SANATORIUM BENEFIT
Probably the most popular
feature in the National Insurance *Act was the scheme for the treatment
of Tuberculosis. Undoubtedly the crusade against the ravages of the
white plague caught the imagination of the nation, and the efforts to
arrest this disease evoked the hearty goodwill of the medical
profession, public health authorities, and generally the mass of the
nation. Most people were not too closely concerned with discussions as
to methods. What aroused and dominated public feeling was the idea that
sustained attention would be given to the essentials of public health
with regard to housing, drainage, the abundant supply of water, fresh
air, and good food, as well as to the application of medical remedial
measures to endeavour to arrest and, if possible, stamp out this
disease. Compared with other portions of the country, Scotland has
suffered severely from this devastating scourge. The dimensions of the
evil may be gathered from the following facts :—
(a) The total number of
deaths from the various forms of Tuberculosis in Scotland during the
five years 1907 to 1911 inclusive was 44,933.
(b) Of these 28,037 were
due to pulmonary Tuberculosis.
(c) As contrasted with
other infectious diseases during the same time, pulmonary Tuberculosis
alone caused more deaths than resulted from the whole of the following,
namely :—
Smallpox, Diphtheria,
Scarlet Fever, Typhus Fever, Enteric Fever, Measles, and Whooping Cough.
(d) Every death from
pulmonary Tuberculosis represents several existing cases of the disease.
(e) Whilst the incidence
of other infectious maladies is mainly on childhood, that of pulmonary
Tuberculosis is mainly on adults at the working period of life, many of
them being fathers or mothers with families to maintain.
The following- statement
of the position in Scotland is taken from the report of the Scottish
Insurance Commission. With regard to the number of approved institutions
and the number of beds available in these institutions, it may be said
that each bed represents accommodation for three or four persons in the
year as the average time of treatment may be taken tc» represent three
or four months. Thus 1,600 beds would roughly accommodate some 6,000
persons per annum. It may further be said that the sustained attention
of the Central and Local Authorities is being given to the provision in
every district of a complete organisation to cope with the preventive
and remedial measures which are desirable in order that organised
scientific effort may be applied to fight this terrible plague. In most
districts some provision is available, and more complete organisation
will be speedily forthcoming where it is required.
Sanatorium Benefit is the
second of the benefits named in Section 8 (1) of the Act. It is there
defined as “Treatment in sanatoria or other institutions or otherwise
when suffering from tuberculosis or such other diseases as the Local
Government Board, with the approval of the Treasury may appoint.”
The following is a brief
review of the main provisions of the Act with respect to this benefit :
Sanatorium benefit was
not subject to a waiting period ; it became current on 15th July, 1912,
the date on which the Act came into operation. It is administered in all
cases by and through Insurance Committees, who are required, for the
purpose of its administration, to make arrangements to the satisfaction
of the Commission with a view to providing treatment for insured persons
suffering from tuberculosis in institutions or otherwise.
The sums available under
the Act for defraying the cost of the benefit in each year are one
shilling and three pence in respect of each insured person resident in
the Insurance Committee’s area, payable out of the National Health
Insurance Fund, and one penny in respect of each such person payable out
of moneys provided by Parliament, but the whole or any part of the
latter sum may be applied by the Commission to research. Unless
recommended by an Insurance Committee, an insured person is not entitled
to sanatorium benefit. An Insurance Committee may defray in whole or in
part the expenses of the conveyance of an insured person to or from any
sanatorium or other institution to which he may be sent for treatment.
An Insurance Committee
may, if it thinks fit, extend sanatorium benefit to the dependants of
insured persons or to any class of such dependants. If in any year the
amount available for defraying the expenses of sanatorium benefit is
insufficient to meet the estimated expenditure on sanatorium benefit for
insured persons and such dependants, the Insurance Committee may,
through the Insurance Commission, transmit to the Treasury and the
Council of the County or Burgh an account showing the estimated
expenditure for the purpose, and the amount of the sums available for
defraying the expenses of sanatorium benefit, and the Treasury and
Council may, if they think fit, sanction such expenditure.
