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*Correspondence: sudarshanpaudel@pahs.edu.np
ABSTRACT
Health insurance, as one of the health financing mechanisms, has been adopted by the Government
of Nepal since 2014 to achieve Universal Health Coverage by 2030.Though it is at the formative
years of implementation, there are several challenges identified from design of the insurance
scheme to enrolment and renewal, availability of the services, payment to providers and users’
trust and citizen engagement. There are many angles that Nepal’s national health insurance has
been critiqued. This article adjures an eccentricity of Nepal’s health insurance, prospective on
health system strengthening.
Keywords: Health insurance, health financing, health system, universal health coverage, Nepal
Health insurance is one of the health financing The Constitution of Nepal 2015 has guaranteed
mechanisms to provide financial protection in health as a fundamental human right.(5) However,
citizen’s health (1).In many low- and middle- inadequate allocation of public resources for
income countries (LMICs), a state cannot run health, inefficiencies in delivery of available
the pubic funded healthcare system; thus, a package of healthcare and lack of people’s
contribution-based health insurance (of pre- participation in health planning often ends up poor
payment and risk pooling) can be one of the implementation of the health plan, excluding the
pathways to provide financial protection to the poorest and most marginalised populations (6,7).
citizen(2). The government is unable to allocate a sufficient
budget (less than eight percent of total national
A contribution-based health insurance plays a budget) in the health sector (8), and people pay out
significant role to increase the Gross Domestic of their pockets over half of the total healthcare
Product (GDP) by improving access to the quality bills(9). This poses a serious challenge in ensuring
of health services and reducing the Burden of the right of citizens to health in Nepal.
Disease (3). In a LMIC setting like Nepal, premium
collected for health insurance could reduce Before 2013, the Government of Nepal (GoN) and
the domestic borrowing of healthcare costs. In non-government organizations had launched
micro-economics, it supports an individual along several Community Based Health Insurance
with households by reducing the direct cost of (CBHI) and institutional schemes, which failed to
healthcare and contributing to increasing demand achieve universal coverage due to low enrolment,
for health services. It contributes to reducing the inadequate coverage of the healthcare package
morbidity of the people and saving healthcare and poorly managed the schemes. Learning from
costs. Thus, health insurance could pillar a linkage the CBHI, a strong national health insurance (NHI)
between the citizen’s health and the country’s is a need for Nepal (10).In the 2012 resolution
economic development (4). of the UN General Assembly, the member states
Received :
Revised :
Accepted : Page 1
Perspective Nepal’s Health Insurance: Perspective on Health System Strengthening
including Nepal recognized health insurance as a facilities and delays in reimbursement (13,15,16).
principle vehicle towards achieving the Universal
Health Coverage (UHC)(11). Learning from the Emerging issues
past and others that the voluntary and community
health insurance schemes have limitations to Through discussion with stakeholders of Nepal’s
achieve the goal of UHC, GoN started national NHI and literature review, five key themes emerged
health insurance in 2014 (1). However, the low influencing the NHI scheme and its management
and slow coverage and weak implementation in (7,11,13,15–19).
six years have slowed down the enthusiasm it
generated to the public(12). First shifting expectations– Today’s service users
have set new standards of convenience, ease of
Since the new scheme started, GoN has remained use and value. There are two types of service users
committed to allocate budget to rollout the - one group of users who get subsidies from the
NHI(13). The scheme enrols a family as a unit government to enrol in the insurance scheme,
with an annual premium of NPR 3,500 (27.5 USD) and another group of users who pay a premium
per family. A family of more than five will pay to enrol. All users expect personalized high-touch
NPR700 (5.5USD) for each additional member in service, whereas they experience lack of quality
a family. A unit may claim up to NPR 100,000 (784 interactions with the service providers, indeed,
USD) per year while an additional member will they often felt ignored while seeking healthcare.
get NPR 20,000 (157 USD) for utilizing benefits.
