[Federal Register Volume 80, Number 60 (Monday, March 30, 2015)]
[Proposed Rules]
[Pages 16804-16921]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-06612]


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DEPARTMENT OF HEALTH AND HUMAN SERVICES

Office of the Secretary

45 CFR Part 170

RIN 0991-AB93


2015 Edition Health Information Technology (Health IT) 
Certification Criteria, 2015 Edition Base Electronic Health Record 
(EHR) Definition, and ONC Health IT Certification Program Modifications

AGENCY: Office of the National Coordinator for Health Information 
Technology (ONC), Department of Health and Human Services (HHS).

ACTION: Notice of proposed rulemaking with comment period.

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SUMMARY: This notice of proposed rulemaking introduces a new edition of 
certification criteria (the 2015 Edition health IT certification 
criteria or ``2015 Edition''), proposes a new 2015 Edition Base EHR 
definition, and proposes to modify the ONC Health IT Certification 
Program to make it open and accessible to more types of health IT and 
health IT that supports various care and practice settings. The 2015 
Edition would also establish the capabilities and specify the related 
standards and implementation specifications that Certified Electronic 
Health Record (EHR) Technology (CEHRT) would need to include to, at a 
minimum, support the achievement of meaningful use by eligible 
professionals (EPs), eligible hospitals, and critical access hospitals 
(CAHs) under the Medicare and Medicaid EHR Incentive Programs (EHR 
Incentive Programs) when such edition is required for use under these 
programs.

DATES: To be assured consideration, written or electronic comments must 
be received at one of the addresses provided below, no later than 5 
p.m. on May 29, 2015.

ADDRESSES: You may submit comments, identified by RIN 0991-AB93, by any 
of the following methods (please do not submit duplicate comments). 
Because of staff and resource limitations, we cannot accept comments by 
facsimile (FAX) transmission.
     Federal eRulemaking Portal: Follow the instructions for 
submitting comments. Attachments should be in Microsoft Word, Microsoft 
Excel, or Adobe PDF; however, we prefer Microsoft Word. http://www.regulations.gov.
     Regular, Express, or Overnight Mail: Department of Health 
and Human Services, Office of the National Coordinator for Health 
Information Technology, Attention: 2015 Edition Health IT Certification 
Criteria Proposed Rule, Hubert H. Humphrey Building, Suite 729D, 200 
Independence Ave SW., Washington, DC 20201. Please submit one original 
and two copies.
     Hand Delivery or Courier: Office of the National 
Coordinator for Health Information Technology, Attention: 2015 Edition 
Health IT Certification Criteria Proposed Rule, Hubert H. Humphrey 
Building, Suite 729D, 200 Independence Ave SW., Washington, DC 20201. 
Please submit one original and two copies. (Because access to the 
interior of the Hubert H. Humphrey Building is not readily available to 
persons without federal government identification, commenters are 
encouraged to leave their comments in the mail drop slots located in 
the main lobby of the building.)
    Enhancing the Public Comment Experience: To facilitate public 
comment on this proposed rule, a copy will be made available in 
Microsoft Word format. We believe this version will make it easier for 
commenters to access and copy portions of the proposed rule for use in 
their individual comments. Additionally, a separate document will be 
made available for the public to use to provide comments on the 
proposed rule. This document is meant to provide the public with a 
simple and organized way to submit comments on the certification 
criteria, associated standards and implementation specifications, and 
respond to specific questions posed in the preamble of the proposed 
rule. While use of this document is entirely voluntary, we encourage 
commenters to consider using the document in lieu of unstructured 
comments or to use it as an addendum to narrative cover pages. Roughly 
30% of the public comments submitted to our past two editions of 
certification criteria proposed rules used the provided template, which 
greatly assisted in our ability to rapidly process and more accurately 
categorize public comments. Because of the technical nature of this 
proposed rule, we believe that use of the document may facilitate our 
review and understanding of the comments received. The Microsoft Word 
version of the proposed rule and the document that can be used for 
providing comments can be found at http://www.regulations.gov as part 
of this proposed rule's docket and on ONC's Web site (http://www.healthit.gov).
    Inspection of Public Comments: All comments received before the 
close of the comment period will be available for public inspection, 
including any personally identifiable or confidential business 
information that is included in a comment. Please do not include 
anything in your comment submission that you do not wish to share with 
the general public. Such information includes, but is not limited to: a 
person's social security number; date of birth; driver's license 
number; state identification number or foreign country equivalent; 
passport number; financial account number; credit or debit card number; 
any personal health information; or any business information that could 
be considered proprietary. We will post all comments that are received 
before the close of the comment period at http://www.regulations.gov.
    Docket: For access to the docket to read background documents or 
comments received, go to http://www.regulations.gov or the Department 
of Health and Human Services, Office of the National Coordinator for 
Health Information Technology, Hubert H. Humphrey Building, Suite 729D, 
200 Independence Ave SW., Washington,

[[Page 16805]]

DC 20201 (call ahead to the contact listed below to arrange for 
inspection).

FOR FURTHER INFORMATION CONTACT: Michael Lipinski, Office of Policy, 
Office of the National Coordinator for Health Information Technology, 
202-690-7151.

SUPPLEMENTARY INFORMATION: 

Commonly Used Acronyms

API Application Programming Interface
CAH Critical Access Hospital
CDA Clinical Document Architecture
CDC Centers for Disease Control and Prevention
CDS Clinical Decision Support
CEHRT Certified Electronic Health Record Technology
CFR Code of Federal Regulations
CHPL Certified Health IT Product List
CLIA Clinical Laboratory Improvement Amendments
CMS Centers for Medicare & Medicaid Services
CQM Clinical Quality Measure
EHR Electronic Health Record
HHS Department of Health and Human Services
HISP Health Information Service Providers
HIT Health Information Technology
HITPC HIT Policy Committee
HITSC HIT Standards Committee
HL7 Health Level Seven
IG Implementation Guide
LOINC[supreg] Logical Observation Identifiers Names and Codes
ONC Office of the National Coordinator for Health Information 
Technology
SNOMED CT[supreg] Systematized Nomenclature of Medicine Clinical 
Terms

Table of Contents

I. Executive Summary
    A. Purpose of Regulatory Action
    B. Summary of Major Provisions
    1. Overview of the 2015 Edition Health IT Certification Criteria
    2. Base EHR Definition and Certified EHR Technology Definition
    3. The ONC Health IT Certification Program and Health IT Module
    C. Costs and Benefits
II. Background
    A. Statutory Basis
    1. Standards, Implementation Specifications, and Certification 
Criteria
    2. HIT Certification Programs
    B. Regulatory History
    1. Standards, Implementation Specifications, and Certification 
Criteria Rules
    2. Medicare and Medicaid EHR Incentive Programs Rules
    3. ONC Health IT Certification Programs Rules
III. Provisions of the Proposed Rule Affecting Standards, 
Implementation Specifications, Certification Criteria, and 
Definitions
    A. 2015 Edition Health IT Certification Criteria
    1. Applicability
    2. Standards and Implementation Specifications
    3. Certification Criteria
    4. 2015 Edition Gap Certification Eligibility Table
    5. Pharmacogenomics Data--Request for Comment
    B. Definitions
    1. Base EHR Definitions
    2. Certified EHR Technology Definition
    3. Common Clinical Data Set Definition
    4. Cross-Referenced FDA Definitions
IV. Provisions of the Proposed Rule Affecting the ONC Health IT 
Certification Program
    A. Subpart E--ONC Health IT Certification Program
    B. Modifications to the ONC Health IT Certification Program
    1. Health IT Modules
    2. ``Removal'' of Meaningful Use Measurement Certification 
Requirements
    3. Types of Care and Practice Settings
    4. Referencing the ONC Health IT Certification Program
    C. Health IT Module Certification Requirements
    1. Privacy and Security
    2. Design and Performance (Sec.  170.315(g))
    D. Principles of Proper Conduct for ONC-ACBs
    1. ``In-the-Field'' Surveillance and Maintenance of 
Certification
    2. Transparency and Disclosure Requirements
    3. Open Data Certified Health IT Product List (CHPL)
    4. Records Retention
    5. Complaints Reporting
    6. Adaptations and Updates of Certified Health IT
    E. ``Decertification'' of Health IT--Request for Comment
V. Response to Comments
VI. Incorporation by Reference
VII. Collection of Information Requirements
VIII. Regulatory Impact Statement
    A. Statement of Need
    B. Overall Impact
    1. Executive Orders 12866 and 13563--Regulatory Planning and 
Review Analysis
    2. Regulatory Flexibility Act
    3. Executive Order 13132--Federalism
    4. Unfunded Mandates Reform Act of 1995

I. Executive Summary

A. Purpose of Regulatory Action

    Building on past rulemakings, this proposed rule further identifies 
how health IT certification can support the establishment of an 
interoperable nationwide health information infrastructure. It reflects 
stakeholder feedback received through various outreach initiatives, 
including the regulatory process, and is designed to broadly support 
the health care continuum through the use of certified health IT. To 
achieve this goal, this rule proposes to:
     Improve interoperability for specific purposes by adopting 
new and updated vocabulary and content standards for the structured 
recording and exchange of health information, including a Common 
Clinical Data Set composed primarily of data expressed using adopted 
standards; and rigorously testing an identified content exchange 
standard (Consolidated Clinical Document Architecture (C-CDA));
     Facilitate the accessibility and exchange of data by 
including enhanced data portability, transitions of care, and 
application programming interface (API) capabilities in the 2015 
Edition Base EHR definition;
     Establish a framework that makes the ONC Health IT 
Certification Program open and accessible to more types of health IT, 
health IT that supports a variety of care and practice settings, 
various HHS programs, and public and private interests;
     Support the Medicare and Medicaid EHR Incentive Programs 
(EHR Incentive Programs) through the adoption of a set of certification 
criteria that align with proposals for Stage 3;
     Address health disparities by providing certification: To 
standards for the collection of social, psychological, and behavioral 
data; for the exchange of sensitive health information (Data 
Segmentation for Privacy); and for the accessibility of health IT;
     Ensure all health IT presented for certification possess 
the relevant privacy and security capabilities;
     Improve patient safety by: Applying enhanced user-center 
design principles to health IT, enhancing patient matching, requiring 
relevant patient information to be exchanged (e.g., Unique Device 
Identifiers), improving the surveillance of certified health IT, and 
making more information about certified products publicly available and 
accessible;
     Increase the reliability and transparency of certified 
health IT through surveillance and disclosure requirements; and
     Provide health IT developers with more flexibility and 
opportunities for certification that support both interoperability and 
innovation.

B. Summary of Major Provisions

1. Overview of the 2015 Edition Health IT Certification Criteria
    The 2015 Edition health IT certification criteria (``2015 
Edition'') would facilitate greater interoperability for several 
clinical health information purposes and enable health information 
exchange through new and enhanced certification criteria, standards, 
and implementation specifications. It incorporates changes that are 
designed to spur innovation, open new market opportunities, and provide 
more choices to providers when it comes to electronic

[[Page 16806]]

health information exchange. To achieve these goals, we propose a new 
``Application Access to Common Clinical Data Set'' certification 
criterion that would require the demonstration of an API that responds 
to data requests for any one of the data referenced in the Common 
Clinical Data Set as well as for all of the data referenced in the 
Common Clinical Data Set. To further validate the continued 
interoperability of certified health IT and the ability to exchange 
health information, we propose a new certification criterion that would 
rigorously assess a product's C-CDA creation performance (for both C-
CDA version 1.1 and 2.0) when presented for certification for such 
capabilities.
2. Definitions
a. Base EHR Definitions
    We propose to adopt a Base EHR definition specific to the 2015 
Edition (i.e., a 2015 Edition Base EHR definition) at Sec.  170.102 and 
rename the current Base EHR definition at Sec.  170.102 as the 2014 
Edition Base EHR definition. For the proposed 2015 Edition Base EHR 
definition, it would differ from the 2014 Edition Base EHR definition 
in the following ways:
     It does not include privacy and security capabilities and 
certification criteria. We believe privacy and security capabilities 
would be more appropriately addressed through our new proposed approach 
for the privacy and security certification of Health IT Modules to the 
2015 Edition, as discussed under ``Privacy and Security'' in section 
IV.C.1 of the preamble. Our new privacy and security approach would 
eliminate eligible professionals (EPs)', eligible hospitals', and 
critical access hospitals (CAHs)' responsibilities to ensure that they 
have technology certified to all the necessary privacy and security 
criteria. Rather, as part of certification, health IT developers would 
need to meet applicable privacy and security certification criteria.
     It only includes the capability to record and export CQM 
data (Sec.  170.315(c)(1)). To note, the capabilities to import, 
calculate and report CQM data are not included in the proposed 2015 
Edition Base EHR definition or any other CQM-related requirements. 
Please refer to the ``Clinical Quality Measures'' section (III.A.3) 
later in the preamble for a more detailed discussion of the CQM 
certification criteria. Please also see the EHR Incentive Programs 
Stage 3 proposed rule published elsewhere in this issue of the Federal 
Register for proposals related to CQMs, including the CEHRT definition 
proposal.
     It includes the 2015 Edition ``smoking status,'' 
``implantable device list,'' and ``application access to Common 
Clinical Data Set'' certification criteria. For a detailed discussion 
of these certification criteria, please refer to section III.A.3 of the 
preamble.
     It includes the proposed 2015 Edition certification 
criteria that correspond to the remaining 2014 Edition certification 
criteria referenced in the ``2014 Edition'' Base EHR definition (i.e., 
Computerized Provider Order Entry (CPOE), demographics, problem list, 
medication list, medication allergy list, clinical decision support 
(CDS), transitions of care, data portability, and relevant transport 
certification criteria). On the inclusion of transport certification 
criteria, we propose to include the ``Direct Project'' criterion (Sec.  
170.315(h)(1)) as well as the ``Direct Project, Edge Protocol and XDR/
XDM'' \1\ criterion (Sec.  170.315(h)(2)) as equivalent alternative 
means for meeting the 2015 Edition Base EHR definition for the reasons 
discussed under ``Transport Methods and Other Protocols'' in section 
III.A.3 of the preamble.
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    \1\ XDR stands for Cross-Enterprise Document Reliable 
Interchange. XDM stands for Cross-Enterprise Document Media 
Interchange.
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    We refer readers to section III.B.1 for a more detailed discussion 
of the proposed 2015 Edition Base EHR definition.
b. CEHRT Definition
    We propose to remove the Certified EHR Technology (CEHRT) 
definition from Sec.  170.102 for the following reasons. The CEHRT 
definition has always been defined in a manner that supports the EHR 
Incentive Programs. As such, the CEHRT definition would more 
appropriately reside solely within the EHR Incentive Programs 
regulations. This would also be consistent with our approach in this 
proposed rule to make the ONC Health IT Certification Program more open 
and accessible to other types of health IT beyond EHR technology and 
for health IT that supports care and practice settings beyond those 
included in the EHR Incentive Programs. Further, this approach should 
add administrative simplicity in that regulatory provisions, which EHR 
Incentive Programs participants must meet (e.g., the CEHRT definition), 
would be defined within the context of rulemakings for those programs. 
We understand that the CEHRT definition proposed by CMS would continue 
to include the Base EHR definition(s) defined by ONC, including the 
2015 Edition Base EHR definition proposed in this proposed rule. We 
also refer readers to Table 2 (``2015 Edition Proposed Certification 
Criteria Associated with the EHR Incentive Programs Stage 3'') found in 
section III.A.3 of this preamble. Table 2 crosswalks proposed 2015 
Edition certification criteria with the proposed CEHRT definition and 
proposed EHR Incentive Programs Stage 3 objectives.
c. Common Clinical Data Set
    We propose to revise the ``Common MU Data Set'' definition in Sec.  
170.102. We propose to change the name to ``Common Clinical Data Set,'' 
which aligns with our approach throughout this proposed rule to make 
the ONC Health IT Certification Program more open and accessible to 
other types of health IT beyond EHR technology and for health IT that 
supports care and practice settings beyond those included in the EHR 
Incentive Programs. We also propose to change references to the 
``Common MU Data Set'' in the 2014 Edition (Sec.  170.314) to ``Common 
Clinical Data Set.''
    We propose to revise the definition to account for the new and 
updated standards and code sets we propose to adopt in this proposed 
rule that would improve and advance interoperability through the 
exchange of the Common Clinical Data Set. We also propose to revise the 
definition to support patient safety through clearly referenced data 
elements and the inclusion of new patient data. These proposed 
revisions would not change the standards, codes sets, and data 
requirements specified in the Common Clinical Data Set for 2014 Edition 
certification. They would only apply to health IT certified to the 2015 
Edition Health IT certification criteria that reference the Common 
Clinical Data Set.
3. The ONC Health IT Certification Program and Health IT Module
    We propose to change the name of the ONC HIT Certification Program 
to the ``ONC Health IT Certification Program'' (referred to as the 
``ONC Health IT Certification Program'' throughout this proposed rule). 
We also propose to modify the ONC Health IT Certification Program in 
ways that would further open access to other types of health IT beyond 
EHR technology and for health IT that supports care and practice 
settings beyond the ambulatory and inpatient settings. These 
modifications would also serve to support other public and private 
programs that may reference the use of health IT certified under the 
ONC Health IT Certification Program. When we established the 
certification

[[Page 16807]]

program (76 FR 1294), we stated our initial focus would be on EHR 
technology and supporting the EHR Incentive Programs, which focus on 
the ambulatory setting and inpatient setting. Our proposals in this 
proposed rule would permit other types of health IT (e.g., laboratory 
information systems (LISs)), and technology implemented by health 
information service providers (HISPs) and health information exchanges 
(HIEs)) to receive appropriate attribution and not be referenced by a 
certificate with ``EHR'' in it. Our proposals also support health IT 
certification for other care and practice settings such as long-term 
post-acute care (LTPAC), behavioral health, and pediatrics. Further, 
the proposals in this rule would make it simpler for certification 
criteria and certified health IT to be referenced by other HHS programs 
(e.g., Medicaid and Medicare payment programs and various grant 
programs), other public programs, and private entities and 
associations.
    As part of our approach to evolve the ONC Health IT Certification 
Program, we have replaced prior rulemaking use of ``EHR'' and ``EHR 
technology'' with ``health IT.'' The term health IT is reflective of 
the scope of ONC's authority under the Public Health Service Act (Sec.  
3000(5) as ``health information technology'' is so defined), and 
represents a broad range of technology, including EHR technology. It 
also more properly represents some of the technology, as noted above, 
that has been previously certified to editions of certification 
criteria under the ONC Health IT Certification Program and may be 
certified to the proposed 2015 Edition in the future. Similarly, to 
make the ONC Health IT Certification Program more open and accessible, 
we propose to rename the EHR Module as ``Health IT Module'' and will 
use this term throughout the proposed rule.
    We propose not to require ONC-Authorized Certification Bodies 
(ACBs) to certify all Health IT Modules to the 2015 Edition 
``meaningful use measurement'' certification criteria (Sec.  
170.315(g)(1) ``automated numerator recording'' and Sec.  170.315(g)(2) 
``automated measure calculation''). We note that CMS has proposed to 
include the 2015 Edition ``meaningful use measurement'' certification 
criteria in the CEHRT definition as a unique program requirement for 
the EHR Incentive Programs.
    We propose a new, simpler, straight-forward approach to privacy and 
security certification requirements for Health IT Modules certified to 
the 2015 Edition. In essence, we identify the privacy and security 
certification criteria that would be applicable to a Health IT Module 
presented for certification based on the other capabilities included in 
the Health IT Module and for which certification is sought. Under the 
proposed approach, a health IT developer would know exactly what it 
needed to do in order to get its Health IT Module certified and a 
purchaser of a Health IT Module would know exactly what privacy and 
security functionality against which the Health IT Module had to be 
tested in order to be certified.
    We propose new and revised principles of proper conduct (PoPC) for 
ONC-ACBs. We propose to require ONC-ACBs to report an expanded set of 
information to ONC for inclusion in the open data file that would make 
up the Certified Health IT Product List (CHPL). We propose to revise 
the PoPC in order to provide for more meaningful disclosure of certain 
types of costs and limitations that could interfere with the ability of 
users to implement certified health IT in a manner consistent with its 
certification. We propose that ONC-ACBs retain records longer and 
consistent with industry standards. We propose to require that ONC-ACBs 
obtain a record of all adaptations and updates, including changes to 
user-facing aspects, made to certified health IT, on a monthly basis 
each calendar year. We propose to require that ONC-ACBs report to the 
National Coordinator complaints received on certified health IT. We 
propose to adopt new requirements for ``in-the-field'' surveillance 
under the ONC Health IT Certification Program that would build on ONC-
ACBs' existing surveillance responsibilities by specifying requirements 
and procedures for in-the-field surveillance. We believe these proposed 
new and revised PoPC would promote greater transparency and 
accountability for the ONC Health IT Certification Program. We also 
include a request for comment on the potential ``decertification'' of 
health IT that proactively blocks the sharing of information.

C. Costs and Benefits

    Our estimates indicate that this proposed rule is an economically 
significant rule as its overall costs for health IT developers may be 
greater than $100 million in at least one year. We have, therefore, 
projected the costs and benefits of the proposed rule. The estimated 
costs expected to be incurred by health IT developers to develop and 
prepare health IT to be tested and certified in accordance with the 
2015 Edition health IT certification criteria (and the standards and 
implementation specifications they include) are represented in monetary 
terms in Table 1 below. We note that this proposed rule does not impose 
the costs cited as compliance costs, but rather as investments which 
health IT developers voluntarily take on and expect to recover with an 
appropriate rate of return.
    The dollar amounts expressed in Table 1 are expressed in 2013 
dollars.

  Table 1--Distributed Total Development and Preparation Costs for Health IT Developers (4-Year Period)--Totals
                                                     Rounded
----------------------------------------------------------------------------------------------------------------
                                                                                    Total high     Total average
                      Year                           Ratio (%)    Total low cost   cost estimate   cost estimate
                                                                   estimate ($M)       ($M)            ($M)
----------------------------------------------------------------------------------------------------------------
2015............................................              25           49.36          101.80           75.58
2016............................................              30           59.23          122.16           90.70
2017............................................              30           59.23          122.16           90.70
2018............................................              15           29.61           61.08           45.35
                                                 ---------------------------------------------------------------
    4-Year Totals...............................  ..............          197.43          407.20          302.32
----------------------------------------------------------------------------------------------------------------

    We believe that there will be several significant benefits that may 
arise from this proposed rule for patients, health care providers, and 
health IT developers. The 2015 Edition continues to improve health IT 
interoperability through the adoption of new and updated standards and 
implementation specifications. For example, many

[[Page 16808]]

proposed certification criteria include standards and implementation 
specifications for interoperability that directly support the EHR 
Incentive Programs, which include objectives and measures for the 
interoperable exchange of health information and for providing patients 
electronic access to their health information in structured formats. In 
addition, proposed certification criteria that support the collection 
of patient data that could be used to address health disparities would 
not only benefit patients, but the entire health care delivery system 
through improved quality of care. The 2015 Edition also supports 
usability and patient safety through new and enhanced certification 
requirements for health IT.
    Our proposals to make the ONC Health IT Certification Program open 
and accessible to more types of health IT and for health IT that 
supports a variety of care and practice settings should benefit health 
IT developers, providers practicing in other care/practice settings, 
and consumers through the availability and use of certified health IT 
that includes capabilities that promote interoperability and enhanced 
functionality.

II. Background

A. Statutory Basis

    The Health Information Technology for Economic and Clinical Health 
(HITECH) Act, Title XIII of Division A and Title IV of Division B of 
the American Recovery and Reinvestment Act of 2009 (the Recovery Act) 
(Pub. L. 111-5), was enacted on February 17, 2009. The HITECH Act 
amended the Public Health Service Act (PHSA) and created ``Title XXX--
Health Information Technology and Quality'' (Title XXX) to improve 
health care quality, safety, and efficiency through the promotion of 
HIT and electronic health information exchange.
1. Standards, Implementation Specifications, and Certification Criteria
    The HITECH Act established two new federal advisory committees, the 
Health IT Policy Committee (HITPC) and the Health IT Standards 
Committee (HITSC) (sections 3002 and 3003 of the PHSA, respectively). 
Each is responsible for advising the National Coordinator for Health 
Information Technology (National Coordinator) on different aspects of 
standards, implementation specifications, and certification criteria. 
The HITPC is responsible for, among other duties, recommending 
priorities for the development, harmonization, and recognition of 
standards, implementation specifications, and certification criteria. 
Main responsibilities of the HITSC include recommending standards, 
implementation specifications, and certification criteria for adoption 
by the Secretary under section 3004 of the PHSA, consistent with the 
ONC-coordinated Federal Health IT Strategic Plan.
    Section 3004 of the PHSA identifies a process for the adoption of 
health IT standards, implementation specifications, and certification 
criteria and authorizes the Secretary to adopt such standards, 
implementation specifications, and certification criteria. As specified 
in section 3004(a)(1), the Secretary is required, in consultation with 
representatives of other relevant federal agencies, to jointly review 
standards, implementation specifications, and certification criteria 
endorsed by the National Coordinator under section 3001(c) and 
subsequently determine whether to propose the adoption of any grouping 
of such standards, implementation specifications, or certification 
criteria. The Secretary is required to publish all determinations in 
the Federal Register.
    Section 3004(b)(3) of the PHSA titled, Subsequent Standards 
Activity, provides that the Secretary shall adopt additional standards, 
implementation specifications, and certification criteria as necessary 
and consistent with the schedule published by the HITSC. We consider 
this provision in the broader context of the HITECH Act to grant the 
Secretary the authority and discretion to adopt standards, 
implementation specifications, and certification criteria that have 
been recommended by the HITSC and endorsed by the National Coordinator, 
as well as other appropriate and necessary health IT standards, 
implementation specifications, and certification criteria. Throughout 
this process, the Secretary intends to continue to seek the insights 
and recommendations of the HITSC.
2. Health IT Certification Programs
    Section 3001(c)(5) of the PHSA provides the National Coordinator 
with the authority to establish a certification program or programs for 
the voluntary certification of health IT. Specifically, section 
3001(c)(5)(A) specifies that the National Coordinator, in consultation 
with the Director of the National Institute of Standards and 
Technology, shall keep or recognize a program or programs for the 
voluntary certification of health information technology as being in 
compliance with applicable certification criteria adopted under this 
subtitle (i.e., certification criteria adopted by the Secretary under 
section 3004 of the PHSA).
    The certification program(s) must also include, as appropriate, 
testing of the technology in accordance with section 13201(b) of the 
[HITECH] Act. Overall, section 13201(b) of the HITECH Act requires that 
with respect to the development of standards and implementation 
specifications, the Director of the National Institute of Standards and 
Technology (NIST), in coordination with the HITSC, shall support the 
establishment of a conformance testing infrastructure, including the 
development of technical test beds. The HITECH Act also indicates that 
the development of this conformance testing infrastructure may include 
a program to accredit independent, non-Federal laboratories to perform 
testing.

B. Regulatory History

1. Standards, Implementation Specifications, and Certification Criteria 
Rules
    The Secretary issued an interim final rule with request for 
comments titled, ``Health Information Technology: Initial Set of 
Standards, Implementation Specifications, and Certification Criteria 
for Electronic Health Record Technology'' (75 FR 2014, Jan. 13, 2010) 
(the ``S&CC January 2010 interim final rule''), which adopted an 
initial set of standards, implementation specifications, and 
certification criteria. After consideration of the public comments 
received on the S&CC January 2010 interim final rule, a final rule was 
issued to complete the adoption of the initial set of standards, 
implementation specifications, and certification criteria and realign 
them with the final objectives and measures established for the EHR 
Incentive Programs Stage 1 (formally titled: Health Information 
Technology: Initial Set of Standards, Implementation Specifications, 
and Certification Criteria for Electronic Health Record Technology; 
Final Rule, (75 FR 44590, July 28, 2010) and referred to as the ``2011 
Edition final rule''). The 2011 Edition final rule also established the 
first version of the Certified EHR Technology (CEHRT) definition. 
Subsequent to the 2011 Edition final rule (October 13, 2010), we issued 
an interim final rule with a request for comment to remove certain 
implementation specifications related to public health surveillance 
that had been previously adopted in the 2011 Edition final rule (75 FR 
62686).
    The standards, implementation specifications, and certification 
criteria

[[Page 16809]]

adopted by the Secretary in the 2011 Edition final rule established the 
capabilities that CEHRT must include in order to, at a minimum, support 
the achievement of EHR Incentive Programs Stage 1 by EPs, eligible 
hospitals, and CAHs under the EHR Incentive Programs Stage 1 final rule 
(the ``EHR Incentive Programs Stage 1 final rule'') (see 75 FR 44314 
for more information about meaningful use and the Stage 1 
requirements).
    The Secretary issued a proposed rule with request for comments 
titled ``Health Information Technology: Standards, Implementation 
Specifications, and Certification Criteria for Electronic Health Record 
Technology, 2014 Edition; Revisions to the Permanent Certification 
Program for Health Information Technology'' (77 FR 13832, March 7, 
2012) (the ``2014 Edition proposed rule''), which proposed new and 
revised standards, implementation specifications, and certification 
criteria. After consideration of the public comments received on the 
2014 Edition proposed rule, a final rule was issued to adopt the 2014 
Edition set of standards, implementation specifications, and 
certification criteria and realign them with the final objectives and 
measures established for the EHR Incentive Programs Stage 2 as well as 
Stage 1 revisions (Health Information Technology: Standards, 
Implementation Specifications, and Certification Criteria for 
Electronic Health Record Technology, 2014 Edition; Revisions to the 
Permanent Certification Program for Health Information Technology (77 
FR 54163, Sept. 4, 2012) (the ``2014 Edition final rule''). The 
standards, implementation specifications, and certification criteria 
adopted by the Secretary in the 2014 Edition final rule established the 
capabilities that CEHRT must include in order to, at a minimum, support 
the achievement of the EHR Incentive Programs Stage 2 by EPs, eligible 
hospitals, and CAHs under the EHR Incentive Programs Stage 2 final rule 
(the ``EHR Incentive Programs Stage 2 final rule'') (see 77 FR 53968 
for more information about the EHR Incentive Programs Stage 2 
requirements).
    On December 7, 2012, an interim final rule with a request for 
comment was jointly issued and published by ONC and CMS to update 
certain standards that had been previously adopted in the 2014 Edition 
final rule. The interim final rule also revised the EHR Incentive 
Programs by adding an alternative measure for the Stage 2 objective for 
hospitals to provide structured electronic laboratory results to 
ambulatory providers, corrected the regulation text for the measures 
associated with the objective for hospitals to provide patients the 
ability to view online, download, and transmit information about a 
hospital admission, and made the case number threshold exemption policy 
for clinical quality measure (CQM) reporting applicable for eligible 
hospitals and CAHs beginning with FY 2013. The rule also provided 
notice of CMS's intent to issue technical corrections to the electronic 
specifications for CQMs released on October 25, 2012 (77 FR 72985). On 
September 4, 2014, a final rule (Medicare and Medicaid Programs; 
Modifications to the Medicare and Medicaid Electronic Health Record 
(EHR) Incentive Program for 2014 and Other Changes to the EHR Incentive 
Program; and Health Information Technology: Revisions to the Certified 
EHR Technology Definition and EHR Certification Changes Related to 
Standards; Final Rule) (79 FR 52910) was published adopting these 
proposals.
    On November 4, 2013, the Secretary published an interim final rule 
with a request for comment, 2014 Edition Electronic Health Record 
Certification Criteria: Revision to the Definition of ``Common 
Meaningful Use (MU) Data Set'' (78 FR 65884), to make a minor revision 
to the Common MU Data Set definition. This revision was intended to 
allow more flexibility with respect to the representation of dental 
procedures data for EHR technology testing and certification.
    On February 26, 2014, the Secretary published a proposed rule 
titled ``Voluntary 2015 Edition Electronic Health Record (EHR) 
Certification Criteria; Interoperability Updates and Regulatory 
Improvements'' (79 FR 10880) (``Voluntary Edition proposed rule''). The 
proposed rule proposed a voluntary edition of certification criteria 
that was designed to enhance interoperability, promote innovation, and 
incorporate ``bug fixes'' to improve upon the 2014 Edition. A 
correction notice was published for the Voluntary Edition proposed rule 
on March 19, 2014, entitled ``Voluntary 2015 Edition Electronic Health 
Record (EHR) Certification Criteria; Interoperability Updates and 
Regulatory Improvements; Correction'' (79 FR 15282). This correction 
notice corrected the preamble text and gap certification table for four 
certification criteria that were omitted from the list of certification 
criteria eligible for gap certification for the 2015 Edition EHR 
certification criteria. On September 11, 2014, a final rule was 
published titled ``2014 Edition Release 2 Electronic Health Record 
(EHR) Certification Criteria and the ONC HIT Certification Program; 
Regulatory Flexibilities, Improvements, and Enhanced Health Information 
Exchange'' (79 FR 54430) (``2014 Edition Release 2 final rule''). The 
final rule adopted a small subset of the original proposals in the 
Voluntary Edition proposed rule as optional and revised 2014 Edition 
EHR certification criteria that provide flexibility, clarity, and 
enhance health information exchange. It also finalized administrative 
proposals (i.e., removal of regulatory text from the Code of Federal 
Regulations (CFR)) and proposals for the ONC HIT Certification Program 
that provide improvements.
    On May 23, 2014, CMS and ONC jointly published the ``Medicare and 
Medicaid Programs; Modifications to the Medicare and Medicaid 
Electronic Health Record Incentive Programs for 2014; and Health 
Information Technology: Revisions to the Certified EHR Technology 
Definition'' proposed rule (79 FR 29732). The rule proposed to update 
the EHR Incentive Programs Stage 2 and Stage 3 participation timeline. 
It proposed to revise the CEHRT definition to permit the use of EHR 
technology certified to the 2011 Edition to meet the CEHRT definition 
for FY/CY 2014. It also proposed to allow EPs, eligible hospitals, and 
CAHs that could not fully implement EHR technology certified to the 
2014 Edition for an EHR reporting period in 2014 due to delays in the 
availability of such technology to continue to use EHR technology 
certified to the 2011 Edition or a combination of EHR technology 
certified to the 2011 Edition and 2014 Edition for the EHR reporting 
periods in CY 2014 and FY 2014. On September 4, 2014, a final rule 
(``CEHRT Flexibility final rule'') was published (79 FR 52910) adopting 
these proposals.
2. Medicare and Medicaid EHR Incentive Programs Rules
    On January 13, 2010, CMS published the EHR Incentive Programs Stage 
1 proposed rule (75 FR 1844). The rule proposed the criteria for Stage 
1 of the EHR Incentive Programs and regulations associated with the 
incentive payments made available under Division B, Title IV of the 
HITECH Act. Subsequently, CMS published a final rule (75 FR 44314) for 
Stage 1 and the EHR Incentive Programs on July 28, 2010, simultaneously 
with the publication of the 2011 Edition final rule. The EHR Incentive 
Programs Stage 1 final rule established the objectives, associated 
measures, and other requirements that EPs, eligible hospitals, and CAHs 
must satisfy to meet Stage 1.
    On March 7, 2012, CMS published the EHR Incentive Programs Stage 2

[[Page 16810]]

proposed rule (77 FR 13698). Subsequently, CMS published a final rule 
(77 FR 53968) for the EHR Incentive Programs on Sept. 4, 2012, 
simultaneously with the publication of the 2014 Edition final rule. The 
EHR Incentive Programs Stage 2 final rule established the objectives, 
associated measures, and other requirements that EPs, eligible 
hospitals, and CAHs must satisfy to meet Stage 2 as well as revised 
some Stage 1 requirements.
    As described above in Section II.B.1, ONC and CMS jointly issued an 
interim final rule with a request for comment that was published on 
December 7, 2012 and a final rule that published on September 4, 2014. 
Also, as described above in Section II.B.1, ONC and CMS jointly issued 
proposed and final rules that were published on May 23, 2014 and 
September 4, 2014, respectively.
3. ONC Health IT Certification Program Rules
    On March 10, 2010, ONC published a proposed rule (75 FR 11328) 
titled, ``Proposed Establishment of Certification Programs for Health 
Information Technology'' (the ``Certification Programs proposed 
rule''). The rule proposed both a temporary and permanent certification 
program for the purposes of testing and certifying HIT. It also 
specified the processes the National Coordinator would follow to 
authorize organizations to perform the certification of HIT. A final 
rule establishing the temporary certification program was published on 
June 24, 2010 (75 FR 36158) (``Temporary Certification Program final 
rule'') and a final rule establishing the permanent certification 
program was published on January 7, 2011 (76 FR 1262) (``the Permanent 
Certification Program final rule'').
    On May 31, 2011, ONC published a proposed rule (76 FR 31272) titled 
``Permanent Certification Program for Health Information Technology; 
Revisions to ONC-Approved Accreditor Processes.'' The rule proposed a 
process for addressing instances where the ONC-Approved Accreditor 
(ONC-AA) engaged in improper conduct or did not perform its 
responsibilities under the permanent certification program, addressed 
the status of ONC-Authorized Certification Bodies in instances where 
there may be a change in the accreditation organization serving as the 
ONC-AA, and clarified the responsibilities of the new ONC-AA. All these 
proposals were finalized in a final rule published on November 25, 2011 
(76 FR 72636).
    The 2014 Edition final rule made changes to the permanent 
certification program. The final rule adopted a proposal to change the 
Permanent Certification Program's name to the ``ONC HIT Certification 
Program,'' revised the process for permitting the use of newer versions 
of ``minimum standard'' code sets, modified the certification processes 
ONC-ACBs need to follow for certifying EHR Modules in a manner that 
provides clear implementation direction and compliance with the new 
certification criteria, and eliminated the certification requirement 
that every EHR Module be certified to all the mandatory ``privacy and 
security'' certification criteria.
    The Voluntary Edition proposed rule included proposals that focused 
on improving regulatory clarity, simplifying the certification of EHR 
Modules that are designed for purposes other than meeting Meaningful 
Use requirements, and discontinuing the use of the Complete EHR 
definition. As noted above, we issued the 2014 Edition Release 2 final 
rule to complete the rulemaking for the Voluntary Edition proposed 
rule. The 2014 Edition Release 2 final rule discontinued the ``Complete 
EHR'' certification concept beginning with the proposed 2015 Edition, 
adopted an updated standard (ISO/IEC 17065) for the accreditation of 
ONC-ACBs, and adopted the ``ONC Certified HIT'' certification and 
design mark for required use by ONC-ACBs under the ONC Health IT 
Certification Program.

III. Provisions of the Proposed Rule Affecting Standards, 
Implementation Specifications, and Certification Criteria

A. 2015 Edition Health IT Certification Criteria

    This rule proposes new, revised, and unchanged certification 
criteria that would establish the capabilities and related standards 
and implementation specifications for the certification of health IT, 
including EHR technology. We refer to these new, revised, and unchanged 
certification criteria as the ``2015 Edition health IT certification 
criteria'' and propose to add this term and its definition to Sec.  
170.102. As noted in the Executive Summary, we also refer to these 
criteria as the ``2015 Edition'' in this preamble. We propose to codify 
the 2015 Edition in Sec.  170.315 to set them apart from other editions 
of certification criteria and make it easier for stakeholders to 
quickly determine the certification criteria the 2015 Edition includes.
    Health IT certified to these proposed certification criteria and 
associated standards and implementation specifications could be 
implemented as part of an EP's, eligible hospital's, or CAH's CEHRT and 
used to demonstrate meaningful use (as identified in Table 2 below). We 
note that Table 2 does not identify certification criteria that are 
included in conditional certification requirements, such as privacy and 
security, safety-enhanced design, and quality management system 
certification criteria. We do, however, classify these types of 
certification criteria as ``associated'' with the EHR Incentives 
Programs Stage 3 for the purposes of the regulatory impact analysis we 
performed for this proposed rule (see section VIII.B.1).
    Health IT certified to the proposed certification criteria and 
associated standards and implementation specifications could also be 
used to meet other HHS program requirements (e.g., grant and contract 
requirements) or referenced by private sector associations and 
entities.

    Table 2--2015 Edition Proposed Certification Criteria Associated With the EHR Incentive Programs Stage 3
----------------------------------------------------------------------------------------------------------------
                                                                                            Relationship to the
                                                                                            proposed CEHRT \2\
       Proposed CFR citation              Certification       Proposed inclusion in 2015      definition and
                                            criterion        edition base EHR definition     proposed stage 3
                                                                                                objectives
----------------------------------------------------------------------------------------------------------------
Sec.   170.315(a)(1)...............  Computerized Provider   Included \3\...............  Objective 4.
                                      Order Entry (CPOE)--
                                      medications.
Sec.   170.315(a)(2)...............  CPOE--laboratory......  Included \4\...............  Objective 4.
Sec.   170.315(a)(3)...............  CPOE--diagnostic        Included \5\...............  Objective 4.
                                      imaging.

[[Page 16811]]

 
Sec.   170.315(a)(4)...............  Drug-drug, Drug-        Not included...............  Objective 3.
                                      allergy Interaction
                                      Checks for CPOE.
Sec.   170.315(a)(5)...............  Demographics..........  Included...................  No additional
                                                                                           relationship beyond
                                                                                           the Base EHR
                                                                                           definition.
Sec.   170.315(a)(7)...............  Problem List..........  Included...................  No additional
                                                                                           relationship beyond
                                                                                           the Base EHR
                                                                                           definition.
Sec.   170.315(a)(8)...............  Medication List.......  Included...................  No additional
                                                                                           relationship beyond
                                                                                           the Base EHR
                                                                                           definition.
Sec.   170.315(a)(9)...............  Medication Allergy      Included...................  No additional
                                      List.                                                relationship beyond
                                                                                           the Base EHR
                                                                                           definition.
Sec.   170.315(a)(10)..............  Clinical Decision       Included...................  Objective 3.
                                      Support.
Sec.   170.315(a)(11)..............  Drug-formulary and      Not included...............  Objective 2.
                                      Preferred Drug List
                                      Checks.
Sec.   170.315(a)(12)..............  Smoking Status........  Included...................  No additional
                                                                                           relationship beyond
                                                                                           the Base EHR
                                                                                           definition.
Sec.   170.315(a)(14)..............  Family Health History.  Not included...............  CEHRT \6\.
Sec.   170.315(a)(15)..............  Family Health History-- Not included...............  CEHRT \7\.
                                      pedigree.
Sec.   170.315(a)(17)..............  Patient-specific        Not included...............  Objective 5.
                                      Education Resources.
Sec.   170.315(a)(19)..............  Patient Health          Not included...............  CEHRT
                                      Information Capture.                                Objective 6.
Sec.   170.315(a)(20)..............  Implantable Device      Included...................  No additional
                                      List.                                                relationship beyond
                                                                                           the Base EHR
                                                                                           definition.
Sec.   170.315(b)(1)...............  Transitions of Care...  Included...................  Objective 7.
Sec.   170.315(b)(2)...............  Clinical Information    Not included...............  Objective 7.
                                      Reconciliation and
                                      Incorporation.
Sec.   170.315(b)(3)...............  Electronic Prescribing  Not included...............  Objective 2.
Sec.   170.315(b)(6)...............  Data Portability......  Included...................  No additional
                                                                                           relationship beyond
                                                                                           the Base EHR
                                                                                           definition.
Sec.   170.315(c)(1) \8\...........  Clinical Quality        Included...................  CEHRT.
                                      Measures--record and
                                      export.
Sec.   170.315(e)(1)...............  View, Download, and     Not included...............  Objective 5
                                      Transmit to Third                                   Objective 6.
                                      Party.
Sec.   170.315(e)(2)...............  Secure Messaging......  Not included...............  Objective 6.
Sec.   170.315(f)(1)...............  Transmission to         Not included...............  Objective 8.\9\
                                      Immunization
                                      Registries.
Sec.   170.315(f)(2)...............  Transmission to Public  Not included...............  Objective 8.
                                      Health Agencies--
                                      syndromic
                                      surveillance.
Sec.   170.315(f)(3)...............  Transmission to Public  Not included...............  Objective 8.
                                      Health Agencies--
                                      reportable laboratory
                                      tests and values/
                                      results.
Sec.   170.315(f)(4)...............  Transmission to Cancer  Not included...............  Objective 8.
                                      Registries.
Sec.   170.315(f)(5)...............  Transmission to Public  Not included...............  Objective 8.
                                      Health Agencies--case
                                      reporting.
Sec.   170.315(f)(6)...............  Transmission to Public  Not included...............  Objective 8.
                                      Health Agencies--
                                      antimicrobial use and
                                      resistance reporting.
Sec.   170.315(f)(7)...............  Transmission to Public  Not included...............  Objective 8.
                                      Health Agencies--
                                      health care surveys.
Sec.   170.315(g)(1)...............  Automated Numerator     Not included...............  CEHRT.
                                      Recording.
Sec.   170.315(g)(2)...............  Automated Measure       Not included...............  CEHRT.
                                      Calculation.
Sec.   170.315(g)(7)...............  Application Access to   Included...................  Objective 5
                                      Common Clinical Data                                Objective 6.
                                      Set.
Sec.   170.315(h)(1)...............  Direct Project........  Included \10\..............  No additional
                                                                                           relationship beyond
                                                                                           the Base EHR
                                                                                           definition.
Sec.   170.315(h)(2)...............  Direct Project, Edge    Included \11\..............  No additional
                                      Protocol, and XDR/XDM.                               relationship beyond
                                                                                           the Base EHR
                                                                                           definition.
----------------------------------------------------------------------------------------------------------------
\2\ CMS' CEHRT definition would include the criteria adopted in the Base EHR definition. For more details on the
  CEHRT definition, please see the CMS EHR Incentive Programs proposed rule published elsewhere in this issue of
  the Federal Register.
\3\ Technology needs to be certified to Sec.   170.315(a)(1), (a)(2), or (a)(3).
\4\ Technology needs to be certified to Sec.   170.315(a)(1), (a)(2), or (a)(3).
\5\ Technology needs to be certified to Sec.   170.315(a)(1), (a)(2), or (a)(3).
\6\ Technology needs to be certified to Sec.   170.315(a)(14) or (a)(15).
\7\ Technology needs to be certified to Sec.   170.315(a)(14) or (a)(15).
\8\ As discussed in the preamble for the ``clinical quality measures--report'' criterion, additional CQM
  certification policy may be proposed in or with CMS payment rules in CY15. As such, additional CQM
  certification criteria may be proposed for the Base EHR and/or CEHRT definitions.
\9\ For the public health certification criteria in Sec.   170.315(f), technology would only need to be
  certified to those criteria that are required to meet the options the provider intends to report in order to
  meet the proposed Objective 8: Public Health and Clinical Data Registry Reporting.
\10\ Technology needs to be certified to Sec.   170.315(h)(1) or (h)(2) to meet the proposed Base EHR
  definition.
\11\ Technology needs to be certified to Sec.   170.315(h)(1) or (h)(2) to meet the proposed Base EHR
  definition.


[[Page 16812]]

1. Applicability
    Section 170.300 establishes the applicability of subpart C--
Certification Criteria for Health Information Technology. We propose to 
revise paragraph (d) of Sec.  170.300 to add in a reference to Sec.  
170.315 and revise the parenthetical in the paragraph to say ``i.e., 
apply to any health care setting'' instead of ``i.e., apply to both 
ambulatory and inpatient settings.'' These proposed revisions would 
clarify which specific capabilities within a certification criterion 
included in Sec.  170.315 have general applicability (i.e., apply to 
any health care setting) or apply only to an inpatient setting or an 
ambulatory setting. The proposed revision to change the language of the 
parenthetical aligns with our proposed approach to make the ONC Health 
IT Certification Program more agnostic to health care settings and 
accessible to health IT that supports care and practice settings beyond 
the ambulatory and inpatient settings. We refer readers to section IV.B 
of this preamble for a detailed discussion of our proposals to modify 
the ONC Health IT Certification Program.
    We note that, with the proposed 2015 Edition, we no longer label 
certification criteria as either optional or ambulatory/inpatient (at 
the second paragraph level). For example, the proposed 2015 Edition 
certification criterion for electronic medication administration record 
is simply ``electronic medication administration record'' instead of 
``inpatient setting only--electronic medication administration 
record.'' Similarly, the proposed 2015 Edition certification criterion 
for ``accounting of disclosures'' is simply ``accounting of 
disclosures'' instead of ``optional--accounting of disclosures.'' These 
simplifications are possible given that, beginning with the 2015 
Edition health IT certification criteria, ``Complete EHR'' 
certifications will no longer be issued (see 79 FR 54443-45). 
Therefore, there is no longer a need to designate an entire 
certification criterion in this manner. Again, this approach supports 
our goal to make the ONC Health IT Certification Program more agnostic 
to health care settings and accessible to health IT that supports care 
and practice settings beyond the ambulatory and inpatient settings.
    We propose to replace the term ``EHR technology'' in paragraphs 
(d)(1) and (d)(2) with ``health IT'' to align with our proposed 
approach to make the ONC Health IT Certification Program more clearly 
open to the certification of all types of health IT. Again, we refer 
readers to section IV.B of this preamble for a detail discussion of our 
proposals to modify the ONC Health IT Certification Program.
2. Standards and Implementation Specifications
a. National Technology Transfer and Advancement Act
    The National Technology Transfer and Advancement Act (NTTAA) of 
1995 (15 U.S.C. Sec.  3701 et. seq.) and the Office of Management and 
Budget (OMB) Circular A-119 \12\ require the use of, wherever 
practical, technical standards that are developed or adopted by 
voluntary consensus standards bodies to carry out policy objectives or 
activities, with certain exceptions. The NTTAA and OMB Circular A-119 
provide exceptions to selecting only standards developed or adopted by 
voluntary consensus standards bodies, namely when doing so would be 
inconsistent with applicable law or otherwise impractical. In this 
proposed rule, we refer to voluntary consensus standards, except for:
---------------------------------------------------------------------------

    \12\ http://www.whitehouse.gov/omb/circulars_a119.
---------------------------------------------------------------------------

     The standards adopted in Sec.  170.202. (These standards 
were developed by groups of industry stakeholders committed to 
advancing the Direct Project,\13\ which included initiatives under the 
Standards and Interoperability (S&I) Framework.\14\ These groups used 
consensus processes similar to those used by other industry 
stakeholders and voluntary consensus standards bodies.);
---------------------------------------------------------------------------

    \13\ http://www.healthit.gov/policy-researchers-implementers/direct-project.
    \14\ http://www.healthit.gov/policy-researchers-implementers/standards-interoperability-si-framework.
---------------------------------------------------------------------------

     The standards we propose to adopt at Sec.  
170.205(a)(5)(iii) and (iv) for electronic submission medical 
documentation (esMD) (These standards were developed by groups of 
industry stakeholders committed to advancing esMD,\15\ which included 
initiatives under the Standards and Interoperability (S&I) 
Framework.\16\ These groups used consensus processes similar to those 
used by other industry stakeholders and voluntary consensus standards 
bodies.);
---------------------------------------------------------------------------

    \15\ http://wiki.siframework.org/esMD+-+Author+of+Record and 
http://wiki.siframework.org/esMD+-+Provider+Profiles+Authentication.
    \16\ http://www.healthit.gov/policy-researchers-implementers/standards-interoperability-si-framework.
---------------------------------------------------------------------------

     The standards we propose to adopt at Sec.  170.205(d)(4) 
and (e)(4) for reporting of syndromic surveillance and immunization 
information to public health agencies, respectively (These standards go 
through a process similar within the public health community to those 
used by other industry stakeholders and voluntary consensus standards 
bodies.);
     The standard we propose to adopt at Sec.  170.207(f)(2) 
for race and ethnicity; and
     Certain standards related to the protection of electronic 
health information adopted in Sec.  170.210.
    We are aware of no voluntary consensus standard that would serve as 
an alternative to these standards for the purposes that we have 
identified in this proposed rule.
b. Compliance With Adopted Standards and Implementation Specifications
    In accordance with Office of the Federal Register regulations 
related to ``incorporation by reference,'' 1 CFR part 51, which we 
follow when we adopt proposed standards and/or implementation 
specifications in any subsequent final rule, the entire standard or 
implementation specification document is deemed published in the 
Federal Register when incorporated by reference therein with the 
approval of the Director of the Federal Register. Once published, 
compliance with the standard and implementation specification includes 
the entire document unless we specify otherwise. For example, if we 
adopted the HL7 Laboratory Orders Interface (LOI) implementation guide 
(IG) proposed in this proposed rule, health IT certified to 
certification criteria referencing this IG would need to demonstrate 
compliance with all mandatory elements and requirements of the IG. If 
an element of the IG is optional or permissive in any way, it would 
remain that way for testing and certification unless we specified 
otherwise in regulation. In such cases, the regulatory text would 
preempt the permissiveness of the IG.
c. ``Reasonably Available'' to Interested Parties
    The Office of the Federal Register has established new requirements 
for materials (e.g., standards and implementation specifications) that 
agencies propose to incorporate by reference in the Federal Register 
(79 FR 66267; 1 CFR 51.5(a)). To comply with these requirements, in 
section VI (``Incorporation by Reference'') of this preamble, we 
provide summaries of, and uniform resource locators (URLs) to, the 
standards and implementation specifications we propose to adopt and 
subsequently incorporate by reference in the Federal Register. To note, 
we also provide relevant information about

[[Page 16813]]

these standards and implementation specifications throughout this 
section of the preamble (section III), including URLs.
d. ``Minimum Standards'' Code Sets
    We propose to adopt newer versions of four previously adopted 
minimum standards code sets in this proposed rule for the 2015 Edition. 
These code sets are the September 2014 Release of the U.S. Edition of 
SNOMED CT[supreg], LOINC[supreg] version 2.50, the February 2, 2015 
monthly version of RxNorm, and the February 2, 2015 version of the CVX 
code set. We also propose to adopt two new minimum standards code sets 
(the National Drug Codes (NDC)--Vaccine Codes, updates through January 
15, 2015 and the ``Race & Ethnicity--CDC'' code system in the PHIN 
Vocabulary Access and Distribution System (VADS) Release 3.3.9 (June 
17, 2011)). As we have previously articulated (77 FR 54170), the 
adoption of newer versions improve interoperability and health IT 
implementation, while creating little additional burden through the 
inclusion of new codes. As many of these minimum standards code sets 
are updated frequently throughout the year, we will consider whether it 
may be more appropriate to adopt a version of a minimum standards code 
set that is issued before we publish a final rule for this proposed 
rule. In making such determination, as we have done with these proposed 
versions of minimum standards code sets, we will give consideration to 
whether it includes any new substantive requirements and its effect on 
interoperability. If adopted, a newer version of a minimum standards 
code set would serve as the baseline for certification. As with all 
adopted minimum standards code sets, health IT can be certified to 
newer versions of the adopted baseline version minimum standards code 
sets for purposes of certification, unless the Secretary specifically 
prohibits the use of a newer version (see Sec.  170.555 and 77 FR 
54268).
e. Object Identifiers (OIDs) for Certain Code Systems
    We are providing the following table of OIDs for certain code 
systems to assist health IT developers in the proper identification and 
exchange of health information coded to the vocabulary standards 
proposed in this proposed rule.

