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FP2020’s overarching goal is framed around the new metric of “additional users.” This measure inherently
captures population-level change but has been conflated with other ambiguous metrics, such as “new
users.” Therefore, we propose a standard set of terms to provide more consistent measurement. Although
commonly used service-level metrics cannot be directly compared to the population-level metric of addi-
tional users, we describe 2 modeling approaches that can allow service-level data to inform estimates of
additional users.
contraceptive use with expanded national cover- The estimate of current mCPR (FP2020’s
age, not just attracting clients from other second Core Indicator) is a model-based esti-
providers. mate, informed by nationally representative
Not all current data management systems household surveys, such as the Demographic
enable effective monitoring of family planning and Health Surveys (DHS), Multiple Indicator
program performance. A key dimension to the Cluster Surveys (MICS), and Performance
success of any family planning program that is not Monitoring and Accountability 2020 (PMA2020)
fully captured with service statistics, for example, surveys, as well as service statistics (in select
is the effective, voluntary use of a preferred contra- countries) and historic regional and global pat-
ceptive method by each program beneficiary over terns of change.
time. Reasons for method-specific discontinuation For FP2020, the goal of reaching 120 million
rates are critical to understanding this longitudinal additional users can only be achieved if family
perspective but this information is often not cap- planning programs (1) continue to sustain services
tured with service statistics. Researchers have to more than 270 million women,8 the number al-
instead created models that use available service ready using modern contraceptives in the world’s
statistics to estimate program performance. 69 poorest countries when the FP2020 initiative
Several types of indicators are collected to began in 2012, and (2) further grow the number
measure family planning program performance, of users beyond this base. Thus, priority must
and in particular contraceptive use. Some of these be placed both on reaching non-users and on
indicators, such as “commodities distributed” and ensuring women who are currently using
“first-time users,” are collected through routine contraceptives have continued access to high-
client-level service statistics or client exit inter- quality services to minimize discontinuation due
views, whereas others, such as “users” and “addi- to dissatisfaction.9
tional users,” are estimated in models or collected To date, national and global-level understand-
from population-level surveys. To ensure clarity of ing of progress in family planning has typically
terminology used throughout this article, we sum- been informed by household surveys, including
marize these definitions in the Box.5 DHS, MICS, and PMA2020, as well as other
national and cross-national survey programs
(such as the Contraceptive Prevalence Surveys,
THE AGGREGATE MEASURE OF Reproductive Health Surveys, and World Fertility
“ADDITIONAL USERS” BASED ON Surveys). Such surveys are invaluable in provid-
HOUSEHOLD SURVEYS AND MODEL-BASED ing a cross-sectional insight into contraceptive
ESTIMATES use, typically from questions such as “Are you
currently doing something or using any method
“Additional users” is inherently an aggregate met-
to delay or avoid getting pregnant?” However,
ric indicating how many more modern contracep-
surveys have limited ability to capture the
tive users there are across the 69 poorest countries
dynamic longitudinal nature of contraceptive use,
now compared with the estimated 2012 baseline
including first-time use, discontinuation, switch-
number of modern contraceptive users in the
ing of methods, resumption of use, and so on. An
same countries. Each year, the FP2020 Secretariat
exception is the calendar section of the DHS
publishes its annual progress report showing pro-
questionnaire, which captures a woman’s retro-
gress toward the “120 by 20” goal—FP2020’s first
spective self-reported contraceptive status (and
core indicator.6,7 The additional user results are
method), pregnancies, births, breastfeeding
shown at the country level as well as summed
status, and method terminations every calendar
across all 69 countries. At the country level, the
month for the 5 years prior to interview.
number of additional users is calculated using
Although these data do not suffer from problems
2 variables, the estimated modern contraceptive
of loss to follow-up, the calendar data are
prevalence rate (mCPR) and the estimated num-
vulnerable to selection bias as only women
ber of women of reproductive age (WRA), at
surviving to interview can report, and there are
2 time periods, currently and the 2012 baseline,
likely to also be memory recall issues. Besides
as follows: DHS’s calendar method, there are some recent
Additional users = (WRAYYYY mCPRYYYY) examples of electronic client information sys-
– (WRA2012 mCPR2012) tems10 and a handful of specialist studies11,12
that have captured method switching or discontin-
Where YYYY = the current time period of interest uation, but overall conventional measurement
LINKING INDIVIDUAL CLIENT AND VISIT Service-Level Metrics: What Do They Tell Us?
DATA FROM ROUTINE SERVICE STATISTICS At the individual level, a “first-time user” is a
woman who initiates contraception having had
WITH THE AGGREGATE MEASURE OF
no previous experience with contraceptive use.