The Health Insurance Act, 2017 has provision to Second bundling services– Health insurance
enrol all government personnel, formal sector requires improvising the core products,
employees and foreign employment seekers. It like financial management, health service
has provisioned subsidies to senior citizens (70 strengthening and programme monitoring, to
and above years), families of people living with attract more service users. The service users expect
HIV, Multi-Drug Resistant Tuberculosis (MDR-TB), to expand their contribution to the ecosystem
Leprosy, complete disability (red card holder), which is yet to experience.
ultra-poor and Female Community Health
Volunteers(50%). About one-third of insured Third delimiting services– The changing forces
people constitute these reservation categories allow every sector to draw borders with arrange
groups(14). of products and services and customer ownership
as the ultimate prize. Some schemes such as
As of April 2022, over 4.5 million people have employee’s health insurance through employee
been enrolled in the scheme from 75 out of 77 provident fund, and social health security
districts of the country(12). The gap of enrolment programmes from social security fund impede
and dropout rates is widening. The enrolment NHI due to unhealthy and disproportionate
status among total population was1%in 2016 and choices within the public sector. The current
attained15%in 2021 while dropout rates were system is more focused on clinical care. A holistic
67% and 30% respectively. The poor enrolment set of interconnected products and services such
and dropout were mainly due to unavailability of as, nutrition, physical activities, entertainments,
drugs, unfriendly health facilities, and indifferent social and good neighbourhood environment help
behaviour of health workers towards the insured build a good health system and such lifestyle is yet
people and willingness of insures to take health to be experienced in Nepal.
service in specialized facilities or private clinics
(13). The government employees, local political Fourth digitalisation of services– Technological
leaders, relatively well-off families, poor families innovation has been the backbone for the success
were often reluctant to enrol and continue. The of NHI. According to Nepal Telecommunication
main reasons for ineptness about the scheme Authority, more than 90% of the population
were inadequate health benefit package to has access to communication with internet
meet the people’s healthcare needs, inefficient connectivity. However, Nepal’s health system
administrative and financial procedures at health is struggling to digitise basic health services,
1USD = NPR 127.5 on 6 July 2022 (https://www.nrb.org.np/forex/)
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Nepal’s Health Insurance: Perspective on Health System Strengthening Perspective
products, and related procedures. In the NHI, Nepal’s NHI is weak in communicating policy to the
digitalisation of enrolment, premium collection, public. It is largely reliant on enrolment assistants
health services utilisation and reimbursement to who are in limited numbers and are mainly
providers are keys for success. Improved access to responsible to facilitate the enrolment procedures.
a rich stream of customer data from these services The inadequate communication of health benefit
can help in honing offerings as well as enhancing package, premium, process to participate and
the delivery efficiency. access health services when needed has been
inhibiting the success and sustainability of health
Fifth minding equity– The health insurance has insurance. Lack of clear information regarding the
rendered services from existing public and private benefit packages and the users’ responsibility after
health facilities. Although there might be some getting enrolled has created a mismatch between
basis to enlist health facilities as providers, people people’s expectations and their experience. This is
living in rural Nepal are less likely to get quality a major contributing factor for increased dropout
services compared to their urban counterparts of health insurance. Improving service users-
because the rural areas are deserted with providers communication leads to enjoy the
specialized services hence compel high indirect benefits and success of the scheme(19).
costs to get health services(20,21).
Nepal experiences high disease morbidity and
Health service delivery system mortality rates (7). The emerging and re-emerging
disease (e.g. COVID-19, MDR-TB, dengue), natural
The key players of NHI are registered health disasters (e.g. earthquake, floods and landslides)
facilities of the national health system. Most of and socio-political and economic hitches and
the service users in the public sector in Nepal managerial weakness are making the health
are lower-middle-income families from rural and system weaker and process more complicated
semi-urban settings where many public health (22).
