The Flexible Budget Process—, Tool for Cost Containment J. RICHARD PEARSON, P H D . , PEGGY C. ROMFH, M.S., JEANNE M. HABIB, B.S., AND MORRIS J. FRIELING, M.S.H.A. This past year the authors have been using a new tool to examine and monitor their laboratory's expenditures. Called "flexible budgeting," this process has been used to analyze the cost behavior of all operating expenses, establish budget levels for different levels of activity, and monitor activity based on relative cost rather than simply the number of tests performed. The authors' experience has shown that this tool provides much more information than previous procedures. However, better methods need to be developed for monitoring expenditures so that this information can be used effectively. (Key words: Cost containment; Flexible budgeting; Laboratory management) Am J Clin Pathol 1985; 84: 202-208 LIKE ANY OTHER type of budget, the objectives of the flexible budget process are control and planning. A flexible budget identifies costs that are controllable. Thus, the laboratory manager has the information needed to modify expenditure projections when levels of activity increase or decrease. In addition, because increased information is available in a flexible budget, the laboratory manager can more readily provide input relevant to the changing charge and cost-reimbursement mechanisms. The development of a flexible budget requires more time and effort than for the static budget process. Furthermore, it requires close cooperation between finance and laboratory departments. Finance provides the rules and general guidelines for the flexible budgeting process and the laboratory provides the ability to apply the guidelines in the highly technical work areas. Thus, the success of the process depends on the ability of finance to fine-tune the flexible budget models described in the literature1 to the specific hospital environment and on the ability of the laboratory manager to be knowledgeable concerning cost behavior patterns in his or her department. Definitions Because the terminology in the budgeting area is by no means standard, the definitions of terms as used in this article are provided below. Received October 9, 1984; received revised manuscript and accepted for publication November 30, 1984. Address reprint requests to Dr. Pearson: University Hospital, UCHSC—Box A022, 4200 East Ninth Avenue, Denver, Colorado 80262. Central Laboratory and Financial Administration, University Hospital, University of Colorado Health Sciences Center, Denver, Colorado Direct cost: The cost clearly traceable to a unit of activity or cost center. It includes specific and nonspecific direct labor costs and specific and nonspecific direct material costs. Direct labor cost: The labor cost of actually performing a test or procedure. Direct materials cost: The cost of raw materials or semifinished materials that can be traced to a test or group of tests. Nonspecific direct labor cost: The direct labor costs that cannot be identified specifically with a test or test group. These costs could be considered as indirect costs within a laboratory section. Nonspecific direct materials cost: The direct materials costs that cannot be identified specifically with a test or test group. These costs could be considered as indirect costs within a laboratory section. Fixed cost: That cost that is independent of the level of activity. Variable cost: That cost that varies more or less in direct proportion to the level of activity. Semifixed cost: Costs that change with level of activity but not in direct proportion. Semivariable cost: Costs that vary in direct proportion to level of activity after a certain minimum has been reached. Marginal cost: The added cost of performing one additional test without additional fixed cost investments. Indirect cost: That cost not clearly traceable to a unit of activity or a cost center, such as general administration. Static budget: A budget projecting expenses at a single normative level of workload activity. Flexible budget: A budget projecting expenses at various levels of workload activity. Weighted units of measure (WUM): A weighted unit of measurement quantifies the relative difference in utilization of resource among similar, though different, tests. The weighted units of measure (or relative value units) were developed from variable labor and supply expenses directly identifiable with specific tests or procedures. 