Journal of Evaluation in Clinical Practice ISSN 1356-1294
Medical evidence and health policy: a marriage of
convenience? The case of proton pump inhibitors
Mieke L. van Driel MD MSc,1 Robert Vander Stichele MD PhD,2 Jan De Maeseneer MD PhD,3
An De Sutter MD PhD4 and Thierry Christiaens MD PhD5
1
Researcher, 3Professor of Primary Heath Care, Head of Department, Department of General Practice and Primary Health Care, Ghent University,
Ghent, Belgium
2
Professor of Pharmacology, Heymans Institute of Pharmacology, Ghent University, Ghent, Belgium
4
Lecturer in General Practice, 5Professor of General Practice, Department of General Practice and Primary Health Care, Ghent University, Ghent,
Belgium; Heymans Institute of Pharmacology, Ghent University, Ghent, Belgium
Keywords
evidence-based medicine, health policy,
pharmaceutical economics, doctor’s practice
patterns, proton pump inhibitors, quality of care
Correspondence
Mieke L. van Driel
Department of General Practice and Primary
Health Care
Ghent University, De Pintelaan 185, UZ-1K3
B-9000 Ghent, Belgium
E-mail: mieke.vandriel@ugent.be
Accepted for publication: 28 November 2006
Abstract
Rationale In Belgium, several policies regulating reimbursement of acid suppressant
drugs and evidence-based recommendations for clinical practice were issued in a short
period of time, creating a unique opportunity to observe their effect on prescribing.
Aims and objectives To describe the evolution of prescriptions for acid suppressants and
explore the interaction of policies and practice recommendations with prescribing patterns.
Method Monthly claims-based data for proton pump inhibitors (PPIs) and H2-antihistamines by general practitioners, internists and gastroenterologists were obtained from the
Belgian national health insurance database (1997–2005). The evolution of reimbursed
defined daily doses and expenses after introduction of reimbursement regulations and
dissemination of practice recommendations was explored.
Results Recommendations had no impact on prescribing. All changes can be related to
concomitant policies. Lifting reimbursement restrictions for cheaper products did not
control growth or save costs in the long term. Only restricting reimbursement of all PPIs
managed to curb the growth. We observed an unintended increase of non-omeprazole PPIs
by gastroenterologists.
Conclusions Reimbursement policies influence prescribing, but their effect can be unintended. A dialogue between policymakers and guideline developers, and evidence-based
policies that are linked to clinical guidelines, could be an effective way to pursue both costcontainment and quality of care.
Introduction
Improving quality of care through integrating the best research
evidence into clinical practice is the cornerstone of evidence-based
health care [1]. The development of clinical guidelines, protocols
and algorithms has provided clinicians with useful tools for implementing evidence-based recommendations aimed at improving
quality of care. However, implementation in clinical practice has
not been very successful. There is evidence that merely distributing guidelines has very little or no impact on how doctors prescribe [2]. Restrictions imposed by reimbursement regulations
could be a more powerful instrument to change prescribing habits.
But these regulations are often inspired by cost-containment agendas and are usually not directly linked to scientific evidence from
clinical practice guidelines.
674
Internationally, the volume of prescriptions for proton pump
inhibitors (PPIs) is increasing. This adds to the growth of public
spending on medication and raises concerns for policymakers
about cost-containment. Several examples of successful policy
strategies regulating reimbursement in order to counter the
growth of PPI spending have been published [3–6]. In Belgium,
in a short period of time the national government issued various
regulations in an attempt to control growing expenses for acid
suppressants. Also, recommendations for rational use were distributed. This created an opportunity to closely study their impact
on prescribing. We evaluated national prescribing data for acid
suppressants over a period of 9 years (from 1997 to 2005) and
explored the impact of several potential drivers of prescribing,
including availability of practice recommendations, introduction
of new products on the market, and national reimbursement pol-
© 2007 The Authors. Journal compilation © 2007 Blackwell Publishing Ltd, Journal of Evaluation in Clinical Practice 13 (2007) 674–680
Reimbursement policies and EBM
M.L. van Driel et al.
icy regulations. By using a multifaceted approach, we may identify clues to integrate these drivers in comprehensive strategies to
improve rational prescribing, quality of care and containment of
health care spending.
