Am J Public Health. 2002 October; 92(10): 1582–1591.
PMCID: PMC3221447
A Public Health Agenda for Traditional, Complementary, and Alternative Medicine
This article has been cited by other articles in PMC.
Abstract
Traditional
medicine (a term used here to denote the indigenous health traditions
of the world) and complementary and alternative medicine (T/CAM) have,
in the past 10 years, claimed an increasing share of the public’s
awareness and the agenda of medical researchers. Studies have documented
that about half the population of many industrialized countries now use
T/CAM, and the proportion is as high as 80% in many developing
countries.
Most research has focused on
clinical and experimental medicine (safety, efficacy, and mechanism of
action) and regulatory issues, to the general neglect of public health
dimensions. Public health research must consider social, cultural,
political, and economic contexts to maximize the contribution of T/CAM
to health care systems globally.
THE GROWTH OF PUBLIC
interest in and use of traditional medicine and complementary and
alternative medicine (T/CAM) has been well documented. Almost half the
population in many industrialized countries now regularly use some form
of T/CAM (United States, 42%1; Australia, 48%2; France, 49%3; Canada, 70%4),
and considerable use exists in many developing countries (China, 40%;
Chile, 71%; Colombia, 40%; up to 80% in African countries5,6).
Popular use of T/CAM has been accompanied by a growth in research and
associated literature, with an increase in an evidence-based approach
over the past decade.7
In developing countries, where T/CAM has long been practiced both
within and outside the dominant health care system, interest has been
building over the past decade for a policy framework for T/CAM within
national health care systems, and some guidelines have been created.8,9
The
term “traditional medicine” is used here to denote the indigenous
health traditions of the world; “complementary and alternative medicine”
primarily refers to methods outside the biomedical mainstream,
particularly in industrialized countries; and “conventional medicine”
refers to “biomedicine” or modern medicine.
While much
of the momentum in the research and policy arenas has been driven by
consumer demand or continued customary and traditional use, research and
policy developments to date have tended to address clinical,
regulatory, and supply-oriented issues, to the general neglect of wider
public health dimensions.
Typically, research has
focused on efficacy, mechanisms of action and safety of complementary
and traditional therapies. Educational and training efforts,
particularly in industrialized countries, have involved medical students
and conventional health care practitioners.10–12
Regulation of practitioners and guidelines for licensing and
establishment of standards of practice and self-regulation have only
recently been considered in industrialized countries.13,14
Only 25 of the 191 World Health Organization (WHO) member states have
national policies on T/CAM. The newest WHO policy on T/CAM focuses
attention on regulation as well as safety and efficacy issues.6
A
concerted effort by public health professionals to develop a
comprehensive view of the field, to generate a targeted public health
research agenda, and to set policy priorities is now needed to address
the public health dimensions of the use of T/CAM. While it is not our
intent to provide such an agenda, which will likely vary from country to
country, we hope that this article may stimulate the development of a
more comprehensive approach by research groups and funders.
WHO TRADITIONAL MEDICINES STRATEGY
The
newly published (May 16, 2002) WHO Traditional Medicines Strategy
2002–2005 focuses on 4 areas that will require action if the potential
role of T/CAM in public health is to be maximized. These areas are
policy; safety, efficacy, and quality; access; and rational use. Within
each of these areas, WHO identifies challenges for action.
National policy and regulation
- Lack of official recognition of T/CAM and T/CAM providers
- Lack of regulatory and legal mechanisms
- T/CAM not integrated into national health care systems
- Equitable distribution of benefits in indigenous TM knowledge and products
- Inadequate allocation of resources for T/CAM development and capacity building
Safety, efficacy, and quality
- Inadequate evidence base for T/CAM therapies and products
- Lack of international and national standards for ensuring safety, efficacy, and quality control
- Lack of adequate regulation of herbal medicines
- Lack of registration of T/CAM providers
- Inadequate support of research
- Lack of research methodology
Access
- Lack of data measuring access levels and affordability
- Lack of official recognition of role of T/CAM providers
- Need to identify safe and effective practices
- Lack of cooperation between T/CAM providers and allopathic practitioners
- Unsustainable use of medicinal plant resources
Rational use
- Lack of training for T/CAM providers
- Lack of T/CAM training for allopathic practitioners
- Lack of communication between T/CAM and allopathic practitioners and between allopathic practitioners and consumers
- Lack of information for the public on rational use of T/CAM.