The Treasury and the
Council of the County or Burgh sanctioning such expenditure as aforesaid
will thereupon each be liable to make good, in the case of the Treasury
out of moneys provided by Parliament, and in the case of the Council of
the County or Burgh, out of the County General Purposes Rate, or Burgh
Public Health General Assessment, as the case may be, one-half of any
sums so sanctioned by them and expended by the Insurance Committee on
sanatorium benefit for insured persons and their dependants in the
course of the year in excess of the amount available for defraying- the
expenses of the Committee on sanatorium benefit.
Provision is made for the
expenditure of a sum of ^1,500,000 made available by the Finance Act,
1911, for the provision of sanatoria and other institutions for the
treatment of tuberculosis. The sum was to be apportioned between
England, Wales, Scotland and Ireland in proportion to their respective
populations at the 1911 census, and is to be distributed by the Local
Government Board with the consent of the Treasury, who, before giving
their consent, are to consult with the Commission. Any County Council
receiving a grant may be authorised by the Local Government Board to
provide and maintain institutions, and Joint Committees and Joint Board
may be constituted by Order of the Board for this purpose. An Insurance
Committee, with the consent of the Commission, may, under certain
conditions, contribute out of its Sanatorium Benefit Fund, by annual or
other payment, towards the maintenance of an institution or the
provision of treatment available for persons recommended by them for
sanatorium benefit.
Up to the time of the
passing of the Act, efforts had been made by Local Authorities in
Scotland, and also through private benevolence and enterprise, to make
provision in some measure for the treatment of tuberculosis, but these
efforts tended to be restricted and inco-ordinate. Although much had
been done by the local extension of the Notification Act of 1889 to
pulmonary tuberculosis and in other ways, there were few local
government areas which, in respect of treatment either in residential
institutions or elsewhere, were meeting the needs of their population in
a complete and adequate manner.
With the passing of the
Act, a new prospect was opened— a prospect with far-reaching
possibilities. The treatment of tuberculous insured persons was
obligatory on Insurance Committees; the treatment of their dependants
was suggested, and the grants in aid of buildings were seen to be
available, not for the benefit of insured persons only, but for the
whole population.
In order that progress
from existing conditions to those outlined by the Act might be guided
along reasoned and uniform lines, the Treasury, by Minute of 22nd
February, 1912, appointed a Departmental Committee, of which Mr. Waldorf
Astor, M.P., was Chairman, and the Deputy Chairman of the Commission a
member, to report at an early stage upon the considerations of general
policy in respect of the problem of tuberculosis in the United Kingdom
in its preventive, curative, and other aspects, which should guide the
Government and local bodies in making or aiding provision for the
treatment of tuberculosis in sanatoria or other institutions or
otherwise.
The Committee in their
Interim Report stated that the scheme for dealing with tuberculosis
which they desired to recommend was based on the establishment and
equipment of two units, the first of which is the tuberculosis
dispensary or equivalent staff, and the second the sanatorium or similar
institution.
In the Scottish section
of the Committee’s Report, the view is expressed that certain
recommendations of the general portion of the report may not be
applicable or suited to Scotland, owing to the different position, legal
and otherwise, existing in that country. It is stated that the Local
Government Board for Scotland have power to require Local Authorities to
provide out of rates for practically every variety of treatment included
under the term sanatorium benefit. In respect of the units which should
constitute a scheme, the Scottish portion of the Report is in agreement
with the remainder.
On 29th May, 1912, the
Local Government Board issued a circular which drew attention to the
powers and duties of the Board and of Local Authorities, suggested that
Councils of Burghs of more than 20,000 inhabitants, and of Counties,
should instruct their medical officers to prepare a report on the
requirements of their area with respect to a tuberculosis scheme, and
desired information before 1st July as to progress made.
On the 18th June, 1912,
the Local Government Board made their Public Health (Pulmonary
Tuberculosis) Regulations (Scotland), 1912, rendering the notification
of pulmonary tuberculosis compulsory throughout Scotland as from the 1st
August, 1912.
All these steps in the
way of progress were directed towards the evolution of permanent
schemes. But the 15th July, on which sanatorium benefit was to come into
operation, was now close at hand, and it was necessary that provisional
arrangements should be adopted to begin with.
The Commission
accordingly issued a circular for the guidance of Insurance Committees
during the transitional period. It was suggested that in the beginning
the work of enquiring as to the best course to be adopted by an
Insurance Committee with regard to insured persons suffering from
pulmonary tuberculosis should, with the necessary sanctions and under
proper terms and conditions, be undertaken by the Medical Officer of
Health. At the same time the attention of Committees was drawn to the
necessity of entering on the careful consideration of permanent schemes
for the administration of sanatorium benefit.
