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Health Policy and Development
Department of Health Sciences of Uganda Martyrs University
ISSN: 1728-6107 EISSN: 2073-0683
Vol. 1, Num. 1, 2003, pp. 15-20
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Health Policy and Development Journal, Vol.
1, No. 1, Dec, 2003, pp. 15-20
A REVIEW OF HUMAN RESOURCE FOR HEALTH IN UGANDA
Charles Wycliffe Matsiko1 and Julie Kiwanuka2
1Human Resource Development Division, Ministry of Health.
2Institute of Public Health, Makerere University.
Code Number: hp03006
Introduction
The importance of human resources in health systems needs not to be over-emphasised.
Expenditure on health workers forms a significant proportion of total
health expenditure in many countries. In order to effectively implement
cost-effective interventions, health workers must have the appropriate
skills, competencies, training and motivation to do so. However, current
evidence (MoH 2001, WHO 2002) suggests that health systems in developing
countries are understaffed and exhibit mal-distribution of health workers.
Health workers are generally de-motivated and less productive due to
inappropriate incentive environment.
Demographic, epidemiological, technological, economic and political changes
have created huge human resource challenges for such constrained health
systems. The situation has been worsened by the spread of the deadly
HIV/AIDS pandemic that has had an immense impact on health systems capacity
particularly in sub-Saharan Africa. The depletion rate of health workers
due to HIV/AIDS related deaths is much higher than the replacement rate,
leaving most health systems incapacitated in many ways. Internal and
external migration of health workers is a large global challenge that
seems to be affecting many developing countries.
The procedure for recruiting health workers
Recruitment starts with identification of vacancies in the health sector. The
personnel division of the Ministry of Health in liaison with departmental
heads, programme managers and other heads of units do this. The personnel
division then seeks clearance from Ministry of Public Service (MoPS)
to fill the vacant positions. If there is no objection from the
MoPS, then Ministry of Health (MOH) declares the vacant posts to the Health
Service Commission (HSC). The HSC in turn advertises the vacant posts
in the newspapers and or on local radio stations. Normally the job advertisements
are also placed on the general notice boards of the HSC and MOH headquarters.
The commission further makes short lists based on the selection criteria
in their possession and interview each short listed candidate.
Records of interviews of candidates are made. The interviews normally take one
month or two depending on the number of candidates interviewed. HSC releases
these records to the MOH. After this, the personnel division of the MOH
writes appointment letters. Posting instructions are then sent to the
successful candidates by the employing authority. The selected candidates
are required to write a formal acceptance letter to the appointing authority before individual salaries
are processed.
At the district level a similar process is carried out. MOH is represented by
the Directorate of Health Services, and instead of HSC, there is the
District Service Commission (DSC) that has similar functions as the HSC,
but the rest of the process is similar to the one described above.
The current situation of human resources for health in Uganda
There are more than 20 categories of health workers within the health sector.
For the purposes of this paper, we shall consider those that are considered
critical in implementation of priority health interventions.
The MOH has opened a human resource database at the central level for the purposes
of updating numbers and categories of human resources for health (HRH).
As of July 2003, this exercise had covered only 32 districts and it revealed
that among established staff, enrolled nurses are relatively more that
any other cadre, particularly in rural areas, followed by the enrolled
midwives and then clinical officers. Field experience also shows that
most health centre level IIs are headed by either enrolled nurses or
enrolled midwives.
Among the non-professional staff is a cadre called Nursing Assistants. These
were originally referred to as “Nursing Aides”(untrained
health personnel that assist in nursing procedures). The Uganda National
Health Policy (1997) provided for their training under a three-month
intensive course in order to prepare them to be able to get actively
involved in the delivery of the minimum health care package.
Recruitment of health workers has been re-instated under the Health Sector Strategic
Plan 2000/01 –2004/05. By mid last year (2002), more than 85% of
the 3172 health workers funded under the Poverty Action Fund (PAF) had
been recruited. The current proportion of approved posts filled with
health workers improved from 33% in FY 1999/2000 to 42% in 2001/2002.
The level of increase was not as expected, as districts constructed more health
units, which therefore increased the denominator. Infrastructure development
under decentralized management went ahead of production of health workers.
