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c o m p u t e r m e t h o d s a n d p r o g r a m s i n b i o m e d i c i n e 1 2 1 ( 2 0 1 5 ) 14–20

journal homepage: www.intl.elsevierhealth.com/journals/cmpb

Building a National Electronic Medical Record


Exchange System – Experiences in Taiwan

Yu-Chuan (Jack) Li a , Ju-Chuan Yen a , Wen-Ta Chiu b , Wen-Shan Jian c ,


Shabbir Syed-Abdul a , Min-Huei Hsu a,d,∗
a Graduate Institute of Biomedical Informatics, College of Medical Science and Technology, Taipei Medical University,
Taipei, Taiwan
b Graduate Institute of Injury Prevention and Control, College of Public Health and Nutrition, Taipei Medical

University, Taipei, Taiwan


c School of Health Care Administration, Taipei Medical University, Taipei, Taiwan
d Ministry of Health and Welfare, Taipei, Taiwan

a r t i c l e i n f o a b s t r a c t

Article history: There are currently 501 hospitals and about 20,000 clinics in Taiwan. The National Health
Received 18 December 2014 Insurance (NHI) system, which is operated by the NHI Administration, uses a single-payer
Received in revised form system and covers 99.9% of the nation’s total population of 23,000,000. Taiwan’s NHI provides
26 April 2015 people with a high degree of freedom in choosing their medical care options. However, there
Accepted 28 April 2015 is the potential concern that the available medical resources will be overused. The number
of doctor consultations per person per year is about 15. Duplication of laboratory tests and
Keywords: prescriptions are not rare either. Building an electronic medical record exchange system is
Electronic medical record a good method of solving these problems and of improving continuity in health care.
Health information exchange In November 2009, Taiwan’s Executive Yuan passed the ‘Plan for accelerating the imple-
National Health Insurance mentation of electronic medical record systems in medical institutions’ (2010–2012; a 3-year
Health smart card plan). According to this plan, a patient can, at any hospital in Taiwan, by using his/her
health insurance IC card and physician’s medical professional IC card, upon signing a writ-
ten agreement, retrieve all important medical records for the past 6 months from other
participating hospitals. The focus of this plan is to establish the National Electronic Med-
ical Record Exchange Centre (EEC). A hospital’s information system will be connected to
the EEC through an electronic medical record (EMR) gateway. The hospital will convert the
medical records for the past 6 months in its EMR system into standardized files and save
them on the EMR gateway. The most important functions of the EEC are to generate an
index of all the XML files on the EMR gateways of all hospitals, and to provide search and
retrieval services for hospitals and clinics. The EEC provides four standard inter-institution
EMR retrieval services covering medical imaging reports, laboratory test reports, discharge
summaries, and outpatient records. In this system, we adopted the Health Level 7 (HL7)
Clinical Document Architecture (CDA) standards to generate clinical documents and Inte-
grating the Healthcare Enterprise (IHE) Cross-enterprise Document Sharing (XDS) profile for
the communication infrastructure.
By December of 2014, the number of hospitals that provide an inter-institution EMR
exchange service had reached 321. Hospitals that had not joined the service were all smaller
ones with less than 100 beds.


Corresponding author. Tel.: +886285906300.
E-mail addresses: jakk88@gmail.com (Y.-C. Li), 701056@gmail.com (M.-H. Hsu).
http://dx.doi.org/10.1016/j.cmpb.2015.04.013
0169-2607/© 2015 Elsevier Ireland Ltd. All rights reserved.
c o m p u t e r m e t h o d s a n d p r o g r a m s i n b i o m e d i c i n e 1 2 1 ( 2 0 1 5 ) 14–20 15

Inter-institution EMR exchange can make it much easier for people to access their own med-
ical records, reduce the waste of medical resources, and improve the quality of medical care.
The implementation of an inter-institution EMR exchange system faces many challenges.
This article provides Taiwan’s experiences as a reference.
© 2015 Elsevier Ireland Ltd. All rights reserved.

