Is it possible for drug shops to abide by the formal rules? The structural determinants of community medicine sales in Uganda.

The medicines retail sector is an essential element of many health systems in Africa and Asia, but it is also well known for poor practice. In the literature, it is recognised that improvements in the sector can only be made if more effective forms of governance and regulation can be identified. Recent debate suggests that interventions responsive to structural constraints that shape and underpin poor practice is a useful way forward. This paper presents data from a mixed-methods study conducted to explore regulation and the professional, economic and social constraints that shape rule breaking among drug shops in one district in Uganda. Our findings show that regulatory systems are undermined by frequent informal payments, and that although drug shops are often run by qualified staff, many are unlicensed and sell medicines beyond their legal permits. Most shops have either a small profit or a loss and rely on family and friends for additional resources as they compete in a highly saturated market. We argue that in the current context, drug shop vendors are survivalist entrepreneurs operating in a market in which it is extremely difficult to abide by policy, remain profitable and provide a service to the community. Structural changes in the medicines market, including removing unqualified sellers and making adjustments to policy are likely prerequisite if drug shops are to become places where individuals can earn a living, abide by the rules and facilitate access to medicines for people living in some of the world's poorest countries.

Life in the buffer zone: Social relations and surplus health workers in Uganda's medicines retail sector.

In many countries, when health systems are examined from the bottom up medicine sellers emerge as critical actors providing care and access to commodities. Despite this, these actors are for the most part excluded from health systems and policy research. In this paper, we ask 'what happens to the conceptualisations of a health system when medicine sellers and their practices are foregrounded in research?' We respond by arguing that these sellers sit uncomfortably in the mechanical logic in which health systems are imagined as bounded institutions, tightly integrated and made up of intertwined and interconnected spaces, through which policies, ideas, capital and commodities flow. They challenge the functionalist holism that runs through the complex adaptive systems (CAS) approach. We propose that health systems are better understood as social fields in which unequally positioned social agents (the health worker, managers, patients, carers, citizens, politicians) compete and cooperate over the same limited resources. We draw on ethnographic research from Uganda (2018-2019) to analyse the responses of different actors to a new policy that sought to rationalise the medicines retail sector and exclude drug shops from urban centres. We examine the emergence of new lobby groups who contested the policy and secured the rights of 'drug shop vendors' to trade on the basis that these shops are increasingly populated by trained nurses and clinical officers, who are surplus to the capacity of the formal health system and so look to markets to make a living. The paper adds to the growing anthropological literature on health systems that allows for a focus on social change and a form of holism that enables phenomena to be connected to diverse elements of the context in which they emerge.