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New Zealand health professionals do not agree about what
defines appropriate attendance at an emergency department
Sandra Richardson, Michael Ardagh, Philip Hider
Over the previous two decades, concerns have been raised in
a number of Western countries about increasing numbers of patients attending
Emergency Departments (EDs), with particular attention given to the concept of
‘inappropriate’ ED use.1–7 It is perceived that some patient
groups ‘inappropriately’ seek primary health care from the
ED.8–11 Several writers have suggested limiting the number of patients
presenting by tightening (or at least defining) the criteria by which
‘appropriate’ patient conditions are identified.11,14–20 The
main purpose of these criteria is to permit the development of targeted
interventions designed to change behaviour, and thus reduce the number of
‘inappropriate’ attendances.
The impetus to develop and disseminate an ED appropriateness
survey arose following increased awareness of overcrowding within the ED of
Christchurch Hospital. This ED is one of the busiest in Australasia, seeing an
average of 65,000 patients per annum, and with an admission rate of
approximately 48%.24 Initial planning to respond to overcrowding at the ED
raised the question of whether there was a problem with
‘inappropriate’ attenders. It became apparent that to answer this
question, a consensus definition of ‘appropriateness’ would be
needed. From the limited available research conducted overseas there is little
evidence to support the belief that a consensus opinion amongst health
professionals exists.21 Moreover, there is no research specific to this in New
Zealand.
Several guidelines and tools for assessing the prevalence of
‘inappropriate attenders’ have been developed.14–16,18
Attempts to categorise ‘appropriate’ patients have typically been
derived following a retrospective audit of patient charts.7 Cases are then
assessed by medical ‘experts’, usually focusing on patients whose
triage codes indicate a low degree of urgency. The ‘gold standard’
against which cases are measured is the opinion of a group of emergency medicine
specialists, or general/primary care practitioners. However, these groups may
not in fact present a clear or united perspective.
The aims of this project were to examine attitudes and
perceptions amongst health professionals regarding the concept of
‘inappropriate attenders’ and to provide the basis for possible
interventions to reduce ED overcrowding and plan further research related to
patient flow and ED attendance.
MethodsSample—A
purposive sample of health professionals was sought, including ambulance staff,
ED doctors (the survey was disseminated to all medical staff working in the area
and included house surgeons, registrars, and consultants), ED nurses, general
practitioners, and hospital managers.
Inclusion criteria were that the participant was:
Potential ED and
management participants were identified from staff lists, GPs were contacted
through the largest local GP-contracting organisation, and ambulance staff were
approached when delivering or uplifting patients from the ED. Consultation
occurred with ED and hospital managers, GP liaison officers, and the ambulance
authority. 210 survey forms were distributed;120 were returned complete thus
giving an overall response rate of 57%.
Survey—Following
an initial series of demographic questions, respondents were asked to estimate
the percentage of local ED patients who could be treated appropriately in other
settings, and to define the concept of ‘an inappropriate attender’.
A three point scale (agree, unsure, disagree) was used
to gauge response to a range of patient scenarios, indicating whether these
represented an appropriate primary reason for seeking ED care. The third section
posed a range of potential responses for dealing with identified
‘inappropriate patients’ and respondents were again asked to
indicate whether they agreed, disagreed, or were uncertain about these potential
responses. The survey tool was piloted among a group of ED nurses, GP liaison
officers, and ED doctors.
Thematic
analysis—A single free-text question was included in the survey,
asking respondents to define the concept of an ‘inappropriate ED
attender.’ Responses were categorised by professional group, and within
each group subject to thematic analysis. This involved the identification of
central themes or ‘codes’. The themes were determined deductively on
the basis of pre-existing understanding of the issues (from existing literature)
and validated by an inductive review of the material. Content analysis of the
participant’s responses occurred where specific instances of narrative
data relating to the themes were identified.22,23
ResultsResponses to survey
statements—Overall, 120 responses were received from the survey, 27
from 40 distributed to general practitioners (68% response rate), 35 from 70 ED
nurses (54% response rate), 14 from 30 ED physicians (47% response rate), 12
from 20 management personnel (60% response rate), and 32 from 50 surveys
distributed to ambulance staff (64% response rate).
Respondents were evenly distributed between genders (47%
female and 53% male) however there was some variation in age as shown in Figure
1.