------------------------------------------------------------------------
            Code system OID                      Code system name
------------------------------------------------------------------------
2.16.840.1.113883.6.96.................  IHTSDO SNOMED CT.[supreg]
2.16.840.1.113883.6.1..................  LOINC.[supreg]
2.16.840.1.113883.6.88.................  RxNorm.
2.16.840.1.113883.12.292...............  HL7 Standard Code Set CVX-
                                          Vaccines Administered.
2.16.840.1.113883.6.69.................  National Drug Code Directory.
2.16.840.1.113883.6.8..................  Unified Code of Units of
                                          Measure (UCUM \17\).
2.16.840.1.113883.6.13.................  Code on Dental Procedures and
                                          Nomenclature (CDT).
2.16.840.1.113883.6.4..................  International Classification of
                                          Diseases, 10th Revision,
                                          Procedure Coding System (ICD-
                                          10-PCS).
2.16.840.1.113883.6.238................  Race & Ethnicity--Centers for
                                          Disease Control and Prevention
                                          (CDC).
2.16.840.1.113883.6.316................  Tags for Identifying Languages--
                                          Request for Comment (RFC) 5646
                                          (preferred language).
------------------------------------------------------------------------

f. Subpart B--Standards and Implementation Specifications for Health 
Information Technology
    In Sec.  170.200, we propose to remove term ``EHR Modules'' and add 
in its place ``Health IT Modules.'' In Sec.  170.210, we propose to 
remove the term ``EHR technology'' and add in its place ``health IT.'' 
These proposals are consistent with our overall approach to this 
rulemaking as discussed in the Executive Summary.
---------------------------------------------------------------------------

    \17\ Copyright (copyright) 1998-2013, Regenstrief Institute, 
Inc. and the UCUM Organization. All rights reserved.
---------------------------------------------------------------------------

3. Certification Criteria
    We discuss the certification criteria that we propose to adopt as 
the 2015 Edition below. In a header for each criterion, we specify 
where the proposed certification criteria would be included in Sec.  
170.315. We discuss each certification criterion in the chronological 
order in which it would appear in the CFR. In other words, the preamble 
that follows will discuss the proposed certification criteria in Sec.  
170.315(a) first, then Sec.  170.315(b), and so on.
    We identify the certification criteria as new, revised, or 
unchanged in comparison to the 2014 Edition. In the 2014 Edition final 
rule we gave meaning to the terms ``new,'' ``revised,'' and 
``unchanged'' to both describe the differences between the 2014 Edition 
certification criteria and the 2011 Edition certification criteria as 
well as establish what certification criteria in the 2014 Edition were 
eligible for gap certification (see 77 FR 54171, 54202, and 54248). 
Given that beginning with the 2015 Edition ``Complete EHR'' 
certifications will no longer be issued (see also 79 FR 54443-45) and 
that our proposals in this proposed rule to make the ONC Health IT 
Certification Program more open and accessible to other health care/
practice settings, we propose to give new meaning to these terms for 
the purpose of a gap certification analysis.
     ``New'' certification criteria are those that as a whole 
only include capabilities never referenced in previously adopted 
certification criteria editions and to which a Health IT Module 
presented for certification to the 2015 Edition could have never 
previously been certified. As a counter example, the splitting of a 
2014 Edition certification criterion into two criteria as part of the 
2015 Edition would not make those certification criteria ``new'' for 
the purposes of a gap certification eligibility analysis.
     ``Revised'' certification criteria are those that include 
within them capabilities referenced in a previously adopted edition of 
certification criteria as well as changed or additional new 
capabilities; and to which a Health IT Module presented for 
certification to the 2015 Edition could not have been previously 
certified to all of the included capabilities.
     ``Unchanged'' certification criteria would be 
certification criteria that include the same capabilities as compared 
to prior certification criteria of adopted editions; and to which a 
Health IT Module presented for certification to the 2015 Edition could 
have been previously certified to all of the included capabilities.
    We explain the proposed certification criteria and provide 
accompanying rationale for the proposed certification criteria, 
including citing the recommendations of the HITPC and HITSC, where 
appropriate. For 2015 Edition health IT certification criteria

[[Page 16814]]

that have been revised in comparison to their 2014 Edition 
counterparts, we focus the discussion on any revisions and 
clarifications in comparison to the 2014 Edition version of the 
criteria. A revised 2015 Edition certification criterion would also 
include all the other capabilities that were included in the 2014 
Edition version. For example, we propose to adopt a 2015 Edition 
``drug-drug, drug-allergy interaction checks for CPOE'' certification 
criterion (Sec.  170.315(a)(4)) that is revised in comparison to the 
2014 Edition ``drug-drug, drug-allergy interaction checks'' criterion 
(Sec.  170.314(a)(2)). We only discuss clarifications (e.g., the 
criterion name change) and revisions we propose as part of the 2015 
Edition ``drug-drug, drug-allergy interaction checks for CPOE'' 
certification criterion. However, the 2015 Edition criterion also 
includes all the other capabilities of the 2014 Edition ``drug-drug, 
drug allergy interaction checks'' criterion. We refer readers to Sec.  
170.315 of the proposed regulation text near the end of this document, 
which specifies all the capabilities included in each proposed 2015 
Edition certification criterion.
    We include an appendix (Appendix A) to this proposed rule, which 
provides a table with the following data for each proposed 2015 Edition 
certification criterion, as applicable: (1) Proposed CFR citation; (2) 
estimated development hours; (3) proposed privacy and security 
certification requirements (approach 1); \18\ (4) conditional 
certification requirements (Sec.  170.550); (5) gap certification 
eligibility; (6) proposed inclusion in the 2015 Edition Base EHR 
definition; and (7) relationship to proposed Stage 3 of the EHR 
Incentive Programs, including the CEHRT definition.
---------------------------------------------------------------------------

    \18\ Please see section IV.C.1 (``Privacy and Security'') for a 
detailed discussion of approach 1.
---------------------------------------------------------------------------

    We propose, and readers should interpret, that the following terms 
used in the proposed 2015 Edition have the same meanings we adopted in 
the 2014 Edition final rule (77 FR 54168-54169), in response to public 
comment: ``user,'' ``record,'' ``change,'' ``access,'' ``incorporate,'' 
``create,'' and ``transmit,'' but apply to all health IT not just ``EHR 
technology.'' For the term ``incorporate,'' we also direct readers to 
the additional explanation we provided under the ``transitions of 
care'' certification criterion (77 FR 54218) in the 2014 Edition final 
rule and in the Voluntary Edition proposed rule (79 FR 10898). We 
propose that the scope of a 2015 Edition certification criterion is the 
same as the scope previously assigned to a 2014 Edition certification 
criterion (for further explanation, see the discussion at 77 FR 54168). 
That is, certification to proposed 2015 Edition health IT certification 
criteria at Sec.  170.315 would occur at the second paragraph level of 
the regulatory section and encompass all paragraph levels below the 
second paragraph level. We also propose to continue to use the same 
specific descriptions for the different types of ``data summaries'' 
established in the 2014 Edition final rule (77 FR 54170-54171) for the 
proposed 2015 Edition health IT certification criteria (i.e., ``export 
summary,'' ``transition of care/referral summary,'' ``ambulatory 
summary,'' and ``inpatient summary.'')
    As with the adoption of the 2011 and 2014 editions of certification 
criteria (see the introductory text to Sec. Sec.  170.302, 170.304, 
170.306, and 170.314), all capabilities mentioned in certification 
criteria are expected to be performed electronically, unless otherwise 
noted. Therefore, we no longer include ``electronically'' in 
conjunction with each capability included in a certification criterion 
proposed under Sec.  170.315 because the proposed introductory text to 
Sec.  170.315 (which covers all the certification criteria included in 
the section) clearly states that health IT must be able to 
electronically perform the following capabilities in accordance with 
all applicable standards and implementation specifications adopted in 
the part.
 Computerized Provider Order Entry
    In the 2014 Edition Release 2 final rule, we adopted separate 
computerized provider order entry (CPOE) certification criteria based 
on the clinical purpose (i.e., medications, laboratory, and diagnostic 
imaging) (79 FR 54435-36). We propose to take the same approach for the 
2015 Edition and propose to adopt three certification criteria for 
CPOE, as compared to a single criterion that would include combined 
functionality for all three clinical purposes (e.g., Sec.  
170.314(a)(1)).
    We request comment on whether we should specify, for the purposes 
of testing and certification to the 2015 Edition CPOE criteria, certain 
data elements that a Health IT Module must be able to include in a 
transmitted order. In particular, we request comment on whether a 
Health IT Module should be able to include any or all of the following 
data elements: secondary diagnosis codes; reason for order; and comment 
fields entered by the ordering provider, if they are provided to the 
ordering provider in their order entry screen. We also request comment 
on whether there are any other data elements that a Health IT Module 
should be able to include as part of an order for the purposes of 
testing and certification. We clarify, however, that any specific data 
requirements for a transmitted order that may be adopted in a final 
rule would only apply in the absence of a standard for testing and 
certification. As discussed below, we propose a laboratory order 
standard for the ambulatory setting. If we were to adopt this standard 
in a final rule, any potential required data elements for a transmitted 
order adopted in response to this proposal would not be made applicable 
to the ambulatory setting for the ``CPOE--laboratory'' certification 
criterion.
     Computerized Provider Order Entry--Medications

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(1) (Computerized provider order entry--medications)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition CPOE certification criterion 
specific to medication ordering. This proposed criterion does not 
reference any standards or implementation specifications and is 
unchanged in comparison to the 2014 Edition CPOE--medications criterion 
adopted at Sec.  170.314(a)(18).
     Computerized Provider Order Entry--Laboratory

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(2) (Computerized provider order entry--laboratory)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition CPOE certification criterion 
specific to laboratory ordering that is revised in comparison to the 
CPOE--laboratory criterion adopted at Sec.  170.314(a)(19) as well as 
Sec.  170.314(a)(1).
    We propose to adopt and include in this criterion, for the 
ambulatory setting, the HL7 Version 2.5.1 Implementation Guide: S&I 
Framework Laboratory Orders (LOI) from EHR, Draft Standard for Trial 
Use, Release 2--US Realm (``Release 2'').\19\ Due to the absence of a 
consensus standard for the purpose of sending laboratory orders from 
EHRs to laboratories, this standard was developed in conjunction with 
laboratories representative of the industry, health IT developers, and

[[Page 16815]]

provider stakeholders through an open consensus-based process under the 
Standards and Interoperability Framework (S&I Framework). Release 1 of 
the standard was balloted and approved through HL7, a standards 
developing organization. Release 2 is currently under ballot 
reconciliation with HL7 and should be published in the next few months. 
Release 2 would:
---------------------------------------------------------------------------

    \19\ http://www.hl7.org/special/committees/projman/searchableprojectindex.cfm?action=edit&ProjectNumber=922 and http://www.hl7.org/participate/onlineballoting.cfm?ref=nav#nonmember. 
Access to the current draft of the LOI Release 2 IG is freely 
available for review during the public comment period by 
establishing an HL7 user account.
---------------------------------------------------------------------------

     Implement common formats across US Realm IGs for 
consistent reader experience (e.g., sequence of sections, formatting, 
layout, and terminology);
     Adopt HL7 version 2.8 fields developed to fill gaps 
identified in the development of Release 1;
     Include harmonized data type ``flavors'' for use across 
the US Realm Lab IGs;
     Introduce initial requirements for error reporting 
conditions and severity (hard/soft errors) and system/application 
acknowledgements;
     Harmonize data element usage and cardinality requirements 
with LOI Release 1, and the electronic Directory of Services (eDOS) IG;
     Incorporate US Lab Realm value sets developed for clarity 
and consistency across all laboratory IGs; and
     Use a new publication method for value sets that allows 
for precision usage at point of use and provides ``at a glance'' 
comprehensive usage at the field and component-level across all 
laboratory IGs; and synced with value set activities (HL7, VSAC, etc.).
    Overall, we propose to adopt Release 2 of the standard because it 
addresses errors and ambiguities found in Release 1 and harmonizes 
requirements with other laboratory standards we propose to adopt in 
this proposed rule. Release 2 would also make implementation of the LOI 
IG clearer and more consistent for health IT developers and 
laboratories, as well as improve interoperability. We propose to adopt 
Release 2 at Sec.  170.205(l)(1).
    Commenters on the Voluntary Edition proposed rule noted that for 
optimal interoperability we need to also adopt the most recent version 
of the HL7 Version 2.5.1 Implementation Guide: S&I Framework Laboratory 
Test Compendium Framework, Release 2, (also referred to as the 
``electronic Directory of Services (eDOS) IG''), as it is the companion 
IG to the LOI IG. We agree with the commenters' assessment and propose 
to include the most recent version of the eDOS IG in this criterion for 
certification to all health care settings (i.e., not confining it to 
only the ambulatory setting) and adopt it at Sec.  170.205(l)(2). The 
most recent version of the eDOS IG will be Release 2, Version 1.2, 
which is scheduled to publish in the next few months. Release 2, 
Version 1.2 is currently under ballot reconciliation.\20\ In general, 
the eDOS IG provides requirements and guidance for the delivery of an 
electronic Directory of Services (test compendium) from a laboratory 
(compendium producer) to an EHR or other system (compendium consumer) 
where it is used to produce electronic orders (LOI-conformant messages) 
for laboratory tests. Version 1.2 of the eDOS IG addresses errors and 
ambiguities in the prior version as well as harmonizes with Release 2 
of the LOI IG.
---------------------------------------------------------------------------

    \20\ http://www.hl7.org/participate/onlineballoting.cfm?ref=nav#nonmember. Access to the current draft 
of the eDOS IG, Release 2, Version 1.2 is freely available for 
review during the public comment period by establishing an HL7 user 
account.
---------------------------------------------------------------------------

    We also propose, for the purposes of certification, to require a 
Health IT Module to be able to use, at a minimum, the version of 
Logical Observation Identifiers Names and Codes (LOINC[supreg]) adopted 
at Sec.  170.207(c)(3) (version 2.50) as the vocabulary standard for 
laboratory orders. This is the most recent version of LOINC[supreg]. We 
refer readers to section III.A.2.d (``Minimum Standards'' Code Sets) 
for further discussion of our adoption of LOINC[supreg] as a minimum 
standards code set and our proposal to adopt version 2.50, or 
potentially a newer version if released before a subsequent final rule, 
as the baseline for certification to the 2015 Edition.
    We note that the LOI Release 2 IG requires the information for a 
test requisition as specified in the Clinical Laboratory Improvement 
Amendments (CLIA), 42 CFR 493.1241(c)(1) through (c)(8), to be included 
in the content message. Therefore, inclusion of this standard for 
certification may also facilitate laboratory compliance with CLIA.
     Computerized Provider Order Entry--Diagnostic Imaging

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(3) (Computerized provider order entry--diagnostic
 imaging)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition CPOE certification criterion 
specific to diagnostic imaging. This proposed criterion does not 
reference any standards or implementation specifications, and is 
unchanged in comparison to the 2014 Edition CPOE--diagnostic imaging 
criterion adopted at Sec.  170.314(a)(20). To note, we also propose to 
adopt the title of ``diagnostic imaging,'' which is the title we gave 
to the 2014 Edition version of this certification criterion in the 2014 
Edition Release 2 final rule (79 FR 54436).
     Drug-Drug, Drug-Allergy Interaction Checks for CPOE

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(4) (Drug-drug, drug-allergy interaction checks for
 CPOE)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``drug-drug, drug-allergy 
interaction checks for CPOE'' certification criterion that is revised 
in comparison to the 2014 Edition ``drug-drug, drug-allergy interaction 
checks'' criterion (Sec.  170.314(a)(2)). We propose to clarify that 
the capabilities included in this criterion are focused on CPOE by 
including ``for CPOE'' in the title of this criterion.
    We also propose to include in this criterion the capabilities to 
record user actions for drug-drug, drug-allergy interaction (DD/DAI) 
interventions and to enable a user to view the actions taken for DD/DAI 
interventions (also referred to as ``checks''). Specifically, we 
propose that a Health IT Module must be able to record at least one 
action taken and by whom in response to drug-drug or drug-allergy 
interaction checks. To be certified to this criterion, a Health IT 
Module (at a user's request) must also be able to generate either a 
human readable display or human readable report of actions taken and by 
whom in response to drug-drug or drug-allergy interaction checks.
    We solicited comment in the Voluntary Edition proposed rule on 
whether health IT should be able to track (which means ``record'' and 
will be referred to as ``record'' throughout this preamble) provider 
(referred to as ``user'' for the purposes of this proposed 
certification criterion) actions for DD/DAI interventions, including 
recording if and when the user viewed, accepted, declined, ignored, 
overrode, or otherwise commented on the DD/DAI interventions. We 
received comments that supported recording user actions for DD/DAI 
interventions (79 FR 54449). We also received comments recommending 
that we consider including recording user actions in response to CDS 
interventions. We discuss those comments under the CDS certification 
criterion in this section (III.A.3) of the preamble.
    We believe that recording user actions for DD/DAI interventions 
could assist with quality improvement and patient safety. While some 
commenters expressed concern that functionality for recording user 
actions would be

[[Page 16816]]

burdensome to develop, we believe the potential benefits of improved 
care and reduced adverse events that can come from using such 
functionality and being able to subsequently analyze user actions for 
DD/DAI interventions outweighs the development burden. To provide 
health IT developers with flexibility and the opportunity to innovate, 
we have explicitly not specified the types of actions a Health IT 
Module must be able to record to meet this criterion. Health IT 
developers would need to simply demonstrate that their Health IT Module 
can record at least one user action for DD/DAI checks. For example, a 
Health IT Module could include the capability to record whether the 
user viewed, accepted, declined, ignored, overrode, provided a 
rationale or explanation for the action taken, took some other type of 
action not listed here or otherwise commented on the DD/DAI check. We 
solicit comment on whether we should focus this proposed requirement to 
record at least one user action taken for DD/DAI interventions on a 
subset of DD/DAI interventions, such as those of highest patient safety 
concern, and what sources we should consider for defining this subset.
    We note, however, that we do not intend with this proposed 
requirement to infer a specific workflow or user interface in order to 
achieve conformance to this criterion. While appropriate documentation 
in accordance with clinical, safety, and system design best practices 
for these DD/DAI interventions is beyond the scope of certification for 
this criterion, we would encourage health IT developers to consider 
these best practices in developing this functionality and attempt to 
not interrupt a provider's workflow unnecessarily to meet this 
criterion. This criterion also does not propose to establish the uses 
for the ``user action'' information, whom should be able to view the 
information, or who could adjust the capability. Further, based on 
stakeholder feedback, there does not appear to be a consensus method or 
standard for characterizing the severity of patient DD/DAI reactions. 
Therefore, until the stakeholder community determines if there should 
be a set of methods, standards, or clinical guidelines for determining 
the severity of a patient DD/DAI reaction, we believe that users should 
determine these definitions for their organization and/or setting.
    While this proposed certification criterion focuses on DD/DAI 
checking at the point when a user enters a computerized order, we 
believe that there are instances when a user should be aware of a 
patient's DD/DAI when new medications or medication allergies are 
entered into the patient record. Therefore, we strongly encourage 
health IT developers to build in functionality, including but not 
limited to clinical decision support, that would inform a user of new 
or updated DD/DAI when the medication or medication allergy lists are 
updated. We also seek comment on whether we should include this 
functionality in certification and whether this functionality should be 
included in an existing certification criterion (e.g., medication list, 
medication allergy list, clinical decision support) or a standalone 
criterion.
     Demographics

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(5) (Demographics)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``demographics'' certification 
criterion that is revised as described below in comparison to the 2014 
Edition certification criterion (Sec.  170.314(a)(3)).
Sex
    We propose that, for certification (and testing) to this criterion, 
health IT must be capable of recording sex in accordance with HL7 
Version 3 (``AdministrativeGender'') and a nullFlavor value attributed 
as follows: male (M); female (F); and unknown (UNK). This proposal 
serves as another means of improving interoperability through the use 
of consistent standards.
    We propose in a later section of this rule that using HL7 Version 3 
for recording sex would be required under the ``Common Clinical Data 
Set'' definition for certification to the 2015 Edition. Please see 
section III.B.3 ``Common Clinical Data Set'' of this preamble for 
further discussion of this associated proposal.
Race and Ethnicity
    We propose that, for certification (and testing) to this criterion, 
a Health IT Module must be capable of recording each one of a patient's 
races and ethnicities in accordance with, at a minimum, the ``Race & 
Ethnicity--CDC'' code system in the PHIN Vocabulary Access and 
Distribution System (VADS), Release 3.3.9.\21\ We also propose that a 
Health IT Module must be able to aggregate each one of a patient's 
races and ethnicities to the categories in the OMB standard for race 
and ethnicity, which we previously adopted for the 2011 Edition and 
2014 Edition ``demographics'' certification criteria.
---------------------------------------------------------------------------

    \21\ https://phinvads.cdc.gov/vads/ViewCodeSystem.action?id=2.16.840.1.113883.6.238#.
---------------------------------------------------------------------------

    As discussed in the 2014 Edition final rule (77 FR 54208), the OMB 
standard for the classification of data on race and ethnicity requires 
that the option for selecting one or more racial designations be 
provided. The standard also permits the use of more than the minimum 
standard categories for race and ethnicity, but requires that the data 
can be ``rolled up'' or mapped to the minimum standard categories as 
well as aggregated. The ``Race & Ethnicity--CDC'' code system in PHIN 
VADS (at a minimum, Release 3.3.9) permits a much more granular 
structured recording of a patient's race and ethnicity with its 
inclusion of over 900 concepts for race and ethnicity. The recording 
and exchange of patient race and ethnicity at such a granular level can 
facilitate the accurate identification and analysis of health 
disparities based on race and ethnicity. Further, the ``Race & 
Ethnicity--CDC'' code system has a hierarchy that rolls up to the OMB 
minimum categories for race and ethnicity and, thus, supports 
aggregation and reporting using the OMB standard. Accordingly, we 
propose the adoption and inclusion of both these standards in this 
certification criterion as described.
    For the purposes of testing and certification to this 
``demographics'' criterion, we would test that a Health IT Module can 
record each one of a patient's races and ethnicities using any of the 
900 plus concepts in the ``Race & Ethnicity--CDC'' code system. We 
would not, however, expect the user interface to include a drop-down 
menu of all 900 plus ``Race & Ethnicity--CDC'' code system concepts for 
race and ethnicity, as we believe doing so could have negative workflow 
effects. Rather, we expect that health IT developers and health care 
providers would work together to establish the appropriate 
implementation given the care setting.
    We refer readers to section III.A.2.d (``Minimum Standards'' Code 
Sets) for further discussion of our proposal to adopt ``Race & 
Ethnicity--CDC'' code system in PHIN VADS as a minimum standards code 
set and Release 3.3.9, or potentially a newer version if released 
before a subsequent final rule, as the baseline for certification to 
the 2015 Edition.
    We propose in a later section of this proposed rule that the ``Race 
& Ethnicity--CDC'' code system in PHIN VADS (at a minimum, Release 
3.3.9) and the OMB standard would become the race and ethnicity 
standards under the ``Common Clinical Data Set'' definition for 
certification to the 2015

[[Page 16817]]

Edition. Please see section III.B.3 ``Common Clinical Data Set'' of 
this preamble for further discussion of this associated proposal.
Preferred Language
    Based on specific HITSC recommendations from 2011, we adopted ISO 
639-2 constrained by ISO 639-1 for recording preferred language in the 
2014 Edition ``demographics'' certification criterion (77 FR 
54208).\22\ More specifically, this means that technology is required 
to be capable of using the alpha-3 codes of ISO 639-2 to represent the 
corresponding alpha-2 code in ISO-639-1. To provide further clarity, we 
issued FAQ 27 \23\ in which we stated that where both a bibliographic 
code and terminology code are present for a required ISO 639-2 
language, technology is expected to be capable of representing the 
language in accordance with the (T) terminology codes (ISO 639-2/T) for 
the purposes of certification. After we issued FAQ 27, we issued FAQ 43 
\24\ in which we acknowledge that our constrained approach to the use 
of ISO 639-2 unintentionally excluded multiple languages that are 
currently in use, such as sign language and Hmong. Additionally, ISO 
639-2 is meant to support written languages, which may not be the 
language with which patients instinctively respond when asked for their 
preferred language.
---------------------------------------------------------------------------

    \22\ http://www.loc.gov/standards/iso639-2/php/code_list.php.
    \23\ http://www.healthit.gov/policy-researchers-implementers/27-question-10-12-027.
    \24\ http://www.healthit.gov/policy-researchers-implementers/43-question-11-13-043.
---------------------------------------------------------------------------

    To improve the situation described above, we propose to adopt the 
Internet Engineering Task Force (IETF) Request for Comments (RFC) 5646 
\25\ standard for preferred language. RFC 5646 entitled ``Tags for 
Identifying Languages, September 2009'' is the coding system that is 
commonly used to encode languages on the web and is the most current 
RFC for this purpose and listed as a ``best current practice.'' \26\ 
The first part of the code relies on the shortest ISO-639 code for the 
language. That means a 2-character code if the language is specified in 
ISO 639-1 or a 3-character code from ISO 639-2 or -3, if the language 
is only listed in one of those two ISO standards. We are also aware 
that RFC 5646 supports dialects.
---------------------------------------------------------------------------

    \25\ http://www.rfc-editor.org/info/rfc5646.
    \26\ http://www.rfc-editor.org/info/rfc5646.
---------------------------------------------------------------------------

    After consideration of comments we received on the Voluntary 
Edition proposed rule (79 FR 54450) and further research, we believe 
that RFC 5646 is the most appropriate standard to support preferred 
language interoperability. It is our understanding that this standard 
is compatible with the C-CDA Release 2.0 and that other preferred 
language standards in use today can be efficiently mapped to it, such 
as ISO 639-1, 639-2, and 639-3. Therefore, for the purposes of testing 
and certification to this ``demographics'' criterion, we would test 
that a Health IT Module can record a patient's preferred language using 
any of the codes in RFC 5646.
    We emphasize that this requirement would apply to a Health IT 
Module presented for certification and not health care providers. In 
other words, a Health IT Module certified to this criterion would need 
to support the recording of preferred language in RFC 5646 and should 
in no way be interpreted or imply the way in which health care 
providers use the capability to record preferred language or the 
preferred language values they are presented with to select a patient's 
preferred language. For example, we would not expect the user interface 
to include a drop-down menu of all RFC 5646 codes for language, as we 
believe doing so could have negative workflow effects. Rather, we 
expect that health IT developers and health care providers would work 
together to establish the appropriate implementation given the care 
setting.
    We propose in a later section of this proposed rule that RFC 5646 
would also become the preferred language standard under the ``Common 
Clinical Data Set'' definition for certification to the 2015 Edition. 
Please see section III.B.3 (``Common Clinical Data Set'') of this 
preamble for further discussion of this associated proposal.
Preliminary Cause of Death and Date of Death
    We propose to include in the 2015 Edition the capability to enable 
a user to electronically record, change, and access the ``date of 
death'' as a required capability that EHR technology designed for the 
inpatient setting must demonstrate. We previously included this 
capability as part of the 2011 Edition ``demographics'' certification 
criterion and inadvertently omitted it from the 2014 Edition. While we 
heard from commenters in response to the Voluntary Edition proposed 
rule that they were unaware of any developer removing this capability, 
we believe it is appropriate to specifically include this capability in 
the 2015 Edition criterion for testing and certification purposes and 
to align with the data required by the Meaningful Use criteria of the 
EHR Incentive Programs. To note, this functionality would be in 
addition to the inclusion in the 2015 Edition ``demographics'' 
certification criterion of the same capability to enable a user to 
electronically record, change, and access ``preliminary cause of 
death'' in case of mortality, as is included in the 2014 Edition 
``demographics'' certification criterion.
     Vital Signs, Body Mass Index (BMI), and Growth Charts

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(6) (Vital signs, body mass index, and growth charts)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``vital signs, BMI, and growth 
charts'' certification criterion that is revised in comparison to the 
2014 Edition ``vital signs, BMI, and growth charts'' criterion (Sec.  
170.314(a)(4)). Specifically, we propose to: 1) Expand the types of 
vital signs for recording; 2) require that each type of vital sign have 
a specific LOINC[supreg] code attributed to it; 3) that The Unified 
Code of Units of Measure, Revision 1.9, October 23, 2013 (``UCUM 
Version 1.9'') \27\ be used to record vital sign measurements; and 4) 
that certain metadata accompany each vital sign, including date, time, 
and measuring- or authoring-type source.
---------------------------------------------------------------------------

    \27\ http://unitsofmeasure.org/trac/.
---------------------------------------------------------------------------

Proposed Approach for Vital Signs
    In the Voluntary Edition proposed rule (79 FR 10889-10890), we 
solicited comment on whether we should require health IT to record 
vital signs in standardized vocabularies. We solicited comments on 
whether we should require that vital signs be recorded in standardized 
vocabularies natively within the health IT system or only during 
transmission. We also solicited comment on whether we should require 
vital signs be recorded with specific metadata for contextual purposes.
    Many commenters recommended that the industry should standardize 
how vital signs are represented and collected. To this end, we are 
aware that several stakeholder groups are working to define unique, 
unambiguous representations/definitions for clinical concepts along 
with structured metadata that together provide improved context for the 
system to interpret information, including vital signs. This approach 
can help increase data standardization at a granular level so that 
clinical elements and associated values/findings can be consistently 
represented and exchanged. For example, blood pressure is represented 
in current systems using a variety of formats, which creates

[[Page 16818]]

significant challenges to aggregate, compare, and exchange data across 
systems. This occurs despite the numeric nature of blood pressure, 
resulting in costly and time-consuming manual translation to integrate 
this data across systems.
    Some commenters supported requiring standardized vocabularies for 
vital signs during data exchange rather than natively within the health 
IT system. While we agree that data should be exchanged in a standard 
way, we also believe that the granularity necessary to unambiguously 
represent this data should be implemented within health IT systems so 
that data is captured with the same level of specificity to enable 
consistent and reliable interpretation by other data users and 
receivers without requiring mapping. Thus, we propose that health IT 
demonstrate it is able to record vital signs data natively as specified 
below. Overall, these proposals reflect our interest in ensuring that 
the data a user enters into a health IT system is semantically and 
syntactically identical to the information coming out of the system and 
being exchanged. We believe this would increase the confidence that the 
data exchanged is what the provider intended.
    The 2014 Edition ``vital signs'' certification criterion requires 
health IT to enable a user to electronically record, change, and access 
a patient's height/length, weight, and blood pressure. We propose to 
include BMI, heart rate, respiratory rate, temperature, oxygen 
saturation in arterial blood by pulse oximetry, and mean blood pressure 
as we understand that these vital signs are commonly captured or 
calculated (i.e., BMI) in the routine course of clinical encounters 
across a wide variety of both inpatient and ambulatory settings. We 
also propose to further specify that health IT would need to be able to 
record diastolic and systolic blood pressure as separate vital signs 
rather than ``blood pressure'' (unspecified) as a single vital sign. We 
clarify that this list of vital signs is not intended to be 
comprehensive. Rather, these listed vital signs indicate our interest 
in a more specific approach to recording and exchanging vital signs 
data that could promote unambiguous interpretation. These vital sign 
concepts derive from the C-CDA standard and the Public Health 
Information Network Vocabulary Access and Distribution System value set 
for vital sign result types \28\ (2.16.840.1.113883.3.88.12.80.62), 
which was developed by the Health IT Standards Panel.\29\ Therefore, we 
believe the health care community has experience with collecting these 
vital sign concepts because they have been defined for some time as 
part of previous collaborative stakeholder work.
---------------------------------------------------------------------------

    \28\ https://phinvads.cdc.gov/vads/ViewValueSet.action?oid=2.16.840.1.113883.3.88.12.80.62.
    \29\ The Health IT Standards Panel was established in 2005 as a 
strategic public-private partnership in contract with the U.S. 
Department of Health and Human Services to achieve a widely accepted 
and useful set of standards to enable and support widespread 
interoperability among healthcare software applications. The Health 
IT Standards Panel's contract with HHS concluded on April 30, 2010. 
http://www.hitsp.org/.
---------------------------------------------------------------------------

    We propose to require that a Health IT Module be able to attribute 
a specific LOINC[supreg] code to each type of vital sign using the 
following identifiers:
     ``Systolic blood pressure'' with LOINC[supreg] code 8480-
6;
     ``Diastolic blood pressure'' with LOINC[supreg] code 8462-
4;
     ``Body height'' with LOINC[supreg] code 8302-2;
     ``Body weight measured'' with LOINC[supreg] code 3141-9;
     ``Heart rate'' with LOINC[supreg] code 8867-4;
     ``Respiratory rate'' with LOINC[supreg] code 9279-1;
     ``Body temperature'' with LOINC[supreg] code 8310-5;
     ``Oxygen saturation in arterial blood by pulse oximetry'' 
with LOINC[supreg] code 59408-5;
     ``Body mass index (BMI) [Ratio]'' with LOINC[supreg] code 
39156-5; and
     ``Mean blood pressure'' with LOINC[supreg] code 8478-0.
    We understand that the industry is commonly identifying these vital 
signs using LOINC[supreg] codes today.
    We also propose to require that a Health IT Module enable a user to 
record these vital signs with at least the following metadata:
     date and time of vital sign measurement or end time of 
vital sign measurement with optional certification in accordance with 
the clock synchronization standard adopted at Sec.  170.210(g); and
     the measuring- or authoring-type source of the vital sign 
measurement (such as the user who documented the vital sign or the 
medical device that was used to measure the vital sign).
    In some cases, the provider documenting the vital sign may record 
the date and time of vital sign measurement manually and enter the data 
into a health IT system at a later time; therefore, it would not be 
necessary to use the clock synchronization standard. However, use of 
the clock synchronization standard may be useful for situations where 
the vital sign data comes from a device and should be synchronized with 
the health IT system.
    For ``oxygen saturation in arterial blood by pulse oximetry,'' we 
propose that a Health IT Module enable a user to record ``inhaled 
oxygen concentration'' with LOINC[supreg] code 3150-0 as metadata 
associated with the vital sign. We understand that ``inhaled oxygen 
concentration'' is frequently provided to assist with interpretation of 
the ``oxygen saturation in arterial blood by pulse oximetry'' value.
    For all units of measure associated with a vital sign value, we 
propose to require that health IT be able to record an applicable unit 
of measure in accordance with UCUM Version 1.9 (e.g., the UCUM unit 
``mm[Hg]'' for systolic blood pressure; e.g., the UCUM unit 
``[lb_av],'' ``g,'' ``kg,'' or ``[oz_av]'' for body weight). We note 
that LOINC provides a translation table \30\ that enumerates the UCUM 
syntax for a subset of UCUM codes that are commonly used in health IT 
that may be a useful reference for stakeholders.
---------------------------------------------------------------------------

    \30\ https://loinc.org/downloads/usage/units.
---------------------------------------------------------------------------

Proposed ``Optional'' Pediatric Vital Signs
    We propose to offer optional certification for health IT to be able 
to electronically record, change, and access:
     Body mass index (BMI) [Percentile] per age and sex (with 
LOINC[supreg] code 59576-9) for youth 2-20 years of age; and
     Weight for length per age and sex (with LOINC[supreg] code 
to be established in a newer version of LOINC[supreg] prior to the 
publication of a subsequent final rule) and/or Head occipital-frontal 
circumference by tape measure (with LOINC[supreg] code 8287-5) for 
infants less than 3 years of age.
    We propose to require that a Health IT Module enable each optional 
vital sign to be recorded with an applicable unit of measure in 
accordance with UCUM Version 1.9. CDC recommends the collection of 
these anthropomorphic indices for youth 2-20 years of age and infants 
less than 3 years of age, respectively, as part of best care 
practices.\31\
---------------------------------------------------------------------------

    \31\ http://www.cdc.gov/growthcharts/clinical_charts.htm#Set1 
and http://www.cdc.gov/growthcharts/clinical_charts.htm#Set2.
---------------------------------------------------------------------------

    A Health IT Module certified to the ``BMI percentile per age and 
sex,'' ``weight for length per age and sex,'' or ``head occipital-
frontal circumference by tape measure'' vital signs would also need to 
record metadata for the date and time or end time of vital sign

[[Page 16819]]

measurement, the measuring- or authoring-type source of the vital sign 
measurement, the patient's date of birth, and the patient's sex in 
accordance with the standard we propose to adopt at Sec.  
170.207(n)(1). We believe offering optional certification to these 
three vital signs can provide value in settings where pediatric and 
adolescent patients are provided care.
Request for Comments on Vital Signs Proposal
    We intend that the LOINC[supreg] codes proposed for attribution to 
the vital signs in the list above are neutral to, and therefore can 
encompass, any clinically reasonable method of measurement that is 
commonly used in obtaining vital signs in the course of clinical 
encounters in a wide variety of contexts, including but not limited to, 
primary-care office/clinic visits, emergency department visits, and 
routine inpatient admissions processes. For example, this would mean 
the system would attribute ``body height'' to LOINC[supreg] code 8302-2 
for the measurement of how tall or long the patient is. This 
measurement is collected as part of routine vital signs observation 
regardless of whether this clinical observation was made by measuring a 
standing or supine adult/child, or a supine infant, or by estimating 
through clinically reasonable methods the height/length of an adult or 
child who cannot be measured in a standing or fully supine position.
    Likewise, we propose to attribute a specific LOINC[supreg] code for 
body temperature regardless of whether the temperature was measured by 
a liquid-filled, digital/electronic, or infrared (non-contact) 
thermometer. The choice of UCUM unit code will indicate whether the 
measurement was taken in English or metric units. The metadata 
describing the source of the measurement would provide the context of 
the device that was used to perform the measurement. We reiterate that 
the intent behind this ``vital signs'' proposal is to ensure that the 
data a user enters into a health IT system is semantically and 
syntactically identical to the information coming out of the system and 
being exchanged, allowing other users to unambiguously and consistently 
interpret the information. We anticipate that stakeholders may want to 
expand the list of metadata beyond the date, time, and source of vital 
sign measurement. We welcome comment on additional vital sign metadata 
that we should consider for inclusion and the best available standards 
for representing the metadata (e.g., LOINC[supreg] or a similar 
standard).
    Health IT users may currently capture vital signs in more granular 
LOINC[supreg] codes that specify the method of measurement. We 
therefore solicit comment on the feasibility and implementation 
considerations for our proposals that rely on less granular 
LOINC[supreg] codes for attribution to vital sign measurements and the 
inclusion of accompanying metadata. Additionally, we solicit comment on 
the following issues:
     Support for or against the proposal to require attribution 
of vital sign values using specific LOINC[supreg] codes and associated 
metadata;
     whether our proposal will accomplish the stated goal of 
ensuring that the vital signs data a user enters into a health IT 
system is semantically and syntactically identical to the information 
coming out of the system and being exchanged;
     whether the LOINC[supreg] codes proposed above are the 
correct ones for representing the vital sign concepts broadly, 
including any method of measurement; and
     standards for recording the source of the vital sign 
measurement.
    We also solicit comment on whether we should require a Health IT 
Module to be able to record metadata specific to particular vital signs 
results/findings. This could provide additional contextual information 
(e.g., position for diastolic and systolic blood pressure, whether the 
patient is breathing supplemental oxygen, the site of the temperature 
such as oral or rectal, pregnancy status for BMI, and whether the vital 
sign was measured or self-reported). Because the LOINC[supreg] code 
associated with some vital sign concepts we are proposing may include 
whether the vital sign was measured or self-reported (e.g., body weight 
measured), we also request comment on which specific vital signs should 
include metadata on whether it was measured or self-reported. If we 
were to require a Health IT Module to be able to record metadata 
specific to particular vital signs, we solicit comment on what 
additional metadata should be required for certification and what 
standards (e.g., LOINC[supreg] or a similar standard) we should 
consider for representing that data.
    We note, with respect to arterial oxygen saturation, that we are 
proposing here the type of measurement that we understand to be 
commonly performed as part of vital signs observation across a wide 
variety of clinical settings. We are aware that in some clinical 
circumstances oxygen saturation in arterial blood by pulse oximetry is 
not a sufficiently precise measurement to support sound clinical 
decisions. We therefore invite comment as to whether we should consider 
defining the arterial blood oxygen saturation vital sign in a more 
method-agnostic way, and whether we should also require capture and 
exchange of more robust metadata to ensure technology could reliably 
identify to clinicians seeking to use the value whether it was measured 
by pulse oximetry or a more precise but more invasive and, in most 
clinical contexts, less commonly performed arterial blood gas (ABG) 
test.
    We propose in a later section of this proposed rule that vital 
signs be represented in same manner for the ``Common Clinical Data 
Set'' definition as it applies to the certification of health IT to the 
2015 Edition. Note that the optional portions of the proposed vital 
signs criterion would not be required for the ``Common Clinical Data 
Set'' (i.e., BMI percentile per age and sex for youth, weight for 
length for infants, head occipital-frontal circumference by tape 
measure, calculating BMI, and plotting and displaying growth charts.) 
Please see section III.B.3 (``Common Clinical Data Set'') of this 
preamble for further discussion of this associated proposal.
     Problem List

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(7) (Problem list)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``problem list'' certification 
criterion that is revised in one way as compared to the 2014 Edition 
``problem list'' certification criterion (Sec.  170.314(a)(5)). We 
propose to include the September 2014 Release of the U.S. Edition of 
SNOMED CT[supreg] in the 2015 Edition ``problem list'' certification 
criterion as the baseline version permitted for certification to this 
criterion. The 2014 Edition ``problem list'' criterion included the 
July 2012 Release of SNOMED CT[supreg] (International Release and the 
U.S. Extension) as the baseline version permitted for certification. We 
also refer readers to section III.A.2.d (``Minimum Standards'' Code 
Sets) for further discussion of our adoption of SNOMED CT[supreg] as a 
minimum standards code set and our proposal to adopt the September 2014 
Release (U.S. Edition), or potentially a newer version if released 
before a subsequent final rule, as the baseline for certification to 
the 2015 Edition.
     Medication List

[[Page 16820]]



------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(8) (Medication list)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``medication list'' 
certification criterion that is unchanged as compared to the 2014 
Edition ``medication list'' certification criterion (Sec.  
170.314(a)(6)). To note, this proposed criterion does not reference any 
standards or implementation specifications.
     Medication Allergy List

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(9) (Medication allergy list)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``medication allergy list'' 
certification criterion that is unchanged as compared to the 2014 
Edition ``medication allergy list'' certification criterion (Sec.  
170.314(a)(7)).
    We received comments in response to the Voluntary Edition proposed 
rule suggesting that a ``medication allergy list'' criterion should 
include also other types of allergies and intolerances, such as food 
and environmental allergies (79 FR 54451-52). We are aware of a number 
of vocabularies and code sets that could support food and environmental 
allergies as well as medications, but believe that the industry is 
working on identifying ways that multiple vocabularies and code sets 
can be used together in an interoperable way to support coding of 
allergies. Therefore, at this time, there is no ready solution for 
using multiple vocabularies to code allergies that could be adopted for 
the purposes of certification.
     Clinical Decision Support

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(10) (Clinical decision support)
------------------------------------------------------------------------

    Health IT is key component of advanced health models and delivery 
system reform. CDS is a primary means of supporting the implementation 
of best evidence and new knowledge at the point of care and in real 
time (see our definition of ``CDS intervention'' discussed at 77 FR 
13847). When effective decision support is presented in a useful 
manner, it enhances usability and helps providers and patients avoid 
medical errors. Therefore, we believe that clinical decision support is 
a crucial feature of certified health IT.
    We propose to adopt a 2015 Edition ``clinical decision support'' 
certification criterion that is revised in comparison to the 2014 
Edition ``CDS'' criterion (Sec.  170.314(a)(8)). We propose to adopt 
and include an updated ``Infobutton'' \32\ standard and two updated 
associated IGs. We propose to require certification only to the 
Infobutton standard (and an associated IG) for identifying diagnostic 
or therapeutic reference information. We propose to require that a 
Health IT Module presented for certification to this criterion be able 
to record users' actions in response to CDS interventions. Last, we 
have revised the regulation text in comparison to the 2014 Edition CDS 
criterion to provide more clarity for certification to this proposed 
criterion as well as guidance for certification to the 2014 Edition CDS 
criterion.
---------------------------------------------------------------------------

    \32\ Infobutton'' is typically the shorthand name used to refer 
to the formal standard's name: HL7 Version 3 Standard: Context-Aware 
Retrieval Application (Infobutton)
---------------------------------------------------------------------------

Infobutton Standard and IGs
    We propose to adopt and include the updated Infobutton standard 
(Release 2, June 2014) \33\ in the proposed 2015 Edition CDS criterion. 
Infobutton provides a standard mechanism for health IT systems to 
request context-specific clinical or health knowledge from online 
resources. We propose to adopt and include the HL7 Implementation 
Guide: Service-Oriented Architecture Implementations of the Context-
aware Knowledge Retrieval (Infobutton) Domain, Release 1, August 2013 
(``SOA Release 1 IG'') \34\ in the CDS criterion. The SOA Release 1 IG 
includes additional conformance criteria, redesigns extensions, revises 
possible values, and includes support for an additional format for 
representing knowledge responses. We also propose to adopt and include 
in the proposed 2015 Edition CDS criterion the updated Infobutton URL-
based IG (HL7 Version 3 Implementation Guide: Context-Aware Knowledge 
Retrieval (Infobutton), Release 4, June 2014) (``URL-based Release 4 
IG'').\35\ The IG provides a standard mechanism for health IT to submit 
knowledge requests to knowledge resources over the HTTP protocol using 
a standard URL format.
---------------------------------------------------------------------------

    \33\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=208.
    \34\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=283.
    \35\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=22.
---------------------------------------------------------------------------

    We propose to adopt the updated Infobutton standard with the SOA 
Release 1 IG at Sec.  170.204(b)(3). We propose to adopt the updated 
Infobutton standard with the URL-based Release 4 IG at Sec.  
170.204(b)(4). We clarify that as proposed, a Health IT Module 
presented for certification would need to demonstrate the ability to 
electronically identify for a user diagnostic and therapeutic reference 
information in accordance with Sec.  170.204(b)(3) or (b)(4) (i.e., 
Infobutton and the SOA Release 1 IG or Infobutton and the URL-based 
Release 4 IG).
    For certification to the 2014 Edition CDS criterion, we permit a 
health IT to be certified if it can electronically identify for a user 
diagnostic and therapeutic reference information using the Infobutton 
standard or another method (Sec.  170.314(a)(8)(ii)). For the 2015 
Edition CDS criterion, we propose to require that a Health IT Module 
must be able to identify linked referential CDS information using the 
Infobutton standard only, as we believe this is the best consensus-
based standard available to support this use case. We have taken this 
approach because certification focuses on the capabilities health IT 
can demonstrate (where applicable, according to specific standards) and 
not on how it is subsequently used. Thus, with this focus we believe we 
can refrain from continuing a regulatory requirement (i.e., requiring 
``another method'' for certification) from the 2014 Edition to the 2015 
Edition.
    For the proposed 2015 Edition ``patient-specific education 
resources'' certification criterion discussed later in this section of 
the preamble, we propose, for the purposes of certification, to require 
that a Health IT Module be able to request patient-specific education 
resources based on a patient's preferred language. We believe this 
capability would assist providers in addressing and mitigating certain 
health disparities. We solicit comment on whether we should require 
this functionality as part of the CDS certification criterion for 
reference materials identified using the Infobutton standards, 
including examples of use cases for which this functionality would be 
appropriate. We note that if should require a Health IT Module to be 
able to request patient-specific education resources based on a 
patient's preferred language as part of the CDS criterion, the 
availability of resources in a patient's preferred language depends on 
the material supported by the content provider. Therefore, to clarify, 
testing and certification would focus on the ability of the Health IT 
Module to make the request using a preferred language and Infobutton.
CDS Intervention Response Documentation
    We solicited comment in the Voluntary Edition proposed rule on 
whether a Health IT Module should be able to record users' responses to 
the DD/DAI checks that are performed,

[[Page 16821]]

including if and when the user viewed, accepted, declined, ignored, 
overrode, or otherwise commented on the product of a DD/DAI check. We 
also received comments recommending we broaden our consideration to 
include functionality for recording user responses for all CDS 
interventions. We believe that this functionality could be valuable for 
all CDS interventions, not solely DD/DAI checks, because it could 
assist with enhancing CDS intervention design and implementation, 
quality improvement, and patient safety.
    As such, we propose that the CDS criterion include functionality at 
Sec.  170.315(a)(10)(vi) that would require a Health IT Module to be 
able to record at least one action taken and by whom when a CDS 
intervention is provided to a user (e.g., whether the user viewed, 
accepted, declined, ignored, overrode, provided a rationale or 
explanation for the action taken, took some other type of action not 
listed here, or otherwise commented on the CDS intervention). We also 
propose that a Health IT Module be able to generate either a human 
readable display or human readable report of the responses and actions 
taken and by whom when a CDS intervention is provided.
    We note that we do not believe that a Health IT Module's ability to 
record user responses should increase provider burden in order to just 
meet this criterion. For example, we would not encourage 
implementations that would unnecessarily (e.g., for a non-clinical or 
safety-related reason) interrupt a provider's workflow and require the 
provider to document the reason just to meet this criterion. Rather, we 
encourage health IT developers to leverage current best practices for 
presenting, documenting, and facilitating the safest and most 
appropriate clinical options in response to CDS interventions.
Clarifying ``Automatically'' and ``Triggered'' Regulatory Text
    CDS can include a broad range of decision support interventions and 
are not solely limited to alerts. Our 2014 Edition ``CDS'' criterion 
uses the terms ``automatically'' and ``triggered'' when referencing 
interventions. The use of ``trigger'' and ``automatic'' can be 
associated with CDS rules or alerts, but may not encompass all kinds of 
CDS interventions. For example, CDS could be seamlessly presented in 
the user interface (e.g., a dashboard display) or selected by the user 
within the workflow (e.g., Infobutton or documentation flowsheets). The 
use of ``automatically'' and ``trigger'' as related to CDS 
interventions in the 2014 Edition ``CDS'' caused confusion as to what 
types of CDS interventions were permitted. To clarify, our intent is to 
encompass all types of CDS interventions without being prescriptive on 
how the interventions are deployed (e.g., automatic, triggered, 
selected, seamless, or queried). As such, we are not using the terms 
``automatically'' and ``trigger'' as related to CDS interventions in 
the regulatory text for this 2015 Edition certification criterion. 
However, we do not propose to change the regulatory text language in 
the 2014 Edition ``CDS'' certification criterion as current testing and 
certification under the ONC Health IT Certification Program permits the 
other types of interventions we have described above.
2014 Edition ``Clinical Decision Support'' Certification Criterion--
Corrections
    We propose to revise the cross-reference in Sec.  
170.314(a)(8)(iii)(B)(2) (CDS configuration) to more specifically 
cross-reference the 2014 ToC criterion (Sec.  170.314(b)(1)(iii)(B)). 
This more specific cross reference aligns with the our other proposed 
revision to this criterion, which is to add a cross-reference to Sec.  
170.314(b)(9)(ii)(D). We inadvertently omitted the cross-reference to 
Sec.  170.314(b)(9)(ii)(D) in the 2014 Edition Release 2 final rule. 
These revised cross-references would more clearly indicate that health 
IT certified to the 2014 Edition CDS criterion would need to enable CDS 
interventions when a patient's medications, medication allergies, and 
problems are incorporated from a transition of care/care referral 
summary.
     Drug Formulary and Preferred Drug List Checks

