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J Nurs Care Qual

Vol. 00, No. 00, pp. 1–7


Copyright c 2017 Wolters Kluwer Health, Inc. All rights reserved.

Work Intensification and Quality


Assurance
Missed Nursing Care
Eileen Willis, PhD; Clare Harvey, PhD, RN;
Shona Thompson, PhD; Maria Pearson, MPhEd;
Alannah Meyer, MN, RN

This article examines nurses’ commentaries from a survey conducted in New Zealand that studied
contradictions between quality assurance and work intensification in nursing care. Nurse man-
agers were blamed for either avoiding or not recognizing work intensification affecting quality
care delivery. However, the data illustrate key structural issues resulting in missed care that impact
on patient safety, rather than a problem directly attributable to managers. Until these structural
issues are addressed, missed care and adverse events will continue to affect the quality of care.
Key words: missed care, New Zealand, nurse managers, quality assurance, risk, work inten-
sification

D ATA presented in this article come from


a survey that expanded on the MISS-
CARE questionnaire1 by exploring the rea-
The qualitative results showed that nurses on
the unit directed blame for missed care at man-
agement (nurse managers, senior members of
sons why nurses avoid, delay, or leave care clinical directorates, and district health boards
undone. The survey targeted New Zealand2 [DHB]) who were perceived to be responsi-
nurses during 2015-2016 and was promoted ble for poor staffing levels and being out of
through the Nursing Council of New Zealand. touch with the pace of clinical work. These
comments led us to consider the tensions be-
tween nurses’ observations about their work-
place and the care they reported as missed,
Author Affiliations: College of Nursing and Health the intensification of their labor, issues of qual-
Sciences, Flinders University, Adelaide, Australia (Dr ity assurance, and their identification of man-
Willis); School of Nursing and Midwifery, Central agers as the problem.
Queensland University, Queensland, Australia (Dr
Harvey); and School of Nursing (Dr Thompson and
Ms Meyer) and School of Recreation and Sport and MISSED CARE: EVIDENCE FOR WORK
School of Nursing (Ms Pearson), Eastern Institute of
Technology, Taradale, Hawke’s Bay, New Zealand. INTENSIFICATION
The authors declare no conflicts of interest.
The phenomenon of missed or rationed
Supplemental digital content is available for this article. care is not new.3,4 In these studies, nurses
Direct URL citations appear in the printed text and are
provided in the HTML and PDF versions of this article identify lack of staffing, unexpected rise in
on the journal’s Web site (www.jncqjournal.com). patient acuity, or too few resources as key
Correspondence: Eileen Willis, PhD, College of Nurs- determinants in missed care. In the study by
ing and Health Sciences, Flinders University, GPO Blackman et al,5 a path analysis illustrated
Box 2100, Adelaide SA 5001, Australia (Eileen.willis@ the implications of unexpected events (eg, a
flinders.edu.au).
patient admitted, discharged, or with a sud-
Accepted for publication: June 1, 2017 den illness, or a lack of equipment) on the
Published ahead of print: August 24, 2017 pace of work, overtime, and consequent ra-
DOI: 10.1097/NCQ.0000000000000277 tioned care, arguing that for publically funded
1

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2 JOURNAL OF NURSING CARE QUALITY/00 2017

