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Primary care systems in international comparison: How do other countries structure their care and what can Germany learn from this?

The term "primary care system" encompasses various systems in which a designated primary care physician must be consulted before seeking specialist care. The introduction of a mandatory, nationwide primary care system to promote targeted care and rapid appointment scheduling in Germany was recently agreed upon as part of the coalition agreement for the 2025–2029 legislative period, although the specific design is still being discussed. Below, we compare the design of primary care systems in nine European countries and Israel and derive implications for Germany.

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First publication date: 04.08.2025

Abstract: Primärarztsysteme im internationalen Vergleich: Wie gestalten andere Länder ihre Versorgung und was kann Deutschland davon lernen?

After more than 30 years of development, physician networks represent a promising approach to strengthening outpatient care in Germany. In light of growing supply bottlenecks, demographic change, and a growing need for interprofessional collaboration, they are increasingly becoming the focus of health policy. The resulting network structure is extremely heterogeneous, both in terms of structure, maturity, and actual effectiveness. This article analyzes the current state of development of physician networks in Germany, identifies key success factors, and explores their future potential. Using selected best-practice examples, it demonstrates the conditions under which physician networks can not only contribute to improving care but also function as economically viable business models. This provides concrete recommendations for action to further develop physician networks and establish them as a strategic management instrument in the healthcare system.

Abstract: Primary Care Coordination: International Insights and Policy Options for Germany

In health systems where primary care has a coordinating and gatekeeping function, patients are typically required to consult a designated primary care physician before accessing specialist services. The introduction of a primary care system with a coordinating and gatekeeping role to promote targeted care and fast appointment allocation for Germany was recently agreed politically for the 2025-2029 legislative period. The implementation specifics are still being discussed. In this article, we analyze components of nine European healthcare systems and Israel, with a focus on the coordinating and gatekeeping function of primary care, and derive implications for the German context.

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Author Declaration

The authors declare that there are no conflicts of interest.

Acknowledgments

Our special thanks go to Andrea Donatini, Prof. Antonio de Belvis, Ingrid Sperre Saunes, Prof. Isabelle Durand-Zaleski, Isabelle Sturny, Prof. Karsten Vrangbæk, Lauri Vuorenkoski, Dr. Madelon Kroneman, Dr. Michael Anderson, Dr. Rosa María Urbanos Garrido, Ruth Thorlby, Dr. Ruth Waitzberg and Prof. Zeynep Or for their expert support in classifying country-specific features, for validating the timeliness of the information and for their helpful advice on the respective healthcare systems.

Additional Information

Citation: Wittlinger, G., Sundmacher, L.: "Primary care systems in international comparison: How do other countries structure their care and what can Germany learn from it?", in: "Monitor Versorgungsforschung" (MVF 04/25), pp. 53–62. http://doi.org/10.24945/MVF.04.25.1866-0533.2731

Plain Text

Primary care systems in international comparison: How do other countries structure their care and what can Germany learn from this?

In international comparison, primary care physician systems are the rule rather than the exception. In Europe, such systems are established in Italy, Spain, England, the Netherlands, and France, as well as in the Nordic countries such as Denmark, Finland, and Norway (Or et al. 2023; Keskimäki et al. 2019; Bernal-Delgado et al. 2024; Giulio de Belvis et al. 2022; Anderson et al. 2022; Kroneman et al. 2016; Birk et al. 2024; Saunes et al. 2020). Beyond the European context, the Israeli health care system, for example, also relies on elements of a primary care physician system (Rosen et al. 2015). Germany also enabled a voluntary primary care physician system with the 2004 Act to Modernize Statutory Health Insurance Funds. In so-called GP-centered care, patients voluntarily commit to seeing a regular GP before accessing secondary care (Gerlach and Szecsenyi 2011). The enrollment rate of approximately 12% of the population (as of May 2025) is significantly lower than in Denmark, the Netherlands, or Norway, where, despite formal voluntary participation—but under different institutional frameworks and incentive structures—rates of over 90% are achieved (Kroneman et al. 2016; Birk et al. 2024; Saunes et al. 2020; Marchildon et al. 2021; Association of General Practitioners 2025b). The introduction of a mandatory, nationwide primary care physician system to promote targeted care and rapid appointment scheduling in Germany was recently agreed upon as part of the coalition agreement for the 2025-2029 legislative period, although the specific design is still being discussed (Popert et al. 2018; Laux et al. 2015; CDU 2025). In this article, we compare the components of various primary care physician systems and assess their relevance specifically for the German context.