In addition, while budget provision for recruitment for the Regional
Referral Hospitals was made, delays at the level of the Health Service
Commission affected actual recruitment.
The country is however still experiencing a shortage of a trained workforce.
For instance Uganda with a population of 24 million people has only got
2102 medical doctors registered with the Uganda Medical and Dental Practitioners’Council.
Further, while the current doctor to population ratio stands at 1:12,000,
not all these doctors are actually Ugandans. About 25% of the doctors
registered with the medical council are foreigners and the MOH has no
guarantee of how long they will stay in the country.
The most rare cadres in the country include; Pharmacists whose availability
is about (30%) of the required number. Others include Physiotherapists,
Dental surgeons, Radiographers Laboratory technicians and Anaesthetic
assistants.
Projected needs for new doctors and nurses
The basic professional training programs in Uganda are well established and
produce a steady stream of health workers annually. The output of the
trained health professionals is not based on the market demand but on
the capacity of health training institutions. This is because the Ministry
of Health has no direct control over the training institutions. The health
training institutions are under the Ministry of Education.
Table 1 below shows the 5 year projected requirements for all categories of
nurses. These are new nurses needed in the health sector on a yearly
basis.
Table 1. Projections for nurses
Cadre |
2000
|
2001 |
2003 |
2004 |
2005 |
Graduate nurses |
17 |
12 |
10 |
15 |
15 |
Registered Comprehensive |
45 |
25 |
50 |
100 |
100 |
Registered Nurses |
175 |
252 |
300 |
300 |
200 |
Registered Midwives |
104 |
192 |
200 |
200 |
200 |
Registered psychiatric |
34 |
43 |
50 |
50 |
50 |
Enrolled Psychiatric |
30 |
30 |
40 |
40 |
40 |
Enrolled Nurses |
445 |
465 |
500 |
300 |
250 |
Enrolled Midwives |
379 |
377 |
400 |
300 |
250 |
It is anticipated that when most nursing schools have eventually converted to
comprehensive nursing, the annual intake of single trained enrolled nurse/midwives
will decrease.
Table 2 below shows the 5 year projected requirements for all categories of
doctors.
Table 2. Projected output for doctors. Five year training requirements for
doctors in Uganda
DISCIPLINE |
2000/01 |
2001/02 |
2002/03 |
2003/04 |
2004/05 |
Total |
Undergraduate doctors |
120 |
120 |
130 |
130 |
150 |
650 |
Postgraduate doctors |
|
|
|
|
|
|
Physician |
5 |
6 |
6 |
6 |
6 |
29 |
Surgeon |
5 |
5 |
5 |
5 |
6 |
26 |
Paediatrician |
10 |
10 |
10 |
10 |
10 |
50 |
Obs/Gynaecology |
10 |
10 |
10 |
10 |
10 |
50 |
Orthopaedic surgeon |
4 |
4 |
4 |
4 |
5 |
21 |
Ophthalmologist |
5 |
5 |
5 |
5 |
5 |
25 |
ENT Surgeon |
4 |
4 |
4 |
5 |
5 |
22 |
Psychiatrist |
4 |
4 |
4 |
5 |
5 |
22 |
Anaesthesiologist |
5 |
5 |
5 |
5 |
5 |
25 |
Radiologist |
4 |
4 |
4 |
4 |
5 |
21 |
Pathologist |
3 |
3 |
3 |
3 |
4 |
16 |
Microbiologist |
2 |
2 |
2 |
3 |
4 |
13 |
Public health |
10 |
10 |
10 |
10 |
10 |
50 |
Epidemiologist |
3 |
5 |
5 |
10 |
10 |
33 |
Pharmacology |
10 |
10 |
10 |
5 |
5 |
40 |
Physiology |
3 |
3 |
3 |
10 |
10 |
29 |
Anatomy |
3 |
3 |
3 |
3 |
4 |
16 |
Medical illustration |
2 |
2 |
2 |
3 |
4 |
13 |
Total postgraduate doctors |
92 |
95 |
95 |
106 |
113 |
501 |
Cost of training health workers
A study done by AMREF Uganda (2002) revealed that the cost of training health
workers in Uganda varies from place to place as well as from school to
school. This paper draws on three case studies from the AMREF study to
give an overview of the costs of training a registered comprehensive
nurse, enrolled midwife, an enrolled nurse and a clinical officer.
