0 Introduction
Australia's health system is complex. It can perhaps be best described as a 'web': a web
of services, providers, recipients and organisational structures.
This chapter looks at the many components of the Australian health system, how they are
organised and funded, and how they are delivered to, and used by, Australians.
While for many Australians most of their contact with the health system involves a visit to
a GP or pharmacist, these services are part of a much broader and complex network.
Complexity is unavoidable in providing a multi-faceted and inclusive approach to meeting
the health system needs of Australia's many and varied residents, when those needs are
shaped by many and varied factors, including gender, age, health history and behaviours,
location, and socioeconomic and cultural background.
Behind the scenes of the health system is a network of governance and support
mechanisms that enable the policy, legislation, coordination, regulation and funding
aspects of delivering quality services. Governance, coordination and regulation of
Australia's health services is a big job, and is the joint responsibility of all levels of
government, with the planning and delivery of services being shared between
government and non-government sectors.
As one might expect, a system of this scale and complexity costs. In 2011-12, health
spending in Australia was estimated to be $140.2 billion, or 9.5% of GDP. The amount
was around 1.7 times as high as in 2001-02, with health expenditure growing faster than
population growth.
This growth can be attributed in part to societal changes such as population ageing, and
to increased prevalence of chronic conditions, diseases and risk factors. Personal
incomes, broader economic trends and new technologies also affect spending on health.
In summary, our health does not exist separate to the rest of our society. Rather, the two
are intertwined, and our nation's spending on health services reflects this.
Our health as a nation depends on our health as individuals-and vice versa. A 'healthy'
health system, therefore, is fundamental to our national - and personal - wellbeing and
prosperity.
base decisions and policies, and well-maintained facilities and logistics to deliver quality
medicines and technologies (WHO 2013a).
Australia's health-care system is a multi-faceted web of public and private providers,
settings, participants and supporting mechanisms. Health providers include medical
practitioners, nurses, allied and other health professionals, hospitals, clinics and
government and non-government agencies. These providers deliver a plethora of services
across many levels, from public health and preventive services in the community, to
primary health care, emergency health services, hospital-based treatment, and
rehabilitation and palliative care.
Public sector health services are provided by all levels of government: local, state,
territory and the Australian Government. Private sector health service providers include
private hospitals, medical practices and pharmacies.
Although public hospitals are funded by the state, territory and Australian governments,
they are managed by state and territory governments. Private hospitals are owned and
operated by the private sector. The Australian Government and state and territory
governments fund and deliver a range of other health services, including population
health programs, community health services, health and medical research, Aboriginal and
Torres Strait Islander health services, mental health services, and health infrastructure
(see Chapter 8).
Navigating your way through the 'maze' of health service providers and responsibilities
can be difficult (Consumers Health Forum of Australia 2013). Figure 2.1 provides an 'at a
glance' picture of the main services, funding responsibilities and providers. Health funding
and the composition of the workforce are covered in detail in a separate article and
snapshot in this chapter, but an overview is provided here to outline the main elements of
Australia's health system.
Figure 2.1: Health services-funding and responsibility
Note: The inner segments indicate the relative size of expenditure in each of the 3 main sectors of the
health system ('hospitals', 'primary health care', and 'other recurrent'). The middle ring indicates the
relative expenditure on each service in the sector (shown by the size of each segment) and who is
responsible for delivering the service (shown by the colour code). The outer ring indicates the relative size
of the funding (shown by the size of each segment) and the funding source for the difference services
(shown by the colour code). For more detail, refer to the main text.
The inner segments show the relative size of the expenditure in each of the main sectors
of the health system, being hospitals, primary health care and other recurrent areas of
expenditure. In the case of the hospital sector, this includes all services provided by
public and private hospitals. Primary health care includes a range of front-line health
services delivered in the community, such as by a GP, physiotherapy and optometry
services, dental services and all community and public health initiatives. It also includes
the cost of medications not provided through hospital funding. The category 'other
recurrent' includes areas of recurrent spending that were not paid for by hospitals but
that were not delivered through the primary health care sector, such as medical services
other than those provided by general practitioners, medical research, health aids and
appliances, patient transport services and health administration. It is important to note
that these examples are not exhaustive, and each group of services consists of many
types of activities.
