CASE STUDY Open Access
The implemen a ion o Heal h in All
Policies ini ia i es: a sys ems amewo k o
go e nmen ac ion
Ke an Shanka dass
1,2,3*
, Ca les Mun ane
2,4
, Lau i Kokkinen
5
, Fa az Vahid Shahidi
2
, Alix F eile
1
, Goldamei Oneka
2
,
Ahmed M. Bayoumi
1,6
and Pa icia O’Campo
1,2
Abs ac
Backg ound: The e has been a enewed in e es in b oadening he esea ch agenda in heal h p omo ion o include
ac ion on he s uc u al de e minan s o heal h, including a ocus on he implemen a ion o Heal h in All Policies
(HiAP). Go e nmen s ha use HiAP ace he challenge o ins i u ing go e nance s uc u es and p ocesses o acili a e
policy coo dina ion in an e idence-in o med manne . Due o he complexi y o go e nmen ins i u ions and he policy
p ocess, sys ems heo y has been p oposed as a ool o e alua ing he implemen a ion o HiAP.
Me hods: Ou mul iple case s udy esea ch p og amme (HiAP Analysis using Realis Me hods On In e na ional Case
S udies –HARMONICS) has elied on sys ems heo y and ealis me hods o make sense o how and why he p ac ices
o policy-make s (including poli icians and ci il se an s) om speci ic ins i u ional en i onmen s (policy sec o s) has
ei he acili a ed o hinde ed he implemen a ion o HiAP. He ein, we p esen a sys ems amewo k o he implemen a ion
o HiAP based on ou expe ience and empi ical indings in s udying his p ocess.
Resul s: We desc ibe a sys em o 14 componen s wi hin h ee subsys ems o go e nmen . Subsys ems include he
execu i e (heads o s a e and hei appoin ed poli ical eli es), in e sec o al ( he milieu o policy-make s and expe s
wo king wi h go e nance s uc u es ela ed o HiAP) and in asec o al (policy-make s wi hin policy sec o s). He e, HiAP
implemen a ion is a p ocess in ol ing in e ac ions be ween subsys ems and hei componen s ha leads o he
eme gence o implemen a ion ou comes, as well as e ec s on he sys em componen s hemsel es. We also desc ibe
he in luence o ex a-go e nmen al sys ems, including (bu no limi ed o) he academic sec o , hi d sec o , p i a e
sec o and in e go e nmen al sec o . Finally, we p esen a case s udy ha applies his amewo k o unde s and he
implemen a ion o HiAP – he Heal h 2015 S a egy –in Finland, om 2001 onwa d.
Conclusions: This amewo k is use ul o helping o explain how, why and unde wha ci cums ances HiAP has been
success ully and unsuccess ully implemen ed in a sus ainable manne . I se es as a ool o esea che s o s udy his
p ocess, and o policy-make s and o he public heal h ac o s o manage his p ocess.
Keywo ds: Sys em amewo k, Heal h equi y, Heal h in all Policies, In e sec o al ac ion
* Co espondence: [email p o ec ed]
1
Cen e o U ban Heal h Solu ions, Li Ka Shing Knowledge Ins i u e, 209
Vic o ia S ee , To on o, ON M5B 1T8, Canada
2
Dalla Lana School o Public Heal h, Uni e si y o To on o, 155 College S ee ,
To on o, ON M5T 3M7, Canada
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Shanka dass e al. Heal h Resea ch Policy and Sys ems (2018) 16:26
h ps://doi.o g/10.1186/s12961-018-0295-z
Backg ound
By highligh ing he impo ance o he s uc u al de e -
minan s o heal h as oo causes o heal h inequi y, he
2008 inal epo by he Commission on he Social
De e minan s o Heal h encou aged b oadening o he
heal h p omo ion esea ch agenda o include a ocus on
go e nmen policies and p ocesses, alongside cul u e
and socie al alues o popula ions [1].
Go e nmen s ha apply he idea o Heal h in all
Policies (HiAP) o s eng hen heal h equi y s i e o
du able and sys ema ic app oaches o pu suing in e sec-
o al ac ion ha leads o heal hy and equi able public
policies. Thus, he implemen a ion o HiAP ypically in-
ol es ins i u ing wha Fa a d e e s o as “in eg a ed
go e nance”([2], p. 2), in which go e nance s uc u es
and p ocesses a e used o acili a e policy coo dina ion
in an e idence-in o med manne , some imes guided by
explici long- e m s a egies and goals [3]. In his o mu-
la ion, HiAP is no a speci ic app oach (as p esen ed
mo e ecen ly by WHO [4]), bu a he a gene al con-
cep ha accommoda es di e se ini ia i es, whe e “HiAP
ini ia i es may include mul iple p og ammes o p ojec s
ha a e os e ed ac oss mul iple sec o s and mul iple
le els o go e nmen ei he di ec ly o indi ec ly ela ed
o he o iginal policy commi men ”([5], p. 465). Thus,
assessing he implemen a ion o HiAP includes a ocus
on how sec o s and app oaches a e coo dina ed and
in eg a ed o e ime.
As mo e go e nmen s ha e adop ed HiAP app oaches
globally, he e ha e been calls o g ea e moni o ing o
be e unde s and how in eg a ed go e nance can be
used o mee heal h and equi y objec i es [4,6–8]. The
need o such a en ion s ems om mul iple challenges.
Fi s , he p ocess o implemen ing HiAP can be challen-
ging since policy-make s a e no always expe ienced in
wo king in e sec o ally. Fo example, long-s anding
go e nmen adi ions o policy de elopmen and imple-
men a ion wi hin dis inc o ganisa ional and p o essional
silos can be ha d o ans o m [9]. Second, he e is o en
a lack o e idence abou how o bes acili a e success ul
HiAP implemen a ion; mos e idence is desc ip i e
a he han analy ic [10]. Thi d, since HiAP is a concep
a he han a model, e e y HiAP ini ia i e is uniquely
designed and go e ned, and so i is challenging o unde -
s and how o ansla e s udies o one case o o he s.
