In 1996, Japanese government introduced Comprehensive Reimbursement for Elderly Outpatients, followed by per-visit charge and drug surcharge in 1977. They were an attempt to remove the three basic problems of the Japanese primary-care in those days; over-medication, over-testing, and over-visitation. Taken separately, each measure may have been a sensible measure, but, altogether, they did not work in the way the government had hoped. Particularly disastrous was CREO, as it actually worked to increase the costs of medical care. Through our analyses, we will shown why and how it happened. All the empirical evidences are consistent with our hypothesis; namely, the selectivity of CREO and FFS, and the exemption of CREO patients from paying drug surcharge were the sources of these policy failures. Our estimated treatment effect models indicate that CREO increased the drug costs and total medical costs by 40 to 50 percents.
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