Abstract
Generating evidence on health inequalities (HI) is necessary to raise awareness of these issues, describe and monitor their evolution, analyze their causes, and inform interventions aiming to improve health equity. Yet not all cities and countries have the capacity to produce this type of research. Recent research provides new contextual and causal insights into this research production process, and in-depth understanding on why and how this type of research is produced in certain settings. This article aims to analyze two recent case studies that have uniquely explored this process in two high producers of HI research and high-income country settings to identify learning and distil recommendations, which may be insightful for other settings. Expanding and investing in this line of research is critical, particularly in places with lower HI research output and related capacity, in order to identify key contextual conditions and mechanisms that may enable or hinder this process. This new knowledge could guide the development of new HI research capacity strengthening strategies to foster this research in different settings, worldwide. More understanding is also needed on the relationship between HI research, policy, and action in order to tackle HI.
Keywords
Health Inequalities Research: Why Is It Needed?
Over the past four decades there has been growing evidence on health inequalities (HI)—avoidable, systematic, and unjust differences in health outcomes between social groups—within and between countries.1,2 Generating evidence on HI is essential to raise awareness about their existence, describe and monitor their evolution over time, analyze their underlying causes, and, ideally, inform the design and implementation of interventions aiming to improve health outcomes for all social groups in a given population.3,4
For instance, during the COVID-19 pandemic urgent questions arose regarding how to quickly and equitably respond, and what were the diverse health, social, and economic effects on individuals and communities.5–7 Contextualized health-equity oriented analyses based on empirical evidence were needed to address these questions and build comprehensive assessments of the causes, distribution and impact of these events. 8 However, many countries faced great challenges due to their pre-pandemic limited capacity to produce descriptive and analytical research on HI, and to measure, monitor, and explain HI.9–13
Although progress is being made, many countries worldwide still face substantial HI research capacity challenges that hinder their ability to measure, monitor, and explain HI, 14 as well as to design and implement effective strategies to address them and to evaluate their impact on citizens health and well-being. Most countries, including high producer HI research countries, also struggle to fully translate their HI research capacity and evidence base into appropriate interventions and effective action to tackle HI.15–21 There is therefore an urgent need to better understand the nonlinear process of producing HI research, as well as the relationship between HI research, policy, and action to address HI in different settings. 22
Where, Why, and How Is Health Inequalities Research Produced?
Comprehensive understanding on how to effectively strengthen global HI research capacities is needed. Over the past few decades there have been increasing calls and investments in national health research systems in order to strengthen the evidence base and guide effective action on HI, and the analysis of health research capacity has become an emerging line of research.23–28 Yet, while efforts have been made to comprehend and enhance health research capacity more broadly, there has been limited focus on understanding HI research capacity more specifically.3,22
To effectively evaluate and strengthen the capacity to produce HI research in particular settings, a strong theoretical understanding of the process is crucial. 22 As such, several recent studies have aimed to enhance comprehension of where, why, and how scientific knowledge on HI is produced, and the factors influencing this capacity in certain settings.10,22,29–31 These include one study that identified inequalities in global HI research, 29 a conceptual model on the process, 20 and two novel realist explanatory case studies that established causal explanations for the significant production of HI in two high-income settings: the United Kingdom and the city of Barcelona.30,32 While a few descriptive studies exist on social determinants of health (SDH) and HI research capacities in some low- and middle-income countries (LMIC; 11,33–39), to the best of our knowledge, no other studies have attempted to apply this methodological approach to assess the HI research production process in other settings, and identify potential causal mechanisms involved.
Both the United Kingdom and Barcelona were identified as high producers of HI research,29,31 and the two realist explanatory case studies were conducted with the intention of shedding light on how and why these two settings have been able to generate high volumes of HI research over the past four to five decades.30,32 Interestingly, both studies found evidence to suggest that a combination of historical sociopolitical-institutional factors have activated many causal mechanisms over time, leading to the generation of a high volume of HI research in these two settings.
Given this context, this article aims to identify similarities, differences, and extract further insights from the case studies, as well as distil research and policy recommendations. This information may be of particular relevance for similar settings (i.e., high producers of HI research and high-income countries). At the same time, it may also be (indirectly) insightful for other settings (i.e., lower producers of HI research and LMIC), where this type of research is urgently needed.