The middle ring indicates the relative expenditure on the specific service types within
each sector, and who delivers the service.
The outer ring shows the funding source for the different services and the relative size of
the funding.
For more detailed information about expenditure, see 'How much does Australia spend on
health care?' in this chapter.
The colour coding in the figure shows whether the service is provided by the private
sector, public sector, or both. Private sector providers include private hospitals, medical
practices and pharmacies. Public sector provision is the responsibility of state and
territory governments for public hospitals, and a mixture of Australian Government and
state, territory and local governments for community and public health services.
75 per cent of the Medicare Schedule fee for services and procedures if you are a
private patient in a public or private hospital (does not include hospital accommodation
and items such as theatre fees and medicines)
medical and hospital services which are not clinically necessary, or surgery solely
for cosmetic reasons
ambulance services (PHIO 2013).
While Medicare benefits are generally not available for medical treatment a person
receives overseas, the Australian Government has signed Reciprocal Health Care
Agreements to help cover the cost of essential medical treatment (Department of Human
Services 2013c) for Australians visiting certain countries.
Medicare and medical services
When a person visits a doctor outside a hospital, Medicare will reimburse 100% of the
MBS fee for a general practitioner and 85% of the MBS fee for a specialist. If the doctor
bills Medicare directly (bulk-billing), the patient will not have to pay anything (PHIO
2013). If the doctor charges more than the MBS fee, the patient has to pay the
difference.
Medical costs that Medicare does not cover include:
ambulance services
help patients receive more seamless care across sectors of the health system
improve the quality of care patients receive through higher performance
standards, unprecedented levels of transparency and improved engagement of local
clinicians
provide a secure funding base for health and hospitals into the future (AHMAC
2013).
The Standing Council's major focus is on achieving 'a better health service and a more
sustainable health system for Australia', and on closing the gap between Indigenous and
non-Indigenous Australians (AHMAC 2013). Its areas of responsibility cover:
Indigenous health
mental health
health workforce
aged care
protect the public by ensuring that only suitably trained and qualified practitioners
are registered
facilitate workforce mobility across Australia
Chinese medicine
chiropractic
dental practice
medicine
occupational therapy
optometry
osteopathy
pharmacy
physiotherapy
podiatry
References
ABS (Australian Bureau of Statistics) 2013. Year Book Australia, 2012. Health care
delivery and financing. Canberra: ABS. ABS cat. no. 1301.0. Viewed 24 January 2014.
AHMAC (Australian Health Ministers' Advisory Council) 2013. Australian Health Ministers'
Advisory Council. Canberra: AHMAC. Viewed 13 August 2013.
AIHW (Australian Institute of Health and Welfare) 2008. Review and evaluation of
Australian information about primary health care: a focus on general practice. Cat. no.
HWI 103. Canberra: AIHW.
AIHW 2010. Australia's health 2010. Cat. no. AUS 122. Canberra: AIHW.
AIHW 2012. Australia's health 2012. Cat. no. AUS 156. Canberra: AIHW.
AIHW 2013a Australia's hospitals 2011-12: at a glance. Health services series no. 49.
Cat. no. HSE 133. Canberra: AIHW.
AIHW 2013b. Health expenditure Australia 2011-12. Health and welfare expenditure
series no. 50. Cat. no. HWE 59. Canberra: AIHW.
Australian Government 2010. A national health and hospitals network for Australia's
future-delivering better health and better hospitals. Canberra: Commonwealth of
Australia.
Australian Government 2013. What is a Medicare Local? Canberra: Australian
Government. Viewed 10 October 2013.
Consumers Health Forum of Australia 2014. Practice nurses and superclinics-why not
both? Viewed 11 November 2013.
Department of Health 2013a. Closing the gap: tackling Indigenous chronic disease.
