Overcoming the barriers to chronic disease management in rural areas
The Royal Flying Doctor Service (RFDS) has been providing essential medical services to rural and remote Australia since its inception in 1927. The service, founded by Reverend John Flynn, started as a single base at Cloncurry in Queensland1 and now operates out of 21 bases, providing both primary care clinics and emergency retrieval services. RFDS has been servicing clinics from its Broken Hill base since the 1940s; by 1970, there were three full-time doctors conducting the clinics and running the on-call service via the radio network. In 2016, Broken Hill doctors treated patients in 17 different clinic locations each month. On most weekdays, there are general practitioners at three clinic sites, along with dentists, nurses and mental health practitioners.
RFDS is well recognised within Australia and internationally as the only provider of emergency care to large swathes of the outback. Television shows, such as The Flying Doctors and Outback ER, make acute care and cutting-edge medicine familiar to the public. What is less well known, however, is the organisation’s extensive involvement in delivering primary care services to people living in remote locations.
Chronic disease management (CDM) is a key component of the primary care services offered, and the appointment of a practice nurse in 2011 was the first step taken to focus on CDM. The nurse’s initial task was to create and manage the chronic disease register. This formalised the disease database and enabled the setting up of recalls to ensure that patients received regular follow-ups, and it also required doctors to comply with the full functionality of the MedicalDirector system. In addition, the opening of the Clive Bishop Medical Centre (CBMC) at the airport base, in August 2014, allows patients from remote locations to see an RFDS doctor when they are in town in between remote clinic days. Thus, in recent years, the RFDS has redefined its role from bush clinics and emergency evacuations to include a more comprehensive primary care approach in an effort to improve chronic disease outcomes.2 However, due to a number of factors, RFDS is still limited in its ability to deliver high quality primary care.
This model of care in remote New South Wales requires significant investment in medical staff. In an area of 640 000 km2 and with about 6000 patients who live outside Broken Hill,3 eight whole-time-equivalent (WTE) GPs are needed to provide appropriate primary care and emergency services — an increase from four WTEs in 2000. Staff fatigue management and CDM considerations have driven the increase in staff numbers. Clinical, pilot and engineering staff salaries, along with aviation fuel, are all required to enable aircraft-serviced clinics and incur a high cost per patient.
In a metropolitan setting, a patient may need an emergency ambulance ride to hospital at a cost of $364 plus $3.29 per km travelled.4 However, in remote locations an $8 million dollar aircraft will need to be sent out at a cost of about $3000 per hour flown. Although the secondary care costs may be expected to be comparable, the approximate tenfold transport cost impacts significantly on health budgets, and demands optimised local CDM and patient concordance.5,6
Western countries have resourced primary care significantly in the past decade, with GPs incentivised to improve CDM. For example, the United Kingdom Qualities and Outcomes Framework rewards GP practices for the overall control of diabetes, chronic obstructive pulmonary disease and cardiovascular disease.7 In Australia, GP management plans (GPMPs) can be charged at a significant premium ($144.25) compared with a standard long Medicare consultation ($71.70).When done well, this should have the effect of more reliable monitoring and control of chronic conditions.8
The Commonwealth contract for the RFDS South Eastern Section, however, does not place a premium on these services. Standard RFDS consultations outside Broken Hill are funded based on historical data; CBMC consultations are Medicare bulk billed under a separate arrangement. When GPMPs are used in remote settings, they do not enable patients to access allied health services — such as diabetes educators, podiatry or physiotherapy — under the Medicare-funded scheme. Patients must either finance it themselves, or book an appointment in a Medicare billed location to access Team Care Arrangements funding.