Methods
The Farmanet database
Our analyses are based on the nationwide claims-based prescription database (Farmanet) of the Belgian National Institute for
Sickness and Invalidity Insurance (RIZIV-INAMI). Farmanet covers all medication that is reimbursed by the RIZIV-INAMI for
approximately 9.3 million people (90% of the Belgian population
in 2004). Over-the-counter products are not included in this database. We extracted monthly reimbursement data for PPIs (ATC
classes A02BC01/02/03/04/05) and H2-antihistamines (ATC
classes A02BA01/02/03/04/07), and analysed these data for the
three main groups of prescribers (i.e. general practitioners, general
internal medicine specialists and gastroenterologists).
Interventions
We made an inventory of policy regulations concerning the
availability and reimbursement strategies for PPIs and H2antihistamines by consulting the official publications of the
Belgian government, the Belgian State Monitor. We studied the
evidence report of the national consensus conference on rational
use of acid suppressant drugs [7].
Data analysis
We generated graphs with SPSS 12.0 software for the total reimbursed volume of PPIs and H2-antihistamines in defined daily
doses (DDD) and expenses. We also analysed omeprazole and
non-omeprazole PPIs separately, as policy regulations were different for each of these medication groups. Prescribing behaviour of
general practitioners and general internal medicine specialists was
compared with gastroenterologists.
Results
Policy regulations
All relevant policy regulations that were issued in the studied
period (1997–2005) are listed in Table 1. Until 2001 PPIs and H2antihistamines were only reimbursed after authorization by a consultative doctor of the insurance agencies. Authorization was
based on the report of an endoscopic examination. In March 2001,
two H2-antihistamines (cimetidine and ranitidine) became available without authorization (‘open benefit’). Two years later (April
2003), omeprazole (following its patent expiry) and rabeprazole,
as the only non-omeprazole PPI, were granted the same type of
open-benefit access (i.e. without authorization or endoscopy). For
reimbursement of all other PPIs, authorization by a consultative
doctor (including endoscopy) was still required. Initially, only
small packages with low doses (20 mg) were reimbursed, but
1 year later (April 2004) packages with higher doses (40 mg) were
included. This liberal access came to a halt in July 2005, when, for
all PPIs, including omeprazole, authorization requiring an endoscopy report was reintroduced. The regulations, however, were
slightly more complex now and differentiated between different
groups of PPIs, and between generics and brand-name products.
Authorization for reimbursement of generic forms of omeprazole
and the brand-name product of rabeprazole could be obtained by
making a report with the patient’s history and the results of a
clinical examination (registered in the patient record) available
upon request from the insurance agencies. For all other PPIs,
reimbursement would only be granted with a priori authorization
by a consultative doctor, based on a recent endoscopy report. An
exception to this rule was made for PPIs co-prescribed with a nonsteroidal anti-inflammatory drug (NSAID), in which case endoscopy was not required.
Evidence-based recommendations
Concerned about the rising consumption and costs of acid suppressant drugs, the Belgian National Institute for Sickness and
Invalidity Insurance organized a consensus conference on rational
Table 1 Summary of policy regulations and publication of the evidence report on rational use of acid suppressant drugs (H2-antihistamines and PPIs)
in Belgium (1997–2005)
Date
Policy regulation
March 2001
April 2002
April 2003
Cimetidine and ranitidine ‘open benefit’
Omeprazole patent expires
Omeprazole 20 mg (generic) small package ‘open benefit’
Pariet® (rabeprazole) ‘open benefit’
Omeprazole 40 mg small package ‘open benefit’
April 2004
September 2004
March 2005
July 2005
Evidence report
Publication of Consensus Report ‘Acid suppressant drugs’
Omeprazole new large packages de novo in ‘open benefit’
Cimetidine (generic), ranitidine (generic) and Zantac®:
increased out-of-pocket payment by the patient
All other H2-antihistamines ‘restricted’
Omeprazole ‘restricted’ and increased out-of-pocket
payment for low doses/small packages
All other PPIs ‘restricted’
PPI, proton pump inhibitor.
© 2007 The Authors. Journal compilation © 2007 Blackwell Publishing Ltd
675
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M.L. van Driel et al.
use of acid suppressant drugs in May 2003. The resulting evidence
report was based on a review of the available scientific literature
and consensus of a multidisciplinary jury. It contains recommendations for clinical practice and was distributed to all doctors and
pharmacists in Belgium in September 2004 [7] (see Box 1).