Canberra: Department of Health. Viewed 23 January 2014.
Department of Health 2013b How much am I charged for non-PS items? Canberra:
Department of Health, Viewed 28 November 2013.
Department of Health 2013c. National Registration and Accreditation Scheme
(NRAS). Canberra: Department of Health. Viewed 10 October 2013.
Department of Health 2013d. Patient charges. Canberra: Department of Health. Viewed
19 November 2013.
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Viewed 28 November 2013.
Department of Health 2013f. What is a personally controlled electronic (eHealth)
record? Viewed 28 November 2013.
Department of Human Services 2012. RPBS prescribing provision. Canberra: Department
of Human Services. Viewed 5 December 2013.
Department of Human Services 2013a. Chronic disease management plan. Canberra:
Department of Human Services. Viewed 23 December 2013.
Department of Human Services 2013b. Medicare for providers. Canberra: Department of
Human Services. Viewed 24 January 2013.
Department of Human Services 2013c. Reciprocal Health Care Agreements. Canberra:
Department of Human Services. Viewed 5 December 2013.
Department of Human Services 2014. About Medicare. Canberra: Department of Human
Services. Viewed 21 January 2014.
DoHA (Department of Health and Ageing) 2011. Local Hospital Networks. Canberra:
Department of Health and Ageing. Viewed 3 October 2013.
DoHA 2012. Telehealth. Canberra: Department of Health and Ageing. Viewed 28
November 2013.
DVA (Department of Veterans' Affairs) 2012. Repatriation Pharmaceutical Benefits
Scheme. Canberra: DVA. Viewed 2 September 2013.
Fox, S and Duggan. M. 2013. Tracking for health. Washington, DC: Pew Internet &
American Life Project: Viewed 4 December 2013.
Government of Western Australia Department of Health 2013. What is primary health
care? Perth: Government of Western Australia. Viewed 28 November 2013.
Nicholson C 2012. Development of a framework for integrated primary/secondary health
care governance in Australia. Presentation at Australian Government Department of
Health and Ageing, 17 July 2012.
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review of health interventions for physical activity and dietary behaviour change.
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Department of Health. Viewed 5 December 2013.
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November 2013.
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November 2013.
average rate of 5.4% per year over the last decade, while GDP has grown at a slower
rate of 3.1% per year.
Figure 2.2: Total health expenditure to GDP ratio, 1986-87 to 2011-12
Health has become a larger part of the economy, which is not unique to Australia. Using
the Organisation for Economic Co-operation and Development's (OECD) methods, in
2011-12, Australia's health expenditure to GDP ratio was slightly above average
compared with other OECD countries (Figure 2.3). Australia's position within the OECD
has not changed significantly over recent years as the ratio for other countries has also
increased.
Figure 2.3: Health expenditure as a proportion of GDP, selected OECD countries,
2011
a.
Includes general practitioner and vocational registrar services, practice nurses, enhanced primary
care services and other unreferred attendances.
b.
Includes recurrent expenditure not paid for directly by hospitals but that was not delivered in the
primary health care sector, such as all medical services except general practitioner and vocational
registrar services, practice nurses, enhanced primary care services and other unreferred attendances.
Source: AIHW health expenditure database.
The second largest component of health spending was for primary health care services
($50.6 billion, or 36.1% of total health expenditure). Primary health care includes a
range of front-line health services delivered in the community, such as GP services,
dental services, other health practitioner services (for example, physiotherapists,
optometrists), and all community and public health initiatives. It also includes the cost of
medications not provided through hospital funding.
The remaining health spending was for other recurrent ($28.3 billion, or 20.2% of total
health expenditure) and capital expenditure ($7.9 billion, or 5.6% of total health
expenditure). The category 'other recurrent' includes areas of recurrent spending that
were not paid for by hospitals but that were not delivered through the primary health
care sector, such as medical services other than those provided by general practitioners,
medical research, health aids and appliances, patient transport services and health
administration.
