The research team conducted twenty-seven interviews in five hospitals in the West Bank and the Gaza strip between February-March 2019. We interviewed seven OB/GYNs and six midwives from three different hospitals in the West Bank. In addition, we interviewed twelve OB/GYNs, one nurse, and one midwife from two hospitals in the Gaza Strip.
Palestinian public hospitals' labor wards work follows an unified Palestinian Obstetrics Guideline. All the health care professionals' interviewed found it beneficial for clarity and consistency in their work. Unfortunately, it was not entirely followed by all staff. From the interviews, we were able to identify three main themes related to the implementation of the national guidelines that would be considered health system barriers associated with the variation of C-section rates in public hospitals. These are human resources, hospital factors, leadership, and decision-making in public hospitals regarding C-section deliveries.
Human Resources
The shortage of staff and work overload were critical factors in performing a C-section instead of a vaginal delivery. Staff shortage was seen as a barrier to vaginal delivery in both low and high C-section rate hospitals. In addition, the lack of OB/GYNs does not allow for a second opinion or provide the right scientific discussion environment to reach the right decision. For example, three OB/GYNs are not enough to manage two shifts seven days per week.
"In this department, we have only three specialists." OB/GYN
"We are so tired(laughing)when 20–25 women come in together, and we are only five midwives!" Midwife
Training and coaching are two critical supports for staff as they learn to follow the guidelines. The medical teams mentioned several barriers to why the protocol is not thoroughly followed. The Ministry of Health's training initially provided targeted the head specialist of the department and the head midwife. The Ministry aimed to create trainers within each hospital that would then go back and train their staff. Each health care provider was given a copy of the guidelines. However, the staff working in the ward is high, and it wasn't easy to provide similar training to their other team members. As a result, the training was during brief periods, sporadic, and not comprehensive.
"The protocol was delivered to every OB/GYN and midwife." OB/GYN
"Yes, it's available as hard and soft copy." OB/GYN
"There is no time to refer to the protocol because of the workload." Midwife
"I don't know why we didn't receive training, probably because of time limits; we barely can complete our tasks during our shifts." Midwife
Head midwives and OB/GYNs trained their staff during the new protocol implementation, but new staff and residents did not receive formal training upon employment. They usually refer to the books they used during their university training. There was an assumption that the university's protocol is taught, and the staff and residents will learn about it during their studies. It was distinct that the team needed and desired to receive training, but time was limited, and the way they received training was not sufficient. Due to these barriers, they found the implementation of the protocol difficult.
"No, we did not receive training on the protocol (on employment), but sometimes we try to read certain topics." Midwife
Although most of the staff interviewed use the protocol, they could not see the difference between the older and newer versions, finding it unnecessary to update their information. They also indicated that some points are vague or unclear. Another barrier that came out was detachment or exclusion from the preparation process of the protocol. It seems to be a competition between the OB/GYNs, and people involved in the preparation process. The OB/GYNs used the word "they" to refer to the committee members involved in protocol development to underestimate their experience and knowledge.
"They wrote the protocol." OB/GYN
"There is not a noticeable difference between the old and new version. There are a few changes. I didn't receive training on the new protocols. Anyways, the old version I was still studying when it came out and read it myself." OB/GYN
"A protocol was drawn up in the Palestinian Ministry of Health about ten years ago; this protocol is not complete because it is not this simple in many subjects. This protocol does not cover it." OB/GYN
Those who found points vague or did not receive proper training preferred to use international sources that are updated continuously. They refer to evidence-based papers and universal guidelines such as the Green Top, issued by the Royal College of Obstetricians and Gynecologists(14). In contrast, others refer to medical books, which they used to obtain their degrees.
Hospital Factors
One of the most significant health system barriers to decision-making related to delivery was hospital factors. Poor coordination between primary and secondary care within the Ministry of Health facilities poses a big challenge for the OB/GYNs and midwives. In addition, doctors have to deal with women without having their medical history or information about their antenatal period poses a significant challenge on the medical team.
