NHS primary care reform
There has been a rapid transition towards larger group practices in the UK, reducing single-handed practices by 35% between 2004 and 2009.10 In 2006, recommendations for primary care in London included the creation of polyclinics with multiple providers serving populations of around 50 000.11 GPs felt that these proposals eroded key provider attributes such as access, choice, and continuity of care, and in response the Royal College of General Practitioners published recommendations supporting federated working, emphasising the need for collaboration rather than amalgamation of practices.12,13 Since then, multiple initiatives testing new models of care have been piloted, including 16 integrated care pilots in 2009,4 14 integrated care pioneers in 2013, and in 2015, 50 vanguard sites all with a common theme of focusing on various ways of improving integration.14,15 Drawing coherent policy lessons from these diverse developments has been challenging16 due to the diversity of the models, limited rigorous evaluation, frequency of changes and new initiatives, difficulties both measuring outcomes and attributing causality to these models, and finally, the complexity of the changes.
Tower Hamlets practice networks
Served by 36 general practices, the borough of Tower Hamlets has an ethnically diverse and disadvantaged population of 284 000 including the largest Bangladeshi community in England,17 high population turnover,18 and the highest proportion of children (59%) and older people (53%) in income-deprived families in the UK.19
In 2007, the primary care trust (PCT), now the clinical commissioning group (CCG), decided to invest available NHS funding growth into primary care.20 A primary care investment plan developed four extended clinical packages for diabetes, chronic obstructive pulmonary disease, cardiovascular disease, and childhood immunisation, with an associated increase in primary care spend. The topics chosen were considered to be evidence based and ameliorable within the context of the programme demonstrating tangible impact within 3 years. The clinical improvement packages were designed by both clinicians and administrators to match best practice within resource constraints. Activities included multidisciplinary team meetings, care plans, medication reviews, call/recall coordination and group training, and the use of common data entry templates enabling feedback of identifiable practice performance across the organisation combined with financial incentives for achieving agreed targets.
How this fits in
General practices in the UK are increasingly working in groups, but literature on implementation or evaluation of this process is limited. Tower Hamlets in London has demonstrated success in quality improvement using geographically-based clinical networks. Key factors of this success include alignment of clinical and managerial priorities, strong leadership, a data-driven approach to performance, and flexibility towards local solutions. The networks were seen as sustainable and laid the groundwork for a subsequent multisectoral provider partnership of all practices in collaboration with local authority, mental health services, and secondary care.
Eight geographical practice networks (each with four to five GP practices) were created to deliver these care packages, each serving populations of 30 000–50 000. Funding for additional services and achievement of clinical targets was directed at the network rather than at individual practices. Approximately £1.2 million was provided for network management including £150 000 per network to fund manager, recall coordinator, board representatives, and clinical lead roles. Additional financial incentives for achieving performance targets were paid, with 70% paid upfront and 30% contingent on performance.20,21
The network structure sought to encourage peer-to-peer learning, scrutiny, and support for quality improvement. Information technology (IT) was developed using an existing IT infrastructure. Standard data entry templates and near real-time network dashboards were devised to visualise both individual trends in practice performance and comparison with all other practices. Near real-time network dashboards provide visual summaries of how a practice is performing on relevant care package metrics compared to the other practices and networks. A red, amber, and green colour scheme was used as were trend charts and funnel plots to describe performance and variation. Patient recall systems were also improved. Multidisciplinary team meetings (MDTs) provided feedback, review of performance, and a forum for case-based clinical discussion and education.
Four quantitative studies have been published which show significant improvement in Tower Hamlets as a result of these programmes, including rapid achievement of 95% population coverage for measles, mumps, and rubella immunisation, and some of the best and fastest-improving cardiovascular measures in London and England.22–25 In 2015, Tower Hamlets ranked first, second, or third among the 211 CCGs in England in 10 of the total 65 clinical indicators in the national Quality and Outcomes Framework (QOF).
This qualitative study considers participants’ views on organisational aims and provider experience during network implementation to provide insight into this organisational change. The results of these interviews are described in relation to existing primary care and organisational change literature and the policy environment.
The study aimed to investigate the expressed aims of establishing GP networks, what facilitated their implementation, the barriers encountered and how they were overcome, and how clinicians and managers defined success.