> Demographic change, rising numbers of multimorbid patients, shortages of skilled workers, and growing demands on medical care pose challenges for healthcare systems and their financing (Sachverständigenrat Gesundheit & Pflege 2024; Glonti et al. 2019). For patients, navigating complex and sometimes fragmented healthcare systems independently is time-consuming and laborious (Griese et al. 2023).
As early as 2008, the World Health Organization recommended a stronger focus of member states’ health systems on primary care in order to be able to meet the challenges of our time in an effective, cost-efficient and patient-centered manner (Robert Bosch Stiftung 2015; van Lerberghe 2008).
The overarching goal of primary care systems is therefore to strengthen the coordination, support, documentation, and integration functions of primary care. Ideally, this can lead to cost savings by avoiding medically unnecessary specialist visits and duplicate examinations, as well as eliminating interface problems between care levels (Klora et al. 2017).
The course of treatment can also be positively influenced by the strengthened, coordinating role of primary care (Klora et al. 2017). Referrals to specialists are generally only issued after an initial diagnostic history has been taken by the primary care provider. This can mitigate information asymmetries between patients and specialists and ensure that specialist capacities are utilized as needed. The latter can enable more intensive care for patients with high care needs. In high-performance primary care systems with registration, primary care physicians are automatically notified of their patients' treatment progress at other levels of care (Klora et al. 2017; Bodenheimer et al. 2014; Rotar et al. 2018). The resulting improved communication and documentation can prevent treatment errors, as drug interactions, for example, can be detected more reliably (Sachverständigenrat Gesundheit & Pflege 2024; Klora et al. 2017).
Furthermore, registered primary care systems can also ensure better implementation of preventive measures (e.g., breast cancer screenings) and improved accessibility in the event of a public health crisis (Sripa et al. 2019; Expert Council on Assessment 2023). Avoidable hospitalizations, for example, due to acute exacerbations of chronic diseases, can be reduced through intensified primary care and preventive measures (Laux et al. 2015; Garrido et al. 2011).
Comparison of primary care systems in 10 countries

Registration to participate in the primary care system
Registration for participation in the primary care system is implemented either as a requirement or voluntarily in the countries considered. In voluntary participation, positive and negative incentives are used to encourage participating actors to participate. In most primary care systems, registration is initiated by patients and supported by relevant information online. Only in Spain, Finland, and Norway is automatic enrollment with a primary care physician based on place of residence. In Spain and Finland, registration is mandatory. In Norway, there is the option to revoke registration and leave the primary care system (Bernal-Delgado et al. 2024; Shahaed et al. 2023).
In Italy and England, registration is formally voluntary. However, without registration, access to public health services is not possible. Therefore, it is a de facto obligation (Marchildon et al. 2021).
In the Netherlands, France, and Norway, registration is voluntary. In the Netherlands and France, non-registration is associated with higher co-payments or disadvantages in scheduling appointments. In Norway, unregistered citizens must fully cover visits to primary care providers themselves. Accordingly, in all three countries, over 90% of the population are registered with a primary care physician (Or et al. 2023; Marchildon et al. 2021; Shahaed et al. 2023).
In Denmark, Switzerland, and Israel, patients can choose between different plans or health insurance companies, and a commitment to a primary care physician is only required for some insurance companies or plans. In Switzerland, in addition to the standard insurance with free choice of doctor, there are alternative plans with a primary care physician connection and telemedicine plans. Only in the plans with a primary care physician connection is the patient obliged to first consult a permanent primary care physician before consulting specialists. In telemedicine plans, a call center must first be contacted or an initial digital assessment must be performed before a provider can be consulted. In addition, there are insurance companies in Switzerland that organize care themselves in so-called health maintenance organizations. In Switzerland, these are usually group practices or physician networks operated by the insurers. The incentive to choose one of the alternative insurance models is provided through premium savings (IGES Institute 2020; Sturny 2020; Pietro et al. 2015).
In Israel, the four health insurance funds are also responsible for both financing and providing care. They own some hospitals, laboratories, and pharmacies. They can also directly employ medical providers. Registration with a primary care physician is only required for two of the four health insurance funds. Contributions for the four health insurance funds do not differ (Rosen et al. 2015).
In Denmark, a distinction is made between two insurance groups. In Group 1, patients are tied to a primary care physician with whom they must register. In Group 2, patients have direct access to most specialists. However, they must pay higher co-payments for doctor visits. Fees are set by the physicians and are only reimbursed up to the fees set for Group 1. Assignment to one of the two groups occurs automatically at birth based on the parents' group. This is Group 1 in 98% of cases. A change is possible online at any time (Birk et al. 2024; Vrangbæk 2020).
Table 1 provides an overview of the incentive effects used in the different countries as well as the estimated registration rates.