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(11) (Drug-formulary and preferred drug list checks)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``drug formulary checks and 
preferred drug list'' certification criterion that is revised in 
comparison to the 2014 Edition ``drug formulary checks'' certification 
criterion (Sec.  170.314(a)(10)). We propose a criterion that is split 
based on drug formularies and preferred drug lists. For drug 
formularies, we propose that a Health IT Module must (1) automatically 
check whether a drug formulary exists for a given patient and 
medication and (2) receive and incorporate a formulary and benefit file 
according to the NCPDP Formulary and Benefit Standard v3.0 (``v3.0''). 
We propose to adopt v3.0 at Sec.  170.205(n)(1), but also solicit 
comment on more recent versions of the NCPDP Formulary and Benefit 
Standard. For preferred drug lists, we propose that a Health IT Module 
must automatically check whether a preferred drug list exists for a 
given patient and medication. This situation applies where the health 
IT system does not use external drug formularies, such as in a hospital 
health IT system. We also propose, for both drug formularies and 
preferred drug lists, that a Health IT Module be capable of indicating 
the last update of a drug formulary or preferred drug list as part of 
certification to this criterion. We believe that health IT should 
indicate the last update of the drug formulary or preferred drug list 
so the provider knows how recently the information was last updated. We 
also solicit comment on the best standard for individual-level, real-
time formulary benefit checking to address the patient co-pay use case, 
and whether we should offer health IT certification to the standard for 
this use case.
    As described in more detail in the Voluntary Edition proposed rule 
(79 FR 10892), CMS finalized a proposal to recognize NCPDP Formulary 
and Benefit Standard v3.0 as a backwards compatible version of NCPDP 
Formulary and Benefit Standard 1.0 for the period of July 1, 2014 
through February 28, 2015, and to retire version 1.0 and adopt version 
3.0 as the official Part D e-Prescribing standard on March 1, 2015 (78 
FR 74787-74789). In response to the Voluntary Edition proposed rule, we 
received comments supporting adoption of the NCPDP Formulary and 
Benefit Standard v3.0 (``v3.0'') for this edition of certification 
criteria. Those commenters in support of adopting v3.0 noted the 
potential to reduce file sizes, which is beneficial when checking 
thousands of drug formularies on a daily basis. We agree with those 
commenters that v3.0 is the best available option for standardizing the 
implementation of drug-formulary checks in health IT and for its 
potential to reduce file sizes. As noted above, the adoption of v3.0 
would also align with CMS' adoption of version 3.0 as the official Part 
D e-Prescribing standard beginning March 1, 2015.
    We are aware that more recent versions of the NCPDP Formulary and 
Benefit Standard. Versions 4.0 (``v4.0'') (January 2013), 4.1 
(``v4.1'') (October 2013), and 42 (October 2014) (``v42'') \36\ have 
been published and are available for industry use. At the time of this

[[Page 16822]]

proposed rule, we understand that the NCPDP is currently developing and 
balloting Version 43 (``v43''). Version 4.0 has minor changes compared 
to v3.0, including removal of values from an unused diagnosis code, 
typographical corrections, and a change to the standard length of the 
name field. Version 4.1 removes files to support electronic prior 
authorization (ePA) transactions since these have been added to the 
NCPDP SCRIPT Standard Implementation Guide v2013011 (January 2013) and 
later versions, makes typographical corrections, adds a new coverage 
type for ePA routing, and adds an RxNorm qualifier to some data 
elements. V42 includes changes to reduce the file size. Stakeholder 
feedback has indicated that v4.0, v4.1, and v42 are backwards 
compatible with v3.0 for the elements that are the same as compared to 
v3.0.
---------------------------------------------------------------------------

    \36\ Please note a change to the naming convention to Version 42 
and Version 43, as NCPDP accepted a change request to remove the 
period in version numbering.
---------------------------------------------------------------------------

    We received mixed comments in response to the Voluntary Edition 
proposed rule on whether it is more appropriate to adopt v4.0 instead 
of v3.0 (79 FR 54454). Some commenters were concerned about known 
problems with v3.0 and indicated v4.0 could fix these known problems. 
Conversely, other commenters stated that v4.0 was too unstable and new 
for an edition of certification criteria that was anticipated to be 
adopted and in use in 2014. With these comments in mind, we solicit 
comment on whether we should adopt v4.0, v4.1, or v42 of the NCPDP Drug 
and Formulary Benefit Standard instead of v.3.0 for the proposed 2015 
Edition ``drug formulary checks and preferred drug list'' criterion and 
what unintended impacts this could have on the industry given the Part 
D requirements.
    We believe there is value in certifying that health IT is able to 
receive and incorporate a formulary and benefit file in accordance with 
the NCPDP Formulary and Benefit Standard v3.0. Systems would be able to 
incorporate more updated or complete formulary and benefit files to 
inform providers as they make determinations about which medications to 
prescribe their patients. We seek to understand the potential system 
burden in incorporating formulary and benefit files and, therefore, 
seek comment on this issue.
    In the Voluntary Edition proposed rule, we noted that the NCPDP 
Formulary and Benefit Standard v3.0 did not address individual-level, 
real-time formulary benefit checking. Comments in response to the 
Voluntary Edition proposed rule noted that the ASC X12 270/271 Health 
Care Eligibility Benefit Inquiry and Response standard could perform 
individual-level, real-time formulary benefit checking in addition to 
the NCPDP Telecommunication Standard. Commenters also noted that e-
prescribing networks could provide this service to customers within 
proprietary networks. We are aware of a recently established NCPDP task 
group that is defining potential use cases and business requirements 
for real-time benefit checking.
    We continue to believe in the value of providers and patients 
knowing what the patient's cost sharing responsibilities are at the 
point of care for a given medication to inform discussions about a 
patient's care. Therefore, for this use case, we ask commenters to 
identify the best standard(s) for individual-level, real-time (at the 
point of care) formulary benefit checking and describe how the standard 
addresses this use case. We also solicit comment on whether we should 
offer certification for this use case using the appropriate standard 
for individual-level, real-time formulary benefit checking and whether 
it should be part of the 2015 Edition ``drug formulary and preferred 
drug list checks'' certification criterion or a standalone 
certification criterion.
     Smoking Status

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(12) (Smoking status)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``smoking status'' certification 
criterion that is revised in comparison to the 2014 Edition ``smoking 
status'' criterion (Sec.  170.314(a)(11)). We propose that a Health IT 
Module must be able to record, change, and access smoking status in any 
of the available codes for smoking status in, at a minimum, the 
September 2014 Release of the U.S. Edition of SNOMED CT[supreg].\37\ We 
have taken this more flexible approach because there is no longer a 
proposed meaningful use objective and measure associated with this 
requirement and, thus, no specific requirement for certain codes to be 
used toward numerator calculation.
---------------------------------------------------------------------------

    \37\ We refer readers to section III.A.2.d (``Minimum 
Standards'' Code Sets) for further discussion of our adoption of 
SNOMED CT[supreg] as a minimum standards code set and our proposal 
to adopt the September 2014 Release (U.S. Edition), or potentially a 
newer version if released before a subsequent final rule, as the 
baseline for certification to the 2015 Edition.
---------------------------------------------------------------------------

    We note, however, that the 8 smoking status SNOMED CT[supreg] codes 
identified in Sec.  170.207(h) \38\ remain the same codes as identified 
for the 2014 Edition. They are also the value set included in the 
Common Clinical Data Set for the 2015 Edition and the only codes 
permitted for representing smoking status for electronic transmission 
in a summary care record for the purposes of certification. Therefore, 
a Health IT Module certified to certification criteria that reference 
the Common Clinical Data Set (i.e., the ToC, data portability, VDT, 
Consolidated CDA creation performance, and application access to the 
Common Clinical Data Set certification criteria) would need to be able 
to code smoking status in only the 8 smoking status codes, which may 
mean mapping other smoking status codes to the 8 codes.
---------------------------------------------------------------------------

    \38\ These 8 codes are: Current every day smoker, 449868002; 
current some day smoker, 428041000124106; former smoker, 8517006; 
never smoker, 266919005; smoker--current status unknown, 77176002; 
unknown if ever smoked, 266927001; heavy tobacco smoker, 
428071000124103; and light tobacco smoker, 428061000124105.
---------------------------------------------------------------------------

    We also note that we would not expect the user interface to include 
a drop-down menu of all available SNOMED CT[supreg] smoking status 
codes, as we believe doing so could have negative workflow effects. 
Rather, we expect that health IT developers and health care providers 
would work together to establish the appropriate implementation given 
the care setting.
    We propose to include the 2015 Edition ``smoking status'' 
certification criterion in the 2015 Edition Base EHR definition. Please 
see section III.B.1 of this preamble for further discussion of this 
associated proposal.
     Image Results

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(13) (Image results)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``image results'' certification 
criterion that is unchanged in comparison to the 2014 Edition ``image 
results'' criterion (Sec.  170.314(a)(12)).
     Family Health History

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(14) (Family health history)
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(15) (Family health history--pedigree)
------------------------------------------------------------------------

    We propose to adopt two 2015 Edition ``family health history'' 
(FHH) certification criteria. Both proposed criteria are revised in 
comparison to the 2014 Edition FHH certification criterion (Sec.  
170.314(a)(13)). The proposed 2015 Edition FHH certification criterion 
at Sec.  170.315(a)(14) would require

[[Page 16823]]

technology to enable a user to record, change, and access a patient's 
FHH electronically according to, at a minimum, the concepts or 
expressions for familial conditions included in the September 2014 
Release of the U.S. Edition of SNOMED CT[supreg]. We refer readers to 
section III.A.2.d (``Minimum Standards'' Code Sets) for further 
discussion of our adoption of SNOMED CT[supreg] as a minimum standards 
code set and our proposal to adopt the September 2014 Release (U.S. 
Edition), or potentially a newer version if released before a 
subsequent final rule, as the baseline for certification to the 2015 
Edition.
    The proposed 2015 Edition FHH--pedigree certification criterion at 
Sec.  170.315(a)(15) would require technology to enable a user to 
create and incorporate a patient's FHH according to HL7 Pedigree 
standard and the HL7 Pedigree IG, HL7 Version 3 Implementation Guide: 
Family History/Pedigree Interoperability, Release 1.\39\ We believe 
that this approach gives the most flexibility to health IT developers 
and providers to develop, adopt, and implement technology that supports 
their clinical documentation needs, while still enabling 
interoperability. For example, some providers may only need technology 
that supports FHH coding in SNOMED CT[supreg]. Other providers may also 
want technology that supports genomic coding, which HL7 Pedigree can 
support. The adoption of two separate criteria can more effectively 
support different use cases and clearly identify the capabilities to 
which health IT has been certified.
---------------------------------------------------------------------------

    \39\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=301.
---------------------------------------------------------------------------

    As part of the 2014 Edition final rule, we incorrectly assigned the 
HL7 Pedigree standard to Sec.  170.207 where we adopt ``vocabulary'' 
standards. Accordingly, for the 2015 Edition, we have placed the HL7 
Pedigree standard and its IG in Sec.  170.205(m)(1) to more accurately 
place it in the ``content'' exchange standards section of the CFR.
     Patient List Creation

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(16) (Patient list creation)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``patient list creation'' 
certification criterion that is unchanged in comparison to the 2014 
Edition ``patient list creation'' criterion (Sec.  170.314(a)(14)). We 
propose to incorporate our guidance provided in FAQ 39 \40\ into the 
2015 Edition ``patient list creation'' criterion. Specifically, the 
text of the 2015 Edition ``patient list creation'' certification 
criterion provides that a Health IT Module must demonstrate its 
capability to use at least one of the more specific data categories 
included in the ``demographics'' certification criterion (Sec.  
170.315(a)(5)) (e.g., sex or date of birth).
---------------------------------------------------------------------------

    \40\ http://www.healthit.gov/policy-researchers-implementers/39-question-04-13-039.
---------------------------------------------------------------------------

     Patient-Specific Education Resources

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(17) (Patient-specific education resources)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``patient-specific education 
resources'' certification criterion that is revised in comparison to 
the 2014 Edition ``patient-specific education resources'' certification 
criterion (Sec.  170.314(a)(15)). We propose that certification would 
only focus on the use of Infobutton for this certification criterion 
instead of Infobutton and any means other than Infobutton as required 
by the 2014 Edition criterion. We have reviewed the regulatory burden 
posed by the 2014 Edition criterion and determined that there is 
diminished value in continuing to frame the 2015 Edition certification 
criterion in this way. We continue to believe, however, that the 
Infobutton capability is important to be available to providers to have 
and use to identify patient-specific education resources.
    We propose to adopt the updated Infobutton standard (Release 2 and 
the associated updated IGs (SOA-based IG and URL-based IG)). These are 
discussed in more detail under the ``CDS'' certification criterion 
earlier in this section of the preamble. We also note that we no longer 
include a requirement that health IT be capable of electronically 
identifying patient-specific education resources based on ``laboratory 
values/results.'' We understand from stakeholder feedback on the 2014 
Edition version of this criterion and our own research that the 
Infobutton standard cannot fully support this level of data 
specificity. For example, Infobutton could likely provide something 
useful for results that are a concept like ``E.coli,'' but not 
necessarily a numerical laboratory result.
    We also propose that a Health IT Module be able to request patient-
specific education resources based on a patient's preferred language as 
this would assist providers in addressing and mitigating certain health 
disparities. More specifically, we propose that a Health IT Module must 
be able to request that patient-specific education resources be 
identified (using Infobutton) in accordance with RFC 5646. We are 
aware, however, that Infobutton only supports a value set of ISO 639-1 
for preferred language and, therefore, testing and certification of 
preferred language for this certification criterion would not go beyond 
the value set of ISO 639-1. To note, we also understand that the 
language of patient education resources returned through Infobutton is 
dependent on what the source can support. Thus, we reiterate that 
testing and certification would focus on the ability of the Health IT 
Module to make the request using a preferred language and Infobutton.
     Electronic Medication Administration Record

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(18) (Electronic medication administration record)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition electronic medication 
administration record (eMAR) certification criterion that is unchanged 
in comparison to the 2014 Edition ``eMAR'' criterion (Sec.  
170.314(a)(16)).
     Patient Health Information Capture

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(19) (Patient health information capture)
------------------------------------------------------------------------

    We propose to adopt a new 2015 Edition ``patient health information 
capture'' certification criterion that would ``replace'' the 2014 
Edition ``advance directives'' certification criterion (Sec.  
170.314(a)(17)) for the purposes of certification to the 2015 Edition. 
The HITPC recommended, as part of their EHR Incentive Programs Stage 3 
recommendations, that we adopt a certification criterion for ``advance 
directives'' that would require a Health IT Module to be capable of 
storing an advance directive and/or including more information about 
the advance directive, such as a link to the advance directive or 
instructions regarding where to find the advance directive or more 
information about it.\41\ We agree with this recommendation in that 
more functionality should be demonstrated for certification as it 
relates to advance directives. Further, we believe that the 
functionality described by the HITPC can be more broadly applicable 
and, thus, have named this certification criterion to reflect 
functionality that can be applied to various patient health information 
documents. For example,

[[Page 16824]]

we believe such capabilities could be applicable to birth plans as well 
as advance directives.
---------------------------------------------------------------------------

    \41\ http://www.healthit.gov/facas/sites/faca/files/HITPC_MUWG_Stage3_Recs_2014-04-01.pdf.
---------------------------------------------------------------------------

    For certification to this criterion, we propose that a Health IT 
Module would need to properly identify health information documents for 
users (e.g., label health information documents as advance directives 
and birth plans). A Health IT Module would also need to be able to 
demonstrate that it could enable a user to record (capture and store) 
and access (ability to examine or review) health information documents.
    We further propose that a Health IT Module would need to be able to 
reference health information documents, which means providing narrative 
information on where to locate a specific health information document. 
A Health IT Module would also need to demonstrate that it can link to 
patient health information documents. ``Linking'' would require a 
Health IT Module to demonstrate it could link to an internet site 
storing a health information document. While an intranet link to a 
health information document might suffice for provider use, a Health IT 
Module would still need to demonstrate the ability to link to an 
external site via the internet for the purposes of certification.
    We also propose that a Health IT Module would be required to 
demonstrate that it could enable a user to record and access 
information directly and electronically shared by a patient. This could 
come from multiple sources, including patient information provided 
directly from a mobile device. To note, we have not proposed any 
specific standards for this criterion related to receiving and 
accepting information directly and electronically shared by a patient.
    We clarify that these capabilities may not be applicable to every 
patient health information document, but a Health IT Module would need 
to be able to perform all of these capabilities electronically for 
certification to this criterion.
     Implantable Device List

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(20) (Implantable device list)
------------------------------------------------------------------------

    We propose to adopt a new 2015 Edition certification criterion 
focused on the ability of a Health IT Module to record, change, and 
access a list of unique device identifiers (UDIs) \42\ corresponding to 
a patient's implantable devices (``implantable device list''), parse 
certain data from a UDI, retrieve the ``Device Description'' attribute 
associated with a UDI in the Global Unique Device Identification 
Database (GUDID), and make accessible to a user both the parsed and 
retrieved data. The proposed criterion represents a first step towards 
enabling health IT to facilitate the widespread availability and use of 
unique device identifiers to prevent device-related adverse events, 
enhance clinical decision-making related to devices, improve the 
ability of clinicians to respond to device recalls and device-related 
safety information, and achieve other important benefits, consistent 
with the fundamental aims of the HITECH Act \43\ and the HHS Health IT 
Patient Safety Action and Surveillance Plan.\44\
---------------------------------------------------------------------------

    \42\ A UDI is a unique numeric or alphanumeric code that 
consists of two parts: (1) a device identifier (DI), a mandatory, 
fixed portion of a UDI that identifies the labeler and the specific 
version or model of a device, and (2) a production identifier (PI), 
a conditional, variable portion of a UDI that identifies one or more 
of the following when included on the label of a device: the lot or 
batch number within which a device was manufactured; the serial 
number of a specific device; the expiration date of a specific 
device; the date a specific device was manufactured; the distinct 
identification code required by 21 CFR 1271.290(c) for a human cell, 
tissue, or cellular and tissue-based product (HCT/P) regulated as a 
device. http://www.fda.gov/MedicalDevices/DeviceRegulationandGuidance/UniqueDeviceIdentification/.
    \43\ Specifically, the certification criterion supports the 
National Coordinator's responsibility under the HITECH Act to ensure 
that the nation's health IT infrastructure supports activities that 
reduce medical errors, improve health care quality, improve public 
health activities, and facilitate the early identification and rapid 
response to public health threats and emergencies. 42 U.S.C. 300jj-
11(b)(2) & (7).
    \44\ ONC, HHS Health IT Patient Safety Action and Surveillance 
Plan (July 2013), http://www.healthit.gov/policy-researchers-implementers/health-it-and-patient-safety (hereinafter ``Health IT 
Safety Plan''). The first objective of the Health IT Safety Plan is 
to use health IT to make care safer. See id. at 7. The Plan 
specifically contemplates that ONC will update its standards and 
certification criteria to improve safety-related capabilities and 
add new capabilities that enhance patient safety.
---------------------------------------------------------------------------

    FDA issued the Unique Device Identification System final rule on 
September 24, 2013.\45\ The rule implements a statutory directive to 
establish a ``unique device identification system'' for medical devices 
that will enable adequate identification of devices through 
distribution and use.\46\ It accomplishes this objective by requiring 
device labelers (usually the device manufacturer) to include a UDI on 
the label and packages of most medical devices subject to FDA 
jurisdiction. In addition, for each device with a UDI, the labeler must 
submit a standard set of identifying data elements to the FDA-
administered GUDID, which will be publicly accessible.\47\ Full 
implementation of the UDI system for devices that are implantable, 
life-saving, and life-sustaining is required by September 2015.\48\
---------------------------------------------------------------------------

    \45\ 78 FR 58786.
    \46\ 21 U.S.C. 360i(f).
    \47\ See FDA, Global Unique Device Identification Database 
(GUDID) Guidance for Industry and Food and Drug Administration Staff 
(June 27, 2014), available at http://www.fda.gov/downloads/MedicalDevices/DeviceRegulationandGuidance/GuidanceDocuments/UCM369248.pdf.
    \48\ Pursuant to 21 U.S.C. 360i(f), FDA must implement the 
Unique Device Identification System Final Rule with respect to 
devices that are implantable, life-saving, and life sustaining not 
later than 2 years after the rule was finalized. Other 
implementation and compliance dates are detailed in the final rule. 
Compliance dates for UDI implementation will be phased in based on 
the existing risk-based classification of medical devices: September 
2014 for devices classified by FDA at the highest risk level (Class 
III); September 2015 for implantable, life-supporting or life-
sustaining devices; September 2016 for moderate risk (Class II) 
devices; and September 2018 for low risk (Class I) devices.
---------------------------------------------------------------------------

    We first proposed to adopt a certification criterion for 
implantable devices in the Voluntary Edition proposed rule (79 FR 
10894). We received a large volume of comments on our proposal, many of 
which supported the adoption of a UDI-related certification criterion 
focused on implantable device list functionality. Some supporters of 
our proposal suggested that we wait to adopt it in our next rulemaking 
cycle in order to allow relevant standards and use cases to mature. 
Other commenters, mostly health IT developers, suggested that the 
proposed criterion would be applicable only to health IT systems 
designed for surgical or specific inpatient settings in which devices 
are implanted, and therefore suggested that we reduce the scope of the 
criterion to those settings.\49\ For the reasons stated in the 2014 
Edition Release 2 final rule,\50\ we finalized only a small subset of 
the criteria we had originally proposed in the Voluntary Edition 
proposed rule. These criteria focused on adding flexibility and making 
improvements to the 2014 Edition. Consistent with this reduced scope, 
we did not finalize an implantable device list criterion at that time, 
stating instead our intention to propose such a criterion in our next 
rulemaking that would provide additional detail and clarity, as well as 
respond to concerns raised by commenters.
---------------------------------------------------------------------------

    \49\ For a detailed summary of the comments we received on our 
earlier implantable device list proposal, see the 2014 Edition, 
Release 2, final rule (79 FR 54458).
    \50\ 79 FR 54458.
---------------------------------------------------------------------------

    We continue to believe that incorporating UDIs in health IT is 
important and necessary to realize the significant promise of UDIs and 
FDA's

[[Page 16825]]

Unique Device Identification System to protect patient safety and 
improve health care quality and efficiency. Crucially, recording and 
exchanging UDIs in patients' electronic health records would enable 
this information to travel with patients as they move among providers 
and throughout the health care system. With access to this information 
at the point of care, clinicians can accurately identify a patient's 
implantable devices and prevent adverse events resulting from 
misidentification or non-identification of the device and its 
associated safety characteristics (such as MRI compatibility and latex 
content). Health IT could also be leveraged in conjunction with 
automated identification and data capture (AIDC) or other technologies 
to streamline the capture and exchange of UDIs and associated data for 
patients' devices. As UDIs become ubiquitous, UDI capabilities in 
health IT could facilitate better post-market surveillance of devices, 
better and more accurate reporting of device-related events, and more 
effective corrective and preventative action in response to device 
recalls and alerts.
    Fully implementing UDIs will take time and require addressing a 
number of challenges. A key challenge is that UDIs may initially be 
captured in any of a variety of clinical, inventory, registry, or other 
IT systems. Robust adoption and use of UDIs will require bridging these 
different components and changing IT and administrative processes to, 
among other things, ensure that UDIs are properly captured and 
associated with patients' electronic health records.
    In December 2014, the Brookings Institution with collaboration from 
FDA published a detailed roadmap for effective UDI implementation.\51\ 
Significantly, the roadmap's recommendations stated that ``while the 
path to full implementation is complex, there are relatively 
straightforward steps that can be done now'' to begin realizing the 
benefits of UDI implementation across the health care system. The 
roadmap's recommendations specifically urged ONC to support the 
incorporation of UDIs into certification criteria for health IT.
---------------------------------------------------------------------------

    \51\ The Brookings Institution, Unique Device Identifiers 
(UDIs): A Roadmap for Effective Implementation (December 2014) 
(available at http://www.brookings.http://www.brookings.edu/~/media/
research/files/papers/2014/12/
05%20medical%20device%20tracking%20system/udi%20final%2012052014).
---------------------------------------------------------------------------

    We agree that a key initial step towards solving these challenges 
is incorporating UDIs in certified health IT. We believe now is the 
appropriate time to take that first step. Major efforts have been 
underway for some time to harmonize and pilot health IT standards and 
specifications in support of a variety of UDI use cases, and 
substantial progress has been achieved to standardize the electronic 
exchange of UDIs.\52\ In addition, FDA plans to implement the GUDID in 
early 2015 and require UDIs for all implantable devices by September 
2015.\53\ In light of this progress on technical standards and FDA's 
timeline for UDI implementation, we believe it is feasible for health 
IT developers to begin implementing the baseline functionality 
necessary to use and exchange UDIs, and in particular for UDIs 
associated with patient's implantable devices. Once implanted, these 
devices cannot be inspected with the naked eye and are therefore more 
susceptible to misidentification and resulting patient harm.
---------------------------------------------------------------------------

    \52\ For example, the Brookings Institution and FDA convened a 
UDI Implementation Work Group comprising device manufacturers, 
payers, health IT developers, academics, clinicians, and other 
stakeholders to explore opportunities and challenges associated with 
capturing UDIs in claims, identifying steps for implementation and 
integration of UDIs within EHRs and other health care IT 
infrastructure, and utilizing UDIs as a tool for improved patient 
and provider connectivity. http://www.brookings.edu/about/centers/health/projects/development-and-use-of-medical-devices/udi. The Work 
Group held a series of expert workshops and in December 2014 
published a detailed roadmap for effective UDI implementation. The 
Brookings Institution, Unique Device Identifiers (UDIs): A Roadmap 
for Effective Implementation (December 2014) (available at http://www.brookings.http://www.brookings.edu/~/media/research/files/
papers/2014/12/05%20medical%20device%20tracking%20system/
udi%20final%2012052014). Concurrently, the HL7 Technical Steering 
Committee has established a UDI Task Force to ensure that UDI is 
implemented in a consistent and interoperable manner across the 
suite of HL7 standards. See http://hl7tsc.org/wiki/index.php?title=TSC_Minutes_and_Agendas. And through an S&I 
Framework Structured Data Capture Initiative, ONC, AHRQ, FDA, and 
NLM are collaborating with industry stakeholders to include UDI data 
for devices in health IT adverse event reporting. See http://wiki.siframework.org/Structured+Data+Capture+Initiative. AHRQ has 
already incorporated UDI and associated data attributes in its 
Common Formats for adverse event reporting. See AHRQ Data 
Dictionary, Common Formats Hospital Version 1.2, at 87, available at 
https://www.psoppc.org/c/document_library/get_file?p_l_id=375680&folderId=431263&name=DLFE-15061.pdf.
    \53\ http://www.fda.gov/MedicalDevices/ResourcesforYou/Industry/ucm427496.htm; see also 21 U.S.C. 360i(f).
---------------------------------------------------------------------------

    To meet this criterion, a Health IT Module would have to enable a 
user to record, change, and access a patient's implantable device list, 
which would consist solely of one or more UDIs associated with a 
patient's implantable devices. The Health IT Module would also have to 
be able to parse the following data elements from a UDI:
     Device Identifier;
     Batch/lot number;
     Expiration date;
     Production date; and
     Serial number.
    In addition to parsing the UDI, a Health IT Module presented for 
certification would have to be able to retrieve the optional ``device 
description'' data element associated with the Device Identifier in the 
GUDID, if the data element has been populated. This could be 
accomplished using the GUDID's web interface, web services, 
downloadable module, or any other method of retrieval permitted under 
FDA's GUDID guidance.
    For each UDI in a patient's implantable device list, a Health IT 
Module presented for certification would have to enable a user to 
access the UDI and the data elements identified above (including the 
``device description,'' if it exists). Also, in addition to enabling a 
user to record and access UDIs for a patient's implantable devices and 
as noted above, a Health IT Module would be required to provide the 
capability to change UDIs from a patient's implantable device list in 
order to meet this criterion. This functionality would allow a user to 
delete erroneous or duplicative entries from a patient's implantable 
device list and update the list in the event that a device were removed 
from the patient. We seek comment on whether such functionality is 
necessary and whether there is a safer or more effective way to 
maintain the accuracy of this information.
    We believe that, in addition to capturing UDIs, health IT should 
facilitate the exchange of UDIs in order to increase the overall 
availability and reliability of information about patients' implantable 
and other devices. Therefore, we propose in a later section of this 
rule to include the 2015 Edition ``implantable device list'' 
certification criterion in the 2015 Edition Base EHR definition and 
propose to include a patient's unique device identifier(s) as data 
within the Common Clinical Data Set definition for certification to the 
2015 Edition. Please see section III.B of this preamble for further 
discussion of these associated proposals.
    We have also proposed to modify Sec.  170.102 to include new 
definitions for ``Device Identifier,'' ``Implantable Device,'' ``Global 
Unique Device Identification Database (GUDID),'' ``Production 
Identifier,'' and ``Unique Device Identifier.'' This will prevent any 
ambiguity in interpretation and ensure that each term's specific 
meaning reflects the same meaning given to them in the Unique Device 
Identification System final rule and in 21 CFR 801.3. Capitalization 
was purposefully applied

[[Page 16826]]

to each word in these defined phrases in order to signal to readers 
that they have specific meanings. Please see section III.B of this 
preamble for further discussion of these associated proposals.
    In several respects the scope of this proposed implantable device 
list criterion is narrower than the criterion we proposed in the 
Voluntary Edition proposed rule. We received comments in response to 
the Voluntary Edition proposed rule recommending clear standards and 
use cases for an ``implantable device list'' criterion. With 
consideration of these comments, unlike in the Voluntary Edition 
proposed rule, we do not propose that health IT certified to the 2015 
Edition ``implantable device list'' criterion be required to exchange 
or display contextual information (such as a procedure note) associated 
with a UDI because we believe additional standards and use case 
development will be needed to support these capabilities. We request 
comment on whether we have overlooked the need for or feasibility of 
requiring this functionality.
    We also do not propose any requirements on health IT to facilitate 
the ``capture'' of UDIs at the point of care. As discussed above, UDIs 
may initially be captured in any of a variety of clinical and non-
clinical contexts, many of which are beyond the current scope of health 
IT certified under the ONC Health IT Certification Program. Prescribing 
a requirement for capturing UDIs in certified health IT would also be 
complicated by the range of data capture tools permitted under the UDI 
final rule, including several different types of AIDC technology. 
Moreover, as several commenters pointed out in response to our proposal 
in the Voluntary Edition proposed rule, only a subset of certified 
health IT users--generally surgeons or other clinicians who perform or 
assist with operations involving implantable devices--would have a need 
for such data capture functionality, and presumably health IT 
developers who specialize in health IT for these settings can develop 
appropriate solutions for these users.
    Given the scope of our program and the current state of UDI 
adoption, we do not believe that it would be useful to address these 
``upstream'' issues at this time through rulemaking. Hence our proposal 
focuses on: (1) Ensuring that certified health IT can record and 
exchange UDIs for implantable devices as part of a patient's core 
electronic health record using appropriate standards for 
interoperability and exchange so that regardless of how UDIs are 
captured, they can be readily integrated with patients' electronic 
health records; (2) providing all users of certified health IT with the 
ability to access basic information about patients' implantable 
devices, thereby promoting greater awareness of and stimulating 
additional demand for UDIs and UDI-related capabilities in health IT; 
and (3) encouraging health IT developers to begin implementing GUDID 
functionality. We believe that focusing on these three areas of 
baseline UDI functionality will provide the greatest value to our 
stakeholders and efforts to promote adoption of UDIs and realize the 
significant benefits of UDIs and FDA's Unique Device Identification 
System described in this proposal.
     Social, Psychological, and Behavioral Data

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(21) (Social, psychological, and behavioral data)
------------------------------------------------------------------------

    We propose a new 2015 Edition ``social, psychological, and 
behavioral data'' certification criterion that would require a Health 
IT Module to be capable of enabling a user to record, change, and 
access a patient's social, psychological, and behavioral data based on 
SNOMED CT[supreg] and LOINC[supreg] codes. This would include the 
ability to record a patient's decision not to provide the information.
    An individual's health is shaped largely by life circumstances that 
fall outside the traditional health care system and include social, 
psychological, and behavioral factors. These factors include, but are 
not limited to, family support systems, stress, housing, nutrition, 
income, and education. This proposed certification criterion to further 
the collection and use of such patient data is not intended to be 
comprehensive; rather, it reflects efforts to further HHS priorities to 
transform health delivery, to reduce health disparities, and to achieve 
the overarching goals of the National Quality Strategy. In particular, 
the proposed certification criterion supports efforts to reduce 
disparities and efforts to collect patient social, psychological, and 
behavioral data for improved health care, such as by aligning with 
recommendations from HHS and the Institute of Medicine.\54\
---------------------------------------------------------------------------

    \54\ U.S. Department of Health and Human Services, Office of 
Minority Health, 2011, HHS Action Plan to Reduce Racial and Ethnic 
Disparities: A Nation Free of Disparities in Health and Health Care 
(available at: http://www.minorityhealth.hhs.gov/npa/files/Plans/HHS/HHS_Plan_complete.pdf); U.S. Department of Health and Human 
Services, Office of the Assistant Secretary for Planning and 
Evaluation, 2011, Implementation Guidance on Data Collection 
Standards for Race, Ethnicity, Sex, Primary Language, and Disability 
Status (available at: http://aspe.hhs.gov/datacncl/standards/ACA/4302/index.pdf); and Institute of Medicine (IOM), November 2014, 
Washington, DC, The National Academies Press, 2014, Capturing Social 
and Behavioral Domains and Measures in Electronic Health Records: 
Phase 2 (available at: http://iom.edu/Reports/2014/EHRdomains2.aspx).
---------------------------------------------------------------------------

    We believe that offering certification that would require a Health 
IT Module to enable a user to record, change, and access a patient's 
social, psychological, and behavioral data would assist a wide array of 
stakeholders (e.g., providers, consumers, payors, community-based 
organizations, and state and local governments) in better understanding 
how this data may adversely affect health. Ultimately, this can lead to 
better health outcomes for these populations through improved patient 
care, quality improvement, health equity, and clinical decision support 
based on individual factors.
    We also believe the self-reporting of information by individuals in 
response to the questions included in these social, psychological, and 
behavioral measures (i.e., the question and answer sets below) could be 
utilized for the EHR Incentive Programs Stage 3 which proposes an 
objective on patient engagement, including patient-generated health 
data. For more information, please refer to the EHR Incentive Programs 
Stage 3 proposed rule published elsewhere in this issue of the Federal 
Register.
    We have heard from many stakeholders recommending that we 
prioritize the use of available measures and instruments for the 
structured recording of social, psychological, and behavioral data, and 
have followed those recommendations here. The measures (questions and 
answers sets below) will have LOINC[supreg] codes (or in the case of 
sexual orientation and gender identity, SNOMED CT[supreg] codes for the 
answers--but no specific questions) used to identify them. Therefore, 
we propose, for certification to this criterion, that social, 
psychological, and behavioral data be coded in accordance with, at a 
minimum, version 2.50 of LOINC[supreg] as attributed in the table 
below.\55\ Please note that some question-answer sets for specific 
domains do not currently have a LOINC[supreg] code in place; in these 
instances it is expected that LOINC[supreg] codes will be established 
in a newer version of LOINC[supreg] prior to the

[[Page 16827]]

publication of a subsequent final rule. Please further note that we 
propose to include sexual orientation and gender identity within this 
certification criterion as described after this table.
---------------------------------------------------------------------------

    \55\ We refer readers to section III.A.2.d (``Minimum 
Standards'' Code Sets) for further discussion of our adoption of 
LOINC[supreg] as a minimum standards code set and our proposal to 
adopt version 2.50, or potentially a newer version if released 
before a subsequent final rule, as the baseline for certification to 
the 2015 Edition.

----------------------------------------------------------------------------------------------------------------
                                                                             LOINC[supreg]
                                      Question(s)          Answer(s)      Codes for question-    LOINC[supreg]
             Domain                 [LOINC[supreg]      [LOINC[supreg]        answer list       Answer list ID
                                         name]           answer code]         combination
----------------------------------------------------------------------------------------------------------------
Financial Resource Strain         How hard is it for  For example: Very   LOINC[supreg] code  LOINC[supreg] code
 (Overall financial resource       you to pay for      hard, Somewhat      pending.            pending.
 strain from CARDIA).              the very basics     hard, Not hard,
                                   like food,          at all.\56\
                                   housing, medical
                                   care, and
                                   heating? Would
                                   you say it is . .
                                   .
Education (Educational            What is the         [0] Never attended/ 63504-5...........  LL1069-5.
 attainment).                      highest level of    kindergarten only.
                                   school you have    [1] 1st grade.....
                                   completed or the   [2] 2nd grade.....
                                   highest degree     [3] 3rd grade.....
                                   you have           [4] 4th grade.....
                                   received? \57\     [5] 5th grade.....
                                                      [6] 6th grade.....
                                                      [7] 7th grade.....
                                                      [8] 8th grade.....
                                                      [9] 9th grade.....
                                                      [10] 10th grade...
                                                      [11] 11th grade...
                                                      [12] 12th grade,
                                                       no diploma.
                                                      [13] High school
                                                       graduate.
                                                      [14] GED or
                                                       equivalent.
                                                      [15] Some college,
                                                       no degree.
                                                      [16] Associate
                                                       degree:
                                                       occupational,
                                                       technical, or
                                                       vocational
                                                       program.
                                                      [17] Associate
                                                       degree; academic
                                                       program.
                                                      [18] Bachelor's
                                                       degree (e.g., BA,
                                                       AB, BS).
                                                      [19] Master's
                                                       degree (e.g., MA,
                                                       MS, MEng, MEd,
                                                       MSW, MBA).
                                                      [20] Professional
                                                       school degree
                                                       (example: MD,
                                                       DDS, DVM, JD).
                                                      [21] Doctoral
                                                       degree (example:
                                                       PhD, EdD).
                                                      [77] Refused......
                                                      [99] Don't know...
Stress (from Elo et al) \58\....  Stress means a      For example:        LOINC[supreg] code  LOINC[supreg] code
                                   situation in       Likert scale         pending.            pending.
                                   which a person      ranging from 1--
                                   feels tense,        indicating not at
                                   restless,           all, 2--a little
                                   nervous, or         bit, 3--somewhat,
                                   anxious, or is      4--quite a bit,
                                   unable to sleep     to 5--indicating
                                   at night because    very much.
                                   his/her mind is
                                   troubled all the
                                   time. Do you feel
                                   this kind of
                                   stress these
                                   days?
Depression (PHQ-2)..............  [Patient Health     N/A...............  55757-9...........  N/A.
                                   Questionnaire 2
                                   item (PHQ-2)
                                   [Reported]].
                                  Little interest or  [0] Not at all,     44250-9...........  LL358-3.
                                   pleasure in doing   [1] Several days,
                                   things in last 2    [2] More than
                                   weeks               half the days,
                                   [Reported.PHQ].     [3] Nearly every
                                                       day.
                                  Feeling down,       [0] Not at all,     44255-8...........  LL358-3.
                                   depressed or        [1] Several days,
                                   hopeless in last    [2] More than
                                   2 weeks             half the days,
                                   [Reported.PHQ].     [3] Nearly every
                                                       day.
                                  [Patient Health     For example: 0-6..  5578-7............  Answer is in UCUM
                                   Questionnaire 2                                             units.\59\
                                   item (PHQ-2)
                                   total score
                                   [Reported]].
Physical Activity (Exercise       How many days of    For example:        68515-6...........  Answer is in UCUM
 Vital Signs).                     moderate to         1,2,3,4,5,6,7,                          units.\60\
                                   strenuous           etc.
                                   exercise, like a
                                   brisk walk, did
                                   you do in the
                                   last 7 days?
                                   [SAMHSA].
                                  On those days that  For example: 10,    68516-4...........  Answer is in UCUM
                                   you engage in       20, etc.                                units.
                                   moderate to
                                   strenuous
                                   exercise, how
                                   many minutes, on
                                   average, do you
                                   exercise?
                                   [SAMHSA].
Alcohol Use (AUDIT-C)...........  [Alcohol Use        N/A...............  72109-2...........  N/A.
                                   Disorder
                                   Identification
                                   Test--Consumption
                                   [AUDIT-C].

[[Page 16828]]

 
                                  How often do you    [a] Never.........  68518-0...........  LL2179-1.
                                   have a drink       [b] Monthly or
                                   containing          less.
                                   alcohol? [SAMHSA]. [c] 2-4 times a
                                                       month.
                                                      [d] 2-3 times a
                                                       week.
                                                      [e] 4 or more
                                                       times a week.
                                  How many standard   [a] 1 or 2........  68519-8...........  LL2180-9.
                                   drinks containing  [b] 3 or 4........
                                   alcohol do you     [c] 5 or 6........
                                   have on a typical  [d] 7 to 9........
                                   day? [SAMHSA].     [e] 10 or more....
                                  How often do you    [a] Never.........  68520-6...........  LL2181-7.
                                   have six or more   [b] Less than
                                   drinks on one       monthly.
                                   occasion?          [c] Monthly.......
                                   [SAMHSA].          [d] Weekly........
                                                      [e] Daily or
                                                       almost daily.
                                  [Total score        N/A \61\..........  ..................  N/A.
                                   [AUDIT-C]].
Social Connection and Isolation   Are you married or  For example, these  LOINC[supreg] code  LOINC[supreg] code
 (NHANES III).                     living together     categories form     pending.            pending.
                                   with someone in a   an ordinal scale
                                   partnership at      assessing the
                                   the time of         number of types
                                   questioning?        of social
                                  In a typical week,   relationships on
                                   how many times do   which a person is
                                   you talk on the     connected and not
                                   telephone with      isolated, and has
                                   family, friends,    standard scoring.
                                   or neighbors?.      Individuals
                                  How often do you     receive one point
                                   get together with   for each of the
                                   friends or          following: Being
                                   relatives?.         married or living
                                  How often do you     together with
                                   attend church or    someone in a
                                   religious           partnership at
                                   services?.          the time of
                                  How often do you     questioning,
                                   attend meetings     averaging three
                                   of the clubs or     or more social
                                   organizations you   interactions per
                                   belong to?.         week (assessed
                                                       with questions
                                                       one and two,
                                                       above), reporting
                                                       attending church
                                                       or other
                                                       religious
                                                       services more
                                                       than four times
                                                       per year
                                                       (assessed with
                                                       question three,
                                                       above), and
                                                       reporting that
                                                       they belong to a
                                                       club or
                                                       organization
                                                       (assess with
                                                       question four,
                                                       above). A score
                                                       of 0 represents
                                                       the highest level
                                                       of social
                                                       isolation and a
                                                       score of 4
                                                       represents the
                                                       lowest level of
                                                       social isolation.
                                                       \62\
Exposure to violence: Intimate    Within the last     Pending...........  LOINC[supreg] code  LOINC[supreg] code
 partner violence (HARK 4Q).       year, have you                          pending.            pending.
                                   been humiliated
                                   or emotionally
                                   abused in other
                                   ways by your
                                   partner or ex-
                                   partner?
                                  Within the last                                             ..................
                                   year, have you
                                   been afraid of
                                   your partner or
                                   ex-partner?
                                  Within the last                                             ..................
                                   year, have you
                                   been raped or
                                   forced to have
                                   any kind of
                                   sexual activity
                                   by your partner
                                   or ex-partner?
                                  Within the last                                             ..................
                                   year, have you
                                   been kicked, hit,
                                   slapped, or
                                   otherwise
                                   physically hurt
                                   by your partner
                                   or ex-partner?
----------------------------------------------------------------------------------------------------------------

    We propose to require that a Health IT Module enable a user to 
record, change, and access a patient's sexual orientation and gender 
identity as part of this certification criterion. We propose that 
sexual orientation be coded in accordance with, at a minimum, the 
September 2014 Release of the U.S. Edition of SNOMED CT[supreg] \63\ 
and HL7 Version 3 attributed as follows:
---------------------------------------------------------------------------

    \56\ The answer is then scored from a scale of 1 (very hard) to 
3 (not at all), and unknown answers are scored as a negative number.
    \57\ LOINC[supreg] Component used for the table.
    \58\ Elo, A.-L., A. Lepp[auml]nen, and A. Jahkola. 2003. 
Validity of a single-item measure of stress symptoms. Scandanavian 
Journal of Work, Environment & Health 29(6):444-451.
    \59\ Note that LOINC[supreg] provides a translation table at 
https://loinc.org/downloads/usage/units that enumerates the UCUM 
syntax for a subset of UCUM codes that are commonly used in health 
IT that may be a useful reference for stakeholders.
    \60\ Note that LOINC[supreg] provides a translation table at 
https://loinc.org/downloads/usage/units that enumerates the UCUM 
syntax for a subset of UCUM codes that are commonly used in health 
IT that may be a useful reference for stakeholders.
    \61\ The Alcohol Use Disorders Identification Test C (AUDIT-C) 
is scored on a scale of 0 to 12. Each of the three AUDIT-C questions 
has 5 answer choices with points ranging from 0 to 4. A screen is 
considered positive for unhealthy alcohol use or hazardous drinking 
if the AUDIT-C score is 4 or more points for men or 3 or more points 
for women.
    \62\ Pantell et al., 2013.

[[Page 16829]]



------------------------------------------------------------------------
            Sexual orientation                          Code
------------------------------------------------------------------------
Homosexual................................  SNOMED CT[supreg] 38628009.
Heterosexual..............................  SNOMED CT[supreg] 20430005.
Bisexual..................................  SNOMED CT[supreg] 42035005.
Other.....................................  HL7 V3
                                            nullFlavor OTH.
Asked but unknown.........................  HL7 V3
                                            nullFlavor ASKU.
Unknown...................................  HL7 V3
                                            nullFlavor UNK.
------------------------------------------------------------------------

    We propose that gender identity be coded in accordance with, at a 
minimum, the September 2014 Release of the U.S. Edition of SNOMED 
CT[supreg] \64\ and HL7 Version 3 attributed as follows:
---------------------------------------------------------------------------

    \63\ We refer readers to section III.A.2.d (``Minimum 
Standards'' Code Sets) for further discussion of our adoption of 
SNOMED CT[supreg] as a minimum standards code set and our proposal 
to adopt the September 2014 Release (U.S. Edition), or potentially a 
newer version if released before a subsequent final rule, as the 
baseline for certification to the 2015 Edition.
    \64\ We refer readers to section III.A.2.d (``Minimum 
Standards'' Code Sets) for further discussion of our adoption of 
SNOMED CT[supreg] as a minimum standards code set and our proposal 
to adopt the September 2014 Release (U.S. Edition), or potentially a 
newer version if released before a subsequent final rule, as the 
baseline for certification to the 2015 Edition.

------------------------------------------------------------------------
              Gender identity                           Code
------------------------------------------------------------------------
Identifies as male gender.................  SNOMED CT[supreg]
                                            446151000124109.*
Identifies as female gender...............  SNOMED CT[supreg]
                                            446141000124107.*
Female-to-male transsexual................  SNOMED CT[supreg] 407377005.
Male-to-female transsexual................  SNOMED CT[supreg] 407376001.
Identifies as non-conforming gender.......  SNOMED CT[supreg]
                                            446131000124102.*
Other.....................................  HL7 V3
                                            nullFlavor OTH.
Asked but unknown.........................  HL7 V3
                                            nullFlavor ASKU
------------------------------------------------------------------------
* These new concepts will appear in the March 2015 release of the U.S.
  Edition of SNOMED CT[supreg] and are now viewable at https://uscrs.nlm.nih.gov/main.xhtml.

