Our study has shown that the PDSE programme for people experiencing homelessness is a cost-effective intervention with significant health benefits in terms of DALYs averted. Considering the high rate of visits to A&E for dental problems by people who experience homelessness, and associated cost implications, our findings have significant implications for the commissioning of dental services from the NHS. To our knowledge, this is the first study evaluating the cost-effectiveness of a dedicated model that provides urgent and routine dental care for people experiencing homelessness.
It is very common for people experiencing homelessness to suffer from the most severe complications of oral diseases such as pain and infections and for these to go untreated or to require emergency care.2,5,10 A study in the USA10 has shown that odontogenic infections causing pain accounted for over 80% of emergency department visits for this population. Also, 46% of people experiencing homelessness who visited the emergency department for dental problems did so more than once during the study period.10 As the authors suggest,10 repeat emergency department visits indicate that dental problems impacted significantly on people experiencing homeless, and that they were unable to access appropriate dental care in the community. The treatment of non-traumatic dental problems at the emergency department is particularly interesting, since most of these problems can be resolved more effectively in a dental surgery.10 Insufficient access to dental care has been confirmed by both national and international studies, which indicate that this population has very limited access to routine and preventative healthcare.32,33
The Marmot Review highlighted how the most advantaged groups often stand to get the greatest benefit from population-wide interventions.34 Therefore, without attention to distributional impact, such interventions may actually increase inequities.34 If the steepness of the social gradient in health is to be decreased, it is essential that we act universally, but at a scale and intensity proportional to the level of disadvantage and of health needs.34 The unequal distribution and burden of oral diseases among vulnerable groups, including people experiencing homelessness, necessitates the development of novel dental care pathways which allow dental professionals to respond flexibly to the complex needs of this group.
In contrast to traditional models of NHS dentistry, where some patients may be required to pay for a proportion of treatment costs, the PDSE community clinic is free of charge to patients and provides flexibility around attendance. Despite an earlier evaluation demonstrating that the average cost per treatment course compares unfavourably with NHS contract funding if the service were solely state funded,16 the current study identified an additional £2.02 in cost benefits for every pound invested in the PDSE programme. This can be explained by the health benefits gained in monetary value, and the ability to access timely routine and urgent care through a supportive community model.
Besides the oral health improvements of people receiving dental care through the PDSE programme, there can be additional productivity and financial benefits to the NHS funding pool because of freed-up capacity in other parts of the NHS system. The transfer of dental commissioning responsibilities of dental services to Integrated Care Boards may present new opportunities for innovative commissioning of place-based models that tailor care to the needs of targeted populations. Further investigation of such data could be undertaken in studies.
There are currently different service models that provide dental care to people experiencing homelessness in England. Examples of best practice targeted services include “primary care delivery (‘high street’ dental practices), mobile dental units (MDUs), and community clinics operated through social enterprises”.35 Since people experiencing homelessness have diverse needs, these models can complement each other to ensure that patients have access to dental care that is tailored to their circumstances.35 Although a cost analysis of high street practices and MDUs is yet to be conducted, MDUs have shown to increase costs, with Units of Dental Activity (UDAs) at MDUs costing 2.4 times more than UDAs at fixed sites.36 For some people experiencing homelessness, an MDU might be more effective, so a more costly model such as this may be justified according to local conditions.37 Further research is warranted into the cost effectiveness of different targeted models when compared to mainstream ones.
Healthcare provision must be rationally targeted to those at greatest risk, in the greatest need, and experiencing the greatest difficulty accessing treatment, with care tailored effectively to their individual situations.36 Considering high levels of co-morbidity among people experiencing homelessness and their complex social care needs, integrating health and social care appears to be an effective way of organising care around the individual. Some suggested ways to achieve this include co-location with other health or food provision facilities, or in open-access day centres with housing and social services, establishing links with support organisations and offering cross-referral opportunities between services.37
The integration of health and social care can improve overall wellbeing outcomes for people experiencing homelessness, as well as contributing to ending homelessness,38 with potential economic and societal benefits. The need for a combination of downstream, midstream and upstream interventions to promote oral health equity across the population39 should not be underestimated. Additionally, to tackle oral diseases, it is necessary to have across the healthcare system, a focus on prevention that considers service delivery models that are tailored to and meet the needs of the target population.
Strengths and Limitations
A main strength of this study is that it expands on the application of economic evaluation techniques less commonly used in oral health context such as periodontitis40 and severe tooth loss. Furthermore, modelled economic evaluations in oral health have often used a tooth-level model rather than the person-level model approach used in this study. Our work also synthesised and applied a methodology that combined the cumulative health outcomes in DALYs across three common oral diseases as a more realistic care pathway instead of an intervention targeting one oral disease at a time as mutually exclusive health states.
It is common that studies conducting the economic evaluation of oral health interventions use outcome measures that make it impossible to determine whether an intervention is cost-effective due to the absence of WTP thresholds40 other than those established for DALYs and quality-adjusted life years (QALYs). The NICE guidelines generally adopt an explicit threshold of £20,000-£30,000 per QALY gained.17 Furthermore, our study provides a fairly conservative estimate of the DALYs averted generated from the PDSE programme given that many people experiencing homelessness do not have regular access to affordable dental care, and 13% had not seen a dental practitioner for more than 10 years.18
A key limitation of this study is the biased assignment of a hypothetical cohort of patients for the base-case scenario as the comparator to the PDSE programme. Ideally, matched data on A&E admissions, dental service utilisation and health outcomes at an individual level should be used for economic evaluation for both cohorts of people experiencing homelessness. However, it would be ethically problematic to deny dental care to patients if they are assigned to the base-case scenario under a more robust study design like a randomised controlled trial, given the high needs of people experiencing homelessness.16,18
There are some limitations to the analysis which relate to the specific service model delivered by the PDSE programme and its costs, which includes provision for additional administration and outreach activities not associated with the delivery of dental services to people experiencing homelessness in other NHS settings. However, despite these additional costs, the PDSE programme was still found to be cost effective. Previous research has shown that community-based targeted dental programmes can potentially reduce homelessness and improve employability,41 and increasing dental care access can reduce dental-related emergency department visits.42 Whether the PDSE programme has led to a reduction in unscheduled dental care appointments or attendances at A&E is currently unknown.