These
are tasks that have been repeatedly identified by numerous groups. If
WHO can now stimulate action by bringing attention, and perhaps funding,
to some of these goals, that would be a significant step forward.
CONTEXTS FOR CONSIDERATION AND EVALUATION OF T/CAM
The
above-mentioned activities should be considered within social,
cultural, and economic contexts to help shape questions and establish
priorities for action.
Health Service Utilization and Evaluation
As
noted above, the public in many countries is using health care services
that are outside the purview and understanding of the dominant medical
system. Complementary and traditional medical services are often used
alongside (and in addition to) conventional medical treatments. Thus, a
vast informal and until recently silent health care sector exists in all
countries, and no comprehensive picture of this sector exists as yet in
any country.15
Most estimates of extent of traditional health care use have not been
population-based, particularly in African countries, where estimates of
use range from very low to very high.15
Research
questions include the following: What are the trends and demographics
of T/CAM use? What is the quality of services being offered to the
public? What models exist for partnering the best of T/CAM with
conventional medicine to provide effective and affordable health care?
Social and Cultural Dimensions
Social, cultural, and political values, as well as socioeconomic factors, influence T/CAM use in industrialized societies.16–19
Ethnic minorities in industrialized countries often continue to use
their cultures’ traditional medicine alongside, or even in place of,
conventional medicine.20–22
Some cannot afford to pay for conventional biomedical services and find
traditional medicines and practitioners affordable and accessible.
Those who have insurance may have access to hospital procedures covered
by their policies but may not be able to afford the out-of-pocket
expenses for less invasive T/CAM services. In developing countries (and
in ethnic enclaves in industrialized countries), the affordability,
availability, and cultural familiarity of traditional medicine, as well
as family influence, contribute to the continued use of traditional
medical providers and medicines.23 Yet important primary care services may not be available.
Policy
and research questions in this arena include the following: In
industrialized societies, can ethnic preferences for traditional
medicine be built into conventional health service design to create
greater consumer friendliness? What combination of T/CAM and
conventional services will enhance the health of ethnic minorities? In
developing countries, where the number of traditional health
practitioners can be hundreds of times greater than the number of modern
medical practitioners,6
can this vast informal sector be brought into a partnership for
addressing national health care goals in an improved model of health
care? How can attention to cultural aspects of health and health care be
a bridge rather than a barrier to increased health service utilization
and improved levels of health in developing societies?
Economic Factors
In
most countries, the public is paying out of pocket, sometimes on a
large scale, for T/CAM services that are still, for the most part, not
covered by health insurance. In a few countries, such as China, Korea,
and Vietnam, insurance fully covers TM treatment and products.6
In most countries, however, insurance coverage for T/CAM is only
partial (the United Kingdom, Japan, Germany, Australia, the United
States) or nonexistent (e.g., most African countries; see also
“Sustainability and Integration” in this article). In Great Britain
there is a growing trend for the National Health Service to pay for the
services of complementary providers.24
Additionally, as growing T/CAM markets lead to new economic
possibilities, research and business interests may shift from providing
affordable health care to developing products that can be marketed.
Questions
in this area include the following: Is the public getting value for its
money? What modalities are safest and most cost-effective for managing
the conditions that impose the largest burden on national health
budgets? Do T/CAM modalities contribute cost savings by preventing
illness? Why are people paying out of pocket for complementary medical
services when they have free conventional health services available, as
in Great Britain, or when they may have insurance coverage for
conventional approaches, as in the United States? What impact does
insurance coverage for T/CAM have on use? What are sound models of
health financing for CAM and traditional medical services? In the
developing world, how might international funders such as the World
Bank, WHO, the Gates and Rockefeller Foundations, the Global Fund, and
others evaluate and potentially include traditional medicine within the
treatment spectrum for priority diseases in public health programs that
they support?