    We note that the functionality under consideration to record the 
data discussed above has no bearing on whether a patient chooses to 
provide this information or whether a health care provider chooses to 
record the information or would be required to do so through the EHR 
Incentive Programs or other programs. However, we believe the 
structured recording of these types of data as described is the best 
available method for reliably capturing and maintaining accurate 
reflections of this information. For this proposed certification 
criterion, we seek comment on whether:
     The appropriate measures have been included for the listed 
social, psychological, and behavioral data;
     There should be standardized questions associated with the 
collection of sexual orientation and gender identity data (and if so, 
what vocabulary standard would be best suited for coded these 
standardized questions);
     We should set a minimum number of data measures for 
certification (e.g., at a minimum: One, 3, or all); and
     These measures should be part of one certification 
criterion or separate certification criteria. We note that our proposal 
for an ``Open Data Certified Health IT Products List,'' as discussed in 
section IV.D.3 of this preamble, would result in more granular 
identification of certified health IT. Specific to this criterion, the 
CHPL would include information regarding each of the data measures 
(e.g., education, depression, and sexual orientation) that were 
certified as part of a Health IT Module's certification to this 
criterion.
Work Information--Industry/Occupation Data
    The Institute of Medicine identified patients' work information as 
valuable data that could be recorded by health IT and used by both 
health care providers and public health agencies.\65\ Similarly, the 
2012 HHS Environmental Justice Strategy and Implementation Plan echoed 
the potential benefits of having work information in EHR 
technology.\66\ The combination of industry and occupation (I/O) 
information provides opportunities for health care providers to improve 
patient health outcomes--for health issues wholly or partially caused 
by work and for health conditions whose management is affected by work. 
For example, ``Usual'' (longest-held) I/O information can be key for 
health care improvement and population-based health investigations, and 
is already a required data element for cancer reporting.\67\ Health 
care providers also can use current I/O information to assess symptoms 
in the context of work activities and environments, inform patients of 
risks, obtain information to assist in return-to-work determinations, 
and evaluate the health and informational needs of groups of patients.
---------------------------------------------------------------------------

    \65\ IOM (Institute of Medicine). 2011. ``Incorporating 
Occupational Information in Electronic Health Records: A Letter 
Report''. Available at: http://www.nap.edu/catalog.php?record_id=13207.
    \66\ U.S. Department of Health and Human Services. February, 
2012. 2012 HHS Environmental Justice Strategy and Implementation 
Plan. Available at: http://www.hhs.gov/environmentaljustice/strategy.html.
    \67\ CDC (2) (Centers for Disease Control and Prevention). 2012. 
Implementation Guide for Ambulatory Healthcare Provider Reporting to 
Central Cancer Registries, HL7 Clinical Document Architecture (CDA) 
Release 1.0, August 2012. Available at: http://www.cdc.gov/phin/library/guides/Implementation_Guide_for_Ambulatory_Healthcare_Provider_Reporting_to_Central_Cancer_Registries_August_2012.pdf.
---------------------------------------------------------------------------

    Since publication of the Voluntary Edition proposed rule (79 FR 
10924) in which we requested comment on I/O information for the 
purposes of certification, we have considered health IT developer 
feedback on the need to adopt consensus standards for capturing I/O 
information in health IT and continue to work with the National 
Institute for Occupational Health and Safety (NIOSH) to explore avenues 
to record I/O data in health IT. NIOSH also continues to work with 
various industry stakeholders and health IT developers to assess the 
incorporation of patient I/O fields into commercial EHRs, develop 
occupationally related CDS, and to investigate practices and systems to 
achieve accurate, automated coding of I/O information. Given the value 
of I/O information as noted above and the progress being made by NIOSH 
and others, we are making a refined request for comments as part of a 
future edition of certification criteria. We invite commenters to 
consider what additional support might be needed for health IT 
developers, implementers, and users to effectively include a 
certification criterion that would require health IT to enable a user 
to record, change, and access (all electronically) the following data 
elements in structured format:
     Patients' employment status and primary activities (e.g., 
volunteer work);
     Patients' current I/O, linked to one another and with 
time-stamp, including start date;
     Patients' usual I/O, linked to one another and with time-
stamp, including start year and duration in years; and
     Patients' history of occupation with a time and date stamp 
for when the history was collected (to note, this is focused on the 
capability to record a history, not a requirement that a history must 
be recorded or that a patient history be recorded for a certain 
historical period of time).
    We solicit public comment on the experience health IT developers 
and health care providers have had in recording, coding, and using I/O 
data. This would include any innovation that is making I/O data more 
useful for providers.
    To better understand the health care needs associated with work 
data, we specifically solicit public comment from health care 
providers, provider

[[Page 16830]]

organizations, and patients on the following:
     The usefulness for providers to be able to access current 
and usual I/O and related data in the EHR, including whether additional 
data elements, such as work schedule, are useful.
     The usefulness of a history of positions provided as 
current I/O, with data from each position time-stamped, linked, 
retained, and accessible as part of the longitudinal patient care 
(medical) record.
     Narrative text (vs. codes) for both current and usual I/O.
     CDC_Census codes for both current and usual I/O; available 
through PHIN VADS at https://phinvads.cdc.gov/vads/SearchVocab.action.
     SNOMED CT[supreg] codes for occupation (current codes or 
potentially developed codes).
     Other standards and codes that may be in use by the health 
IT industry for both current and usual I/O.
U.S. Uniformed/Military Service Data
    In the Voluntary Edition proposed rule (79 FR 10924), we outlined 
rationale for a potential certification criterion that would assess the 
capability of health IT to enable a user to record, change, and access 
U.S. military service or all uniformed service (including commissioned 
officers of the U.S. Public Health Service (USPHS) and the National 
Oceanographic and Atmospheric Administration (NOAA) as they too are 
eligible for military health services, veterans benefits, and related 
services). We reiterate the rationale here as we continue to believe it 
is persuasive for adopting such a certification criterion. In recent 
years, U.S. Military service members have been returning from service 
in Iraq and Afghanistan and other various combat duty stations. A 
portion of these service members are returning with traumatic brain 
injuries, major limb injuries, and diagnoses of post-traumatic stress 
disorder as reported by the Department of Defense and Department of 
Veterans Affairs. We believe recording U.S. uniformed/military service 
information can have many benefits. It can help in identifying 
epidemiological risks for patients such as those noted above. It can 
assist in ensuring that a patient receives all the health care benefits 
he or she is entitled to by alerting medical professionals to the 
patient's service history, which can facilitate the coordination of 
benefits. This information can also increase the ability to assemble a 
longitudinal record of care for a U.S. service member, such as by 
requesting or merging of a patient's electronic health record stored by 
the Department of Defense, Veteran's Health Administration, and/or 
another health care provider.
    In response to the request for comment on a ``U.S. uniformed/
military service'' certification criterion in the Voluntary Edition 
proposed rule, commenters indicated that vocabulary standards for 
capturing such history may not be mature enough yet. Specifically, 
commenters noted that SNOMED CT [supreg] currently has relevant codes, 
such as ``history relating to military service,'' and ``duration of 
military service,'' but not codes to cover all potential military 
service statuses, capture military service in an unambiguous way (e.g., 
capturing current employed as well as history of military service) and 
military service in foreign locales. To improve coding of military and 
all uniformed history, we believe a promising path forward would be to 
add codes to the U.S. Extension of SNOMED-CT [supreg]. Therefore, we 
request comment on the following:
     Whether a potential certification criterion should be 
focused solely on U.S. military service or all uniformed service 
members (e.g., commissioned officers of the USPHS and NOAA);
     Whether the U.S. Extension of SNOMED-CT [supreg] is the 
most appropriate vocabulary code set or whether other vocabulary code 
sets may be appropriate; and
     The concepts/values we should use to capture U.S. military 
service or all uniformed service status. We ask commenters to consider 
the work of NIOSH on I/O information as it relates to capturing 
military service.
Other Social, Psychological, and Behavioral Data
    We seek comment on whether there are additional social, 
psychological, and behavioral data that we should include for 
certification as well as the best available standards for representing 
such data.
     Decision Support--Knowledge Artifact

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(22) (Decision support--knowledge artifact)
------------------------------------------------------------------------

    We propose a new ``decision support--knowledge artifact'' 
certification criterion in the 2015 Edition for technology to 
electronically send and receive clinical decision support knowledge 
artifacts in accordance with a Health eDecisions (HeD) standard.
    A previous ONC-sponsored S&I initiative, HeD, defined two use cases 
(UC) with the goals of expressing CDS interventions in a standardized 
format for sharing (UC 1) and requesting/receiving knowledge artifacts 
from a CDS service provider (UC 2). We discuss UC 2 further in the 
proposal for a 2015 Edition ``decision support--service'' certification 
criterion in this section of the preamble. HeD UC 1 defined the 
functional requirements needed to build a standard schema for the 
contents of three ``CDS Knowledge Artifact'' \68\ types: event 
condition action (ECA) rules, order sets, and documentation 
templates.\69\ UC 1 was based on the scenario of a ``CDS Knowledge 
Artifact supplier'' making a computable CDS Knowledge Artifact 
available to a ``CDS Artifact integrator.'' For example, in accordance 
with the HeD standard, health IT could automatically integrate 
medication order sets based on best practice clinical guidelines in a 
machine-readable format without the need for human interpretation.
---------------------------------------------------------------------------

    \68\ A CDS Knowledge Artifact is the encoding of structured CDS 
content as a rule to support clinical decision making in many areas 
of the health care system, including quality and utilization 
measures, disease outbreaks, comparative effectiveness analysis, 
efficacy of drug treatments, and monitoring health trends.
    \69\ HL7 Implementation Guide: Clinical Decision Support 
Knowledge Artifact Implementation Guide, Release 1 (January 2013) 
(``HeD standard'').
---------------------------------------------------------------------------

    In the Voluntary Edition proposed rule, we proposed to adopt the 
HL7 Implementation Guide: Clinical Decision Support Knowledge Artifact 
Implementation Guide, Release 1 (January 2013) (``HeD standard'').\70\ 
We stated that the HeD standard would greatly assist the industry in 
producing and sharing machine-readable files for representations of 
clinical guidance. We did not adopt the HeD standard as we agreed with 
commenters that more clarity is needed regarding the HeD proposals (79 
FR 54453).
---------------------------------------------------------------------------

    \70\ http://wiki.siframework.org/file/detail/implementation_guide_working_final_042413_lse_uploaded-1.docx.
---------------------------------------------------------------------------

    As the HeD initiative has completed, a new S&I initiative has 
launched, the Clinical Quality Framework (CQF), which builds on the HeD 
work and expands the scope to harmonize both CDS and electronic 
clinical quality measurement (eCQM) standards. The CQF initiative has 
created an updated and more modular HeD implementation guide for 
sharing CDS artifacts, HL7 Version 3 Standard: Clinical Decision 
Support Knowledge Artifact Specification, Release 1.2 DSTU (July 
2014).\71\ The modularity allows for portions of the HeD standard 
Release 1.2 to be updated without requiring updates

[[Page 16831]]

to the entire standard. As the CQF work continues, this more recent 
standard will be leveraged heavily to produce a harmonized clinical 
quality expression language for both CDS and eCQMs.
---------------------------------------------------------------------------

    \71\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=337.
---------------------------------------------------------------------------

    We continue to believe that the HeD standard would greatly assist 
the industry in producing and sharing machine readable files for 
representations of clinical guidance. We therefore propose to adopt the 
HL7 Version 3 Standard: Clinical Decision Support Knowledge Artifact 
Specification, Release 1.2 DSTU (July 2014) (``HeD standard Release 
1.2'') at Sec.  170.204(d)(1) and offer testing and certification for 
health IT demonstrate it can electronically send and receive a CDS 
artifact formatted in the HeD standard Release 1.2.
    We solicited comment in the Voluntary Edition proposed rule on what 
we should test and certify to when it comes to testing and 
certification for acceptance and incorporation of CDS Knowledge 
Artifacts (79 FR 54453). Commenters suggested that we focus testing on 
a few types of CDS Knowledge Artifacts, but not on all possible types 
included in the HeD standard. We note that HHS is developing publicly 
available CDS interventions in HL7 draft standard formats,\72\ 
including the HeD standard Release 1.2, that will be available at 
www.ushik.org. We welcome comment on specific types of CDS Knowledge 
Artifacts on which we should focus testing and certification to the HeD 
standard Release 1.2. We also invite comments on versions of standards 
we should consider as alternative options, or for future versions of 
this certification criterion, given the ongoing work to harmonize CDS 
and quality measurement standards as discussed under the ``CQM--record 
and export'' certification criterion later in this section of the 
preamble.
---------------------------------------------------------------------------

    \72\ This site may also include CDS interventions formatted to 
the Quality Improvement and Clinical Knowledge Model (QUICK) 
standard which we discuss in the preamble for the ``Clinical quality 
measures--record and export'' certification criterion.
---------------------------------------------------------------------------

     Decision Support--Service

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(a)(23) (Decision support--service)
------------------------------------------------------------------------

    We propose a new ``decision support--service'' certification 
criterion in the 2015 Edition for technology to electronically make an 
information request with patient data and receive in return electronic 
clinical guidance in accordance with the standard in accordance with an 
HeD standard.
    A previous ONC-sponsored S&I initiative, HeD, defined two use cases 
(UC) with the goals of expressing CDS interventions in a standardized 
format for sharing (HeD UC 1) and requesting/receiving knowledge 
artifacts from a CDS service provider (HeD UC 2). We discuss HeD UC 1 
further in the proposal for a 2015 Edition ``decision support--
knowledge artifact'' certification criterion above. HeD UC 2 defines 
the interface requirements needed to send patient data and receive CDS 
guidance based on one scenario: a request for clinical guidance made to 
a CDS guidance supplier. The HeD S&I initiative considered the 
following interactions with a CDS guidance supplier: Drug dosing 
calculation; immunization forecasting; disease management; quality 
measure evaluation; transition of care support; test appropriateness 
scores (e.g., radiology tests); prediction rule evaluation (e.g., 
APACHE score, AHRQ Pneumonia Severity Index); and severity of illness 
assessment (e.g., Charlson Index). The HeD initiative created the HL7 
Implementation Guide: Decision Support Service, Release 1--US Realm 
DSTU (January 2014) (``Decision Support Service IG''),\73\ which 
defines SOAP and REST web service interfaces for CDS guidance services.
---------------------------------------------------------------------------

    \73\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=334.
---------------------------------------------------------------------------

    We proposed to adopt the Decision Support Service IG in the 
Voluntary Edition proposed rule because the implementation of this IG 
would promote systems whereby a health care provider can send a query 
about a patient to a CDS guidance supplier and receive CDS guidance 
back in near real-time. Although we received general support for 
adopting the Decision Support Service IG, we did not adopt it because 
the 2014 Edition Release 2 final rule focused on the adoption and 
revision of a small number of 2014 Edition certification criteria that 
add flexibility and make improvements to the existing set of 2014 
Edition certification criteria.
    We are aware of a more recent release of the Decision Support 
Service IG, HL7 Implementation Guide: Decision Support Service, Release 
1.1 (March 2014), US Realm DSTU Specification (``Release 1.1'').\74\ 
Release 1.1 utilizes the latest available version of the HL7 Virtual 
Medical Record specification. Given the general support we received in 
the Voluntary Edition proposed rule, we propose to adopt the HL7 
Implementation Guide: Decision Support Service, Release 1.1 (March 
2014), US Realm DSTU Specification at Sec.  170.204(e)(1) and offer 
testing and certification for health IT to demonstrate the ability to 
send and receive electronic clinical guidance according to the 
interface requirements defined in Release 1.1. We also invite comments 
on versions of standards we could consider as alternative options, or 
for future versions of this certification criterion, given the ongoing 
work to harmonize CDS and quality measurement standards as discussed 
under the ``CQM--record and export'' certification criterion later in 
this section of the preamble.
---------------------------------------------------------------------------

    \74\ http://www.hl7.org/documentcenter/public/standards/dstu/HL7_DSS_IG%20_R1_1_2014MAR.zip.
---------------------------------------------------------------------------

     Transitions of Care

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(b)(1) (Transitions of care)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition certification criterion for 
``transitions of care'' (ToC) that is a continuation and extension of 
the ToC certification criterion adopted as part of the 2014 Edition 
Release 2 final rule at Sec.  170.314(b)(8). This proposed criterion 
also reflects the corresponding structural and clarifying changes that 
we adopted in the 2014 Edition Release 2 final rule that correspond to 
``clinical information reconciliation and incorporation'' certification 
criterion also adopted as part of the 2014 Edition final rule.
    Accordingly, the 2015 Edition ToC certification criterion we 
propose to adopt would include many of the same capabilities adopted at 
Sec.  170.314(b)(8) with the exception of the following revisions and 
additions.
Updated C-CDA Standard
    As expressed in the 2014 Edition final rule, the C-CDA standard is 
now the single standard permitted for certification and the 
representation of summary care records. It is also referenced in other 
proposed 2015 Edition certification criteria. Industry stakeholders 
have continued to work to improve and refine the C-CDA standard since 
the 2014 Edition final rule, including publishing additional guidance 
for its consistent implementation.\75\ An updated version, HL7 
Implementation Guide for CDA[supreg] Release 2: Consolidated CDA 
Templates for Clinical Notes (US Realm), Draft

[[Page 16832]]

Standard for Trial Use, Release 2.0,\76\ which was balloted through 
2014, includes the following changes, which we believe provide 
important clarifications and enhancements:
---------------------------------------------------------------------------

    \75\ http://wiki.siframework.org/Companion+Guide+to+Consolidated+CDA+for+MU2.
    \76\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=379. Access to the IG is freely 
available for review during the public comment period by 
establishing an HL7 user account.
---------------------------------------------------------------------------

     Addition of new structural elements: new document sections 
and data entry templates:
    [cir] New Document Templates for: Care Plan; Referral Note; 
Transfer Summary.
    [cir] New Sections for: Goals; Health Concerns; Health Status 
Evaluation/Outcomes; Mental Status; Nutrition; Physical Findings of 
Skin.
    [cir] New organizers and many new entries (e.g. Wound Observation).
     Some sections/entries were deprecated (i.e., should no 
longer be used).
     Updates to (versioning of) template/section/entry object 
identifiers (OIDs).
    [cir] This includes a new chapter describing HL7's approach to 
template versioning.
     Tighter data constraints/requirements.
    [cir] For example, some data elements with a ``MAY'' requirement 
now have a ``SHOULD'' requirement. Likewise, some with a ``SHOULD'' 
requirement now have a ``MUST'' requirement.
     Updated Vocabulary/Value Set constraints.
    [cir] For example: two SNOMED CT [supreg] codes were added to the 
Current Smoking Status value set and the Tobacco Use value set to 
support the 2014 Edition vocabulary requirements for patient smoking 
status.
    [cir] NLM's Value Set Authority Center (VSAC) was named as 
reference for Value Sets used in C-CDA.
    In the Voluntary Edition proposed rule, we proposed to adopt the C-
CDA Release 2.0 standard and reference its use in the other 
certification criteria in which this standard would have also been 
applicable. At the time of that proposal, the C-CDA Release 2.0 had not 
yet completed its balloting cycle within HL7 and stakeholder comments 
on the Voluntary Edition proposed rule expressed concern related to the 
C-CDA Release 2.0 standard's stability. Given that the C-CDA Release 
2.0 has completed balloting and is now published as the next C-CDA 
version, we believe that the continued attention it received through 
HL7 balloting has resulted in a standard that is the best available for 
adoption in this proposed rule and for future implementation in the 
coming years. Thus, we propose to adopt C-CDA Release 2.0 at Sec.  
170.205(a)(4) as part of this certification criterion. We note that 
compliance with the C-CDA Release 2 cannot include the use of the 
``unstructured document'' document-level template for certification to 
this criterion.
    To address a technical implementation challenge sometimes referred 
to as ``bilateral asynchronous cutover,'' (which is meant to convey the 
complexity of continued interoperability among exchange partners as 
each upgrades their health IT at different times and with different 
standards capabilities), we propose that the 2015 Edition ToC 
certification criterion reference both the C-CDA Release 1.1 and 
Release 2.0 standards. In other words, a Health IT Module presented for 
certification to this criterion would need to demonstrate its 
conformance and capability to create and parse both versions (Release 
1.1 and 2.0) of the C-CDA standards. Under this proposal, the sending 
Health IT Module would send two documents (one conforming to C-CDA R1.1 
and other conforming to C-CDA R2.0) and the receiving Health IT Module 
would receive both versions of the documents and choose the appropriate 
version for downstream processing.
    While we recognize that this proposal is not ideal, we have 
proposed this more conservative approach as a way to mitigate the 
potential that there would be interoperability challenges for ToC as 
different health care providers adopt Health IT Modules certified to 
the 2015 Edition criterion at different times that include C-CDA 
Release 2.0 capabilities. However, we request public comment, 
especially from health IT developers with experience implementing the 
C-CDA, on an alternative approach related to the creation of C-CDA-
formatted documents. The alternative approach would be focused on C-CDA 
creation and receipt capabilities related to whether the health IT 
system could produce one, ``dually compliant,'' C-CDA that addresses 
both C-CDA versions at once. We understand that this approach is 
possible, may be preferred from an implementation perspective, and 
could help prevent potential data duplication errors that could result 
if a Health IT Module is required to be able to produce two separate C-
CDA files (one in each version) as part of certification.
    Our proposal to adopt C-CDA Release 2.0 is applicable to all of the 
other certification criteria in which the C-CDA is referenced. 
Similarly, unless C-CDA Release 2.0 is explicitly indicated as the sole 
standard in a certification criterion, we propose to reference both C-
CDA versions in each of these criteria for the reasons just discussed.
Valid/Invalid C-CDA System Performance
    As we considered stakeholder feedback and reviewed the additional 
public dialogue surrounding the variability of CEHRT in recognizing 
valid/invalid documents formatted according to the C-CDA 1.1 standard, 
including structured content by different health IT developers,\77\ we 
recognized that an expanded ToC certification criterion with a specific 
capability focused principally on health IT system behavior and 
performance related to recognizing valid/invalid C-CDAs would be 
beneficial. Thus, we propose to include within the 2015 Edition ToC 
certification criterion a specific focus on this technical system 
behavior. We believe this type of error checking and resilience is an 
important and necessary technical prerequisite in order to ensure that 
as data in the system is parsed from a C-CDA for incorporation as part 
of the ``clinical information reconciliation and incorporation'' 
certification criterion the user can be assured that the system has 
appropriately interpreted the C-CDA it received. Further, we believe 
this level of rigorous testing will better enable Health IT Modules to 
properly recognize C-CDA-based documents and prepare the necessary 
information for reconciliation and other workflow needs.
---------------------------------------------------------------------------

    \77\ D'Amore JD, et al. J Am Med Inform Assoc 2014;21:1060-1068.
---------------------------------------------------------------------------

    We propose that this specific aspect of the certification criterion 
would focus on and require the following technical outcomes be met. The 
Health IT Module would need to demonstrate the ability to detect valid 
and invalid C-CDA documents, including document, section, and entry 
level templates for data elements specified in 2014 and 2015 edition. 
Specifically, this would include:
     The ability of the Health IT Module to detect invalid C-
CDA documents. Thus, any data in the submitted C-CDA document that does 
not conform to either the C-CDA 1.1 or 2.0 standard (in addition to 
data coding requirements specified by this regulation) would be 
considered invalid;
     The ability to identify valid C-CDA document templates 
(e.g., CCD, Discharge Summary, Progress Note) and process the required 
data elements, section and entries, specific to the document templates 
and this regulation.
     The ability to detect invalid vocabularies and codes not 
specified in

[[Page 16833]]

either the C-CDA 1.1 or 2.0 standard or required by this regulation 
(e.g., using a SNOMED CT [supreg] code where a LOINC [supreg] code is 
required or using a code which does not exist in the specified value 
set).
     The ability to correctly interpret empty sections and 
nullFlavor combinations per the C-CDA 1.1 or 2.0 standard. For example, 
we anticipate testing could assess a Health IT Module's ability to 
continue to process a C-CDA when a nullFlavor is used at the section 
template level.
    We expect these capabilities would be tested by providing several 
C-CDA documents with valid and invalid data. We do not expect Health IT 
Modules presented for certification to have a common C-CDA handling 
process, however, we do expect that they would have a baseline 
capability to identify valid and invalid C-CDA documents and prepare 
the necessary data for clinical information reconciliation and 
incorporation. Further, we expect that Health IT Modules will have some 
mechanism to track errors encountered when assessing received C-CDA's 
and we have proposed that health IT be able to track the errors 
encountered and allow for a user to be notified of errors or review the 
errors produced. The Health IT Module would not need to support both 
and how this technical outcome is accomplished is entirely up to the 
health IT developer.
    We direct readers to the proposed ``Consolidated CDA creation 
performance'' certification criterion (Sec.  170.315(g)(6)) under which 
we seek comment on a potential requirement for this certification 
criterion or the ``Consolidated CDA creation performance'' 
certification criterion that would evaluate the completeness of the 
data included in a C-CDA in order to ensure that the data recorded by 
health IT is equivalent to the data included in a created C-CDA.
XDM Package Processing
    As indicated in the earlier paragraphs, a Health IT Module 
presented for certification to this certification criterion will need 
to support one of the edge protocols referenced in the Edge IG version 
1.1 (i.e., the ``IHE XDR profile for Limited Metadata Document 
Sources'' edge protocol or an SMTP-focused edge protocol (SMTP alone or 
SMTP in combination with either IMAP4 or POP3)). However industry 
feedback has indicated that the use of XDM packages has grown within 
the stakeholder community using Direct, which most often happens when 
Edge System A using XDR sends content and metadata to its HISP-A, who 
in turn packages that content and metadata into an XDM ZIP and sends it 
within a Direct message to HISP-B, which then ultimately sends the 
message containing the XDM package to Edge System B using an SMTP-based 
edge.
    Therefore, if Edge System B does not support XDM package 
processing, interoperability could be impacted when HISP-B forwards XDM 
packages to Edge System B via the SMTP protocol. To mitigate this 
potential incompatibility, we propose to include a specific capability 
in this certification criterion that would require a Health IT Module 
presented for certification that is also being certified to the SMTP-
based edge to demonstrate its ability to accept and process an XDM 
package it receives, which would include extracting relevant metadata 
and document(s). That is, this additional requirement only applies to a 
Health IT Module presented for certification with an SMTP-based edge 
implementation and not an XDR edge implementation). Additionally, 
because we expect XDM packaging to be created in accordance with the 
specifications included in IHE IT Infrastructure Technical Framework 
Volume 2b (ITI TF-2b),\78\ we propose to adopt this as the standard (at 
Sec.  170.205(p)(1)) for assessing whether the XDM package was 
successfully processed.
---------------------------------------------------------------------------

    \78\ http://www.ihe.net/Technical_Framework/upload/IHE_ITI_TF_Rev7-0_Vol2b_FT_2010-08-10.pdf.
---------------------------------------------------------------------------

Common Clinical Data Set
    We propose to include an updated Common Clinical Data Set for the 
2015 Edition that includes references to new and updated vocabulary 
standards code sets. Please also see the Common Clinical Data Set 
definition proposal in section III.B.3 of this preamble.
Encounter Diagnoses
    For encounter diagnoses, we are carrying over the requirement from 
the 2014 Edition ``ToC'' certification criterion that a Health IT 
Module must enable a user to create a transition of care/referral 
summary that also includes encounter diagnoses using either SNOMED CT 
[supreg] (September 2014 Release of the U.S. Edition as a baseline for 
the 2015 Edition) or ICD-10 codes.
``Create'' and Patient Matching Data Quality
    In 2011, both the HITPC and HITSC made recommendations to ONC on 
patient matching. The HITPC made recommendations in the following five 
categories: Standardized formats for demographic data fields; 
internally evaluating matching accuracy; accountability; developing, 
promoting and disseminating best practices; and supporting the role of 
the individual/patient.\79\ The HITSC made the following four 
recommendations: Detailing patient attributes that could be used for 
matching (in order to understand the standards that are needed); data 
quality; formats for these data elements; and what data are returned 
from a match request.\80\ The standards recommended by the HITSC are as 
follows:
---------------------------------------------------------------------------

    \79\ http://www.healthit.gov/sites/default/files/hitpc-transmittal-letter-priv-sectigerteam-020211.pdf.
    \80\ http://www.healthit.gov/FACAS/sites/default/files/standards-certification/8_17_2011Transmittal_HITSC_Patient_Matching.pdf.
---------------------------------------------------------------------------

     Basic Attributes: Given Name; Last Name; Date of Birth; 
Administrative Gender.\81\
---------------------------------------------------------------------------

    \81\ Despite its inclusion of the word ``gender,'' 
``Administrative Gender'' is generally used in standards to 
represent a patient's ``sex,'' such as male or female. See: http://ushik.ahrq.gov/ViewItemDetails?system=hitsp&itemKey=83680000.
---------------------------------------------------------------------------

     Other Attributes: Insurance Policy Number; Medical Record 
Number; Social Security Number (or last 4 digits); Street Address; 
Telephone Number; Zip Code.
     Potential Attributes: Email Address; Voluntary 
Identifiers; Facial Images; Other Biometrics.
    In July 2013, ONC launched an initiative to reinvigorate public 
discussion around patient matching, to perform a more detailed analysis 
of patient matching practices, and to identify the standards, services, 
and policies that would be needed to implement the HITPC and HITSC's 
recommendations. The initiative's first phase focused on a common set 
of patient attributes that could be leveraged from current data and 
standards referenced in our certification criteria. Given the initial 
findings, we proposed to include a limited set of standardized data as 
a part of the ``Create'' portion of the ToC criterion in the Voluntary 
Edition proposed rule to improve the quality of the data included in 
outbound summary care records. Overall, the vast majority of commenters 
supported the proposed policy that standardized patient attributes 
should be required for use in as part of the transitions of care 
certification criterion. Commenters overwhelmingly supported the 
inclusion of the proposed constrained specifications for last name/
family name, maiden name, suffix, first/given name, middle/second name, 
maiden name, date of birth, current address and historical address, 
phone number, and sex in support of patient matching. However, given 
our approach in the 2014 Edition Release 2 final rule

[[Page 16834]]

to only adopt a small subset of the proposed certification criteria to 
provide flexibility, clarity, and enhance health information exchange, 
we decided not adopted this proposal.
    We again propose to include a limited set of standardized data as a 
part of the ``Create'' portion of the ToC criterion in the 2015 Edition 
to improve the quality of the data included in outbound summary care 
records. To be clear, this proposal does not require a Health IT Module 
to capture the data upon data entry, but rather at the point when the 
data is exchanged (an approach commonly used for matching in HL7 
transactions, IHE specifications,\82\ C-CDA specification, and the 
eHealth Exchange). The proposed standardized data include: first name, 
last name, middle name (including middle initial), suffix, date of 
birth, place of birth, maiden name, phone number, and sex. In the 
bulleted list below, we identify more constrained specifications for 
some of the standardized data we propose. Based on our own research, we 
do not believe that the proposed constraints to these data conflict 
with the C-CDA. That being said, some proposed constraints may further 
restrict the variability as permitted by existing specifications and 
others may create new restrictions that do not currently exist within 
the C-CDA. We propose that:
---------------------------------------------------------------------------

    \82\ http://www.ihe.net/Technical_Frameworks/.
---------------------------------------------------------------------------

     For ``last name/family name'' the CAQH Phase II Core 258: 
Eligibility and Benefits 270/271 Normalizing Patient Last Name Rule 
version 2.1.0 \83\ (which addresses whether suffix is included in the 
last name field) be followed.
---------------------------------------------------------------------------

    \83\ http://www.caqh.org/pdf/CLEAN5010/258-v5010.pdf.
---------------------------------------------------------------------------

     For ``suffix,'' that the suffix should follow the CAQH 
Phase II Core 258: Eligibility and Benefits 270/271 Normalizing Patient 
Last Name Rule version 2.1.0 (JR, SR, I, II, III, IV, V, RN, MD, Ph.D., 
ESQ) \84\ and that if no suffix exists, the field should be marked as 
null.
---------------------------------------------------------------------------

    \84\ http://www.caqh.org/pdf/CLEAN5010/258-v5010.pdf.
---------------------------------------------------------------------------

     For ``date of birth,'' that the year, month and date of 
birth should be required fields while hour, minute and second should be 
optional fields. If hour, minute and second are provided then either 
time zone offset should be included unless place of birth (city, 
region, country) is provided; in the latter local time is assumed. If 
date of birth is unknown, the field should be marked as null.
     For ``phone numbers,'' the ITU format specified in ITU-T 
E.123 \85\ and ITU-T E.164 \86\ be followed and that the capture of 
home, business, and cell phone numbers be allowed.\87\ Further, that if 
multiple phone numbers are present in the patient's record, all should 
be included in the C-CDA and transmitted.
---------------------------------------------------------------------------

    \85\ http://www.itu.int/rec/T-REC-E.123-200102-I/e.
    \86\ http://www.itu.int/rec/T-REC-E.164-201011-I/en.
    \87\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=186.
---------------------------------------------------------------------------

     For ``sex'' we propose to require developers to follow the 
HL7 Version 3 Value Set for Administrative Gender and a nullFlavor 
value attributed as follows: M (Male), F (Female), and UNK (Unknown).
    While the Patient Matching Initiative's recommendations included 
standardizing current and historical address, we have not included a 
specific standardized constraint for that data at this time due to a 
lack of consensus around the proper standard. In response to the 
Voluntary Edition proposed rule, commenters also suggested that we 
delay support for international standards for address until future 
editions of certification criteria. To reiterate, the data we propose 
for patient matching would establish a foundation based on leveraging 
current data and standards in certification criteria. We welcome 
comments on this approach and encourage health IT developers to 
consider and support the use other patient data that would improve 
patient matching for clinical care and many types of clinical research.
Direct Best Practices
    In the past couple of years we have heard feedback from 
stakeholders regarding health IT developers limiting the transmission 
or receipt of different file types via Direct. We wish to remind all 
stakeholders of the following best practices for the sharing of 
information and enabling the broadest participation in information 
exchange with Direct: http://wiki.directproject.org/Best+Practices+for+Content+and+Workflow.
Certification Criterion for C-CDA and Common Clinical Data Set 
Certification
    We note that no proposed 2015 Edition health IT certification 
criteria includes just the C-CDA Release 2.0 and/or the Common Clinical 
Data Set, particularly with the 2015 Edition not including a proposed 
``clinical summary'' certification criterion as discussed later on in 
this preamble. Health IT certified to simply the C-CDA Release 2.0 with 
or without certification to the Common Clinical Data Set may be 
beneficial for other purposes, including participation in HHS payment 
programs. We request comment on whether we should adopt a separate 2015 
Edition health IT certification criterion for the voluntary testing and 
certification of health IT to the capability to create a summary record 
formatted to the C-CDA Release 2.0 with or without the ability to meet 
the requirements of the Common Clinical Data Set definition.
C-CDA Data Provenance Request for Comment
    As the exchange of health data increases, so does the demand to 
track the provenance of this data over time and with each exchange 
instance. Confidence in the authenticity, trustworthiness, and 
reliability of the data being shared is fundamental to robust privacy, 
safety, and security enhanced health information exchange. The term 
``provenance'' in the context of health IT refers to evidence and 
attributes describing the origin of electronic health information as it 
is captured in a health system and subsequently persisted in a way that 
supports its lifespan. As described in the President's Council of 
Advisors on Science and Technology (PCAST) Report ``Realizing the Full 
Potential of Health Information Technology to Improve Healthcare for 
Americans'' \88\, provenance includes information about the data's 
source and the processing that the data has undergone. The report 
refers to ``tagged data elements'' as units of data accompanied by a 
``metadata tag'' that describes the attributes, provenance, and 
required security protections of the data.
---------------------------------------------------------------------------

    \88\ PCAST Report to the President: Realizing the Full Potential 
of Health Information Technology to Improve Healthcare for 
Americans: The Path Forward, http://www.whitehouse.gov/sites/default/files/microsites/ostp/pcast-health-it-report.pdf.
---------------------------------------------------------------------------

    In April 2014, ONC launched the Data Provenance Initiative within 
the Standards and Interoperability (S&I) Framework to identify the 
standards necessary to capture and exchange provenance data, including 
provenance at time of creation, modification, and time of exchange.\89\ 
The stakeholder community represented a wide variety of organizations 
including health IT developers; federal, state, and local agencies; 
healthcare professionals; research organizations; payers; labs; and 
individuals within academia. In the fall of 2014, the HL7 IG for CDA 
Release 2: Data Provenance, Release 1 (US Realm) (DSTU) \90\ was 
published. This IG

[[Page 16835]]

clarifies existing content from various standards within HL7 \91\ and 
describes how provenance information for a CDA document in a health IT 
system should be applied, and what vocabulary should be used for the 
metadata. This includes provenance metadata in the CDA at the header, 
section and entry levels. We seek comment on the maturity and 
appropriateness of this IG for the tagging of health information with 
provenance metadata in connection with the C-CDA. Additionally, we seek 
comment on the usefulness of this IG in connection with certification 
criteria, such as ToC and VDT certification criteria.
---------------------------------------------------------------------------

    \89\ http://wiki.siframework.org/Data+Provenance+Initiative.
    \90\ http://wiki.hl7.org/index.php?title=HL7_Data_Provenance_Project_Space and http://gforge.hl7.org/gf/project/cbcc/frs/?action=FrsReleaseBrowse&frs_package_id=240.
    \91\ Standards including HL7 Clinical Documentation Architecture 
Release 2 (CDA R2), HL7 Implementation Guide: Data Segmentation for 
Privacy (DS4P), Release 1, and HL7 Version 2 Vocabulary & 
Terminology Standards (all are normative standards).
---------------------------------------------------------------------------

     Clinical Information Reconciliation and Incorporation

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(b)(2) (Clinical information reconciliation and
 incorporation)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``clinical information 
reconciliation and incorporation'' certification criterion that is a 
revised (but largely similar to the 2014 Edition Release 2) version of 
the ``clinical information reconciliation and incorporation'' criterion 
adopted at Sec.  170.314(b)(9).
Incorporation System Performance
    As we considered public comments made after the 2014 Edition final 
rule and reviewed the additional public dialogue surrounding the 
variability of certified health IT in incorporating C-CDAs including 
structured content by different health IT developers \92\, we 
recognized the need to expand the existing ``clinical information 
reconciliation and incorporation'' certification criterion to focus on 
health IT system behavior and performance related to incorporating C-
CDAs including structured content. We believe that testing a Health IT 
Module's capability to reconcile and incorporate, at a minimum: 
problems, medications, and medication allergies from multiple C-CDAs 
will improve the overall clinical effectiveness.
---------------------------------------------------------------------------

    \92\ D'Amore JD, et al. J Am Med Inform Assoc 2014; 21:1060-
1068.
---------------------------------------------------------------------------

    We expect that testing for this specific system performance would 
include the ability to incorporate valid C-CDAs with variations of data 
elements to be reconciled (e.g., documents with no medications, 
documents having variations of medication timing data). In addition we 
believe we can further strengthen this certification criterion by 
proposing to require that a C-CDA be created based on the 
reconciliation and incorporation process in order to validate the 
incorporation results. We anticipate that the generated C-CDA would be 
verified using test tools for conformance and can be checked against 
the information that was provided to incorporate.
    Accordingly, we propose that the following technical system 
behavior and performance also be addressed as part of the clinical 
information reconciliation and incorporation certification criterion: 
The Health IT Module must demonstrate the ability to reconcile problem, 
medication, and medication allergy data from valid C-CDAs (both Release 
1.1. and 2.0) with variations of data elements to be reconciled and 
then generate a conformant C-CDA document based on the reconciled 
information. For example, a test could include assessing a Health IT 
Module's capability to reconcile and incorporate medication information 
with different timing information.
     Electronic Prescribing (e-Prescribing)

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(b)(3) (Electronic prescribing)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition certification criterion for e-
prescribing that is revised in comparison to the 2014 Edition ``e-
prescribing'' criterion (Sec.  170.314(b)(3)). First, for the purposes 
of certification, we propose to require a Health IT Module to be able 
to receive and respond to additional NCPDP SCRIPT Standard 
Implementation Guide Version 10.6 (v10.6) transactions or segments, 
namely Change Prescription, Refill Prescription, Cancel Prescription, 
Fill Status, and Medication History. Second, for the purposes of 
certification, we propose to require that a Health IT Module 
demonstrate that directions for medication use transmitted as e-
prescriptions are codified in a structured format. Third, for the 
purposes of certification, we propose to require a Health IT Module be 
able to limit a user to e-prescribing all medications in the metric 
unit standard only, follow NCPDP-recommended conventions for use of 
leading zeroes before a decimal, and avoid use of trailing zeroes after 
a decimal when e-prescribed.
e-Prescribing Transactions or Segments
    For 2014 Edition testing and certification to this criterion, a 
Health IT Module presented for certification must demonstrate that it 
can create a new prescription according to the NCPDP SCRIPT v10.6 New 
Prescription transaction (NEWRX). Stakeholders have recommended we 
consider expanding testing to a greater number of NCPDP SCRIPT v10.6 
transactions and segments in order to better facilitate prescriber and 
pharmacist communications to provide better care for patients. 
Stakeholders have indicated that there is variable uptake and 
inconsistent implementation of the transactions in the NCPDP SCRIPT 
Standard v10.6 despite their added value for patient safety and 
improved communication between prescribers and pharmacists. In 
consideration of stakeholder input, we propose to include additional 
NCPDP SCRIPT v10.6 transactions in addition to the New Prescription 
transaction for health IT testing and certification. We propose that 
testing and certification would require a Health IT Module to 
demonstrate the ability to send and receive end-to-end prescriber-to-
receiver/sender-to-prescriber transactions (bidirectional 
transactions). The transactions and reasons for inclusion for testing 
and certification are outlined in Table 3 below.

[[Page 16836]]



Table 3--Proposed Additional \93\ NCPDP SCRIPT v10.6 Transactions for Testing and Certification to e-Prescribing
                                             Certification Criterion
----------------------------------------------------------------------------------------------------------------
  NCPDP SCRIPT v10.6 transaction or                                                  Problem addressed/value in
               segment                                 Use case(s)                   testing for certification
----------------------------------------------------------------------------------------------------------------
Change Prescription (RXCHG, CHGRES)..   Allows a pharmacist to request a   Facilitates more efficient,
                                        change of a new prescription or a           standardized electronic
                                        ``fillable'' prescription.                  communication between
                                        Allows a prescriber to respond to   prescribers and pharmacists
                                        pharmacy requests to change a               for changing prescriptions.
                                        prescription.
Cancel Prescription (CANRX, CANRES)..   Notifies the pharmacist that a     Facilitates more efficient,
                                        previously sent prescription should be      standardized electronic
                                        canceled and not filled.                    communication between
                                                                                    prescribers and pharmacists
                                                                                    for cancelling
                                                                                    prescriptions.
                                                                                    Sends the prescriber
                                                                                    the results of a
                                                                                    prescription cancellation
                                                                                    request.
Refill Prescription (REFREQ, REFRES).   Allows the pharmacist to request   Facilitates more efficient,
                                        approval for additional refills of a        standardized electronic
                                        prescription beyond those originally        communication between
                                        prescribed.                                 prescribers and pharmacists
                                                                                    for refilling prescriptions.
                                        Allows the prescriber to grant
                                        the pharmacist permission to provide a
                                        patient additional refills or decline to
                                        do so.
Fill Status (RXFILL).................  Allows the pharmacist to notify the         Allows the prescriber to know
                                        prescriber about the status of a            whether a patient has picked
                                        prescription in three cases: 1) to notify   up a prescription, and if
                                        of a dispensed prescription, 2) to notify   so, whether in full or in
                                        of a partially dispensed prescription, 3)   part. This information can
                                        to notify of a prescription not             inform assessments of
                                        dispensed.                                  medication adherence.
Medication History (RXHREQ, RXHRES)..   Allows a requesting entity to      Allows a requesting entity to
                                        generate a patient-specific medication      receive the medication
                                        history request.                            history of a patient. A
                                        The responding entity can respond   prescriber may use this
                                        with a patient's medication history,        information to perform
                                        including source, fill number, follow-up    medication utilization
                                        contact, date range, as information is      review, medication
                                        available.                                  reconciliation, or other
                                                                                    medication management to
                                                                                    promote patient safety.
----------------------------------------------------------------------------------------------------------------

    We solicit comment on including the proposed transactions and 
segments for testing and certification to this certification criterion 
as outlined in Table 3, and on the problems addressed/value in testing 
for certification. We also solicit comment on the following issues:
---------------------------------------------------------------------------

    \93\ We are proposing to keep the ``New Prescription'' 
transaction for testing and certification.
---------------------------------------------------------------------------

     Other NCPDP SCRIPT v10.6 transactions that should be 
considered for testing and certification, and for what use cases/value;
     What factors we should consider for end-to-end prescriber-
to-receiver testing.
    We also propose to adopt and include the February 2, 2015 monthly 
version of RxNorm in this criterion as the baseline version minimum 
standards code set for coding medications (see section III.A.2.d 
(``Minimum Standards'' Code Sets) of this preamble).
Structured and Codified ``Sig''
    Medications can be e-prescribed using a free text format, and 
typically the instructions include the medication name, dose, route of 
administration, frequency of administration, and other special 
instructions. This set of prescribing instructions is referred to as 
the ``Sig.'' In a free text format, non-standard or conflicting 
language may be used that is not understood by the pharmacist filling 
the prescription. Where systems do facilitate creation of the Sig, some 
systems may auto-concatenate the field length and thus the tail end of 
the Sig is lost. This has implications for communication between 
prescribers and pharmacists as well as for patient safety. Prescribers 
and pharmacists may have to engage in back-and-forth communication to 
clarify what is intended in the Sig instructions. Therefore, there is 
an opportunity to streamline prescriber-pharmacist communication, allow 
more time for direct activities of patient care, and reduce confusion 
during the pharmacy verification and dispensing processes.
    We are aware that the NCPDP SCRIPT v10.6 standard includes 
structured Sig segments that are used to codify the prescribing 
directions in a structured format.\94\ Providing Sig instructions in a 
structured format promotes accurate, consistent, and clear 
communication of the prescribing information as intended by the 
prescriber.
---------------------------------------------------------------------------

    \94\ NCPDP's Structured and Codified Sig Format Implementation 
Guide v1.2 is adopted within SCRIPT v10.6.
---------------------------------------------------------------------------

    In one study of the structured and codified Sig within NCPDP SCRIPT 
v10.5, the Sig format fully represented 95% of ambulatory prescriptions 
tested.\95\ While we believe that the results of this study give an 
indication of the scope of the structured and codified Sig within NCPDP 
SCRIPT v10.5, we note that the Sig standard was tested in the lab 
environment and not with live end-users. Stakeholders have also 
indicated the limitations of the structured and codified Sig within 
NCPDP SCRIPT v10.6 to represent all Sig instructions, particularly 
complex Sigs requiring multi-step directions. For example, stakeholders 
have noted that the Sig segment within the NCPDP SCRIPT v10.6 standard 
limits the field length to 140 characters whereas later versions of the 
NCPDP SCRIPT standard (from v201311 onward) have expanded the character 
length to 1000. Despite these potential limitations, we see 
standardizing and codifying the majority of routine prescriptions as a 
means to promote patient safety as well as reduce disruptions to 
prescriber workflow through a reduction in pharmacy call-backs.
---------------------------------------------------------------------------

    \95\ Liu H, Burkhart Q and Bell DS. Evaluation of the NCPDP 
Structured and Codified Sig Format for e-prescriptions. J Am Med 
Inform Assoc. 2011 Sep-Oct;18(5):645-51.
---------------------------------------------------------------------------

    We note the flexibility to create complex unstructured Sigs remains 
through use of existing e-prescribing workflow and appropriate use of 
the free text field. There is, however, low uptake of structured Sig 
according to the NCPDP SCRIPT v10.6 standard, which includes a 
combination of mandatory and conditional structured Sig segments.
    We believe that medication Sig instructions should be codified in a

[[Page 16837]]

structured format for the benefits outlined above. Therefore, we 
propose to require that a Health IT Module enable a user to enter, 
receive, and transmit codified Sig instructions in a structured format 
in accordance with NCPDP Structured and Codified Sig Format 
Implementation Guide v1.2 which is embedded within NCPDP SCRIPT v10.6 
for certification to the e-prescribing criterion in the 2015 
Edition.\96\ We propose that this requirement apply to the New 
Prescription, Change Prescription, Refill Prescription, Cancel 
Prescription, Fill Status, and Medication History prescription 
transactions or segments as we understand that the NCPDP Structured and 
Codified Sig Format can be used for all NCPDP SCRIPT v10.6 prescription 
transactions that include the medication field. We also propose to 
require that a Health IT Module include all structured Sig segment 
components enumerated in NCPDP SCRIPT v10.6 (i.e., Repeating Sig, Code 
System, Sig Free Text String, Dose, Dose Calculation, Vehicle, Route of 
Administration, Site of Administration, Sig Timing, Duration, Maximum 
Dose Restriction, Indication and Stop composites).
---------------------------------------------------------------------------

    \96\ NCPDP's Structured and Codified Sig Format Implementation 
Guide v1.2 is within the NCPDP SCRIPT v10.6 standard.
---------------------------------------------------------------------------

    We are aware that NCPDP has recently published recommendations for 
implementation of the structured and Codified Sig format for a subset 
of component composites that represent the most common Sig segments in 
the NCPDP SCRIPT Implementation Recommendations Version 1.29.\97\ We 
therefore welcome comment on this proposal, including whether we should 
require testing and certification to a subset of the structured and 
codified Sig format component composites that represent the most common 
Sig instructions rather than the full NCPDP Structured and Codified Sig 
Format Implementation Guide v1.2. As previously noted, prescribers 
would still be able to be able to create unstructured Sigs through the 
use of the free text field, and our proposal only discusses the 
capability of technology to enable a user to enter, receive, and 
transmit codified Sig instructions using the NCPDP Structured and 
Codified Sig Format.
---------------------------------------------------------------------------

    \97\ http://www.ncpdp.org/NCPDP/media/pdf/SCRIPTImplementationRecommendationsV1-29.pdf.
---------------------------------------------------------------------------

Medication Dosing
    In the Voluntary Edition proposed rule, we solicited comment on 
whether we should propose health IT certification for oral liquid 
medication dosing to the metric standard (e.g., mL or milliliters) for 
patient safety reasons (79 FR 10926-10927). Use of the metric standard 
offers more precision in medication dose than the Imperial standard 
(e.g., teaspoons), which can decrease preventable adverse drug events. 
A number of health care and standards developing organizations, 
including the AAP \98\ and NCPDP,\99\ support the use of the metric 
standard for dosing volumetric medications. Additionally, the FDA's 
Safe Use Initiative is working with CDC, NCPDP, and other stakeholders 
to encourage adoption of the NCPDP's recommendations for standardizing 
dosing designations on prescription container labels of oral liquid 
medications.\100\ Recent research has demonstrated that parents who 
used milliliter-only dosing instruments were less likely to make dosing 
errors than parents who used teaspoons or tablespoon units.\101\
---------------------------------------------------------------------------

    \98\ AAP Council on Clinical Information Technology Executive 
Committee, 2011-2012. Policy Statement--Electronic Prescribing in 
Pediatrics: Toward Safer and More Effective Medication Management. 
Pediatrics 2013; 131;824.
    \99\ http://www.ncpdp.org/NCPDP/media/pdf/wp/DosingDesignations-OralLiquid-MedicationLabels.pdf.
    \100\ http://www.fda.gov/Drugs/DrugSafety/SafeUseInitiative/ucm188762.htm#overdoses.
    \101\ Unit of Measurement Used and Parent Medication Dosing 
Errors. Pediatrics 134:2 August 1, 2014. Pp. e354-e361.
---------------------------------------------------------------------------

    We received a number of comments to the comment solicitation. Many 
commenters noted that the structured Sig segment of the NCPDP SCRIPT 
Standard v10.6 supports use of the metric standard for liquid 
medication dosing. One ONC-ACB commented that in their experience, 
vendors have struggled to properly codify medication dosing information 
within the C-CDA in terms of consistency across all health IT systems. 
Many provider organizations and patient advocacy organizations were in 
support of requiring use of the metric standard for oral liquid 
medication dosing. Additionally, many commenters were in favor of 
providing the metric standard as one option to record liquid medication 
doses. We also received comments recommending the proper use of leading 
and trailing zeroes in dosing designations. NCPDP has recommended that 
dose amounts should always use leading zeroes before the decimal point 
for amounts less than one, and should not use trailing zeroes after a 
decimal point for oral liquid medications.\102\
---------------------------------------------------------------------------

    \102\ http://www.ncpdp.org/NCPDP/media/pdf/wp/DosingDesignations-OralLiquid-MedicationLabels.pdf.
---------------------------------------------------------------------------

    Our intent is for health IT to be able to more precisely dose 
prescriptions in order to reduce dosing errors and improve patient 
safety. We also believe that use of the metric standard could improve 
patient safety and potentially reduce dosing errors for all medications 
in addition to oral liquid medications. We therefore propose, for 
certification to this criterion, that a Health IT Module be capable of 
limiting a user's ability to electronically prescribe all medications 
in only the metric standard. Prescription labels contain the dosing 
instructions specified by the prescriber. Thus, if the prescriber doses 
using the metric standard, the label will contain dosing instructions 
in the metric standard and potentially reduce dosing errors during 
administration. We also propose to require that a Health IT Module be 
capable of always inserting leading zeroes before the decimal point for 
amounts less than one when a user electronically prescribes medications 
as well as not allow trailing zeroes after a decimal point. We welcome 
comment on these proposals, including the feasibility of implementing 
the metric standard for e-prescribing all medications.
     Incorporate Laboratory Tests and Values/Results

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(b)(4) (Incorporate laboratory tests and values/results)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``incorporate laboratory tests 
and values/results'' certification criterion that is revised in 
comparison to the 2014 Edition ``incorporate laboratory tests and 
values/results'' criterion (Sec.  170.314(b)(5)). We propose to adopt 
and include the HL7 Version 2.5.1 Implementation Guide: S&I Framework 
Lab Results Interface, Draft Standard for Trial Use, Release 2, US 
Realm (``LRI Release 2'') in the proposed 2015 Edition ``transmission 
of laboratory test reports'' criterion for the ambulatory setting. LRI 
Release 2 is currently under ballot reconciliation with HL7 and should 
be published in the next few months.\103\ LRI Release 2 would:
---------------------------------------------------------------------------

    \103\ http://www.hl7.org/participate/onlineballoting.cfm?ref=nav#nonmember. Access to the current draft 
of the LRI Release 2 IG is freely available for review during the 
public comment period by establishing an HL7 user account.
---------------------------------------------------------------------------

     Implement common formats across US Realm IGs for 
consistent reader

[[Page 16838]]

experience (e.g., sequence of sections, formatting, layout, and 
terminology);
     Incorporates all previous errata, LRI Release 1 DSTU 
comments and change requests;
     Adopt HL7 version 2.8 fields developed to fill gaps 
identified in the development of Release 1;
     Include harmonized data type ``flavors'' for use across 
the US Realm Lab IGs;
     Introduce initial requirements for error reporting 
conditions and severity (hard/soft errors) and system/application 
acknowledgements;
     Harmonize data element usage and cardinality requirements 
with LOI Release 1, and the electronic Directory of Services (eDOS) IG;
     Incorporate US Lab Realm value sets developed for clarity 
and consistency across all laboratory IGs; and
     Use a new publication method for value sets that allows 
for precision usage at point of use and provides ``at a glance'' 
comprehensive usage at the field and component-level across all 
laboratory IGs; and synced with value set activities (HL7, VSAC, etc.).
    Overall, we propose to adopt LRI Release 2 because it addresses 
errors and ambiguities found in LRI Release 1 and harmonizes 
interoperability requirements with other laboratory standards we 
propose to adopt in this proposed rule (e.g., the HL7 Version 2.5.1 
Implementation Guide: S&I Framework Laboratory Orders from EHR, DSTU 
Release 2, US Realm, 2013 \104\).
---------------------------------------------------------------------------