202 Vol. 84 • No. 2 FLEXIBLE BUDGETING FOR COST CONTAINMENT Table 1. Flow Chart of the Steps Required for the Flexible Budgeting Process List the tests and procedures performed in the laboratory i Determine the natural classification of expenses Identifyfixedand variable direct materials cost for each test Identifyfixedand variable labor costs for each test Develop weighted units of measure for the variable costs connected with each test Determine total direct costs for each test l Develop budget projections for various levels of activity as needed Monitor expenses against the budget adjusted for actual weighted units of measure Cost Behavior of Operating Expenses There are four basic cost behavior patterns: (1) fixed; (2) variable; (3) semifixed; and (4) semivariable. In our initial development of the flexible budget, we treated all expenses as either "fixed" or "variable" and did not use the semifixed or semivariable categories. Some expenses were identified as having both fixed and variable components. Specific examples will be given in the next section. Ideally, every cost is identified specifically for each test or procedure done in the laboratory, rather than nonspecifically against all laboratory procedures. This becomes especially important in the flexible budgeting process, where the accuracy of the weighted units of measure (and thus their usefulness in projecting expenditure levels) depends on the completeness with which specific costs are known. When we reviewed our budget, we found that our expenses fell into two main categories: (1) test-specific or test-group-specific costs that could easily be identified, e.g., a reagent used for a specific test or a maintenance contract for a specific instrument; (2) non-specific costs that could not be identified as belonging to a specific test but were of a general nature or part of the laboratory overhead, e.g., cleaning supplies, copy machine charges, request forms. In addition, we identified a third, temporary category of expense. This included test-specific or test-groupspecific costs that, because of the way purchases were made or data was recorded, could not easily be identified with specific categories. For the first year, these costs were lumped in the nonspecific costs category and data handling methods were improved so that these costs could be identified against specific tests or test groups in subsequent years. Examples included transfer pipets, sample storage tubes, and certain control materials. Development of the Flexible Budget In spite of all of the directions, guidelines, etc., that exist for the budgeting process, many decisions are 203 Table 2. Sample List of Tests and Procedures Grouped by Test Group Instrument or Test Group Astra® Hitachi® Flame photometer Osmometer Isoenzymes Electrophoresis Test Amylase Calcium Chloride Albumin ALT AST Bilirubin, conjugated Bilirubin, total Cholesterol, HDL Lithium Osmolality CK Isoenzymes Protein fractionation Creatinine Glucose Potassium Cholesterol, total CK. GGT LD Magnesium Phosphorus Sodium Urea Phosphatase, alkaline Protein, total Triglyceride Uric acid LD Isoenzymes required on a detailed level as the process unfolds. Table 1 shows a flow chart of the budget process. Some of the decisions and considerations required at each step are discussed below. List the Tests and Procedures Performed by the Laboratory All of the major production tasks of the laboratory should be represented in this list. Frequently, the laboratory performs a combination of revenue and nonrevenue producing tasks. For example, phlebotomy may represent a significant portion of work for a laboratory section but may or may not be represented by a separate charge. Table 3. List of Expense Classifications Used for Flexible Budgeting Purposes Office supplies 'Request forms General telephone Pageboys General postage Printing services Copy machine General microfilm and photo Subscriptions General physical plant maintenance Building maintenance and repair Custodial and laundry services Technical shop supplies 'Control sera *Chem supplies—Astra 1 Med surg supplies—chem Med surg supplies—glassware and plastics Med surg supplies—purchased services *Chem supplies—Hitachi •Chem supplies—isoenzymes *Chem supplies—protein electrophoresis *Chem supplies—aca® pharmaceuticals Gen equipment noncapital Gen freight storage Gen other operating expense Equipment maintenance and repair Represents new classifications created that are not from the standard finance department PEARSON ET AL. 204 A.J.C.P. • August 1985 Table 4. Examples of a Worksheet for Recording Fixed and Variable Costs (dollars) Test-Group-Specific Direct Mat. Costs Classification Description Copy machine Subscription Copy Machine Surveys Subscriptions Rental Na/K Rental CI Rental C02 Rental BUN Rental Creat Rental Glu Rental Ca Rental Amy Rental TestGrp ESP rgt Na/K ESP rgt CI ESP rgt C02 ESP rgt BUN ESP rgt Creat ESP rgt Glu ESP rgt Ca ESP rgt Amy Chem—Astra Fixed Variable Test-Specific Dir. Mat. Costs Fixed Variable Nonspecific Dir. Mat. Costs Fixed 732 2,476 1,020 Variable Subtotal 732 3,496 2,640 1,980 2,376 3,036 3,168 3,640 7,200 4,080 49,182 Many times tests may be ordered singly or as part of an ordering panel. Since the costs for producing the panels are determined at a test level, tests, not ordering panels, should be represented in this list. The exception would be for an instrument in which only full panels are done and in which costs are determined at the panel level. When more than one test was performed on a single instrument, we chose to group the tests together on the list because it made handling of the costs easier. A sample list is shown in Table 2. Determine the Natural Classification of Expenses Traditionally, the budget is segmented into categories of expenses called "natural classifications." The ojective of the natural