Figure 1. ED Attendance Study’s respondent groups
by age and occupation
![]() The first question asked respondents to indicate whether
“some patients attending the ED could be more appropriately treated
elsewhere (e.g. GP or After Hours Service).” All ED doctors and management
agreed with this statement, as did most (97%) ambulance staff, ED nurses (97%),
and GPs (93%).
The second question asked, whether “patients have the
right to choose care from the ED, rather than elsewhere.” The majority of
ED doctors, ED nurses and ambulance staff agreed with this statement (64%, 60%,
and 56% respectively), however relatively few GPs and managers agreed (18% and
15%; see Figure 2).
Most respondents, regardless of professional group, agreed
that it was appropriate to present to the ED if the patient believed their
condition to be ‘serious’ (see Figure 3). Indeed, four of the five
occupational groups (except ambulance staff) agreed that the patient’s
perception of urgency was an appropriate reason, and four of the five (all
except GPs) agreed that it was appropriate to present with an acute psychiatric
problem.
There was over 50% agreement within each of the groups that
it was inappropriate for a patient to attend ED because they did not have a
regular GP, or needed to have blood tests taken. All groups except ED nurses
agreed that it was inappropriate to present to ED for a second opinion.
Figure 2. Agreement to survey question, ‘patients
should have the right to choose care from the ED rather than
elsewhere’
![]() Over 50% of groups (except ambulance staff) felt it was
inappropriate to present for care if the patient’s primary reason for
attending was that they:
There were clear
divisions regarding several other statements. These included whether it was
appropriate to attend the ED for social issues. Over 50% of ambulance, GPs, and
management respondents disagreed with this statement, over 50% of ED doctors
were in agreement with it, and ED nurses were conflicted. Ambulance staff, ED
doctors, and ED nurses agreed that subsequent admission to hospital was
indicative of an appropriate presentation, but GPs and managers disagreed.
Ambulance staff and ED nurses did not agree that arrival by ambulance signified
an appropriate presentation, while GPs, ED doctors, and managers felt it was an
appropriate indicator (see Table 1).
Table 1: Percentage of agreement with given statement
(is this an appropriate reason to present to ED?)
AHS=After Hours Service;
ED=Emergency Department; drs=doctors; GPs=general practitioners.
The third section of the survey presented a range of
statements offering various potential responses to the issue of overcrowding.
Respondents were again asked to indicate whether they were in agreement, unsure,
or disagreed with the potential effectiveness and acceptability of each of the
interventions. Within and between members of all the professional groups there
was a higher level of agreement with statements in this section. More than 50%
of the ambulance respondents agreed with all statements, ED doctors agreed with
10 of the 12 statements, and ED nurses agreed with 11 of the 12 statements. The
management group agreed with 9 out of 12 and the GP group with 7 of the 12
statements, respectively.
There was general agreement that ‘increased public
education about the role of the ED and greater public awareness of social
supports would lessen the number of inappropriate ED presentations.’ There
was also agreement that ambulance staff should make the decision whether to
transport a patient to the ED, GP, or After Hours
Surgery. The management group disagreed
that faster access to outpatient services would reduce ED presentations.
Ninety-six percent of GPs surveyed agreed that
inappropriate patients should be referred away from the ED; 43% of ED
doctors agreed; and over 50% agreement was reached by ED nurses, ambulance, and
management staff.
When asked whether inappropriate patients should be charged
a fee for service, ED doctors, ambulance and GPs agreed (ranging from 57-81%
support), while ED nurses and management disagreed. GPs also disagreed with the
suggestion that there would be fewer ED presentations if GP fees
were lower, (22% agreement), while the
remaining groups agreed with this (from 57-71%).
Table 2. Percentage of agreement with given statement
(responses to overcrowding)
AHS=After Hours Service;
ED=Emergency Department; drs=doctors; GPs=general practitioners; OP=orthopaedic;
pt=patient;
Questions were asked regarding the potential impact of GP
and Nurse Practitioner services offered within the ED environment. All groups
except GPs agreed that access to GP services within the ED would decrease
waiting times, but both GPs and ED
doctors had only 43% agreement that this
would increase patient satisfaction.
GPs also disagreed with the suggestion that a Nurse
Practitioner service could either decrease waiting times in ED (22% agreement)
or increase patient satisfaction (17% agreement). However, all other groups
agreed with these two statements; ranging from 57–86% support (see Table
2).