The distribution of funding by the Australian Government, state and territory
governments and the non-government sector varies depending on the area of health
expenditure (Figure 2.5).
Hospital services (both public and private) received a total of $53.5 billion in 2011-12.
The main funding sources were state and territory governments ($22.9 billion, or 42.8%
of total hospital funding) and the Australian Government ($19.5 billion, or 36.5%). Nongovernment sources provided an additional $11.1 billion (20.7%).
Primary health care services received $50.6 billion in funding, slightly less than
hospital services. The Australian Government was the main funder, providing $23.1 billion
(45.7% of total primary health care funding), followed by the non-government sector
($20.4 billion, or 40.3%), and the state and territory governments ($7.1 billion, or
14.0%).
An additional $28.3 billion of funding was provided for other recurrent components of
the health system while funding for health infrastructure (capital expenditure) was
$7.9 billion. The main source of funding for other recurrent health care goods and
services was the Australian Government, providing $16.5 billion or 58.5% of other
recurrent health funding, while the non-government sources provided $8.5 billion
(30.2%) and states and territories provided the remaining $3.2 billion (11.3%).
The state and territory governments provided close to two-thirds (65.1%) of the funding
for capital expenditure.
Figure 2.5: Total health expenditure, by area of expenditure and source of
funds, 2011-12
In 2010-11, the total amount spent on health goods and services for Aboriginal and
Torres Strait Islander people was estimated at $4.6 billion, or 3.7% of Australia's total
recurrent health expenditure. (Expenditure for Aboriginal and Torres Strait Islander
people includes expenditure for Indigenous- specific health programs as well as a portion
of the expenditure from mainstream health programs.)
This equated to $7,995 per Indigenous person, which was around 1.5 times the $5,437
spent per non-Indigenous Australian in the same year.
In 2010-11, publicly provided services such as public hospital and community health
services were the highest expenditure areas for the Indigenous population. For example,
the average per person expenditure on public hospital services for Indigenous Australians
($3,631) was more than double that for non-Indigenous Australians ($1,683).
For health services that have a greater proportion of the costs funded through out-ofpocket payments, such as pharmaceuticals and dental services, Indigenous expenditure is
generally lower relative to the non-Indigenous population. For example, the average per
person expenditure on dental services was $149 for Indigenous Australians, compared
with $355 for non-Indigenous Australians.
A significant proportion of Aboriginal and Torres Strait Islander people live
in Remote and Very remote areas and this has an effect on the cost of delivering goods
and services. In 2010-11, it was estimated that $6,625 was spent per Indigenous person
in Remote/Very remote regions, compared with $3,904 per Indigenous person in Major
cities.
Who pays for health and how has this changed over
time?
Funding for health goods and services comes from a range of sources, including the
Australian Government; state, territory and local governments; and non-government
sources, such as private health insurers, out-of-pocket payments by individuals and
injury compensation insurers. Decisions about where and when money is spent on health
often involve interactions between multiple bodies, including funders, providers and
consumers.
Expenditure from all sources of funds has increased over the past decade (Figure 2.7).
Governments have remained the dominant source of funding for health in Australia, with
the Australian Government continuing to provide the majority of health funding. The
share of funding provided by the Australian Government has declined, however, and so
has the share provided by non-government sources, which includes individual out-ofpocket expenditure. The share provided by state and territory governments has
increased.
In 2011-12, governments funded $97.8 billion, or 69.7% of total health expenditure
($140.2 billion) in Australia. The Australian Government contributed $59.5 billion, while
the state and territory governments contributed $38.3 billion (Figure 2.7 and 2.8).
The Australian Government's contribution to total health expenditure dropped from
44.0% in 2001-02 to 42.4% in 2011-12. The state and territory contribution grew
steadily from 23.2% to 27.3% over the same period (Figure 2.8).
In 2011-12, non-government sources (individuals, private health insurance and other
non-government sources) funded $42.4 billion, or 30.3%, of total health expenditure in
Australia. This was down from 32.8% in 2001-02.