classification is to group similar expenditures together, with the end result that the department budget is neither too detailed nor,too summarized. This grouping facilitates budget operations such as applying corrections for inflation, since all items in a classification are related. During the flexible budget process, it is helpful to create specific classifications (or subclassifications) for each test or test group in the laboratory that is a major expenditure. For example, "chemical supplies" can be split into "chemical supplies—Astra," "chemical supplies—Hitachi," "chemical supplies—isoenzymes," etc. The degree to which the classification groups can and should be split must be the result of a compromise between the finance department (how many categories are needed or permitted?) and the laboratory (how much effort is required to keep track of multiple categories vs. 5,040 6,989 3,920 19,321 7,661 15,300 0 8,064 143,597 how many dollars are involved?). In general, we found that if a test or test group consumed more than 1 % of our operating expense budget, it was helpful to establish a new classification. A summary of classifications used in our laboratory is shown in Table 3. Identify Fixed and Variable Direct Materials Costs for Each Test in the Laboratory Since all of the expenditure reports from the finance department are organized by natural classification (rather than by test or instrument), it is best to allocate fixed and variable expenses under these same classifications. We analyzed our expenditures for each classification code and used a worksheet and a log sheet to summarize the basis for our decisions. We referred to our list of tests and procedures as we reviewed each expenditure in the laboratory. Examples are shown in Tables 4 and 5. The source of budget information for the flexible budget process was no different from that used in the static budget process—it still consisted of a combination of historic data, usage estimates, and actual cost data for new and existing programs. As stated earlier, three categories of fixed and variable expenses were identified: (1) test-group-specific direct material cost; (2) test-specific direct materials cost; and (3) nonspecific direct materials cost. The test-group-specific costs were allocated to all tests done in the test group by the ratio of total numbers (based on the previous year's total counts). Test-specific materials costs were allocated to each test. Nonspecific direct materials costs were allocated to all tests by the ratio of total test counts. Vol. 84 • No. 2 FLEXIBLE BUDGETING FOR COST CONTAINMENT 205 Table 5. Logsheet with Descriptions of Fixed and Variable Costs Overall Policy The basis used for thefixedbudget for all expenses is that one sample per test will be received per shift (or in the case of low volume tests, one sample per day). Thus, the minimum supplies, equipment, technologists, etc.. that must be included infixedcosts are those needed to do the "one of each test." All remaining supplies that are directly test-related will be considered variable. Classification Copy Machine: Historic data show that expenditures for the copy machine remain essentially constant and are afixedpart of doing business. Subscriptions: Historic data used to estimate expenditures of $2,476 for survey subscriptions and $1,020 for books and periodicals. These costs are considered afixedpart of doing business. Physical Plant Maintenance: Historical data show that expenditures for maintenance are essentially constant from year to year and are a fixed part of doing business. Chem Supplies—Astra: Actual cost data and projected estimates show that classification consists of bothfixedand variable expenses. The rental agreement (Answerpak) is considered 100%fixedand will be coded against specific tests for the module costs and against the Astra test group for the balance of the rental costs. The additional reagents purchased will be considered 100% variable. Chem Supplies—Hitachi: Actual data and projected estimates show that reagent costs that are part of the matrix rental agreement are 100% fixed; additional reagents are 100% variable. Test-group-specific items such as calibrator and reaction cell cuvettes that are used on a scheduled basis are 100%fixed;sample cups, printer paper, and other volume-dependent consumables are estimated to be 10%fixedand 90% variable. Identify Fixed and Variable Labor Costs for Each Test in the Laboratory A decision was made to consider the technologists needed to staff the laboratory 24 hours a day for minimal testing as "fixed." The number, 8.8 FTEs (full time equivalent), included three technologists on day shift, two on evening shift, and one on night shift, plus minimal staffing on weekends. In addition, all (three) supervisor FTEs were considered fixed, for a total of 11.8 fixed salaries. That left a total of 6.55 FTEs as 100% variable. Laboratories usually use the CAP (College of American Pathologists) workload recording method to determine the amount of time required for the type of testing performed. Since labor costs represent a significant portion of laboratory expenses and since