economic incentives); the normative pillar of norms and values that confer both responsibilities that constrain social behaviour, and rights that enable social action; and the cultural-cognitive pillar of shared routines, conceptions, and frames through which meaning is made [ 4 ]. Although institutions are fairly stable social structures they can and do change over time because there is a two-way process of influence: individual preferences and values are both shaped by, and shape, institutions [ 3 ].
Conceptualizing health 'systems'Five conceptual frameworks are discussed here, allowing examination of different and changing understandings of the nature of a health system, thus complementing Chapter 1. In order of chronological development, these are: Roemer's 1991 outline framework [ 5 ]
A focus on health care or on health?Of these five frameworks, three focus squarely on health care and health services [5][6]8 ]. Only two encompass activities relevant to promoting, restoring, or maintaining health (but see also [ 9 ], discussed in Chapter 10). The Frenk framework [ 7 ], for example, includes other sectors and their production of services with health effects. It also gives the population, through community participation, a role in and influence over health care organizations, as well as recognizing its role in providing people, money, and data for the overall system. The broader focus of the WHO building block (WHO BB) framework [ 1 ] is more hidden. However, it describes the health information system as encompassing the collection and use of information on 'health determinants, health systems performance and health status', and notes that leadership/governance includes concern for the health-promoting actions of other government sectors.
An inventory or relational approach?Both the WHO BB framework [ 1 ] and Roemer [ 5 ] appear to adopt an inventory approach [ 7 ] to understanding a health system: that is, they identify a set of core functions but do not specify the health system actors engaged in these functions nor the relationships among them. Figure 2.1 , thus, gives no sense of the interactions among health system building blocks, nor how they impact on performance outcomes. Similarly, although Figure 2.2 signals interactions