Free-text discussion (a
thematic analysis)—Respondents’ comments were grouped within
professions, and then within each group, subjected to thematic analysis. The
following broad themes were identified and used to categorise responses: service
issues, generic condition description, specific condition identification, time
dependent, financial costing, personal characteristics, and comments which
re-framed the question on the basis that no patient was
‘inappropriate’.
There was strong agreement that
‘inappropriateness’ was related to an inability or unwillingness by
some patients to use sources of care other than the ED, in particular GP
services.
One example of this is the definition of inappropriate ED
attenders given by an ED nurse, all those
whose care can be given at a facility other than the only Emergency Department
in the city.
Many comments related to patients’ failure to seek
initial GP assessment prior to presenting to ED. This can be seen in one
GP’s description of inappropriate patients as those
people who haven’t first attended their
regular GP or 24hrs surgery. ED stands for
Emergency
Department! GP stands for
General
Practice!
The second theme identified was that of
Generic Description, where the
respondents described the concept of inappropriateness in terms of the general
nature of the presenting complaint. This was typically coined in terms of acuity
rather than by disease or injury, and included such concepts as
‘non urgent’
and ‘minor.’. Again,
this theme was common to all groups with definitions given
including a condition that is non-acute, non
life-threatening (ED Nurse) and
attending for minor or non-urgent medical
problems (GP).
While there appears to be consensus that
‘non-acute’ conditions do not require ED care, there was little
clarification of what made a condition acute or non-acute. An additional concern
is whether members of the public are well enough informed to make this
determination themselves. This was identified by one GP who noted that
‘inappropriate attenders’ might include
those who conditions could be managed
elsewhere but didn’t understand this at the time and a manager who
suggested inappropriate attenders were those
whose medical problems will definitely not lead to admission and not life and
death situations, problem here is that as a patient, how would I know?
The role of the GPs as ‘gatekeeper’ to the
hospital was emphasised in a number of responses. Examples include
identification of an ‘inappropriate’ attender as
one who makes no contact with own GP
(ED Nurse), has not attended GP prior to
presentation (Manager) and who presents
without first seeking advice from primary
care/GP/After Hours Service (GP).
One GP noted If they
(patients) self refer they should be
sent back to their GP or 24hr surgery unless it is an emergency. This
begs the question, however, of who defines the ‘emergency’—the
patient or the doctor? Comments made suggest that there is a range of opinion,
with some clearly seeing this as a purely medical function, while others
question whether the patient’s perception should play a part. This can be
seen in the comment by an ED nurse, that: I
believe patients by definition should be entitled to see their illness as acute
or emergent and therefore attend the emergency service.’
A further theme was the attempt to specify particular
injuries or illnesses, which might meet the criteria for
‘inappropriateness.’. Specific
identification involved the listing or description of conditions or
circumstances that were seen as inappropriate for ED care. These included
flu-like symptoms/colds/upper respiratory tract infections (URTIs), minor
musculoskeletal problems, including sprains/strains/bruising, requests for
prescriptions and patients presenting with problems that were primarily related
to alcohol intoxication.
Two further themes were linked with specific descriptions;
these were time-dependant criteria and
financial
matters. Some respondents attempted to clarify the concept of
‘minor’ or the listing of specific conditions by adding in a
time-related dimension.
Examples of this view include:
Issues relating to
finance were identified by participants
from all groups except management as precipitating factors leading to ED
presentations.
Descriptions given included the phrases:
A further theme associated
with inappropriateness relates to the individual patient, and focuses on
perceived characteristics and attitudes. These
personal characteristics are
generally portrayed in the negative, and include reference to non-medical
reasons for presentation, as well as personality/behaviour traits. The most
common groups identified here were simply referred to as
regulars, social problems and those
wanting a second opinion. The reference
to regular attenders was particularly strong from the ambulance respondents, and
there was an additional suggestion that many people were ‘using the
system’ in an attempt to be seen earlier than their condition warranted.
Comments made included:
The concept of
‘using the system’ appeared in other group responses. ED nurses
comments included: patients who turn up to ED
to get access to tests/investigations that are taking too long (i.e. Outpatient
appointments/CT /MRIs etc), and
patients who feel they are going to fast track
the system or waiting lists by presenting in ED.