Insights from Two High Producers of Health Inequalities Research and High-Income Settings
Surprisingly, several similarities can be identified between the two case studies mentioned in terms of contextual factors and mechanisms involved in the HI research production process. First, both studies identified that the United Kingdom and Barcelona have strong traditions of public health and recognition of social justice (contextual factors), which date back to the nineteenth century.30,32,40 In addition, evidence suggests that under certain conditions, this recognition of HI accumulated over time (contextual factor), and when potentially combined with heightened concern (mechanism), it triggered a change in certain agents’ behaviors and actions, initiating a chain of events which likely led to the production of a high volume of HI research in both settings (outcome of interest).
Second, both cases highlighted the significance of allocating (dedicated) resources (mechanism) to invest in local sociodemographic and public health research infrastructure, such as HI observatories, and ensure that reliable, disaggregated health and sociodemographic data are available, collected, and monitored (contextual factors). In addition, dedicated resources must also be allocated (mechanism) to ensure a minimum level of investment in HI-related human resources via creating dedicated training programs and enabling career structures, and to create a critical mass of trained professionals who are able to work on HI (contextual factor).24,27,30,32 During the COVID-19 pandemic, for example, several public institutions in Barcelona were able to rapidly identify inequalities in COVID-19 incidence and mortality within and between neighborhoods, partly due to the preexisting HI research infrastructure in the city. 8
Third, the strong political nature of the HI research production process emerges from both case studies, particularly the influential role of politics, and institutional and individual values (contextual factors) in activating certain mechanisms over time. For example, both case studies identified that over the past four decades, left-wing and egalitarian political parties have shown more political recognition and concern for HI (mechanism) than right-wing conservative political parties in the United Kingdom and in Barcelona, leading to more investments in HI research capacity (mechanism) and subsequently more production of HI research (outcome of interest).30,32 Moreover, compelling evidence suggests that individual egalitarian values and ideologies have played a significant role in initiating and sustaining the production of HI research in both settings, which likely occurred via the activation of a sense of moral responsibility to act (mechanism) and to prove that HI existed to try to address them. The activation of this mechanism seems to have been particularly important during periods of struggles41,42 or in “hostile socio-political and research environments”. 30 (p.10)
Fourth, alongside certain individuals, certain institutions, such as local public health and political institutions, seem to have acted as potential stewards of HI research during different time periods (contextual factors and/or mechanisms). Evidence suggests that their guidance (directly or indirectly) may have played a role in strengthening HI research capacities in the United Kingdom and Barcelona, and subsequently enabled the generation of HI research (outcome of interest). In addition, the case studies highlighted how national research funders have played an influential role in inhibiting or facilitating the production of HI research during different historical periods, which has likely influenced the volume of HI research produced in each setting.43,44 In the case of Spain, domestic funding for HI research has been extremely limited through the past four decades, with the majority of HI research funding coming from international sources.30,41,42
Lastly, the formation of informal and formal HI research networks (contextual factors) has played a crucial role in both settings, particularly in providing intellectual and emotional support, building trust, solidarity, and mobilizing various resources, and in activating a sense of cognitive social capital (mechanism), which contributed to the co-production of new HI research over time (outcome of interest). These networks seemed to be particularly important in the initiation and development of the research field in the United Kingdom and Barcelona, and during certain periods when domestic research funding for HI research was limited.30,32
Experiences from other global settings also align with a number of these findings. For example, a study in 2014 mapped Brazil's SDH research capacities and explains how the country has strong HI research infrastructure in terms of human and technical/information resources and how national funding for health research has being increased prior to 2014, which has “undoubtedly contributed” (p. 2085) to the increasing volume of health research, including SDH/HI research produced nationally. 11 Whereas Mozambique, which is a low producer of HI research, 29 has challenges in monitoring and reporting on HI at national level, partly because it does not have a comprehensive HI-related information system and relies on external donor funding which can influence research priority agendas. 12 Interestingly, other studies have also found that key committed individuals must have the capacity and opportunity to provide leadership to strengthen a national health research system (more broadly), with institutional commitments necessary to sustain these efforts. 27 In addition, to strengthen a national health research system, strong political will must exist, 27 and politics can have a positive effect on population health particularly in contexts with left-wing and egalitarian political traditions. 45
Additional Insights
While there were several similarities between the two case studies, some additional insights were also identified from each particular case that are worth highlighting.