SANATORIA HOSPITALS AND
DISPENSARIES.
Inception of Sanatorium
Benefit.
In order that Insurance
Committees, under Section 16 (1) of the Act, might make arrangements
with persons or Local Authorities (other than Poor Law Authorities) for
the treatment of insured persons in sanatoria or other institutions
under their management it was necessary that the institutions should be
approved by the Local Government Board. The Board had instructed their
Medical Inspectors to make local enquiries and inspections, with the
result that, on loth July, there were 46 institutions in Scotland
approved and ready for the treatment of insured persons suffering from
tuberculosis.
Institutions as at 15th
July, 1912.
Of the 46 institutions
approved by the Local Government Board as at 15th July, 1912, 36, with
upwards of 883 beds, were sanatoria or hospitals. Three of these, with a
provision of upwards of 41 beds, were reserved for non-pulmonary cases.
There were in addition 10 approved dispensaries, situated in the Burghs
of Dundee, Glasgow, Greenock, Inverness and Leith.
Institutions as at 31st
March, 1913.
Following the 15th July,
1912, the work of inspection and approval by the Local Government Board
continued to be carried on, with the result that at 31st March, 1913,
the total number of institutions available for insured persons had risen
from 46 to 101. Of the 101 institutions, 87 were sanatoria or hospitals,
containing upwards of 1,533 beds in all, of which 109 were for
non-pulmonary cases only. The 10 dispensaries had been increased to 14,
by the addition of one in Edinburgh, one in Paisley, and two in the
Glasgow area.
Since the above facts
were published, the dispensaries have been increased to 15. The approved
institutions have risen from 101 to 109, and there has been an increase
of beds from 1,533 to 1,656.
NUMBERS TREATED FOR
TUBERCULOSIS.
Between the 15th July,
1912, and the 31st March, 1913, Sanatorium Benefit was received in
Scotland by 1,557 insured persons. The approximate total expenditure
chargeable to the Sanatorium Benefit Fund to the 31st March, 1913, was
£17,963 18s. 7d.
The persons actually in
receipt of sanatorium benefit at the 31st March, 1913, numbered 1,177 in
all, of whom 735, or 62.1 per cent, were in sanatoria or hospitals,
while 19.5 and 18 per cent, respectively, were receiving dispensary and
domiciliary treatment.
Of the total 1,177 cases,
344 were derived from the areas of the 31 County Insurance Committees,
and 833 from the 25 Burghs with a population of 20,000 and upwards.
COUNTIES.
Of the 344 County cases,
276, or 80.2 per cent., were undergoing treatment in sanatoria or
hospitals, while 68, or 19.8 per cent., were in receipt of domiciliary
treatment. There was no dispensary treatment in the county areas. The
counties of Fife, Ayr, Lanark and Renfrew had each over 20 persons in
sanatoria. Of the County Committees which had recommended more than a
single case, nine were able to procure sanatorium treatment for all
their patients. The Committees in question were those of Argyll with 6
cases, Dumbarton with 14, Dumfries with 9, Lanark with 48, Linlithgow
with 5, Midlothian with 13, Renfrew with 24, Selkirk with 9, and
Stirling with 19. Twelve of the thirteen Perthshire cases were in
sanatoria. Of three cases in Shetland, two were in receipt of sanatorium
treatment. The Wigtownshire Committee had the pleasing-experience of
total exemption from claims upon their Sanatorium Benefit Fund.
BURGHS.
The percentage of the 833
Burghal cases which were receiving treatment in sanatoria at 31st March,
1913, was 55.1, as contrasted with 80.2, the corresponding figure for
Counties. This difference, however, is not in general association with a
higher incidence of domiciliary treatment in Burghs, for the proportion
of home cases in Burghs is, in fact, somewhat less than in Counties,
being 17.3 per cent., as against 19.8. The cause is to be found in the
prevalence in Burghal areas of dispensary treatment, which accounted for
230 persons, or 27.G per cent, of the total.
Of the four great cities,
Edinburgh, with 79.5 per cent., had the highest proportion of sanatorium
treatment; Glasgow, Dundee and Aberdeen follow in order with 47, *13.3
and 29.5 per cent, respectively.