Prescribing of PPIs and H 2-antihistamines
Figure 1 shows that the total reimbursed volume of PPIs and H2antihistamines has been increasing since 1997, from 4.5 million
DDD (500 DDD per 1000 inhabitants) in 1997 to 16.7 million
DDD (1800 DDD per 1000 inhabitants) in 2005. Although the
price per DDD has decreased over time by 56% (from €1.68 per
DDD in 1997 to €0.74 in 2005), the public expenses for anti-ulcer
drugs grew from €74.4 million in 1997 to €123.8 million in 2005.
The patient’s out-of-pocket payments per DDD are 26% lower in
2005 compared with in 1997 (€0.22 versus €0.30), but owing to
the growing dispensed volume, the total of patients’ payments has
increased.
Two distinct changes in total prescribed volume can be distinguished: a sudden rise in March 2001 and a sharp decrease in July
2005 (Fig. 1). Both changes can be linked to reimbursement policies. In March 2001, cimetidine and ranitidine were switched from
‘restricted’ to ‘open benefit’ (without authorization, i.e. endoscopy
was no longer required). The drop in total volume of acid suppressants reimbursed in July 2005 can be linked to the introduction of
a policy restricting the use of omeprazole again. The publication
and distribution of evidence-based recommendations concerning
rational use of acid suppressants in September 2004 did not have a
distinguishable impact on the prescribed volume.
Box 1 Recommendations of the consensus report on rational use of acid suppressant drugs, September 2004 [7]
Patients with non-ulcer dyspepsia without alarm symptoms can be treated empirically using a step up approach starting with nonpharmacological treatment, followed by H2-antihistamines and then proton pump inhibitor (PPIs) for a limited period of time (4 weeks).
Patients with gastro-oesophageal reflux disease (GORD) can be treated with either a step-up or a step-down strategy.
Patients treated with NSAIDs and at high risk of gastrointestinal complications require association with a PPI in standard dose or double
dose of H2-antihistamines.
In the above-mentioned indications, PPIs and H2-antihistamines are both effective. PPIs are slightly more effective than H2-antihistamines
(number needed to treat 1–6), but PPIs are not first choice.
There is no evidence for superiority of one PPI over another.
public expenses
20 000 000
out of pocket
DDD
DDD/Euro
15 000 000
10 000 000
5 000 000
0
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199801
199711
199709
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199705
199703
199701
Year/Month
Figure 1 Consumption of acid suppressants in Belgium from 1997 to 2005. Reimbursed volume in defined daily doses (DDD), public and patients’
out-of-pocket expenses in Euro.
676
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Reimbursement policies and EBM
M.L. van Driel et al.
Figure 2 shows the evolution of the reimbursed DDD for omeprazole, non-omeprazole PPIs and H2-antihistamines separately.
Omeprazole accounts for the majority of prescriptions for acid
suppressants, peaking at approximately 12 million DDD (1300
DDD per 1000 inhabitants per month) in the first semester of 2005.
The data show that, following the lifting of restrictions for H2antihistamines in 2001, the growth of omeprazole consumption
came to a halt. For the first time since 1997 the consumption of H2antihistamines exceeded that of PPIs.
Until mid-2001 three PPIs were available on the Belgian market: omeprazole, lansoprazole and pantoprazole. Rabeprazole
was introduced in 2001 and esomeprazole in 2002. Omeprazole
accounted for the majority of prescribed DDD until mid-2002,
when non-omeprazole PPI volumes surpassed the omeprazole volume. This trend is reversed in the first quarter of 2003, after a new
policy lifted the restrictions on the use of omeprazole and rabeprazole. The result was a marked growth of omeprazole consumption.
The sharp drop in total prescribed volume in July 2005 (Fig. 1) can
be linked to the drop in consumption of omeprazole following the
reintroduction of restrictions for omeprazole (Fig. 2).
In Fig. 3, the prescribing pattern of gastroenterologists illustrates the shift from omeprazole to non-omeprazoles that occurred
in the period from 2001 to 2003. In this group of prescribers, since
the first quarter of 2002 and continuing throughout the study
period, the volume of prescribed non-omeprazole PPIs exceeds the
volume of omeprazole. The 2003 policy, allowing unrestricted
reimbursement of omeprazole and rabeprazole, did not reverse this
trend. The volume of H2-antihistamines prescribed by gastroenterologists remained very low and stable throughout the study period.
Discussion
This descriptive analysis of national claims-based prescribing data
for PPIs and H2-antihistamines in Belgium over a period of 9 years
shows that policy regulations are an important driver of prescribing, but the effects of these policies can be unintended. Publication
of an evidence-based report with recommendations for rational
use of acid suppressants did not have a clear impact on prescribing. These findings may have important implications, particularly
for policymakers and evidence-based guideline developers.