    \104\ We have proposed to adopt this implementation guide for 
the 2015 Edition ``CPOE for laboratory orders'' certification 
criterion.
---------------------------------------------------------------------------

    As compared to the 2014 Edition certification criterion, we also 
propose more specific requirements for how a Health IT Module must be 
capable of electronically displaying the information included in a test 
report. This specificity would improve the consistency with how 
laboratory tests and values/results are displayed, which would also 
assist with laboratory compliance with CLIA. To meet this criterion, a 
Health IT Module would be required to display the following information 
included in laboratory test reports it receives: (1) the information 
for a test report as specified in 42 CFR 493.1291(a)(1) through (a)(3) 
and (c)(1) through (c)(7); the information related to reference 
intervals or normal values as specified in 42 CFR 493.1291(d); the 
information for alerts and delays as specified in 42 CFR 493.1291(g) 
and (h); and the information for corrected reports as specified in 42 
CFR 493.1291(k)(2).
    We also propose, for the purposes of certification, to require a 
Health IT Module to be able to use, at a minimum, the version of 
Logical Observation Identifiers Names and Codes (LOINC[supreg]) adopted 
at Sec.  170.207(c)(3) (version 2.50) as the vocabulary standard for 
laboratory orders. This is the most recent version of LOINC[supreg]. We 
refer readers to section III.A.2.d (``Minimum Standards'' Code Sets) 
for further discussion of our adoption of LOINC[supreg] as a minimum 
standards code set and our proposal to adopt version 2.50, or 
potentially a newer version if released before a subsequent final rule, 
as the baseline for certification to the 2015 Edition.
    We propose to adopt the updated LRI Release 2 at Sec.  
170.205(j)(2), which requires the modification of the regulatory text 
hierarchy in Sec.  170.205(j) to designate the standard referenced by 
the 2014 Edition version of this certification criterion at Sec.  
170.205(j) to be at Sec.  170.205(j)(1). This regulatory structuring of 
the IGs would make the CFR easier for readers to follow.
EHR-S Functional Requirements LRI IG/Testing and Certification 
Requirements
    We seek comment on the HL7 EHR-S Functional Requirements for the 
V2.5.1 Implementation Guide: S&I Framework Lab Results Interface R2, 
Release 1, US Realm, Draft Standard for Trial Use, Release 1 (``EHR-S 
IG''). The EHR-S IG is currently under ballot reconciliation with 
HL7.\105\ The focus of the EHR-S IG is the definition of EHR system 
functional requirements related to the receipt of laboratory results 
that are compliant with the LRI Release 2. The EHR-S IG also includes 
additional requirements as set forth in CLIA as well as clinical best 
practices beyond the scope of LRI Release 2.
---------------------------------------------------------------------------

    \105\ http://www.hl7.org/participate/onlineballoting.cfm?ref=nav#nonmember. Access to the current draft 
of the EHR-S IG is freely available for review during the public 
comment period by establishing an HL7 user account.
---------------------------------------------------------------------------

    We specifically seek comment on the clarity and completeness of the 
EHR-S IG in describing the requirements related to the receipt and 
incorporation of laboratory results for measuring conformance of a 
Health IT Module to LRI Release 2. In addition, we seek comment on how 
a Health IT Module should be tested and certified consistently and 
uniformly for the incorporation of laboratory results data. For 
example, should testing and certification require the Health IT Module 
to demonstration the ability to associate the laboratory result with an 
order or patient, to recall the result for display or for submission to 
another technology, and/or to use the result for automated clinical 
decision support interventions? Further, what, if any, specific 
capabilities currently included in the EHR-S IG should be part of 
testing and certification for this criterion?
     Transmission of Laboratory Test Reports

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(b)(5) (Transmission of laboratory test reports)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``transmission of laboratory 
test reports'' certification criterion that is revised in comparison to 
the 2014 Edition ``transmission of electronic laboratory tests and 
values/results to ambulatory providers'' criterion (Sec.  
170.314(b)(6)). We have renamed this criterion to more clearly indicate 
its availability for the certification of health IT used by any 
laboratory. We propose to adopt and include the HL7 Version 2.5.1 
Implementation Guide: S&I Framework Lab Results Interface, Draft 
Standard for Trial Use, Release 2, US Realm (``LRI Release 2'') in the 
proposed 2015 Edition ``transmission of laboratory test reports'' 
criterion. LRI Release 2 is currently under ballot reconciliation with 
HL7 and should be published in the next few months.\106\ We propose to 
adopt this standard for the same reasons discussed in the 2015 Edition 
``incorporate laboratory tests and values/results'' above. We refer 
readers to the description of the LRI Release 2 IG and our rationale 
for its adoption discussed in that criterion.
---------------------------------------------------------------------------

    \106\ Access to the current draft of the LRI Release 2 IG is 
freely available for review during the public comment period by 
establishing an HL7 user account.
---------------------------------------------------------------------------

    As also discussed in the 2015 Edition ``incorporate laboratory 
tests and values/results'' above, the LRI Release 2 IG requires the 
information for a test report as specified at 42 CFR 493.1291(a)(1) 
through (3), (c)(1) through (c)(7), (d), (g), (h) and (k)(2) to be 
included in the content message. Therefore, inclusion of this standard 
for certification should not only facilitate improved interoperability 
of electronically sent laboratory test reports (as discussed in more 
detail in the 2015 Edition ``incorporate laboratory tests and values/
results'' criterion), but also facilitate laboratory compliance with 
CLIA as it relates to the incorporation and display of test results in 
a receiving system.
    We also propose, for the purposes of certification, to require a 
Health IT

[[Page 16839]]

Module to be able to use, at a minimum, the version of Logical 
Observation Identifiers Names and Codes (LOINC[supreg]) adopted at 
Sec.  170.207(c)(3) (version 2.50) as the vocabulary standard for 
laboratory orders. This is the most recent version of LOINC[supreg]. We 
refer readers to section III.A.2.d (``Minimum Standards'' Code Sets) 
for further discussion of our adoption of LOINC[supreg] as a minimum 
standards code set and our proposal to adopt version 2.50, or 
potentially a newer version if released before a subsequent final rule, 
as the baseline for certification to the 2015 Edition.
    We propose to adopt the updated LRI Release 2 at Sec.  
170.205(j)(2), which requires the modification of the regulatory text 
hierarchy in Sec.  170.205(j) to designate the standard referenced by 
the 2014 Edition version of this certification criterion at Sec.  
170.205(j) to be at Sec.  170.205(j)(1). This regulatory structuring of 
the IGs would make the CFR easier for readers to follow.
     Data Portability

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(b)(6) (Data portability)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``data portability'' 
certification criterion that is revised in comparison to the 2014 
Edition ``data portability'' certification criterion (Sec.  
170.314(b)(7)). Similar to the 2014 Edition version, we propose to 
include the 2015 Edition ``data portability'' criterion in the Base EHR 
definition (i.e., the 2015 Base EHR definition).
    For the 2014 Edition ``data portability'' criterion, we expressed 
that the criterion was intended to enable an EP, eligible hospital, or 
CAH to create a set of export summaries for all patients in EHR 
technology formatted according to the C-CDA that includes each 
patient's most recent clinical information. (77 FR 54193). We also 
included this criterion in the Base EHR definition as a way to ensure 
that the capability was delivered to EPs, eligible hospitals, or CAHs. 
By including the criterion in the Base EHR definition, an EP, eligible 
hospital, or CAH must have EHR technology certified to this criterion 
in order to possess EHR technology that meets the CEHRT definition.
    In the years since the 2014 Edition final rule was issued 
(September 2012) and the subsequent implementation and use of this 
capability by EPs, eligible hospitals, and CAHs, we have received two 
types of feedback. From health IT developers, we have received requests 
for clarification about this certification criterion's scope. For 
example, requests for clarifications about the data that must be 
produced and from how far back in time the data must be produced. 
Whereas from providers (and the implementation professionals and third 
party developers with which they work), we have generally received more 
substantive critiques about the overall usefulness of the capability 
and the ways in which health IT developers met the certification 
criterion's requirements but did not necessarily deliver on its intent. 
Such ``user'' comments conveyed that some health IT developers provided 
a capability that was difficult or non-intuitive to use, difficult to 
find to even use (e.g., ``hidden''), and in some cases either required 
developer personnel to assist the provider in executing the capability 
or limited its execution to only being done by the developer at the 
provider's request. We have also received feedback that the scope of 
testing has not rigorously assessed the ability of health IT to create 
large quantities of export summaries. As a result, some providers have 
reported challenges and poor performance associated with this 
capability.
    We believe that this feedback from CEHRT users indicates that the 
data portability certification criterion adopted in the 2014 Edition 
has not provided the data accessibility to providers we believed would 
occur as a result of its adoption. It also indicates that some health 
IT developers have (intentionally or unintentionally) obstructed the 
certification criterion's true intent--to give providers easy access 
and an easy ability to export clinical data about their patients for 
use in a different EHR technology or even a third party system for the 
purpose of their choosing.
    To address provider critiques as well as to provide additional 
developer requested clarity, we propose a revised 2015 Edition ``data 
portability'' certification criterion as compared to the 2014 Edition 
version. The proposed data portability certification criterion at Sec.  
170.315(b)(6) approaches data portability from a slightly different 
angle than the 2014 Edition version and focuses on the following 
specific capabilities.
    1. As a general rule, we emphasize that this capability would need 
to be user-focused and user driven. A user must be able to set the 
configuration options included within the more detailed aspects of the 
criterion and a user must be able to execute these capabilities at any 
time the user chooses and without subsequent developer assistance to 
operate. We expect that testing of a Health IT Module presented for 
certification to this criterion would include a demonstration that the 
Health IT Module enables a user to independently execute this 
capability without assistance from the health IT developer beyond 
normal orientation/training.
    2. The criterion would require that a user be able to configure the 
Health IT Module to create an export summary for a given patient or set 
of export summaries for as many patients selected. It would also 
require that these export summaries be able to be created according to 
any of the following document-template types included in the C-CDA R2.0 
(also proposed as the content standard in this criterion): CCD; 
Consultation Note; History and Physical; Progress Note; Care Plan; 
Transfer Summary; and Referral Note. We also propose that the Discharge 
Summary document template be included for a Health IT Module developed 
for the inpatient setting.
    3. From a data perspective, we propose that the minimum data that a 
Health IT Module must be capable of including in an export summary are: 
the data represented by the Common Clinical Data Set and:
     Encounter diagnoses (according to the standard specified 
in Sec.  170.207(i) (ICD-10-CM) or, at a minimum, the version of the 
standard at Sec.  170.207(a)(4) (September 2014 Release of the U.S. 
Edition of SNOMED CT[supreg]) \107\;
---------------------------------------------------------------------------

    \107\ We refer readers to section III.A.2.d (``Minimum 
Standards'' Code Sets) for further discussion of our adoption of 
SNOMED CT[supreg] as a minimum standards code set and our proposal 
to adopt the September 2014 Release (U.S. Edition), or potentially a 
newer version if released before a subsequent final rule, as the 
baseline for certification to the 2015 Edition.
---------------------------------------------------------------------------

     Cognitive status;
     Functional status;
     For the ambulatory setting only. The reason for referral; 
and referring or transitioning provider's name and office contact 
information; and
     For the inpatient setting only. Discharge instructions.
    4. We propose that a user would need to be able to be able to 
configure the technology to set the time period within which data would 
be used to create the export summary or summaries. And that this must 
include the ability to enter in a start and end date range as well as 
the ability to set a date at least three years into the past from the 
current date.
    5. We propose that a user would need to be able to configure the 
technology to create an export summary or summaries based on the 
following user selected events:
     A relative date or time (e.g., the first of every month);

[[Page 16840]]

     A specific date or time (e.g., on 10/24/2015); and
     When a user signs a note or an order.
    6. We propose that a user would need to able to configure and set 
the storage location to which the export summary or export summaries 
are intended to be saved.
    Again, we emphasize that all these capabilities would need to be 
able to be configured and executed by a user without the aid of 
additional health IT developer personnel and without the need to 
request developer action. Further, we also reiterate that we have 
expanded the nature and focus of this criterion to more precisely 
address provided critiques as well as to expand the anticipated and 
potential uses providers can deploy based on this more configuration 
focused criterion.
 Data Segmentation for Privacy
    We propose to adopt two new certification criteria that would focus 
on the capability to separately track (``segment'') individually 
identifiable health information that is protected by rules that are 
more privacy-restrictive than the HIPAA Privacy Rule. This type of 
health information is sometimes referred to as sensitive health 
information. The HIPAA Privacy Rule serves as the federal baseline for 
health information privacy protections. It also generally permits the 
use or disclosure of protected health information (PHI) for limited 
specific purposes (such as treatment and payment) without a patient's 
permission.\108\
---------------------------------------------------------------------------

    \108\ http://www.hhs.gov/ocr/privacy/hipaa/administrative/privacyrule/.
---------------------------------------------------------------------------

    The HIPAA Privacy Rule does not override (or preempt) more privacy-
protective federal and state privacy laws. A number of federal and 
state health information privacy laws and regulations are more privacy-
protective than the HIPAA Privacy Rule. Typically, these rules require 
a patient's permission (often referred to as ``consent'' in these 
rules) in writing in order for the individually identifiable health 
information regulated by those laws to be shared. One example is the 
Federal Confidentiality of Alcohol and Drug Abuse Patient Records 
regulations (42 CFR part 2) (``part 2'') that apply to information 
about treatment for substance abuse from federally funded 
programs.\109\ There are also federal laws protecting certain types of 
health information coming from covered U.S. Department of Veterans 
Affairs facilities and programs (38 U.S.C. 7332). These laws and 
comparable state laws were established, in part, to address the social 
stigma associated with certain medical conditions by encouraging people 
to get treatment and providing them a higher degree of control over how 
their health information may be shared. These laws place certain 
responsibilities on providers to maintain the confidentiality of such 
information. More restrictive state laws also protect certain 
categories of individually identifiable health information, such as 
information regarding minors or teenagers, intimate partner/sexual 
violence, genetic information, and HIV-related information.\110\ These 
laws and regulations remain in effect and changes to these laws and 
regulations are not within the scope of this proposed rule.\111\ 
However, with these laws in mind, the proposals that follow seek to 
encourage the development and use of a technical capability that 
permits users to comply with these existing laws and regulations. These 
proposals are also in line with the Connecting Health and Care for the 
Nation: A Shared Nationwide Interoperability Roadmap Version 1.0.\112\ 
HHS is committed to encouraging the development and use of policy and 
technology to advance patients' rights to access, to amend, and to make 
choices for the disclosure of their electronic individually 
identifiable health information. HHS also noted support for the 
development of standards and technology to facilitate patients' ability 
to control the disclosure of specific information that is considered by 
many to be sensitive in nature (such as information related to 
substance abuse treatment, reproductive health, mental health, or HIV) 
in an electronic environment.\113\
---------------------------------------------------------------------------

    \109\ http://www.healthit.gov/sites/default/files/privacy-security/gwu-data-segmentation-final-cover-letter.pdf.
    \110\ http://www.healthit.gov/providers-professionals/patient-consent-electronic-health-information-exchange/health-information-privacy-law-policy.
    \111\ For a policy discussion, see Substance Abuse and Mental 
Health Services Administration (SAMHSA)'s recent public listening 
session pertaining to the federal confidentiality of regulations: 
https://www.federalregister.gov/articles/2014/05/12/2014-10913/confidentiality-of-alcohol-and-drug-abuse-patient-records.
    \112\ http://www.healthit.gov/sites/default/files/nationwide-interoperability-roadmap-draft-version-1.0.pdf.
    \113\ http://www.healthit.gov/sites/default/files/nationwide-interoperability-roadmap-draft-version-1.0.pdf.
---------------------------------------------------------------------------

    Technological advances are creating opportunities to share data and 
allow patient preferences to electronically persist in health IT. In 
2012, ONC launched the Data Segmentation for Privacy (DS4P) initiative 
through ONC's Standards and Interoperability (S&I) Framework.\114\ The 
DS4P initiative aimed to provide technical solutions and pilot 
implementations to help meet existing legal requirements in an 
increasingly electronic environment.\115\ The DS4P initiative worked to 
enable the implementation and management of varying disclosure policies 
in an electronic health information environment in an interoperable 
manner. Overall, the DS4P initiative and its subsequent pilots focused 
on the exchange of health information in the context of 42 CFR part 2 
and sought to develop technical standards that would enable a provider 
to adopt health IT that could segment electronic sensitive health 
information regulated by more restrictive laws and make compliance with 
laws like Part 2 more efficient. Since the sunset of the DS4P 
initiative in April 2014, there have been live implementations and 
public testimony regarding the success and practical application of the 
DS4P standard. Organizations including the Substance Abuse and Mental 
Health Services Administration (SAMHSA), the U.S. Department of 
Veterans Affairs (VA), and private companies that participated in the 
initiative have moved to production use of DS4P. For example, a 
stakeholder who implemented the DS4P part 2 solution noted that the 
DS4P technical capability implemented in parts of Florida has saved 
some hospitals millions of dollars associated with the cost of care 
because the patients they treat with substance use issues or behavioral 
health issues were able to send an electronic referral and get a 
discharge performed earlier in the process.\116\ Another technology 
stakeholder incorporated the DS4P technical functionality into its 
behavioral health and general hospital health IT solutions released 
this year. Most recently, SAMHSA developed an open source technology 
for patient consent management that uses the DS4P standard.\117\ In 
September 2014, this technical solution was deployed into a live 
environment at a public health department.
---------------------------------------------------------------------------

    \114\ http://wiki.siframework.org/Data+Segmentation+for+Privacy+Use+Cases.
    \115\ For more information about enabling privacy through data 
segmentation technology, see http://www.healthit.gov/providers-professionals/enabling-privacy.
    \116\ See Health IT Policy Committee's (HITPC) Privacy and 
Security Tiger Team Public Meeting, Transcript, (Apr. 16, 2014), p. 
14, http://www.healthit.gov/facas/sites/faca/files/PSTT_Transcript_Final_2014-04-16.pdf.
    \117\ http://www.healthit.gov/providers-professionals/ds4p-initiative.
---------------------------------------------------------------------------

    The technical specifications are outlined in the HL7 Version 3 
Implementation Guide: DS4P, Release 1

[[Page 16841]]

(DS4P IG), Part 1: CDA R2 and Privacy Metadata.\118\ The DS4P IG 
describes the technical means of applying security labels (privacy 
metadata) which can be used to enact any security or privacy law, 
regulation, or policy so that the appropriate access control decisions 
will be made regarding downstream use, access or disclosure for 
specially protected data so that appropriate metadata tags are applied.
---------------------------------------------------------------------------

    \118\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=354. Completed Normative Ballot in 
January 2014 and was successfully reconciled in February 2014. HL7 
approved the final standard for publication and ANSI approved in May 
2014.
---------------------------------------------------------------------------

    Conceptually, the DS4P approach utilizes metadata applied in layers 
(e.g. metadata applied to the header, section, or entry levels of a C-
CDA document). The DS4P technical approach defaults to privacy metadata 
tagging at the document level. If an organization chooses to apply 
additional privacy metadata tagging within a document, that optional 
technical capability is also described within the IG for CDA. If a 
receiving system is unable to process section or entry level privacy 
metadata, the default is tagging at the document level. The approach 
relies on certain electronic actions being taken by both the sending 
system and the receiving system. The sending system must:
    1. Identify information that requires enhanced protection or is 
subject to further restrictions;
    2. Verify that the patient's privacy consent decision allows for 
the disclosure of health information; \119\ and
---------------------------------------------------------------------------

    \119\ http://www.healthit.gov/providers-professionals/patient-consent-electronic-health-information-exchange.
---------------------------------------------------------------------------

    3. Add privacy metadata to the health information being disclosed.
    In turn, the receiving system must:
    1. Be able to process the privacy metadata associated with the 
received health information; and
    2. Verify the patient's consent before re-disclosure, if the 
receiving system has a need to re-disclose the information.
    Data segmentation technology emerged to enable health care 
providers' use of technology to comply with existing privacy laws, 
regulations, and policies. The term ``data segmentation'' is often used 
to describe the electronic labeling or tagging of a patient's health 
information in a way that allows patients or providers to 
electronically share parts,\120\ but not all, of a patient record. For 
example, data segmentation technology can be applied to the sharing of 
electronic sensitive health information, because that information is 
afforded greater protections under various state and federal laws,\121\ 
as is discussed above. In this proposed rule, we propose to offer two 
certification criteria that would allow for health IT to be presented 
for testing and certification to the DS4P standard. We view the 
proposed offering of certification to these criteria as an initial step 
on technical standards towards the ability of an interoperable health 
care system to compute and persist the applicable permitted access, use 
or disclosure; whether regulated by state or federal laws regarding 
sensitive health information or by an individual's documented choices 
about downstream access to, or use or disclosure to others of, the 
identifiable individual's health information. The application of the 
DS4P standard at the document level is an initial step. We understand 
and acknowledge additional challenges surrounding the prevalence of 
unstructured data, sensitive images, and potential issues around use of 
sensitive health information by CDS systems. The adoption of document 
level data segmentation for structured documents will not solve these 
issues, but will help move technology in the direction where these 
issues can be addressed.
---------------------------------------------------------------------------

    \120\ The HL7 approved standard does allow for tagging at the 
data element level, but this proposed rule is suggesting just 
applying the DS4P to the document level.
    \121\ http://www.healthit.gov/providers-professionals/patient-consent-electronic-health-information-exchange/health-information-privacy-law-policy.
---------------------------------------------------------------------------

    For example, today, electronic sensitive health information is not 
typically kept in the same repository as non-sensitive data. If 
security labels were applied to C-CDA documents at the time they are 
created (see ``data segmentation for privacy--send'' certification 
criterion), the receiving system would have more choices about how to 
store and use that sensitive information. If the receiving system had 
the capability to grant access to the tagged documents by using the 
security labels as part of the access control decision, then co-
mingling the tagged, sensitive health information with the non-
sensitive data becomes more achievable.
    In July 2014, the HITPC provided recommendations on the use of DS4P 
technology to enable the electronic implementation and management of 
disclosure policies that originate from the patient, the law, or an 
organization, in an interoperable manner, so that electronic sensitive 
health information may be appropriately shared.\122\ The HITPC noted a 
clear need to provide coordinated care for individuals with mental 
health and/or behavioral health issues. The HITPC recognized that the 
ability of patients to withhold consent to disclose information remains 
a concern for providers. In particular, providers want to provide the 
best care for patients, but they have concerns about incomplete records 
due to both professional obligation and liability considerations. While 
the need for providers to act on incomplete information is not 
necessarily new, the use of health IT may create an expectation of more 
complete information.\123\ In recognition of the consumer, business, 
clinical, and technical complexities, the HITPC suggested a framework 
of two glide paths for the exchange of 42 CFR part 2-protected data, 
based on whether the subject is sending or receiving information.\124\ 
As a first step in the glide path, the HITPC recommended that we 
include Level 1 (document level tagging) send and receive 
functionality.\125\ Document level is the most basic level of privacy 
metadata tagging described in the DS4P standard. The following two 
proposals would implement the HITPC's recommendations.
---------------------------------------------------------------------------

    \122\ See Health IT Policy Committee (HITPC) Recommendation 
Letter to ONC, July 2014, http://www.healthit.gov/facas/sites/faca/files/PSTT_DS4P_Transmittal%20Letter_2014-07-03.pdf; see also 
HITPC's Privacy and Security Tiger Team Public Meeting, Transcript, 
May 12, 2014, http://www.healthit.gov/facas/sites/faca/files/PSTT_Transcript_Final_2014-05-12.pdf; Public Meeting, Transcript, 
May 27, 2014, http://www.healthit.gov/facas/sites/faca/files/PSTT_Transcript_Final_2014-05-27.pdf.
    \123\ Id.
    \124\ For more details on the two glide paths for part 2-
protected data, see http://www.healthit.gov/facas/sites/faca/files/PSTT_DS4P_Transmittal%20Letter_2014-07-03.pdf.
    \125\ Id. See also, related HITPC recommendations pertaining to 
data segmentation submitted to ONC in September 2010: http://www.healthit.gov/sites/faca/files/hitpc_transmittal_p_s_tt_9_1_10_0.pdf.
---------------------------------------------------------------------------

     Data Segmentation for Privacy--Send

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(b)(7) (Data segmentation for privacy--send)
------------------------------------------------------------------------

    A provider currently cannot send sensitive patient information 
electronically without some technical capability to indicate 
information is subject to restrictions, such as a prohibition on re-
disclosure without consent, consistent with 42 CFR part 2. The sending 
provider also must have confidence that the receiver can properly 
handle electronically sent 42 CFR part 2-covered data. Because neither 
of these functionalities are currently supported in certification, 
sensitive health information such as 42 CFR part 2-covered data is 
often only

[[Page 16842]]

shared via paper and fax. We propose, consistent with the HITPC 
recommendations, that for certification to this criterion, a Health IT 
Module must be able to send documents using document level tagging 
(Level 1) in accordance with the DS4P IG. Document level tagging 
enables health IT to send the 42 CFR part 2-covered data along with the 
appropriate privacy metadata tagging and keep it sequestered from other 
data. The DS4P IG, which includes Level 1 functionality, provides 
guidance to allow, with proper authorization, a system to send a C-CDA 
with tags indicating any restrictions (such as a prohibition on re-
disclosure without consent). While the DS4P IG specifies the technical 
means for applying privacy metadata tagging to C-CDA documents, it also 
optionally supports use of privacy metadata tagging within the document 
(at the section and entry levels). We only propose to require the 
document level functionality for sending as part of certification to 
this criterion.
     Data Segmentation for Privacy--Receive

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(b)(8) (Data segmentation for privacy--receive)
------------------------------------------------------------------------

    In general, 42 CFR part 2-covered data is not currently provided 
electronically to healthcare providers through electronic exchange. 
Instead, the status quo remains to share 42 CFR part 2-covered data via 
paper and fax. In line with the HITPC recommendations, we propose a 
certification criterion that would require a Health IT Module to be 
able to receive 42 CFR part 2-covered data in accordance with the DS4P 
IG. DS4P at the document level (Level 1) of the recommendations allows 
recipient health IT to receive, recognize, and view documents with 
privacy metadata tagging indicating certain restrictions from 42 CFR 
part 2 providers with the document sequestered from other health IT 
data. A recipient provider could use document level tagging to 
sequester the document from other documents received and help prevent 
unauthorized re-disclosure, while allowing the sensitive data to flow 
more freely to authorized recipients. Thus, consistent with the HITPC 
recommendations, we propose that a Health IT Module be able to receive 
documents tagged with privacy metadata tagging (Level 1).
     Care Plan

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(b)(9) (Care plan)
------------------------------------------------------------------------

    We propose to adopt a new 2015 Edition certification criterion that 
would reflect a Health IT Module's ability to enable a user to record, 
change, access, create and receive care plan information in accordance 
with the ``Care Plan document template'' in the C-CDA Release 2.0 
standard.
    The S&I Framework Longitudinal Coordination of Care (LCC) 
Longitudinal Care Plan Sub-Work Group defined a ``care plan'' as ``the 
synthesis and reconciliation of the multiple plans of care produced by 
each provider to address specific health concerns. It serves as the 
blueprint shared by all participants to guide the individual's care. As 
such, it provides the structure required to coordinate care across 
multiple sites, providers, and episodes of care.'' \126\ The care plan 
helps multiple providers and caregivers align and coordinate care, 
which is especially valuable for patients living with chronic 
conditions and/or disabilities. It also provides a structure to promote 
the consideration of a patient's future goals and expectations in 
addition to managing their currently active health issues.
---------------------------------------------------------------------------

    \126\ http://wiki.siframework.org/file/view/Care%20Plan%20Glossary_v25.doc/404538528/Care%20Plan%20Glossary_v25.doc.
---------------------------------------------------------------------------

    The C-CDA Release 2.0 contains a Care Plan document template that 
reflects these principles and provides a structured format for 
documenting information such as the goals, health concerns, health 
status evaluations and outcomes, and interventions. Note that the Care 
Plan document template is distinct from the ``Plan of Care Section'' in 
previous versions of the C-CDA. The Care Plan document template 
represents the synthesis of multiple plans of care (for treatment) for 
a patient, whereas the Plan of Care Section represented one provider's 
plan of care (for treatment). To make this distinction clear, the C-CDA 
Release 2.0 has renamed the previous ``Plan of Care Section'' as the 
``Plan of Treatment Section (V2).''
    Given the value for improved coordination of care, we propose a new 
2015 Edition certification criterion for ``care plan'' that would 
require a Health IT Module to enable a user to record, change, access, 
create, and receive care plan information in accordance with the ``Care 
Plan document template'' in the HL7 Implementation Guide for 
CDA[supreg] Release 2: Consolidated CDA Templates for Clinical 
Notes.\127\ The IG provides guidance for implementing CDA documents, 
including the Care Plan document template. The ``transitions of care'' 
certification criterion proposed elsewhere in this section of the 
preamble would require a Health IT Module enable a user to send and 
receive transitions of care/referral summaries according to the C-CDA 
Release 2.0, which would include the Care Plan document template. 
Therefore, this criterion would focus only on a Health IT Module's 
ability to enable a user to record, change, access, create, and receive 
care plan information. We welcome comment on our proposal, including 
whether we should require certain ``Sections'' that are currently 
deemed optional as part of the Care Plan document template for 
certification to this criterion. For example, we invite comment on 
whether we should require the optional ``Health Status Evaluations and 
Outcomes Section'' and ``Interventions Section (V2)'' as part of 
certification to this criterion, and if so, for what value/use case.
---------------------------------------------------------------------------

    \127\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=379.
---------------------------------------------------------------------------

     Clinical Quality Measures--Record and Export

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(c)(1) (Clinical quality measures--record and export)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition certification criterion for 
``clinical quality measures (CQM)--record and export'' that is revised 
in comparison to the 2014 Edition ``CQM--capture and export'' 
certification criterion (Sec.  170.314(c)(1)). In order to align with 
our use of the term ``record'' used in other 2014 and 2015 Edition 
certification criteria, we propose to call this certification criterion 
``CQM--record and export.'' We explain the term ``record'' in the 2014 
Edition final rule at 77 FR 54168.\128\ We propose to require that a 
system user be able to export CQM data at any time the user chooses and 
without subsequent developer assistance to operate. We also propose to 
require that this certification criterion be part of the set of 
criteria necessary to satisfy the ``2015 Edition Base EHR'' definition 
(see also section III.B.1 of this preamble for a discussion of the 
proposed 2015 Edition Base EHR definition). Last, we solicit comment on 
the version of standards we should adopt for this certification 
criterion.
---------------------------------------------------------------------------

    \128\ ``Record'' is used to mean the ability to capture and 
store information in technology.
---------------------------------------------------------------------------

Standards for Clinical Quality Measures
    In the 2014 Edition ``CQM--capture and export'' certification 
criterion, we require that technology must be able to export a data 
file formatted in

[[Page 16843]]

accordance with the HL7 Implementation Guide for CDA Release 2: Quality 
Reporting Document Architecture (QRDA), DSTU Release 2 (July 2012) 
standard. We understand that the industry is working to harmonize both 
clinical quality measurement and CDS standards through initiatives such 
as the Clinical Quality Framework (CQF) S&I initiative. CDS guides a 
clinician to follow a standard plan of care, while CQMs measure 
adherence to a standard plan of care. Thus, these two areas are closely 
related and would benefit from standard ways to reference patient data 
within health IT as well as common logic to define a sub-population. 
The CQF S&I initiative is working to define a shared format, 
terminology, and logic between CQMs and CDS for improved efficiency, 
cost, and quality of care.
    In order to harmonize CQM and CDS standards, the industry is using 
pieces of existing CQM standards (e.g., Health Quality Measures Format 
(HQMF), QRDA Categories I and III, and the Quality Data Model (QDM)) 
and CDS standards (e.g., Clinical Decision Support Knowledge Artifact 
Specification (also known as HeD Schema) and the Virtual Medical 
Record). HL7 issued an errata (September 2014) \129\ that reflects 
updates based on an incremental version of the harmonized CQM and CDS 
standards (i.e., QDM-based HQMF Release 2.1).\130\ This errata is meant 
to be used in conjunction with the July 2012 QRDA IG we adopted in the 
2014 Edition. Our understanding is that the fully harmonized CQM and 
CDS standards will be based on the Quality Improvement and Clinical 
Knowledge (QUICK) data model,\131\ and that the industry expects to 
ballot a QUICK FHIR-based DSTU serving the same function as the HQMF 
standard at the May 2015 HL7 meeting. Subsequent standards for 
electronically processing and reporting CQMs and CDS would then be 
expected to be built on the QUICK data model, including a QRDA-like 
standard based on the anticipated QUICK FHIR-based DSTU.
---------------------------------------------------------------------------

    \129\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=35. Please note that in order to access 
the errata, the user should download the ``HL7 Implementation Guide 
for CDA Release 2: Quality Reporting Document Architecture--Category 
I, DSTU Release 2 (US Realm)'' package.
    \130\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=97.
    \131\ http://www.hl7.org/special/Committees/projman/searchableProjectIndex.cfm?action=edit&ProjectNumber=1045.
---------------------------------------------------------------------------

    Given the timing of this proposed rule and the expected 
deliverables for harmonized CQM and CDS standards as described above, 
we solicit comment on the version of QRDA or the QRDA-like standards we 
should adopt for this certification criterion. Specifically, we solicit 
comment on the following three options:
     HL7 Implementation Guide for CDA Release 2: Quality 
Reporting Document Architecture (QRDA), DSTU Release 2 (July 2012);
     HL7 Implementation Guide for CDA Release 2: Quality 
Reporting Document Architecture (QRDA), DSTU Release 2 (July 2012) and 
the September 2014 Errata; or
     A QRDA-like standard based on the anticipated QUICK FHIR-
based DSTU.CQM standards we should adopt for this certification 
criterion.
    We anticipate that the QUICK data model will not be available to 
review during the public comment period of this NPRM, and welcome 
stakeholder input on the usefulness of adopting the current (July 2012) 
QRDA standard alone or in conjunction with the September 2014 errata 
given that we anticipate there will be harmonized CQM and CDS standards 
available in mid-2015. We also seek to understand the tradeoffs 
stakeholders perceive in adopting each standard provided that the EHR 
Incentive Programs Stage 3 proposed rule is proposing that technology 
certified to the 2015 Edition would not be required until January 1, 
2018, but that technology certified to the 2015 Edition ``CQM--record 
and export'' certification criterion would be needed for EPs, eligible 
hospitals, and CAHs participating in the EHR Incentive Programs Stage 3 
objectives and measures in 2017. Thus, we welcome input on recommended 
QRDA standards for the ``CQM--record and export'' certification 
criterion factoring in where the industry may be with adoption of CQM 
and CDS standards over the next few years.
User Ability To Export CQM Data
    We have received stakeholder feedback that some systems certified 
to the 2014 Edition ``CQM--capture and export'' certification criterion 
do not provide users with the ability to export data ``on demand'' nor 
to export batches of multiple patients simultaneously. Rather, some 
users of certified health IT must request this functionality from the 
health IT developer. Our intent is that users should be able to export 
CQM data formatted to the QRDA standard at any time the user chooses 
for one or multiple patients and without additional assistance. Thus, 
as proposed, when a Health IT Module is presented for certification to 
this criterion, we would expect that testing of the Health IT Module 
would include demonstration of a user's ability to export CQM data 
without subsequent health IT developer assistance beyond normal 
orientation/training.
     Clinical Quality Measures--Import and Calculate

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criteria
Sec.   170.315(c)(2) (Clinical quality measures--import and calculate)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition certification criterion for 
``clinical quality measures (CQM)--import and calculate'' that is 
revised in comparison to the 2014 Edition ``CQM--import and calculate'' 
certification criterion (Sec.  170.314(c)(2)). We propose to require 
that a system user be able to import CQM data at any time the user 
chooses and without subsequent health IT developer assistance to 
operate. We also no longer include an exemption that would allow a 
Health IT Module presented for certification to all three CQM 
certification criteria (Sec. Sec.  170.315(c)(1), (c)(2), and (c)(3)) 
to not have to demonstrate the data import capability. Last, we solicit 
comment on our intended direction for testing and certifying health IT 
and the version of standards we should adopt for this certification 
criterion.
User Ability To Import CQM Data
    We have received stakeholder feedback that some systems certified 
to the 2014 Edition ``CQM--import and calculate'' certification 
criterion do not provide users the ability to import data ``on 
demand,'' and rather users must request this functionality from the 
system developer or vendor. Our intent is that users should be able to 
import CQM data formatted to the QRDA standard for one or multiple 
patients at any time the user chooses and without additional 
assistance. Thus, when a Health IT Module is presented for 
certification to this criterion, we would expect that testing of the 
Health IT Module would include demonstration of a user's ability to 
import CQM data without subsequent health IT developer assistance 
beyond normal orientation/training.
Import of CQM Data
    For the 2014 Edition, we do not require systems that certify to 
Sec.  170.314(c)(1) (CQM--capture and export), Sec.  170.314(c)(2) 
(CQM--import and calculate), and Sec.  170.314(c)(3) (CQM--electronic 
submission) to have to demonstrate that they can import data files in 
accordance with the QRDA

[[Page 16844]]

standard. In 2012, we adopted this policy because we did not believe 
that systems that could perform capture, export, and electronic 
submission functions would need to import CQM data as they were in 
essence ``self-contained'' (77 FR 54231). However, we have received 
stakeholder input recommending that all systems should be able to 
import CQM data and that there could be instances were a provider using 
one technology to record CQM data could not subsequently import such 
data into a different technology. We agree with this feedback. 
Therefore, this exemption will no longer carry forward as part of the 
proposed 2015 Edition version of this certification criterion. This 
means that a Health IT Module presented for certification to this 
certification criterion (Sec.  170.315(c)(2)) would need to be able to 
demonstrate the ability to import data in order to be certified to this 
certification criterion even if they also certify to provide ``record 
and export'' and ``electronic submission/report'' functions.
Testing of Import and Calculate Functionalities
    The testing procedures for the 2014 Edition ``CQM--import and 
calculate'' certification criterion only test that technology can 
import a small number of test records and use those for calculation of 
CQM results. We have received feedback that technology should be able 
to import a larger number of test records and that we should test this 
ability to reflect real-world needs for technology. With the import of 
a large number of records, technology also needs to be able to de-
duplicate records for accurate calculation of CQM results. Therefore 
for testing and certification to the proposed 2015 Edition ``CQM--
import and calculate'' certification criterion, we intend for testing 
to include that technology can import a larger number of test records 
compared to testing for the 2014 Edition and automatically de-duplicate 
them for accurate CQM calculation. We welcome comment on our proposed 
intentions to test a larger number of test records compared to the 2014 
Edition test procedure and that a Health IT Module could eliminate 
duplicate records. We also request comment on the number of test 
records we should consider testing a Health IT Module for performing 
import and calculate functions.
Standards for Clinical Quality Measures
    We describe above in the preamble for the proposed 2015 Edition 
``CQM--record and export'' certification criterion our understanding of 
the industry's timeline and expected deliverables for harmonized CQM 
and CDS standards. Given the discussion above, we also solicit comment 
on the QRDA standards we should consider adopting for this 2015 Edition 
``CQM--import and calculate'' certification criterion.
     Clinical Quality Measures--Report

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criteria
Sec.   170.315(c)(3) [Reserved]
------------------------------------------------------------------------

    In the 2014 Edition, we adopted a ``CQM--electronic submission'' 
certification criterion that requires technology to enable a user to 
electronically create a data file for transmission of CQM data in 
accordance with QRDA Category I and III standards and ``that can be 
electronically accepted by CMS'' (Sec.  170.314(c)(3)). We have 
received stakeholder feedback recommending we better align our 
certification policy and standards for electronically-specified CQM 
(eCQM) reporting with other CMS programs that include eCQMs, such as 
the Physician Quality Reporting System (PQRS) and Hospital Inpatient 
Quality Reporting (IQR) programs. The PQRS and Hospital IQR programs 
update their measure specifications on an annual basis through 
rulemaking in the Physician Fee Schedule (PFS) and Inpatient 
Prospective Payment Systems (IPPS) rules respectively.
    To better align with the reporting requirements of other CMS 
programs, we intend to propose certification policy for reporting of 
CQMs in or with annual PQRS and/or Hospital IQR program rulemaking. We 
anticipate we will propose standards for reporting of CQMs that reflect 
CMS' requirements for the ``form and manner'' of CQM reporting (e.g., 
CMS program-specific QRDA standards), allowing for annual updates of 
these requirements as necessary. Under this approach, the ``CQM--
report'' certification policy and associated standards for the 2015 
Edition that support achieving EHR Incentive Program requirements would 
be proposed jointly with the calendar year (CY) 2016 PFS and/or IPPS 
proposed rules. We anticipate these proposed and final rules will be 
published in CY 2015. We clarify that we anticipate removing 
``electronic'' from the name of this certification criterion. As 
described in the preamble, we expect that all functions proposed in the 
2015 Edition certification criteria are performed or demonstrated 
electronically. Thus, it is not necessary to specifically include this 
requirement in the title of this certification criterion. We also 
anticipate naming this certification criterion ``report'' instead of 
``submission'' to better align with the language we use in other 
certification criteria that also require demonstration of the same 
functionality to submit data.
     Clinical Quality Measures--Filter

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(c)(4) (Clinical quality measures--filter)
------------------------------------------------------------------------

    We propose to adopt a new 2015 Edition certification criterion for 
CQM filtering. In the Voluntary Edition proposed rule, we proposed a 
new certification criterion that would require health IT to be able to 
record structured data for the purposes of being able to filter CQM 
results to create different patient population groupings by one or more 
of a combination of certain patient characteristics \132\ (79 FR 10903-
04). We proposed this capability to support eCQM reporting where the 
reporting entity is not an individual provider but rather a group 
practice or an accountable care organization (ACO). We also proposed 
certain patient characteristics that would support identification of 
health disparities, help providers identify gaps in quality, and 
support a provider in delivering more effective care to sub-groups of 
their patients. We did not adopt this certification criterion in the 
2014 Edition Release 2 final rule as we received comments recommending 
we further refine the use cases and perform more analysis of which data 
elements are being captured in standardized ways (79 FR 54462).
---------------------------------------------------------------------------

    \132\ Practice site and address; Tax Identification Number 
(TIN), National Provider Identifier (NPI), and TIN/NPI combination; 
diagnosis; primary and secondary health insurance, including 
identification of Medicare and Medicaid dual eligible; demographics 
including age, sex, preferred language, education level, and 
socioeconomic status.
---------------------------------------------------------------------------

    CMS offers various options for providers to report quality data as 
part of a group instead of individually reporting as individual 
providers. For example, the PQRS offers the Group Practice Reporting 
Option (GPRO) that allows for assessment and payment (or adjustment) 
based on reporting of data on quality measures at the group level. 
Similarly, there are group reporting options, including the GRPO under 
the PQRS for reporting data used to assess quality for purposes of the 
Value Modifier under the Medicare Physician Fee Schedule. Another CMS 
group reporting option is the Comprehensive Primary Care (CPC) 
initiative. In the CPC initiative, participating primary

[[Page 16845]]

care practices receive care management fees to support enhanced, 
coordinated services. In the CPC initiative, each physical site 
location is counted as a ``practice.'' A group practice may encompass 
several primary care sites, of which some, but not all, are 
participating in CPC. Because the unit of analysis in CPC is the 
practice site, CMS requires all CPC participants to report CQMs at the 
level of the practice rather than at the level of the individual 
provider. Each CPC practice's quality results, which include 
performance on patient experience and claims measures as well as CQMs, 
are tied to the distribution of any Medicare shared savings calculated 
and earned at the level of the Medicare population of each region 
participating in the initiative.
    ACO models and programs, such as the Medicare Shared Savings 
Program (MSSP) and CMS Pioneer ACO Model, include groups of doctors, 
hospitals, and other health care providers who come together 
voluntarily to give coordinated high quality care to their patients. In 
ACO models and programs, the providers that participate in the ACO 
share responsibility for the care and outcomes of their patients. For 
example, MSSP participants are rewarded if the ACO lowers the growth in 
its health care costs while meeting performance standards on quality of 
care. ACOs are required to internally report on cost and quality 
metrics associated with the activities of their practitioners, to 
promote the use of evidence-based medicine, and to support the care 
coordination activities of their practitioners. Understanding the 
practice patterns of individual practitioners for services provided on 
behalf of the ACO is therefore important for such organizations.
    In some cases, not all providers practicing at a particular 
practice site location or in an ACO will be participating in the group 
practice or ACO reporting options. The National Provider Identifier 
(NPI) is insufficient by itself to attribute a provider's performance 
to a particular group practice or ACO, as the provider could practice 
in multiple health care organizations. Likewise, a health care 
organization may have multiple Tax Identification Numbers (TINs). 
Currently, data may be accessed by filtering on either the TIN or the 
NPI, but not in combination due, in part, to current CMS reporting 
requirements and limitations of health IT being used by providers. The 
ability to filter by a combination of NPI/TIN could allow for more 
specific and proper attribution of a provider's performance to the 
correct organization for aggregating group practice or ACO quality 
measure results.
    Health IT should support an organization's ability to filter both 
individual patient level and aggregate level eCQM results by data that 
would support administrative reporting as well as identification of 
health disparities and gaps in care for patients being treated at 
particular group practice sites or in a given ACO. We, therefore, 
propose a new certification criterion for CQM filtering that would 
require health IT to be able to record data (according to specified 
standards, where applicable) and filter CQM results at both patient and 
aggregate levels by each one and any combination of the following data:
     TIN;
     NPI;
     Provider type;
     Patient insurance;
     Patient age;
     Patient sex in accordance with the standard specified in 
Sec.  170.207(n)(1) (HL7 Version 3);
     Patient race and ethnicity in accordance with the 
standards specified in Sec.  170.207(f)(1) (OMB standard) and, at a 
minimum, (f)(2) (``Race & Ethnicity--CDC'' code system in the PHIN 
VADS);
     Patient problem list data in accordance with, at a 
minimum, the version of the standard specified in Sec.  170.207(a)(4) 
(September 2014 Release of the U.S. Edition of SNOMED CT[supreg]); and
     Practice site address.
    We clarify that a Health IT Module must be able to filter by any 
combination of the proposed data elements (i.e., by any one (e.g., 
provider type) or a combination of any of the data elements (e.g., 
combination of TIN and NPI or combination of all data)). We also note 
that this combination requirement is different than other proposed 
certification criteria in that it requires all combinations to be 
demonstrated for certification and not just one. We anticipate that if 
adopted, stakeholders may want to expand the list of data in this 
certification criterion and support the reporting needs of additional 
programs over time. Our intent with this proposal is to continue to 
work with CMS and other stakeholders to ensure that this list of data 
represents a common and relatively stable set across program needs in 
support of program alignment.
    For certain data elements, we have specified vocabulary standards 
(as identified above) to maintain consistency in the use of adopted 
national standards. As part of the 2014 Edition, technology is 
certified to record patient race, ethnicity, and problem lists in 
accordance with standards. In this proposed rule, for the 
``demographics'' certification criterion and other criteria, we propose 
to certify a Health IT Module to record patient sex, race, and 
ethnicity in accordance with standards we propose to adopt as part of 
the 2015 Edition. We also propose to certify a Health IT Module to the 
record patient problem lists in accordance with the latest version of 
the SNOMED CT[supreg] standard. Please refer to the proposed 
``demographics'' and ``problem list'' certification criteria discussed 
earlier in this section of the preamble for a more detailed discussion 
about the standards. We are also aware that patient sex, race, and 
ethnicity are being collected as supplemental data to the Quality 
Reporting Data Architecture (QRDA) Category I and III files for eCQM 
reporting to CMS. Collection of patient date of birth is currently 
required as part of the 2014 Edition ``demographics'' certification 
criterion, and is being proposed for the 2015 Edition ``demographics'' 
certification criterion. Therefore, we believe there should not be a 
large developmental burden to enable a Health IT Module to record these 
data because they are already being collected through policy 
established in the 2014 Edition and/or are being proposed as part of 
2015 Edition certification criteria discussed elsewhere in this 
proposed rule.
    We are aware that patient insurance can be collected using a payer 
value set that denotes whether the patient has Medicare, Medicaid, and/
or another commercial insurance. We solicit comment on other payer 
value sets that could be leveraged to support this proposal. We believe 
that provider type could also inform quality improvement if there are 
differences in quality measure results by different types of providers. 
We are aware of the Healthcare Provider Taxonomy Code Set designed to 
categorize the type, classification, and/or specialization of health 
care providers.\133\ Health care providers applying for an NPI must 
select a Healthcare Provider Taxonomy Code or code description during 
the application process. We solicit comment on the appropriateness of 
this code set for classifying provider types as well as other standards 
that could be used classify provider types.
---------------------------------------------------------------------------

    \133\ http://www.cms.gov/Medicare/Provider-Enrollment-and-Certification/MedicareProviderSupEnroll/Taxonomy.html
---------------------------------------------------------------------------

    In order to support the identification of CQM results for a 
particular practice, we propose to include practice site address in the 
list of data. We note that

[[Page 16846]]

while this information may not be needed for CQM filtering at the ACO 
level, certification would require that health IT enables a user to 
record practice site address, but not dictate that a user must include 
this information. We believe the industry is aware of the need to 
identify a standard way to represent address. While such a standard is 
being developed, we believe that to support group or practice 
reporting, having the address is one of the key data elements that 
would allow a provider using health IT to filter CQM results at the 
practice or group level. We solicit comment on standards for collecting 
address data that could be leveraged to support this functionality.
    We solicit comment on the appropriateness of the proposed data 
elements for CQM filtering, including whether they are being captured 
in standardized vocabularies. We also solicit comment on additional 
data elements that we should consider for inclusion and standardized 
vocabularies that might be leveraged for recording this information in 
health IT.
     Authentication, Access Control, and Authorization

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(d)(1) (Authentication, access control, and authorization)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``authentication, access 
control, and authorization'' certification criterion that is unchanged 
in comparison to the 2014 Edition ``authentication, access control, and 
authorization'' criterion (Sec.  170.314(d)(1)).
     Auditable Events and Tamper-Resistance

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(d)(2) (Auditable events and tamper-resistance )
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``auditable events and tamper-
resistance'' certification criterion that is unchanged in comparison to 
the 2014 Edition ``auditable events and tamper-resistance'' criterion 
(Sec.  170.314(d)(2)). We seek comment, however, on two issues. In 
August 2014, the HHS Office of Inspector General (OIG) released a 
report entitled ``The Office of the National Coordinator for Health 
Information Technology's Oversight of the Testing and Certification of 
Electronic Health Records.'' \134\ In that report, the OIG found that 
ONC approved test procedures did not address common security issues, 
including ``logging emergency access or user privilege changes.'' The 
OIG therefore recommended ``. . . that ONC work with NIST to strengthen 
EHR test procedure requirements so that the ATCBs [ONC-Authorized 
Testing and Certification Bodies] can ensure that EHR vendors 
incorporate common security and privacy features into the development 
of EHRs.'' \135\
---------------------------------------------------------------------------

    \134\ http://oig.hhs.gov/oas/reports/region6/61100063.pdf
    \135\ http://oig.hhs.gov/oas/reports/region6/61100063.pdf
---------------------------------------------------------------------------

    The standards adopted at Sec.  170.210(e) and referenced by the 
2014 Edition ``auditable events and tamper-resistance'' and ``audit 
report(s)'' certification criteria require that technology must be able 
to record audit log information as specified in sections 7.2 through 
7.4, 7.6 and 7.7 of the standard adopted at 45 CFR 170.210(h). The 
standard adopted at Sec.  170.210(h) is ASTM E2147.\136\ Section 7.6 of 
ASTM E2147 specifies that audit log content needs to include the ``type 
of action'' and references six ``actions:'' Additions, deletions, 
change, queries, print, and copy. Section 7.7 requires that the audit 
log record when patient data is accessed. So while not explicitly 
referenced in section 7.6, the action of ``access'' or viewing of a 
patient's information is also required to be recorded for 
certification. Moreover, we clarify that an ``emergency access'' event 
is expected to be recorded (just like any other access) in accordance 
with section 7.7.
---------------------------------------------------------------------------

    \136\ http://www.astm.org/Standards/E2147.htm. The standard is 
also incorporated by reference at 45 CFR 170.299(c)(1) and available 
at the Office of the Federal Register.
---------------------------------------------------------------------------

    Because it does not appear that the ASTM standard indicates 
recording an event when an individual's user privileges are changed, we 
seek comment on whether we need to explicitly modify/add to the overall 
auditing standard adopted at 170.210(e) to require such information to 
be audited or if this type of event is already audited at the point of 
authentication (e.g., when a user switches to a role with increased 
privileges and authenticates themselves to the system). We also seek 
comments on any recommended standards to be used in order to record 
those additional data elements.
    In a 2013 report entitled ``Not All Recommended Safeguards Have 
Been Implemented in Hospital EHR Technology (OEI-01-11-00570),'' \137\ 
the OIG recommended that ONC should propose a revision to this 
certification criterion to require that EHR technology keep the audit 
log operational whenever the EHR technology is available for updates or 
viewing or, alternatively, CMS could update its meaningful use criteria 
to require providers to keep the audit log operational whenever EHR 
technology is available for updates or viewing.\138\ As a result of 
that report, in the Voluntary Edition proposed rule, we proposed an 
``auditable events and tamper resistance'' certification criterion that 
would have required technology to prevent all users from being able to 
disable an audit log. While several commenters supported the proposal, 
an equal share expressed concern, including the HITSC. The HITSC 
recommended against implementing this proposal, indicating that the 
requirements of the 2014 Edition certification criterion (identifying 
only a limited set of users that could disable the audit log and 
logging when and by whom an audit log was disabled and enabled) 
provided sufficient parameters to determine the accountable party in 
the event of a security incident.\139\ Other commenters contended that 
including an absolute prohibition would be problematic because there 
are valid and important reasons for users to disable the audit log, 
including allowing a system administrator to disable the audit log for 
performance fixes, stability, disaster recovery, and system updates or 
allowing a system administrator to disable it when there is rapid 
server space loss which is hindering a provider from accessing needed 
clinical information in a timely manner.
---------------------------------------------------------------------------

    \137\ https://oig.hhs.gov/oei/reports/oei-01-11-00570.pdf.
    \138\ https://oig.hhs.gov/oei/reports/oei-01-11-00570.pdf.
    \139\ http://www.healthit.gov/FACAS/sites/faca/files/Baker_PSWG_2015editionnprm_public_comment_V2.pdf.
---------------------------------------------------------------------------

    We reiterate our policy first espoused with the adoption of the 
2014 Edition ``auditable events and tamper resistance'' certification 
criterion in that the ability to disable the audit log must be 
restricted to a limited set of users to meet this criterion. The 
purpose of this certification criterion is to require health IT to 
demonstrate through testing and certification that it has certain 
security capabilities built in. As we have evaluated both OIG's input 
and that of commenters, we believe our certification criterion is 
appropriately framed within the parameters of what our regulation can 
reasonably impose as a condition of certification. This regulation 
applies to health IT and not to the people who use it. Thus, how an 
individual provider or entity chooses to ultimately implement health IT 
that has been certified to this or any other certification criterion 
does so outside the scope of this regulation.