The cost of training a registered comprehensive nurse at Masaka Nurses Training
School
In 2000/2001, using the school’s recurrent expenditure for the previous
year and projections for the FY 2001/2002 the annual per capita cost
of training a Registered Comprehensive Nurse (RCN) at Masaka Nurses Training
School was computed.
The cost was approximately 2 million Uganda shillings (US$ 1000) per year. Table
3 below shows the cost incurred by an individual student at Masaka Nurses
Training School, while table 4 further below shows the annual per capita
cost of training a Registered Comprehensive Nurse at the same school.
It is worth noting there are two categories of students: the government
sponsored students and the private students.
Table 3. Masaka SRCN Student fee structure for 2001/2002
Cost items to the student |
Government Sponsored (Uganda Shillings) |
Privately sponsored
(Uganda Shillings)
|
Tuition |
0 |
768,000 |
Accommodation |
0 |
360,000 |
Development |
20,000 |
80,000 |
Maintenance fee |
0 |
20,000 |
Fee for index number |
12,500 |
12,500 |
Registration |
0 |
70,000 |
Medical examination |
0 |
20,000 |
Caution money |
0 |
20,000 |
Scholastic materials |
0 |
15,000 |
Examination fees |
0 |
30,000 |
Industrial training |
0 |
30,000 |
Field work |
0 |
20,000 |
Clinical uniform |
70,000 |
70,000 |
Practical book |
20,000 |
20,000 |
Midwives handbook |
12,500 |
12,500 |
Identity card |
3,000 |
3,000 |
Name tag |
3,000 |
3,000 |
Extra curricula activities |
0 |
5,000 |
Students Guild |
5,000 |
5,000 |
UNSA |
1,000 |
1,000 |
Total First year |
147,000 |
1,565,000 |
Total Second year |
0 |
1,128,000 |
Total Third year |
0 |
1,128,000 |
Total Fourth year |
0 |
1,268,000 |
Total Course Cost |
147,000 |
4,949,000 |
Total Course Cost in Dollars1 |
US$ 73.5 |
US$2474.5 |
Table 3 above shows how much the Government of Uganda subsidizes the training
for registered comprehensive students (Government sponsored). While government
sponsored students do not directly pay for most of the items, the state
actually covers these costs elsewhere. The privately sponsored students
pay the total cost per year at an average of 1.2 million. In first year,
the cost is substantial. The number of privately sponsored students is
much smaller as compared to their counterparts who are sponsored by government.
In 2000/2001, they constituted 15 (16%) out of a total of 94 students.
Table 4. Annual per capita cost of training a Registered Comprehensive Nurse
at Masaka.
Item |
1999/2000
|
2000/2001 |
Projected 2002/2003 |
Student Population |
91 |
94 |
96 |
Recurrent expenditure |
194,915,654 |
195,975,376 |
477,214,320 |
Actual expenditure on students during year |
183,610,654 |
171,816,676 |
447,214,320 |
Per capita expenditure |
2,017,699 |
1,827,836 |
4,665,420 |
Having looked at the cost of training a Registered Comprehensive nurse, let’s
now look at the cost of training a single trained Enrolled Nurse or Enrolled
midwife.
The cost of Training a Student in Lira School of Nursing and Midwifery
Lira School of Nursing and Midwifery is a government institution. Hitherto 2001,
Lira had only the two-and-half year courses for Enrolled Nurses and Enrolled
Midwives. It started the three-year Enrolled Comprehensive Nurse program
in November 2001 with an intake of 47 students. This followed government
policy of converting all schools from single training to comprehensive2 training
schools. Lira is therefore aiming at phasing out training of the specialized
nurses and midwives.
Table 5 below shows the total student population in Lira School of Nursing and
Midwifery by year.
Table 5. Student population in Lira School of Nursing and Midwifery by year.
Cadre intake |
1997/98 |
1998/99 |
1999/2000 |
2000/01 |
Enrolled Nurse |
82 |
90 |
97 |
77 |
Enrolled Midwife |
66 |
98 |
81 |
59 |
Total Intake |
148 |
188 |
178 |
136 |
Cadre Output |
|
|
|
Enrolled Nurse |
97 |
92 |
86 |
71 |
Enrolled Midwife |
96 |
63 |
80 |
68 |
Total Output |
193 |
155 |
166 |
139 |
1 US$ is equivalent to Uganda Shillings 2,000 specialized training in either
nursing or midwifery skills.
