INTERSECTORAL CONVERGENCE- DEPARTMENT OF WOMEN AND CHILD AND DEPARTMENT OF HEALTH AND FAMILY WELFARE

 

 

BACKGROUND

 

1.1              India has a long history of programmatic efforts to improve the health of mothers and children and has made significant gains in the fifty years since independence.   Despite these gains, maternal and child deaths constitute a significant burden of disease. According to WHO estimates, India contributes about 2.4 million of the 10.8 global child deaths and 25% of 529,000 global maternal deaths.  

 

1.2              The slow pace of progress in infant mortality and child malnutrition is an area of serious concern.  69% of all infant deaths occur in the neonatal period.  Malnutrition is an important cause of death in under fives.  Fifty six percent of deaths among under-fives are due to the underlying effects of malnutrition on disease.  On an average a child who is severely underweight is 8.4 times more likely to die from an infectious disease than a healthy child.  Infant and child deaths are a mix of several risk factors.  Proximate determinants of infant and child survival include a mix of preventive and curative interventions- maternal tetanus toxoid, safe delivery, home based care of the newborn, immediate breastfeeding and appropriate weaning and complementary feeding, access to safe water and sanitation, immunization, administration of Vitamin A, ORT and antibiotics for neonatal sepsis, respiratory and other infections.  Many child survival interventions can be successfully implemented through a mix of actions at the household level/community level and a basic package of primary health care that does not rely on complex technology.

 

1.3              For a variety of reasons, (not the least being gender inequities and consequent disempowerment) women throughout the life cycle face numerous obstacles in recognizing, seeking, and receiving care for health problems.  While well-organized outreach and facility based health care is a critical component of improving women’s (and their family’s) health, empowerment, leadership development, and knowledge and skills are equally important.  However these latter components lie outside the realm of traditional health service delivery systems.  Community level action for increasing mobilization, action and behavior change processes, supported by well organized primary and secondary health systems, are required to enable women cross a range of barriers, including gender inequity and poor access to quality health services.

 

1.4              The Department of Women and Children (DWCD) is the repository of national programmes for the holistic development of women and children.  It includes:  the Integrated Child Development Services (ICDS), to provide supplementary nutrition for pregnant and lactating mothers and children under six, and non-formal preschool education; programmes to ensure social and economic empowerment of women through collectivization, welfare and support services, training for employment and income generation, and gender sensitization.   At the village level, the DWCD is represented by a village level honorary worker, the Anganwadi Worker (AWW) and her assistant, an Angnawadi helper.  DWCD norms stipulate one Anganwadi Center (AWC) for a population of 1000 in plains and 700 in tribal areas. (Check) Supervision of AWW is by the Mukhiya Sevika, who is in charge of about 15-20 AWC.  At the block Level, the Child Development project Officer is the functionary in charge of DWCD schemes. (Need confirmation and input)

 

1.5              The goal of the Department of Health and Family Welfare (DHFW) is to ensure universal access to quality health care.  All programmes of the DHFW are channeled through a three-tier system.  The unit closest to the community is the sub center.  It is staffed by an Auxiliary Nurse Midwife, covers a population of 5000 (about 3-5 villages) and offers a mix of center based and field outreach.  The sub center is expected to provide services for a range of primary health care interventions, but is substantially focused on maternal and child health. 

 

1.6              At the community level informal collaboration exists between the ANM and the AWW, given that the target group of the AWW substantially overlaps with the ANM.  Small and large-scale convergence efforts have been attempted across the country, and there are models of success in various states that have attempted convergence of nutrition, health and women’s empowerment.  In ten states across the country, ICDS and the State departments of Health and Family Welfare (with technical support from CARE) have integrated health and nutrition interventions at the village, block and district level through a series of operational processes.  They include: capacity building of the ICDS workers, identification and training of village level community health volunteers, and joint training of health and ICDS functionaries to improve community access and strengthen service delivery.  Fixed health and nutrition days, block level resource mapping (as a planning and monitoring tool), and community based monitoring systems are now functional in about 100,000 villages to a variable degree. 