Priority Disease Management
T/CAM
is being used by the public in the management of chronic conditions
that are costly to society, such as chronic pain and arthritis, and more
life-threatening diseases, such as heart disease, cancer, and
HIV-related illness.25–27
In poorer countries, the search for effective and affordable treatments
for epidemic diseases such as malaria and opportunistic infections
associated with AIDS is driving renewed interest in traditional
medicine, although herbal medicines are not always the first treatment
choice.6
Yet we do not have adequate data on current patterns of use and
effectiveness of the various treatments being used alone and in
combination. Additional information is needed on health concerns of the
elderly, women, and children. And increasingly, patients are expecting
health professionals to guide them, on the basis of either formal
evidence or clinical experience, in making decisions about whether T/CAM
or conventional approaches work better, or whether they might best be
used together.
A POLICY FRAMEWORK
There
are other important issues for consideration in the setting of national
and international public health research priorities. One framework has
been set forth by the Council on Health Research for Development, an
international nongovernmental organization established to “promote,
facilitate, support and evaluate the Essential National Health Research
strategy.” This includes underlying values and operating principles that
are sufficiently general to fit the T/CAM field as much as any other
area of health care.28
While there are other frameworks for policy development, the one
developed by the Council serves as a catalyst to thought and discussion.
EQUITY
In
industrialized societies, use of complementary medicine has been found
to be associated with higher income and higher education.1,16,17
Yet for ethnic minorities in those same societies, traditional medicine
may at times be the first-line treatment for the poor and those who do
not speak the language of the dominant society. Inadequate and expensive
conventional medical services are factors in such reliance on
traditional medicine. “Complementary” medicine in these situations is
not complementary, since basic conventional medical care may not be
accessible to these people; thus there is a danger of facilitating a
“separate but unequal care system.”14
In
industrialized countries, members of the dominant culture who have
lower incomes and educational levels tend not to use complementary
medicine. This may be because they have less disposable income and less
exposure to information about complementary therapies.17
The availability of broader choices in health care services in these
countries is increasingly concentrated among the educated and
well-to-do. Equity issues concern both the availability of conventional
medicine and the affordability of the more researched and increasingly
expensive CAM treatments. An equity perspective in developing-country
health care systems would ensure access to affordable, high-quality
services for those who currently rely mostly on traditional medicine or
who have little or no medical care.
ETHICS
Clinical Research
While there are international guidelines for standards of clinical research,29
research in traditional and complementary therapies may differ from
clinical evaluation of conventional drugs. WHO guidelines for evaluation
of herbal medicines consider that for traditional medicines with an
established history of use, it is ethical to proceed from basic animal
toxicity studies directly to phase 3 clinical trials.30
Ethical dilemmas can present themselves. In studies to evaluate tropical plants used to prevent and treat malaria,31
research ethics may require that standard conventional treatment be
given to all subjects, so the traditional remedy can be evaluated only
in conjunction with conventional treatment. Unless alternative models
can be developed, the full therapeutic potential of traditional medical
treatments that are claimed to be effective may never be known through
clinical research.
Intellectual Property Rights
Exploitation
of traditional medical knowledge for drug development without the
consent of customary knowledge holders is not acceptable under
international law. State parties are required to “respect, preserve and
maintain knowledge, innovations and practices of indigenous and local
communities embodying traditional lifestyles . . . and promote
involvement of the holders of such knowledge and practices encourage the
equitable sharing of the benefits arising from the utilisation of such
knowledge, innovations and practices.” Contracting parties should
“encourage and develop models of co-operation for the development and
use of technologies, including traditional and indigenous technologies.”32
Until
recently, the Convention on Biological Diversity competed for influence
with the more powerful Trade Related Aspects of Intellectual Property
Systems (TRIPS) of the World Trade Organization. TRIPS makes no
reference to the protection of traditional knowledge, nor does it
acknowledge or distinguish between indigenous, community-based knowledge
and that of industry. In early 2002, the World Trade Organization began
a process to harmonize TRIPS and the Convention on Biological Diversity
to ensure adequate protection for indigenous intellectual and cultural
property rights.33
Researchers
evaluating traditional medicines need to recognize that under
international law, the customary owner, and often that owner’s country
of origin, holds rights over the knowledge being evaluated. This has
implications for patenting. If a patent is sought by a nonindigenous
group, prior informed consent and just benefit sharing with customary
owners must be established. The challenge here is how to determine who
represents a community and what represents full consent.