By involving its in-house multidisciplinary team (funded by a variety of income streams), including practice nurses, women’s and children’s nurses, mental health practitioners and substance misuse workers, RFDS has sought to develop services in line with current best practice. Additional integrated team-based care with medical (generalist and specialist), nursing and allied health staff is known to be associated with improved health outcomes in patients with chronic illnesses.9 Rural and remote primary care centres, such as clinics in far west NSW, are less likely to have a team approach because of limited access to allied health workers.9,10
Recruitment and retention of doctors
RFDS doctors at Broken Hill are required to have a fellowship of the Royal Australian College of General Practitioners or a fellowship of the Australian College of Rural and Remote Medicine. Attainment of these qualifications ensures the standard of knowledge and training of the GPs responsible for treating patients in remote settings. However, the reality is that a full-time doctor may only conduct 2–3 clinics per week (spending the rest of their time on call). With travel time to clinics of up to 2 hours each way, and the attendance varying from 8 to 16 patients per day, clinical skills are used less often and confidence may diminish. Some doctors find this frustrating; others are happy to have time out of private general practice.
The maintenance of clinical skills in emergency care is more challenging. Practitioners need to complete a regular cycle of courses — including Advanced Paediatric Life Support, Advanced Life Support in Obstetrics, Early Management of Severe Trauma and airway skills updates — but there may be months between course completion and the need to use the skills. The gap between competence and confidence may be too much for some doctors to bear, and for those who prefer the emergency to the routine, there is not enough excitement.
Therefore, there are two competing challenges to address: where to find GPs who are experienced enough in their field to be able to manage well the uncertainty in remote places — whether face to face or over the phone — and enough emergency cases to keep this self-selecting group interested. Then of course, there is the remoteness of the place; 1200 km from Sydney and 500 km from Adelaide is too much for most Australian GPs. At present, the full-time practitioners are UK or Irish graduates, and the longest serving of them has been employed for 3 years.
Continuity of care
If a high staff turnover is not controlled, continuity of care in each clinic site will be adversely affected. Even when fully staffed, manning 17 clinic sites and rostering night shifts means that doctors have to be rotated. However, it has been shown that both patients and doctors prefer to know each other as part of an effective therapeutic relationship.11,12 This is an important factor in the effectiveness of CDM and patient engagement.
In addition to the RFDS doctors, health services in Wilcannia, Ivanhoe and Menindee are simultaneously provided by GPs from Maari Ma Health, which is the Indigenous community controlled health organisation. Five Local Health District (LHD) facilities, which include these three, also provide nursing staff at these sites. With the rotating system of both RFDS and Maari Ma Health rosters, along with significant use of agency nursing in remote sites, it is easy to recognise the fragmentation of what should ideally be integrated care. The responsibility for CDM of certain groups falls between the gaps sometimes, and it is not always clear who should be keeping track of follow-up and recall systems. There is, therefore, room for further system development and collaboration here.
Medical records
GP and hospital records are now multi-user friendly and most sites enable multidisciplinary teams to make entries within the same system. However, Maari Ma Health has a separate MedicalDirector system from RFDS, and LHD has recently upgraded to NSW Health’s latest hospital electronic medical record system. Thus, the usual norms of primary care, in which a GP is confident that the electronic record is complete, have not been possible to achieve in recent years. RFDS doctors are fully oriented to the need of keeping updated records for emergency and primary care consults, so that colleagues may be apprised of their decision making.
Social considerations
In remote NSW, there are many circumstances that may impact the clinical follow-up of medical conditions. It is widely believed that logistical, economic and cultural factors affect the low attendance rates for CDM in remote settings.13,14 The reasons for low RFDS clinic attendance rates include socio-economic conditions, the lower likelihood that males in rural communities will use preventive health services than urban males, and a higher proportion of Indigenous people.14 Logistical dimensions of proximity, affordability, accommodation, timeliness and psychosocial attitudes and beliefs are well known to hinder continued primary care in remote regions.13–15 Identifying infrequent users of primary health care who have chronic disease, with consideration of culturally appropriate preventive care, will assist in targeting those patients who require medical services.
There are still many barriers to the high quality management of chronic conditions. Efforts to improve this situation should focus on enhancing continuity of care, follow-up systems and planning of a team care approach. The increased use of telehealth technologies will be an important part of remote consultations, and current initiatives to improve CDM are of the utmost importance.