standards and quality control (QC) samples may represent a significant fraction of the overall test volume, it is critical that the count of these tests be included in the test count and in the overall cost for the tests. Some modifications may be required to the CAP workload figures. For example, the CAP units for tests performed on multitest analyzers consist of a sample setup component and a test performance component. To simplify record keeping, we collected data for one month and calculated an average CAP unit for these tests. Values for methods not listed in the CAP workload tables were determined by performing time studies in the laboratory. There are two methods that can be used to calculate the variable labor costs: Method 1. Establish the salary rate for a CAP unit (minute) of work by assuming 100% efficiency, i.e., all staff are productive at all times, and calculate the labor cost for each test based on the corrected CAP units for that test. The steps required are as follows: (1) Determine the projected number of standard, quality control, repeat, and billable samples for each test and procedure. (2) Identify the appropriate CAP workload units for each test or procedure. (3) Calculate the variable salary rate by dividing the sum of the variable salaries by the number of variable FTEs expressed in minutes. (4) Calculate the corrected units of work/test by the following formula: ([annual number of tests X CAP workload units/test] + [annual number of QC, standards, and repeats X CAP workload units/test]) divided by the annual number of tests. (5) Calculate the variable salary dollars per test by multiplying the corrected units of work/test by variable salary rate. Method 2. Establish the labor cost for a test by assuming that a certain staffing level is appropriate and spreading the labor costs cross all tests as a ratio of the CAP weight for that test to the CAP weight for all tests. The steps required are as follows: (1) Determine the projected number of standard, quality control, repeat, and billable samples for each test and procedure. (2) Identify the appropriate CAP workload units for each test or procedure. (3) Calculate the sum of the variable salary dollars in the laboratory budget. (4) Calculate the corrected units of work/test by the following formula: ([annual number of tests X CAP workload units/test] + [annual number of QC, standards, and repeats X CAP workload units/test]) divided by the annual number of tests. (5) Calculate the variable salary dollars allocated to each test using the following formula: (total variable salary dollars/total corrected units of work for all tests) X (corrected units of work/test) = variable salary dollars allocated/test. PEARSON ET AL. 206 A.J.C.P. • August 1985 Table 6. Variable Labor Costs Calculated by Method 1 for Selected Tests Test or Procedures Astra Amylase Calcium Hitachi Albumin Cholesterol, HDL Annual No. of Tests or Procedures Annual No. of QC, Stds, and Repeats Cap Workload Units/Test Corrected Workload Units/Test Variable Salary/Test* 6,633 12,683 3,980 7,610 0.6 0.6 0.96 0.96 0.20 0.20 7,703 145 4,622 87 0.8 6.0 1.28 9.6 0.27 2.05 * Variable salary rate calculated from Method 1, Step 3 equaled $0.21. For administrative reasons, we used Method 1; Method 2 would be preferable because it gives a better indication of the true variable labor cost per test. An example of a variable labor cost worksheet is shown in Table 6. Develop Weighted Units of Measure for the Variable Costs Connected with Each Test The totals for all variable test-group-specific costs and test-specific costs can be obtained from the direct materials worksheets. The variable labor worksheets provide information on the annual number of tests or procedures and the variable salary dollars per test. The total direct materials costs were converted to costs per test with the use of the following formulas: (1) (Variable test-groupspecific cost per test) = (total variable test-group-specific direct materials cost) divided by (total annual number of tests or procedures in the test group); (2) (Variable test-specific cost per test) = (total variable test-specific direct materials cost) divided by (total annual number of the specific test or procedure). Since the finance department defined the weighted unit of measure in terms of known variable costs per test, we first summed the variable salary dollars per test, the variable test-group-specific cost per test, and the variable test-specific cost per test to obtain the total known variable cost for each test. By choosing the test or procedure with the lowest total known variable cost per test and dividing all totals by this number, relative value units or weighted units of measure were calculated for each test. Of significance is the fact that relative value units represent the total known, specifically identified variable costs for doing each test or procedure in the laboratory, ranked relative to all other tests or procedures. Remember, however, that there are other variable costs of a general or nonspecific nature that are not included, in addition to all fixed costs. An example is shown in Table 