Throughout the study period, several different reimbursement
policies concerning acid suppressants have been implemented, but
they did not always result in the desired or intended effect on
consumption and costs. The first policy in March 2001 made two
H2-antihistamines available without authorization. By facilitating
the use of cheaper molecules, attention could be drawn away from
the more expensive PPIs and lead to cost saving. Indeed, the
consumption of H2-antihistamines increased, but not at the expense of PPI consumption. The net effect of this policy was a rise
of the total consumption of acid suppressants without marked cost
savings. The patent expiry of omeprazole in 2002 created opportunities for price reductions and cost-saving policies. By making
the cheapest PPI (omeprazole) available without restrictions, the
growth of the more expensive non-omeprazole PPIs could be
stopped. However, the result was not as expected. In anticipation
of this policy, which had been discussed in the media before it
came into effect, consumption of non-omeprazole PPIs, predominantly prescribed by gastroenterologists, had increased. The consumption of non-omeprazole PPIs even exceeded the volume of
12 000 000
omeprazole
Cimetidine
ranitidine
open benefit
Omeprazole
restricted
non-omeprazole PPI
H2-antihistamines
10 000 000
Arrows indicate
introduction of new
Omeprazole
rabeprazole
open benefit
Sum of DDD
8 000 000
non-omeprazole PPIs
6 000 000
4 000 000
2 000 000
Evidence
report
0
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199705
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199701
Year/Month
Figure 2 Evolution of reimbursed volume (DDD) of omeprazole, non-omeprazole PPIs and H2-antihistamines in Belgium for general practitioners,
internists and gastroenterologists from 1997 to 2005. DDD, defined daily doses; PPI, proton pump inhibitor.
© 2007 The Authors. Journal compilation © 2007 Blackwell Publishing Ltd
677
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M.L. van Driel et al.
250 000
Omeprazole
restricted
omeprazole
non-omeprazole PPI
Cimetidine
ranitidine
open benefit
H2-antihistamines
200 000
Sum of DDD
Omeprazole
rabeprazole
open benefit
150 000
100 000
Evidence
report
50 000
0
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199805
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199801
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Figure 3 Evolution of reimbursed volume (DDD) of omeprazole, non-omeprazole PPIs and H2-antihistamines for gastroenterologists in Belgium from
1997 to 2005. DDD, defined daily doses; PPI, proton pump inhibitor.
omeprazole. Once the policy was introduced in March 2003, the
consumption of non-omeprazole PPIs stabilized and the volume
of prescribed omeprazole increased more rapidly than before.
Owing to important price reductions for all acid suppressants,
public expenses ceased to increase, but still remained high. Failure of these policies to lead to meaningful cost reductions inspired
the last and most restrictive policy that was introduced in July
2005. By reversing the unrestricted reimbursement of omeprazole
and reintroducing the need for authorization (hence an endoscopy), both total reimbursed volume and public expenses
dropped.
Several factors, linked to the structure of the health care system
and the process of care, can explain the lack of success of the
policies [8,9]. The number of available packages of acid suppressants (per product, dosage and formulation), registered as National
Drug Codes (NDCs), increased from 24 in January 1997 to 147 in
November 2005: 153 new NDCs were introduced for reimbursement and only 30 were withdrawn. Controlling this rapidly
expanding market is a difficult task. Others have shown that, when
the number of products on the market rises, consumption increases
[10]. Mere availability of PPIs may have boosted consumption.
Successful marketing by the pharmaceutical industry of new molecules, mainly the non-omeprazole PPIs, will have contributed to
their rising popularity [11,12]. During a period when reimbursement regulations for omeprazole and non-omeprazole PPIs were
the same, the prescribed volume of the more expensive nonomeprazole PPIs managed to exceed the volume of omeprazole.
Patent expiry of omeprazole may have facilitated this shift. A
678
Dutch study also demonstrated that, after its patent expired in
April 2002, more patients switched from omeprazole to another
PPI [13]. There is no scientific evidence to underpin this switch.