Bha a no es ha because “i is much easie o se goals
han o pu hem in o ac ion, implemen a ion conside -
a ions end o be less accoun ed o han he o he
p ocesses in policy de elopmen ”([11], p. 456). In he
case o implemen ing HiAP, guidance has gene ally
ocused on echnical challenges o policy implemen a-
ion [12–15], whe eas he e a e also poli ical challenges
o HiAP implemen a ion gi en he ocus on heal h
equi y imp o emen [16]. Mo e undamen ally, he e has
been li le applica ion o heo y o help es hypo heses
abou why ce ain implemen a ion p ac ices wo k in
some se ings, and wha o he con ex ual and collec i e
ac o s in luence implemen a ion ou comes. Mo eo e ,
he complexi y o unde s anding policy p ocesses makes
he gene a ion o hypo heses di icul [17].
Sys ems heo y has been p oposed as a ool o e alu-
a ing heal h p omo ion ac i i ies, including hose unde -
aken by go e nmen s [18,19]. The use o sys ems
heo y implies ha he e is no simple app oach o
implemen ing HiAP; a he , implemen a ion ou comes
a e mos ly unp edic able gi en he complex in e -
ela ionships be ween sys em componen s (e.g. sec o s
wi h compe ing p io i ies, poli ical u no e and chan-
ging policy agendas). Ye , sys ems heo y can o e a
amewo k o unde s anding implemen a ion phenom-
ena, including whe e implemen a ion is based on sho -
sigh ed hinking o whe e i goes w ong [19]. This
app oach has been used mo e ex ensi ely in unde s and-
ing he managemen o heal hca e o ganisa ions [20],
and has e en been associa ed wi h inc eased e ec i e-
ness o in e en ions in hese se ings [21]. Al hough
he e a e some excep ions (e.g. [22]), sys ems heo y has
no been adequa ely in eg a ed in he discou se abou
how o implemen HiAP.
F om he ou se , ou mul iple case s udy esea ch
p og amme (HiAP Analysis using Realis Me hods On
In e na ional Case S udies –HARMONICS) has elied
on sys ems heo y o make sense o how and why he
p ac ices o policy-make s (including poli icians and ci il
se an s) om speci ic ins i u ional en i onmen s (policy
sec o s) has ei he acili a ed o hinde ed he implemen-
a ion o HiAP [5]. To help o he esea che s lea n om
case s udies o HiAP implemen a ion, his a icle begins
by p o iding a desc ip ion o sys ems heo y ollowed by
a desc ip ion o a sys em o 14 componen s wi hin h ee
subsys ems o go e nmen , which we a gue mainly explain
implemen a ion ou comes alongside some impo an
ex a-go e nmen al in luences. We hen use a case s udy
o demons a e how o apply he sys ems heo y ame-
wo k, which in ol es he implemen a ion o he Heal h
2015 S a egy in Finland om 2001 onwa d, concep ua-
lised he ein as a o m o HiAP [23].
Social sys ems (i.e. sys ems composed o indi iduals and
he ela ions be ween hem) a e di icul o quan i y, which
can hinde moni o ing and e alua ion. The amewo k we
p opose, along wi h o he empi ical analyses om HAR-
MONICS (e.g. [24]), o e s bo h heo y and an analy ic ap-
p oach based on his heo y. This app oach allows he
gene a ion o hypo heses abou he implemen a ion
p ocess and he es ing o hese hypo heses by e alua ing
how well he heo y explains how, why and unde wha
ci cums ances HiAP has been success ully implemen ed
in a sus ainable manne . Policy-make s a e o pa icula
Shanka dass e al. Heal h Resea ch Policy and Sys ems (2018) 16:26 Page 2 o 10
in e es as indi iduals who a e engaged in and possibly
managing aspec s o he go e nmen sys em o HiAP
implemen a ion. Fo example, he implemen a ion s a -
egies o policy-make s may a ec how esou ces a e
dis ibu ed o lead and suppo implemen a ion ac i i ies.
Policy-make s can use his amewo k o unde s and hei
own go e nmen sys ems, and o an icipa e he po-
en ial challenges and impac s o a ious s a egies o
HiAP implemen a ion.
A Sys ems Theo y p ime
Sys ems Theo y eme ged in he Twen ie h cen u y as a
se o heo ies ha encompassed mul iple ields, includ-
ing philosophy as well as basic and applied science (e.g.
compu ing science) [25,26]. I can be labelled a me a-
heo y in ha Sys ems Theo y sea ches o commonal-
i ies ac oss biological, physical and social sys ems. In
b ie , i posi s ha he wo ld is made o wholes (sys ems)
whose p ope ies (including eme gen ou comes) canno
be explained by a simple accoun ing o i s componen s
[27]. Componen s a e o ganised wi hin subsys ems ha
a e inhe en ly in e dependen [28], so changes o one
subsys em will a ec o he s, some imes in unexpec ed
ways [26]. Eme gen p ope ies o a sys em a e hose no
possessed by any single componen o he sys em, and
eme gence e e s o he p ocess by which he sys em ac-
qui es hese p ope ies [29]. Such on ology leads o an
epis emology ha ejec s bo h educ ion ( he exclusi e
s udy o he componen s o a sys em) and holism ( he
neglec o he componen s o a sys em).