hospitals, missed care is well beyond the con- and/or DHB who themselves are subject
trol of local managers and more to do with to government budget constraints.13 Overall,
productivity and efficiency targets set by gov- quality in public hospitals is now defined by
ernments. From the first study by Kalisch et metrics such as patient length of stay and de-
al1 in 2009, there is a common thread of work termined by a particular case mix, as well
intensification, defined as both an increase in as by unpredictable events such as readmis-
the pace of work and the number of hours sion rates or the waiting times for elective
spent on the job. This is seen across all coun- surgery.14
tries, regardless of how the health care system As well as this, the Care Capacity Demand
is organized. It occurs whether the nursing Management (CCDM) program is in place in
work is in the acute, aged care, or commu- New Zealand. This initiative is a government
nity sectors, public or private. There also is a and multi-union agreement to staff hospitals
consistency in results with medically ordered based on patient acuity and demand. It has
tasks less often missed, than nurse directed had considerable resource input from gov-
tasks.6 In one Australian study, these tasks ernment in recognition that work intensifica-
were organized according to Alfaro-Lefever’s7 tion is a major factor impacting on patient
hierarchy of nursing tasks with missed care re- safety and quality outcomes. In the 2015 eval-
sults consistent with her typology as outlined uation of the CCDM rollout across the DHB,
in Supplemental Digital Content Table, avail- Henry and colleagues15 reported strong evi-
able at: http://links.lww.com/JNCQ/A356.7-11 dence linking adequate staffing levels and ap-
In the public sector, work intensification is propriate skills mix on patient/nurse sensitive
seen as a direct outcome of neoliberal ide- outcomes. A key component of the CCDM ap-
ology with the introduction of new public proach is the variance indicator, which high-
management (NPM), a managerial practice lights the gap between staffing capacity and
whereby the competitive practices of the pri- requirements of care tasks in real time, mea-
vate sector are introduced into government- sured through the use of a commercial tool for
run services. This is the case in New Zealand predicting nurses’ workload.16 This tool pro-
where the health system is predominantly vides a trigger for managers to move nurses
government funded. Any permanent resident, across the hospital to areas of higher work
refugee, or citizen is eligible for free hospital intensification.
and community care services, including phar- The relationship between work intensi-
maceutical subsidies and disability support. fication, quality assurance, patient safety,
Private health insurance is optional, affording adverse events, and rationed/missed care has
those who choose it access to private hospi- been at the forefront of nurse research over
tals and choice of medical care. Within the the last decade. For example, Schubert and
public-funded system, NPM structures are in colleagues17 have done considerable research
place. The government has divested author- on rationed care, a concept closely aligned to
ity to manage allocated funding to the DHB, missed care. The RN4Cast consortium made
which are responsible for managing regional a strong argument in support of the impact of
health care. Outcomes are made public on a the working environment on quality patient
quarterly basis, with DHB ranked by perfor- outcomes, noting that workforce planners
mance for each specified target.12 failed to take account of nurse numbers and
New public management has changed the skill mix.18 Work on the relationship be-
way government and not-for-profit hospitals tween work intensification and patient safety
are managed, taking them from public ser- goes back even further, with Aiken et al19
vices to market-based business units,13 with exploring the impact of nurse shortages on
responsibility for quality and patient out- patient outcomes, including nurse-sensitive
comes transferred from health care profes- outcomes. These studies demonstrated
sionals to managers in clinical directorates relationships either between the number of

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Work Intensification and Quality Assurance 3