SUSTAINABILITY AND INTEGRATION
A number of factors need to be addressed if new policies and practices are to become entrenched and endure.
Regulation of Practice and Practitioners
To
achieve incorporation of T/CAM into national health care programs and
systems, one must distinguish qualified practitioners and practices.
Some countries have taken steps to achieve this. The House of Lords
Committee on Complementary Medicine in Great Britain recommended that
self-regulation be a cornerstone for the formalization of the
complementary professions.13
In Great Britain, osteopaths and chiropractors have been registered as
official health professionals through an act of Parliament, and the
basis for maintenance of professional standards is self-regulation. The
same principle is being applied to medical herbalists and
acupuncturists, both of which are on track for registration in Great
Britain.
New Zealand has registered more than 600 Maori
traditional healers who provide services within the wider health care
system. While the government reimburses their services under health
insurance, criteria for registration and oversight of professional
practice are the responsibility of Maori traditional health practitioner
associations.34
Asia
has seen the most progress in incorporating traditional health systems
into national health policy. In some Asian countries, such as China,
this has been achieved through national policy.35
In others (e.g., India and South Korea), change has come about as a
result of politicization of the traditional medicine agenda.
In
the United States, chiropractors are licensed in all 50 states, and
acupuncturists are licensed in 41 states. The National Council for
Certification of Acupuncture and Oriental Medicine holds a national exam
for traditional Chinese herbal medicine. The Botanical Medicine Academy
and the American Herbalists Guild are developing a voluntary national
examination for US practitioners of Western herbal medicine.36
The United States recently conferred greater national attention on the
policy arena with the establishment in 2000 of the White House
Commission on Complementary and Alternative Medicine Policy. The
commission’s mandate was to provide “legislative and administrative
recommendations for assuring that public policy maximized the benefits
to Americans of Complementary and Alternative Medicine.”
Financing and Insurance Coverage
In
industrialized countries, insurance coverage for CAM services is
relatively new and incomplete, so out-of-pocket spending is
considerable. Americans have been found to spend more on CAM than on all
hospitalizations.16,37 Australians spend more on CAM than on all prescription drugs.2
Some major American medical insurers confer some benefits for limited
complementary medical services, primarily through employer-sponsored
health plans.38
In 2000, 70% of employee-sponsored programs covered chiropractic, 17%
covered acupuncture, 12% covered massage, and the numbers dwindled from
there for other CAM services.14
The
effect of user fees on health care utilization and health outcomes was a
subject of debate in the 1990s, a debate centered on the ability and
willingness of households to pay out of pocket for health care. Research
indicates that the poor may sacrifice other basic needs to pay for
health care, often with serious consequences.39
When funds are allocated to the traditional medicine sector in
resource-poor countries, resentment can arise in underfunded sections of
the conventional medical sector.
In developing
countries, those who can afford insurance will be beneficiaries of a
more regulated and safe traditional medicine practice, while the poor
may be purchasing unregulated drugs from unlicensed vendors. This leads
to T/CAM utilization by those who can afford to pay for insurance, thus
creating the skewing of services toward the more affluent that is found
with complementary medicine use in industrialized societies. This is in
contrast to the customary role of traditional medicine, that is, the
first and last resort for health care for the poorer members of society.
In
the case of ethnic minorities in industrialized societies, health
insurance coverage can lead to a substantial increase in the use of
traditional medical services. Again, there is the creation of an elite
who can afford traditional medicine because they have insurance
coverage, while the poor are less likely to have access to their
traditional health care services.
In Australia, since
the introduction of a Medicare rebate for acupuncture in 1984, use of
acupuncture by medical practitioners has increased greatly. Claims rose
from 655 000 in the financial year 1984/1985 to 960 000 in 1996/1997,
and Medicare reimbursements to doctors for acupuncture rose from $7.7
million to $17.7 million.40
Evaluating
health insurance records can be an effective way of estimating whether
there is a cost savings from using traditional or complementary health
care. A retrospective study of Quebec health insurance enrollees
compared a group of 1418 Transcendental Meditation (TM) practitioners
with 1418 nonmeditators. The yearly rate of increase in payments in both
groups was not significantly different before the TM group learned
meditation; after learning, the annual change in mean payments was a
decline of 1% to 2% for the TM group and an increase of up to 12% for
nonmeditators. The estimated cost saving was as much as $300 million per
year.41
Cost-benefit
research could assess outcomes when traditional or complementary
approaches are compared with conventional care. This would assist health
authorities in making informed choices about the selection of
treatments and services to be incorporated into integrated health care
programs.
