Democratic control is essential

Should the NHS have greater independence from government?
Date
29 July 2006
Author
Stephen Thornton
Chief Executive, The Health Foundation
Reference
This analysis and comment first appeared in the BMJ 2006;333:251-252
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If healthcare had been deemed too important to leave to the politicians, as advocated by Fiona Godlee [1], we would never have had a National Health Service. Its birth was a deeply controversial political act. Just because we happen to be living through a period of political consensus which believes that healthcare should be tax funded, free at the point of use, and available for all regardless of the ability to pay, it doesn't mean it was ever thus or will be in the future.

Stephen Thornton
Stephen Thornton, Chief Executive of The Health Foundation

A recent visit to the United States brought powerfully home to me what happens in a society where healthcare is not viewed as a right for all citizens. While millions go without insurance cover and liberal pressure groups wring their hands, there's little political will for radical reform.

Discussion and debate about the future of the NHS requires democratic political means. As others have said much more eloquently than I, the most difficult choices in any society are not those between good and evil but between two goods. In any system where staffing or financial resources are limited and where demand is potentially unlimited, tough choices have to be made. Markets or networks? Competition or collaboration? Comprehensiveness or safety net? Patient focused or doctor driven? With or without complementary therapies? All these are contentious issues; we all have a position to take on them, and each affects our health and wellbeing and that of our families and our communities. Democratic checks and balances are the best way to ensure we continue to move the NHS in the right direction, not the creation of a barely accountable technocracy that would place all power in the hands of professionals and bureaucrats.

Our starting point, therefore, should not be to remove the NHS from politics but to build more robust democratic institutions around it.
Stephen ThorntonChief Executive, The Health Foundation

Effective control

Our starting point, therefore, should not be to remove the NHS from politics but to build more robust democratic institutions around it. The key issue is how to do this more effectively than at present. The trick is to deal with the democratic deficit in policy making and commissioning while giving much more operational freedom to healthcare providers.

Firstly, more powerful mechanisms of parliamentary scrutiny of ministerial policy should be considered. English parliamentary democracy tends to hand undue power to the executive, and this needs to be challenged.

Since its inception, power broking in the NHS has always been a balancing act between central policy making and local delivery. Despite the many well publicised policy initiatives to the contrary [2, 3] that balance has shifted too far to the centre in recent years. So, secondly, all options to strengthen local democratic control of the big choices in health care should be on the table for consideration: regional government for strategic decision making at strategic health authority level; the democratisation of primary care trusts; and perhaps, most contentiously, the integration of NHS commissioning into local government.

As with all democratic institutions, none of these changes would ensure perfection, but they would be better than handing power to an unaccountable quango.

References

  1. Godlee F. Time to leave home [Editor's Choice]. BMJ 2006; 332. (1 April.)
  2. Department of Health. Patients first: consultative paper on the structure and management of the National Health Service in England and Wales. London: DoH, 1979.
  3. Department of Health. Shifting the balance of power within the NHS: securing delivery. London: DoH, 2001.

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