It has been one year since the World Health Organization's ("WHO") Commission on the Social Determinants of Health released its Final Report, entitled Closing the Gap in a Generation. To mark the occasion, the current issue of the outstanding open-text electronic journal Social Medicine has several pieces devoted to the Report. I am still reading through them, but have finished Anne-Emmanuelle Birn's provocative piece entitled Making it Politic(al): closing the Gap in a Generation: Health Equity Through Action on the Social Determinants of Health (PDF). Here is the Abstract, after which I'll offer some comments:
The anniversary of the publication of Closing the Gap in a Generation (CGG) offers a moment to reflect on the report’s contributions and shortcomings, as well as to consider the political waters ahead. The issuance of CGG was not the first time the World Health Organization (WHO) raised the problem of global inequalities in health. Numerous analysts and advocates have compared CGG to the 1978 Declaration of Alma-Ata. Some see CGG as a continuation of Alma-Ata; others malign it for paying insufficient attention to the principles, background documents, and lines of action proposed in the Alma-Ata declaration.
We might understand the two reports as bookends to 30 years of brutal global capitalism, punctuated by the “lost decade” of the 1980s, the end of the Cold War, and, more recently, the implosion of global finance. This period saw the publication of two seminal neoliberal health manifestos –the World Bank’s 1993 World Development Report and the WHO’s 2002 Commission on Macroeconomics and Health report. Both feature the term “investing in health” in their title, conveying “a double meaning—investing [through “cost-effective,” narrow, technical interventions] to improve health, economic productivity, and poverty; and investing capital, especially private capital, as a route to private profit in the health sector.”
For anyone interested in the social determinants of health -- which, frankly, should be everyone with an interest in health and illness in society -- Birn's essay is a must-read. Birn, of course, is a preeminent SDOH scholar, and details a number of strengths and weaknesses in CGG.
(An aside on terminology: She argues that the term "societal determinants of health" is more accurate than "social determinants of health" because the former refers to the "broader array of historical, political, and other structural influences" in comparison to the latter, which refers "to those factors related to interactions among people and communities." (Birn, at 167). I have heard this argument before, and remain frankly unconvinced. Social is social. Sociopolitical structures are in no ways I can tell less "social" than community level interactions).
Substantively, Birn tracks a recent and equally provocative piece (PDF) on the SDOH by Vicente Navarro, in arguing that assigning causation for the preventable deaths and suffering to inequities is not equivalent to assigning culpability to moral agents who benefit from inequities. This is, to the best of my knowledge, an overtly Marxist argument, an interpretation buttressed by Birn's discussion of Engels's concept of social murder.
This leads into what I take to be Birn's central point; that CGG is "profoundly apolitical" (Birn, 172, quoting Navarro, at 15). "The report says almost nothing about the causes of the "'causes of the causes," viz., what creates inequity in the first place" (Birn, 172) (footnote omitted). Essentially, CGG fails to document how the distribution of raw political power is the primary determinant of inequitable social, political, and economic structures. Hence, CGG is relatively silent on how political action is needed to ameliorate these structures. Birn observes
This criticism seems to imply that radicalization is needed to address the SDOH, and Birn confirms this, arguing that what is needed to ameliorate the SDOH is the disempowerment of moneyed "private-sector" interests who wield that power "block the passage or enforcement of laws and regulations aimed at protecting the public good" (Birn, 174).
As I said, provocative. I personally have neo-Marxist tendencies, so I am somewhat disposed to agree with her, but I am also a pragmatist and a public health policy scholar, and at least in the U.S., am quite confident that the state of the political culture is exceedingly unlikely to support radical redistribution of wealth, which I agree could only proceed by upsetting dominant power structures. I think such action is similarly unlikely to occur on the global scale as well.
Of course, what can happen and what ought to happen are not equivalent. This is what I have referred to as the ethics of health policy paradox: what we can do may not be what we ought to do, and what we ought to do may not be what we can do. At one point in her article, Birn acknowledges that the practical realties of global health politics may impede the activity Birn is recommending: "Surely CGG cannot be as incendiary as Engels!" (Birn, 174). Indeed, they cannot. CGG would never have gotten off the ground had it advocated radicalization, which (again), does not mean that it ought not have done so, but does present a practical policy problem.
Once again, the Aristotelian concept of phronesis matters here; we are looking for practical wisdom, what some have referred to as the least worst solution. Note also that parallel processing is tenable; there is no rule which says one cannot attend to some of the intermediate "causes" CGG identifies while at the same time pushing for more radical alteration of power structures.
Thoughts?