KNOWLEDGE GENERATION
The
initiative taken by the US Congress a decade ago to establish an Office
of Alternative Medicine (now the National Center for Complementary and
Alternative Medicine [NCCAM]) at the National Institutes of Health has
led to a focused program of clinical and basic science research, now
seen internationally as a model for how to proceed in conventional
scientific research in T/CAM. A public health agenda is needed in
addition to the focus on experimental research. Public health
professionals need to define the public health dimensions of traditional
and complementary medicine.
Adequate
funding is of central importance. In the United States, funding was
initially provided by private donors whose contributions resulted in
programs at academic medical centers.42
The advent of NCCAM substantially legitimized CAM research and has been
followed by funding initiatives from national and international
foundations. The biomedical community’s response has escalated research.
This wave has yet to reach public health research. In the absence of a
significant voice from the public health research community, funders
have remained focused on issues of safety, efficacy, and the mechanisms
of action of complementary and traditional medicine. Priority will need
to be assigned to public health if knowledge generation is to keep
abreast of consumer demand for cost-effective services and government
and insurer demands for policy information.
KNOWLEDGE MANAGEMENT AND UTILIZATION
To
ensure sound standards of practice based on recognized levels of
training and the use of T/CAM therapies that are safe and effective,
information and its dissemination are needed across a wide range of
professional and commercial areas. Comprehensive information resources
will be fundamental to the evolution of research and policy activities,
but developing them will be a challenge. Material currently accessible
online is limited in scope, and much of it consists of information
related to commercial products being marketed. Only a small number of
bibliographic databases (e.g., MEDLINE in the United States and the
British Library’s AMED) allow free access to information, albeit from a
limited sample of journals. Most relevant scientific databases are
accessible on a fee basis. Each database is compiled in a unique format
and style. Data structure, indexing methods, and terminology used for
data retrieval also vary widely. Much of the material is not available
in English.43
A
freely available, comprehensive, Web-based resource on complementary
and traditional medicine could provide accurate and authoritative
information on safety and efficacy, legal and regulatory policies,
research resources, education and training programs, trade statistics,
intellectual property guidelines, and other areas. It would also allow
for rapid, global updating of information in a field of growing
significance worldwide. Initiatives exist to make significant
investments of time and money to establish this.43–45
CAPACITY BUILDING
What
constitutes capacity in public health with respect to T/CAM and how
should capacity be strengthened? Strengthening is needed in safety,
efficacy, standardization, current utilization, cost-effectiveness,
customer satisfaction, priority diseases (communicable and
degenerative), disease prevention, and well-being.
Investment
in professionals will result in leaders who will contribute to
implementing public health responses to the growth in complementary and
traditional medicine. Schools of public health can contribute by
offering training for students in areas of T/CAM, encouraging masters
and doctoral research projects and continuing education programs.
Expanded
capacity would include greater understanding of the potential for
benefit, risks, and the costs of these health care approaches. It would
include systems for harnessing potential contributions to meeting major
public health challenges, both in terms of practitioners as a resource
for disseminating health information and in terms of tested modalities
offering potential cost-effective choices.
RESEARCH ENVIRONMENT
Further
development of T/CAM services is predicated on a broad base of quality
research. The NCCAM experience in the United States has shown that when
funds are available and priorities are set, CAM research will grow
exponentially. The need now is to expand beyond basic clinical and
experimental research to a fully articulated program of public health
research.
The international community has called for
evidence of what constitutes best treatments. The core of biomedical
evidence is the randomized controlled clinical trial (RCT). While
providing valuable information, RCTs have limitations that can be
addressed by social science and public health research methodologies.