[[Page 16847]]

    We also received feedback to the Voluntary Edition proposed rule 
that there may be some events recorded in the audit log that may be 
more critical to record than other events. Commenters noted that there 
may be a critical subset of events that should remain enabled at all 
times, while other events could be turned off during critical times or 
for system updates by a subset of users. As noted above, the standards 
adopted at Sec.  170.210(e) and referenced by the 2014 Edition 
``auditable events and tamper-resistance'' certification criterion 
requires that health IT technology must be able to record additions, 
deletions, changes, queries, print, copy, access. The 2014 Edition also 
required the log to record when the audit log is disabled and by whom 
and that such capability must be restricted to a limited set of 
identified users. As a result, we again seek comment on whether:
     There is any alternative approach that we could or should 
consider;
     There is a critical subset of those auditable events that 
we should require remain enabled at all times, and if so, additional 
information regarding which events should be considered critical and 
why; and
     Any negative consequences may arise from keeping a subset 
of audit log functionality enabled at all times.
     Audit Report(s)

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(d)(3) (Audit report(s))
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``audit reports(s)'' 
certification criterion that is unchanged in comparison to the 2014 
Edition ``audit reports(s)'' criterion (Sec.  170.314(d)(3)).
     Amendments

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(d)(4) (Amendments)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``amendments'' certification 
criterion that is unchanged in comparison to the 2014 Edition 
``amendments'' criterion (Sec.  170.314(d)(4)). We note that this 
certification criterion only partially addresses the amendment of 
protected health information (PHI) requirements of 45 CFR 164.526.
     Automatic Access Time-Out

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(d)(5) (Automatic access time-out)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``automatic access time-out'' 
certification criterion that is unchanged (for the purposes of gap 
certification) in comparison to the 2014 Edition ``automatic log-off'' 
criterion (Sec.  170.314(d)(5)). The 2014 Edition ``automatic log-off'' 
criterion requires a Health IT Module to ``prevent a user from gaining 
further access to an electronic session after a predetermined time of 
inactivity.'' In June 2014, the Privacy and Security Workgroup (PSWG) 
of the HITSC assessed the automatic log-off criterion.\140\ While the 
2014 Edition criterion refers to ``sessions,'' the PSWG noted the need 
to recognize that many systems are not session-based. Instead, systems 
may be stateless, clientless, and/or run on any device. The PSWG 
further noted that the risk that this criterion addresses is the 
potential that protected health information could be disclosed through 
an unattended device. The HITSC recommended that this certification 
criterion should not be overly prescriptive so as to inhibit system 
architecture flexibility.
---------------------------------------------------------------------------

    \140\ http://www.healthit.gov/facas/sites/faca/files/HITSC_PSWG_2015NPRM_Update_2014-06-17.pdf.
---------------------------------------------------------------------------

    To clarify this intent and eliminate the reference to ``session,'' 
the PSWG suggested to the HITSC that this criterion by refined to state 
``automatically block access to protected health information after a 
predetermined period of inactivity through appropriate means until the 
original user re-authenticates or another authorized user 
authenticates.'' We agree in substance with the PSWG work and HITSC 
recommendations. Accordingly, we propose a 2015 Edition ``automatic 
access time-out'' certification criterion that reflects the HITSC 
recommendations and the work of the PSWG. Specifically, the criterion 
would require a Health IT Module to demonstrate that it can 
automatically stop user access to health information after a 
predetermined period of inactivity and require user authentication in 
order to resume or regain the access that was stopped. We note, 
however, that we do not believe this would have any impact on testing 
and certification as compared to testing and certification to the 2014 
Edition ``automatic log-off'' criterion (i.e., the 2015 ``automatic 
access time-out'' criterion would be eligible for gap certification). 
We welcome comments on this assessment.
     Emergency Access

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(d)(6) (Emergency access)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``emergency access'' 
certification criterion that is unchanged in comparison to the 2014 
Edition ``emergency access'' criterion (Sec.  170.314(d)(6)).
     End-User Device Encryption

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(d)(7) (End-user device encryption)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``end-user device encryption'' 
certification criterion that is unchanged (for the purposes of gap 
certification) in comparison to the 2014 Edition ``end-user device 
encryption'' criterion (Sec.  170.314(d)(7)). We propose to require 
certification to this criterion consistent with the most recent version 
of Annex A: Approved Security Functions (Draft, October 8, 2014) for 
Federal Information Processing Standards (FIPS) Publication 140-2.\141\ 
The purpose of this document is to provide a list of the approved 
security functions applicable to FIPS PUB 140-2. To maintain and update 
our certification requirements to the most recent NIST-approved 
security functions, we propose to move to the updated version of Annex 
A (Draft, October 8, 2014). We proposed to adopted this updated version 
of Annex A at Sec.  170.210(a)(3). We note, however, that we do not 
believe that this would have any impact on testing and certification as 
compared to testing and certification to the 2014 Edition ``end-user 
device encryption'' criterion (i.e., the 2015 ``end-user device 
encryption'' criterion would be eligible for gap certification). We 
welcome comments on this assessment.
---------------------------------------------------------------------------

    \141\ http://csrc.nist.gov/publications/fips/fips140-2/fips1402annexa.pdf.
---------------------------------------------------------------------------

     Integrity

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(d)(8) (Integrity)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``integrity'' certification 
criterion that is unchanged in comparison to the 2014 Edition 
``integrity'' criterion (Sec.  170.314(d)(8)). However, we propose a 
change in how a Health IT Module would be tested and certified to this 
criterion. The 2011 and 2014 editions of this criterion have been 
available for individual testing and certification. We propose that the 
2015 Edition ``integrity'' criterion would be tested and certified to 
support the context for which it was adopted--upon receipt of a summary 
record in order to ensure the integrity of the information exchanged

[[Page 16848]]

(see Sec.  170.315(d)(8)(ii)). Therefore, we expect that this 
certification criterion would most frequently be paired with the ToC 
certification criterion for testing and certification.
    In the 2014 Edition propose rule, we sought comment on whether we 
should leave the standard for the 2014 Edition ``integrity'' 
certification criterion as SHA-1 \142\ or replace it with SHA-2,\143\ 
as SHA-2 is a much stronger security requirement. In the 2014 Edition 
final rule (77 FR 54251), we determined that the SHA-1 standard should 
serve as a floor and technology could be certified to the 2014 Edition 
``integrity'' certification criterion if it included hashing algorithms 
with security strengths equal to or greater than SHA-1. We also noted 
that the Direct Project specification requires that SHA-1 and SHA-256 
(one type of SHA-2 hash algorithms) be supported, which still remains 
the case today.
---------------------------------------------------------------------------

    \142\ http://csrc.nist.gov/publications/fips/fips180-4/fips-180-4.pdf.
    \143\ http://csrc.nist.gov/publications/fips/fips180-4/fips-180-4.pdf.
---------------------------------------------------------------------------

    It is our understanding that many companies, including Microsoft 
and Google, plan to sunset (deprecate) SHA-1 no later than January 1, 
2017.\144\ While the SHA-1 standard serves as the baseline standard for 
certification to the proposed 2015 Edition ``integrity'' certification 
criterion and health IT could be certified to a security strength 
greater than SHA-1 (e.g., SHA-2), we seek comments on if, and when, we 
should set the baseline for certification to the 2015 Edition 
``integrity'' certification criterion at SHA-2. For example, we could 
adopt and move to SHA-2 as the baseline certification requirement with 
the effective date of a subsequent file rule. This would likely be in 
late 2015 (considering the start of testing and certification), and 
consistent with the current trajectory of the industry in this area. 
Alternatively, we could set an effective date within the criterion for 
when the baseline for certification would shift from SHA-1 to SHA-2 
(e.g., beginning 2017).
---------------------------------------------------------------------------

    \144\ http://www.symantec.com/en/au/page.jsp?id=sha2-transition.
---------------------------------------------------------------------------

     Accounting of Disclosures

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(d)(9) (Accounting of disclosures)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``accounting of disclosures'' 
certification criterion that is unchanged in comparison to the 2014 
Edition ``accounting of disclosures'' criterion (Sec.  170.314(d)(9)). 
We note that the 2015 Edition criterion is no longer designated 
``optional'' because such a designation is no longer necessary given 
that we have discontinued the Complete EHR definition and Complete EHR 
certification beginning with the 2015 Edition health IT certification 
criteria.
     View, Download, and Transmit to 3rd Party (VDT)

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(e)(1) (View, download, and transmit to 3rd party)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``VDT'' criterion that is 
revised in comparison to the 2014 Edition ``VDT'' criterion (Sec.  
170.314(e)(1)).
Clarified Introductory Text for 2015 Edition VDT Certification 
Criterion
    In the Voluntary Edition proposed rule, we proposed to make 
clarifying changes to the introductory text at Sec.  170.315(e)(1) to 
make it clear that this health IT capability is patient-facing and for 
patients to use. Commenters generally supported clarifying the 
introductory text of VDT. Commenters stressed the importance of 
allowing authorized representatives the ability to perform the VDT 
functionality. However, due to our approach to only finalize a subset 
of modifications in the 2014 Edition Release 2 final rule, we chose not 
to make that revision in the 2014 Edition Release 2 final rule. 
Therefore, we again propose to revise the introductory text to lead 
with ``Patients (and their authorized representatives) must be able to 
use health IT to . . .'' We also propose to use this same phrase at the 
beginning of each specific capability for VDT to reinforce this point. 
We note that this proposed requirement included in this criterion does 
not override an individual's right to access protected health 
information (PHI) in a designated record set under 45 CFR 164.524.
Common Clinical Data Set, Updated C-CDA, and Diagnostic Image Reports
    We propose to include an updated Common Clinical Data Set for the 
2015 Edition that includes references to new and updated vocabulary 
standards code sets. Please also see the Common Clinical Data Set 
definition proposal in section III.B.3 of this preamble. For the same 
reasons discussed in the proposed 2015 Edition ToC certification 
criterion, we also propose to reference the updated version of the C-
CDA (Draft Standard for Trial Use, Release 2.0) for this certification 
criterion; and note, for the reasons discussed under the 2015 ToC 
certification criterion, compliance with Release 2.0 cannot include the 
use of the ``unstructured document'' document-level template for 
certification to this criterion.
    We also propose that a Health IT Module must demonstrate that it 
can make diagnostic image reports available to the patient in order to 
be certified. A diagnostic imaging report contains a consulting 
specialist's interpretation of image data. It is intended to convey the 
interpretation to the referring (ordering) physician, and becomes part 
of the patient's medical record. We believe it is important to include 
this information in a patient's record to improve care. Therefore, we 
propose to include diagnostic imaging reports in the certification 
criterion as something a Health IT Module must be able to make 
accessible to patients. Again, to prevent any misinterpretation, we 
reiterate for stakeholders that this proposed rule and proposed 
certification criterion apply to a Health IT Module with regard to what 
must be demonstrated for the Health IT Module to be certified and does 
not govern its use.
    We request comment on whether we should require testing and 
certification for the availability of additional patient data through 
the view, download, transmit, and API (discussed below) capabilities. 
For example, should patient data on encounter diagnoses, cognitive 
status, functional status, or other information also be made available 
to patients (or their authorized representatives) through these 
capabilities? Additionally, similar to our proposals for the data 
portability certification criterion, we request comment on including 
requirements in this criterion to permit patients (or their authorized 
representatives) to select their health information for, as applicable, 
viewing, downloading, transmitting, or API based on a specific date or 
time (e.g., on 10/24/2015), a period of time (e.g., the last 3 years), 
or all the information available.
VDT--Application Access to Common Clinical Data Set
    To complement the API capabilities in the proposed ``Application 
Access to Common Clinical Data Set'' criterion at Sec.  170.315(g)(7), 
which are intended to be used by health IT purchasers in the context of 
providing application access to the Common Clinical Data Set, we also 
propose to require that the same capabilities be met as part of the 
2015 Edition VDT certification criterion. While in some respects it 
could be argued that repeating these capabilities in the VDT 
certification criterion are duplicative, we believe the contexts under 
which the capabilities proposed by this criterion and proposed at

[[Page 16849]]

Sec.  170.315(g)(7) would be used and the contexts under which 
certification to this criterion would be sought are distinct enough to 
warrant this repetition (i.e., in some cases a health IT developer may 
seek certification solely to this criterion). In recognition of the 
fact that some health IT developers will choose to build a more tightly 
integrated system that could rely on the same underlying capabilities 
developed to meet Sec.  170.315(g)(7), we clarify that health IT 
developers could provide the information necessary to satisfy the 
``documentation'' and ``terms of use'' requirements in Sec.  
170.315(e)(1)(iii)(D) and (E) of this criterion and Sec.  
170.315(g)(7)(iv) and (v) only once so long as the information 
addresses any potential technical differences in the application access 
capabilities provided (e.g., a RESTful web service for Sec.  
170.315(e)(1) versus a SOAP web service for Sec.  170.315(g)(7)). As 
proposed as part of certification in conjunction with Sec.  
170.315(g)(7), we similarly propose for this criterion to require ONC-
ACBs to submit a hyperlink (as part of a product certification 
submission to the CHPL) that would allow any interested party to access 
the API's documentation and terms of use. This hyperlink would first 
need to be provided by the health IT developer to the ONC-ACB.
    Including these capabilities in the VDT certification criterion 
could address several aspects that currently pose challenges to 
individuals (and their families) accessing their health information 
(e.g., multiple ``portals''). Additionally, we have coordinated with 
CMS to have the proposed meaningful use measure for VDT revised to 
allow for responses to data requests executed by the API functionality 
to count in the measure's numerator (please see the EHR Incentive 
Programs Stage 3 proposed rule published elsewhere in this issue of the 
Federal Register). This combination of technological capability and 
measurement flexibility could enhance an individual's ability to 
converge their data in the application of their choice. Furthermore, by 
including these capabilities in this criterion, we ensure that health 
IT developers who seek certification only to this criterion but not 
(g)(7) because of their market focus, will equally be required to 
include an API available as part of their technology.
    We note that readers should also review the proposed ``API'' 
certification criterion in this section of the preamble for requests 
for comments that may impact the finalization of the API proposal 
included in this certification criterion. For example, we request 
public comment on what additional requirements might be needed to 
ensure the fostering of an open ecosystem around APIs so that patients 
can share their information with the tools, applications, and platforms 
of their own choosing.
Activity History Log
    In the Voluntary Edition proposed rule, we proposed to include two 
new data elements for the activity history log: transmission status and 
addressee. Due to the approach we took with the 2014 Edition Release 2 
final rule, we did not finalize either proposal. However, we received 
support for our proposal to include the addressee as a data element in 
the history log. Therefore, we propose to include ``addressee'' as a 
new data element in the 2015 Edition VDT criterion related to the 
activity history log. Although the 2014 Edition VDT criterion requires 
that the action of ``transmit'' be recorded, we did not specify that 
the intended destination be recorded. We believe this transactional 
history is important for patients to be able to access, especially if a 
patient actively transmits their health information to a 3rd party or 
another health care provider.
Patient Access to Laboratory Test Reports
    In February 2014, CMS, the CDC, and the Office for Civil Rights 
(OCR) issued a final rule that addressed the interplay between the CLIA 
rules, state laws governing direct patient access to their laboratory 
test reports, and the HIPAA Privacy Rule.\145\ The final rule permits 
laboratories to give a patient, a patient's ``personal 
representative,'' or a person designated by the patient, as applicable, 
access to the patient's completed test reports upon the patient's or 
patient's personal representative's request.\146\ The final rule also 
eliminated the exception under the HIPAA Privacy Rule to an 
individual's right to access his or her protected health information 
when it is held by a CLIA-certified or CLIA-exempt laboratory. While 
patients can continue to get access to their laboratory test reports 
from their doctors, these changes give patients a new option to obtain 
their test reports directly from the laboratory while maintaining 
strong protections for patients' privacy.
---------------------------------------------------------------------------

    \145\ CMS is generally responsible for regulatory laboratory 
oversight under CLIA, while CDC provides scientific and technical 
advice to CMS related to CLIA and OCR administers the Health 
Insurance Portability and Accountability Act of 1996 (HIPAA) Privacy 
Rule.
    \146\ https://www.federalregister.gov/articles/2014/02/06/2014-02280/clia-program-and-hipaa-privacy-rule-patients-access-to-test-reports.
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    We seek to ensure that the test reports that are delivered by 
providers to patients through the VDT capabilities adhere to the CLIA 
test reporting requirements and, therefore, propose that a Health IT 
Module presented for certification to this criterion must demonstrate 
that it can provide patient laboratory test reports that include the 
information for a test report specified in 42 CFR 493.1291(c)(1) 
through (7); the information related to reference intervals or normal 
values as specified in 42 CFR 493.1291(d); and the information for 
corrected reports as specified in 42 CFR 493.1291(k)(2).
Web Content Accessibility Guidelines (WCAG)
    We reaffirm for stakeholders that the proposed 2015 Edition VDT 
criterion includes the WCAG 2.0 Level A (Level A) conformance 
requirements for the ``view'' capability. This is the same requirement 
we include in the 2014 Edition VDT criterion. We do, however, propose 
to modify the regulatory text hierarchy at Sec.  170.204(a) to 
designate this standard at Sec.  170.204(a)(1) instead of Sec.  
170.204(a). This would also require the 2014 Edition VDT certification 
criterion to be revised to correctly reference Sec.  170.204(a)(1). We 
also seek comment on whether we should adopt WCAG 2.0 Level AA (Level 
AA) conformance requirements for the ``view'' capability included in 
the 2015 Edition VDT criterion (instead of Level A).
    The most recent set of guidelines (WCAG 2.0) were published in 2008 
\147\ and are organized under 4 central principles with testable 
success criteria: Perceivable, Operable, Understandable, and Robust. 
Each guideline offers 3 levels of conformance: A, AA, and AAA. Level A 
conformance corresponds to the most basic requirements for displaying 
Web content. Level AA conformance provides for a stronger level of 
accessibility by requiring conformance with Level A success criteria as 
well as Level AA specific success criteria. WCAG 2.0 Level AAA (Level 
AAA) conformance comprises the highest level of accessibility within 
the WCAG guidelines and includes all Level A and Level AA success 
criteria as well as success criteria unique to Level AAA.
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    \147\ http://www.w3.org/TR/WCAG20/.
---------------------------------------------------------------------------

    In the 2014 Edition final rule (77 FR 54179) we considered public 
comment and ultimately adopted Level A for accessibility, but indicated 
our interest in raising this bar over time. As part of the Voluntary 
Edition proposed rule, we again proposed that health IT be compliant 
with Level AA for the

[[Page 16850]]

proposed VDT certification criterion. We received a limited and mixed 
response to this proposal (79 FR 54465). In particular, some health IT 
developers opposed the increased level citing the cost and burden to 
reach Level AA, while others supported the move and offered no 
concerns. In both cases, health IT developers noted that WCAG 
conformance tools are somewhat sparse and that they have had difficulty 
finding viable tools.
    Level AA provides a stronger level of accessibility and addresses 
areas of importance to the disabled community that are not included in 
Level A. For example, success criteria unique to Level AA include 
specifications of minimum contrast ratios for text and images of text, 
and a requirement that text can be resized without assistive technology 
up to 200 percent without loss of content or functionality. We 
recognize that Level AA is a step up from Level A, but also note that 
is has been nearly 3 years since we adopted Level A for the purposes of 
certification to the ``view'' capability. Accordingly, we once again 
request comment on the appropriateness of moving to Level AA for 
certification of the ``view'' capability included in the 2015 Edition 
VDT certification criterion.
    We understand that there are not separate guidelines for ``mobile 
accessibility'' and that mobile is considered by the W3C Web 
Accessibility Initiative to be covered by the WCAG 2.0 guidelines.\148\ 
Further, we would note that in September 2013, the W3C published a 
working group note consisting of ``Guidance on Applying WCAG 2.0 to 
Non-Web Information and Communications Technologies (WCAG2ICT).'' \149\ 
We again request public comment (especially from health IT developers 
that have sought or considered certification to the 2014 Edition VDT 
certification criterion with a ``non-web'' application) on what, if 
any, challenges exist or have been encountered when applying the WCAG 
2.0 standards.
---------------------------------------------------------------------------

    \148\ http://www.w3.org/WAI/mobile/.
    \149\ http://www.w3.org/TR/wcag2ict/.
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``Transmit'' Request for Comment
    In the 2014 Edition Release 2 final rule, we modified the 
``transmit'' portion of the 2014 Edition VDT certification criterion to 
consistently allow for C-CDA ``content'' capabilities to be separately 
certified from ``transport'' capabilities using Direct. In so doing, we 
modified the transmit portion of the certification criterion to allow 
it to be met in one of two ways: (1) Following the Direct Project 
specification (for HISPs); or (2) following the Edge Protocol IG. Given 
this change to ``transmit'' that we have duplicated in the proposed 
2015 Edition VDT certification criterion and our proposal to include an 
API capability as part of the proposed 2015 Edition VDT certification 
criterion, we request comment on whether stakeholders believe that it 
would be beneficial to include the Direct Project's Implementation 
Guide for Direct Project Trust Bundle Distribution specification \150\ 
as part of certification to the first way described above (following 
the Direct Project specification (for HISPs)) for the 2015 Edition VDT 
certification criterion. This trust bundle specification's focuses on 
``guidance on the packaging and distribution of Trust Bundles to 
facilitate scalable trust between Security/Trust Agents (STAs).'' As we 
understand, including this specification as part of certification could 
enable patient-facing technology to be configured to trust externally 
hosted bundles of S/MIME certificates. In addition, we have continued 
to hear concerns regarding the difficulties related to exchanging 
Direct messages across platforms and ``trust communities'' in the 
context of patient-directed transmissions. Therefore, we also request 
comments on whether any additional requirements are needed to support 
scalable trust between STAs as well as ways in which ONC, in 
collaboration with other industry stakeholders, could support or help 
coordinate a way to bridge any gaps.
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    \150\ http://wiki.directproject.org/file/view/Implementation+Guide+for+Direct+Project+Trust+Bundle+Distribution+v1.0.pdf.
---------------------------------------------------------------------------

C-CDA Creation Capability Request for Comment
    We request public comment on a potential means to provide explicit 
implementation clarity and consistency as well as to further limit 
potential burdens on health IT developers. Specifically, should we 
limit the scope of C-CDA creation capability within this certification 
criterion to focus solely on the creation of a CCD document template 
based on the C-CDA Release 2.0? This approach could also have the 
benefit of creating clear expectations and predictability for other 
health IT developers who would then know the specific document template 
implemented for compliance with this criterion.
C-CDA Data Provenance Request for Comment
    We refer readers to the request for comment under the same heading 
(``C-CDA Data Provenance Request for Comment'') in the ToC 
certification criterion earlier in this section of the preamble 
(section III). The request for comment focuses on the maturity of the 
HL7 IG for CDA Release 2: Data Provenance, Release 1 (US Realm) (DSTU) 
\151\ and its potential use in connection with the C-CDA.
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    \151\ http://wiki.hl7.org/index.php?title=HL7_Data_Provenance_Project_Space and http://gforge.hl7.org/gf/project/cbcc/frs/?action=FrsReleaseBrowse&frs_package_id=240.
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 Clinical Summary
    We note that we are not proposing a 2015 Edition ``clinical 
summary'' certification criterion because past versions of this 
certification criterion were adopted in direct support of the EHR 
Incentive Programs. The proposals found in the EHR Incentive Programs 
Stage 3 proposed rule published elsewhere in this issue of the Federal 
Register rely on patients being provided with the ability to view, 
download, and transmit their health information via online access. 
Therefore, we believe the capabilities included in the 2015 Edition 
``view, download, and transmit to 3rd party'' certification criterion 
appropriately and sufficiently support the proposals of the EHR 
Incentive Programs.
     Secure Messaging

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(e)(2) (Secure messaging)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``secure messaging'' 
certification criterion that is unchanged in comparison to the 2014 
Edition ``secure messaging'' criterion (Sec.  170.314(e)(3)).
     Transmission to Immunization Registries

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(f)(1) (Transmission to immunization registries)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``transmission to immunization 
registries'' certification criterion that is revised in comparison to 
the 2014 Edition ``transmission to immunization registries'' criterion 
(Sec.  170.314(f)(2)). We propose to adopt an updated IG, require 
National Drug Codes (NDC) for recording administered vaccines, require 
CVX codes for historical vaccines, and require a Health IT Module 
presented for certification to

[[Page 16851]]

this criterion to be able to display an immunization history and 
forecast from an immunization registry. These proposals are described 
in more detail below.
Implementation Guide for Transmission to Immunization Registries
    The 2014 Edition certification criterion for transmission to 
immunization registries at Sec.  170.314(f)(2) references the following 
IG for immunization messaging: HL7 Version 2.5.1: Implementation Guide 
for Immunization Messaging, Release 1.4. Since the publication of the 
2014 Edition final rule, the CDC has issued an updated IG (HL7 Version 
2.5.1: Implementation Guide for Immunization Messaging, Release 1.5) 
(October 2014) that promotes greater interoperability between 
immunization registries and health IT. Release 1.5 focuses on known 
issues from the previous release and revises certain HL7 message 
elements to reduce differences between states and jurisdictions for 
recording specific data elements. Specifically, Release 1.5: \152\
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    \152\ http://www.cdc.gov/vaccines/programs/iis/technical-guidance/downloads/hl7guide-1-5-2014-11.pdf.
---------------------------------------------------------------------------

     Is organized into profiles, including separate profiles 
for VXU and ACK (acknowledgement) messages;
     Clarifies and tightens conformance statements;
     Corrects ACK (acknowledgment) messages to support improved 
messaging back to the EHR about the success/failure of a message; and
     Includes query and response changes such as V2.7.1 MSH 
user constraints, minimum requirements for a response message, and 
corrected profiles for response to errors and no match situations.
    We believe these improvements are important to the IG and will 
continue to support our ultimate goal for this certification 
criterion--bidirectional immunization data exchange. Given the 
improvements included in the updated IG, we propose to adopt it at 
Sec.  170.205(e)(4) and include it in the 2015 Edition ``transmission 
to immunization registries'' certification criterion.
    National Drug Codes for Administered Vaccinations
    In the Voluntary Edition proposed rule, we solicited comment for 
future editions on whether we should replace CVX codes for representing 
vaccines with NDC codes,\153\ and on options for recording historical 
immunizations (79 FR 10908-9). NDC codes offer a number of benefits 
compared to CVX codes because:
---------------------------------------------------------------------------

    \153\ http://www.fda.gov/drugs/informationondrugs/ucm142438.htm.
---------------------------------------------------------------------------

     They can support pharmaceutical inventory management 
within immunization registries and are built into the provider's 
workflow;
     Are built into 2D barcodes, which have been successfully 
piloted for vaccines, and can improve quality and efficiency of data 
entry of information such as vaccine lot and expiration date; and
     Can improve patient safety with better specificity of 
vaccine formulation.
    NDC codes also include packaging information as well as support 
linking to the unit of use and sale, whereas CVX codes do not provide 
this information as efficiently. These data elements are important for 
supporting vaccine inventory management.
    Immunization registries are tightly linked to inventory management 
functions. This is largely due to the administration of the Vaccines 
for Children (VFC) program, a federally funded program that provides 
vaccines at no cost to children who might not otherwise be vaccinated 
because of inability to pay. CDC purchases vaccines at a discount and 
distributes them to grantees, which are state health departments and 
local and territorial public health agencies. The grantees distribute 
the VFC vaccines at no charge to private providers' offices and public 
health clinics registered as VFC providers. Because of the way this 
program is administered, immunization registries, which are maintained 
by public health agencies, have been developed to include vaccine 
inventory functions that help the grantees and providers manage their 
VFC vaccine stock. Due to the coupling of inventory functions within 
registries, many systems that can transmit immunization information to 
registries are also able to support these inventory management 
functions. NDC codes are used by many immunization registries to order 
vaccines and for inventory purposes.
    We believe NDC codes for vaccines may be best suited to support 
immunization inventory management, as well as for providing the 
benefits stated above for 2D barcoding and patient safety. Both the HL7 
Version 2.5.1: Implementation Guide for Immunization Messaging, Release 
1.5 and the C-CDA Release 2.0 IG support coding of immunizations using 
both CVX and NDC codes. CDC also provides a publicly available mapping 
of NDC codes for vaccines to CVX codes.\154\
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    \154\ http://www2a.cdc.gov/vaccines/iis/iisstandards/vaccines.asp?rpt=ndc. See also: http://www2a.cdc.gov/vaccines/iis/iisstandards/ndc_tableaccess.asp.
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    NDC codes for vaccines include a portion that identifies the 
product, and thus cannot be used to code historical vaccinations of 
unknown formulation. Historical vaccinations are self-reported 
vaccinations given prior to the office visit. Patients can report 
historical vaccinations to providers without supporting documentation, 
such as a written or electronic vaccination history, and therefore the 
provider does not know the manufacturer and/or formulation of the 
product. In terms of options for recording historical vaccinations of 
unspecified/unknown formulation, we solicited comments on two options 
in the Voluntary Edition proposed rule:
     Option 1: Continue to use CVX codes for historical 
vaccinations only;
     Option 2: Use the NDC syntax and create a new value set 
for the product portion of the code for vaccines of unspecified formula 
(e.g., influenza vaccine of unspecified formula) for historical 
vaccinations (resulting in an ``NDC-like'' code).
    The majority of commenters were opposed to Option 2 for creating an 
``NDC-like'' code. Commenters believed it would add complexity to 
coding NDC codes and be burdensome to maintain in the long-term. We 
agree with commenters and therefore believe Option 1 is a more viable 
solution for recording historical vaccinations. We believe health IT 
should be able to record historical vaccinations to provide the most 
complete record possible for a provider to use in determining which 
vaccines a patient may need.
    We received comments that recommended we consider moving to 
RxNorm[supreg] codes for immunizations. However, RxNorm[supreg] does 
not support inventory management nor does it support recording 
historical vaccinations. Therefore, we do not believe RxNorm[supreg] is 
the best available option for coding vaccinations at this time.
    We also received public comment that, in certain circumstances, NDC 
codes can be reused. Commenters expressed concerned about potential 
confusion for vaccine products when NDC codes are reused. In 
consultation with FDA, we understand that FDA does not intend to allow 
reuse of NDC codes for vaccine products going forward. Thus, we do not 
believe that reuse of NDC codes will be an issue for vaccine coding.
    Given the discussion above on the benefits of NDC codes for coding 
vaccinations and in consideration of public comment, we propose to 
require for certification that a Health IT Module be able to 
electronically create

[[Page 16852]]

immunization information for electronic transmission to immunization 
registries using NDC codes for vaccines administered (i.e., the 
National Drug Code Directory--Vaccine Codes, updates through January 
15, 2015 \155\). For historical vaccines, we propose to continue the 
use of CVX codes and propose to adopt the HL7 Standard Code Set CVX--
Vaccines Administered, updates through February 2, 2015,\156\ as the 
baseline version for certification to the 2015 Edition. We refer 
readers to section III.A.2.d (``Minimum Standards'' Code Sets) for 
further discussion of our proposal to adopt the National Drug Code 
Directory--Vaccine Codes as a minimum standards code set and the 
``January 15, 2015 version,'' or potentially a newer version if 
released before a subsequent final rule, as the baseline for 
certification to the 2015 Edition. We also refer readers to section 
III.A.2.d (``Minimum Standards'' Code Sets) for further discussion of 
our adoption of CVX codes as a minimum standards code set and our 
proposal to adopt the ``February 2, 2015 version,'' or potentially a 
newer version if released before a subsequent final rule, as the 
baseline for certification to the 2015 Edition.
---------------------------------------------------------------------------

    \155\ http://www2a.cdc.gov/vaccines/iis/iisstandards/ndc_tableaccess.asp.
    \156\ http://www2a.cdc.gov/vaccines/iis/iisstandards/vaccines.asp?rpt=cvx.
---------------------------------------------------------------------------

    In addition to soliciting comments on this proposal, we solicit 
comment on whether we should allow use of NDC codes for administered 
vaccines as an option for certification, but continue to require CVX 
codes for administered vaccines for the 2015 Edition. Allowing for 
optional use of NDC codes for administered vaccines could provide 
health IT developers and health care providers an implementation period 
before we would consider requiring NDC codes for administered vaccines. 
We also solicit comment on whether we should require CVX plus the HL7 
Standard Code Set MVX--Manufacturers of Vaccines Code Set (October 30, 
2014 version) \157\ as an alternative to NDC codes for administered 
vaccines. MVX codes identify the manufacturer of a vaccine and support 
recording the vaccine at the trade name level when paired with the CVX 
code. MVX codes do not, however, independently include the trade name, 
package, or unit of use/unit of sale. CVX codes plus MVX codes could 
provide more information than CVX codes alone, but not as much 
information as NDC codes. As part of this comment solicitation, we also 
invite comments on the implementation burden for health IT developers 
and health care providers of requiring CVX plus MVX codes versus NDC 
codes for administered vaccines.
---------------------------------------------------------------------------

    \157\ http://www2a.cdc.gov/vaccines/iis/iisstandards/vaccines.asp?rpt=mvx.
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Immunization History and Forecast
    In the Voluntary Edition proposed rule, we solicited comment on the 
maturity of bidirectional immunization data exchange activities and 
whether we should propose to include bidirectional immunization 
exchange in our certification rules. Commenters supported inclusion of 
bidirectional immunization data exchange. We understand that the HL7 
Version 2.5.1: Implementation Guide for Immunization Messaging, Release 
1.5 we are proposing to adopt for this criterion provides improvements 
that support bidirectional exchange between health IT and immunization 
registries, including segments for querying a registry, receiving 
information, and sending a response to the registry. Additionally, we 
received comments specifically recommending that immunization forecast 
information and CDS guidance provide results in accordance with the 
Advisory Committee on Immunization Practice's (ACIP) \158\ 
recommendations.
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    \158\ http://www.cdc.gov/vaccines/acip/.
---------------------------------------------------------------------------

    We believe that bidirectional exchange between health IT and 
immunization registries is important for patient safety and improved 
care. Immunization registries can provide information on a patient's 
immunization history to complement the data in the EHR. Immunization 
registries also provide immunization forecasting recommendations 
according to the ACIP's recommendations. This information allows for 
the provider to access the most complete and up-to-date information on 
a patient's immunization history to inform discussions about what 
vaccines a patient may need based on nationally recommended 
immunization recommendations.
    Provided the discussion above, we propose that, for certification 
to this criterion, a Health IT Module would need to enable a user to 
request, access, and display a patient's immunization history and 
forecast from an immunization registry in accordance with the HL7 
Version 2.5.1: Implementation Guide for Immunization Messaging, Release 
1.5. We welcome comment on this proposal. We also welcome comments on 
whether we should include an immunization history information 
reconciliation capability in this criterion and the factors we should 
consider regarding the reconciliation of immunization history 
information.
Exchange of the Common Clinical Data Set--NDC and CVX Codes
    For transmission of immunization information across settings using 
the C-CDA standard, NDC codes carry more information than CVX codes, 
specifically for inventory management and safety functions (e.g., trade 
name, package, and unit of use/unit of sale). For quality reporting of 
immunization coverage data using the QRDA Category I standard, 
inventory management data may not be needed, and therefore a CVX code 
is sufficient for submission of quality reporting data. However, ONC is 
supportive of moving towards collection of vaccine administration data 
within the EHR with the patient's clinical data regardless of the 
requirements in the QRDA Category I standard. We believe it is 
appropriate to use mapping from NDC codes to CVX codes and a mapping 
table is available.\159\ We understand that the C-CDA Release 2.0 can 
support NDC codes as a translational data element, but the CVX code is 
required to accompany it. The additional information NDC codes contain 
could assist with vaccine tracking for clinical trials and adverse 
events. Therefore, we propose in a later section of this rule to 
include the representation of immunizations in both CVX codes and NDC 
codes as part of the ``Common Clinical Data Set'' definition for 
certification to the 2015 Edition. Please see section III.B.3 ``Common 
Clinical Data Set'' of this preamble for further discussion of this 
associated proposal. We note that this means that a Health IT Module 
certified to certification criteria that include the Common Clinical 
Data Set (e.g., the ToC criterion) must demonstrate the capability to 
represent immunizations in CVX codes and NDC codes. This approach 
ensures that health IT would be able to support a provider's attempt to 
send immunization information that includes NDC information.
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    \159\ http://www2a.cdc.gov/vaccines/iis/iisstandards/vaccines.asp?rpt=ndc. See also: http://www2a.cdc.gov/vaccines/iis/iisstandards/ndc_tableaccess.asp.
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Immunization Information Certification Criterion
    In response to the Voluntary Edition proposed rule, we received 
comments recommending we discontinue the ``immunization information'' 
certification criterion for future editions because the necessary data 
elements are enumerated in the IG for reporting to immunization 
registries required for the

[[Page 16853]]

``transmission to immunization registries'' criterion. These commenters 
did not see any additional value in having a standalone certification 
criterion for ``immunization information'' as the value lies in being 
able to transmit the immunization message. We agree with these 
comments. Therefore, we are not proposing an ``immunization 
information'' criterion as part of the 2015 Edition. We welcome 
comments on this approach.
     Transmission to Public Health Agencies--Syndromic 
Surveillance

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition EHR Certification Criterion
Sec.   170.315(f)(2) (Transmission to public health agencies--syndromic
 surveillance)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition certification criterion for 
transmission of syndromic surveillance to public health agencies that 
is revised in comparison to the 2014 Edition version (Sec.  
170.314(f)(3)) for the inpatient setting. We note, however, that this 
proposed certification criterion is unchanged (for the purposes of gap 
certification) for the ambulatory setting. As discussed in the 2014 
Edition Release 2 final rule, we understand that ambulatory providers 
may be using different methods for sending syndromic surveillance 
information to public health agencies, including HL7 2.5.1 and query-
based messages (79 FR 54439-54441). It is our understanding that these 
methods are still being implemented and refined within the industry and 
the public health community. Therefore, given the varied adoption of 
methods for transmitting syndromic surveillance information to public 
health agencies from ambulatory settings, we propose to continue to 
distinguish between ambulatory and emergency department, urgent care, 
and inpatient settings.
Emergency Department, Urgent Care, and Inpatient Settings
    We propose to adopt the PHIN Messaging Guide for Syndromic 
Surveillance: Emergency Department, Urgent, Ambulatory Care, and 
Inpatient Settings, Release 2.0, September 2014 (``Release 2.0'').\160\ 
Release 2.0 provides improvements over previous versions by:
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    \160\ http://www.cdc.gov/phin/library/guides/SyndrSurvMessagGuide2_MessagingGuide_PHN.pdf
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     Re-purposing of the HL7 2.5.1 messaging structure for all 
type of messages/trigger events, and combining all specifications in 
one profile;
     Re-structuring chapters, making them more concise and 
placing supporting information into Appendixes;
     Adding more implementation comments and better field name 
descriptions within segment profile attributes;
     Making examples better aligned to the business process;
     Adding new conformance statements that simplify testing of 
messages;
     Making more user-friendly navigation through the document 
(adding a more detailed Table of Contents, updating a format of 
implementation comments, etc.);
     Simplifying collection and management of data by 
addressing requests for only using a text format for the ``Chief 
Complaint/Reason for Visit'' Data Element; and
     Correcting errors that were discovered in Version 1.9.
    We believe these improvements are important to the IG and will 
continue to support interoperability and data exchange of syndromic 
surveillance information. As we adopted Release 1.8 of the IG in 2012 
for the 2014 Edition, we believe the industry has had sufficient time 
to implement Release 1.8 and could benefit from the updates in Release 
2.0. Release 2.0 also updates errors and known issues from Release 1.9 
that commenters noted in response to the Voluntary Edition proposed 
rule as discussed in the Voluntary Edition final rule (79 FR 54440). 
Given the improvements included in Release 2.0 of the IG, we propose to 
adopt it at Sec.  170.205(d)(4) and include it in the 2015 Edition 
``transmission to public health agencies--syndromic surveillance'' 
certification criterion for emergency department, urgent care, and 
inpatient settings.
Ambulatory Syndromic Surveillance
    We propose to permit, for ambulatory setting certification, the use 
of any electronic means for sending syndromic surveillance data to 
public health agencies as well as optional certification to certain 
syndromic surveillance data elements. In the 2014 Edition Release 2 
final rule, we adopted a certification criterion for ambulatory 
syndromic surveillance at Sec.  170.314(f)(7) that permits use of any 
electronic means of sending syndromic surveillance data to public 
health agencies for ambulatory settings (79 FR 54440-01). We adopted 
this criterion to provide EPs under the EHR Incentive Programs to meet 
the Stage 2 syndromic surveillance objective with the use of CEHRT. 
Because there were no IGs to support HL7 2.5.1 messaging or query-based 
syndromic surveillance for ambulatory settings, we expanded our policy 
to provide more flexibility to EPs to meet the syndromic surveillance 
objective.
    As part of the 2014 Edition criterion, we also provide the option 
for technology presented for certification to demonstrate that it can 
electronically produce syndromic surveillance information that contains 
patient demographics, provider specialty, provider address, problem 
list, vital signs, laboratory results, procedures, medications, and 
insurance. Public health agencies and stakeholders that piloted query-
based models for transmitting ambulatory syndromic surveillance data 
send all of these data elements. We offered this optional list of data 
elements for certification to provide clarity and a path forward to 
health IT developers on the data elements they should focus on for 
creating syndrome-based public health transmissions in support of 
query-based models, including any potential certification requirements 
introduced through future rulemaking. Due to the continued lack of 
mature IGs at this time, we propose to take the same approach for 2015 
Edition syndromic surveillance certification for the ambulatory 
setting.
     Transmission to Public Health Agencies--Reportable 
Laboratory Tests and Values/Results

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(f)(3) (Transmission to public health agencies--reportable
 laboratory tests and values/results)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition certification criterion that is 
revised in comparison to the 2014 Edition ``transmission of reportable 
laboratory tests and values/results'' criterion (Sec.  170.314(f)(4)). 
We have named this criterion ``transmission to public health agencies--
reportable laboratory tests and values/results'' to clearly convey the 
capabilities included in this criterion as they relate to the intended 
recipient of the data. We propose to include and adopt an updated IG 
for laboratory reporting to public health, an updated version of SNOMED 
CT[supreg], and an updated version of LOINC[supreg]. We also propose to 
make a technical amendment to the regulation text for the 2014 Edition 
criterion in order to have it continue to reference the appropriate 
standard and implementation specifications \161\ after we restructure

[[Page 16854]]

the regulatory text hierarchy at Sec.  170.205(g) to accommodate our 
2015 Edition proposal.
---------------------------------------------------------------------------

    \161\ HL7 2.5.1 and HL7 Version 2.5.1: Implementation Guide: 
Electronic Laboratory Reporting to Public Health, Release 1 with 
Errata and Clarifications and ELR 2.5.1 Clarification Document for 
EHR Technology Certification.
---------------------------------------------------------------------------

    CDC worked in conjunction with the HL7 Public Health Emergency 
Response Workgroup to develop an updated IG (HL7 Version 2.5.1 
Implementation Guide: Electronic Laboratory Reporting to Public Health, 
Release 2 (US Realm), DSTU R1.1, 2014 or ``Release 2, DSTU R1.1'') that 
address technical corrections and clarifications for interoperability 
with laboratory orders and other laboratory domain implementation 
guides. Specifically, ``Release 2, DSTU R1.1'': \162\
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    \162\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=329.
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     Corrects errata;
     Updates Objective Identifiers;
     Applies conformance statements from the LRI DSTU;
     Provides technical corrections; and
     Updates usage for consistent treatment of modifier fields.
    As we adopted Release 1 of the IG in 2012 for the 2014 Edition, we 
believe the industry has had sufficient time to implement Release 1 and 
could benefit from the updates in ``Release 2, DSTU R1.1.'' Given the 
improvements included in the updated IG (Release 2, DSTU R1.1), we 
propose to adopt it at Sec.  170.205(g)(2) and include it in the 2015 
Edition ``transmission of reportable laboratory tests and values/
results'' certification criterion at Sec.  170.315(f)(3). As noted 
above, to properly codify this proposal in regulation, we would have to 
modify the regulatory text hierarchy in Sec.  170.205(g) to designate 
the standard and implementation specifications referenced by the 2014 
Edition ``transmission of reportable laboratory tests and values/
results'' certification criterion at Sec.  170.205(g)(1) instead of its 
current designation at Sec.  170.205(g).
    We propose to include the September 2014 Release of the U.S. 
Edition of SNOMED CT[supreg] and LOINC[supreg] version 2.50 in this 
criterion. We refer readers to section III.A.2.d (``Minimum Standards'' 
Code Sets) for further discussion of our adoption of SNOMED CT[supreg] 
and LOINC[supreg] as minimum standards code sets and our proposals to 
adopt the versions cited above, or potentially newer versions if 
released before a subsequent final rule, as the baselines for 
certification to the 2015 Edition.
     Transmission to Cancer Registries

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(f)(4) (Transmission to cancer registries)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``transmission to cancer 
registries'' certification criterion that is revised in comparison to 
the 2014 Edition ``transmission to cancer registries'' certification 
criterion (Sec.  170.314(f)(6)). We propose to adopt an HL7 version 
cancer reporting IG, adopt an updated version of SNOMED CT[supreg], and 
adopt an updated version of LOINC[supreg]. We also propose to make a 
technical amendment to the regulation text for the 2014 Edition 
certification criterion so that it continues to reference the 
appropriate standard \163\ in the regulatory text hierarchy at Sec.  
170.205(i), while accommodating our 2015 Edition proposal. 
Specifically, we propose to modify the 2014 Edition certification 
criterion to reference Sec.  170.205(i)(1) to establish the regulatory 
text hierarchy necessary to accommodate the standard and IG referenced 
by the proposed 2015 Edition certification criterion.
---------------------------------------------------------------------------

    \163\ Standard. HL7 Clinical Document Architecture (CDA), 
Release 2.0, Normative Edition (incorporated by reference in Sec.  
170.299). Implementation specifications. Implementation Guide for 
Ambulatory Healthcare Provider Reporting to Central Cancer 
Registries, HL7 Clinical Document Architecture (CDA), Release 1.0 
(incorporated by reference in Sec.  170.299).
---------------------------------------------------------------------------

    The 2014 Edition ``transmission to cancer registries'' criterion at 
Sec.  170.314(f)(6) references the following IG for cancer reporting: 
Implementation Guide for Ambulatory Healthcare Provider Reporting to 
Central Cancer Registries, HL7 Clinical Document Architecture (CDA), 
Release 1.0. Since the publication of the 2014 Edition Final Rule, CDC 
worked with HL7 to introduce the IG to the standards developing 
organization processes. In doing so, an updated IG has been developed 
to address technical corrections and clarifications for 
interoperability with EHRs and cancer registries (HL7 Implementation 
Guide for CDA(copyright) Release 2: Reporting to Public Health Cancer 
Registries from Ambulatory Healthcare Providers Release 1 or ``HL7 IG 
Release 1''). Specifically, HL7 IG Release 1: \164\
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    \164\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=383.
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     Aligns with C-CDA Release 2.0 templates, where possible;
     Adds new data elements, including grade, pathologic TNM 
stage,\165\ family history of illness, height and weight, discrete 
radiation oncology items, planned medications, and planned procedures;
---------------------------------------------------------------------------

    \165\ The TNM Classification of Malignant Tumours (TNM) is a 
cancer staging system that describes the extent of a person's 
cancer.
---------------------------------------------------------------------------

     Changes optionality for some data elements in response to 
cancer community input and to align with C-CDA Release 2.0 templates;
     Improves documentation and aligns conformance statements 
with table constraints;
     Adds some new vocabulary links and a new reportability 
list for ICD-10-CM;
     Fixes some within-document references;
     Fixes some LOINC[supreg] codes;
     Fixes some Code System and Value Set Object Identifiers;
     Fixes some conformance verbs;
     Improves sample XML snippets;
     Fixes some conformance verbs and data element names in 
Appendix B ``Ambulatory Healthcare Provider Cancer Event Report--Data 
Elements''; and
     Fixes a value in the value set.
    These improvements will continue to promote interoperability 
between health IT and cancer registries for improved cancer case 
reporting to public health agencies. As we adopted the non-HL7 Release 
1 of the IG in 2012 for the 2014 Edition, we believe the industry has 
had sufficient time to implement that IG and could benefit from the 
updates in HL7 IG Release 1. Therefore, given the improvements that 
will be included in HL7 IG Release 1 as described above, we propose to 
adopt it at Sec.  170.205(i)(2) and include it in the proposed 2015 
Edition ``transmission to cancer registries'' certification criterion.
    We propose to include the September 2014 Release of the U.S. 
Edition of SNOMED CT[supreg] and LOINC[supreg] version 2.50 in this 
criterion. We refer readers to section III.A.2.d (``Minimum Standards'' 
Code Sets) for further discussion of our adoption of SNOMED CT[supreg] 
and LOINC[supreg] as minimum standards code sets and our proposals to 
adopt the versions cited above, or potentially newer versions if 
released before a subsequent final rule, as the baselines for 
certification to the 2015 Edition.
Cancer Case Information
    In response to the Voluntary Edition proposed rule, we received 
comments recommending we discontinue proposing and adopting a ``cancer 
case information'' certification criterion for future editions because 
the necessary data elements are enumerated in the IG for reporting to 
cancer registries that we include in editions of ``transmission to 
cancer registries'' criteria. We agree with this assessment. Therefore, 
we are not proposing a 2015 Edition ``cancer case information'' 
certification criterion