Evidence from the United Kingdom case suggests that certain academic peer-reviewed journals and media outlets have played a role in fostering (scientific and social) recognition and concern for HI (mechanism) over the years.44,46 This support has most likely facilitated the dissemination of scientific recognition and concern with other agents, particularly during periods when political recognition and concern were lacking in the 1980s and 1990s. 40 While this aspect was not explicitly mentioned in the Barcelona case study, there is some evidence to suggest that Gaceta Sanitaria (Sanitary Gazette), a public health peer-reviewed journal, served as a valuable tool from the late 1980s onwards to strengthen local and national human resource research capacities to produce solid public health and HI research, share findings, and enhance the visibility of researchers throughout Spain. The journal, as it exists today, was created in 1987 as part of the Spanish Society of Public Health and Health Administration (SESPAS acronym in Spanish), and had historical ties to the public health bulletin in Barcelona. 47 There is also some evidence to suggest that this finding and process may also hold relevance in other global settings. 48
The United Kingdom case provided compelling evidence to suggest that the political controversy surrounding the release of the first commissioned government report on HI in 1980—the so-called “Black Report” developed by the Working Group on Inequalities in Health and chaired by Sir Douglas Black 49 —and the lack of official recognition of its evidence by Thatcher's conservative government helped to fuel some of the HI scientific production in the United Kingdom during the 1980s and 1990s (outcome of interest).40,50,51 Throughout that period, there seemed to be a persistent underlying sociopolitical and scientific “struggle for recognition” of HI intertwined with concerns about political misrecognition and denial (mechanism) over the existence of HI.32,40,46 These conditions seemed to have motivated certain individuals and groups with strong egalitarian values to persevere in their efforts to prove that HI existed, as well as trying to address them. In Spain, a similar negative political reaction occurred in 1996 and 2011 when the conservative government run by the Popular Party (PP) rejected the evidence and recommendations from the so-called “Spanish Black Reports,” which were Commissioned by the former government run by the socialist workers’ party (PSOE; 30,41,52,53). Also, evidence suggests that during 2011–2015, the city council, a center-right political party, “censored” work on HI in local Public Health Institutions. 30 (p. 7). It is therefore plausible that a similar reaction may have occurred in Spain where certain motivated individuals, driven by strong egalitarian values (contextual factors), were incentivized to persevere in their efforts to prove the existence of HI, and challenge this negative political reaction, which might have then fueled the local HI research production during and after this period (outcome of interest).
Strong evidence suggests that individual values, disciplinary training, and personal relationships (contextual factors) have played an important role in shaping the formation of HI research networks (contextual factors) in the United Kingdom which, in turn, likely interact and ultimately impact the HI research field itself, even influencing the type of HI research produced (e.g., the psychosocial explanations versus the social-material conditions).32,54,55 While these specific issues were not explicitly mentioned in the Barcelona case, there is some evidence to suggest that these contextual factors may also be at play in other global settings.11,55
There was some evidence to suggest that in the United Kingdom, other “professional benefits (i.e., potential new intellectual territory) and/or scientific interests” (mechanism) may have also motivated some individuals to enter this research field during different periods. 32 This motivation likely occurred when the topic of HI gained prominence as a political and research (funding) priority, such as after 1997 when the United Kingdom's New Labour Government came into power, for example. This finding aligns with previous research on HI research in the United Kingdom, which suggests that scientists often view themselves as competing for resources, credibility, and territory.50,56,57
While these issues were not explicitly mentioned in the Barcelona study, it is plausible that they hold relevance in other settings as well. A study on social movements for “Health for All,” for example, also found evidence suggesting that certain employes of nongovernment organizations are often motivated by career advancement rather than by purely political or ideological values, potentially influencing the actions taken and, subsequently, impacting health equity outcomes. 58
Collectively, these findings provide valuable insights into the HI research production process in two distinct settings, spanning several decades. These findings may or may not be relevant for other settings.
Recommendations
Several research and policy recommendations could be drawn from these findings to work towards strengthening the capacity to produce HI research in different settings worldwide.
Research Recommendations
First, further research is urgently needed to gain a comprehensive understanding of the HI research production process and related research capacities in different settings globally. For instance, more realist explanatory case studies, guided by conceptual models and theories of change22,31 should be conducted to evaluate the HI scientific processes in settings where a lower producer of HI research has been found, and in lower-income country settings. These in-depth studies should build on and complement existing descriptive or specific assessments of HI research capacities available in certain contexts.11,33–39 These realist explanatory case studies should be theory-driven,29,31,59 and seek to identify and evaluate enabling and inhibiting mechanisms. In addition, they should consider the historical, political, and socioeconomic determinants and power dynamics that influence the volume and type of HI research generated in different settings. 31
Furthermore, these types of case studies should consider examining the roles of different agents, academic journals, the media, and research funders in this research production process, including their motivations and interest during different periods. In addition, the the role of gender in this scientific production should be examined, 32 given the known gender bias in science,5,60,61 as well as other factors and dynamics that create epistemic injustices within this field of study.29,48,62
Second, descriptive content analyses of the HI research generated in particular settings are essential to better understand the HI being investigated in different settings, as well as the types of theoretical and methodological approaches employed in HI research globally.