hours nurses worked (referred to as work In presenting the argument, we first provide
concentration) or the number of nurses the nurses’ views of the challenges to patient
rostered and patient mortality.19 safety through work intensification. We then
draw on quotes from the data to expand on
METHODS what nurses identified as contributing factors.
These are rosters, skill mix, overtime, prob-
This study set out to measure nurses’ per- lems with the staffing tool’s predictive ca-
ceptions of care tasks left undone using the pacity, failure to fully implement the CCDM
Kalisch MISSCARE survey tool, which was process, and the nurses’ relationship to man-
specifically designed to measure the amount agement. In presenting the concept of nurses’
and type of missed nursing care, and the relationships with management, we highlight
reasons for missed care as perceived by the both positive and negative comments.
nurse.1(p4) The survey is divided into 3 sec-
tions: nurse demographics, specific routine
FINDINGS
nursing tasks missed across the various shifts
in the 24-hour day, and questions asking
While the number of respondents was low,
nurses why they think these are missed.1 In
the overall profile reflects the nursing work-
our study in New Zealand, some questions
force in New Zealand with the male to fe-
on missed care were modified to more fully
male percentages 7.7/92.7 and the public pri-
understand whether tasks were delegated to
vate split 75.1/24.9. The category “manager/
other staff, such as personal care workers
nurse” is broadly defined as any personnel in
or graduate or enrolled nurses, either during
a managerial role from nurses on the ward
the shift or at a later time in the day. The
to those working at district level. It should
survey was distributed through the Nursing
be noted that the nurse managers who re-
Council of New Zealand to its membership of
sponded to the survey (34 in all) also reported
50 343. It was available through an electronic
high levels of work intensification although
survey software program and operational for
their number is predictably low.
6 months from late December 2015 to mid-
2016, with 1 reminder sent.
A total of 400 nurses responded fully to Work intensification: Rosters as a
the survey, providing 3566 lines of qualita- challenge to patient safety
tive responses. This is an extremely low re- Comments were made about patient safety
sponse rate to the survey, with the pattern by 60 respondents who identified work inten-
of responses suggesting some hesitancy on sification in its various guises as a contribut-
the part of nurses to answer questions. For ing factor. Fifty-eight (14.5%) nurses saw the
example, a number of questions in which re- organization of rosters (work schedules) as
spondents were asked to identify missed care contributing to patient safety. Rosters were
were left blank, but a comment was provided too long, extending beyond 5 days without
suggesting that the omission was deliberate. a break leading to exhaustion, or were not
As a consequence, we have presented quan- organized in a way that enhanced continu-
titative data only from full surveys but have ity of care, thus compromising safety. Nurses
used the qualitative data from all the survey also reported that staffing levels were often so
responses to develop a template analysis us- low that there were too few nurses on each
ing key themes linked to work intensification. shift. This meant that it was not possible to
Our aim was to search the qualitative re- discuss issues of concern with experienced
sponses to understand how nurses explained colleagues. It also led to failures to sign off
work intensification, if they viewed this as on medication checks or to assist physicians
a challenge to patient safety, and what they with medications or colleagues with patient
identified as being the root of the problem. lifts.

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4 JOURNAL OF NURSING CARE QUALITY/00 2017

Skill mix and work intensification overtime in the last 3 months to complete
Nurses also reported that they missed their work and not miss care. Approximately
care they knew would compromise patient 22% reported that working overtime was not
safety, such as ambulation, mouth care, and an issue for them, 38% reported that they
toileting. This was exacerbated by poor skills had been required to work overtime fewer
mix. In some cases, staff numbers might than 5 times, and 33.2% worked overtime
appear to be adequate, but the skills mix was between 5 and 15+ shifts (Supplemental
skewed toward junior or unlicensed staff, Digital Content Table 2, available at: http://
leaving the more experienced registered links.lww.com/JNCQ/A357).
nurses with the major responsibility for all A qualitative response demonstrates the in-
the clinical tasks. Nurses reported that ward crease in pace of work when colleagues are
coordinators had a patient load as well as a sick, which requires others to complete the
role in management leading to unsafe prac- work:
tice, given the constant interruptions to their I currently work 0.95 FTE and have applied to go
work. They also reported that in some cases to 0.8 FTE, but the Managers have said I can’t yet as
in which staffing appeared to be adequate, I have a nursing colleague off on sick leave (with-
out pay) for another 21 weeks whose workload I
safety was still an issue. This was particularly
need to help cover. Management has chosen not
the case in mental health settings and on to advertise for coverage . . . The 3 of us are re-
night duty where safe practice required that ally fed up with the intensification of our workload
staff not work alone. Several nurses reported over this time. All indications from the managers
that the use of the CCDM meant that staff are that nothing is going to change, and they are
might be taken away from their ward to doing everything they can to help us.
support another, leaving their ward vulner- Another nurse explained:
able to safety issues. A major issue was that
On my last week’s rostered work of 4 shifts, I
nurses felt that management did not act on
worked 2 hours overtime without pay. This was
complaints about staffing levels or staff mix as due to high workloads, high acuity that did not al-
contributing to compromised patient safety low for me to start my notes/paperwork, etc until
and were unsympathetic when staff were the next RN had taken over my patients.
sick. In response to questions about whether the
Two comments illustrate these issues:
ward or work area was adequately staffed,
“Working mix of mornings, afternoons and the 389 responses ranged from those who be-
nights—frequently/usually within a 3-4 day work- lieved staffing was adequate 75% of the time
ing week is exhausting, disorientating and unsafe. (45.8%) to those who thought that it was
It is common, for example, to work 1 morning, 1 never adequate (5.9%) (Table). Eighty-four
night, 1 morning, 1 afternoon consecutively.” nurses provided qualitative comments to this
As another example: question. Many highlighted the difficulties
arising when nurses are moved to another
“Of the shifts I did when I was unwell, I requested
ward as a result of the CCDM process used
to end my shift as I didn’t feel good enough or safe
to continue. Unfortunately, the Team Manager on
that day wouldn’t let me go home, due to the lack Table. Adequacy of Staffing Ward/Area
of staff.”
Time, % n (%)
Work intensification and overtime
Our argument is that working conditions 100 62 (15.9)
75 178 (45.8)
are a key component of quality assurance
50 77 (19.8)
and safe practice. This includes the hours of 25 40 (10.3)
work as well as the pace or speed. The sur- None 23 (5.9)
vey asked nurses whether they had worked