“ADDITIONAL USERS” A client can be a first-time user only once during
Performance monitoring of program outputs her lifetime. In contrast, an “adopter” is someone
and trends in family planning services occurs who starts using family planning who was not cur-
below the aggregate national and global levels, rently using modern contraception at the time of
and presents different measurement challenges. her visit, but may have used modern contracep-
Examples include government monitoring of tion in the past. Thus, a woman could be an
provision of family planning services through adopter several times during her life if she stops
the public sector or a private service delivery and starts using contraception. As adopters
organization monitoring provision throughout include both first-time users and lapsed users, in
its delivery network. In either case, program the context of program-level monitoring, the
monitoring generally relies on routine data from number of first-time users will always be lower
an HMIS. These data originate from registers than the number of adopters.
kept at family planning service delivery points, in When assessing a program’s contribution to
which key programmatic elements are recorded increasing contraceptive use nationally, adopters
on a daily basis, such as date of visit, age and is a more useful metric and preferred over first-
gender of the client, type of family planning time users, since it is a more inclusive measure of
service provided, and so on. Yes, information adding women into current contraceptive use.
available from HMIS and other routine systems Ideally family planning providers or organizations
are notoriously compromised by data quality would capture a full suite of indicators including
issues, but they are valuable for indicating basic both adopters and first-time users. In reality, they
details of service delivery. often have to choose a handful of indicators from a
At the same time, programs are increasingly longer list to make routine data collection man-
interested in understanding how program-level ageable for service providers; hence, the need to
outputs contribute to population-level changes in prioritize which indicators to include. It is impor-
contraceptive use in the country. More specifi- tant to note, however, that capturing the number
cally, they want to know whether their services of adopters is not sufficient alone to estimate how
are contributing to an increase in the number of national levels of contraceptive use are changing,
additional users nationally. To answer this ques- as will be discussed below.
tion, one must connect outputs measured at an The terms “new user” and “acceptor” have
individual level (e.g., clients served) to an aggre- been frequently used and misused in multiple
gate change in contraceptive use nationally (e.g., contexts to refer to a first-time user, an adopter,
additional users). As an attempt to bridge this and even an additional user. In recent years,
gap, some programs capture information on recip- “new user” has often been used incorrectly
ients of services. The most commonly collected to refer to measuring contributions toward
client attributes are “adopters” and “first-time FP2020’s goal of 120 million additional users. Not
users.” These metrics have their merits and can only is the “new user” term ambiguous and
inform aspects of increasing access to contracep- confusing—“New” to contraception or “new” to
tion. However, they are not comparable with the provider? “New” as differentiated from the
each other and are not the same as population- 2012 baseline of modern method users?—these
level “additional users.” measures of “new” do not adequately capture im-
To build a bridge between service and portant concepts associated with measuring addi-
population-level measures, we first need to select tional users. We suggest, in the interest of clarity,
the most appropriate service-level metrics that to drop the terms “new user” and “acceptor” from
can help inform a program’s contribution to the family planning metrics language and replace
population-level contraceptive use. We then them with the clearly defined term of first-time
need a way to account for both uptake and user, adopter, or additional user, as appropriate.
Service-Level Versus Population-Level Tools and Models Can Bridge the Gap Between
Measures: Why They Are Not Directly Service and Population Measures
Comparable When available, client-level data can be used to
Maintaining the 2012 baseline number of mod- inform national level changes in mCPR and esti-
ern contraceptive users in the world’s 69 poorest mate contributions by particular organizations to
countries does not mean that the same 270 mil- national-level changes using existing tools and
lion women will continue to use contraception models, namely, FPET and the Impact 2 model.
year after year. Women will move in and out of FPET combines survey data and service
contraceptive use over time, as their needs and statistics to inform trends in mCPR growth:
situations change. There are many reasons a Track20’s FPET,15 adapted from a model used by
woman might discontinue use of contraception, the United Nations Population Division,16 gener-
such as ageing out of her reproductive years, ates statistical estimates of mCPR that are informed
mortality, method-related reasons when still in by survey data as well as regional and global pat-
need (including health concerns or side effects, terns of change. FPET has been modified to allow
partner disapproval, cost, or access challenges), service statistics (either client visits by method or
method failure, or no longer needing contra- commodities distributed to clients by method)
ception due to not being sexually active, wanting from government HMISs to inform the trajectory
to get pregnant, partner separation/dissolution, of mCPR growth after the latest survey. These serv-
or menopause.13,14 Population-level estimates of ice statistics are converted into an Estimated
contraceptive use at different points in time Modern Use (EMU). This value is not directly com-
capture the fact that there is both uptake and parable with the mCPR (due to limitations and
discontinuation of contraception. biases within routine data); however, the shape of
However, tracking indicators that are cap- the trend is used to inform the progress of mCPR
tured at the service level (e.g., number of adopt- growth. For example, in Figure 2 service statistics
ers) focuses on one side of the equation (gains) are seen to be trending well with surveys for a
without measuring the other side (losses), and number of years and can now be used to inform
so does not allow us to see the full dynamic of annual progress after the 2013–2014 DHS survey.