7. Determine Total Direct Costs for Each Test This section draws on all of the previous work and adds in the cost categories that have been set aside. When the worksheet for this section is completed, all of the direct expenditures for materials and labor will be allocated; that is, summing the products of the total direct cost per test times the number of tests for all tests will equal the total operating expense budget. The total direct cost for a test is the sum of the fixed and variable specific materials and labor costs identified for the test plus the fixed and variable nonspecific materials and labor costs allocated to the test. The fixed test-group-specific cost per test and fixed test-specific cost per test were calculated as described above for their variable counterparts. There was no fixed specific labor cost, since we decided to treat all fixed labor costs as nonspecific costs. The fixed nonspecific materials and labor costs and the variable nonspecific materials costs were allocated to all tests according to the following formulas: (1) Fixed nonspecific materials cost per test Table 7. Sample Worksheet for Calculating Weighted Units of Measure for Each Test Test or Procedures Astra Amylase Calcium Hitachi Albumin Cholesterol, HDL Variable TestGroup-Specific Cost/Test Variable Test-Specific Cost/Test Variable Salary/Test Total Known Variable Cost/Test Weighted Units of Measure 0.02 0.02 1.22 0.00 0.20 0.20 1.44 0.22* 6.5 1.0 0.03 0.03 0.01 0.00 0.27 2.05 0.31 2.08 1.4 9.4 * Calcium represents the test with the lowest total known variable cost per test. Each total is divided by the calcium variable cost ($0.22) to obtain the weighted units of measure. 207 FLEXIBLE BUDGETING FOR COST CONTAINMENT Vol. 84 . No. 2 Table 8. Worksheet for Calculating Total Direct Cost for Each Test Test or Procedure Amylase Calcium Albumin Cholesterol, HDL Total Known Variable Cost/Test Fixed Test-GroupSpecific Cost/Test Fixed Test-Specific Cost/Test Variable Nonspecific Material Cost/Test Fixed Nonspecific Material Cost/Test Fixed Nonspecific Labor Cost/Test Total Direct Cost/Test Total Direct Variable Cost/Test 1.44 0.22 0.31 0.22 0.22 0.07 0.62 0.57 0.09 0.11 0.02 0.02 0.21 0.03 0.04 1.78 0.27 0.38 4.38 1.33 0.91 1.55 0.24 0.33 2.08 0.07 0.00 0.16 0.30 2.57 5.18 2.24 = (total fixed nonspecific materials cost) divided by (total weighted units of measure for all tests) X (weighted unit of measure for the test). (2) Fixed nonspecific labor cost per test = (total fixed nonspecific labor cost) divided by (total weighted units of measure for all tests) X (weighted unit of measure for the test). (3) Variable nonspecific materials cost per test = (total variable nonspecific materials cost) divided by (total weighted units of measure for all tests) X (weighted unit of measure for the test). An example is shown in Table 8. Develop Projections for Various Levels of Activity as Needed Once the static budget was determined and approved, budget plateau levels were established for changes in workload from - 3 0 to +10%. The plateau levels represented percent changes in weighted units of measure, not changes in counts of tests. By definition, the changes in workload impact the variable portions of the budget but not the fixed portions. For example, for a plateau level of —10% weighted units, the variable portion of the budget was reduced 10% but the fixed portion did not change. At -20%, the variable portion of the budget was reduced 20% (e.g., by lay off of variable salary personnel and reduction in supplies), but the fixed portion did not change. Because so much of the total cost of a laboratory is classified as fixed, the savings projected are rather small but are realistic. For example, if a 10% decrease in amylase tests is projected, we can use the data in Table 8 to calculate the projected savings by using the following formula: Projected savings = (number of tests not done) X (total direct variable cost per test). In the example for amylase, projected savings = 663 X $1.55 = $1,028. Contrast this figure with what might be projected if the nature of the costs was less well understood. In such an environment, a formula such as the following might be used: Projected savings = (number of tests not done) X (total direct cost per test). Again, for the amylase example, projected savings = 663 X $4.38 = $2,904. Projections such as this are not realistic, and such high savings cannot be realized. Monitor Expenses Against Budget Adjusted for Actual Weighted Units of Measure In the static budget process, the budgeted expenditure levels can be allocated among the calendar months as desired, but the total budgeted dollars do not change when the workload changes. In the flexible budget, budgeted expenditure levels for fixed expenses can be allocated among the calendar months as desired, but the variable expenses must be allocated based on the observed WUM for each time period. Monitoring expenses on a monthly basis is difficult because expenses tend to occur relative to when an order was placed and are not related necessarily to the workload experienced over the month. Over a longer time period such as 6-12 