From table 5, it should be noted that students who qualified in the academic
year 1997/98 must have joined the school two and half years before (mid
1992). Furthermore, numbers for inputs and outputs cannot be the same
because some candidates repeat years while others fail and are discontinued.
At the school, government sponsored enrolled nurses, midwifes and enrolled comprehensive
nurses pay the same amount of tuition, about Shs. 450,000 per annum (table
6). The privately sponsored students however pay Shs 540,000 for tuition
and shs 360,000 for boarding annually. Based on the school’s 2000/01
expenditure statements, the most expensive items were found to be food
and salaries, which took up 35% and 20% of the total payout respectively.
Staff allowances, inland travel and welfare amounted to 19%. Pay for
utilities took 5.5% while primary health care activities at the school
took 2.6 percent of the total budget.
Table 6. Annual per capita cost of training a student at Lira SNM Ug. Shs.
|
1999/2000 |
2000/2001 |
Recurrent expenditure |
210,856,420 |
249,122,359 |
Student Population (all categories) |
464 |
543 |
Annual Per capita Cost |
454,432 |
458,789 |
The cost of training a clinical officer at Mbale
Mbale School of Clinical Officers, is staffed with a tutor to student ratio
of 1:32, and has been producing clinical officers for a long time. Considering
the two academic years 2000/2001 and 2001/2002, the cost of training
a clinical officer is Ug. Shs. 1.272,676 (US $ 636.3) per year. Reviewing
the 2000/01 expenditure statements, payment for food was the leading
cost among all items (37%) of the budget. Salaries came second with 29%
while staff allowances, internal travel and students’welfare combined
took 14% of the budget. The average annual per capita cost of the period
1999 to 2001 was shs 1,272,676 (table 7).
Table 7. Annual Per capital Cost of Training a Clinical Officer at Mbale.
|
1999/2000 |
2000/2001 |
Recurrent Cost |
345,583,235 |
312,323,672 |
Total student Population |
258 |
259 |
Annual Per Capita cost |
1,339,470 |
1,205,883 |
Annual Per Capita Cost US$ |
669.7 |
602.9 |
The cost of Training a doctor in Uganda.
There are two medical schools that train doctors in the country; namely Makerere
University Medical School and Mbarara University of Science and Technology.
In this paper, we shall concentrate on Makerere University because it
has been training medical professionals for a longer time. Table 8 is
a summary of the training costs for a medical student at Makerere University.
Table 7. The cost of Training a doctor.
Item |
Cost of Undergraduate Medical Student |
Cost of Postgraduate |
Registration |
1,200,000 |
1,200,000 |
Tuition |
1,440,000 |
1,500,000 |
Field lab fees |
- |
0 |
Examination fees |
120,000 |
120,000 |
Administration fees |
- |
120,000 |
Library fees |
5,000 |
5,000 |
Books/Stationery |
1,500,000 |
400,000 |
Accommodation |
300,000 |
300,000 |
Feeding |
90,000 |
- |
Other expenses for student |
- |
- |
Research (third year) |
- |
2,500,000 |
Total for first year |
4,655,000 |
8,300,000 |
Total for second year |
4,655,000 |
8,300,000 |
Total for third year |
4,655,000 |
10,800,000 |
Total for fourth year |
4,655,000 |
- |
Total for fifth year |
4,655,000 |
- |
Total Course Cost |
23,275,000 |
27,400,000 |
Total Cost in Dollars |
US$ 11,637.5 |
13,700 |
Training a doctor at Makerere University is quite expensive. This has resulted
in the training of a few doctors per year. Using the fee structure from
academic registrar’s office, the annual cost of training a doctor
is Ug.Shs. 4,655,000 (US$2327.5), this is equivalent to training 5 Registered
Comprehensive Nurses. However, this cost does not does not capture other
personal expenses that a student may incur during the course. Thus, other
expenses for a student are excluded in this calculation. For the entire
5-year period, a sponsor should prepare to spend not less that Ug shs.23,
275,000 per medical student doctor.
