, Jawaharlal Nehru University, New
Delhi. Any comments or suggestions can be sent over email at
[email protected]

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