"The woman comes to us with a women's health booklet from the primary health care (as her only form of patient history). Each line has a different shape and is not clear. I cannot care for her or evaluate her using this booklet. These problems are due to the lack of connection between the primary health care system and government hospitals." Midwife
Also, another factor was the influence of private hospitals on public hospitals. The most common reason described by the health professionals for high C-section rates in public hospitals is that women have had a previous C-section, usually in a private hospital. There is a more significant financial benefit for private hospitals when performing a C-section than a vaginal delivery, so it is felt private hospitals encourage C-section deliveries even when not necessary. Maternal requests for your first C-section are not allowed in public hospitals. Private hospitals promote a C-section delivery with success. When wanting to deliver her second child, the same woman will go to a public hospital for a C-section to save money. The protocol allows for flexibility in performing a C-section per doctor discretion. A higher C-section rate is typical in areas with more private hospitals reported by the Ministry of Health annual report and lower in regions lacking private hospitals. This applies to both the West Bank and the Gaza strip.
"Private hospitals increase the C-section rates for us. They perform a cesarean section in the first pregnancy, so most of the next births will be a cesarean, which they come to public hospitals because of the cost." OB/GYN
Some think the protocol was prepared to be used in ideal conditions, not in Palestinian hospitals. The working environment regarding caseload, staff, beds, and lack of equipment and tools prevent the protocol's full compliance.
"They give us the protocol, but there is no equipment, no tools, no place or environment to apply the protocol." OB/GYN
"We are trying to make the protocol appropriate for our work, but it needs a quieter environment." Midwife
Some hospitals have their own policies that do not adhere to the protocol or allow space for OB/GYN interpretation to accommodate these challenges. For example, the protocol states that a previous C-section is not an indication for C-section. Still, from the interviews in high C-section rate hospitals, OB/GYNs considered it an indication. On the other hand, in the low C-section rate hospitals, they follow the protocol and give women who have had a previous C-section a chance for vaginal delivery before performing a C-section.
"If everything is normal and the baby is in a cephalic position, we give her a trial period for a vaginal delivery." Midwife
"In the past, we tried to give them a chance for vaginal delivery (previous C-section), but now, no! We mostly go for a cesarean section." OB/GYN
One OB/GYN had described the protocol as similar to a traffic light: green- clear statement to go for C-section delivery; red- clear statement not to go for C-section delivery; orange- this depends on OB/GYN's experience, consultation, and other sources utilized. Variation in C-section rates arises from the imbalance between decisions based on experiences only, based on the protocol only, and based on both.
Leadership
Leadership is critical in decision-making related to the mode of delivery. Some hospitals reported classic, hierarchical power structures. The head OB/GYN holds the highest power, then the OB/GYNs, residents, head midwives, midwives, and the nurses if available in departments, such as in Gaza. With this structure, an OB/GYN makes the decision, and in some hospitals, one OB/GYN decides without having a second opinion. This was seen in high C-section rate hospitals. Midwives that spent most of the time with the patients were not consulted in the decision-making process.
"One OB/GYN can decide to do a cesarean section." Midwife
"It is clear; one OB/GYN can decide to do a cesarean section. This depends on the indications, but the OB/GYN can make the decision." OB/GYN
"We cannot influence the OB/GYN's decisions." Midwife
In low C-section rate hospitals, collective decision-making involving the residents and the midwives and getting second opinions differed from high C-section rate hospitals. If a resident presented an argument for or against C-section, their opinion was valued and taken into consideration. Midwives can influence OB/GYN decisions.
"There are always discussions between the OB/GYN and the resident in the decision to go for a C-section." Midwife
"In other settings, midwives are not able to influence the OB/GYNs, but here roles are distributed between the team as well as mutual respect." Midwife
"The decisions are shared by the OB/GYN, senior OB/GYN, and midwives responsible for following up with women." OB/GYN
In addition to the guidelines and protocols, OB/GYN's scientific qualifications and experience affected the decision-making process. For example, it was clear that the mentor, hospital, or university where the OB/GYN got their qualifications significantly influenced how decisions were made. This was common among all interviewed OB/GYNs.