Interprofessional teams at the center
In most of the countries examined, primary care is increasingly provided by larger, more centralized facilities or through networks of different providers. Here, not only general practitioners but also (depending on regional needs) specialists, nurses, psychologists, physiotherapists, etc. work together in interprofessional teams (IGES Institute 2020). These are referred to below as health centers or practice networks. Many of the centers are operated at the municipal level, and the services provided are tailored to specific regional needs (Schaeffer et al. 2015). The interprofessional team often also includes a broad spectrum of primary care services, which, in addition to the usual diagnostic, curative, preventive, nursing, and palliative services, sometimes includes gynecological or family planning aspects, pediatric activities, and minor surgical procedures. In almost all countries, milder mental illnesses are treated by primary care physicians or specially trained specialists (Keskimäki et al. 2019; Bernal-Delgado et al. 2024; Anderson et al. 2022; Kroneman et al. 2016; Birk et al. 2024).
The delegation and substitution of medical services to nurses, usually academically trained at the master's level and referred to below as Advanced Practice Nurses (APNs),3 plays a central role in health centers. In England, Israel, Finland, Norway, Spain, and France, these nurses can provide a range of medical services largely independently, e.g., prescribing certain medications (Brownwood and Lafortune 2024; Lenz 2022). This often works through a model in which physicians make diagnoses and determine the further course of care. In some countries, such as England, patients can also visit the APN directly. Patients are then assigned to a module depending on their illness and receive further treatment from the Advanced Practice Nurses. Referrals to physicians occur occasionally during the follow-up period (Robert Bosch Stiftung 2015). In the remaining countries, the scope of services provided by Advanced Practice Nurses is more limited, and many services are only permitted under medical supervision (Brownwood and Lafortune 2024).
Table 2 shows an overview of the health centers in the respective countries and the medical personnel practicing there.

Choice of primary care physician
In Spain, Finland, and Norway, citizens are initially automatically assigned to a primary care physician or health center based on their place of residence. They then have the right to change providers (Bernal-Delgado et al. 2024; Shahaed et al. 2023; Comunidad de Madrid 2025).
In the remaining systems examined, freedom of choice generally exists. In Italy and Denmark, this freedom of choice is slightly restricted to the municipality in which one lives or to a 15-km radius. Depending on the chosen insurance model, in Switzerland, the Netherlands, and Israel, one can only consult doctors contracted through one's own insurance without higher co-payments (Or et al. 2023; Giulio de Belvis et al. 2022; Birk et al. 2024; Rosen et al. 2015; Shahaed et al. 2023; Pietro et al. 2015; Tikkanen et al. 2020). In England, it is possible to change primary care providers, but these providers have the right to refuse registration if one does not live in their catchment area.