Postgraduate training normally takes at least two to three years at Makerere
University. Every year, a student will comfortably spend Ug.Shs 8,300,000
for the first two years. In the third year a postgraduate doctor is expected
to carry out a research project and thereby raising the costs to Ug.Shs
10,800,000 (US$5,400). However, if the postgraduate student is not residing
in the University facilities, then the cost is considerably higher than
this (Table 7).
Salary levels of professionals
Professionals in the health sector fall under 25 major categories. These have
been grouped according to the Public Service appointments nomenclature.
It should be noted that, these professionals are all trained under the
supervision of the Ministry of Education and Sports (MOES)3.
Medical doctors join the service as Medical Officers and climb the ladder to
Medical officer special grade and eventually to Senior Consultants. Social
Workers may join under the category of either Medical Social worker,
Training officer, Administrator or Research Officer. For the purposes
of this paper, these have been categorized under either Research officer
or Allied Health Professional (Table 8). Personnel officers and accounts
staff are not included because they are not health professionals by the
Ugandan definition. Personnel Officers belong to Ministry of Public Service
while Accounts staff belong to Ministry of Finance.
Table 8. Salary levels of health professionals
Staff category |
Salary Scale |
Starting salary Per Year UG Shillings. |
Senior Consultant |
U1 |
14,000,000 |
Consultant |
U1 |
13,011,000 |
Medical officer special grade |
U3 |
7,600,000 |
Medical officer |
U5a-3 |
6,500,000 |
Senior Principal Allied Health Professional |
U2 |
9,800,000 |
Principal Allied Health professional |
U2 |
9,800,000 |
Senior Health Professional |
U3 |
7,600,000 |
Allied Health Professional (Higher Diploma) |
U5c |
3,250,000 |
Allied Health Professional (Diploma) |
U6 |
2,800,000 |
Allied Health Professional (Certificate) |
U7 |
2,500,000 |
Senior Principal Nursing Officer |
U2 |
9,800,000 |
Principal Nursing Officer |
U2 |
9,800,000 |
Senior Nursing Officer Grade 1 |
U4 |
7,000,000 |
Senior Nursing Officer Grade 2 |
U5b-4 |
4,200,000 |
Nursing Officer grade 1 |
U5c |
3,250,000 |
Nursing Officer grade 2 |
U6 |
2,800,000 |
Enrolled Nurse |
U7 |
2,500,000 |
Enrolled Midwife |
U7 |
2,500,000 |
Principal Research Officer |
U2 |
9,800,000 |
Senior Research Officer |
U3 |
7,600,000 |
Scientific Officer |
U5b-4 |
4,200,000 |
Registrar Medical and Dental |
U1 |
12,500,000 |
Registrar Nursing and Midwifery |
U1 |
12,500,000 |
Registrar Allied Health Professionals |
U1 |
12,500,000 |
Registrar Pharmaceutical Services |
U1 |
12,500,000 |
How clinical officers and comprehensive nurses can complement doctors
Training of a clinical officer in Uganda takes three years. There are three
training institutions in different regions of the country: one in Gulu,
another one in Fort portal and the third in Mbale. The average output
per year is 50 per school (150 graduate clinical officers) in the three
schools. The training is so comprehensive that it virtually covers a
bout 60% of the syllabus that doctors cover in the medical schools. The
emphasis is put on solving community problems by applying knowledge of
medicine. While clinical officers are not equal to doctors, because of
limited coverage both in knowledge and skills, they are cheaper to train
and can be posted to manage lower level health units. Further, their
training requires them to be flexible at all levels of health care delivery.
On the other hand, training comprehensive registered nurses takes four years.
There are two comprehensive nursing institutions namely, Masaka and Tororo.
The training curriculum is tailored to addressing community health problems
obtaining in the country. Like the clinical officers, these can be attracted
to run health centres (levels II and III) with ease, which levels of
health care delivery are the majority in the country. However, the training
curricula for these nurses is not sufficiently adequate for hospital
services, for instance provision of services in paediatrics, surgery
and internal medicine.
There are different levels of health care delivery (HCI - HCIV). Each of these
levels has prescribed services, which determine the level of staffing.