Another factor related to the pay-for-performance structure of the
Belgian health care system could also have facilitated this
observed preference for non-omeprazole PPIs. Before March
2003, PPIs were only reimbursed if an endoscopy report was
available. Thus, patients were obliged to consult a gastroenterologist. In Belgium, doctors are remunerated on a fee-for-service
basis. Therefore, making omeprazole available without the need of
an endoscopic examination had a direct and tangible impact on the
income of gastroenterologists. After March 2003, authorization
was only required for non-omeprazole PPIs. Although the volume
prescribed by gastroenterologists is small compared with the total
volume of acid suppressants, they have an important influence on
other prescribers. They are opinion leaders and role models, and
their choice of medication is often continued in primary care
[14,15].
Finally, the growing popularity of PPIs over the past decade
cannot be explained solely by factors related to reimbursement. An
increase of the incidence of specific pathologies or indications for
acid suppressant treatment could justify the observed nearly threefold increase. A limitation of our study was that the prescription
data are not linked to clinical diagnoses. Therefore, we collected
data from other sources in order to understand the observed phenomena. A Belgian survey estimated that, in 1991, the prevalence
of patients using reimbursable anti-ulcer medication was 30.5 per
1000 inhabitants per year, and that 80% of these patients were
© 2007 The Authors. Journal compilation © 2007 Blackwell Publishing Ltd
Reimbursement policies and EBM
M.L. van Driel et al.
treated for a gastric or duodenual ulcer [16]. This epidemiological
pattern has changed over the past decade. In the Netherlands, Post
et al. observed a 50% decline in the incidence of gastric ulcer
between 1992 and 2003, that they attribute to the reduced incidence of H. pylori infection and increased use of PPIs [17]. The
latter may account for part of the growth in prescribed volume, but
more frequent indications for PPI use in clinical practice nowadays are gastro-oesophageal reflux disease (GORD) or non-ulcer
dyspepsia [18,19]. The prevalence of heartburn or regurgitation in
western countries is estimated at 10% to 20% [20,21] and, for
dyspepsia reports, range from 7% to 63% [22]. As for ulcer-related
diseases in the past, nowadays psychological factors are linked to
morbidity in dyspepsia and GORD and, consequently, to the need
for PPIs [22]. In addition, co-prescription of PPIs with NSAIDs
may account for some of the growth [23–25]. PPIs seem to have
found a new role as a ‘comfort’ or ‘lifestyle’ drug in a stressful
society [26,27].
Guidelines and recommendations underpinned by the best
available scientific evidence are a cornerstone of evidence-based
practice, but implementing them in clinical practice has been disappointing [2]. Interventions directly aimed at doctors [25–31] or
patients [32] can change prescribing behaviour, but publication of
practice recommendations without further reinforcement has little
effect [2]. Our data describe that policy regulations, and not the
publication of practice recommendations for acid suppressants,
influenced prescribing. It is possibly also because the practice
guidelines were published after the reimbursement regulations
were issued. These findings make a case for exploring the role of
policies in supporting implementation of evidence-based recommendations and the role of scientific evidence in designing policy
strategies. More studies with other classes of drugs and diagnostic
groups are needed to study these interactions between medical
evidence and policy regulations and their potential for success.
Could introducing the policy of 2003 (lifting reimbursement
restrictions for omeprazole) together with a clinical guideline have
been more successful in controlling consumption and costs? Could
integrating reimbursement policies with clinical guidelines support implementation of rational prescribing? Reimbursement policies are a strong driver of prescribing, but their effect can be
unintended and undesired. Piloting regulations on a small experimental scale or in specific target groups could help detect unintended effects and be useful in designing adequate and efficient
policies [33]. Likewise, publishing recommendations for clinical
practice without taking into account the policy context and harmonizing them with incentives, will not lead to rational prescribing
and better quality of care.
Conclusions
Although quality of care should rely on scientific evidence underpinning practice guidelines and recommendations, in our study,
prescribing follows policy regulations rather than clinical practice
recommendations, with several unintended effects. The policies in
our survey do not discriminate between rational and irrational use
of medication, and therefore cannot be regarded as a sufficient
instrument to improve quality of care. Ideally, policy regulations
should be designed according to an evidence-based methodology
and be able to guide, stimulate and facilitate the implementation of
guidelines. Stakeholders should make use of the available evi-
© 2007 The Authors. Journal compilation © 2007 Blackwell Publishing Ltd
dence to justify their positions. Integrating medical and policy
evidence may be a more effective and efficient way to achieve
better quality of care and public health.
Acknowledgement
The prescribing data were provided by the Belgian National Institute for Sickness and Invalidity Insurance (RIZIV-INAMI). No
funding was received for this study.
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