 

1.7              The MOHFW and DWCD have developed a manual for capacity building of self help groups and PRI members that focuses on key primary health care issues, rights and responsibilities of the public sector health service delivery system, and community and household action for preventive and promotive health.

 

1.8              In some states (Gujarat and Goa) the AWW is under the purview of the health department and performs the duties of frontline grass roots workers.  The AWW is also involved in several vertical programmes- Blindness Control, Leprosy, National Maternity Benefit Schemes, Pulse Polio Immunization, and the RCH programme.  However many of these efforts are disjointed and often operate under informal mechanisms, with little coordination between the departments on capacity building, planning and monitoring in place.  A study on the collaboration between the ANM and the AWW in Kerala showed that this was an important aspect in the effective implementation of family planning programmes.  Coordination was obvious in areas such as health services, nutrition, immunization, and referral.  In addition it also took place in areas such as health education, house visits, and community meetings.

 

1.9              DWCD and DHFW have overlapping goals, and thus complementary programming is essential.  Such programming needs to extend to other stakeholders, such as NGOs, academic, research, and training institutions, involved in health, nutrition, and women’s empowerment.

 

1.10          Convergence at the village level appears integral to the functions of both programmes.  It involves the definition of critical objectives, detailing effective operational approaches, laying out clear roles and outcomes, clear mechanisms for joint planning and monitoring, including common monitoring indicators.

 

1.11          Such convergence is critical to the success of the soon to be launched National Rural Health mission. The National Rural Health Mission (NRHM) is seen as a vehicle to ensure that preventive and promotive interventions reach the vulnerable and marginalized through expanding outreach and linking with local governance institutions.  Key to the success of the NRHM are: intersectoral convergence, community ownership steered through Village Health Committees at the level of the Gram Panchayat, and a strong public sector health system with support from the private sector.  Intersectoral convergence in NRHM is visualized with drinking water, sanitation, hygiene and nutrition.  An Accredited Social Health Activist (ASHA), is expected to work with communities for social mobilization and improve access to services. She will be located in every village/habitation.  ASHA’s role will be to facilitate care seeking and serve as a depot holder for a package of basic medicines.  The AWW, schoolteacher, members of local community based organizations, such as SHGs, and the Village Health Committee are expected to support the ASHA in her in her work.

 

  1. PROGRAMMATIC INTERVENTIONS OF DWCD AND DHFW

 

2.1              ICDS – is the world’s largest community based outreach programme for women and children.  At the village level, the Anganwadi Center (AWC) is the locus of action for nutrition and a primary package of health services.  Currently there are…. Anganwadi centers in the country.  Key functions of the AWC include: supplementary nutrition to children less than six years of age, pregnant and lactating mothers and in some areas to adolescent girls, immunization, health check up, and referral services, and pre-school nonformal education.   The near universal location of the AWC and AWW (mostly local women) and the functions of nutrition and health make them a natural ally for the health sector. 

 

2.2              Key participants in the ICDS scheme are children below six years, pregnant and lactating women, specifically marginalized women.  Thus the programme design of ICDS is such that it can make significant contributions to malnutrition and mortality- the success in ensuring healthy childhoods and outcomes for pregnant mothers. 

 

2.3              Programmes for women’s empowerment run by DWCD are dependent on the formation of large numbers of Self Help Groups (SHG) set up in the community.  Such SHGs are organized around savings/credit, livelihoods, and leadership development. The SGSY, Swa Shakti, Swayam Siddha,  (add more) are examples of such programmes. The DWCD also includes programmes to protect and safeguard the rights of women (such as the National and State Women’s Commissions) and adolescent empowerment programmes.(Kishori Shakti Yojana)

 

2.4              The Tenth Five year plan, National Nutrition Policy, 1993, the National Plan of Action of Nutrition, 1995, National Population Policy, 2000, and the National Health Policy, 2002 include goals that require convergent action for implementing key technical strategies.  Direct health outcomes of NRHM also include reduction of IMR and MMR as well as universal immunization and provision of integrated health care.  While the current reach of the AWW is to children and women (and adolescents in some areas), they are residents of the village and are almost equivalent in their profile to the ASHA. 