In recent years, Taiwan’s government has aggressively


1. Introduction developed various forms of eHealth, including tele-health [9],
HIE, and other services. HIE is one of the core components of
The WHO defines eHealth as “the use of information and eHealth. It can help a medical team make better and more
communication technologies (ICT) for health” [1]. Examples appropriate clinical decisions by utilizing the ICT technology
include treating patients, conducting research, educating the to transmit, in real time, patient’s health care information to
health workforce, tracking diseases and monitoring public any medical team that requires it. Past research indicated that
health. Because eHealth can increase the accessibility of med- an EMR system can help to increase the quality of medical
ical care and reduce costs, it can have a far-reaching impact, care, enhance patient safety, lower medical costs, and so on
particularly for developing countries and disadvantaged eth- [10,11].
nic groups [2]. The WHA held on May 23, 2005 in Geneva passed This article will share Taiwan’s implementation expe-
a eHealth Resolution (WHA 2005) urging member countries riences through its development strategies and current
to create eHealth development plans and an implementation achievements in promoting a nationwide EMR exchange sys-
focus [3]. tem.
Electronic medical records constitute a critical compo-
nent of eHealth. As governments commit to national EMR
systems, there is increasing international interest in devel- 2. Background
oping effective implementation strategies. Coiera identifies
three approaches to national EMR implementations, which There are currently 501 hospitals and about 20,000 clinics in
he categorizes as ‘top-down’, ‘bottom-up’ and ‘middle-out’ Taiwan. Medical expenses account for about 6–7% of the coun-
[4,5]. A top-down approach is directed by government, with try’s GDP, which is lower than the levels of OECD and regional
the central procurement of standardized healthcare IT sys- countries. The National Health Insurance system, which is
tems to replace existing diverse systems and the aim of operated by the National Health Insurance Administration,
centrally stored and shared EMRs. He gave England’s National uses a single-payer system and covers 99.9% of the nation’s
Programme for Information Technology (NPfIT) as an exem- total population of 23,000,000 [12]. Taiwan’s National Health
plar of this approach [6]. In contrast, the bottom-up model Insurance provides people with a high degree of freedom
relies on local healthcare organizations taking responsibility in choosing their medical care options, low medical service
for making their existing and any newly acquired healthcare costs, and excellent quality. It has received a higher than
IT systems compliant with interoperability standards. Multi- 80% satisfaction rate from the people, and is well praised by
ple EMRs are held locally, but the intention is that data will other countries [13,14]. However, the fast aging population,
become accessible from other settings as diverse local sys- increased demands on medical services and medicinal sup-
tems become integrated over time. Coiera presented the USA plies, as well as rising medical costs, have presented huge
as an example of this approach. The middle-out approach has challenges to the long-term operation of the National Health
elements of both the top-down and bottom-up strategies. It Insurance system. Because the system has no gate keeper,
combines local consultation, systems choice and investment the number of doctor consultations per person per year is
with central government support and nationally agreed inter- about 15. Duplication of laboratory tests and prescriptions
operability standards and goals. Local healthcare providers are not rare either [15]. Building an electronic medical record
retain responsibility for choosing their EHR systems and exchange system is a good method to solve these problems
for complying with national standards in order to exchange and to improve the continuity in providing medical care.
information with other healthcare providers. Coiera identi- The promotion of eHealth in Taiwan and the launch of
fied the Australian strategy of focusing on standards rather National Health Insurance are closely related. The electronic
than government implementations of IT as an example of the insurance claiming system was the first step for many med-
middle-out approach [7]. ical institutions in going electronic. Because of the National
Jha examined rates of electronic health record (EHR) use Health Insurance Administration’s active promotion efforts,
in ambulatory care and hospital settings, along with activities electronic claims quickly reached 100% in 2000, the sixth year
in health information exchange (HIE) in seven countries: the after the launch of the National Health Insurance program.
United States (U.S.), Canada, United Kingdom (UK), Germany, Moreover, because of the catalytic effect of the electronic
Netherlands, Australia, and New Zealand (NZ). They found claiming, many medical institutions started to digitize other
that many countries have achieved high levels of ambulatory functions as well. The promotion of the Health Insurance IC
EHR adoption but lagged with respect to inpatient EHR and card (Health Smart Card) is another important milestone of
HIE [8]. eHealth in Taiwan [16]. At the start of the National Health
16 c o m p u t e r m e t h o d s a n d p r o g r a m s i n b i o m e d i c i n e 1 2 1 ( 2 0 1 5 ) 14–20

Fig. 1 – All the hospitals and clinics are connected with the National Health Insurance Administration through Virtual
Private Networks (NHI VPN).