RCTs are inadequate for measuring infrequent adverse outcomes, such as
infrequent adverse effects of drugs. There are also limitations in
adequately evaluating the long-term consequences of therapy, such as
toxicity from long-term, low-level exposure to medications. Considerable
preliminary work is essential, particularly in areas of traditional
systems of medicine, before one can even design the appropriate RCT.
Ethnographic, epidemiological, observational, survey, and cohort
methodologies can make a contribution, and they fall within the public
health domain.46
Unmet
needs of ethnic minorities, women, children, the poor, the elderly, and
persons with special medical conditions must be considered in the
establishment of a public health research framework and priorities for
action. Also needing attention are diseases for which current
conventional treatment regimens are unsatisfactory, for example, many
cancers and chronic debilitating conditions, for which many people are
turning to complementary medicine.
Prevention of
disease is a cornerstone of many traditional and complementary health
systems, with diet and nutrition as well as traditional forms of
exercise (e.g., yoga, tai chi) and stress reduction being used in
combination to promote balanced health.47
While research into prevention is long-term, methodologically
difficult, and often expensive, the potential befits could be
substantial.41
Belief
and attitude have an influence on treatment outcomes in all therapeutic
settings, in Western and other traditions. A placebo, or “meaning
response,” effect is an important component of many therapies. The
extent to which therapeutic outcomes are based on expectancy is an
important area of study.
WHO’s quality-of-life
assessment includes spiritual dimensions. Here, “spiritual” relates to
the sense of meaning regarding the self or extending beyond the self.
The spiritual dimension of life and well-being is central to many
traditional and complementary health systems. In Great Britain, 12% of
those who use complementary medicine providers use the services of
spiritual healers.17 This trend and its origins and outcomes are important areas of research.
Comparative
evaluations of complementary and conventional medicine approaches to
treating specific health conditions are needed. This may include study
of cross-cultural healing practices to identify common treatments or to
combine evidence for a specific herb or treatment regimen. Comparative
studies could assess feasibility, cost-effectiveness, and environmental
impact as well as specific biomedical outcomes.
Combinations
of therapies should also be studied. For example, modern medicine and
traditional systems (such as Ayurveda in India and traditional Chinese
medicine) are often used simultaneously in the treatment of certain
diseases in Asian countries. Caution should be exercised to identify and
address cultural biases in assumptions, methodologies, and concepts
when conducting comparative research.
A range of
methodologies, then, can and should be employed in evaluating
traditional and complementary therapies. These should be applied in a
manner that is sensitive to the theoretical, clinical, and cultural
assumptions of the modality or system being evaluated in order to ensure
that the research design adequately measures what one thinks is being
studied.
New directions must be forged
by researchers who are able to transcend limitations in research
orthodoxy in the interests of providing sound information to the public
on what constitutes good health care.
CONCLUSION
As
governments begin to address the complexities of establishing
regulatory and policy guidelines for ensuring the safety and quality of
complementary and traditional health services, a broad public health
agenda is called for. This agenda should evolve with an awareness of
social, cultural, and political dimensions and should address values
(equity, ethics), sustainability (regulation, financing, knowledge
generation, knowledge management, capacity building), and the research
environment.
Such a strategy is
required if complementary and traditional medicine is to shift from the
marginal status it holds in most countries to having a significant role
in national health care. Political intent as well as scientific intent
are needed to support such an agenda. Ultimately, nothing would be
considered complementary or alternative, orthodox or conventional.
Rather, all possible contributions to health would be evaluated for
their promise and harnessed for the good of the public’s health.
Left
to Right: Man undergoing cupping, a traditional Chinese remedy; sports
massage; insertion of acupuncture needles into a patient’s back.
Acknowledgments
This
work was funded in part by the NIH National Center for Complementary
and Alternative Medicine (grant P50-AT00090) and by Global Initiative
for Traditional Systems of Health.
Thanks to Christine
Wade, Janet Mindes, and Corrine Axelrod for their helpful comments on
the manuscript and to Eric Shaw for helping with research and with
putting the manuscript together.
This material was
originally presented in part by Dr Bodeker as an invited lecture, titled
“Use of Traditional and Complementary Medicine: Relevance for Public
Health,” at the Rosenthal Center for Complementary and Alternative
Medicine, Columbia University, New York, NY, February 20, 2002.
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