 

 

  1. OPPORTUNITIES AND AREAS FOR CONVERGENCE

 

3.1              Opportunities for convergence between the Departments of WCD and HFW are numerous.  Between the two departments the following can be achieved:

·        Improved nutritional status of women and children, particularly the marginalized, and in so doing, intervening in an area critical to health improvement

·        Women’s empowerment through programmes for credit, leadership and livelihood training and engaging them to discuss and take action to improve health parameters at the household level and advocate for gender equity and improved service access and quality, through a rights perspective.

 

3.2              Success of convergence in health, nutrition, and empowerment requires convergence of approaches in DWCD and DHFW in: behaviour change communication strategies, planning modalities, monitoring and information systems, capacity building and training inputs.  Additionally the DHFW must ensure that convergence efforts are backed by a strong service delivery system, responsive to community needs.

3.3              The following areas of convergence between DHFW and DWCD could be considered:

(i)                  Women and Children’s Health: Mobilization of women, adolescents, and children and provision of a package of quality health education and services at the village level[1].

(ii)                Women’s empowerment, gender and equity: Involvement of community based women’s groups to ensure that social and related determinants of health including gender and equity are addressed. These include prevention of early child marriages, implementation of the PNDT Act, including awareness and action against girl child elimination, leading to distorted sex ratios, domestic violence, and mobilization of resources through collective action for health and other emergencies.

(iii)               Convergence between the following functions of both departments for nutrition, health and women’s empowerment is also necessary.  They include: 

·        Joint formulation of BCC strategies, materials, and messages,

·        Operational strategies for joint planning at village, block and district levels,

·        Development of joint MIS including common indicators,

·        Identification of functional areas for training of staff including joint training

 

3.4              This paper provides a broad framework for action to address the major convergence areas.  The effectiveness of convergence of key interventions is dependent on several factors, but critical is the operationalization of convergence within well functioning health systems and programme management structures at all levels.  It is opportune that the DWCD and DHFW jointly look for ways to improve reach, empower women, engage communities, enhance access and coverage, provide quality services,  It must be emphasized that this framework is proposed at the National level and state level consultations with key stakeholders are necessary to operationalize the plan in the context of state realities.

 

3.5              Section 4 highlights current interventions of DWCD and DHFW in the area of health, nutrition, and women’s empowerment and suggests recommendations and specific action for convergence in each area.  Section 5 includes operationalization of convergence and details institutional mechanisms to facilitate convergence.

 

 

4.         KEY CONVERGENCE AREAS AND OPERATIONAL STRATEGIES

 

4.1  Women and Children’s Health, more specifically, maternal and child Health are the focus of the both the DWCD and DHFW.  DWCD interventions at the village level are primarily focused at the community through the ICDS.  The AWC at the village level is the hub of interventions.  The DHFW provides services for child health through outreach at the village level and at all three tiers of the system.  The ANM is expected to visit each village and provide immunization and services for pregnant, lactating mothers and children, women in need of family planning, and other illnesses or refer as appropriate. The AWW reaches pregnant and lactating women (upto six months) and children aged 0-6 years.

 

4.1.1        As part of the RCH II programme, the child health strategy concentrates on the following: essential newborn care, breastfeeding, immunization, and care of the sick newborn and child through outpatient/home based care and inpatient care.  This approach is called the Integrated Management of the Neonatal and Child hood Illness (IMNCI).  Table 1 provides details on the maternal and child health services provided at the village level.