To use an example om ou side he domain o HiAP
implemen a ion, we may wan o unde s and social
cohesion in a neighbou hood (social) sys em. S udying
only he psychology o neighbou hood esiden s would
no gi e insigh in o in e -pe sonal p ocesses, such as
ecip oci y no ms o exchange ne wo ks, which cons i-
u e impo an gene a i e mechanisms o explain social
cohesion. Minge s [27] desc ibes gene a i e mechanisms
as he p ocesses ha keep a sys em in mo ion, which
occu in ela ion o speci ic con ex ual condi ions.
He ein, he s udy o sys em componen s alone (e.g.
social cha ac e is ics, such as he c iminali y o neigh-
bou hood esiden s) canno explain eme gen p ope ies
o his sys em, like social cohesion, because hey do no
unco e he ela ions among componen s (e.g. no ms o
ecip oci y) and he ole o con ex .
Eme gen p ope ies a ise as a consequence o in e ac-
ions be ween sys em componen s, including eedback
ha changes sys em componen s and o he ou comes o
ele ance [30,31]. Sys ems can he e o e ope a e in
non-linea ways wi h seemingly ob ious solu ions some-
imes wo sening a p oblem ([32], p. 19). Sys ems and
subsys ems ha e bounda ies ha a e pe meable, so ha
changes o sys ems in he ex e nal en i onmen o hese
domains may in luence how and why he sys em
wo ks [26,33].
As desc ibed below, his sys ems amewo k ocuses
on how ce ain go e nance s uc u es, p ocesses and
s a egies can help o se he agenda and build capaci y
o HiAP implemen a ion o acili a e sus ainable
ini ia i es. In doing so, his concep ual amewo k
includes a se ies o subsys ems, componen s and ex e -
nal in luences ha can in o m hypo heses abou how o
explain and an icipa e HiAP implemen a ion ou comes
in di e en se ings.
HiAP implemen a ion wi hin a go e nmen
sys em: he HARMONICS app oach
Since HiAP ini ia i es a e ypically manda ed o im-
plemen a a ie y o heal h equi y in e en ions ac oss
mul iple policy sec o s and mul iple geog aphic le els
o go e nmen o e ime (e.g. [34]), we iew imple-
men a ion as equi ing an on-going adap i e p ocess
o go e nmen s in e ms o hei go e nance s uc-
u es and s a egies, simila o wha Hummelb unne
calls an “open change p ocess”([35], p. 395). Thus,
he sys ems amewo k desc ibed below is in ended as
a ool o esea che s o s udy his p ocess and o
policy-make s and o he public heal h ac o s o
manage i .
This amewo k was de eloped by ou eam i e a-
i ely o e he cou se o many discussions be ween
2015 and 2016, wi h a ocus on a icula ing he mos
impo an and unique ace s o go e nmen sys ems
ele an o he implemen a ion o HiAP. These dis-
cussions we e in o med by (1) se e al exis ing heo -
ies abou policy implemen a ion (e.g. [2,3]), including
ou own ini ial amewo ks abou he implemen a ion
o HiAP [3,5], and (2) a wide ange o e idence on
he opic o implemen ing in e sec o al ac ion o
heal h equi y [10], including ou analysis o h ee case
s udies o HiAP implemen a ion in Sweden, Quebec
and Sou h Aus alia [3,24,36]. Impo an ly, we also
apply a ealis scien i ic app oach o ou case s udies,
which is an on ology ha has ocused ou wo k on
unde s anding he o -hidden gene a i e mechanisms
ha explain implemen a ion ou comes (desc ibed u -
he below) [5].
The amewo k below p esen s HiAP implemen a ion
as a p ocess in ol ing in e ac ions be ween sys em com-
ponen s and subsys ems in ou model ha leads o he
eme gence o bo h a ou able and un a ou able imple-
men a ion ou comes, as well as e ec s on he sys em
componen s hemsel es (i.e. eedback). Figu e 1and
Table 1ou lines ou sys ems amewo k o HiAP imple-
men a ion in e ms o a se ies o componen s pe aining
o h ee subsys ems, including he execu i e (heads o
Shanka dass e al. Heal h Resea ch Policy and Sys ems (2018) 16:26 Page 3 o 10
s a e and hei appoin ed poli ical eli es), in e sec o al
( he milieu o policy-make s and expe s wo king wi h
go e nance s uc u es ela ed o HiAP) and in asec o al
(policy-make s wi hin policy sec o s).
The implemen a ion o HiAP o en equi es policy co-
o dina ion ac oss mul iple go e nmen le els o sys ems
(e.g. na ional, p o incial/s a e, egional and local), as well
as wi h o he sys ems ou side o go e nmen ha a ec
heal h equi y ( ha do no necessa ily look like Fig. 1).
The e o e, we also include a ole o ex a-go e nmen al
sys ems, which can in luence he implemen a ion o
HiAP in many ways (desc ibed u he below).
In HARMONICS, sys ems heo y has been use ul o
es ing hypo heses and explaining phenomena abou wo
a ou able ou comes o he implemen a ion p ocess,
namely he accep abili y (i.e. a e sec o s willing o
collabo a e on heal h and equi y?) and easibili y (i.e. do
sec o s ha e he capaci y o e ec i ely collabo a e on
heal h and equi y?) o HiAP implemen a ion o pa ne s
in di e se policy sec o s ela ed o he ongoing p ocess
o implemen a ion [37]. Accep abili y and easibili y a e
a ou able inasmuch as hey con ibu e o mo e sus ain-
able implemen a ion o HiAP and hey may also lead o
s onge ypes o HiAP.