No Burgh which had
recommended 10 cases or over for sanatorium benefit had the whole number
in sanatoria at the 31st March.
The highest dispensary
figures, 74.2 per cent., was reached by Greenock; Glasgow occupies the
second place, with -18.8 per cent, of cases so treated, and is succeeded
by Leith and Inverness with percentages of 39.4 and 25 per cent,
respectively.
Domiciliary treatment was
under 5 per cent, in Glasgow and Leith. At the 31st March no cases were
being treated exclusively at home in Airdrie, Dumbarton, Dumfries and
Max-welltown, Dunfermline, Greenock, Kilmarnock, Motherwell, Paisley,
Perth, Rutherglen or Stirling. Wishaw, alone among the Burghs, had no
insured person in receipt of Sanatorium benefit either at home or e-lsewhere.
The following table shews the comparative figures for all four
countries. It will be observed how much better Scotland has dealt with
this problem than her sister countries :—
SICKNESS BENEFIT.
Sickness benefit, or sick
pay as it is commonly called, is defined in the Act as “ periodical
payments whilst rendered incapable of work by some specific disease or
by bodily or mental disablement, of which notice has been given,
commencing- from the fourth day after being- so rendered incapable of
work, and continuing for a period not exceeding twenty-six weeks (in
this Act called ‘ Sickness Benefit A reduced
rate of benefit is
payable in respect of young persons under 21 who are unmarried or who
have not any members of their family wholly or mainly dependant upon
them. There are also some special provisions relating to special married
women contributors and to members of the mercantile marine, to
soldiers-and sailors, and to some insured persons who come under section
47. With these exceptions under the new Act, when it operates, and
subject to qualifying waiting periods and to the three waiting days and
to the operation of any arrears, the rate of sickness benefit is a flat
one, and all British employed contributors over 21 who insure before
13th October, 1913,. will be entitled to 10s. per week if men and 7s.
6d. per week if women, and incapable of work.
MATERNITY BENEFIT.
Maternity benefit, while,
comparatively speaking, a new benefit, has been most popular. Definition
has already been made of this benefit. Various questions relating to
administration in Scotland have arisen.
One of the chief points
of difference in Scotland in relation to the administration of maternity
is raised by the fact that the Midwives Act, 1902, does not apply to
Scotland. By the proviso to Section 18 (1) of the National Insurance Act
it is laid down that “ the mother shall decide whether she shall be
attended by a duly qualified medical practitioner or by a duly certified
midwife.” Section 80 (17) of the National
Insurance Act 'meets the
different situation by saying that certified midwife ” shall be held to
mean any midwife possessing such qualifications as may be prescribed.
Accordingly the Scottish Commission have made a regulation which enacts
that the qualifications of a midwife for the purposes of Section 18 of
the Act as applied to Scotland by Scction 80 of the Act shall be either
(a) Bond fide practice in
Scotland as a midwife for a period of at least one year prior to 15th
January, 1913; or
(b) Regular or due
attendance at a course of training in midwifery ajt such hospital,
infirmary, or other institution as may from time to time be approved in
writing by the Commissioners.
It is laid down by
paragraph three of these regulations that “if any question arises as to
whether any woman possesses the prescribed qualifications the same shall
be determined by the Commissioners, whose decision shall be final.”
The Amending Act modifies
in certain directions the conditions attached to the administration of
maternity benefit.
VOLUNTARY CONTRIBUTORS.
Voluntary Contributors in
Scotland have turned out to be a very small class. According to the
official figures, there are less than 2,000 in the whole of Scotland.
The voluntary
contributors are defined in the principal Act as :—
“All persons who either
(a) Are engaged in some
regular occupation and are wholly or mainly dependent for their
livelihood on the earnings derived by them from that occupation, or
(b) Have been insured
persons for a period of five years or upwards provided always that no
person whose total income from all sources exceeds one hundred and sixty
pounds a year shall be entitled to be a voluntary contributor unless he
has been insured under this part of this Act (Part I.) for a period of
five years or upwards. Persons upwards of 65 are not authorised to
become voluntary contributors.”
Some important
alterations referring- to voluntary contributors are made under the
Amending Act.
Doubtless one of the
reasons why so few persons have entered into voluntary insurance is the
effect on the public mind of the campaign against the Act. Instead of
insurance being represented as a good thing and desirable in itself, the
suggestion made has been that it was bad and a thing to be avoided.