The concept of ‘social admissions’ was noted by
respondents and often grouped together with reference to
‘inappropriate’ transfers from rest homes or private hospitals.
Examples include patients who are experiencing
‘social’ difficulties (e.g. heating);
patients from resthomes whose condition has
deteriorated and staff have called ambulance rather than doctor to attend
(Management).
ED nurses also saw social issues as significant, with the
comments, social disposition ie no fixed
abode, requires a warm bed for the night and food; people who live alone.
Finally, the underlying concept of
‘inappropriateness’ was questioned by a number of ED doctors and
nurses.
ED physicians presented a number of statements challenging
this concept, including:
ED nurses
also questioned the validity of the underlying concept, with one suggesting
that:
DiscussionThe survey results present a range of professional
perceptions, based on a purposive survey carried out at a major New Zealand ED.
This survey was limited in only sampling the opinions of health professionals.
Consumer opinions are the subject of further study. The main finding from this
survey is the recognition that there is a range of opinions both within and
across professional groups.
While there is some clear consensus on general principles,
for example some ED patients could be treated appropriately elsewhere, there is
little evidence of clear agreement on how these individuals should be defined.
Given the increasingly team-based nature of healthcare and the multiple entry
points to the ED, lack of agreement on this basic concept may undermine any
efforts to limit or re-direct ‘inappropriate’ patients.
While it was not possible to show consensus across the
groups surveyed, there were indications of identifiable foci within professions.
For example, ambulance staff were more likely to see patient admission as a
clear indicator of appropriateness, whereas ED doctors and nurses were more
likely to see patient perception of urgency or seriousness as a reliable
indicator. This apparent support for the parameters of arrival method
(ambulance) and outcome (admission) provides a starting point for planned
further applications of the Delphi technique in a bid to determine whether
consensus is a realistic outcome.
The findings from this study suggest that the existing
reliance on a ‘gold standard’ that assumes consensus may be
misplaced. Indeed, there appears to be little evidence to suggest that there is
agreement regarding this concept within individual professions, much less
between professions. Failure to acknowledge this fact thus limits the ability to
accurately identify/forecast likely percentages of
‘inappropriateness’ amongst presenting patients. The assumption that
such inappropriateness does exist and can be quantified may be based on a
fundamental inaccuracy—that those involved are working from the same
principles. If there is misconception, it follows that specific interventions
that lead to the re-direction of patients away from the ED may themselves be
flawed.
The underlying purpose of identifying
‘inappropriate’ patients seems to be to quantify a group of
individuals whose care could be provided in an alternative venue or by an
alternative service provider. There is no doubt that EDs are under pressure to
refer patients with non-urgent conditions to other settings.25–28 What is
debated, however, is whether the removal of this group would significantly
impact on overcrowding. The first issue here is how such patients are
quantified—is there a consensus agreement and means of determining the
size of the presumed ‘problem’? This article has sought to raise
awareness of the underlying assumptions associated with this process.
Further issues are apparent when considering the use to
which such information (percentage of ‘inappropriate’ patients) is
put. There is an assumption that these ‘inappropriate’ patients are
necessarily ‘non-urgent’, and that therefore it is acceptable and
appropriate to defer their care. Little specific follow-up has been carried out
to determine the accuracy of this assumption—in terms of whether such
patients do seek the alternative care pathway they are directed to, and what the
ultimate outcome is.7 Washington et al carried out a randomised controlled trial
with the aim of ‘evaluating the safety and acceptability of deferring
emergency department care’ (p707).25
Their findings suggested that 36% of the screened patients
(n=1176) met the explicit deferred care guidelines. Study participants in both
groups (usual care and deferred care) showed improvement in health status, and
no patient in either group was hospitalised or died. The authors did acknowledge
a number of limitations, in particular lack of generalisability to centres where
next-day care could not be guaranteed. In addition, several patients declined to
participate in the study, so that the acceptability of this option can not be
clearly determined. A potential factor if such a system were introduced into NZ
EDs is the impact of additional cost—patients presenting to ED are not
charged a fee for service, and although alternative care venues are often
available, the necessity to pay for care may be a limiting factor in the uptake
of such services.