"Decisions sometimes have to be made based on qualifications and experience when having to act fast." OB/GYN
An interesting observation was regarding the gender of the OB/GYN. Low C-section rate hospitals have more female OB/GYNs. Whether female OB/GYNs are more patient or sympathize with the women is unclear, but it is an observation.
"We have female OB/GYNs; they have more patience with the women." Midwife
Hospital Records
The indications for C-sections as recorded in the hospital records are presented in Table 1. The most common C-section indication in high-rate hospitals is women who have had a previous one C-section or previous two or more C-sections, followed by a breech presentation and fetal distress. In low-rate hospitals, the most common indications are women who have had previous two or more C-sections, a previous one C-section, followed by a breech presentation. Results can be found in Table 1.
Table 1
Indication of Caesarean Section according to the Ministry of Health Protocol
| High C-section Hospital 1 | High C-Section Hospital 2 | High C-Section Hospital 3 | Low C-section Hospital 1 | Low C-section Hospital 2 |
1-Indication of C-section in the protocol (clear) | | | | | |
Previous C-section2+ | 27.20% | 40.30% | 32.90% | 25.00% | 28.70% |
Breech | 9.50% | 9.70% | 19.40% | 16.70% | 9.50% |
Fetal distress | 1.80% | 3.20% | 1.80% | 17.90% | 11.00% |
2-Indication of C-section in the protocol (not clear) | | | | | |
Previous 1 C-section | 39.1% | 29.00% | 22.40% | 11.90% | 17.0% |
Placenta Previa | 5.30% | 0.00% | 0.30% | 3.60% | 1.00% |
Failure of Induction/ Failed Progress | 3.60% | 6.50% | 5.40% | 3.60% | 8.40% |
In vitro Fertilization | 3.00% | 1.60% | 5.00% | 1.20% | 6.00% |
3-Indication of C-section (No mention in the protocol) | | | | | |
Twins -Triplet | 2.40% | 3.20% | 2.00% | 10.70% | 6.10% |
4- Other indications: | 8.40% | 6.40% | 9.80% | 10.80% | 8.81% |
Total | 100% | 100% | 100% | 100% | 100% |
Comparing the high-rate and low-rate hospitals, we noticed that the breech presentation and previous two or more C-section rates matched and followed the protocol to deal with these medical indications. Table 1 separates the indications for C-sections into three different types: those that are clear in the protocol, not clear, and not mentioned in the protocol.
The following terms in vitro fertilization, old primigravida, uncooperative patient, high blood pressure, uncontrolled diabetes mellitus, big baby, and fibroids are all non-medical indications for C-section mentioned in the interviews, and some were found in doctor notes. These results are found in Table 2.
Table 2
Other Indications for Caesarean Sections in Hospitals
Other Indications | High C-section Hospital 1 | High C-section Hospital 2 | Low C-section Hospital 1 | Low C-section Hospital 2 | Low C-section Hospital 3 |
Big Baby | - | - | - | 2.40% | - |
Fibroids | 1.20% | 0.00% | - | 0.00% | - |
Thick Meconium | 0.00% | 1.60% | - | 0.00% | - |
High Blood Pressure | 0.60% | 0.00% | 2.00% | 0.00% | 1.00% |
Old Primi | 0.60% | 0.00% | - | 1.20% | - |
Uncontrolled Diabetes Mellitus | 0.00% | 0.00% | - | 0.00% | - |
Uncooperative Patient | 0.60% | 0.00% | 0.90% | 2.40% | 3.40% |
After the interviews, two workshops were conducted to discuss the study findings with the medical teams working in the study's hospitals. Obstetricians, midwives, and the women's health department director, hospital administration, and OB/GYNs involved in the protocol development attended the workshops. There was an agreement on the main finding regarding the need to continue staff training and find the best modalities while addressing the workload and infrastructure limitations. There were debates and long discussions regarding updating the protocol and having some statements that are not specific, which give the space and flexibility for the medical team to make a delivery, a decision based on their experience and consultations. All participants appreciated the importance of having a proper referral system between primary and secondary care. Most of the time, hospitals receive women with no information about their antenatal care and conditions. All also agreed on the private sector's influence in encouraging C-section deliveries and that there should be clear regulations with the private sector.