Initial assessment mechanisms in primary care
Another key task of primary care as the first point of contact for patients is initial consultation and assessment, as well as the determination and coordination of subsequent treatment steps (World Health Organization). Structured initial assessment tools are used for this purpose in England, Finland, and Switzerland. Patients can answer a series of questions about their symptoms online or by telephone with the support of a healthcare professional (usually a nurse). The tool provides an assessment of urgency and then either directs them to an appointment booking point, they receive a call back from the healthcare professional, or they receive advice on self-care. In the event of an emergency, help is provided immediately (DigiFinland; The Wellbeing Services County of Ostrobothnia; Liu et al. 2023; National Health Service 2022; NHS England 2023a). In Finland and England, the use of these tools is voluntary (NHS England 2022). In Switzerland, there are insurance tariffs in which the use of an initial assessment tool is a necessary first step before consulting a provider (KPT: The health insurance company with the Plus 2025; Helsana).

Access to specialists and hospitals
In almost all countries, a referral from a primary care physician is required for access to most specialists and hospitals (except for emergencies). Without a referral, specialists generally do not schedule appointments or reimburse costs (Keskimäki et al. 2019; Bernal-Delgado et al. 2024; Giulio de Belvis et al. 2022; Anderson et al. 2022; Waitzberg and Rosen 2020; Sperre Saunes 2020; Tikkanen et al. 2020; NHS England 2023b). Selected specialties can often be accessed without a referral (see Table 3 for an overview).
Exceptions to this are Switzerland, Denmark, and France. In Switzerland, access to specialists and hospitals is generally free, unless one has opted for one of the alternative insurance models (Pietro et al. 2015). In Denmark, specialists are only accessible with a referral for insured persons in group 1 with a primary physician (with a few exceptions, see Table 3). Insured persons in group 2 have free access to almost all specializations. For these, they pay a higher co-payment. For access to hospitals,
In Denmark, a referral is always required (except in emergencies) (Vrangbæk 2020). In France, referrals for specialist or elective hospital visits are voluntary. Without a referral, only 30% of the costs for the visit (instead of the usual 70%) are reimbursed (Or et al. 2023).
Choice of specialist and hospital
The freedom to choose specialists and hospitals is only slightly restricted in most primary care systems. Since specialists are not available in Spain, Italy, Israel, Finland, England,
Since the majority of healthcare workers in Denmark and the Netherlands are employees of hospitals and other larger institutions, freedom of choice is usually limited to that institution (IGES Institute 2020; Keskimäki et al. 2019; Bernal-Delgado et al. 2024; Giulio de Belvis et al. 2022; Anderson et al. 2022). In England, the option to choose providers from a list of qualified providers has been available since 2012 (NHS Confederation 2011).
In Switzerland, the Netherlands, and Israel, freedom of choice is also restricted by health insurance companies, depending on the chosen plan. Health insurance companies typically enter into selective contracts with various providers or organize care themselves in health maintenance organizations (HMOs). Individuals insured with them can then generally only visit these providers or must pay higher co-payments if they use a non-contracted provider (IGES Institute 2020; Rosen et al. 2015; Government of the Netherlands 2025). In the remaining countries, patients' freedom of choice is not restricted by law or by health insurance companies (Or et al. 2023; Birk et al. 2024; Saunes et al. 2020).
Obtaining a second opinion is generally possible in most systems (Or et al. 2023; Keskimäki et al. 2019; Giulio de Belvis et al. 2022; Kroneman et al. 2016; Saunes et al. 2020; Helsana; Ministry of Health Israel 2024). Regional variations exist in Spain, and in Denmark, the right to a second opinion is limited to seriously ill patients (Bernal-Delgado et al. 2024; Birk et al. 2024).