[[Page 16855]]

similar to the one we adopted for the 2014 Edition. We welcome comments 
on this approach.
     Transmission to Public Health Agencies--Case Reporting

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(f)(5) (Transmission to public health agencies--case
 reporting)
------------------------------------------------------------------------

    We propose to adopt a new certification criterion in the 2015 
Edition for electronic transmission of case reporting information to 
public health agencies.
    Health IT standards continue to evolve to address new and emerging 
use cases for health care. The utility of health IT for supplemental 
purposes has been limited due to a lack of uniformity in the 
terminology and definitions of data elements across health IT systems. 
This limitation is compounded by the fact that provider workflow often 
records patient information in unstructured free-text well after 
episodes of care. Linking data in EHR systems with other data in a 
uniform and structured way could accelerate quality and safety 
improvement, population health, and research.
    Toward this end, the S&I Structured Data Capture \166\ (SDC) 
initiative is a multi-stakeholder group working on standards-based 
architecture so that a set of structured data can be accessed from 
health IT and stored for merger with comparable data for other relevant 
purposes. The SDC initiative is developing a set of standards that will 
enable health IT to capture and store structured data. These standards 
will build upon and incorporate existing standards, including the IHE 
Retrieve Form for Data Capture (RFD) profile. As part of this work, the 
SDC initiative has developed a surveillance case report form for public 
health reporting of notifiable diseases as part of the IHE Quality, 
Research, and Public Health Technical Framework Supplement, Structured 
Data Capture, Trial Implementation (September 5, 2014) standard.\167\ 
The case report form can be further specified and used to 
electronically report vital statistics, vaccine adverse event 
reporting, school/camp/daycare physical, early hearing detection and 
intervention/newborn hearing screening, and cancer registry reporting, 
among other public health reporting data.
---------------------------------------------------------------------------

    \166\ http://wiki.siframework.org/Structured+Data+Capture+Initiative.
    \167\ http://www.ihe.net/uploadedFiles/Documents/QRPH/IHE_QRPH_Suppl_SDC.pdf.
---------------------------------------------------------------------------

    We believe that case reporting from health care providers to public 
health agencies could be more real-time, structured, and efficient 
through the use of the standard case report form that the SDC 
initiative has developed. Therefore, we propose to adopt a 
certification criterion for electronic transmission of case reporting 
information to public health that would require a Health IT Module to 
be able to electronically create case reporting information for 
electronic transmission in accordance with the IHE Quality, Research, 
and Public Health Technical Framework Supplement, Structured Data 
Capture, Trial Implementation (September 5, 2014) standard, which we 
propose to adopt at Sec.  170.205(q)(1). As mentioned above, this 
standard and our proposal include compliance with other existing 
standards. One such standard is the CDA Release 2.0, which is a 
foundational standard for use in sending and receiving case reporting 
information.
    To note, for testing to this criterion, a Health IT Module would 
need to demonstrate that it can create and send a constrained 
transition of care document to a public health agency, accept a URL in 
return, be able to direct end users to the URL, and adhere to the 
security requirements for the transmission of this information.
    We recognize that the Fast Health Interoperability Resource 
(FHIR[supreg]) REST API and FHIR-based standard specifications will 
likely play a role in an interoperable health IT architecture. FHIR 
resources that implement SDC concepts and support the use of case 
reporting to public health would likely play a role in that scenario. 
The current HL7 FHIR Implementation Guide: Structure Data Capture 
(SDC), Release 1 \168\ is a ``draft for comment'' with a DSTU ballot 
planned for mid-2015. Given this trajectory, we solicit comment on 
whether we should consider adopting the HL7 FHIR Implementation Guide: 
SDC DSTU that will be balloted in mid-2015 in place of, or together 
with, the IHE Quality, Research, and Public Health Technical Framework 
Supplement. We are aware of a proposed HL7 working group known as the 
Healthcare Standards Integration Workgroup that will collaborate on 
FHIR resources considered co-owned with the IHE-HL7 Joint Workgroup 
\169\ within IHE. The implementation guides created from the S&I SDC 
Initiative is part of this joint workgroup's area of responsibility. 
Therefore, we intend to work with these coordinated efforts to ensure a 
complementary and coordinated approach for case reporting using SDC.
---------------------------------------------------------------------------

    \168\ http://hl7.org/implement/standards/FHIR-Develop/sdc.html.
    \169\ http://wiki.ihe.net/index.php?title=IHE-HL7_Joint_Workgroup.
---------------------------------------------------------------------------

     Transmission to Public Health Agencies--Antimicrobial Use 
and Resistance Reporting

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(f)(6) (Transmission to public health agencies--
 antimicrobial use and resistance reporting)
------------------------------------------------------------------------

    We propose to adopt a new 2015 Edition certification criterion for 
transmission of antimicrobial use and resistance data to public health 
agencies that would require a Health IT Module to be able to 
electronically create antimicrobial use and resistance reporting 
information for electronic transmission in accordance with specific 
sections of the HL7 Implementation Guide for CDA [supreg] Release 2--
Level 3: Healthcare Associated Infection Reports, Release 1, U.S. Realm 
(August 2013).
    Collection and analysis of data on antimicrobial use and 
antimicrobial resistance are important components of antimicrobial 
stewardship programs throughout the nation and efforts by health care 
organizations and public health agencies aimed at detecting, 
preventing, and responding to resistant pathogens. Surveillance 
provides vital data for use by health care facilities, local, state, 
and federal agencies, research and development teams, policymakers, and 
the public. Electronic submission of antimicrobial use and 
antimicrobial resistance data to a public health registry can promote 
timely, accurate, and complete reporting, particularly if data is 
extracted from health IT systems and delivered using well established 
data exchange standards to a public health registry. The HL7 
Implementation Guide for CDA [supreg] Release 2--Level 3: Healthcare 
Associated Infection Reports, Release 1--US Realm--August 2013 \170\ 
(``HAI IG'') is an ANSI-approved standard for electronic reporting of 
antimicrobial use and antimicrobial resistance data to the CDC's 
National Healthcare Safety Network (NHSN), the largest health care-
associated infection (HAI) reporting system in the United States with 
over 9,000 health care facilities participating. The HAI IG provides 
details for reporting from EPs, eligible hospitals, and CAHs.
---------------------------------------------------------------------------

    \170\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=20.
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    We propose to test and certify a Health IT Module for conformance 
with the following sections of the IG:

[[Page 16856]]

     HAI Antimicrobial Use and Resistance (AUR) Antimicrobial 
Resistance Option (ARO) Report (Numerator) specific document template 
in Section 2.1.2.1 (pages 69-72);
     Antimicrobial Resistance Option (ARO) Summary Report 
(Denominator) specific document template in Section 2.1.1.1 (pages 54-
56); and
     Antimicrobial Use (AUP) Summary Report (Numerator and 
Denominator) specific document template in Section 2.1.1.2 (pages 56-
58).
    We propose to adopt these specific sections of the IG in Sec.  
170.205(r)(1). Note that the specific document templates referenced 
above include conformance to named constraints in other parts of the 
IG, and we would expect a Health IT Module presented for certification 
to this criterion to conform to all named constraints within the 
specified document template.
     Transmission to Public Health Agencies--Health Care 
Surveys

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(f)(7) (Transmission to public health agencies--health
 care surveys)
------------------------------------------------------------------------

    We propose to adopt a new 2015 Edition certification criterion for 
transmission of health care surveys to public health agencies. We 
propose to adopt a certification criterion for transmission of health 
care survey information to public health agencies that would require a 
Health IT Module to be able to create health care survey information 
for electronic transmission in accordance with the HL7 Implementation 
Guide for CDA [supreg] Release 2: National Health Care Surveys (NHCS), 
Release 1--US Realm, Draft Standard for Trial Use (December 2014),\171\ 
which we propose to adopt at Sec.  170.205(s)(1).
---------------------------------------------------------------------------

    \171\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=385.
---------------------------------------------------------------------------

    The National Ambulatory Medical Care Survey (NAMCS) is a national 
survey designed to meet the need for objective, reliable information 
about the provision and use of ambulatory medical care services in the 
U.S. Findings are based on a sample of visits to non-federal employed 
office-based physicians who are primarily engaged in direct patient 
care.
    The National Hospital Ambulatory Medical Care Survey (NHAMCS) is 
designed to collect data on the utilization and provision of ambulatory 
care services in hospital emergency and outpatient departments. 
Findings are based on a national sample of visits to the emergency 
departments and outpatient departments of general and short-stay 
hospitals.
    The kinds of data contained in this survey are:
     Patient demographics such as date of birth, sex, race and 
ethnicity;
     Vital signs such as height, weight and blood pressure;
     Reason for visit or chief complaint;
     Diagnoses associated with the visit;
     Chronic conditions that the patient has at the time of the 
visit;
     Procedures provided or ordered;
     Diagnostic tests ordered or provided;
     New or continued medications at the time of the visit; and
     Other variables such as tobacco use, whether the provider 
is the patient's primary care provider, how many times has the patient 
been seen in the practice in the past 12 months, which type of 
providers were seen at the visit, amount of time spent with the 
provider, and visit disposition.
    Automating the survey process using the CDA standard streamlines 
the collection of data and increases the sample pool by allowing all 
providers who want to participate in the surveys to do so. The HL7 
Implementation Guide for CDA [supreg] Release 2: National Health Care 
Surveys (NHCS), Release 1--US Realm, Draft Standard for Trial Use 
(December 2014) defines the electronic submission of the data to the 
CDC. We clarify that the IG is intended for the transmission of survey 
data for both the NAMCS (e.g., for ambulatory medical care settings) 
and NHAMCS (e.g., for hospital ambulatory settings including emergency 
departments and outpatient departments). Templates included in this IG 
align with the C-CDA standard. Additionally, the templates in this IG 
expand on the scope of the original NAMCS and NHAMCS survey data 
elements and do not constrain the data collected to the narrow lists on 
the survey instruments; rather they allow any service, procedure or 
diagnosis that has been recorded.
     Automated Numerator Recording

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(g)(1) (Automated numerator recording)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``automated numerator 
recording'' certification criterion that is unchanged in comparison to 
the 2014 Edition ``automated numerator recording'' criterion. We note, 
however, that the test procedure for this criterion would be different 
from the 2014 Edition ``automated numerator recording'' certification 
criterion in order to remain consistent with the applicable objectives 
and measures required under the EHR Incentive Programs.
     Automated Measure Calculation

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(g)(2) (Automated measure calculation)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``automated measure 
calculation'' certification criterion that is unchanged in comparison 
to the 2014 Edition ``automated measure calculation'' criterion. We 
propose to apply the guidance provided for the 2014 Edition ``automated 
measure calculation'' certification criterion in the 2014 Edition final 
rule in that a Health IT Module must be able to support all CMS-
acceptable approaches for measuring a numerator and denominator in 
order for the Health IT Module to meet the proposed 2015 Edition 
``automated measure calculation'' certification criterion.\172\ We also 
propose that the interpretation of the 2014 Edition ``automated measure 
calculation'' certification criterion in FAQ 32 \173\ would apply to 
the proposed 2015 Edition ``automated measure calculation'' 
certification criterion.
---------------------------------------------------------------------------

    \172\ 77 FR 54244-54245.
    \173\ http://www.healthit.gov/policy-researchers-implementers/32-question-11-12-032.
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    We note that the test procedure for this criterion would be 
different from the 2014 Edition ``automated measure calculation'' 
certification criterion in order to remain consistent with the 
applicable objectives and measures required under the EHR Incentive 
Programs.
     Safety-Enhanced Design

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(g)(3) (Safety-enhanced design)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``safety-enhanced design'' (SED) 
certification criterion that is revised in comparison to the 2014 
Edition ``safety-enhanced design'' criterion. We propose to add 
certification criteria to this criterion that we believe include 
capabilities that pose a risk for patient harm and, therefore, an 
opportunity for error prevention. We propose to provide further 
compliance clarity for the data elements described in NISTIR 7742 \174\ 
that are required to be submitted as part of the summative usability 
test results and to specifically include these data

[[Page 16857]]

elements as part of the certification criterion.
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    \174\ http://www.nist.gov/manuscript-publication-search.cfm?pub_id=907312. NISTIT 7742 is a valid and reliable 
publication for user-centered design processes.
---------------------------------------------------------------------------

Certification Criteria Identified in the SED Criterion for UCD 
Processes
    We propose to include seventeen (17) certification criteria (seven 
are new) in the 2015 Edition SED certification criterion, as listed 
below (emphasis added for new criteria). For each of the referenced 
certification criteria and their corresponding capabilities presented 
for certification, user-centered design (UCD) processes must have been 
applied in order satisfy this certification criterion.
     Sec.  170.315(a)(1) Computerized provider order entry--
medications
     Sec.  170.315(a)(2) Computerized provider order entry--
laboratory
     Sec.  170.315(a)(3) Computerized provider order entry--
diagnostic imaging
     Sec.  170.315(a)(4) Drug-drug, drug-allergy interaction 
checks
     Sec.  170.315(a)(5) Demographics
     Sec.  170.315(a)(6) Vital signs, BMI, and growth charts
     Sec.  170.315(a)(7) Problem list
     Sec.  170.315(a)(8) Medication list
     Sec.  170.315(a)(9) Medication allergy list
     Sec.  170.315(a)(10) Clinical decision support
     Sec.  170.315(a)(18) Electronic medication administration 
record
     Sec.  170.315(a)(20) Implantable device list
     Sec.  170.315(a)(22) Decision support--knowledge artifact
     Sec.  170.315(a)(23) Decision support--service
     Sec.  170.315(b)(2) Clinical information reconciliation 
and incorporation
     Sec.  170.315(b)(3) Electronic prescribing
     Sec.  170.315(b)(4) Incorporate laboratory tests/results
    The continued submission of summative usability test results 
promotes transparency and can foster health IT developer competition, 
spur innovation, and enhance patient safety. With this in mind, we also 
seek comment on whether there are other certification criteria that we 
omitted from this proposed SED criterion that commenters believe should 
be included.
NISTIR 7742 Submission Requirements
    In the 2014 Edition final rule, we specified that the information 
listed below from the NISTIR 7742 ``Customized Common Industry Format 
Template for Electronic Health Record Usability Testing'' (NIST 7742) 
\175\ was required to be submitted for each and every one of the 
criteria specified in the 2014 Edition SED criterion (77 FR 54188). For 
the 2015 Edition SED criterion, we propose to include the information 
below in the regulation text of the 2015 Edition SED criterion to 
provide more clarity and specificity for the information requested to 
be provided to demonstrate compliance with this certification 
criterion. The findings that would be required to be submitted for each 
and every one of the criteria specified in the 2015 Edition SED 
criterion (and become part of the test results publicly available on 
the Certified Health IT Product List (CHPL)) are:
---------------------------------------------------------------------------

    \175\ http://www.nist.gov/manuscript-publication-search.cfm?pub_id=907312.
---------------------------------------------------------------------------

     Name and version of the product
     Date and location of the test
     Test environment
     Description of the intended users
     Total number of participants
     Description of participants as follows:
    [ssquf] Sex
    [ssquf] Age
    [ssquf] Education
    [ssquf] Occupation/role
    [ssquf] Professional experience
    [ssquf] Computer experience
    [ssquf] Product experience
     Description of the user tasks that were tested and 
association of each task to corresponding certification criteria
     List of the specific metrics captured during the testing
    [ssquf] Task Success (%)
    [ssquf] Task Failures (%)
    [ssquf] Task Standard Deviations (%)
    [ssquf] Task Performance Time
    [ssquf] User Satisfaction Rating (Scale with 1 as very difficult 
and 5 as very easy)
     Test results for each task using metrics listed above
     Results and data analysis narrative:
    [ssquf] Major test finding
    [ssquf] Effectiveness
    [ssquf] Efficiency
    [ssquf]Satisfaction
    [ssquf]Areas for improvement
    There are illustrative tables on pages 11 and 20 in NISTIR 7742 
that provide examples of the presentation of test participants and test 
results data. We specify that all of the data elements and sections 
specified above must be completed, including ``major findings'' and 
``areas for improvement.'' Pages 18 and 19 of the NISTIR 7742 contain a 
table with suggested instructions for data scoring specifically noting 
that for task success, a task is counted as successful if the 
participant was able to achieve the correct outcome without assistance 
and within the time allotted on a per task basis. Likewise, for task 
satisfaction a 5 point Likert scale is recommended with scores ranging 
from ``1--very difficult'' to ``5--very easy.''
    The NISTIR 7742 includes several sections: Executive Summary, 
Introduction, Method, and Results. In each of these sections, there are 
required data elements--and some of these elements call for the 
reporting of the number of study participants, their level of 
experience with EHR technology and other pertinent details.
    We recommend following NISTIR 7804 \176\ ``Technical Evaluation, 
Testing, and Validation of the Usability of Electronic Health Records'' 
for human factors validation testing of the final product to be 
certified. In accordance with this guidance, we recommend a minimum of 
15 representative test participants for each category of anticipated 
clinical end users who conduct critical tasks where the user interface 
design could impact patient safety (e.g., physicians, nurse 
practitioners, physician assistants, nurses, etc.). The cohort of users 
who are selected as participants will vary with the product and its 
intended users; however, the cohort should not include employees of the 
developer company. We specify the submission of demographic 
characteristics of the test participants comparable to the table on 
page 11 of NISTIR 7742 because it is important that the test 
participant characteristics reflect the audience of current and future 
users. In accordance with NISTIR 7804 (page 8), we recommend that the 
test scenarios be based upon an analysis of critical use risks for 
patient safety which can be mitigated or eliminated by improvements to 
the user interface design.
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    \176\ http://www.nist.gov/customcf/get_pdf.cfm?pub_id=909701.
---------------------------------------------------------------------------

    In lieu of simply providing guidance on the number of, and user 
cohort for, test participants, we request comment on whether we should 
establish a minimum number(s) and user cohort(s) for test participants 
for the purposes of testing and certification to the 2015 Edition under 
the ONC Health IT Certification Program.
New Requirements and Compliance Guidance
    As we noted in the 2014 Edition final rule (77 FR 54188), examples 
of method(s) that could be employed for UCD include ISO 9241-11, ISO 
13407, ISO 16982, ISO/IEC 62366, ISO 9241-210 and NISTIR 7741. The UCD 
process selected by a health IT developer need not be listed in the 
examples provided in order to be acceptable. We do, however, strongly 
advise health IT developers to select an industry standard process 
because compliance

[[Page 16858]]

with this certification criterion requires submission of the name, 
description, and citation (URL and/or publication citation) of the 
process that was selected. In the event that a health IT developer 
selects a UCD process that is not an industry standard (that is, not 
developed by a voluntary consensus standards organization), but is 
based on one or more industry standard processes, the developer may 
name the process(es) and provide an outline of the process in addition 
to a short description as well as an explanation of the reason(s) why 
use of any of the existing UCD standards was impractical.
    Health IT developers can perform many iterations of the usability 
testing, but the submission that is ultimately provided for summative 
usability testing and certification must be an expression of a final 
iteration. In addition, we expect the test scenarios used to be 
submitted as part of the test results. Last, we note that we do not 
expect developers to include trade secrets or proprietary information 
in the test results.
Request for Comment on Summative Testing
    We understand that some health IT developers are concerned that the 
summative testing report may not adequately reflect the design research 
that has been performed throughout a product's lifecycle. We request 
public comment regarding options that we might consider in addition 
to--or as alternatives to--summative testing. For example, if formative 
testing reflects a thorough process that has tested and improved the 
usability of a product, could a standardized report of the formative 
testing be submitted for one or more of the 17 certification criteria 
for which summative testing is now required? What would be the 
requirements for this formative testing report, and how would 
purchasers evaluate these reports?
Retesting and Certification
    We believe that ONC-ACB determinations related to the ongoing 
applicability of the SED certification criterion to certified health IT 
for the purposes of inherited certified status (Sec.  170.550(h)), 
adaptations and other updates would be based on the extent of changes 
to user-interface aspects of one or more capabilities to which UCD had 
previously been applied. We believe that ONC-ACBs should be notified 
when applicable changes to user-interface aspects occur. Therefore, we 
include these types of changes in our proposal to address adaptations 
and updates under the ONC-ACB Principles of Proper Conduct (Sec.  
170.523). Please see section IV.D.6 of this preamble for further 
discussion of this proposal.
     Quality Management System

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(g)(4) (Quality management system)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition ``quality management system'' 
certification criterion that is revised in comparison to the 2014 
Edition ``quality management system'' criterion. We propose to require, 
for a Health IT Module presented for certification, the identification 
of the Quality Management System (QMS) used in the development, 
testing, implementation, and maintenance of capabilities certified 
under the ONC Health IT Certification Program. The identified QMS must 
be:
     Compliant with a quality management system established by 
the federal government or a standards developing organization; or
     mapped to one or more quality management systems 
established by the federal government or standards developing 
organization(s).
    In the 2014 Edition final rule, we stated that the 2014 Edition QMS 
criterion was a first step that could be built on in an incremental 
fashion (77 FR 54191). For the 2015 Edition QMS criterion, we are 
taking that next step by not permitting health IT to be certified that 
has not been subject to a QMS and also requiring health IT developers 
to either use a recognized QMS or illustrate how the QMS they used maps 
to one or more QMS established by the federal government or a standards 
developing organization(s) (SDOs). As identified in the 2014 Edition 
final rule (77 FR 54190), QMS established by the federal government and 
SDOs include FDA's quality system regulation in 21 CFR part 820, ISO 
9001, ISO 14971, ISO 13485, and IEC 62304. We encourage health IT 
developers to choose an established QMS, but developers are not 
required to do so, and may use either a modified version of an 
established QMS, or an entirely ``home grown'' QMS. In cases where a 
health IT developer does not use a QMS established by the federal 
government or an SDO, the health IT developers must illustrate how 
their QMS maps to one or more QMS established by the federal government 
or SDO through documentation and explanation that links the components 
of their QMS to an established QMS and identifies any gaps in their QMS 
as compared to an established QMS. We clarify that we have no 
expectation that there will be detailed documentation of historical QMS 
or their absence. The documentation of the current status of QMS in a 
health IT development organization would be sufficient.
    We propose that all Health IT Modules certified to the 2015 Edition 
would need to be certified to the 2015 Edition QMS criterion. As such, 
we propose to revise Sec.  170.550 to require ONC-ACBs follow this 
proposed approach (please see section IV.C.2 of this preamble for this 
proposal).
     Accessibility Technology Compatibility

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(g)(5) (Accessibility technology compatibility)
------------------------------------------------------------------------

    We propose to adopt a new 2015 Edition ``accessibility technology 
compatibility'' certification criterion that would offer health IT 
developers that present a Health IT Module for certification to one or 
more certification criteria listed in proposed Sec.  170.315(a), (b), 
or (e) the opportunity to have their health IT demonstrate 
compatibility with at least one accessibility technology for the user-
facing capabilities included in the referenced criteria.
    In response to the Voluntary Edition proposed rule, we received 
several comments from health IT users with visual impairments or 
disabilities. These commenters raised concerns about the lack of 
accessibility in many health IT products certified under the ONC Health 
IT Certification Program. Commenters suggested a number of ways in 
which the certification program could be leveraged to ensure that 
health IT is accessible to visually impaired and disabled individuals. 
In particular, many commenters strongly recommended that we require as 
a condition of certification that health IT be compatible with popular 
text-to-speech (or ``screen reader'') applications and other 
accessibility technologies.
    Joined by our colleagues in the Administration for Community Living 
and Aging Policy and the Office for Civil Rights, we believe that 
health IT should be accessible to users regardless of their visual 
impairments or disabilities. The lack of accessibility features in 
health IT, including the lack of compatibility with third-party 
accessibility technologies, can place a significant burden on health IT 
users who are visually impaired or disabled. Without these features, 
some health IT users may be unable to access the health IT capabilities 
they and their patients

[[Page 16859]]

need. Other health IT users may be forced to rely on human 
intermediaries, revert to paper-based processes, or employ other 
workarounds in order to perform basic clinical tasks and essential 
aspects of their jobs. Such limitations and workarounds not only impact 
the autonomy, productivity, and employment opportunities of health IT 
users, but also jeopardize patient safety, healthcare quality, and 
efficiency. For example, without the use of appropriate accessibility 
technology, there may be an increased risk of transcription errors, 
miscommunication between clinicians, improperly documented patient 
health information, and untimely retrieval of patient health 
information. For these reasons, we strongly encourage health IT 
developers to consider the needs of visually impaired and disabled 
users when designing their products, and, where feasible, to integrate 
accessibility features directly into health IT. We also encourage them 
to seek certification to this proposed certification criterion.
    We note that a number of text-to-speech applications exist and are 
widely used by many visually impaired or otherwise disabled individuals 
in conjunction with a variety of personal computer and mobile 
applications that lack built-in accessibility features. Text-to-speech 
applications may also be combined with voice control software and other 
accessibility technologies and typically provide a scripting language 
and/or set of APIs that enable third-party developers to leverage the 
accessibility technology's accessibility features in their own software 
applications. We have also observed that some health IT is already 
compatible with accessibility technology, including the U.S. Department 
of Veterans Affairs' Computerized Patient Record System (CPRS). CPRS is 
compatible with Job Access With Speech (JAWS), a popular text-to-speech 
application that enables a computer to verbally describe the controls 
and content of computer applications.
    Certification to this proposed criterion would be available (not 
required) for Health IT Modules presented for certification to any of 
the clinical, care coordination, and patient engagement certification 
criteria specified at Sec.  170.315(a), (b), and (e), respectively, 
because the use of capabilities associated with these criteria 
necessarily requires that a user provide input into, receive feedback 
from, or otherwise interact with the Health IT Module. To meet this 
proposed certification criterion, for each such ``user-facing'' 
capability included in certification criteria specified at Sec.  
170.315(a), (b), and (e), a Health IT Module would need to demonstrate 
that the capability is compatible with at least one accessibility 
technology that provides text-to-speech functionality to meet this 
criterion. Health IT developers would not be required to license or 
provide such accessibility technology to users in order to meet the 
criterion. An accessibility technology used to meet this criterion 
would also not be ``relied upon'' for purposes of Sec.  170.523(f). 
However, it would need to be identified in the issued test report and 
would ultimately be made publicly available as part of the information 
ONC-ACBs are required to report to ONC for inclusion on the CHPL (in 
this case, what was used to demonstrate compliance with this 
certification criterion) so that users would be able to identify the 
accessibility technology with which the certified Health IT Module 
demonstrated its compatibility.
    We note that all recipients of federal financial assistance from 
HHS are covered by the requirements of Section 504 of the 
Rehabilitation Act of 1973 (29 U.S.C. 794) for programs and services 
receiving federal financial assistance. We seek comment on the extent 
to which certification to this criterion would assist in complying with 
this and other applicable federal (e.g., Section 508 of the 
Rehabilitation Act of 1973) and state disability laws. We also seek 
comment on whether certification to this criterion as proposed would 
serve as a valuable market distinction for health IT developers and 
consumers (e.g., ``Health IT Module with certified accessibility 
features'').
     Consolidated CDA Creation Performance

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(g)(6) (Consolidated CDA creation performance)
------------------------------------------------------------------------

    In the Voluntary Edition proposed rule (79 FR 10899), we proposed 
to adopt as part of the transitions of care certification criterion a 
new ``performance standard'' at Sec.  170.212. This performance 
standard would have required health IT to be able to receive no less 
than 95% of all of the possible variations that could be implemented 
under the C-CDA. We summarized in the 2014 Edition Release 2 final rule 
(79 FR 54459) that commenters voiced concerns about the testability and 
vagueness of this proposed requirement, questioned its likelihood of 
success, and noted that the 95% threshold would be impractical, time 
consuming, and expensive to implement given the wide variation in C-CDA 
implementation. Ultimately, we did not finalize this proposal in the 
2014 Edition Release 2 final rule.
    As we considered these comments and reviewed the additional public 
dialogue surrounding the variability in the C-CDA's implementation by 
different health IT developers,\177\ we concluded that a new 
certification criterion, focused principally on health IT system 
behavior and performance related to C-CDA creation was warranted. Thus, 
we propose to adopt a new certification criterion at Sec.  
170.315(g)(6) that would rigorously assess a product's C-CDA creation 
performance (for both C-CDA Release 1.1 and 2.0) when it is presented 
for a Health IT Module certification that includes within its scope any 
of the proposed certification criteria that require C-CDA creation 
(e.g., Sec.  170.315(b)(2)).
---------------------------------------------------------------------------

    \177\ D'Amore JD, et al. J Am Med Inform Assoc 2014; 21:1060-
1068.
---------------------------------------------------------------------------

    To implement this proposal, we also propose to amend Sec.  170.550 
to add a requirement that ONC-ACBs shall not issue a Health IT Module 
certification to a product that includes C-CDA creation capabilities 
within its scope, unless the product was also tested and satisfied the 
certification criteria requirements proposed at Sec.  170.315(g)(6) 
(see also section IV.C.2 of this preamble for further discussion of 
this proposal). If the scope of certification sought includes multiple 
certification criteria that require C-CDA creation, Sec.  170.315(g)(6) 
need only be tested in association with one of those certification 
criteria and would not be expected or required to be tested for each. 
We base this certification efficiency on assumption that passing this 
proposed certification criterion for one of the certification criteria 
that includes C-CDA creation will cause a health IT developer to apply 
these same performance checks to all other capabilities that include C-
CDA creation. However, we request public comment on whether this 
proposed efficiency is desirable or would have any adverse 
consequences.
    We propose that the C-CDA creation performance certification 
criterion would focus on and require the following technical outcomes 
to be met:
    1. Reference C-CDA Match: the Health IT Module must demonstrate 
that it can create a C-CDA that matches a gold standard, called a 
Reference C-CDA. Reference C-CDAs would include the 2014 and 2015 
edition data elements coded according to the HL7 C-CDA standards and 
regulatory requirements (the scope of the data would be limited

[[Page 16860]]

to what is proposed for the Common Clinical Data Set definition). As 
part of the Reference C-CDA Match, health IT developers would be 
provided test data that includes the 2014 and 2015 data elements and 
any context specific coding instructions to be used by Health IT Module 
to create C-CDA documents. The C-CDA documents created by the Health IT 
Module would be validated by comparing it to a Reference C-CDA.
    2. Document Template Conformance: the Health IT Module must 
demonstrate that it can create C-CDA documents for the following C-CDA 
document templates as applicable to the C-CDA 1.1 and C-CDA 2.0 
standards: CCD; Consultation Note; History and Physical; Progress Note; 
Care Plan; Transfer Summary; Referral Note; and for the inpatient 
setting only, Discharge Summary. We do not propose require as part of 
this portion of the certification criterion to require testing to the 
Diagnostic Imaging Report (DIR); Operative Note; and Procedure Note as 
they would not be generally applicable to all products.
    3. Vocabulary Conformance: the Health IT Module must demonstrate 
that it can create C-CDA documents using the vocabularies and value 
sets adopted by the 2014 and 2015 edition. For data elements which do 
not require specific vocabularies and value sets in the regulation, the 
Health IT Module must use the vocabularies and value sets as specified 
in the C-CDA standard.
    Additionally, in response to wide stakeholder feedback for 
additional publicly available C-CDA samples, we have coordinated with 
our colleagues at NIST and understand that NVLAP-Accredited Testing 
Laboratories would retain the C-CDA files created under test and 
contribute them to an ONC-maintained repository.
Completeness of Data in the C-CDA
    Past feedback from providers has indicated that the variability 
associated with different functionalities and workflows within health 
IT can ultimately affect the completeness of the data included in a 
created C-CDA. Thus, in the same context associated with our proposals 
in this criterion and the ToC performance certification criterion, we 
are considering, and request public comment on, adding to either of 
these certification criteria an additional requirement that would 
evaluate the completeness of the data included in a C-CDA in order to 
ensure that the data recorded by health IT is equivalent to the data 
included in a created C-CDA.
     Application Access to Common Clinical Data Set

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(g)(7) (Application access to Common Clinical Data Set)
------------------------------------------------------------------------

    We propose to adopt a new certification criterion as part of the 
proposed 2015 Edition at Sec.  170.315(g)(7) that would focus on the 
capability of health IT presented for certification to respond to 
requests for patient data from other applications.\178\ We propose that 
this certification criterion would require the demonstration of an 
application programming interface (API) that responds to data requests 
for any one or more of the data referenced in the Common Clinical Data 
Set definition (proposed for adoption at Sec.  170.102), including 
requests for all of the data referenced in the Common Clinical Data 
Set.
---------------------------------------------------------------------------

    \178\ We intend for the term ``application'' to generally 
encompass any other type of system or software that is not the data 
source responding to the requests for data.
---------------------------------------------------------------------------

    The expanded access to a common data set from other applications 
through APIs (and other techniques) has been referenced in numerous 
publications over the past several years.\179\ We have also received 
requests from stakeholders to include a certification requirement for 
the proposed capability. These stakeholders indicate that such a 
requirement would help promote innovation and enhance the ease with 
which health care providers could adopt and use third party software 
tools along with their core EHR technology to improve patient care.
---------------------------------------------------------------------------

    \179\ See: (1) President's Council of Advisors on Science and 
Technology (PCAST) ``Realizing the full potential of health 
information technology to improve healthcare for Americans: the path 
forward (December 2010)'';
    (2) JASON: A Robust Health Data Infrastructure (April 2014);
    (3) PCAST ``Better health care and lower costs: accelerating 
improvement through systems engineering (May 2014); and
    (4) ONC ``Connecting Health and Care for the Nation: A 10-Year 
Vision to Achieve an Interoperable Health IT Infrastructure (June 
2014).
---------------------------------------------------------------------------

    For the purposes of this certification criterion, we also propose 
to require that this certification criterion be part of the set of 
criteria necessary to satisfy the ``2015 Edition Base EHR'' definition 
(see also section III.B.1 of this preamble for a discussion of the 
proposed 2015 Edition Base EHR definition). This additional proposal, 
due to its linkage to the CEHRT definition, would ensure that all EPs, 
eligible hospitals, and CAHs would need to adopt a Health IT Module 
certified to this criterion in order to have the necessary health IT to 
successfully demonstrate meaningful use under the EHR Incentive 
Programs.
    With limited exceptions, we have broadly specified the technical 
outcomes required by this certification criterion. We have taken this 
approach in order to allow for a wide array of implementations to meet 
the certification criterion. The proposed certification criterion 
includes three technical outcomes and a documentation requirement.
    (1) Security. The API needs to include a means for the 
establishment of a trusted connection with the application that 
requests patient data. This would need to include a means for the 
requesting application to register with the data source, be authorized 
to request data, and log all interactions between the application and 
the data source.
    (2) Patient Selection. The API would need to include a means for 
the application to query for an ID or other token of a patient's record 
in order to subsequently execute data requests for that record.
    (3) Data requests, response scope, and return format. The API would 
need to support two types of data requests and responses: ``by data 
category'' and ``all.'' In both cases, while the scope required for 
certification is limited to the data specified in the Common Clinical 
Data Set, additional data is permitted and encouraged.
     For ``data category'' requests, the API would need to 
respond to requests for each of the data categories specified in the 
Common Clinical Data Set (according to the specified standards, where 
applicable) and return the full set of data for that data category. As 
the return format, either XML or JSON would need to be produced. For 
example, an API function to request ``medications'' from patient 123456 
that returns all of a patient's medications in XML or JSON would meet 
certification requirements.
     For ``all'' requests, the API would need to respond to 
requests for all of the data categories specified in the Common 
Clinical Data Set at one time (according to the specified standards, 
where applicable). As the return format, the C-CDA version 2.0 would 
need to be used to produce a patient summary record populated with the 
data included in the Common Clinical Data Set. For example, an API 
function to request the full common data set ``all'' from patient 
567890 would return a patient's fully populated summary record 
formatted in accordance with the C-CDA version 2.0.
    We believe the proposed approach provides ample flexibility for 
health IT developers to implement an API that can best address their 
customers' needs. It also leverages current standards that most health 
IT developers would

[[Page 16861]]

already need to develop their products to support in order to seek 
certification to several other certification criteria. In addition, we 
believe that this approach supports future, innovative approaches to be 
used. The intent behind this certification criterion is to allow for, 
but not require, health IT developers to implement the Fast Health 
Interoperability Resource (FHIR[supreg]) REST API and accompanying FHIR 
standard specifications.\180\ Therefore, if we have not adequately 
specified this certification criterion in a manner that accomplishes 
this goal, we solicit public comment on any specific revisions that 
would.
---------------------------------------------------------------------------

    \180\ http://www.hl7.org/implement/standards/ fhir/.
---------------------------------------------------------------------------

    This certification criterion would require that the API be 
technically well documented and include its terms of use. It would also 
require that such technical documentation and the terms of use be 
submitted as part of testing for this certification criterion and 
subsequently to ONC-ACBs for review prior to issuing a certification. 
The technical documentation would need to include, at a minimum: API 
syntax, function names, required and optional parameters and their data 
types, return variables and their types/structures, exceptions and 
exception handling methods and their returns. The terms of use would 
need to include information of the API's developer policies and 
required developer agreements so that third party developers could 
assess these additional requirements before engaging in any development 
against the API. Similar to how we approached the submission of 
publicly available test results in our past rulemaking, we propose to 
require ONC-ACBs to submit a hyperlink (as part of its product 
certification submission to the CHPL) that would allow any interested 
party to access the API's documentation and terms of use. This 
hyperlink would need to be provided by the health IT developer to the 
ONC-ACB.
    With respect to testing for this certification criterion, we expect 
that functional testing would focus primarily on the third capability 
we propose. Meaning that for each function call made the health IT 
developer would need to demonstrate to/show an Accredited Testing Lab 
the response (i.e., output) for each of the data category requests in 
JSON or XML and for the ``all'' request, the output according to the 
Consolidated CDA. For all other aspects of the certification criterion, 
we expect the testing would include attestation, documentation, and 
review. Additionally, if these capabilities do not function properly 
when implemented in the field, the (at that point) certified Health IT 
Module could be subject to surveillance by its ONC-ACB.
    The HITPC called for ``well-defined, fairly applied, business and 
legal frameworks for using the API.'' \181\ We request public comment 
on what additional requirements might be needed to ensure the fostering 
of an open ecosystem around APIs so that patients can share their 
information with the tools, applications, and platforms of their own 
choosing. For instance, should there be any limits expressed on what 
can be included in the terms of use? Should the terms be required to 
more granularly address security and authorization requirements, for 
instance by requiring a certain oAuth profile?
---------------------------------------------------------------------------

    \181\ http://www.healthit.gov/sites/faca/files/JTF_Transmittal%20Letter_2014-1-22-15v3.pdf.
---------------------------------------------------------------------------

    We also request public comment regarding the feasibility of 
additional API capabilities that could be made available to 
certification including secure message read/write capability, schedule 
read/write capability, ordering/e-prescribing capability, and task list 
read/write capability.
C-CDA Creation Capability Request for Comment
    We request public comment on a potential means to provide explicit 
implementation clarity and consistency as well as to further limit 
potential burdens on health IT developers. Specifically, should we 
limit the scope of C-CDA creation capability within this certification 
criterion to focus solely on the creation of a CCD document template 
based on the C-CDA Release 2.0? This approach could also have the 
benefit of creating clear expectations and predictability for other 
health IT developers who would then know the specific document template 
implemented for compliance with this criterion.
     Accessibility-Centered Design

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition EHR Certification Criterion
Sec.   170.315(g)(8) (Accessibility-centered design)
------------------------------------------------------------------------

    We propose to adopt a new 2015 Edition ``accessibility-centered 
design'' certification criterion that would apply to all Health IT 
Modules certified to the 2015 Edition. This criterion would require the 
identification of user-centered design standard(s) or laws for 
accessibility that were applied, or complied with, in the development 
of specific capabilities included in a Health IT Module or, 
alternatively, the lack of such application or compliance.
    This proposed certification criterion would serve to increase 
transparency around the application of user-centered design standards 
for accessibility to health IT and the compliance of health IT with 
accessibility laws. We believe this transparency would be beneficial 
for those health care providers, consumers, governments, and other 
stakeholders that have an interest in knowing the degree to which heath 
IT, particularly certified health IT, meet health IT accessibility 
standards and laws. This transparency may also encourage health IT 
developers to pursue the application of more accessibility standards 
and laws in product development that could lead to improved usability 
for health care providers with disabilities and health care outcomes 
for patients with disabilities.
    We propose to model our approach and this criterion after the 2014 
Edition ``quality management system'' criterion (Sec.  170.314(g)(4) 
and see 77 FR 54270-54271). Therefore, as a first step, for each 
capability that a Health IT Module includes and for which that 
capability's certification is sought, the use of a health IT 
accessibility-centered design standard or compliance with a health IT 
accessibility law in the development, testing, implementation, and 
maintenance of that capability must be identified. Working with our 
colleagues at NIST, we have identified an initial list of health IT 
accessibility-centered design standards and accessibility laws below. 
However, health IT developers may choose to use other health IT 
accessibility standards or laws in the development, testing, 
implementation, and maintenance of capabilities, but must identify 
these standards and/or laws for the purposes of certification. As with 
the 2014 Edition ``quality management system'' criterion, we propose to 
permit a response that ``no health IT accessibility-centered design 
standard or law was applied to all applicable capabilities'' as an 
acceptable means of satisfy this proposed certification criterion. We 
note, however, that whatever method(s) is used to meet this proposed 
criterion, it would be reported to the proposed open data CHPL.
    We solicit comments on whether the standards and laws identified 
below are appropriate examples and whether we should limit the 
certification criteria to which this criterion would apply. For 
example, limiting it to a Health IT Module certified only to the 
certification criteria proposed in Sec.  170.315(a), (b), (c), and (e), 
or

[[Page 16862]]

otherwise. To note, we believe that, at a minimum, this criterion would 
not apply to the certification criteria in Sec.  170.315(g).
    Example health IT accessibility-centered design standards and 
accessibility laws:
     ETSI ES 202 076--Human Factors (HF); User Interfaces; 
Generic spoken command vocabulary for ICT devices and services;
     ETSI ETS 300 679--Terminal equipment (TE); Telephony for 
the hearing impaired; Electrical coupling of telephone sets to hearing 
aids;
     ETSI TR 102 068 (2002) Human Factors (HF): Requirements 
for assistive technology devices in ICT;
     ETSI TS 102 511 (2007) Human Factors (HF): AT commands for 
assistive mobile device interfaces;
     IEEE 802.11 IEEE standard for Information Technology; 
Telecommunications and information: Exchange between systems; local and 
metropolitan area network; specific requirements--Part 11: Wireless LAN 
Medium Access Control (MAC) and Physical Layer (PHY) Specification;
     ISO 13406-1 (1999) Ergonomic requirements for work with 
visual displays based on flat panels. Part 1--Introduction;
     ISO 13406-2 (2001) Ergonomic requirements for work with 
visual displays based on flat panels. Part 2--Ergonomic requirements 
for flat panel displays;
     IEC 80416-1 (2001) Basic principles for graphical symbols 
for use on equipment--Part 1: Creation of symbol originals;
     ISO 80416-2 (2002) Basic principles for graphical symbols 
for use on equipment--Part 2: Form and use of arrows;
     IEC 80416-3 (2002) Basic principles for graphical symbols 
for use on equipment--Part 3: Guidelines for the application of 
graphical symbols;
     ISO 80416-4 (2005) Basic principles for graphical symbols 
for use on equipment. Part 4--Guidelines for the adaptation of 
graphical symbols for use on screens and displays;
     ISO 9241-151 (2008) Ergonomics of human-system 
interaction--Part 151: Guidance on World Wide Web user interfaces;
     ISO 9355-1 (1999) Ergonomic requirements for the design of 
displays and control actuators. Part 1: Human interactions with 
displays and control actuators;
     ISO 9355-2 (1999) Ergonomic requirements for the design of 
displays and control actuators. Part 2: Displays;
     ISO 9999 (2007) Assistive products for persons with 
disability--Classification and terminology;
     ISO/CD 24500 Guidelines for all people, including elderly 
persons and persons with disabilities--Auditory signals on consumer 
products;
     ISO/IEC 15411 (1999) Information technology--Segmented 
keyboard layouts;
     ISO/IEC 15412 (1999) Information technology--Portable 
keyboard layouts;
     ISO/IEC 24755 (2007) Information technology--Screen icons 
and symbols for personal mobile communication devices;
     ISO/IEC CD 24786-1 Information Technology--User 
interfaces--Accessible user interface for accessibility setting on 
information devices--Part 1: General and methods to start;
     ISO/IEC TR 15440 (2005) Information Technology--Future 
keyboards and other associated input devices and related entry methods;
     ISO/IEC TR 19765 (2007) Information technology--Survey of 
icons and symbols that provide access to functions and facilities to 
improve the use of IT products by the elderly and persons with 
disabilities;
     ISO/IEC TR 19766 (2007) Information technology--Guidelines 
for the design of icons and symbols accessible to all users, including 
the elderly and persons with disabilities;
     ITU-T E.902 (1995) Interactive services design guidelines;
     ITU-T P.85 (1994) A method for subjective performance 
assessment of the quality of speech voice;
     Section 504 of the Rehabilitation Act; and
     Section 508 of the Rehabilitation Act.
    Because we propose that Health IT Modules certified to the 2015 
Edition would be required to be certified to the 2015 Edition 
Accessibility-centered design criterion, we also propose to revise 
Sec.  170.550 to require ONC-ACBs follow this proposed approach (please 
see section IV.C.2 of this preamble for this proposal).
     Transport Methods and Other Protocols
    We propose two ways for providers to meet the 2015 Edition Base EHR 
definition using health IT certified to transport methods. These ways 
serve to account for transport methods that we understand are being 
used to readily exchange electronic health information and ensure that 
providers have interoperable ways to exchange electronic health 
information. The first way to meet the proposed 2015 Edition Base EHR 
definition requirement would be for a provider to have health IT 
certified to Sec.  170.315(b)(1) and (h)(1) (Direct Project 
specification). This would account for situation where a provider uses 
a health IT developer's product that acts as the ``edge'' and the HISP. 
The second way would be for a provider to have health IT certified to 
Sec.  170.315(b)(1) (ToC criterion) and (h)(2) (Direct Project, Edge 
Protocol, and XDR/XDM). This would account for situations where a 
provider is using one health IT developer's product that serves as the 
``edge'' and another health IT developer's product that serves as a 
HISP.\182\ The capabilities included in proposed Sec.  170.315(h)(2) 
ensure interoperability by accounting for various electronic health 
information exchange options using the Direct Project specification. To 
fully implement this approach, we propose to revise Sec.  170.550 to 
require an ONC-ACB to ensure that a Health IT Module includes the 
certification criterion adopted at Sec.  170.315(b)(1) in its 
certification's scope in order to be certified to the certification 
criterion proposed for adoption at Sec.  170.315(h)(1). We welcome 
comment on these proposed approaches and the transport standards listed 
below in Sec.  170.315(h)(1) through (3).
---------------------------------------------------------------------------

    \182\ See the 2014 Edition Release 2 final rule for more 
discussion on such situations (79 FR 54436-38).
---------------------------------------------------------------------------

    Consistent with our proposed title of ``transport methods and other 
protocols'' for Sec.  170.315(h), we proposed to revise the heading of 
Sec.  170.202 from ``transport standards'' to ``transport standards and 
other protocols.''
     Direct Project

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(h)(1) (Direct Project)
------------------------------------------------------------------------

    We propose to adopt a certification criterion that includes the 
capability to send and receive according to the Applicability Statement 
for Secure Health Transport (the primary Direct Project specification) 
adopted at Sec.  170.202(a). We previously adopted this capability for 
the 2014 Edition at Sec.  170.314(b)(1), (b)(2) and (h)(1). We remind 
health IT developers that best practices exist for the sharing of 
electronic health information and enabling the broadest participation 
in electronic health information exchange with Direct.\183\
---------------------------------------------------------------------------

    \183\ http://wiki.directproject.org/Best+Practices+for+Content+and+Workflow.
---------------------------------------------------------------------------

    We propose to include as an optional capability for certification, 
the capability to send and receive according to the Implementation 
Guide for Delivery Notification in Direct, Version 1.0, June 29, 2012, 
which we propose to

[[Page 16863]]

adopt at Sec.  170.202(e). While this is not a capability we have 
previously adopted, we proposed to adopt it as part of the Voluntary 
Edition proposed rule (79 FR 10914). The primary Direct Project 
specification requires that Security/Trust Agents (STAs) must issue a 
Message Disposition Notification (MDN, RFC3798) with a disposition of 
processed upon successful receipt, decryption, and trust validation of 
a Direct message. By sending this MDN, the receiving STA is taking 
custodianship of the message and is indicating that it will deliver the 
message to its destination. While the primary Direct Project 
specification indicates that additional MDNs may be sent to indicate 
further processing progress of the message, they are not required. The 
primary Direct Project specification, however, does not provide 
guidance in regards to the actions that should be taken by the sending 
STA in the event an MDN processed message is not received or if the 
receiving STA cannot deliver the message to its destination after 
sending the initial MDN processed message. Due to the lack of 
specifications and guidance in the primary Direct Project specification 
regarding deviations from normal message flow, STAs implementing only 
requirements denoted as ``must'' in Section 3 of the primary Direct 
Project specification may not be able to provide a high level of 
assurance that a message has arrived at its destination. The Delivery 
Notification IG provides implementation guidance enabling STAs to 
provide a high level of assurance that a message has arrived at its 
destination and outlines the various exception flows that result in 
compromised message delivery and the mitigation actions that should be 
taken by STAs to provide success and failure notifications to the 
sending system.
    Based on CMS guidance, the use of the Delivery Notification IG can 
be used to provide the necessary level of assurance that sent 
laboratory results are received by a provider.\184\ Additionally, we 
note that the Delivery Notification IG could be generally useful for 
any transmission that requires a high level of assurance.
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    \184\ See CMS CLIA guidance on the use of Direct with the 
Delivery Notification IG: http://www.cms.gov/Medicare/Provider-Enrollment-and-Certification/SurveyCertificationGenInfo/Policy-and-Memos-to-States-and-Regions-Items/Survey-and-Cert-Letter-14-05.html?DLPage=1&DLFilter=2014&DLSort=3&DLSortDir=ascending.
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     Direct Project, Edge Protocol, and XDR/XDM

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(h)(2) (Direct Project, Edge Protocol, and XDR/XDM)
------------------------------------------------------------------------

    We propose to include three distinct capabilities in this 
criterion. The first capability is the capability to send and receive 
according to the Applicability Statement for Secure Health Transport 
(the primary Direct Project specification) adopted at Sec.  170.202(a). 
The second capability is to send and receive according to both Edge 
Protocol methods specified by the standard adopted at Sec.  170.202(d). 
The third capability is to send and receive according to the XDR and 
XDM for Direct Messaging Specification adopted at Sec.  170.202(b). 
These three capabilities were previously adopted as part the 2014 
Edition, including through the 2014 Edition and 2014 Edition Release 2 
final rules. We remind health IT developers that best practices exist 
for the sharing of information and enabling the broadest participation 
in information exchange with Direct.\185\
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    \185\ http://wiki.directproject.org/Best+Practices+for+Content+and+Workflow.
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     SOAP Transport and Security Specification and XDR/XDM for 
Direct Messaging

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(h)(3) (SOAP Transport and Security Specification and XDR/
 XDM for Direct Messaging)
------------------------------------------------------------------------

    We propose to adopt a 2015 Edition certification criterion for 
electronic transmission that would include the capability to send and 
receive according to the Transport and Security Specification (also 
referred to as the SOAP-Based Secure Transport RTM adopted at Sec.  
170.202(c)) and its companion specification XDR and XDM for Direct 
Messaging Specification adopted at Sec.  170.202(b) We previously 
adopted this capability for the 2014 Edition at Sec.  170.314(b)(1), 
(b)(2) and (h)(3).
     Healthcare Provider Directory--Query Request

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(h)(4) (Healthcare Provider Directory--query request)
------------------------------------------------------------------------