Fo example, accep abili y and easibili y may acili a e a
b oade inclusion o policy sec o s ha pa icipa e in
HiAP o e ime, e lec ing bo h a la ge numbe o sec o s
and g ea e di e si y among hose sec o s, e.g. including
social and economic-o ien ed sec o s. The e may also be
s onge equi y in e en ions (i.e. in e en ions ha a e
mo e ups eam), as e lec ed by he alues and ideas
implici in he heo y o change o esul ing heal h equi y
in e en ions.
Case s udy: The implemen a ion o Heal h 2015 in
Finland
Below, we demons a e he alue o using he sys ems
amewo k o HiAP implemen a ion (sys em componen s
om Fig. 1and Table 1a e i alicised) o o ganise in o ma-
ion abou a pa icula policy issue and ou come in he
implemen a ion o Heal h 2015 in Finland. Following he
case desc ip ion, we o e some e lec ions on gene a i e
mechanisms and nex s eps o unde s anding he ou -
comes o he case.
Ou case s udy d aws e idence om a ealis explana o y
case s udy o his p ojec [23], including he analysis o
pee - e iewed and g ey li e a u e, go e nmen epo s and
key in o man in e iews wi h 10 policy-make s in ol ed in
he implemen a ion o Heal h 2015. Mo e de ails abou ou
me hodology a e a ailable in Shanka dass e al. [5].
Backg ound o in e sec o al ac ion (ISA) o heal h equi y
in Finland
In he ea ly 1970s, i was ecognised by public o icials
ha he heal h o Finland’s popula ion was lagging
behind economic p og ess [38]. As a esul , he imp o e-
men o popula ion heal h became a poli ical p io i y o
he Finnish go e nmen (policy agenda). Since ha ime,
policy sec o s ha e been g owing hei (p io ) expe ience
wi h ISA. In 1972, he go e nmen adop ed a public
heal h law ha in oduced a amewo k o in e sec o al
collabo a ion be ween he heal h sec o and o he
go e nmen sec o s, as well as non-go e nmen al
o ganisa ions and he p i a e sec o , o educe ca dio as-
cula disease in he popula ion. In 1986, a na ional
Heal h Fo All s a egy was implemen ed o encou age
b oade e o s owa ds ISA o heal h. Following an
Fig. 1 A sys ems amewo k depic ing 14 componen s wi hin h ee go e nmen sub-sys ems in ol ed in HiAP implemen a ion
Shanka dass e al. Heal h Resea ch Policy and Sys ems (2018) 16:26 Page 4 o 10
Table 1 De ini ion o sub-sys ems and sys em componen s
Execu i e Subsys em: The p ocesses o go e nmen esponsible o he
c ea ion and implemen a ion o legisla i e manda es ela ed o he
implemen a ion o HiAP ini ia i es.
Policy agenda: The ini e se o social and poli ical issues upon which
go e nmen s ac on a a gi en poin in ime, which will be shaped by
he pa y o ganisa ion(s) who con ol he go e nmen and in luenced by
ex a-go e nmen al ac o s, and which ha e implica ions o he p io i y
o heal h equi y ini ia i es like HiAP.
Poli ical eli es: Ac o s who, by i ue o some o m o o mal au ho i y
wi hin he go e nmen , exhibi a consis en and subs an ial le el o
con ol o e he poli ical p ocess and i s ou comes, including as hey
ela e o he implemen a ion o HiAP ini ia i es.
Poli ical ideology: The clus e o ideas, belie s, alues and a i udes ha
cons i u e he no ma i e lens h ough which poli ical eli es and pa y
leade s in e p e and ac upon social and poli ical issues. Fo example,
hey ha e poli ical in e es s in ela ion o hei opinions abou ‘wha
ough o be’when i comes o de eloping o modi ying policies du ing
he implemen a ion o HiAP ini ia i es. Those opinions may, in u n, be
shaped by hei expe iences and unde s anding o he eal wo ld, and by
hei mo e undamen al wo ld iews and ideological subsc ip ions, e.g. he
ole o s a e o he p imacy o indi idual esponsibili y.
In e sec o al Subsys em: The p ocesses o go e nmen ha acili a e
he ho izon al and e ical coo dina ion o he HiAP policy agenda ac oss
a ious sec o s o he go e nmen and wi h ex a-go e nmen al pa ne s.
Expe ad iso s: Expe indi iduals (o en om ou side o go e nmen )
who a e o mally consul ed in planning and execu ing he
implemen a ion o HiAP ini ia i es. Expe ad iso s a e a ype o policy
eli e, i.e. hey ha e in luence o e he policy p ocess.
HiAP inancial a angemen s: Financial a angemen s ha dic a e he
magni ude, dis ibu ion and sou ces o unding a ailable o he
implemen a ion o HiAP ini ia i es.
HiAP managemen : The se o echnical p ocesses h ough which
go e nmen s gene a e ins i u ional capaci y o implemen a ion o HiAP
ini ia i es.
HiAP manda e: O icial legisla ion and o mal s a egies con aining speci ic
ins uc ions o he implemen a ion o HiAP ini ia i es (e.g. policy goals,
di ision o esponsibili y, alloca ion o esou ces, p ocesses o moni o ing
and en o cemen ), which may change o g ow in numbe o e he pe iod
o implemen a ion (see F eile e al. 2013 o addi ional in o ma ion).
In asec o al Subsys em: The p ocesses o go e nmen ha acili a e
ac i i ies such as he pu sui o sec o al objec i es, which may be
a ec ed by he implemen a ion o HiAP ini ia i es.
High- anking ci il se an s: Bu eauc a s who may ha e au ho i y o e he
policy p ocess delega ed o hem by poli ical eli es. High- anking ci il
se an s a e a ype o policy eli e, i.e. hey ha e in luence o e he policy
p ocess, and may be pa icula ly engaged in he echnical aspec s o
implemen ing HiAP ini ia i es.