Follow-up and exchange of information
After hospital stays and treatment by specialists, the primary physician is usually responsible for follow-up treatment and the coordination of next steps (e.g., physiotherapy) (Keskimäki et al. 2019; Bernal-Delgado et al. 2024; Kroneman et al. 2016; Birk et al. 2024; Saunes et al. 2020). In Denmark, the hospital is obligated to support the primary physician and community health personnel in follow-up treatment for the first 96 hours after discharge (Region Syddanmark 2025). In France, it is often still the patient's responsibility to coordinate the further course of treatment.
A key prerequisite for effective collaboration between primary care, specialists, and hospitals is informational continuity, i.e., precise information exchange between different providers (Saultz 2003). In the majority of the systems examined, information on the course of treatment is shared automatically and digitally and consolidated in an electronic patient record (SBK 2024; Fascicolo Sanitario Elettronico 2025; Healthcare Denmark; Sturm et al. 2025; eHealth Suisse: Competence and Coordination Center of the Federal Government and Cantons 2025; Thiel et al. 2018; Hägglund et al. 2024). In some countries, the level of use of electronic health records is still too low or there are different systems that are not yet fully integrated (Or et al. 2023; Mon espace santé: Un service de l'assurance maladie ministère de la santé et de l'accès aux soins, santé famille retraite service 2025).
Figure 1 provides an overview of the key elements of patient pathways in the primary care systems considered – from registration with a primary care physician to access and selection of specialists and hospitals.

Implications for the implementation of a primary care physician system in Germany
First step towards a primary care system: GP-centered care
In Germany, no primary care physician system has yet been implemented in standard care (Popert et al. 2018; Laux et al. 2015; CDU 2025). The HZV currently exists as an optional tariff that health insurance companies are required to offer according to Section 73b Paragraph 1 of the Social Code Book V (SGB V). Implementation is carried out through selective contracts, almost exclusively between health insurance companies and regional general practitioner associations. Participation is currently voluntary for patients and physicians (Sachverständigenrat Gesundheit & Pflege 2024; AOK Baden-Württemberg; Federal Office of Justice; General Practitioners' Association 2025a).
If patients opt for the HZV, they are required to register with a participating primary care physician. Access to specialists and hospitals requires a referral from the primary care physician, with a few exceptions. Thus, the HZV already includes some of the key components of a primary care physician system (Federal Office of Justice).
A key difference between the countries examined, however, lies in the degree of incentives. While the HZV relies on smaller bonuses and additional benefits such as exemption from co-payments for medications and health check-ups, the majority of the primary care systems examined use co-payments for doctor visits of up to 100% of the costs or significant premium savings (Techniker Krankenkasse 2025). In Switzerland, insured persons can reduce their premiums by up to 20% if they choose one of the alternative insurance models (Federal Office of Public Health 2024).

Strengthening primary care is necessary
In Germany, primary care fulfills essential functions of primary medical care. However, since the 2000s, a shortage of young primary care physicians has become apparent, and regional bottlenecks are jeopardizing the provision of primary care, particularly in rural areas (Sachverständigenrat Gesundheit & Pflege 2024; Laux et al. 2015; Robert Bosch Stiftung 2015). In most countries, a primary care physician system is associated with greater utilization and expanded service provision of outpatient primary care (Laux et al. 2015; Sripa et al. 2019; Shahaed et al. 2023). Strengthening primary care and structural reforms are therefore necessary to enable a nationwide primary care physician system in Germany.
For example, academically qualified nurses who relieve physicians do not yet play a decisive role in primary care in Germany compared to the countries examined. Outpatient primary care in Germany is still largely based on the model of a single general practitioner. In contrast, the primary care systems examined are usually centered on interprofessional teams that plan, coordinate, and deliver care for a specific region based on needs (Robert Bosch Stiftung 2015).
In its report for the German Federal Government on the skilled workforce situation in the healthcare system, the Expert Council on Health and Care recommends the establishment of interprofessional teams and the creation of health centers based on local needs and local conditions. The Council advocates expanding the delegation of primary medical tasks to specially qualified nursing staff within existing general practices or practice networks to address the skilled workforce shortage (Sachverständigenrat Gesundheit & Pflege 2024). A well-supported digital initial assessment, such as that used in England, Finland, and Switzerland, could also – if well-integrated – provide additional relief and strengthen primary care in Germany.

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