months, though, the expenditures and weighted units of measure should come together. We have developed a simplified manual accounting system that duplicates the Hospital's financial reporting system for the purpose of attempting to associate expenditures with workload over shorter periods of time. It is too early to tell if this effort is worthwhile. Discussion of Flexible Budgeting Process Like all new management tools, the flexible budgeting process is undergoing a "growth and change" phase as our level of experience with it changes. The process has several clear-cut advantages—and also some areas that require further work and definition. The flexible budgeting process provides a format under which each operating cost is defined and categorized. Once the cost behavior of each operating expense is known and the component expenses that make up laboratory costs are defined, the information can be used for a variety of purposes including the following: (1) determining price structure; (2) providing input into diagnostic related groups (DRGs), and (3) initiating tighter control of variable-cost inventory items. 208 PEARSON ET AL. The support systems and processes in the hospital often must be adapted to provide the data in more usable and timely ways. For example, the laboratory's current inventory system does not permit easy coding of costs by test, test group, or nonspecific categories, nor does it permit identification of specific costs as fixed or variable. The hospital financial system monitors expenses by the natural classification codes, and each expenditure is allocated into fixed and variable categories by an average percentage rather than specific allocations. In addition, the laboratory has many expenses that really are semifixed or semivariable, and no mechanism exists presently to recognize this. One problem we encounter while monitoring expenditures occurs because of delays in processing orders and because some orders are shipped quarterly or bimonthly. This may cause a significant lag in the appearance of some costs on expense reports and a significant lead in the appearance of other costs. Furthermore, since the amount of supplies in inventory must be sufficient to cover increases in work and delays in ordering, there is a natural imbalance between ordering and consumption. The monitoring system presently used is such that expenses are recognized only when paid. We are evaluating a modified accrual accounting system for monitoring purposes, whereby expenses are recognized when resources are consumed. Such a system should provide data that are more in tune with the level of activity. The flexible budget represents many compromises negotiated, not only for budgetary purposes, but also as part of laboratory operations. For instance, the nonspecific variable and fixed costs are spread to all tests, based on the relative weights for the test. This means that supervisor time will be weighted more heavily to BUN than to Na because the reagent is more expensive, even though the amount of supervisor time may not differ. Consider the trade offs made when supplies are purchased. Many reagents in the laboratory are ordered A.J.C.P. • August 1985 under special contracts, whereby the price is guaranteed in return for a fixed volume order. Thus, these reagents are part of the fixed operating expense. If significant workload decreases are anticipated, it might be advantageous to increase the variable cost component and to sacrifice price discounts. The flexible budget process provides the laboratory manager and hospital administration with several significant benefits. Knowledge of departmental cost behavior patterns is critical to effective and efficient resource management. Expenditures are based on predetermined cost behavior patterns identified by laboratory managers for various levels of activity. Thus, cost and accountability are based on actual performance achieved and not on an expected or normal level. Knowledge of the fixed and variable cost components of tests lends itself to the use of marginal or incremental analysis. Marginal analysis involves determining the relationship between price, variable costs, fixed costs, and volume, which will aid management decision making and profitability analysis. This could eventually lead to a significant competitive advantage for the laboratory and the hospital. Clearly there are costs associated with the flexible budget process. There is a large investment of time up front to identify, analyze, and categorize costs. It is critical that managers be knowledgeable of cost accounting terms and technics. In order to implement the flexible budget, it may be necessary to modify existing information systems in order to match cost data and activity data in a timely and accurate manner. In today's world of scarce resources, limiting reimbursement policies, and competition, the information available from a flexible budget clearly is essential for management decision making. Reference 1. Suver JD, Neumann BR: Standard costs for healthcare providers. Hospital Financial Management 1981; 35:32-36
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