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Work Intensification and Quality Assurance 5

to identify variances in staff shortages: the day of surgery. The predictive tool (even if it
is updated correctly) is an inaccurate reflection of
If staffing is ‘adequate,’ staff are often moved to
acuity.
an area even more short staffed. It is often difficult
and stressful for the staff member to be moved to an However, it was also evident that many
unfamiliar area and expected to function at 100%, nurses saw the staffing tool and the CCDM
take a full workload, attend family meetings, etc as positive. While extra staff were not always
even though unfamiliar with ward and patients.
assigned, the predictive staffing tool provided
Added to this was the issue of inadequate nurses with the evidence that more staff were
skill mix: required to provide safe care.
The skill mix is also poor at times. Last night, I Role of management in work
worked overtime. After a full morning shift, I got intensification and safety
a different patient load for the afternoon. There
was me, a casual bureau nurse, a new grad, and an The predominant view taken by the survey
enrolled (licensed practical) nurse to look after a participants toward management, whether at
full surgical ward in the afternoon. ward or DHB level, was one of cynicism for
their inability to manage workloads or provide
Safety, work intensification, and CCDM the resources or broader working conditions
Forty-three (10%) nurses made reference to required for safe care. Management was seen
the use of nurse staffing tool and the imple- to be responsible primarily for the budget and
mentation of the CCDM project. Of the 363 not for patient care or safety. As noted earlier,
participants who responded to the question this included managers in some hospitals in-
asking them how patients were allocated and sisting shift coordinators take a case load, and
staff numbers determined, only 12% indicated team managers not allowing ill staff to take
that the staffing tool was used in their work- time off or tired staff to take up lower work
place, with 28.65% noting that the clinical fractions. Where the staffing predictive tool
nurse manager assigned patient loads. Some was not used and managers assigned patient
nurses reported that even when the staffing loads, nurses argued that patient acuity was
tool demonstrated the need for more staff, not considered and rostering did not take ac-
this was not followed through because of DHB count of the skills mix. This resulted in lower
budget issues or no staff being available. One paid staff being assigned during weekends
nurse explained: and after hours and left wards with inexperi-
enced staff and inadequate resources. A nurse
Our DHB also uses a predictive tool to allocate
[staff]. Unfortunately it is not often that extra staff commented:
are brought in when the ward is full even when the I frequently feel as though the DHB is totally fo-
variance shows more staff are required. The usual cussed on finance with scant regard to quality,
reason given is due to short staff numbers available. although they would never openly admit this. I
understand the need for fiscal governance, but a
Others argued that the staffing tool did not
balance needs to be struck between that and qual-
accurately estimate staffing needs or was not
ity, while valuing the contributions of your staff.
completed in time for more staff to be as- Stronger leadership on the unit is also essential,
signed to the workplace: something we are sadly lacking.
Mostly, it’s just that the staffing is not adequate for
This last quotation epitomizes one of the
the number and acuity of patients. Patients who
difficulties in identifying “management” as
should be specialled are not because there is no one
available to do so. The level of patient acuity has the problem. It is not clear what nurses on
increased significantly over recent years - patients the ward mean when they refer to man-
who once went to the Intensive Care Unit now agers, and indeed a small number of nurses
are in the ward, and patients who once spent days commented on the way in which shift man-
in the hospital after minor surgery now go home agers solved problems, as illustrated with this