P io expe ience wi h in e sec o al ac ion (ISA): A his o y o wo king
in e sec o ally on sha ed policy objec i es, which may in luence how he
implemen a ion o ela ed ini ia i es, such as HiAP, occu s.
Sec o al ideology: The clus e o ideas, belie s, alues and a i udes ha
cons i u e he no ma i e lens h ough which policy-make s wi hin a gi en
sec o in e p e and ac upon social and poli ical issues such as heal h
equi y, and which may a y gi en sec o al objec i es (e.g. heal hca e,
popula ion heal h, economic g ow h, enginee ing), i.e. a wo ld iew.
Sec o al objec i es: Goals and mo i a ions o policy sec o s, o en deli e ed
h ough a o mal manda e om he execu i e, which may be a ec ed by
a go e nmen ’s implemen a ion o HiAP ini ia i es.
Sec o al powe : The o mal au ho i y alloca ed o policy sec o s in
go e nmen manda es, indica ed in absolu e (e.g. di ec i es, budge size)
and ela i e e ms ac oss sec o s (e.g. ela i e budge size). In e sec o al
coo dina ion o policies in he p ocess o implemen ing HiAP ini ia i es
may be shaped by he powe o he sec o s in ol ed.
Wo k o ce capaci y o ISA: The ex en o expe ise among human
esou ces wi h ools and p ocesses and wo k o ce size dedica ed o
implemen ing HiAP ini ia i es, enabling easibili y (see F eile e al. 2013
o addi ional in o ma ion).
Wo k o ce HiAP awa eness: An unde s anding o he need and easons o
an in e sec o al app oach o add ess heal h equi y, as pa o he p ocess
o agenda se ing and, ul ima ely, buy-in o he implemen a ion o HiAP
ini ia i es (see F eile e al. 2013 o addi ional in o ma ion).
Ex a-go e nmen al sys ems: Sys ems ou side o go e nmen ha can in luence HiAP implemen a ion, including as o ganisa ions and indi iduals
become pa ne ed o he implemen a ion o HiAP; o example, by pa icipa ing in planning o execu ing in e sec o al ac ion o in being he subjec
o some a endan egula o y ac ion. The e a e also likely o be mo e indi ec in luences, such as policy en ep eneu s who ad oca e o lobby o
in luence o e he implemen a ion p ocess, and c oss-na ional policy and agenda-se ing amewo ks. Finally, a he global and local le els, he e a e
esea ch p og ammes and knowledge hubs p oducing in o ma ion o suppo implemen a ion.
Shanka dass e al. Heal h Resea ch Policy and Sys ems (2018) 16:26 Page 5 o 10

e alua ion conduc ed by WHO expe s [39], a e ised
s a egy was adop ed in 1993 o accommoda e a g ea e
ocus on heal h equi y [40]. O e all, he e was a long
his o y o p io expe ience wi h ISA be o e Heal h 2015
was adop ed, which would ha e c ea ed some ins i u-
ional awa eness abou he p oblem o heal h equi y and
he need o ISA o add ess his p oblem.
A he u n o he millennium, as he e m o he Heal h
Fo All s a egy was ending, Heal h 2015 was adop ed as a
long- e m s a egy o add essing heal h equi y using ISA
(HiAP manda e;see[41] o mo e de ails). As pa o he
implemen a ion o he Heal h 2015, Finland’sMinis yo
Social A ai s and Heal h de eloped guidelines o di ec
o he sec o s o conside using Heal h Impac Assess-
men s o con ibu e o he e alua ion o key policy
decisions –a o mo HiAP managemen . This was a
p ocess sugges ed by WHO and he EU (en i onmen al
in luences –sup ana ional poli ical o ganisa ions). No
laws we e in oduced alongside hese guidelines o make
pa icipa ing in Heal h 2015 manda o y, as we e passed in
he case o Quebec’s e ised Public Heal h Bill [41],
ano he example o a HiAP ini ia i e.
Ou case s udy ocuses on a single policy issue ha
a ose du ing he implemen a ion o Heal h 2015 conce n-
ing he go e nmen ’s decision-making abou whe he o
e o m na ional alcohol policy (policy agenda) ollowing
he in oduc ion o Es onia o he EU in 2004 (ex e nal
in luences –sup ana ional poli ical o ganisa ion), in he
con ex o a Heal h Impac Assessmen ha was con-
duc ed on his issue.
Since he 1970s, he cos o alcohol in Finland had
been egula ed by a high ax a e ha discou aged he
consump ion o alcohol on he one hand and p o ided a
con enien sou ce o ax e enue on he o he [42].
F om he poin o iew o main aining high axes, he
Finnish go e nmen conside ed his a angemen o be
iable as long as Sweden and Denma k ac ed as bu e s
be ween Finland and Ge many, wi h he la e being, a
he ime, he nea es EU Membe S a e wi h low alcohol
axes. Howe e , he easibili y o he go e nmen ’s exis -
ing app oach o alcohol policy was unde mined when
he EU (en i onmen al in luences –sup ana ional poli -
ical o ganisa ion) app o ed he membe ship o Es onia,
whose alcohol axes we e as low as hose in Ge many.