Vertesi (2004) also examined the possibility of deferring
non-urgent patients away from the ED as a means of reducing overcrowding.27 This
study identified that the greatest access problem and longest delays were
associated with patients waiting for placement in the acute care cubicles. It
was found that non-urgent patients take up only a small number of urgent
‘ED stretchers and acute care resources’ (p337), and as such their
diversion is unlikely to improve access for more acute patients. Not only was
little benefit seen to attach from a deferral system, but it was felt that this
was ‘measurably unsafe’ and would lead to the inappropriate refusal
of care to patients who required hospital treatment. This retrospective study
revealed that of those patients who would have been identified as
‘non-urgent’ (using the Canadian ED triage and acuity scale), 7.3%
still required admission.
Most of the literature around patient deferral from the
ED-setting aims to identify the impact of this on the ED (in terms of waiting
times, patient flow, and overcrowding). The Society for Academic Medicine (SAEM)
takes a more explicit look at the ethical issues associated with policies that
triage patients out of the ED prior to complete evaluation and treatment.28 It
is suggested that decisions around the availability of emergency care and
rationing of this service (whether implicit or explicit) should be a societal
decision, a position supported by other authors.8,28,29 These authors suggest
that the ethical and legal issues are influenced by whether the practice of
deferring patients involves ‘triage
away’ or ‘triage
to’, and conclude that there is
no system whereby a brief ‘triage’ exam can identify all patients
with potentially serious emergencies.
It is apparent that the data (generated in attempts to
quantify ‘inappropriate’ reasons for ED presentation) can be used in
several ways, with significant implication for patient care. It is essential,
therefore, that in developing a valid and reliable method of determining
‘appropriateness’ recognition be given to the range of assumptions
and interpretations underlying this concept.
While the data gathered in this study may not be generalised
to a wider group (it is neither a random sample nor statistically
representative), it does appear indicative of significant variation of attitude
and opinion, and calls into dispute the concept of a general consensus which
would allow the formation of criteria defining ‘appropriateness’.
Without a core definition, it is hard to say what contribution
‘inappropriate attenders’ make to the problem of ED overcrowding.
While this study has not given evidence to support a
consensus definition of ‘appropriateness,’ it has highlighted the
need for further research into this area. Further use of the Delphi technique is
planned to develop a wider data base of health professionals’s views. This
would allow for further analysis of the sub groups represented and
identification of areas of specific significance both within professions as well
as between. Similarly, there is a clear need to examine the perspective of lay
people and to determine whether there are points of agreement between health
professionals and ‘others.’
Once such research has been undertaken, then it is possible
to consider future directions should a consensus definition be developed. This
would include the potential to develop a measurement tool to be applied within
the NZ setting, which would allow the quantification of
‘inappropriate’ use of EDs. This is a necessary first step to
developing possible guidelines or recommendations related to the attendance
process.
Overcrowding has many contributors, and ‘inappropriate
attenders’ may (or may not) be one of these. Many respondents suggested
that inappropriate attendance occurred because of barriers to accessing more
appropriate care. If this is a contributor, then solutions could involve
increasing access to alternative care sources, rather than raising barriers to
ED care. Recognition of ‘appropriateness’ and the best response to
this is only one of the issues associated with overcrowding, and on its own is
unlikely to provide significant benefits. What is important, however, is the
need to ensure a sound evidential base for any interventions, and to develop a
sustainable response. For this to happen, research relevant to the issues needs
to be undertaken, with context specific features acknowledged.
ConclusionWhile there are some areas of general agreement, there is no
clear consensus between the professionals surveyed regarding the concept of
‘appropriateness’. This has implications for any interventions aimed
at addressing ED ‘overcrowding’ that assume the presence of a
consensus understanding of this concept.
Author information:
Sandra Richardson, Emergency Nurse Researcher, Emergency Department,
Christchurch Hospital, Christchurch; Michael Ardagh, Professor, Emergency
Department, Christchurch Hospital and Christchurch School of Medicine and Health
Sciences, University of Otago, Christchurch; Phil Hider, Senior Lecturer,
Department of Public Health and General Practice, Christchurch School of
Medicine and Health Sciences, University of Otago, Christchurch
Correspondence:
Sandra Richardson, Emergency Department, Christchurch Hospital, Private Bag
4710, Christchurch. Fax: (03) 364 0286; email: sandra.richardson@cdhb.govt.nz
References:
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