facilities often lack trained healthcare providers
and essential drugs and health supplies(12). The health workers are the real change makers
Public health facilities have often been criticized of the health system, and their performance
for providing poor quality health services (6,7,12). and behaviours transform the level of people’s
trust in the system. COVID-19 pandemic has
In this context, the NHI benefits provided from
helped set this standard across the world. In a
the public health facilities result in a growing
weaker, less responsive, and poorly accountable
impression of the state imposing additional
health system, the rewards to the healthcare
financial burden to the citizens through health
providers are often determined by the extent
insurance which is a major hindrance to its
of the political connections rather than from
success. Hence, to overcome the situation, service
their actual performance. A robust performance
users’ expectations are to be fulfilled with the
appraisal system is yet to be realised in the public
proven high-quality services.
and private health sector in Nepal. Training for
the healthcare providers is often considered
Public trust is the major source of success for any as a financial incentive rather than a learning
health programme. Many public health facilities event for improving skills. The health system
have been often accused of being unaccountable cannot ensure the right healthcare providers
to the public (22). The NHI programme is unable and managers are getting the right learning and
to adequately address this, and prepare the serving opportunities. This limited use of robust
public and private health sector, their employees performance appraisal not only affects the
and administration to be more responsive to the motivation of the healthcare providers but also
healthcare needs of the people and accountable distracts their career opportunities (23).
to the users (13,20). This leads to a dilemma for
the service users whether to complain or drop out There are new dimensions emerging in the
from the scheme in which they have contributed healthcare markets in Nepal. The private sector
but are not satisfied with the services. is increasingly getting lucrative not only for the
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Perspective Nepal’s Health Insurance: Perspective on Health System Strengthening
private providers but also for users mainly in market in the form of different schemes to cater
the big cities(24). Unavailability of skilled and different populations. The Health Insurance Board
specialised providers and services in public health (HIB) should be further empowered to maintain
facilities has often compelled users to visit private the financial transparency and orderliness of
health facilities and providers. The efficiency and managing the funds that generated mostly
productivity of the high-cost medical equipment from taxpayers’ contribution, public grant and
at the government health facilities are not contribution amount collected from the insured.
regularly assessed and monitored but undermined HIB has no alternative but to be an accountable
the value for money they could have generated, purchaser of the health services. There are many,
whereas the efficiency gain has remained a parallel and often contradictory social security
key performance track of high-cost medical schemes from the public sector (in health) in Nepal.
equipment in the private health sector. This can Government should find appropriate mechanisms
inform the efficiency gains across the health sector to mainstream the schemes to gain good value for
(public and private). A fair and robust NHI scheme the taxpayers’ investment in health.
can inject such potential to gain efficiency and
promote responsiveness among the public and Nepal’s NHI has some early experience, though
private providers in a fair healthcare marketplace. it was rattled by massive political devolution of
In the first few years, public providers who power into federalism and COVID-19 pandemic,
participated in the health insurance may behave how the local market has responded to the
like private providers by incentivising the public scheme. This home grown learning and global
health facilities to upgrade and expand services knowledge can inform the long-term reform to
and promote healthcare providers to deliver more make the NHI a strong vehicle for providing social
and quality health services (25). This should not and financial protection of health to Nepalese
be worried too much but tracking such behaviour citizens. Cuba has strictly adhered to a single
regularly is critical though. service provider from the beginning and gradually
reduced the contribution from its citizens along
Financial management with improving the quality and specialization
of the services (27).Though there are some
Nepal moves to a LMIC status in 2020 with the rise progressive provisions of subsidies for enrolment,
of gross national income (GNI) per capita to $1,090, Nepal has maintained a flat contribution rate to
exceeding the required threshold of $1,036 (26). the citizens from all strata and regions. This may
However, Nepal’s annual health budget remained be considered regressive. Thus, there should be a
below eight percent and less than two percent diverse contribution amount based on their ability
of the GDP. Evidence suggests that countries to pay for multiple schemes (to cater to different
should strive to spend at least five percent of GDP health care needs) as relevant. The scheme should
for progressing towards UHC (22). Nepal’s NHI have arrangements to enrol and coverall services
has adopted resource-pooling as membership to the most marginalised and disadvantaged
premium to ensure the financial envelope to buy individuals and families with low socioeconomic
services for insured. status.