On he one hand, economic assessmen s by he Minis y
o Finance p edic ed ha , due o he ee mo emen o
goods ac oss EU coun ies, a conside able inc ease in
Finnish a elle s’impo o alcohol om Es onia would
ake place. They p ojec ed dec easing p o i s o Finnish
b ewe ies and o he businesses ha we e dependen on
alcohol p oduc ion and sales ( ele an o he sec o al
objec i es o he Minis y o Finance). In an a emp o a oid
his scena io, he Minis y o Finance p oposed a educ ion
o alcohol sales axes by one- hi d [43]. Howe e , a Heal h
Impac Assessmen conduc ed by he Minis y o Social
A ai s and Heal h on he p oposal p ojec ed ha lowe
cos s o alcohol would lead o inc eased consump ion and
ela ed nega i e heal h impac s ( ele an o he sec o al
objec i es o he Minis y o Social A ai s and Heal h). The
Heal h Impac Assessmen sugges ed ha a ax educ ion
o 33% would inc ease he numbe o hea y d inke s by
200,000 (4% o he o al popula ion) and inc ease alcohol-
ela ed dea hs by 600 a yea [43]. Finally, poli ical eli es in
he go e nmen decided o implemen he ax educ ion.
Gene a i e mechanisms in Finland: a sys ems iew
Why did economic a gumen s ca y mo e weigh han
public heal h and equi y conside a ions in his case, in
spi e o p io ISA expe ience? A numbe o mechanisms
in ol ing mul iple subsys ems and componen s can help
o explain his ou come. Below, we a gue ha compe ing
sec o al objec i es be ween he Minis y o Finance and
he Minis y o Social A ai s and Heal h, i.e. economic
and heal h objec i es e lec ing dis inc in e es s and
ideas, a ec ed he go e nmen ’s decision-making abou
alcohol policy in an icipa ion o Es onia joining he EU.
In pa icula , c i ical ac o s included he in luence o a
s ong alcohol lobby (en i onmen al in luences –p i a e
sec o lobby o ganisa ion), an ideological commi men o
neolibe alism since he ea ly 1990s (poli ical ideology)
[44] and a concomi an ocus on p omo ing economic
g ow h a he expense o o he aims, including social
equi y (policy agenda) and a non-di ec i e implemen a-
ion s yle o HiAP (HiAP managemen ).
Joining he EU in 1995 led o libe alisa ion o he
Finnish economy and inc eased ade, which augmen ed
he ole o lobbyis s in he poli ical p ocess. By he ime
Es onia’s membe ship was app o ed, a s ong lobby
ad oca ing o he lowe ing o alcohol axes had es ab-
lished i sel , e en amongs he coun y’s poli ical execu-
i e (poli ical agenda)[45], in pa h ough elec ion
campaign con ibu ions paid o by he alcohol and e ail
indus ies (en i onmen al in luences –p i a e sec o
lobby o ganisa ion). Mass media campaigns also shaped
he poli ical agenda by a ousing popula conce n o e
he economic consequences o main aining high alcohol
axes (en i onmen al in luences –media). On he o he
hand, he e was compa a i ely minimal lobbying agains
he p oposal o lowe hem (en i onmen al in luences –
lobby o ganisa ion)[45].
Poli ical eli es wi hin he go e nmen execu i e we e
s ongly ocused on he sec o al objec i es o he
Minis y o Finance, such as secu ing economic g ow h
and es aining in la ion [46]. Ou key in o man s
desc ibed how economic sec o s (such as hose
conce ned wi h inance, ag icul u e and indus y) we e
gene ally less esponsi e o he esul s o he Heal h
Impac Assessmen , pa icula ly because he poli ical
Shanka dass e al. Heal h Resea ch Policy and Sys ems (2018) 16:26 Page 6 o 10
ideology o he uling pa y a ou ed economic g ow h
o e social objec i es such as heal h equi y. The Minis y
o Finance, in pa icula , exhibi ed esis ance o e o s
o ake in o conside a ion he po en ial heal h conse-
quences o hei ax e o m p oposal [46,47].
Ou key in o man in e iews also sugges ha
poli ical eli es in cen al go e nmen did no p o ide
s ong leade ship in he poli ical p ocess (i.e. a guably a
lack o HiAP managemen ) o achie e he sec o al
objec i es o he Minis y, which hinde ed buy-in om
sec o s o Heal h 2015. As Vilen [48] no es, widesp ead
popula suppo o s ong ax policies in he 1970s,
1980s, and s ill in he 1990s had g own weake by he
ime Heal h 2015 was being implemen ed, so i may
ha e been poli ically unpopula o poli ical eli es o
ad oca e o mo e ups eam in e en ions (conce n o
sec o al powe ). Vilen [48] also desc ibes how he Minis e
o Social A ai s and Heal h and his cabine we e occupied
wi h he ongoing heal hca e e o m, lea ing less ime o
p omo ing o he issues (compe ing sec o al objec i es).
Finally, by using ou sys ems amewo k o help o gan-
ise and in e p e ou da a, we migh a gue ha he ins i-
u ional awa eness in he Finnish go e nmen o he
need o ISA o p omo e popula ion heal h and equi y
coupled wi h he Heal h 2015 S a egy we e less pe sua-
si e on poli ical eli es in he Minis y o Finance and
elsewhe e in he execu i e han he need o pu sue he
economic in e es s o he alcohol lobby in Finland. This
asse ion can se e as a ype o wha Me on e e ed o
as “middle ange heo y”([49], p. 39), which can be
explo ed and e ined ia a numbe o c i ical ques ions
abou how and why ce ain subsys ems (and compo-
nen s) enabled economic g ow h objec i es o be p io i-
ised o e popula ion heal h and heal h equi y objec i es
[50]. Fo example, wha ole did he sec o al powe o
he Minis y o Finance and he Minis y o Social A -
ai s and Heal h play in his ou come, pa icula ly in he
in e ac ion wi h he execu i e subsys em (i.e. a cen e-
le wing coali ion uling in he e a o neolibe alism wi h
s ong indus y lobby)? Would we expec a di e en ou -
come wi h di e en poli ical eli es in powe ? Gi en ha
he execu i e subsys em ( ia he ac ions o poli ical
eli es) was mo e powe ul han he in e sec o al subsys-
em ( ia he HiAP manda e o Heal h 2015), would a
s onge manda e ha e led o a di e en ou come (e.g. a
law s a ing ha a chie medical o ice o heal h mus e-
iew Heal h Impac Assessmen s and p o ide o e sigh
o ela ed policy ecommenda ions)?
