Addiction Today

DoH POLICY & GUIDANCE DOCUMENTS

To find Department of Health policy and guidance documents, click here.

DoH ADDS TO GUIDANCE FOR REHABS:

CAPITAL DEVELOPMENT PROGRAMME FOR INPATIENT AND RESIDENTIAL REHABILITATION SUBSTANCE MISUSE (DRUG & ALCOHOL) SERVICES 2008/9.

At the end of April, Nick Lawrence, deputy director and head of alcohol, drugs and tobacco policy at the Department of Health sent out addendum guidance for addiction treatment services.

This includes guidance on the reallocation of funds, further to the capital strategic bidding process 2007/8 and 2008/9, £54.3million in capital funding was allocated to Primary Care Trusts in April 2007, to improve inpatient and residential alcohol and drug services.

The National Treatment Agency is managing this process via regional forums.

You can access the details here.

London loses out under new funding formula

Comment by the London Drug & Alcohol Network

London boroughs are adversely affected by a new formula for allocating the pooled treatment budget based on numbers on treatment. London's overall budget for 2008/2009 drops £2million to £86million - and indicative figures suggest this could reduce progressively to £76.3million in 2010. Find out about local area allocations and providers concerns about the new formula at www.ldan.org.uk

CHAMP AWARDS

Deadline 20 April 2008

Diageo has sponsored the Champ Awards, a biennial scheme aimed at recognising projects in England, Scotland and Wales which help prevent children aged 14 years and under from misusing alcohol - both now and in the future. The Champ Awards, each worth £20,000, will be given via Mentor UK. They are in three categories: schools, communities and young-people-led projects. You can nominate your own project or someone else's and activities can be as diverse as young people putting together their own websites, classroom-based work, sports scheme or mentoring projects in the community. The winners and runners-up will be chosen by young people aged 14 and under.

For guidance, application form and details of previous winners, simply click. Project manager is Derek Ferguson.

"Funding for drug treatment moves towards a fairer system"

... states the National Treatment Agency for Substance Misuse.

The government’s has maintained ‘Pooled Drug Treatment Budget’  funding for drug treatment in 2008/9 at the 2007/08 record level of £398million. “This, combined with local efficiency savings of £50million a year by 2010/11 means that improvements in the quality and availability of drug treatment over the past 10 years can be enhanced,” states the NTA [10 January 2008].

Changes to the way funding is allocated to local drug action partnerships mean that ,over the coming years, variations in spending per person in treatment will narrow.

Funding will be redirected from partnerships which historically received a higher than average share per person in treatment of the national PTB allocation, towards those who have received a lower than average allocation.

60% of partnerships will receive the same or more money than before to deliver their treatment plans. The maximum reduction in funding for some partnerships will not be over 6% this year.

The total PTB allocation for England will remain at £398m in 2008/9, the same amount made available in 2007/8. Current plans are to freeze the £398million each year to 2010/11 - “by which time funding will be equitable and the drug treatment sector will have had time to plan for the new system of allocations,” stated the NTA.

Funding received by partnerships will largely depend upon the number of people in the area in effective treatment in the year – those who complete or are retained in treatment for 12 weeks or more. Other factors taken into consideration include: number of crack and/or opiate users being treated, complexity of local caseloads, and the varying costs involved in providing treatment in different areas of the country.

The 2008/9 PTB revenue funding will be allocated direct to PCTs - Primary Care Trusts - as one sum of money. This aims to make it easier for Partnerships to allocate and administer their budgets.

Notes:
The NTA is a special health authority, established by government in 2001. It aims to increase the availability, capacity and effectiveness for substance misuse treatment in England and advise the Department of Health on how the Pooled Treatment Budget for drug treatment should be allocated.

In 2008/09 £373million of the funding will be allocated directly to the PCTs. A further £24.7million will be for young people’s treatment. Further details on how this will be allocated will follow from the Department of Health.

Supporting information including area allocations of PTB is available on the NTA website at www.nta.nhs.uk

Local drugs and crime partnerships (also known as drug action teams or DATs) are responsible for identifying local needs and using central government and locally resourced funding to commission or purchase drug treatment to meet those needs. There are 149 such partnerships in England (one for every local authority area). They are consortia of local partners involved in the delivery of the Government’s drugs strategy, including primary care trusts, police, probation, prison service and local authorities. The NTA is responsible for monitoring, advising and performance managing how partnerships spend their funding on treatment.

Further details here.

MODELS FOR FUNDING TREATMENT SERVICES

A US view: the Cobb-C4 models

For reference citation: Hoffmann, NG (2002). COBB/C4 Models for Funding Treatment Services. Contact: Norman G Hoffmann PhD

Both fee-for-service and capitated managed-care systems for buying healthcare services have intractable financial conflicts of interest inherent in their designs.