Third, extensive research on the relationship between HI research, policy, and action in different global settings is urgently needed. This includes the type of HI research used in policies and interventions aiming to tackle HI and the enabling and inhibiting factors involved. Some research exists on the relationship between HI research and policy in the United Kingdom, 44 and on some of the factors that may be facilitating or inhibiting the HI research-to-policy process.63–66 More specifically, some scholars have discussed why policy attempts to tackle HI in the United Kingdom and some other settings (i.e., other high producers of HI research and high-income countries) may have failed. For example, they suggest limitations of HI policies have been connected to the type of HI evidence and the terminology and language that has been used to inform the policy initiative. More specifically, there has been a tendency to predominantly invest in individual behavioral interventions rather than sociopolitical root causes of HI that require long-term structural changes.16–21
Some evidence from Tanzania suggests that a number of SDH/HI research-to-policy challenges exist because researchers’ often lack skills and/or time to disseminate findings outside academic circles; researchers and/or development actors are often unaware of the reality of how policy making works in country; there is heavy reliance on external funds; and there are conflicting ideologies, among other factors. 39
Lastly, further evaluations of the design, implementation and impact of HI-related policies and interventions are essential to advance our understanding in this field in terms of what works, what does not, and how to be more effective.67–69
Policy Recommendations
Several policy recommendations were discussed in the United Kingdom case study, which are worth reiterating and building on here. Firstly, it is essential to foster recognition and concern for HI at multiple levels, including the individual, societal, and political levels. This includes emphasizing the benefits of having and using locally-relevant evidence on HI.32,41 Also, efforts should be made to find effective mechanisms that enable the diffusion of these ideas to support positive social change.70,19
Secondly, commission and conduct comprehensive assessments of HI research capacities at local, national, and global levels to identify strengths and weaknesses, and establish comprehensive recommendations for action.22,30,32,62 This information can then be used to develop context-specific HI research capacity strengthening strategies and investment plans.
Thirdy, prioritize and invest in critical HI research that uses integrated, transdisciplinary perspectives and novel methods such as realist evaluations, participatory action research, and systems thinking.22,62,67 This research can be supported via the development of dedicated international, regional and/or national strategic commissions on HI, which should include new research and evaluation of existing HI research.71,72
Fourthly, invest in HI-related information resources.3,22,62 This must include investment in comprehensive health information systems, local HI observatories, and data surveillance systems that collect reliable, disaggregated, as well as linked health and sociodemographic data for regular measurement and monitoring of population health and HI at local, national, and regional levels.3,12,14,22,38,41
Fifthly, invest in HI-related human resources to foster HI scientific leadership and stewardship, and develop a critical mass of trained professionals capable of producing critical HI research.3,62 This should include enabling HI-related career structures at different career stages.22,30,32,62,67
Lastly, support the formation of fair and sustainable HI research collaborations and networks at different levels through dedicated research funding programs, including at the national and international level. 62 Particularly, build networks that aim to foster the co-development of causal explanations of these complex global political and sociocultural issues, and foster innovative ideas to address HI by working across disciplines, sectors, institutions, and settings.22,25,73–75
Conclusions
HI are growing within and between countries, and it is therefore important to monitor their evolution and analyze their causes. However, strong capacity to produce research on HI does not exist everywhere. Recent research has shed light on some of the potential causal mechanisms and key political, social, and institutional factors that have been involved in generating a high volume of HI research over the past four decades in certain places (i.e., high-income countries and high producers of HI research). Valuable insights have been identified on these processes, and several research and policy recommendations have been distilled which may be useful for other settings. Fostering this line of research is essential to identify HI research capacity strengths and limitations and key contextual conditions and mechanisms that may be facilitating or hindering the production of HI evidence in different settings worldwide. This type of knowledge could help guide the development of effective strategies to strengthen HI research capacity, particularly in settings with lower levels of HI research output. At the same time, more understanding about the relationship between HI research, policy, and action on HI in different settings is needed to know how to effectively work towards achieving health equity.
Footnotes
Acknowledgements
Joan Benach is a recipient of an ICREA Acadèmia (Generalitat de Catalunya).
Authors contributions
Conceptualization: LCG; Writing – original draft: LCG; Writing – review & editing: LCG, JB.
Declaration of Conflicting Interests
The authors declared no potential conflicts of interest with respect to the research, authorship, and/or publication of this article.
Funding
The authors received no financial support for the research, authorship, and/or publication of this article.