Figure 2.7: Total health expenditure, by source of funds, constant prices, 200102 to 2011-12 ($ million)
The largest share of non-government funding, $24.3 billion, was directly from individuals.
Private health insurers funded $11.2 billion of health expenditure in 2011-12. Most of this
funding was also sourced from individuals through private health insurance premiums.
Despite total expenditure growing faster than the broader economy, the main funders of
health have not necessarily been spending a higher proportion of their incomes or
revenues on health. Prior to the global financial crisis (GFC), which had its beginnings in
2007-08, the ratio of all government health expenditure to taxation revenue was
relatively stable at around 20% (Figure 2.9). That suggests that, in broad terms,
government revenues were increasing at the same rate as health expenditure. While the
ratio of expenditure to GDP was increasing, the ratio to government revenues was
relatively stable.
The GFC slowed government revenues without having an immediate impact on health
expenditure. This increased the health to revenue ratio. The ratio has decreased slightly
since 2009-10 as growth in government tax revenues has increased again. In 2011-12,
the ratio of government health expenditure to taxation revenue was 25.6%.
Figure 2.9: The ratio of health expenditure to tax revenue across all
governments, current prices, 2001-02 to 2011-12 (per cent)
past 25 years health expenditure in Australia has risen at a faster rate than either
population growth or ageing.
Figure 2.10: Allocated health expenditure per person, by age and sex, 2008-09
expenditure that may have a 'health' outcome but that is incurred outside the
health sector (such as expenditure on building safer transport systems, removing lead
from petrol, and educating health practitioners)
expenditure that does not have health as the main area of expected benefit.
There are some data limitations in the AIHW health expenditure database, including:
There are some areas of expenditure for which data sources could be improved.
For example, over-the-counter pharmaceuticals spending in Australia currently has no
systemised data collection.
There is a lack of health outcome measures that can be linked with health
expenditure to assess the effectiveness of Australia's health care system.
A particularly important gap in the available data is estimates of how much money is
spent on particular diseases, with the most recent estimates being from 2008-09. Not all
health expenditure can be readily allocated to disease or injury groups-in 2008-09, the
figure was around 30% of recurrent health expenditure. This included capital
expenditure, expenditure on non-admitted patients, over-the-counter pharmaceuticals,
patient transport services, aids and appliances, administration, most community and
public health services, and other health practitioner services.
Disease expenditure information, while useful in its own right, does not necessarily give
an indication of the loss of health due to that disease, the priority for intervention, or the
need for additional expenditure.
Where do I go for more information?
Further information on health expenditure in Australia is available on the AIHW website.
Health expenditure Australia 2011-12 (AIHW 2013a) contains detailed information and
analyses of health expenditure and funding in Australia.
Expenditure on health for Aboriginal and Torres Strait Islander people 2010-11 (AIHW
2013b) provides estimates on health expenditure for Aboriginal and Torres Strait Islander
people.
Expenditure on health for Aboriginal and Torres Strait Islander people: an analysis by
remoteness and disease (AIHW 2013c) complements the preceding report and provides
disaggregated expenditure estimates at the regional level as well as for specific disease
and injury groups. These reports are available for free download. Further information on
health expenditure can also be found in the online data tables and cubes.
This publication provides the most recent estimates of disease expenditure in Australia
(2008-09). Further information on disease expenditure in Australia is available on the
AIHW website.
References
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2011-12. Health and welfare expenditure series no. 50. Cat. no. HWE 59. Canberra:
AIHW.
AIHW 2013b. Expenditure on health for Aboriginal and Torres Strait Islander people
2010-11. Health and welfare expenditure series no. 48. Cat. no. HWE 57. Canberra:
AIHW.
AIHW 2013c. Expenditure on health for Aboriginal and Torres Strait Islander people
2010-11: an analysis by remoteness and disease. Health and welfare expenditure series
no. 49. Cat. no. HWE 58. Canberra: AIHW.
Calver J, Bulsara M & Boldy D 2006. In-patient hospital use in the last years of life: a
Western Australian population-based study. Australian and New Zealand Journal of Public
Health 30:143-6.