Persons who are entitled
to enter insurance as voluntary contributors should very carefully
consider the scheme on its merits. More especially does this hold good
with regard to those persons who are entitled up to 13th October, 1913,
to enter on the flat rate of contribution. This advantage is one that
should not be lightly cast aside, and an immediate decision should be
made.
THE DEPOSIT CONTRIBUTOR.
No part of the National
Insurance Act has been subjected to so much criticism as that part which
relates to the Deposit Contributor. Metaphorically speaking, gallons of
ink have been spilt over the woes of the poor depositor. Like other
parts of the Act, the actual situation has turned out to be totally
different from that anticipated.
It is well to bear in
mind that under the Insurance Act every Society was given the right to
reject any applicant on any ground except that of age. It was expected
that a considerable number of persons would be unable to find entrance
into any Society by reason of their state of health. As a matter of
fact, few Societies held a medical examination of those applying for
membership, and little difficulty was experienced by average persons in
securing entrance into some kind of approved Society. The Deposit
Contributors are not only very much fewer in number than was expected,
but they appear to be of a different class from that anticipated. All
the information available from approved Societies and from official
sources tends to shew that deposit contributors as a class are quite
good “ lives ” and that they could find entrance into .Societies if they
so desired. As a matter of fact, deposit contributors in Scotland at
first numbered about -15,000, or something like 2½ per cent, of the
total insured persons. The numbers of this class and the district to
which they belong are given in the table relating to number of insured
persons in Scotland. From official sources one learns that nearly 10,000
bave either transferred to some Society or given notice that they intend
to transfer. One also learns that two of the largest approved Societies
have offered to take over en masse the entire body of deposit
contributors. As every effort is being made to induce deposit
contributors to transfer to approved Societies, and as it is obviously
to their advantage to do so, it would appear that the educative effect
of the payment of restricted benefits will drive more and more
depositors to join some Society. Although the figures are only available
for a few months, and it is therefore unsafe to draw too strict
conclusions from them, it would appear that the deposit contributor is
drawing sickness benefit at a much lower rate than that claimed by
members of Societies who are enjoying the lowest sickness experience. On
the basis of the figures obtaining during the first six months, it is
evident that there will be a substantial surplus on the total of the
deposit contributors’ accounts taken as a whole. In other words, if the
Deposit Contributors’ Fund were a Society, it would appear on present
experience to be a good sound business proposition.
The question, therefore,
arises whether the deposit contributors should not be formed into a
Society under the management of the Insurance Commissioners on the
insurance basis with such safeguards as might be required by the special
necessities of the class as experience determined. In any event the
Deposit scheme is a temporary one, and in a year’s time sufficient data
will be available for the treatment of a question which appears to be
one of comparatively easy solution.
CASUAL WORKERS.
The case of the regular
worker presents few serious difficulties in Scotland. The position of
the casual worker is one of the most difficult in National Insurance.
Indeed, here and elsewhere, in all kinds of social reform the casual
worker is always attended by a train of administrative and financial
difficulties. Among these obstacles to successful administration is the
straitened circumstances of the worker, his irregularity of work, his
numerous employers, his migratory habits, his frequent changes of
address, and his lack of education and dislike to anything approaching
routine or system. There is, of course, the outstanding difficulty of
the casual worker avoiding arrears and keeping himself in benefit.
Casual labour is employed in a vast variety of industries and numerous
plans have been advocated and many experiments tried to adapt the
payment of contributions so that no undue burden should fall on the
employer or employee. Thus there have been instituted pooling systems,
grouped employers, arrangement of payment by employers in turns, as, for
instance, in connection with charwomen and cleaners. The new provisions
with regard to arrears and schemes for treating casual labour should
prove helpful to the casual worker.
It should always be noted
that it would be impossible to exclude casual workers from the scope of
compulsory insurance, as to do so would encourage the employment of
casual labour, a result which would be deplorable in itself and one
which might operate against the interests of regular labour.
It is to be observed that
in Scotland during the past year or two regular labour has been well
employed, and casual or seasonal labour has tended to become more fully
employed than hitherto. In fact, during such prosperous times labour
tends to become decasualised and as, for example, in agricultural work
labour begins to shew itself not so much as casual but as part of a
series of operations covering a variety of seasons, such as the
preparation of ground, the planting of seeds, the cleaning of ground,
and the picking or gathering of the fruits or harvest of the soil.