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Nepal’s Health Insurance: Perspective on Health System Strengthening Perspective
other health threats, which could cost medical Harmonization of the various social security
bills to people. To reduce the direct and indirect, schemes run by the government on health is
including opportunity costs, service providers essential to avoid the operation of the parallel
need to outreach to insured mostly in rural areas, systems. A legal provision can be a strong force
otherwise they have to travel far to get the health towards making the scheme compulsory to all
service. This can be achieved by setting up a fair formal sectors first and to the public. A broader
and competitive incentive payment mechanism, policy discourse will benefit to set right health
and also helps meet the effectiveness targets(14). financing strategic directions, and define a
medium- and longer-term plan answering three
Insurance is often challenged as a financing major questions: a) who will buy what package
scheme in market economics to envision profit. of health services and at what price; b) who will
So, an oblivious query- Is health insurance for deliver the health services, where, how and at
profit? Another dilemma is when and how the what price; and c) who will pay for the health
Government, a leading state machinery, ensures services and how.
the fundamental constitutional rights of the people
to access free basic and emergency healthcare?(5) The most probable answer would be making
The other aspect is to ensure financial security enrolment and renewal core functions of local
of HIB for longer-term sustainability. Delay in governments (Palikas). They can enrol the people
responding to these issues appropriately and in the right package, and indeed buy a package
adequately will hamper both HIB and Nepal’s for the people they are closely accountable to.
efforts towards achieving UHC. Obviously, HIB (and the federal government) can
incentivise enrolment and renewal. Indeed, the
Way forward to improve the health insurance in vision of HIB should be lifetime renewal for the
Nepal members of this scheme.
Financial management, especially service The matter that makes a difference is who will
premium, is the key to any successful health pay and how for the scheme? Is it the people
insurance scheme. The following options can be directly paying for health services annually or
viable and relevant to Nepal: the government paying for people for lifelong,
or people generally prefer to pay through tax for
• Pay capitation to all the providers against the broader social and economic security? In the case
services cater-up to the level of health posts of (relatively) large state contribution from the
and primary health care centers. taxpayers to the NHI, what is the role of the HIB
– why not to strive for health sector reform, or
• Motivate healthcare providers to serve more missed the opportunity to save resources for other
people and health facilities to offer a range life-balance development works?
of health services from the same facility. It
will minimize the referral burden and reduce The literature babbled in identifying the risks
the costs to health systems and ultimately to and hazards and, developing and implementing
the service-users who pay. An appropriate the mitigation measures set the life in any
payment arrangement can address this. programme. There is a high chance of ‘adverse
selection’ and ‘moral hazard’ in any health
• Enroll health facilities, as providers, by the level insurance that costs the system (28). HIB needs
of healthcare functions and quality standards. to continuously identify the extent of such risks
Provide competitive rates of payment to health and apply the minimization measures across the
institutions for services and quality. system. Robust monitoring, evaluation & learning
and research are the circulatory functions of a
• Ensure transparency in provider payment good health insurance. It will be critical to update
and establish (and track progress in) social (and upgrade) the health insurance package and
accountability arrangements in health. improve the overall system of the current NHI
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Perspective Nepal’s Health Insurance: Perspective on Health System Strengthening
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Nepal’s Health Insurance: Perspective on Health System Strengthening Perspective
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Awareness on Social Health Insurance Scheme among Insurance) [Internet]. 2017. Available from: https://
Locals in Bhaktapur Municipality. J Nepal Health Res dohs.gov.np/wp-content/uploads/2017/09/Health-
Counc. 2020;18(3):422–5. Insurance.pdf
8. Federal Ministry of Health and Population; Policy 18. Mishra SR, Khanal P, Karki DK, Kallestrup P, Enemark
Planning and Monitoring Division; Government of U. National health insurance policy in Nepal: Challenges
Nepal. Budget Analysis of Ministry of Health and for implementation. Glob Health Action [Internet].
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