Coory M 2004. Ageing and healthcare costs in Australia: a case of policy-based evidence?
Medical Journal of Australia 180:581-3.
Garnaut R 2008. The great crash of 2008. Melbourne University Press.
Goss J 2008. Projection of Australian health care expenditure by disease, 2003 to 2033.
Health and welfare expenditure series no. 36. Cat. no. HWE 43. Canberra: AIHW.
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in New South Wales in the last year of life. Medical Journal of Australia 187:383-6.
OECD (Organisation for Economic Co-operation and Development) 2000. A system of
health accounts, version 1.0. Paris: OECD.
OECD 2010. 'Health care systems: getting more value for money'. OECD Economics
Department policy notes, No. 2. Paris: OECD.
OECD 2013. 'What future for health spending?' OECD Economics Department policy
notes, No. 19 June 2013. Paris: OECD.
Productivity Commission 2005. Economic implications of an ageing Australia. Research
report. Canberra: Productivity Commission.
Productivity Commission 2013. An ageing Australia: preparing for the future. Productivity
commission research paper. Canberra: Productivity Commission.
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Canberra: Treasury.
Nurses and midwives are the largest group in the health workforce, with 290,144 nurses
and midwives employed in 2012 (Table 2.1). The number of full-time equivalent nurses
and midwives employed for every 100,000 people is almost 3 times that of the next
largest profession, medical practitioners. In 2012, there were 1,124 full-time equivalent
nurses and midwives employed for every 100,000 people. There were 374 medical
practitioners and, in other examples, 85 psychologists and 15 podiatrists.
Table 2.1: Employed health practitioners 2012
Practitioner type
Nurses and midwives
Medical practitioners
a.
b.
FTE rate(a)
1,124
374
Pharmacists
89
Psychologists
85
Physiotherapists
80
74
47
Occupational therapists
45
Optometrists
17
Chiropractors
16
Podiatrists
15
13
Osteopaths
FTE rate is the full-time equivalent number of employed per 100,000 population.
Full-time equivalent number is based on a 38-hour week except for medical practitioners where it
is based on a 40-hour week.
Source: National Health Workforce Data Set 2012.
The number of nurses and midwives and dental practitioners has increased significantly in
the last few years. For example, the number of full-time equivalent medical practitioners
employed rose by 16% from 2008 to 2012 and the number of nurses and midwives rose
Males
Females
2001
169,673
623,718
2006
204,501
751,649
2011
a.
245,315
922,318
Based on the Australian and New Zealand Standard Industrial Classification (ANZSIC) 2006,
Revision 1 released in 2008. Data for 2001 and 2006 have been concorded.
Source: ABS 2012.
International comparisons
Australia has a similar number of practising medical practitioners per capita as the OECD
average and a higher per capita number of practising nurses (Figure 2.11). International
comparisons are affected by different regional distributions, scopes of practice and by
different hours worked in the various countries.
Geographic distribution
The concentration of health professionals in Major cities is greater than that for
the broader population (Figure 2.12).
The exception is Aboriginal and Torres Strait Islander health practitioners, where
the full-time equivalent rate of employed practitioners is greatest in Remote and Very
remote areas.
Figure 2.11: Practising medical practitioners and nurses, selected countries,
2011
Note: Data include not only those providing direct care to patients, but also those working in the health
sector as managers, educators, researchers.
Source: OECD 2013.
1,1
The data presented here do not account for the demand for health care or consider
changes in the productivity of the workforce. In the future, longitudinal data from the
National Registration and Accreditation Scheme, introduced in 2010, may enable a better
understanding of the movement of different types of health professionals between work
areas and geographical areas.
Where do I go for more information?
More information on the health workforce is available in the following AIHW reports,
which are available for free download:
Allied health workforce 2012,
Dental workforce 2012,
Medical workforce 2012, and
Nursing and midwifery workforce 2012.
Figure 2.12: Proportion of selected health practitioners employed in Major
cities, 2012
References
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