It may be that the
operation of the new arrears clause and schemes adopted to meet casual
or irregular labour will partly solve the problem, which is a serious
economic one. The exigencies of a necessitous class may make it
necessary to charge the employer of casual labour with a contribution on
a scale sufficiently high to give the casual worker a reasonable chance
to keep in insurance and to enable him to join a Society, and thus
secure the benefits of real insurance, even if such a Society is a
specially managed or subsidised one as indicated in the paragraphs on
Deposit Contributors.
“MALINGERING”
The financial basis of
the National Insurance Scheme is that contributions have been fixed to
meet the cost of certain benefits. The cost of these benefits has been
estimated by actuaries to be a certain weekly figure for sickness,
disablement and the other benefits. The cost of sanatorium benefit is
calculated at a fixed amount per person per annum ; medical benefit is
computed at a certain figure per person ; maternity benefit is estimated
on the basis of a number of births per annum and a sum of 30s. being
paid for each birth in connection with an insured person or the wife of
such.
Various investigations
have been made in this country with regard to the sickness experience of
members of Friendly Societies. The Government actuaries have adopted
sickness tables derived from an extensive investigation made on behalf
of the Manchester Unity of Oddfellows by Mr. A. W. Watson. The problem
of the actuaries was to assess the cost of providing certain benefits
for a lad of sixteen and then to fix a rate of contribution sufficient
to cover the cost of such benefits.
The actuaries took into
account that contributions would not be paid during- sickness or
unemployment and that the average number of payments per person would be
48 per annum, or at a 7d. rate a sum of 28s. per annum.
On the basis of
calculations adopted by the actuaries the contributions necessary to
provide the various benefits for persons entering insurance at 16 years
of age would be as follows, the cost of medical benefit being taken at
6s. per annum :—
It should be remembered
that there is a scheme of reserve values. The “reserve value” of an
insured person is the liability which a Society undertakes by accepting
him at the moment of his entry into insurance. It is thus possible to
adopt a flat rate of contribution for all ages.
It must be kept in mind
that the rate of sickness increases with advancing years. The following
table gives the rates of sickness experienced at each age by the
Manchester Unity as derived from their investigation during the years
1893-97 :—
One main question that
will require to be answered in connection with the working of National
Insurance in this country is the vital one of whether the basis of the
Government actuaries is a safe one or whether it will be found that
sufficient margin is not allowed for lives which represent the mass of
the nation and are, therefore, not selected, such as many of the members
of the Friendly Societies were. Even the Manchester Unity figures might
be said to be in some respects an investigation of the experience with
reference to selected lives. It has also to be remembered that few
Approved Societies instituted a medical examination of those who applied
for membership of the State Section of Societies, and that, therefore,
some Societies may be loaded with a large proportion of bad lives. For
it must never be forgotten that only a certain fixed number of days of
sickness is allowed in the calculations for each member of a Society per
annum, and the contributions and interest on reserve values only provide
the funds which are sufficient to meet the expected amount of sickness
per member per annum. If that expected amount of sickness is exceeded
the result will be a deficit in the funds of the Society. That deficit
must be met in certain ways, either by receiving a portion of such
deficit from associated members, or by levy on members, or reduction of
benefits payable to members of the Society. It should be kept in view
that the State does not guarantee the payment of benefits. All that the
State guarantees to do in connection with benefits is to pay 2/9ths or
1/4th of such benefits as are paid. If there is a deficit in the funds
of a Society due to excessive claims on the sickness funds that deficit
must be met by the members. It will not be met by the State.
The question of the
actuarial calculations of the basis of the National Insurance Scheme is
important. Moreover, if a Society has been unfortunate enough to admit
too large a proportion of bad lives the effect is obvious and deficits
are certain.