In the first, the incentive is to provide more treatment than is necessary. In the latter, the opposite—financial incentives for undertreating. Usually, neither model of purchasing or funding treatment was used with logical, objective means of monitoring accountability.

To date, most monitoring has been crude (eg: mortality rates), inconsequential (eg: what % of incoming calls are answered by the third ring), or of questionable validity (eg: patient satisfaction questionnaires and complaint rates). More recent efforts attempted to address quality of care for addictions treatment in terms of more relevant measures such as monitoring rates of engagement in treatment once contact is made and retention in terms of completing the recommended care once it has been initiated.

Still, such monitoring does not address the question of whether treatment services are effective, much less, cost-effective. Also, such monitoring is not linked to the design of treatment services so as to produce optimal or acceptable objective results, nor to address questions about whether services are of adequate structure, intensity or duration to yield expected outcomes.

COBB (Coalition for Outcomes-Based Benefits, now renamed C4) was organised to explore funding models and develop technology and strategies for accountable treatment at affordable costs.

Accomplishing this goal requires information and innovation. Information was derived from reviewing the literature on the variables and using available data to explore factors which influence treatment outcomes. Factors influencing outcome expectations include patient characteristics and the relationships with the intensity and duration of treatment services. Development of models also included consideration of contracting arrangements that might be suitable from the perspectives of payers, providers and patients.

This work has progressed to the point that two basic models can be proposed. One is more recognisable as applicable to public-sector service and the other to private-sector contracting, but in point of fact, either can be used for public or private sector contracting.

The distinguishing features of the models are that they can tie financial incentives and penalties to treatment results. In many cases, such results are not simply measures of abstinence from substance use, which can be difficult to determine with confidence. Rather, the outcome measures can be objective and measurable — eg: what proportion of treated employees are still employed; a year or two after starting treatment; what proportion of welfare recipients continue to manifest substance use- related problems that precluded employment; what proportion of substance related offenders were rearrested or reincarcerated for a substance-related offence in a specified time.

The following is a brief description of each of the COBB/C4 funding models. Each has certain advantages and disadvantages relative to the other. It should be pointed out that the COBB/C4 models consider substance dependence as a chronic condition to be treated as any other chronic medical condition. That means that treatment is not to be considered a time -imited event, but rather will involve long-term management with indefinite periodic delivery of services as needed. In contrast, substance abuse may be more of an acute or time delimited problem that can actually be resolved with brief interventions or time-limited services. In either case, the goal is to provide results as defined in the contracting vehicles.

INDEPENDENT CASE MANAGEMENT

The Independent Case Management (ICM) model is less radical in its departure from more commonly used managed-care models. It is distinct from the traditional capitated models in that the fee, or cost, is derived from a funding stream or contract independent from the funding for the actual treatment services. Treatment funds not expended revert back to the payer and are not retained by the management organisation.

There are significant differences in the COBB-C4 model from most of the current arrangements.

The first difference is that the care-management organisation must be a clinical organisation, but not a provider. That is, the care-management organisation must employ professionals of sufficient skills and credentials so as to do the actual face-to-face assessments needed to make proper diagnoses and design a treatment plan. Case management by remote control via formulas implemented by clerks and phone authorisations without any patient contact are not acceptable. This means that the care management organisation must be local and have means of being accessible at the point where people are likely to seek care.

The care management entity must be independent of the care providers, in reality as well as name. This means that shell corporate structures in which a provider group owns the care-management organisation, the care management organisation owns the provider programmes, or both are owned by a holding company is unacceptable for the ICM model.

Another major distinction is that with the ICM model, the care-management entity is accountable for treatment results. Cost is not the only criteria. Do the services authorised by the care managers address problems and result in outcomes that are related to tangible results? The results to be achieved may be abstinence, but in most cases, it will involve other issues related to recovery and of interest to society an those funding treatment services. These issues include employability, commission of crimes, ability to parent, use of healthcare resources, etc.

The ICM model assumes that other services beyond basic treatment services will be required. These so-called “wraparound” services might include factors to enable treatment (eg: transportation expense, child care) or to enhance recovery efforts (eg: vocational counseling, social skills training). Investments in the wraparound services can not only be cost-effective, but essential in long-term gains.

Financial bonuses for exceeding expectations in terms of outcomes given service expenses and financial penalties for failure to perform can be built into the contracting framework. Over time, expectations can be adjusted based on history within a location and on experiences in other geographical areas.

ICM models have been in operation in the US for years, with the delivery of services to recipients of TANF (Temporary Assistance to Needy Families) funds. The results have been that more people needing services were identified and more services were provided for the same level of funding. In England, similar models are in pilot stages of development.