continuation, discontinuation, and net change. This allows service statistics to inform projections
One has to account for levels of continuation of mCPR (and therefore of additional users) indi-
and discontinuation to know how many of the rectly, circumventing the issues discussed above
adopters are “replacing” women who moved out that do not allow HMIS data to be directly extrapo-
lated to estimates of national-level mCPR changes.
of current use and how many are “adding” to
Impact 2 model uses service statistics
total current use. Without seeing the full equa-
and client-use profile data to estimate con-
tion, it is not possible to know the extent to
tributions to additional users: The Impact
which the number of adopters are offsetting
2 model, developed by Marie Stopes Inter-
declines due to women dropping out from the
national, allows organizations to estimate their
baseline (Figure 1). In fact, in an extreme case it
contribution to national-level additional users,
is possible that despite reaching a large number
of adopters, total contraceptive use nationally based on program-level and other input data.17,18
could stay the same, or even decline. Therefore, First, the number of services provided is converted
program-level data that capture information into the number of estimated users in a given
about individual clients served or client visits are country (accounting for long-acting and perma-
not a direct measure of changes in population- nent method continuation, mortality, and short-
level contraceptive use. Further complicating acting methods needed for a year of coverage).
this issue is that most HMISs are visit-based Next, client-use profile data (the proportion that
rather than client-based. Since some methods are adopters, provider-continuers, and provider-
require clients to make multiple visits over changers; see the Box) are used to allocate users to
1 year of use (e.g., injections) while other meth- 1 of 3 categories: (1) any growth in users that came
ods require only 1 visit over several years (e.g., from provider-changers are discounted (“substitu-
implants), visit numbers must be adjusted to the tion effect”);19 (2) the previous year’s baseline
approximate number of “users.” In some instan- must be maintained with provider-continuers and
ces, data that refer to individual visits are labeled adopters; and (3) only the remaining adopters are
and interpreted as individual users or clients, cre- allowed to contribute to further growth. This
ating further confusion. approach uses the client-use profile information
FIGURE 1. Contribution of Adopters to Additional Users Depending on High, Medium, and Low Continuation Scenarios
Addional
Users served in
users
Addional
users
year 2: adopters
Users served in
No addional
Baseline users (mCPR x WRA)
year 2: adopters
Users served in
Connuaon*
Connuaon*
Connu-
aon*
Year 1 Year 2 Year 1 Year 2 Year 1 Year 2
*In this graphic, connuaon includes both LAPM users sll protected by a method received in a previous year and users who come back for resupply of
their method. A poron of this connuaon would be picked up in the year 2 service stascs as client revisits or services/commodies provided to
clients, depending on levels of LAPM use in the country.
Abbreviations: LAPM, long-acting and permanent methods; mCPR, modern contraceptive prevalence rate; WRA, women of reproductive age.
to model how the organizations’ increases in users track their contributions to FP2020, so that across
are likely changing national contraceptive use lev- the sector we are all aiming for the same goal and
els. Rather than directly counting increases in measuring the same concept. Doing so will
users or relying wholly on program-level indica- strengthen the field’s ability to respond to impor-
tors such as first-time users or adopters, the model tant measurement challenges as we transition
accounts for the full dynamics of continuation, dis- from the FP2020 goals to those of universal access
continuation, and substitution between providers to reproductive health and the 2030 Sustainable
in order to estimate contribution to population- Development Goals that follow.
There is much focus on the goal of ensuring
level change (Figure 3). This approach is compara-
that an additional 120 million women use contra-
ble with FP2020’s concept of additional users.
ception by 2020. What has been less visible from
For more information about FPET and the
this goal is the 270 million women in the world’s
Impact 2 model, see the supplement.
poorest 69 countries who were estimated to be al-
ready using contraception in 2012.8 This number
of users will need to be maintained before any pro-
FINAL REFLECTIONS gress can be made toward reaching the additional
We call on government ministries, service pro- 120 million women. Maintaining this base takes
viders, and donors to align how they define and work; those who rely on short-acting methods
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Peer Reviewed
Cite this article as: Dasgupta A, Weinberger M, Bellows B, Brown W. “New users” are confusing our counting: reaching consensus on how to measure
“additional users” of family planning. Glob Health Sci Pract. 2017;5(1):6-14. https://doi.org/10.9745/GHSP-D-16-00328
© Dasgupta et al. This is an open-access article distributed under the terms of the Creative Commons Attribution License, which permits unrestricted use,
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00328