Financing fragility and pandemic preparedness in Central Asia: a policy review of aid volatility, donor dynamics, and health system resilience

초록

Background: The COVID-19 pandemic exposed the structural fragility of health systems built on volatile external financing. Central Asia-Kazakhstan, Kyrgyzstan, Tajikistan, Turkmenistan, and Uzbekistan-receives health financing from three divergent donor streams: OECD bilateral and multilateral channels, Chinese Belt and Road Initiative mechanisms, and Eurasian Economic Union frameworks. The 2025 suspension of USAID operations, which eliminated 69-78% of program funding in Kyrgyzstan and Tajikistan, transformed chronic financing instability into an acute system-level shock. The relationship between external health financing volatility and pandemic preparedness in Central Asia has not previously been systematically analyzed. Methods: This policy and practice review draws on three publicly available datasets: OECD Creditor Reporting System health-sector official development assistance (ODA) (sector 120, all donors, constant 2022 USD, 2010-2023); WHO IHR State Party Self-Assessment Annual Reporting composite scores (2018-2023); and WHO Global Health Expenditure Database Figures (2018-2023). Aid volatility was operationalized as the coefficient of variation of annual health-sector disbursements. Results: Health sector (ODA) is structurally volatile across all five countries, with coefficient of variation values ranging from 21.3% (Kyrgyzstan) to 53.5% (Uzbekistan). The regional aggregate surged from a pre-COVID-19 mean of USD 160.2 million to USD 307.1 million in 2021, then contracted to USD 227.5 million by 2023. A systematic disconnect between financing volume and preparedness outcomes is evident: Kazakhstan sustained the region's highest World Health Organization State Party Self-Assessment Annual Reporting (WHO SPAR) scores despite the lowest health aid in absolute terms, while Tajikistan's current health expenditure of 7.0-8.9% of GDP did not prevent SPAR scores from remaining below the 2024 global average of 64. Kazakhstan's SPAR score fell from 88 in 2021 to 67 in 2023, coinciding with post-COVID-19 aid contraction-a pattern consistent with financing instability rather than capacity management failure. Conclusion: Aid volatility, not volume alone, undermines pandemic preparedness in Central Asia. Five policy recommendations are advanced: multi-year pooled financing windows under the World Bank Pandemic Fund; redirecting Chinese Belt and Road Initiative health financing through multilateral channels; expanding the Eurasian Economic Union health security mandate with a dedicated preparedness mechanism; increasing domestic health budgets with ring-fenced IHR capacity lines; and integrating an Aid Volatility Index into the WHO IHR Monitoring and Evaluation Framework. Financing predictability is the primary structural imperative for sustaining preparedness in the post-pandemic era.

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