Medical Officer Positions are at HCIV, general hospitals, regional and
tertiary referral hospitals. The services required at lower levels (HCII & HCIII),
which provide basic services, can appropriately be handled by clinical
officers, and comprehensive registered nurses. It would therefore not
be appropriate to employ a medical officer at the lower levels, as they
would be under utilized.
Migration of health workers in Uganda
Audits of Human Resources carried out in Uganda (MOH, 2002) show movement of
health workers, both within the districts and from Uganda to other countries.
External migration of health workers, especially the highly qualified
ones, has been discussed at different fora as a problem for the health
sector.
In a period of 4 years, close to 10 highly qualified doctors have left their
jobs at the Ministry of Health Headquarters and have left the country
to take up other jobs outside Uganda.
Currently, there is no information regarding the extent of migration of health
workers at district level. This concurs with the findings of WHO (2003),
that most health professionals do not report their intention to migrate,
thus it is difficult to establish with certainty the number of professionals
that migrate.
However, during the recent human resource monitoring exercise, it was observed
that a number of nurses had left the country, particularly to the UK,
for employment where they are highly remunerated. The country has not
established the real number of health workers moving from one to place.
This exercise is going on together with the human resource inventory
in Uganda.
Causes
A study carried out by the Ministry of Health (2002), reveals that health workers
migrate simply because of poor working conditions. The monthly pay for
health workers across the board is low. In the same study, some highly
trained health workers complained that, “a doctor trains for 5-years
at the university and paid only 500,000 (equivalent US $ 250) a month,
while their counter parts, the lawyers, who train only for 3 years at
the University, are paid three times more”. This has been a source
of de-motivation on the part of the health personnel. Other things are
not related to pay. They include lack of housing, transport and other
social amenities such as good schools for their children particularly
in rural areas.
Decentralisation has also been highlighted as big de-motivator for most health
staff, and thereby causing migration. A health professional is appointed
in service and works for about 6- 10 years without promotion. Health
workers in various districts find this issue a big problem. Besides it
is difficult to change from one district to another once appointed in
service.
What should be done to remedy this problem?
It is proposed that a non-wage package be put in place to attract and retain
health workers. All health units should be provided with adequate housing
facilities with solar lighting and adequate clean water. Government should
also look into supporting rural schools to compete with urban schools
in-terms of performance. Areas such as Karamoja are hard to reach. Allowance
to attract and retain qualified staff in these areas should be instituted.
Other issues on Human Resources for Health
Planned targets for achieving the minimum staffing norms are not being met and
the conversion plan for multivalent nursing cadres is well behind schedule.
Problems related to minimum entry requirements for admission into courses
and inadequate management and funding of the nurse training institutions
(both government and PNFP) since their transfer to the Ministry of Education
and Sports, have severely limited the production of Comprehensive Enrolled
Nurses for the country.
Achieving the Health Sector Strategic Plan (HSSP) rollout targets seems increasingly
improbable. It is recommended that management of the health training
institutions be improved from what it is now. There is a move by government
towards introduction of an incentive scheme for attracting staff to underserved
areas. Money totalling to about 2.0 billion shillings has been earmarked
for this strategy.
Suggestions for research and development issues on HRH in Uganda
The following are areas that need research.
- There is need to look at utilization of health workers for the health sector
for implementation of the minimum health care package
- There is also need to research on the impact of migration of health workers
on health systems development in Uganda.
- The third important area is the optimum incentive structure for health workers
in Uganda.
Notes
2 Comprehensive cadres are those multipurpose workers who
get trained in nursing, psychiatry community health and midwifery skills,
the initial
3 The Ministry of Education and Sports deals with the pre-service
training while the Ministry of Health works on continuing education, also
known as post basic training.
References
- AMREF, Uganda (2002), The Cost of Training a Comprehensive Primary Health Worker.
Kampala.
- Arvessm Gbary & Chatora R (2003), Migration of health professionals in six
countries: A synthesis report Draft Report for WHO. Geneva.
- Ministry of Health 2003. Midterm Review report, April 2003. Kampala.
- Ministry of Health 1999. The National Health Policy. Kampala.
- Ministry of Health 2000. The Health Sector Strategic Plan 2000/01-2004/05. Kampala.
Copyright 2003 - Department of Health Sciences of Uganda Martyrs University
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