 

 

DWCD Interventions

DHFW Interventions

Child Health

-Monthly Weighing of children under six

-Maintaining Growth chart

-Child cards for children below six (for medical history)

-Nutrition supplementation

-Referral of children with 2SD and 3SD malnutrition to the PHC

-Non-formal pre school education

-Health and nutrition education

-Elicit community support and participation in running the programme

-Assist PHC staff in immunization of children- (means motivating mothers to bring children, and mobilizing all 0-6 year olds)

-House visits to ensure appropriate feeding practices and attendance at AWC.

 

Child Health

- Identify malnutrition among children (0-5) and manage or refer to PHC

-Provide ORS to children with diarhoea

-IFA to infants and young children

-Vitamin A solution

-Immunization

-Weigh and examine newborn as son as possible after birth.

-Health Education

 

 

Maternal health

-Nutrition supplement to a sub-sect of all pregnant and lactating women (BPL)

-Enables all pregnant and lactating mothers to collect at the AWC for ANM visit

Maternal Health

-Register and provide care to all pregnant women throughout pregnancy

-Urine and Hb test, BP and three abdominal examinations

-Refer complications and facilitate referral

-Conduct three postnatal visits

-Health education

Other women’s health issues:

 

Other women’s health issues:

-Family planning motivation

-Distribution of contraceptives

-Referral for IUD or terminal methods

-Follow up of users for side effects

-RTI/STI education, recognition, and referral

-Minor ailments treatment/referral

 

4.1.2            Proposed Convergence Recommendations for Women and Children’s Health

 

Currently the AWC functions as a center where children (0-6years) do collect and where nutrition and health services are being provided.  In order to formalize this arrangement, the following are proposed:

  1. The AWC to serve as the focal point for all health and nutrition services.
  2. As part of the NRHM -A fixed health day is proposed to be held every month at the AWC to provide antenatal, postnatal, family planning and child health services.  An ANM and a Medical officer from the PHC will be in attendance.

AWW and ASHA (and other community volunteers) be responsible for ensuring that all children 0-6 and children for immunization and other health services be brought to the AWC on a fixed day, when ANM and MO visit to provide immunization, and other health care services.  Services to be provided on the Health Day (by the ANM or PHC MO) include:  ANC, Newborn check up, Postnatal care, Immunization of mothers and children, IFA and Vitamin A administration, growth monitoring, treatment for minor ailments, and health education. (Should growth monitoring also be conducted on that day to enable the doctor to be able to provide some treatment/feeding advice and examination of malnourished children?)

  1. AWW and ASHA to mobilize women and children, with support from SHG and other community group, to access services through a fixed Health Day held every month at the AWC.
  2. AWW and ASHA to counsel women for institutional deliveries and facilitate referral (mapping of facilities, help in accessing transport through community SHGs, referral slips). .
  3. AWW and/or ASHA to be present at all home deliveries (as second attendant) to provide care and advice for the newborn.  This includes:  Weighing the newborn at birth, (or within 48 hours) Safe newborn care and practices, warmth, early breastfeeding, identification of sickness.
  4. AWW and ASHA could motivate newly married women and recently delivered women to use family planning.  The AWC would serve as the depot for pills and condoms (social marketing could be considered) and the AWW and ASHA would also facilitate referral for other methods.
  5. The AWW and ASHA would participate in routine immunization and special campaigns like pulse polio through social mobilization.  
  6. Vitamin A: the first two doses are given in conjunction with measles and the first DPT booster and can be administered by the AWW under the direct supervision of the ANM on the Monthly Health Day.  Thereafter the remaining three doses could be given by the AWW herself.
  7. AWW and ASHA to work with communities and Village Health Committee to promote cultivation of leafy green vegetables, herbs, and ensure that these are supplied to the AWC on a regular basis to improve micronutrient content of food supplements.
  8. Facilitate referral to appropriate health facilities, particularly for institutional deliveries, RTI/STI, violence, abortion, and gynaecological and other morbidity.