ACCOUNTABILITY BASED CONTRACTING

Accountability Based Contracting (ABC) models provide a strategy by which either a care-management organiSation or provider network go at varying levels of risk for provision of all services from case finding to primary treatment to maintenance care. One way of conceptualising the ABC model is as an augmented case-rate system. The provider/management organisation contracts with the payer to provide those components of the continuum of care needed to achieve a desired result. An example might be the easiest way to appreciate this model.

An employer with 10,000 workers in a specified geographic area is served by a provider or provider network. Of this workforce, epidemiological data suggests that about 600 will have a substance-use disorder. Actuarial data also suggests that only 30 of those 600 are likely to enter treatment in any given year and perhaps as few as 15 of the 30 will be able to remain employed by the company. The others will have relapsed and been found positive in random testing or otherwise will have been terminated or quit working.

In this example, the goal could be to more precisely estimate the prevalence of substance use disorders, increase penetration of services to 10% of the afflicted workforce (60 people), and achieve a retained employability rate of at least 65% (40 workers). The provider/case-management organisation is to provide a bid for doing so. Such a bid would involve employee assistance services if the company does not have an internal EAP or coordinating with the established EAP for case finding strategies, provide primary treatment services, and maintenance care. A variable in the contract can be a case-rate fee for each case identified so that the provider is not penalised for being more successful than anticipated in identifying and treating afflicted employees.

Employees who leave the company for reasons other than cause should not be part of the equation since they might leave for better jobs elsewhere on achieving recovery. A bonus might be agreed on if at least 75% of employees are retainable post-treatment. In such a scenario, the provider/manager must be able to deliver effective, efficient services to be competitive. Also, ongoing care would need to be accessible over the period of the contract for employees diagnosed as dependent, because they are likely to require periodic services to avoid relapses.

Competitive bidding in the ABC models will require knowing the characteristics of the workforce, the implications of those characteristics for treatment outcome expectations, and the likely results given various levels and intensity of services. At a general level, these are obtainable from the scientific literature and data available to COBB-C4. With a given workforce, these parameters can be refined over time.

A public-sector ABC model might involve a similar bidding situation for treating people arrested for driving under the influence or for inmates with addiction problems released from state penal institutions. The objective would be to reduce the anticipated substance-related rearrest rates. In this scenario, the bidding entity would again need to evaluate the characteristic of the target population, determine likely service needs, and costs related to services likely to achieve the desired targets.

BACKGROUND

UNIT COSTS FOR SUBSTANCE MISUSE

"Transparent pricing" for drug treatment

The National Treatment Agency for Substance Misuse is working with the Department of Health, Home Office and HM Treasury to understand the costs of substance-misuse treatment in England . The aim is to allow the purchase of the most effective interventions at a transparent price.

Expansion and improvement of drug treatment is expected to be driven by better use of existing resources or growth in local investment, not by increases in central government investment through the Pooled Treatment Budget.

A successful pilot was carried out in the South East, and the project expanded nationwide in 2006/7. Work has begun on the 2007/8 exercise after consultation with the field. The main changes to this year's exercise are:

* Rather than looking at theoretical capacity for a service, the NTA will use actual NDTMS performance data

* Alignment of Tier 3 and 4 modalities with NDTMS modalities

* Use of most recent information – ie, using 07/08 rather than 06/07 data

* Simplification of some of the categories, particularly for direct non-pay costs and overheads

* A bespoke, web-based tool for data collection rather than individual (excel) spreadsheets.

Work is ongoing to sample primary care based projects across the country as well as some Tier 2 agencies. Consensus is that this model is not readily applicable to Tier 4 residential services (due to the different nature of their income streams), so a parallel exercise will be conducted for this sector.

PROPOSED TIMETABLE

Nov 2007-January 2008 

Web-based tool being built

Feb-March 2008              

Testing of web-based tool and draft guidance with regional working groups

April 2008                         

Final guidance for 07/08 exercise published on the web

April-May 2008                

Providers refer to guidance, and regional Memoranda of Understandings where agreed, to prepare date for entry in June 2008

June 2008            

Web-based tool available for provider data submission

August 2008

NTDMS performance data uploaded to tool

End August 2008

Final unit cost reports available to partnerships and commissioners

GUIDANCE

This has been modified to reduce bureaucracy and incorporate learning from the first exercise. The final documents will be released by April 2008. If you have any queries about the unit costs exercise before the guidance is made available and the data collection phase begins in June 2008, forward your comments to beverley.oliver@nta-nhs.org.uk.

The NTA lead is treatment-delivery manager Colin Bradbury on 020 7261 8835.

The latest version of the unit costs FAQ can be found here  FAQ Version 4 (September 2007).