Discussion
Ou use o sys ems heo y yields se e al bene i s o he
implemen a ion o HiAP app oaches, including (1) an
explici acknowledgemen o he in e ela ionships
be ween go e nmen subsys ems and hei componen s
in ol ed in HiAP implemen a ion, (2) a amewo k o
con ex ualise he complex and eme gen p ocesses o
implemen a ion o help explain how and why sys em
componen s wo k oge he –and unde wha ci cum-
s ances – o enable HiAP o succeed o ail, and (3) con-
side a ion o how he sys ems o ex e nal in luences
impac go e nmen sys ems in HiAP implemen a ion.
We iew his amewo k as a ool o policy-make s
cha ged wi h managing implemen a ion p ocesses, and
o esea che s in e es ed in heo ising abou HiAP
implemen a ion and explaining obse a ions. I will also
help hose in e es ed in o he pa s o he HiAP policy
p ocess (including design, adop ion and e alua ion) o
unde s and he complexi ies o implemen a ion.
O e ime, i obse a ions wi hin and ac oss case
se ings e eal pa e ns in how sys em componen s
in e ac and impac implemen a ion ou comes, gene al
p inciples o his sys em may become appa en . Fo
example, we no ed ha he a gumen s o he p i a e
sec o lobby o ganisa ions in Finland ( o educe alcohol
axes) ul ima ely had a nega i e impac on he imple-
men a ion o Heal h 2015 because he uling pa y had a
poli ical ideology ha a ou ed economic g ow h o e
heal h equi y and, hus, op ed o no heed he indings
o he Heal h Impac Assessmen ha was conduc ed. I
his se o ela ions p oduces a simila ou come in
Finland o e ime, his may cons i u e a a ionale o
in oducing go e nance s uc u es and s a egies o
managing ela ionships wi h p i a e sec o s akeholde s
in he implemen a ion o HiAP. I such ou comes
eme ge ac oss a a ie y o se ings whe e HiAP is being
implemen ed, hen sup ana ional heal h o ganisa ions,
such as WHO, may ake he lead in ecommending such
ac ions globally.
As local sys ems a e be e unde s ood o e ime,
policy-make s can d aw on hei unde s anding o in e -
ela ionships amongs componen s o acili a e wha
No man e e s o as sys ems-based “change s a egies”
([18], p. 870) o heal h p omo ion. Fo example, p io
o adop ing Heal h 2015 in Finland, a g oup o WHO
expe s iden i ied he eliance on al eady o e s e ched
ci il se an s o moni o and e alua e he p og ess o
implemen a ion, in addi ion o hei no mal du ies, as a
weakness o implemen ing he Finnish Heal h Fo All
s a egy. The idea a ose o an Ad iso y Boa d o Public
Heal h o unc ion as a collabo a i e body o in e sec-
o al coope a ion [43], and his Boa d con inued o se e
as a coo dina ing mechanism h ough he implemen a-
ion o Heal h 2015. Using he sys ems amewo k, he
ini ial challenge can be unde s ood as a p oblem o
wo k o ce capaci y o ISA in he in asec o al subsys-
em, and he change s a egy as esponding o ha need
by in oducing a new body o HiAP managemen in he
in e sec o al subsys em.
Shanka dass e al. Heal h Resea ch Policy and Sys ems (2018) 16:26 Page 7 o 10
As one example o how esea che s can u ilise his
amewo k, in HARMONICS, we ha e d awn on i using
a ealis science app oach o s udy he social mechanisms
o HiAP implemen a ion. Realis science d aws on c i ical
ealism, which is an on ology ha posi s he exis ence o a
wo ld ou side he obse e ha emains la gely hidden
om he obse e , like he gea s o a clock. Roy Bashka (a
key p oponen o c i ical ealism) inco po a ed sys ems
hinking in his la e wo k [51], and Minge s ecen ly
discussed se e al concep s ha belong o sys ems heo y
[27], which we ha e ac ualised in HARMONICS. Fo
example, he ‘s uc u e’o a sys em can be hough o as
he sum o ela ions wi hin a sys em, which we ha e
ep esen ed as a se ies o componen s wi hin subsys ems
in Fig. 1.‘Eme gence’deno es p ope ies o a sys em ha
a e no held by any componen o he sys em. This
includes he ou comes o HiAP implemen a ion ha we
ocus on in HARMONICS such as sus ainabili y. Finally,
ealis science gene ally aims o explain phenomena in
ways ha allow o complex gene a i e mechanisms. Fo
example, he explana o y case s udy me hodology de el-
oped o HARMONICS uses “con ex -mechanism-ou -
comes pa e n con igu a ions”([5], p. 464) o ocus ou
wo k on unco e ing hese gene a i e mechanisms in he
cou se o analysis.
O he ealis science me hodologies ha e also been
use ul o enac ing a sys ems heo y app oach in HAR-
MONICS. We ha e d awn on ecen wo k o apply
ealis science o heal h sys em ans o ma ion (e.g. [52,
53]), which ecommends s a ing wi h some “ini ial
p og amme heo y”([53], p. 7) abou how an in e en-
ion wo ks (including concep ual amewo ks and
hypo heses), and hen using his o guide he a icula ion
o gene a i e mechanisms and o e en ually p oduce a
e ined heo y. Ra he han wo king owa d a g and
heo y ha explains all causal ins ances, he end p oduc
he e is wha sociologis s desc ibe as middle ange
heo y, which e lec s he causal mechanisms in speci ic
ci cums ances (i.e. as e lec ed in a pa icula da abase)
[49,50]. Because in o ma ion abou disc e e mechanisms
can be ha d o summa ise in a simple manne –and
causal a ibu ion di icul o pinpoin –when s udying
he implemen a ion o HiAP, his sys ems amewo k has
se ed as a use ul heu is ic o de eloping and es ing
hypo heses ac oss cases in HARMONICS by e ealing
componen s and guiding heo y abou in e - ela ionships.