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6 JOURNAL OF NURSING CARE QUALITY/00 2017

quotation: “My unit is comprised of mainly not addressed through systems reform but
experienced nurses. We do not work nights or through processes more aligned with organi-
weekends. We support each other and com- zational psychology. For example, a number
municate well. We have a good manager who of DHB reported on hospital-acquired pres-
supports us.” sure injuries, presumably caused by nursing
staff failing to do an initial assessment or ad-
DISCUSSION equate follow-up care. This is clearly missed
care. The solutions outlined include increased
There was considerable cynicism displayed nurse education, the use of reminder stick-
by survey participants regarding the rollout of ers, and hourly rounding. While admirable,
the CCDM, of the way management does not all of these remedies assume that the missed
adhere to nurse-staffing predictive tool estima- care arises from a lack of knowledge or a fail-
tions of workload, and of the way nurses are ure to have reminder systems in place and
reassigned to a ward leaving their home ward is simply a matter of making sure that tasks
short-staffed. Lawless20 highlights, in her re- are remembered. Repeatedly in DHB reports,
view of the CCDM, the need to get base-level poor communication was identified as a key
resourcing accurate, for strong buy-in by DHB factor with systemic communication proto-
leadership at executive level, and to have pre- cols introduced as solutions. No board asked
dictive staffing tools, which in turn are con- whether communication gaps might be the
strained by the capacity of boards to raise result of work intensification for both nurses
the funds either to introduce these tools or and physicians.22
upgrade them. Part of the difficulty appears In our view, the problem is more com-
to be the assumption that increased staff lev- plex than that articulated by clinical nurses
els will lead to budget problems and a reduc- on the wards or education programs insti-
tion in metrics measuring productivity gains, gated by DHB. Managers are responsible for
while the evidence on patient safety is less both budget efficiency and clinical outcomes.
definitive. A further difficulty lies with the tools avail-
The contemporary approach to quality as- able to managers for assigning staffing. Not all
surance and risk management is to focus on nurses viewed the commercial predictive tool
organizational factors and less so on individual as providing an accurate estimation of staffing
culpability. Our analysis suggests that the par- needs, but the main concern was its lack
ticipants believe that managers appear not to of use, rather than any inaccuracies within
see a link between staffing levels and patient the tool, which is fundamentally a budget is-
safety and quality. This finding is consistent sue. In the case of public hospitals in New
with a systematic review that indicated that Zealand, issues of work intensification, subse-
there was little evidence that managers had quent missed care, and possible patient qual-
a strong influence on quality assurance and ity can be traced back from the ward to the
patient safety. Parand et al21 suggest that not DHB. The review of the CCDM program con-
all managers understand clinical knowledge, ducted by Henry et al15 and Lawless20 demon-
meaning the burden of ensuring patient safety strates that many boards cannot afford to pur-
within the climate of work intensification is chase automated staffing predictive tools, nor
left to the clinician to sustain. In the case of meet targets.
nursing, this leads to considerable overtime, The problem is better defined as inade-
some of it unpaid, all of it done to help ensure quate funding for public hospitals services
that care is not missed and patients are safe. pitted against NPM-inspired targets for pro-
However, more importantly, when we ex- ductivity and staffing. This issue is not unique
amined the quality and safety data on ad- to New Zealand, as evidence across most
verse events for the period 2015-2016 from Organization for Economic Cooperation and
the DHB, we found that these events were Development countries attests.23 The recent

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Work Intensification and Quality Assurance 7

establishment of the European consortium for countries.23 This is a timely call given that, as
investigation into rationed/missed care has this study illustrates, nurses at ward level at-
called for further research into the issues fac- tribute the problems to their immediate man-
ing nurse managers, given the austerity facing agers, to DHB, or to hospital managers. Ac-
most public acute hospitals in Organization curately naming the underlying causes is an
for Economic Cooperation and Development important first step.

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