 

4.1.3    Next Steps

 

4.1.4    Nodal Officers and time line:

 

4.2  Women’s Empowerment, Gender, and Equity

 

4.2.1        Issues of empowerment, gender, and equity while not in the domain of health services are critical to ensuring good health.  The DWCD includes several programmes for women’s empowerment and mobilization as well as provision and skills for leadership and economic empowerment.  The DHFW is not significantly engaged in forming groups, except perhaps the Mahila Swasthya Samitis (MSS)  (whose functioning is variable and beset by several issues including the lack of a significant focus for discussion and action).  

4.2.2        Engagement of community groups of women for diffusion of knowledge and support for changed behaviors has been shown to increase mobilization of women needing services thus facilitating the ANM’s task, increase accountability of local health staff, and improve utilization of sub center and primary health care.  Self Help Groups (SHGs) can be engaged to improve demand for high quality Primary Health Care services, promote community awareness and action on issues that contribute to gender inequity and social exclusion, they can be mobilized to ensure access of the most vulnerable and needy to health and other social development programmes, and as community monitoring bodies.

4.2.3        While SHGs are the key institutions at village level to promote convergence in this area, it is necessary to involve and build capacity of resource agencies and line functionaries to ensure a common understanding of health, gender and equity issues.

 

4.2.3.            Proposed Convergence Recommendations to promote women’s empowerment, gender and equity

 

4.2.3.1            Convergence between DWCD and DHFW through self-help groups can be achieved by the following:

 

4.2.3.2            Convergence between line functionaries and other agencies- National and State women’s Commissions, NGOs, academic and research institutions on areas of women’s empowerment and health.  It is necessary that such agencies be jointly involved in planning and building capacity of SHG.

 

4.2.4        Next Steps:

 

 

4.2.5    Nodal officers and Time line: :

 

4.3  Joint Planning for convergence related interventions

 

4.3.1    In areas where convergence between DWCD ad DHFW is well established, joint planning is an efficacious strategy to promote coordination. 

 

4.3.2        In order to ensure effective functioning of the two areas of convergence discussed above, joint planning of between DWCD and DHFW at various levels is necessary. 

 

4.3.3        Training of functionaries of both DWCD and DHFW in joint planning is necessary, and could be part of other joint training required for convergence.

 

4.3.4        Nodal officers and Time line:

 

4.4  Common BCC strategy for convergence related interventions

 

4.4.1    In the DHFW, the BCC division is responsible for development of material, identification of media, and content for BCC approaches for women and children’s health.  Some work has also been done in the area of PNDT, sex ration, and early marriages.  (DHFW and IEC???)

 

4.4.2    In order to ensure commonality of message content and effective approaches to address women’s groups, joint strategy development on BCC is necessary between DWCD and DHFW

 

4.4.3    Nodal officers and Timeline:

 

4.5  Common Monitoring and Information Systems pertaining to key convergence areas

 

4.5.1        Records and Registers maintained at the AWC and the DWCD contain information that contributed tot eh ANM register and the MIS of the DHFW.  However, there are often duplications and omissions from one or both, suggesting the need for more stringent collection and review of data at the field level. 

4.5.2        Currently the Anganwadi survey register- includes data on every family living in the village- completed during the baseline survey and updated during each quarterly survey, monthly survey summary (includes children from 0-6 years, number of births, number of still births, deaths, (below one year, 1-3 years, 3-6 years,).  The AWW is also expected to conduct village level surveys on an annual basis and update such records.  The registers maintained at the AWC are:

 

4.5.3 The ANM registers include:(Form (9)

 

4.5.4            Proposed Convergence Recommendations for Joint MIS:

There appears to be substantial overlap between the data collected by the two departments at the field level.  In large-scale state and national surveys such a s the DLHS and NFHS information on child nutrition, women’s empowerment and violence data is being collected.  Neither the DWCD nor the DHFW is involved in birth and death registration, although both collect information on births and deaths among selected groups.  The following could be done:

4.5.4      Nodal Officers and Time line:

.