Insurance, paper-based health insurance cards were issued to Medical institutions in Taiwan can be classified as primary
each insured person. On the back of the paper-based health care clinics and hospitals. The hospitals can be further divided
insurance card, there were six spaces with codes. During each into district hospitals, regional hospitals, and medical centers
doctor consultation, the medical institution would stamp one according to their level of medical techniques, and capacity
of these spaces. However, even though this method could to provide medical services (from the lowest to the highest).
prevent fraudulent claiming, it also wasted paper and prin- The Taiwan Joint Commission on Hospital Accreditation con-
ting costs. In 2004, the Health Insurance IC card was issued ducts a re-assessment of a hospital’s classification once every
to replace the paper-based insurance card. Not only can the 3 years. Since the launch of the National Health Insurance
Health Insurance IC Card prevent fraudulent filing, but it can plan, the insurance claims have been almost completely dig-
also log medical information. In addition, all the hospitals itized. Relevant information is automatically uploaded to the
and clinics are connected with the National Health Insur- data center at the National Health Insurance Administration
ance Administration through Virtual Private Networks (VPNs) within 24 h after each doctor consultation and a summary
(Fig. 1). This infrastructure later became an important compo- report of all medical expenses is filed with the agency once
nent in implementing the nationwide EMR exchange system. every month.
In addition to the health insurance IC cards for the gen-
eral population, the Ministry of Health and Welfare also issued
medical personnel IC cards and established an electronic cer-
3. Design considerations tification center providing an electronic signature service. The
Ministry of Health and Welfare also established the ‘Reg-
Taiwan’s government started promoting an EMR system in ulations Governing the Creation and Management of EMR
2000. At the beginning it conducted trials with a single indi- Systems at Medical Institutions’ as the legal guidelines for the
vidual hospital or in a small area. Though the results indicated implementation of EMR systems by medical institutions.
that inter-institution EMR technology was feasible, because In November 2009, The Executive Yuan passed the ‘Plan for
the trials were focused on an individual hospital or a small accelerating the implementation of electronic medical record
area, they did not provide global infrastructure planning systems in medical institutions’ (2010–2012; a 3-year plan).
and good EMR exchange and communication mechanisms. When the plan is fully implemented, a patient will be able
Considering the high initial costs of building an EMR system to, at any one hospital, by using his or her health insur-
and the absence of immediate benefits, there were few incen- ance IC card and physician’s medical certificate IC card, upon
tives for medical institutions to implement an EMR system and signing a written agreement, retrieve complete important
EMR exchange. Thus, the nationwide implementation faced a medical records for the past 6 months from other participat-
great challenge. ing hospitals. The Ministry of Health and Welfare also set
c o m p u t e r m e t h o d s a n d p r o g r a m s i n b i o m e d i c i n e 1 2 1 ( 2 0 1 5 ) 14–20 17

Fig. 2 – According to Taiwan’s regulations, medical records created by computers should include digital signatures in order
to satisfy the definition of an EMR.