This sys ems amewo k is no a panacea o unde -
s anding he policy-making p ocess. In pa icula , we
ocus mainly on he policy-making p ocess wi hin
go e nmen a he mac o/s uc u al le el, wi h less a -
en ion o p ocesses a he mic o le el, al hough hese
a e also occu ing wi hin he sys em. While policy-
make s can endea ou o plan ce ain aspec s o
HiAP implemen a ion, some ou comes will ma e ialise
ou side he con ol o indi idual policy-make s and
o he social echnologis s [54]; his is a key quali y o
complex sys ems.
We ha e de eloped his amewo k h ough ou
expe ience analysing a se ies o explana o y case s udies
o HiAP implemen a ion (e.g. [24]), and heo izing on
he opic (e.g. [55,56]). This amewo k will be u he
desc ibed and s eng hened as we and o he s con inue
es ing i s explana o y powe in empi ical s udies o his
opic. Al hough Table 1desc ibes some o he in luences
o ex a-go e nmen al sys ems, i is wo h no ing ha
hese a e likely o be nume ous and a ied ac oss se -
ings, and his aspec clea ly can be u he elabo a ed
on. Fo example, while he e a e heal h esea ch sys ems
ha c ea e, ansla e and dissemina e knowledge ha in-
o ms implemen a ion [57,58], he impac o his know-
ledge may be o limi ed u ili y o policy-make s engaged
in HiAP implemen a ion since scien is s o en ocus on
one aspec o mul i- ace ed poli ical p oblems [59,60].
O he public, p i a e and ‘ hi d sec o ’sys ems (exis ing
“be ween he ma ke and he s a e”[61], p. 5) may indi -
ec ly in luence implemen a ion because hei manda es
and in e es s include public heal h, heal h equi y o so-
cial wel a e. They may also pu sue o he objec i es ha
con lic wi h hese goals, like iscal conse a ism o
p o i .
Conclusions
He ein, we desc ibed a sys ems amewo k o he
implemen a ion o HiAP ha a icula es a se ies o ele-
an subsys ems and componen s, and hen demon-
s a ed he explana o y alue o his amewo k in a case
s udy o he Heal h 2015 S a egy in Finland. Al hough
policy implemen a ion has been desc ibed as a complex
p ocess, his sys ems heo y o e s an o ganised iew o
his p ocess by ocusing on ce ain cha ac e is ics o a
go e nmen and i s ex e nal en i onmen while unco e -
ing unde lying ela ionships [62]. This con ibu ion is
imely as he e has been e y li le applica ion o Sys ems
Theo y o heal h equi y in e en ions, including o ms o
in e sec o al ac ion such as HiAP.
Abb e ia ions
HARMONICS: HiAP Analysis using Realis Me hods On In e na ional Case
S udies; HiAP: Heal h in all Policies
Acknowledgemen s
The au ho s would like o hank Deb Finn o he con ibu ion o he
esea ch.
Funding
This wo k was suppo ed by Canadian Ins i u e o Heal h Resea ch g an
numbe s 111608 and 96566, he On a io Minis y o Heal h and Long-Te m
Ca e and Wil id Lau ie Uni e si y.
A ailabili y o da a and ma e ials
The da ase s gene a ed and/o summa y ables om ou analysis du ing he
cu en s udy a e no publicly a ailable due he sensi i i y o con iden ial
Shanka dass e al. Heal h Resea ch Policy and Sys ems (2018) 16:26 Page 8 o 10
in e iews wi h Finnish go e nmen employees, bu a e a ailable om he
co esponding au ho in a de-iden i ied manne on easonable eques .
Au ho s’con ibu ions
All au ho s con ibu ed o he concep ualisa ion and w i ing o he manusc ip .
E hics app o al and consen o pa icipa e
Resea ch E hics Boa d, S . Michaels Hospi al, #10–162.
Consen o publica ion
No applicable.
Compe ing in e es s
The au ho s decla e ha hey ha e no compe ing in e es s.
Publishe ’sNo e
Sp inge Na u e emains neu al wi h ega d o ju isdic ional claims in
published maps and ins i u ional a ilia ions.
Au ho de ails
1
Cen e o U ban Heal h Solu ions, Li Ka Shing Knowledge Ins i u e, 209
Vic o ia S ee , To on o, ON M5B 1T8, Canada.
2
Dalla Lana School o Public
Heal h, Uni e si y o To on o, 155 College S ee , To on o, ON M5T 3M7,
Canada.
3
Depa men o Heal h Sciences, Wil id Lau ie Uni e si y, 75
Uni e si y A e W, Wa e loo, ON N2L 3C5, Canada.
4
Bloombe g School o
Nu sing, Uni e si y o To on o, 155 College S ee , To on o, ON M5T 3M7,
Canada.
5
Finnish Ins i u e o Occupa ional Heal h, PL 40, 00251 Helsinki,
Finland.
6
Depa men o Medicine and Ins i u e o Heal h Policy,
Managemen and E alua ion, Uni e si y o To on o, 155 College S ee ,
To on o, ON M5T 3M7, Canada.
Recei ed: 22 Ma ch 2017 Accep ed: 8 Feb ua y 2018
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