4.6  Adolescent Empowerment and  health:  The DWCD runs Kishori Shakti Yojana (need more input).  In RCH II adolescent health is an important component.  The spectrum of interventions ranges from empowering adolescents with life skills education to provision of safe spaces and health services appropriate to the special needs of adolescents.  Convergence in this area could also be envisaged through appropriate planning and capacity building

4.6.1    Nodal Officers and Time line:

 

4.7  Joint Training:  Several of the convergence actions need substantive input in training.  Both DWCD and DHFW have nodal training institutions at National and State levels.(UDISHA, NIPPCD, NIHFW,)   Both also involve several reputed NGOs in training.  A review of training  resources and existing strategies for joint training could be conducted.  Based on needs of joint training (after strategies for other convergence areas are finalized) and thereafter a plan for joint training and capacity building at the National and state level could be drawn.  Beyond technical training, counseling, networking and advocacy skills should also be included.

4.7.1    Nodal Officers and Time Line:

 

INSTITUTIONAL MECHANISMS

 

1.      Convergence Policy Group within the Planning Commission to provide policy oversight

2.      The National Steering Committee of the NRHM  will periodically review convergence related activities with the ambit of the NRHM..  Similar mechanism at the sate level would also be established.

3.      To review convergence related activities on a more frequent and specific basis, a National Level Convergence Committee will be established. It will be chaired by Secy, DWCD and Secy, DHFW.  The objective is to conduct a quarterly review of the convergence in services and provide oversight and policy inputs

4.      State Level- same as above

5.      At the district level, the District Health Mission will provide ongoing review and support to convergence related inputs such as training.  Monitoring of convergence will be facilitated through common reporting formats, and joint reviews with the district level ICDS officials

6.      At the village level, the Village Health Team and Village Health Committee would conduct monthly meetings with the ASHA and ANM to ensure that outreach activities and service provision are progressing according to schedule.  As far as possible the ANM will also attend such review meetings. 

7.      At the block level, the CDPO and Block PHC/In charge will review reports and ensure that there is effective functioning of convergence.  Monthly meetings of each of the respective departments should include review of convergence related activities and issues flagged for discussion at block or district level.

 

Challenges/Issues

 

1.                  Coverage of ICDS and presence of AWW in each village- (need info)

2.                  ASHA to be present in all areas where AWC exist.

3.                  Demarcation between function of ASHA and AWW- necessary.  AWW is already responsible for making home visits to families of children enrolled at AWC.  ASHA should then be made responsible for the rest.  That way, complete coverage can be assured.    In the case of the AWW if she encounters cases requiring minor ailments, she should refer them to ASHA.

4.                  Relationship of ANM to AWW and ASHA.  Since neither of these reports to the ANM what mechanisms need to be in place to ensure that referral and services proceed smoothly.  What would be the measures of accountability between these three?

5.                  How much can the AWW be involved in NRHM beyond her specified role.  For instance, in water and sanitation?

6.                  What is the AWW’s relationship to the Gram Panchayat and the VHC?

7.                  Identification, orientation and funding of resource centers to train AWW/ASHA, and SHG members?  Who is responsible?  The DHM???

 

Next Steps:

  1. Reach agreement on areas of convergence
  2. Identify point person in each department to oversee the convergence process
  3. DWCD and DHFW to nominate nodal officers for each of the areas – MCH, Women’s issues, Training, MIS, BCC, Adolescent health, and Planning.
  4. Draw up time lien for each area and finalize convergence document.


[1] such as immunization and micronutrient supplementation for children and pregnant women, Integrated Management of Newborn and Sick Child (IMNCI), examination of pregnant and post partum mothers, distribution of pills and condoms for birth spacing, health education, and referral.