up an EMR Development Committee in 2010 to draft poli- and content of an EMR template used within the hospital
cies for promoting EMR systems, establish relevant exchange is not mandatory. Most hospitals have established their own
and communication standard specifications, approve annual medical records management committees. The content and
plans and assess the results. The EMR Development Commit- format of the paper-based medical records and EMRs should
tee consists of 20 members, including six government officials be approved by such a committee at each hospital.
(30%), 10 representatives from industry (including hospitals) Each hospital’s information system does not connect
(50%), and four members from academic research institutions directly with the EEC. Instead, an EMR gateway connects a
(20%). The deputy minister of the Ministry of Health and Wel- hospital’s information system to the EEC. Hospitals convert
fare serves as the chairperson of the committee. the past 6 months’ medical records in their EMR systems into
Concerning the protection of the privacy of health infor- standard files and save them on their EMR gateways. The most
mation, Taiwan does not have a set of regulations such as important functions of the EEC are to generate an index of
those of the HIPAA in the U.S [17,18]. However, there are clear all the XML files on the EMR gateways of all hospitals, and to
regulations included in the Medical Affair Act, and various provide search and retrieval services for all hospitals and clin-
specialized medical personnel laws such as the Physicians Act. ics. There are two versions of the EMR gateway. The one used
Taiwan has strict specialized laws for personal data protec- by hospitals is the standard version and is capable of storing
tion, which also contain regulations related to medical records a hospital’s own EMR XML files to be retrieved by other hospi-
and other health information. tals and clinics; it is also capable of retrieving others hospitals’
EMRs. Clinics use the simpler version, called Light Gateway,
which is only capable of retrieving EMRs from other hospitals
4. Description of method/system [23].
Currently, only four standard EMR exchange formats have
Digitalization of hospitals is the foundation for implementing been established, including medical imaging reports, lab-
inter-institution EMR exchange. Led by the National Health oratory test reports, discharge summaries, and outpatient
Insurance, hospital digitization has been widely adopted in records. The inter-institution exchange service is limited to
Taiwan. Most hospitals can reach levels 3 and 4 of the HIMSS these four types of medical records.
EMR Adoption Model [19]. According to Taiwan’s regulations, The EMR exchange mechanism allows a patient, using a
medical records created by a computer system should include health insurance IC card, to ask a doctor at hospital A to
digital signatures in order to satisfy the definition of an EMR retrieve his or her medical records from hospital B. The patient
[20,21] (Fig. 2). EMR systems implemented by Taiwan’s hospi- scan sign a written agreement to authorize the doctor at hospi-
tals use a template-based filing system. The admission note, tal A to retrieve his/her medical records from hospital B (Fig. 3).
discharge summary, operation note, etc., each count as one After retrieving the records using the indexing system, if the
template [22]. A hospital in Taiwan could use hundreds of doctor wants to save the records at hospital A, he must ask for
different medical record templates. Each and every template further consent from the patient.
used by a hospital needs to be reported to and filed with the In this system, we used the HL7 CDA, Release 2 standards
local health bureau. Once the filing is completed, the hos- to generate clinical documents and the IHE XDS profile for
pital is qualified to connect with the national EEC and no the communication infrastructure [24,25]. The EMR gateway
longer needs to print out paper-based medical records. The received clinical documents from the hospital information
EMR systems in the hospitals should comply with require- system, registered the metadata to the document registry
ments related to the regulations governing the creation and (EEC), and stores them for 6 months. EEC stores metadata
management of EMRs. The standard concerning the format about each document stored in a repository (EEC gateway),
18 c o m p u t e r m e t h o d s a n d p r o g r a m s i n b i o m e d i c i n e 1 2 1 ( 2 0 1 5 ) 14–20

Fig. 3 – The EMR exchange mechanism allows a patient, using a health insurance IC card, to ask a doctor at hospital A to
retrieve his/her medical records from hospital B.

including its source or location. There may be multiple reposi- the number of hospitals that provide an inter-institution EMR
tories of documents indexed, but only one registry per clinical exchange service had reached 321. The hospitals that had not
domain. Patient identification service was carried out by the joined the service were all smaller ones with less than 100
NHI administration (Fig. 4). beds.
Inter-institution EMR exchange is the Holy Grail for the
promotion of eHealth. It took 10 years to make the inter-
5. Lessons learned institution EMR exchange possible in Taiwan. During this
period of time, essential components were completed one by
Inter-institution EMR exchange can make it much easier for one – from the popularization of hospital information systems
people to access their own medical records, reduce the waste to the development of EMR’s basic modules, the setup of a
of medical resources, and improve the quality of medical care. Healthcare Certification Authority (HCA), and the establish-
An EMR system that complies with the regulations of the law is ment of regulations governing the creation and management
the most important infrastructure [26]. By December of 2014, of EMR systems at medical institutions. The inter-institution

Fig. 4 – IHE XDS is adopted as the technical frameworks.


c o m p u t e r m e t h o d s a n d p r o g r a m s i n b i o m e d i c i n e 1 2 1 ( 2 0 1 5 ) 14–20 19

EMR exchange in Taiwan uses the health insurance IC card other value-added applications such as developing a self-
as the certification for data retrieval. It also utilizes the VPN managed health management app based on the PHR [29]. A
technology used previously for filing health insurance claims, PHR will be integrated with an EMR and data from tele-health
thus reducing repeated investment costs. services in order to satisfy the 4P characteristics (preventive,
Digitization of hospitals is an important foundation for predictive, participatory, and personalized) of the next gener-
promoting EMR exchange. The implementation of inter- ation of medical care service [30,31].
institution EMR exchange is only possible when good EMR
systems are available at all hospitals. EMR systems offer good
incentives to hospitals by eliminating the need to print paper Conflict of interests
records, thus saving the costs of purchasing paper and prin-
ting. They can also help to reduce other administrative costs. The authors declare that there is no conflict of interests
In Asia, there are many large hospitals with more than 1000 regarding the publication of this article.
beds which also serve more than 10,000 outpatients each day.
Using paper medical records, the task of accurately retrieving
10,000 medical records, distributing them to each doctor, col- references
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