Behind the whole scheme
lurks this grim spectre that in the judgment of some critics threatens
the whole superstructure of National Insurance. Apart from real
sickness, or excessive claims on particular Societies due to a large
proportion of bad lives, there arises another vital question as to
whether the introduction of a State Insurance Scheme will lead to
increased claims for sick pay, not because of real illness, but because
of sham illness, or whether it may not foster a class of “illness” which
is more or less imaginary. This, in the opinion of many students of
insurance, is the most difficult and dangerous of all questions involved
in the administration of National Insurance. It is the question that is
troubling the minds of the Administrators, it is perplexing the medical
profession, and it is already causing grave anxiety to the executive
officials and working committees of the approved Societies. Although the
British experience under the State is too limited to yield reliable
data, it is admitted by students of voluntary insurance under the old
Friendly Societies that malingering did exist and that checks were
necessary in order to prevent and limit and, if possible, prevent fraud
on the funds. It is admitted that there is a certain amount of
malingering in connection with claims under the Workmen’s Compensation
Act.
It is further admitted
and proved that the great German insurance scheme has been productive of
much malingering and that checks have had to be set up in order that
frauds on the sickness funds may be reduced and, if possible,
eliminated.
All these facts point to
the necessity for close scrutiny of claims, for care in administration
and for attention to the main features of good business management of
the sick funds. It may further be found necessary to institute special
checks in the shape of the employment by Societies of special sick
visitors. This system is not novel, and it has been found to work well
where faithful and efficient visitors have been organised in connection
with the payment of sickness claims to members of Societies. The “
doctor’s line,” or certificate of illness, will be a great protection if
certificates are only granted to members who are truly incapable of
work. A great responsibility lies upon the insurance doctors. On them
rests the important duty of seeing that genuine applicants are duly
certificated as being “ incapable of work.” On the other hand, it is
their plain and obvious duty to refuse to give certificates to those who
are not entitled to receive them. Medical men must keep in view that
their certificate is equivalent to a cheque to bearer. If these cheques
are given carelessly or wrongfully no Society on the present basis can
stand the burden, and deficits and bankruptcy will be the inevitable
result. One of the most important checks on malingering that may operate
advantageously and powerfully will be the effect of the healthy public
opinion of the general body of insured persons shewn in their attitude
to those who are beyond doubt defrauding Societies by making claims for
and receiving sick pay on improper grounds. The insurance doctor’s
sphere is a most important one, the sick visitor may be a powerful
bulwark to the sick fund, but as important will be a healthy public
opinion unaffected by any spurious feeling of sympathy for the
malingerer.
It will be a matter of
vital importance for the members of Approved Societies to understand
that any individual who is robbing the sick fund of a Society is robbing
his fellow members, and probably depriving some members who are truly
necessitous from receiving benefit. The State does not make good any
deficit. The members themselves must defray any balance that is on the
wrong side. Thus, improper claims do not fall on the State, but their
burden really falls upon the members of each Society. Undue claims and
bad management are thus penalised. Good management is rewarded.
It is desirable to make
the above perfectly clear, for it must be recognised that many people
take one view with regard to transactions with individuals and another
and totally different view of transactions with the State, corporate
bodies, insurance and railway companies and societies. However difficult
it may be to defend such action, it is a matter of common knowledge that
many persons think it rather clever than otherwise to escape due payment
of income tax, or to seek relief from the payment of rates and taxes
even when they are able to pay them. In the same way numbers of people
view with somewhat lukewarm indignation any attempt to get the better of
an 'insurance company or to defraud a railway company. Irregularities or
offences in any of the above directions are often regarded as venial and
the detection of such frauds, or conviction related thereto, does not
carry the degredation or loss of social status that it ought, nor does
it signify any very great change in public opinion with regard to the
delinquents. This point requires to be emphasised because so much has
been heard of the State and State Insurance that it is to be feared that
many insured persons have been imbued with the idea that a benign
Government with a bottomless purse invites all to claim money. And the
loose and vague talk one hears in certain quarters is that there is
money in National Insurance and it is the business of some people to
secure their share of it. The popular idea seems to be that they are
paying for benefits and are entitled to receive them. It is overlooked
that benefits are only payable on certain we'll defined conditions. If
these conditions do not exist, no benefits are payable.
The next few years will
be a searching time for the administrators of National Insurance, but
the test will apply to the people as well as to their governors. I have
belief in the character and good sense of the great majority of Scottish
people. For the minority who may require education and oversight in a
new field, it may be said that the national ability to grapple with
difficulties will be likely to solve any knotty problems, and that stern
adversity may guide the way over any obstacles that may beset the path
of the well-wisher of National Insurance. Moreover, the triennial
valuation will exert a very healthy discipline and, where necessary,
provide a salutary lesson. |