    In June 2011, the HITPC recommended \186\ that we consider the 
adoption of provider directory capabilities for the ONC Health IT 
Certification Program as well as work to address many of the issues 
they raised. To address the HITPC's recommendations, ONC launched a 
number of initiatives to define a single provider directory standard 
and to pilot its use.
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    \186\ http://www.healthit.gov/sites/default/files/pdf/HITPC_transmit_InfoExchWG_May2011-finalsigned.pdf.
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    ONC worked with implementers and subject matter experts in the 
field to hone in on the specific types of capabilities that should be 
included in a provider directory criterion. Stakeholders voiced a 
desire for technology to have the ability to be able to query 
individual directory sources and directory sources federated by third 
parties such as HIOs, RHIOs, HISPs etc. This is also known as 
``federated querying.'' However, there were only a few implementations 
of federated querying across the country and many were unique due to 
the lack of a single standard. Given this challenge, and its potential 
to inhibit exchange, ONC launched an open source project called 
``Modular Specification Provider Directories (MSPD).'' \187\
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    \187\ http://modularspecs.siframework.org/Provider+Directories+Homepage.
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    During the MSPD project, stakeholders collaborated to identify 
requirements for an updated version of the ``Healthcare Provider 
Directory (HPD)'' profile in order to provide a unified vendor-neutral 
platform for implementation of provider directories that supports both 
federated and non-federated architectures. The project resulted in 
implementable, testable specifications, and high quality test cases 
that verify conformance to the ``test implementation'' and it is now 
part of an approved IHE HPD profile Change Proposal \188\. In addition, 
ONC awarded a grant to the EHR [verbar] HIE Interoperability 
Workgroup \189\ to pilot provider directory standards with multiple 
states.
---------------------------------------------------------------------------

    \188\ ftp://ftp.ihe.net/IT_Infrastructure/TF_Maintenance-2015/CPs/3_FinalText/from_Ballot_24/CP-ITI-792-05.doc.
    \189\ http://www.interopwg.org/.
---------------------------------------------------------------------------

    The original HPD profile created by Integrating the Healthcare 
Enterprise (IHE) \190\ addresses transactions between the client and a 
single provider directory with a single data source. While the standard 
can be used for federation, it does not address the complexities 
introduced by federation; provide a well-defined and straightforward 
approach to error handling; support targeted queries to federated data 
sources; or define mechanisms by which to distinguish the source of 
results in a given response. IHE (in collaboration with ONC, eHealth 
Exchange and the EHR [verbar] HIE Interoperability Work Group) has

[[Page 16864]]

worked to update the IHE HPD profile to address federation. In 
September of 2013 ONC submitted a change proposal to IHE to incorporate 
the MSPD IG into the HPD profile. Through the IHE balloting process 
modifications were made to the change proposal to be backwards 
compatible with the existing IHE HPD Profile. These changes were 
implemented by multiple organizations to prove the feasibility and ease 
of implementation of the change proposal. This revised change proposal 
was approved by IHE in September 2014.\191\ In August 2013, the HITPC 
recommended including a provider directory standard in the EHR 
Incentive Programs Stage 3.\192\ The Voluntary Edition proposed rule 
included a request for public comment on a potential future ``provider 
directory'' certification criterion that would, ``at a minimum,'' 
require health IT to be able to query provider directories for the 
following information and electronically process the response returned 
in accordance with the IHE HPD profile requirements
---------------------------------------------------------------------------

    \190\ http://wiki.ihe.net/index.php?title=Healthcare_Provider_Directory.
    \191\ ftp://ftp.ihe.net/IT_Infrastructure/TF_Maintenance-2015/CPs/3_FinalText/from_Ballot_24/CP-ITI-792-05.doc.
    \192\ http://www.healthit.gov/FACAS/sites/faca/files/IE%20WG_Recommendation%20Transmittal_MU3v2.docx.
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     Query for an individual provider;
     Query for an organizational provider; and
     Query for relationships between individual providers and 
organizational providers.
    We received twenty-three comments related to the provide directory 
question. Twenty of those comments were supportive of the inclusion of 
a provider directory standard in the 2015 Edition. In July 2014, the 
HITSC released their analysis on the IHE HPD profile, stating that the 
IHE HPD+ profile \193\ was a good start, but not yet mature enough for 
nationwide implementation.\194\
---------------------------------------------------------------------------

    \193\ http://ihe.net/uploadedFiles/Documents/ITI/IHE_ITI_Suppl_HPD_Rev1.4_TI_2013-09-20.pdf.
    \194\ http://www.healthit.gov/FACAS/sites/faca/files/HITSC_NwHIN_Provider_Directory_2014-07-16.pdf.
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    Based on the feedback we received from stakeholders on the 
Voluntary Edition proposed rule recommending the adoption of IHE HPD 
and the results of pilots undertaken by EHR [verbar] HIE 
Interoperability Workgroup and others, we believe that making the IHE 
HPD profile available for testing and certification would benefit its 
further use and implementation in the field. Therefore, we propose a 
new certification criterion that would require a Health IT Module to be 
capable of querying a directory using the IHE HPD Profile.\195\ In 
addition, we propose including an optional capability within this 
certification criterion that addresses federated requirements. In this 
optional capability, we propose that the Health IT Module would be 
required to follow the approved federation option of IHE HPD \196\ to 
accomplish querying in federated environments. The federation change 
proposal was approved in September, 2014 and was incorporated into the 
IHE HPD Profile.\197\ While the IHE HPD profile provides the ability to 
perform queries about individual providers, organizational providers, 
provider credentials and other details about providers, this proposed 
certification criterion seeks to establish a minimum set of queries 
that a Health IT Module would be required to support. The capabilities 
that would need to be supported by a Health IT Module include: (1) 
Querying for an individual provider; (2) Querying for an organizational 
provider; (3) Querying for both individual and organizational provider 
in a single query; (4) Querying for relationships between individual 
and organizational providers; and (5) electronically processing the 
response according to the IHE HPD Profile.
---------------------------------------------------------------------------

    \195\ http://www.ihe.net/uploadedFiles/Documents/ITI/IHE_ITI_Suppl_HPD.pdf.
    \196\ http://www.ihe.net/uploadedFiles/Documents/ITI/IHE_ITI_Suppl_HPD.pdf.
    \197\ http://www.ihe.net/uploadedFiles/Documents/ITI/IHE_ITI_Suppl_HPD.pdf.
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    We believe making this basic infrastructure component available for 
testing and certification could assist EPs, EHs, and CAHs in achieving 
the ToC requirements under the EHR Incentive Programs by enabling them 
to find electronic service information such as Direct addresses for 
providers who participate in other HISPs/HIEs. It would also drive a 
common approach to directories across trust communities, which would 
improve interoperability across these communities.
     Healthcare Provider Directory--Query Response

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(h)(5) (Healthcare Provider Directory--query response)
------------------------------------------------------------------------

    To complement the certification criterion we propose for adoption 
at 170.315(h)(4) related to health IT issuing a ``query request,'' we 
also propose to adopt a certification criterion at 170.315(h)(5) that 
would focus on the ``query response'' and include the corresponding set 
of capabilities to respond to a provider directory query. This proposed 
separation would provide developers with the flexibility to test and 
certify for provider directory ``query'' independent of the provider 
directory ``response.'' A health IT system would be able to be 
presented for testing and certification to both proposed certification 
criteria if applicable or just to one or the other as appropriate based 
on the product's capabilities.
    Health IT systems serving as ``directory sources'' that would be 
seeking testing and certification to (h)(5) would have to support 
responding to the same queries initiated by systems seeking testing and 
certification to (h)(4) for interoperability purposes. As part of this 
proposed certification criterion, we propose that directory sources 
must demonstrate the capability to respond to provider directory 
queries according to the IHE HPD profile. Additionally, as part of the 
certification criteria, we propose that the directory sources must 
respond to the following provider directory queries
     Query for an individual provider;
     Query for an organizational provider; and
     Query for relationships between individual providers and 
organizational providers.
    In addition we propose including an optional capability within this 
certification criterion to address federated requirements. In this 
optional capability, we propose that the Health IT Module would be 
required to follow the approved federation option of for IHE HPD to 
accomplish querying in federated environments. The federation change 
proposal was approved in September, 2014 was incorporated into the IHE 
HPD Profile.
     Electronic Submission of Medical Documentation

------------------------------------------------------------------------
 
-------------------------------------------------------------------------
2015 Edition Health IT Certification Criterion
Sec.   170.315(i)(1) (Electronic submission of medical documentation)
------------------------------------------------------------------------

    We propose to adopt a new certification criterion as part of the 
proposed 2015 Edition at Sec.  170.315(i)(1) that would focus on the 
electronic submission of medical documentation.
    According to CMS, the Medicare Fee for Service (FFS) program 
currently spends in excess of $360 billion annually to provide services 
to over 35 million beneficiaries (excludes Medicare eligible 
individuals enrolled in non-FFS Medicare Programs).\198\ The 2013 CMS 
Office of Financial Management (OFM) Improper Payment

[[Page 16865]]

Report \199\ noted that 12.7% (or $45.8 B) of the payments from the 
Medicare trust fund were for claims for services that were either: 1) 
not medically necessary and appropriate based on documentation that was 
submitted; or 2) insufficiently documented to determine if the billed 
service was necessary.
---------------------------------------------------------------------------

    \198\ http://www.hhs.gov/budget/fy2015/fy-2015-budget-in-brief.pdf.
    \199\ http://www.cms.gov/Research-Statistics-Data-and-Systems/Monitoring-Programs/Medicare-FFS-Compliance-Programs/CERT/index.html?redirect=/cert.
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    To respond to Congress' mandate \200\ to more effectively manage 
improper payments, while recognizing the importance of reducing 
administrative burden for providers, CMS OFM's Provider Compliance 
Group (PCG) established the electronic submission of Medical 
Documentation (esMD) program to begin to enable the electronic 
submission of medical documentation.\201\ As part of this program, CMS 
worked with ONC to establish the ``esMD Initiative'' under the S&I 
Framework.\202\ This initiative created use cases and identified 
appropriate standards to facilitate the electronic exchange of medical 
documentation among providers and Medicare FFS review contractors. 
Currently, esMD Phase 1 supports the submission of unstructured data in 
PDF format. This method of submission is broadly deployed and accounts 
for over 25% of all Medicare FFS post-payment medical review 
submissions. In addition to post-payment review, new demonstration 
programs are focused on prior-authorization for specific services that 
have high improper payment rates. Prior-authorization ensures 
appropriate documentation is reviewed prior to these services/items 
being performed or delivered in order to avoid post-payment denials 
that may affect the beneficiary, the provider, or both.
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    \200\ http://www.whitehouse.gov/sites/default/files/omb/financial/_improper/PL_107-300.pdf; http://www.gpo.gov/fdsys/pkg/PLAW-112publ248/pdf/PLAW-112publ248.pdf; and www.whitehouse.gov/sites/default/files/omb/financial/_improper/PL_111-204.pdf.
    \201\ http://www.cms.gov/Research-Statistics-Data-and-Systems/Computer-Data-and-Systems/ESMD/index.html?redirect=/ESMD.
    \202\ http://wiki.siframework.org/esMD+-+Charter+and+Members.
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    In addition to current methods for submitting medical documentation 
(e.g., mail, fax, PDF), Medicare FFS seeks to also enable a 
standardized and interoperable electronic approach that would reduce 
the time, expense, and paper required in current manual processes used 
for prior authorization, pre-payment review, post-payment audit, and 
quality management. Acceptable methods must ensure that providers are 
able to submit any documentation they believe is required in order to 
show that a proposed or provided service meets applicable requirements.
    The esMD Initiative electronic Determination of Coverage (eDoC) 
workgroup provided an open forum for providers and payers to establish 
a mutual understanding of the requirements necessary for submission of 
structured medical documentation to support prior authorization, pre-
payment review and post-payment audit. Standards analysis by the 
workgroup revealed a significant gap in the current standards with 
respect to uses that went beyond the exchange of a summary care record 
between providers. To address this gap, participants in the eDoC 
workgroup created a new Clinical Documents for Payers--Set 1 (CDP1) IG 
to further extend and constrain the C-CDA Release 2.0 standard.
    Non-repudiation of signatures for electronic submission of medical 
documentation was a complementary challenge faced by the esMD 
Initiative. While keeping in mind the cost and impact of certain 
requirements, the esMD Initiative focused on two approaches to digital 
signatures. The ``Author of Record Level 1'' use case addressed the 
need for digital signatures on groups of documents and on single 
transactions. The ``Author of Record Level 2'' use case focused on 
digital signatures that could be embedded in HL7 CDA documents and 
included support for multiple signers where each declares their role 
and signature purpose. In addition to the ability to support digital 
signatures using industry standards, the use cases also addressed a 
standards-based method for the delegation, by a holder of a digital 
certificate, of the right to sign on their behalf by another holder of 
a digital certificate. While digital signatures have been implemented 
in the healthcare industry for other purposes, this effort will extend 
their use to declare and secure the provenance of single documents, 
bundles of documents, and transactions. The use of digital signatures 
on C-CDA documents will guarantee the identity of the author and ensure 
the integrity of the data once the document has been signed.
    In summary, the esMD Initiative and its participants successfully 
produced standards and implementation guides to help minimize improper 
payments; improve interoperability for electronic submission of medical 
documentation, including parameters for non-repudiation, and reduce 
administrative burden associated with prior authorization, pre-payment 
review, post-payment audit and quality management.
    In light of this work, we propose to adopt a certification 
criterion at Sec.  170.315(i)(1) to support the electronic submission 
of medical documentation that includes four specific capabilities, 
which are each discussed in more detail below. As we mentioned in the 
Executive Summary of this proposed rule and discuss in more detail 
under section IV.B of this preamble (Modifications to the ONC Health IT 
Certification Program), we propose to broaden the scope of the ONC 
Health IT Certification Program beyond just focusing on supporting the 
EHR Incentive Programs. As such, we seek to make clear that this 
certification criterion is not within those programs' scope and is 
meant to be available to support other CMS program policy objectives as 
well as health care providers' ability to communicate encounter 
documentation to a payer, in particular to satisfy Medicare FFS 
coverage determination rules.
    Capability 1--We propose that a Health IT Module be able to support 
the creation of a document in accordance with the HL7 Implementation 
Guide for CDA Release 2: Additional CDA R2 Templates--Clinical 
Documents for Payers--Set 1, Release 1--US Realm \203\ in combination 
with the C-CDA Release 2.0 standard (proposed for adoption at Sec.  
170.205(a)(4)). We propose to adopt the most recent version of the CDP1 
IG at Sec.  170.205(a)(5)(i).\204\ The CDP1 IG is designed to be used 
in conjunction with C-CDA Release 2.0 templates and makes it possible 
for providers to exchange a more comprehensive set of clinical 
information. For example, payers such as Medicare FFS allow providers 
to submit any information they believe substantiates that a service is 
medically necessary and appropriate under the applicable coverage 
determination rules.
---------------------------------------------------------------------------

    \203\ http://www.hl7.org/special/Committees/claims/index.cfm. We 
also note that access to the current draft of the CDP1 IG is freely 
available for review during the public comment period by 
establishing an HL7 user account.
    \204\ This would be the version of the IG (DSTU) that completes 
the ballot cycle before issuance of a subsequent final rule.
---------------------------------------------------------------------------

    A Health IT Module's support for the document-level templates 
formatted in accordance with the CDP1 IG would ensure that the 
technology is able to communicate all information relative to a patient 
encounter or assert that information for each ``required'' section is 
not available/included. If the provider then applies a digital 
signature to the document (as discussed in more detail below), the 
result is a non-repudiation

[[Page 16866]]

declaration of the encounter information.
    The CDP1 IG was balloted in February of 2014 and should complete 
balloting this spring.\205\ The February 2014 balloted version includes 
the following new templates:
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    \205\ http://www.hl7.org/special/Committees/claims/index.cfm. We 
also note that access to the current draft of the CDP1 IG is freely 
available for review during the public comment period by 
establishing an HL7 user account.
---------------------------------------------------------------------------

    (1) Five (5) new or additionally constrained document level 
templates:
     Enhanced Encounter Document
     Enhanced Hospitalization Document
     Enhanced Operative Note Document
     Enhanced Procedure Document
     Interval Document
    (2) Four (4) new section level templates:
     Additional Documentation Section
     Externally Defined Clinical Data Elements Section
     Placed Orders Section
     Transportation Section
    (3) Three (3) additionally constrained C-CDA Release 2.0 section 
level templates:
     Functional Status Section
     Plan of Treatment Section
     Social History Section
    (4) New or additionally constrained entry level templates that 
provide support for new section level templates.
    The most recent changes to the CDP1 IG include:
     Expanded descriptions regarding the use of the IG;
     References to and a list of additional constraints for 
templates that are based on the C-CDA Release 2.0 templates;
     Updates required for conformance with the published 
version of the C-CDA Release 2.0 ;
     Removal of attestation language and addition of a document 
succession description (clarification of standard C-CDA document 
succession);
     Technical corrections; and
     Name changes for the IG and the individual document level 
templates.
    The CDP1 IG enables documentation to be completely and accurately 
conveyed in the new document templates. To do this, the document level 
templates referenced by the CDP1 IG require the inclusion of the 
referenced section level templates, which also include additional 
specificity and constraints. While a Health IT Module would need to 
support the entry of additional information, providers would not 
necessarily be required to collect any additional information to 
satisfy the new constraints. In other words, a specific nullFlavor may 
be used by the Health IT Module when creating the CDP1 IG document to 
indicate that no information is available for the relevant section or 
entry level template. Likewise, the Health IT Module may enable the 
provider to indicate that while information is present in the medical 
record it is not applicable to the purpose for which the document is 
intended and would subsequently result in an appropriate nullFlavor in 
the created CDP1 document.
    To meet this capability included in the proposed certification 
criterion, a Health IT Module must be able to create a document that 
also conforms to the CDP1 IG's requirements along with appropriate use 
of nullFlavors to indicate when information is not available in the 
medical record for section or entry level template required in the CDP1 
IG. In addition, a conformant Health IT Module must also demonstrate 
the ability to generate the document level templates as defined in the 
C-CDA Release 2.0, including the unstructured document.
    We propose to further refine this certification criterion's scope 
relative to the applicable document templates within the C-CDA Release 
2.0 and CDP1 IG that would need to be tested and certified for specific 
settings for which a Health IT Module is designed. Specifically, we 
propose that a Health IT Module:
     Would, regardless of the setting for which its designed, 
need to be tested and certified to the following document templates:
    [cir] Diagnostic Imaging Report;
    [cir] Unstructured Document;
    [cir] Enhanced Operative Note Document;
    [cir] Enhanced Procedure Note Document; and
    [cir] Interval Document.
     Designed for the ambulatory setting would also need to be 
certified to the Enhanced Encounter Document.
     Designed for the inpatient setting would also need to be 
certified to Enhanced Hospitalization Document.
    Capability 2--We propose that a Health IT Module be able to support 
the use of digital signatures embedded in C-CDA Release 2.0 and CDP1 IG 
documents templates by adopting the HL7 Implementation Guide for CDA 
Release 2: Digital Signatures and Delegation of Rights, Release 1 (DSDR 
IG) (proposed for adoption at Sec.  170.205(a)(5)(ii)).\206\ This DSDR 
IG defines a method to embed digital signatures in a CDA document and 
provides an optional method to specify delegation of right assertions 
that may be included with the digital signatures. We note, however, 
that for the purposes of certification, we propose to require that that 
optional method must be demonstrated to meet this certification 
criterion. The implementation of this IG will allow payers, such as 
Medicare, to accurately authenticate the authorized signers of CDA 
document and trust the validity and authenticity of signed medical 
documentation. The DSDR IG provides specific guidance on the use of 
digital signatures embedded in a CDA document to:
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    \206\ http://www.hl7.org/implement/standards/product_brief.cfm?product_id=375.
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     Provide a non-repudiation signature that attests to the 
role and signature purpose of each authorized signer to the document.
     Provide for a delegation of rights where the signer is a 
delegated signer and not the authorized signer responsible individual 
or organization (e.g., the signer is acting as an authorized agent).
     Define the method of incorporating multiple digital 
signatures and delegation of right assertions into the header of a CDA 
document.
     Define how to create the digest of the CDA document
     Define how to sign and incorporate the:
    [cir] CDA digest;
    [cir] Timestamp;
    [cir] Role of the signer;
    [cir] Purpose of signature.
     Define how to incorporate the:
    [cir] The public certificate of the signer;
    [cir] Long term validation data, including Online Certificate 
Status Protocol (OCSP) response and/or Certificate Revocation List 
(CRL).
    Digital signatures ensure that the recipient of the signed document 
can authenticate the authorized signer's digital certificate, the 
signature artifact(s), determine the signer's role and signature 
purpose and validate the data integrity of the document. To create a 
valid digital signature that meets Federal Information Processing 
Standards (FIPS) \207\, Federal Information Security Management Act of 
2002 (FISMA) \208\, and Federal Bridge Certification Authority (FBCA) 
requirements \209\, the system used to digitally sign C-CDA Release 2.0 
or CDP1 IG documents in accordance with

[[Page 16867]]

the DSDR IG must meet the following requirements:
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    \207\ http://www.nist.gov/itl/fips.cfm.
    \208\ http://csrc.nist.gov/drivers/documents/FISMA-final.pdf.
    \209\ http://www.idmanagement.gov/sites/default/files/documents/FBCA%20Certificate%20Policy%20v2.27.pdf.
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    (1) The cryptographic module \210\ used must:
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    \210\ A cryptographic module is defined in FIPS 140-2 as ``a set 
of hardware, software, firmware, or some combination thereof that 
implements cryptographic functions or processes, including 
cryptographic algorithms and, optionally, key generation, and is 
contained within a defined cryptographic boundary.''
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    a. Be validated to meet or exceed FIPS 140-2, Level 1.
    b. Implement a digital signature system and hash function must be 
compliant with FIPS 186-2 and FIPS 180-2.
    c. Store the private key on a FIPS 140-2 Level 1 validated 
cryptographic module using a FIPS-approved encryption algorithm.
    (2) The system must support multi-factor authentication that meets 
or exceeds Level 3 assurance as defined in NIST SP 800-63-2.
    (3) The system must set a 10-minute inactivity time period after 
which the certificate holder must re-authenticate the password to 
access the private key.
    (4) For software implementations, when the signing module is 
deactivated, the system must clear the plain text private key from the 
system memory to prevent the unauthorized access to, or use of, the 
private key.
    (5) The system must have a time system that is synced with the 
official National Institute of Standards and Technology time source (as 
described by the standard adopted at 45 CFR 170.210(g)).
    For the purposes of testing and certification, we propose that the 
first requirement (cryptographic module requirements) be met through 
compliance documentation. For all other specific capabilities in the 
list above, we expect testing and certification to assess the 
capabilities expressed.
    We also propose that a Health IT Module must demonstrate the 
ability to validate a digital signature embedded in a C-CDA Release 2.0 
document that is conformant with the DSDR IG. The requirements to 
perform this action are included in the DSDR IG.
    Capability 3--We propose that a Health IT Module be able to support 
the creation and transmission of ``external digital signatures'' for 
documents. These digital signatures may be used to sign any document 
for the purpose of both data integrity and non-repudiation. The esMD 
Initiative defines the requirements in the Author of Record Level 1: 
Implementation Guide.\211\ We propose to adopt this IG at Sec.  
170.205(a)(5)(iii). The Author of Record Level I IG uses the IHE DSG 
standard to provide a signer with the ability to digitally sign 
multiple documents and embed the W3C compliant XADES signature in a 
signature document that may accompany the signed documents or as a 
``wrapper'' for the documents. This signing capability is intended for 
use when the sender of one or more documents needs to ensure that the 
transmitted documents include the non-repudiation identity of the 
sender and ensure that the recipient can validate that the document s 
have not been altered from the time of signing. This is not intended to 
replace the ability to embed multiple digital signatures in a C-CDA 
Release 2.0 and CDP1 IG document. The Author of Record Level 1 IG 
provides specific guidance on the use of a single digital signature, 
external to document, to:
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    \211\ http://wiki.siframework.org/file/view/esMD%20AoR%20Level%201%20Implementation%20Guide%20v5%20FINAL.docx/539084894/esMD%20AoR%20Level%201%20Implementation%20Guide%20v5%20FINAL.docx.
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     Provide a non-repudiation signature that attests to the 
identity of the signer;
     Allows the recipient to validate the data integrity of the 
signed document;
     Provide for a delegation of rights where the signer is a 
delegated signer and not the authorized signer responsible individual 
or organization (e.g., the signer is acting as an authorized agent); 
and
     Defines how to incorporate the public certificate of the 
signer.
    Digital signatures ensure that the recipient of the signed document 
can authenticate the authorized signer's digital certificate, the 
signature artifact(s), and validate the data integrity of the document. 
The system requirements in place to apply digital signatures on 
documents are the same as in capability 2 with the addition of a 
requirement that specifies that a Health IT Module must be able to 
digitally sign single or bundles of documents in conformance with the 
Author of Record Level 1 IG.
    Capability 4--We propose that a Health IT Module be able to support 
the creation and transmission of digital signatures for electronic 
transactions for the purpose of both data integrity and non-repudiation 
authenticity. The esMD Initiative defines the requirements in the 
Provider Profiles Authentication: Registration Implementation 
Guide.\212\ We propose to adopt this IG at Sec.  170.205(a)(5)(iv). The 
Provider Profiles Authentication: Registration IG uses the W3C XADES 
digital signature standard to ``sign'' the contents of an electronic 
transaction and include the signature as accompanying metadata in the 
signed transaction. This signing capability is intended for use when 
the sender or recipient of a transaction needs to ensure that the 
transmitted information include the non-repudiation identity of the 
sender and ensure that the recipient can validate that the authenticity 
and integrity of the transaction information. This is not intended to 
replace the digital signature requirements defined in either Capability 
2 or 3 above. The Provider Profiles Authentication: Registration IG 
provides specific guidance on the creation and use of a single digital 
signature for an electronic transaction, as accompanying metadata, to:
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    \212\ http://wiki.siframework.org/file/view/esMD%20Use%20Case%201%20Implementation%20Guide%20V24%20FINAL.docx/539084920/esMD%20Use%20Case%201%20Implementation%20Guide%20V24%20FINAL.docx.
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     Provide a non-repudiation signature that attests to the 
identity of the signer;
     Allow the recipient to validate the data integrity of the 
signed transaction;
     Provide for a delegation of rights where the signer is a 
delegated signer and not the authorized signer responsible individual 
or organization (e.g., the signer is acting as an authorized agent); 
and
     Define how to incorporate the public certificate of the 
signer.
    Digital signatures ensure that the recipient of the signed 
transaction can authenticate the authorized signer's digital 
certificate, the signature artifact(s), and validate the data integrity 
of the transaction. The system requirements in place to apply digital 
signatures for transactions are the same as in capability 2 with the 
addition of a requirement that specifies that a Health IT Module must 
be able to digitally sign a transaction and create the appropriate 
metadata in conformance with the Provider Profiles Authentication: 
Registration IG.
4. Gap Certification Eligibility Table for 2015 Edition Health IT 
Certification Criteria
    We define gap certification at 45 CFR 170.502 as the certification 
of a previously certified Complete EHR or EHR Module(s) to: (1) all 
applicable new and/or revised certification criteria adopted by the 
Secretary at subpart C of part 170 based on the test results of a 
NVLAP-accredited testing laboratory; and (2) all other applicable 
certification criteria adopted by the Secretary at subpart C of part 
170 based on the test results used to previously certify the Complete 
EHR or EHR Module(s) (for further explanation, see 76 FR 1307-1308). 
Our gap certification policy

[[Page 16868]]

focuses on the differences between certification criteria that are 
adopted through rulemaking at different points in time. This allows 
health IT to be certified to only the differences between certification 
criteria editions rather than requiring health IT to be fully retested 
and recertified to certification criteria (or capabilities) that remain 
unchanged from one edition to the next and for which previously 
acquired test results are sufficient. Under our gap certification 
policy, ``unchanged'' criteria are eligible for gap certification, and 
each ONC-ACB has discretion over whether it will provide the option of 
gap certification.
    For the purposes of gap certification, Table 4 below provides a 
crosswalk of proposed ``unchanged'' 2015 Edition certification criteria 
to the corresponding 2014 Edition certification criteria. We note that 
with respect to the 2015 Edition certification criteria proposed for 
adoption at Sec.  170.315(g)(1) through (g)(3) that gap certification 
eligibility for these criteria is fact-specific and will depend on any 
modifications made to the specific certification criteria to which 
these ``paragraph (g)'' certification criteria apply.

               Table 4--Gap Certification Eligibility for 2015 Edition EHR Certification Criteria
----------------------------------------------------------------------------------------------------------------
                      2015 edition                                             2014 edition
----------------------------------------------------------------------------------------------------------------
    Regulation section Sec.        Title of regulation       Regulation section Sec.       Title of regulation
            170.315                     paragraph                    170.314                    paragraph
----------------------------------------------------------------------------------------------------------------
(a)(1)........................  Computerized provider     (a)(1).......................  Computerized provider
                                 order entry--            (a)(18)......................   order entry.
                                 medications.                                            Computerized provider
                                                                                          order entry--
                                                                                          medications.
(a)(3)........................  Computerized provider     (a)(1).......................  Computerized provider
                                 order entry--diagnostic  (a)(20)......................   order entry.
                                 imaging.                                                Computerized provider
                                                                                          order entry--
                                                                                          diagnostic imaging.
(a)(8)........................  Medication list.........  (a)(6).......................  Medication list.
(a)(9)........................  Medication allergy list.  (a)(7).......................  Medication allergy
                                                                                          list.
(a)(13).......................  Image results...........  (a)(12)......................  Image results.
(a)(16).......................  Patient list creation...  (a)(14)......................  Patient list creation.
(a)(18).......................  Electronic medication     (a)(16)......................  Electronic medication
                                 administration record.                                   administration record.
(d)(1)........................  Authentication, access    (d)(1).......................  Authentication, access
                                 control, and                                             control, and
                                 authorization.                                           authorization.
(d)(2)........................  Auditable events and      (d)(2).......................  Auditable events and
                                 tamper-resistance.                                       tamper-resistance.
(d)(3)........................  Audit report(s).........  (d)(3).......................  Audit report(s).
(d)(4)........................  Amendments..............  (d)(4).......................  Amendments.
(d)(5)........................  Automatic access time-    (d)(5).......................  Automatic log-off.
                                 out.
(d)(6)........................  Emergency access........  (d)(6).......................  Emergency access.
(d)(7)........................  End-user device           (d)(7).......................  End-user device
                                 encryption.                                              encryption.
(d)(8)........................  Integrity...............  (d)(8).......................  Integrity.
(d)(9)........................  Accounting of             (d)(9).......................  Accounting of
                                 disclosures.                                             disclosures.
(e)(2)........................  Secure messaging........  (e)(3).......................  Secure messaging.
(h)(1)........................  Direct Project..........  (b)(1)(i)(A) and               Transitions of care--
                                                           (b)(2)(ii)(A).                 receive, display, and
                                                                                          incorporate transition
                                                                                          of care/referral
                                                                                          summaries.
                                                                                         Transitions of care--
                                                                                          create and transmit
                                                                                          transition of care/
                                                                                          referral summaries.
                                                          (h)(1).......................  Transmit--Applicability
                                                                                          Statement for Secure
                                                                                          Health Transport.
(h)(2)........................  Direct Project, Edge      (b)(1)(i)(B), (b)(2)(ii)(B),   Transitions of care--
                                 Protocol, and XDR/XDM.    and (b)(8) \213\.              receive, display, and
                                                                                          incorporate transition
                                                                                          of care/referral
                                                                                          summaries.
                                                                                         Transitions of care--
                                                                                          create and transmit
                                                                                          transition of care/
                                                                                          referral summaries.
                                                                                         Transitions of care--
                                                                                          send and receive via
                                                                                          edge protocol.
                                                          (h)(2) and (b)(8)............  Transmit--Applicability
                                                                                          Statement for Secure
                                                                                          Health Transport and
                                                                                          XDR/XDM for Direct
                                                                                          Messaging.
                                                                                         Transitions of care--
                                                                                          send and receive via
                                                                                          edge protocol.
(h)(3)........................  SOAP Transport and        (b)(1)(i)(C) and               Transitions of care--
                                 Security Specification    (b)(2)(ii)(C).                 receive, display, and
                                 and XDR/XDM for Direct                                   incorporate transition
                                 Messaging.                                               of care/referral
                                                                                          summaries.
                                                                                         Transitions of care--
                                                                                          create and transmit
                                                                                          transition of care/
                                                                                          referral summaries.
                                                          (h)(3).......................  Transmit--SOAP
                                                                                          Transport and Security
                                                                                          Specification and XDR/
                                                                                          XDM for Direct
                                                                                          Messaging.
----------------------------------------------------------------------------------------------------------------


[[Page 16869]]

5. Pharmacogenomics Data--Request for Comment
    Pharmacogenomics data identifies genetic variants in individuals 
that alter their metabolism or other interactions with medications and 
can lead to serious adverse events. This information is being included 
in an increasing number of FDA-approved drug labels. Health IT systems 
that can capture pharmacogenomics information could be used to increase 
patient safety and enhance patient outcomes.
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    \213\ Technology must have been certified to both edge protocol 
methods specified by the standard in Sec.  170.202(d) to be gap 
certification eligible.
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    To our knowledge, in general, health IT has not yet captured 
genomic and genetic patient information--the presence of clinically 
significant genomic variants--in a structured manner such as exists for 
other categorical clinical findings or laboratory-derived data.\214\ 
This information may currently be captured in free text and static PDFs 
except in a few individual health centers where custom health IT 
solutions have been developed. However, work on standards and other 
precursors required for wider adoption is underway, including through 
the Institute of Medicine, HL7, and LOINC[supreg].\215\ Many of these 
efforts are using pharmacogenomic variations as prototypes because the 
clinical utility of a subset of such variants has a greater evidence-
base, has wide clinical applicability, and is already in clinical use. 
Pharmacogenomic implementation aims to limit preventable adverse 
effects and maximize efficacy by using information about genomic 
variants to enable optimal drug choices and patient-specific dosing.
---------------------------------------------------------------------------

    \214\ http://www.genomebc.ca/education/articles/genomics-vs-genetics/; and http://www.who.int/genomics/geneticsVSgenomics/en/.
    \215\ Clinical Pharmacogenetics Implementation Consortium, 
http://www.pharmgkb.org/page/cpic/; electronic medical records and 
genomics Network (eMERGE), http://emerge.mc.vanderbilt.edu/emerge-network and http://emerge.mc.vanderbilt.edu/emerge-publications-0; 
Clinical Sequencing Exploratory Research (CSER) https://cser-consortium.org; Implementing Genomics in Practice (IGNITE), http://www.ignite-genomics.org/IGNITE_ABOUT.html; Institute of Medicine 
(IOM) Action Collaborative, http://www.iom.edu/Activities/Research/GenomicBasedResearch.aspx; NHGRI GM7, Genomic Medicine Centers 
Meeting VII action items relating to pharmacogenomics 
implementation, http://www.genome.gov/Multimedia/Slides/GM7/09_Williams-Middleton.pdf; Clinical Genome Resource, http://www.clinicalgenome.org/about/; Clinical Variation Aggregation 
Database, https://www.ncbi.nlm.nih.gov/clinvar/; and HL7 Clinical 
Genomics Working Group, http://www.hl7.org/Special/committees/clingenomics/index.cfm.
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    For the use case of CDS informed by pharmacogenetic information, 
considerable ambiguity exists with respect to the incorporation of CDS 
systems that facilitate providers taking advantage of pharmacogenomic 
information.\216\ Thus, there is an opportunity for further 
specification of standards and implementation of pharmacogenomic data 
for CDS within health IT systems. We also believe there may be 
opportunities for capturing genomic patient data in laboratory results, 
for drug-genome interactions, and for genomic metabolizer status 
(defined risks to certain medications) in a structured way within 
health IT.
---------------------------------------------------------------------------

    \216\ Overby CL, Kohane I, Kannry J, et al, Opportunities for 
Genomic Clinical Decision Support Interventions, Genet Med. 2013 
October 2015(10):817-23; Rasmussen-Torvik LJ, Stallings SC, Gordon 
AS, et al, Design and Anticipated Outcomes of the eMERGE-PGx 
Project: A Multi-Center Pilot for Pre-Emptive Pharmacogenomics in 
Electronic Health Record Systems, Clin Pharmacol Ther. 2014 Jun 24. 
doi: 10.1038/clpt.2014.137, [Epub ahead of print]; Karnes JH, Van 
Driest S, Bowton EA, et al, Using systems approaches to address 
challenges for clinical implementation of pharmacogenomics, Wiley 
Interdiscip Rev Syst Biol Med. 2014 Mar-Apr;6(2):125-35, 
doi:10.1002/wsbm.1255. Epub 2013 Dec 6; and Peterson JF, Bowton E, 
Field JR, et al, Electronic health record design and implementation 
for pharmacogenomics: a local perspective, Genet Med. 2013 
Oct;15(10):833-41. doi: 10.1038/gim.2013.109. Epub 2013 Sep 5.
---------------------------------------------------------------------------

    Note that we have previously adopted a 2014 Edition ``family health 
history'' certification criterion that referenced the HL7 standard for 
representing genomic information and are proposing a 2015 Edition 
``family health history--pedigree'' certification criterion that 
references that same standard as well as a related IG. In addition to 
their relevance for the tested patient, genomic test results are unique 
in that they have the potential to inform the health care of blood 
relatives of the tested individual, similar to a shared family history. 
We note that any application of genomic information across family 
members must be done in accordance with the HIPAA Privacy Rule and 
other privacy and patient rights laws regarding genetic information at 
the federal and state levels.
    We acknowledge that individually identifiable genetic information 
may be subject to federal and state privacy laws and regulations that 
are more privacy restrictive than the HIPAA Privacy Rule. As such, 
these privacy issues will impact any certification criteria or policy 
we might propose to adopt in future rulemaking. We therefore welcome 
input on factors to consider for health IT that allows the user to use 
or disclose genetic information in a manner compliant with federal and 
state privacy laws. Note that we are proposing two new 2015 Edition 
certification criteria for ``data segmentation for privacy--send'' and 
``data segmentation for privacy--receive'' that would focus on the 
capability to separately track (``segment'') individually identifiable 
health information that is protected by rules that are more restrictive 
than the HIPAA Privacy Rule (please refer to Section III.A.3 for more 
information). We believe that the capabilities offered by the proposed 
``data segmentation for privacy'' criteria could be leveraged for the 
segmentation of individually identifiable genetic information that are 
protected by federal and state privacy laws and regulations.
    We also acknowledge that the inclusion of genomic information in 
health IT-related mechanisms will need to be carefully implemented to 
balance the benefit to patients while avoiding discrimination against 
persons with or at risk for the development of future health issues, 
and their family members.
    In collaboration with the National Institutes of Health, we solicit 
comment on whether:
     The 2015 Edition ``medication allergy list'' certification 
criterion should include the capability to integrate genotype-based 
drug metabolizer rate information.
     The 2015 Edition ``drug-drug, drug-allergy interactions 
checks for CPOE'' certification criterion or as a separate 
certification criterion should include pharmacogenomic CDS for ``drug-
genome interactions.''
     We should offer 2015 Edition certification for CDS that 
incorporate a patient's pharmacogenomic genotype data into the CPOE 
prescribing process with the goal of avoiding adverse prescribing 
outcomes for known drug-genotype interactions.
     There are certification approaches that could enhance the 
end-user's (provider's) adoption and continued use of health IT 
implementations that guide prescribing through CDS using 
pharmacogenomic data.
     There are existing or developing standards applicable to 
the capture, storage, display, and exchange of potentially clinically 
relevant genomic data, including the pharmacogenomic subset.
     We should offer certification for health IT functionality 
that could facilitate HIPAA-compliant sharing of discrete elements of a 
patient's genomic information from their record to the family history 
section of a relative's record.
     The proposed ``data segmentation for privacy'' criteria 
would provide needed health IT functions with respect to the storage, 
use, transmission, and disclosure of genetic, genomic, and 
pharmacogenomics information that is subject to protections under HIPAA 
and

[[Page 16870]]

additional state and federal privacy and protection laws such as the 
Genetic Information Nondiscrimination Act (GINA).\217\
---------------------------------------------------------------------------

    \217\ http://ghr.nlm.nih.gov/spotlight=thegeneticinformationnondiscriminationactgina.
---------------------------------------------------------------------------

     The proposed ``data segmentation for privacy'' criteria 
adequately balance complex genetic privacy issues, such as those 
related to behavioral health, with the clinical value of context-
appropriate availability of a patient's actionable genetic and genomic 
information.
     Health IT should be required to apply different rules for 
the use and exchange of genetic, genome, and pharmacogenomics data 
based on different groupings of diseases or conditions based on the 
sensitivity of the information, such as those related to behavioral 
health.
     There are other factors we should consider for health IT 
that allows the user to use or disclose genetic information in a manner 
compliant with federal and state privacy laws.

B. Definitions

1. Base EHR Definitions
    We propose to adopt a Base EHR definition specific to the 2015 
Edition (i.e., a 2015 Edition Base EHR definition) at Sec.  170.102 and 
rename the current Base EHR definition at Sec.  170.102 as the 2014 
Edition Base EHR definition. To effectively rename the current Base EHR 
definition as the ``2014 Edition Base EHR'' definition, the Base EHR 
definition must be removed from the CFR and a ``2014 Edition Base EHR'' 
definition must be added. This is a procedural requirement and we 
affirm that the definition itself is not changing. However, for the 
proposed 2015 Edition Base EHR definition, it would differ from the 
2014 Edition Base EHR definition in the following ways:
     It does not include privacy and security capabilities and 
certification criteria. We believe privacy and security capabilities 
would be more appropriately addressed through our new proposed approach 
for the privacy and security certification of Health IT Modules to the 
2015 Edition, as discussed under ``Privacy and Security'' in section 
IV.C.1 of this preamble. Our new privacy and security approach would 
eliminate EPs', eligible hospitals', and CAHs' responsibilities to 
ensure that they have technology certified to all the necessary privacy 
and security criteria. Rather, as part of certification, health IT 
developers would need to meet applicable privacy and security 
certification criteria.
     It only includes capabilities to record and export CQM 
data (Sec.  170.315(c)(1)). To note, the capabilities to import, 
calculate and report CQM data are not included in the proposed 2015 
Edition Base EHR definition or any other CQM-related requirements. 
Please refer to the ``Clinical Quality Measures'' section (III.A.3) 
earlier in this preamble for a more detailed discussion of the CQM 
certification criteria. Please also see the EHR Incentive Programs 
Stage 3 proposed rule published elsewhere in this issue of the Federal 
Register for proposals related to CQMs, including the CEHRT definition 
proposal.
     It includes the 2015 Edition ``smoking status'' 
certification criterion as patient demographic and clinical health 
information data consistent with statutory requirements.\218\ Smoking 
and the use of tobacco in general is the number one cause of 
preventable death and disease in the United States. By including this 
capability and criterion in the definition, it ensures that providers 
participating in the EHR Incentive Programs have the basic capability 
to capture the smoking status of patients, which permits more providers 
to take part in addressing (through intervention and cessation efforts) 
this cause of preventable disease and death.
---------------------------------------------------------------------------

    \218\ A Base EHR is the regulatory term we have given to what 
the HITECH Act defines as a ``qualified EHR.'' Our Base EHR 
definition(s) include all capabilities found in the ``qualified 
EHR.'' Please see the 2014 Edition final rule (77 FR 54262) for 
further explanation.
---------------------------------------------------------------------------

     It includes the 2015 Edition ``implantable device list'' 
certification as patient demographic and clinical health information 
data consistent with statutory requirements.\219\ The ability to record 
and access a patient's unique device identifiers can improve patient 
safety. Please see the discussion under the ``implantable device list'' 
certification criterion for further benefits derived from providers 
having access unique device identifier(s) for a patient's implantable 
device(s).
---------------------------------------------------------------------------

    \219\ A capability included in the Base EHR definition, which 
originates from the ``qualified EHR'' definition found in the HITECH 
Act.
---------------------------------------------------------------------------

     It includes the 2015 Edition ``application access to 
Common Clinical Data Set'' certification criterion as a capability to 
both capture and query information relevant to health care quality and 
exchange electronic health information with, and integrate such 
information from other sources.\220\ Due to the proposed inclusion of 
the 2015 Base EHR definition in the proposed CEHRT definition (see 
``CEHRT definition'' section below and in the EHR Incentive Programs 
Stage 3 proposed rule published elsewhere in this issue of the Federal 
Register), like all capabilities and criteria included in the 2015 
Edition Base EHR definition, this would ensure that all EPs, eligible 
hospitals, and CAHs would need to adopt a Health IT Module certified to 
this criterion in order to have the necessary health IT to meet the 
CEHRT definition. As such, the inclusion of the 2015 Edition 
``application access to Common Clinical Data Set'' certification 
criterion in the 2015 Edition Base EHR definition could further 
facilitate health information exchange by being specifically used to 
meet meaningful use objectives and measures as well as through it 
simply being readily available for use by these providers and their 
patients.
---------------------------------------------------------------------------

    \220\ These are capabilities included in the Base EHR 
definition, which originate from the ``qualified EHR'' definition 
found in the HITECH Act.
---------------------------------------------------------------------------

     It includes the proposed 2015 Edition Health IT 
certification criteria that correspond to the remaining 2014 Edition 
certification criteria referenced in the ``2014 Edition'' Base EHR 
definition (i.e., CPOE, demographics, problem list, medication list, 
medication allergy list, CDS, transitions of care, data portability, 
and relevant transport certification criteria). On the inclusion of 
transport certification criteria, we propose to include the ``Direct 
Project'' criterion (Sec.  170.315(h)(1)) as well as the ``Direct 
Project, Edge Protocol and XDR/XDM'' criterion (Sec.  170.315(h)(2)) as 
equivalent alternative means for meeting the 2015 Edition Base EHR 
definition for the reasons discussed earlier in this preamble under the 
``Transport Methods and Other Protocols'' section.

[[Page 16871]]



  Table 5--Certification Criteria Required to Satisfy the 2015 Edition
                           Base EHR Definition
------------------------------------------------------------------------
         Base EHR capabilities                Certification criteria
------------------------------------------------------------------------
Includes patient demographic and         Demographics Sec.
 clinical health information, such as     170.315(a)(5)
 medical history and problem lists.      Problem List Sec.
                                          170.315(a)(7)
                                         Medication List Sec.
                                          170.315(a)(8)
                                         Medication Allergy List Sec.
                                          170.315(a)(9)
                                         Smoking Status Sec.
                                          170.315(a)(12)
                                         Implantable Device List Sec.
                                          170.315(a)(20)
Capacity to provide clinical decision    Clinical Decision Support Sec.
 support.                                  170.315(a)(10)
Capacity to support physician order      Computerized Provider Order
 entry.                                   Entry Sec.   170.315(a)(1),
                                          (2) or (3)
Capacity to capture and query            Clinical Quality Measures Sec.
 information relevant to health care       170.315(c)(1)
 quality.
Capacity to exchange electronic health   Transitions of Care Sec.
 information with, and integrate such     170.315(b)(1)
 information from other sources.         Data Portability Sec.
                                          170.315(b)(6)
                                         Application Access to Common
                                          Clinical Data Set Sec.
                                          170.315(g)(7)
                                         Direct Project Sec.
                                          170.315(h)(1) or Direct
                                          Project, Edge Protocol, and
                                          XDR/XDM Sec.   170.315(h)(2)
------------------------------------------------------------------------

Marketing
    We note that we would continue the same marketing policy that we 
adopted for the 2014 Edition as it relates to the 2015 Edition Base EHR 
definition (i.e., health IT developers would have the ability to market 
their technology as meeting the 2015 Edition Base EHR definition when 
their Health IT Module(s) is/are certified to all the 2015 Edition 
health IT certification criteria included in the 2015 Edition Base EHR 
definition).
2. Certified EHR Technology Definition
    We propose to remove the Certified EHR Technology (CEHRT) 
definition from Sec.  170.102, effective with a subsequent final rule 
for the following reasons. The CEHRT definition has always been defined 
in a manner that supports the EHR Incentive Programs. As such, the 
CEHRT definition would more appropriately reside solely within the EHR 
Incentive Programs regulations. This would also be consistent with our 
approach in this proposed rule to make the ONC Health IT Certification 
Program more open and accessible to other types of health IT beyond EHR 
technology and for health IT that supports care and practice settings 
beyond those included in the EHR Incentive Programs. Further, this 
approach should add administrative simplicity in that regulatory 
provisions, which EHR Incentive Programs participants must meet (e.g., 
the CEHRT definition), would be defined within the context of 
rulemakings for those programs.
    The EHR Incentive Programs currently include a regulatory 
definition of CEHRT in 42 CFR 495.4 that simply adopts the CEHRT 
definition in Sec.  170.102. As proposed in the EHR Incentive Programs 
Stage 3 proposed rule, published elsewhere in this issue of the Federal 
Register, CMS would adopt a CEHRT definition in 42 CFR 495.4 that would 
cover all relevant compliance timelines (i.e., specify the CEHRT 
definition applicable for each year/EHR reporting period) and EHR 
Incentive Programs requirements. The CEHRT definition proposed by CMS 
would also continue to point to the relevant Base EHR definitions \221\ 
adopted or proposed by ONC and to other ONC-adopted and proposed 
certification criteria relevant to the EHR Incentive Programs. We refer 
readers to EHR Incentive Programs Stage 3 proposed rule for further 
details regarding the CEHRT definition proposal.
---------------------------------------------------------------------------

    \221\ This is required by the HITECH Act under the term 
``Qualified EHR'' and references a foundational set of certified 
capabilities all EPs, eligible hospitals, and CAHs need to adopt.
---------------------------------------------------------------------------

3. Common Clinical Data Set Definition
    We propose to revise the ``Common MU Data Set'' definition in Sec.  
170.102. We propose to change the name to ``Common Clinical Data Set,'' 
which aligns with our approach throughout this proposed rule to make 
the ONC Health IT Certification Program more open and accessible to 
other types of health IT beyond EHR technology and for health IT that 
supports care and practice settings beyond those included in the EHR 
Incentive Programs. To effectively rename the Common MU Data Set as the 
``Common Clinical Data Set,'' the Common MU Data Set definition must be 
removed from the CFR and the ``Common Clinical Data Set'' definition 
must be added. This is a procedural requirement and all substantive 
changes to the definition would only affect certification to the 2015 
Edition. We also propose to change references to the ``Common MU Data 
Set'' in the 2014 Edition (Sec.  170.314) to ``Common Clinical Data 
Set.''
    We propose to revise the definition to account for the new and 
updated standards and code sets we propose to adopt in this proposed 
rule that would improve and advance interoperability through the 
exchange of the Common Clinical Data Set. We also propose to revise the 
definition to support patient safety through clearly referenced data 
elements and the inclusion of new patient data. These proposed 
revisions would not change the standards, codes sets, and data 
requirements specified in the Common Clinical Data Set for 2014 Edition 
certification. They would only apply to a Health IT Module certified to 
the 2015 Edition Health IT certification criteria that reference the 
Common Clinical Data Set.
Vocabulary Standards
    We propose to include HL7 Version 3 (``AdministrativeGender'' and a 
nullFlavor value) for sex, ``Race & Ethnicity--CDC'' code system in 
PHIN VADS and the OMB standard for race and ethnicity, RFC 5646 for 
preferred language, the September 2014 Release of the U.S. Edition of 
SNOMED CT[supreg] for problems and procedures, the February 2, 2015 
monthly version of RxNorm for medications and medication allergies, 
LOINC[supreg] version 2.50 for laboratory tests, and the LOINC[supreg] 
codes, metadata, and relevant UCUM unit of measures specified for vital 
signs as discussed under the ``vital signs, BMI and growth charts'' 
certification criterion in section III.A.3 of this preamble. We note 
that for race and ethnicity a Health IT Module must be able to express 
both detailed races and ethnicities according to the ``Race & 
Ethnicity--CDC'' code system and the aggregate OMB code for each race 
and ethnicity identified by the patient.
    We propose to include immunizations in the ``Common Clinical Data 
Set'' for 2015 Edition certification. As described

[[Page 16872]]

in more detail in the preamble for the ``transmission to immunization 
registries'' certification criterion in section III.A.3, the C-CDA 
Release 2.0 can support NDC codes as a translational data element, but 
the CVX code is required to accompany it. The NDC code contains more 
information than the CVX code, such as packaging information, that can 
assist with tracking for clinical trials and adverse events. We believe 
that it would not be a heavy burden to map from an NDC code to a CVX 
code because a mapping from NDC codes to CVX codes is publicly 
available.\222\ Therefore, for the purposes of including immunizations 
in the ``Common Clinical Data Set'' for 2015 Edition certification, 
immunizations would be required to be coded according to the CVX code 
set (HL7 Standard Code Set CVX--Vaccines Administered, updates through 
February 2, 2015) and the NDC code set (NDC--Vaccine Codes, updates 
through January 15, 2015) as part of the ``Common Clinical Data Set.''
---------------------------------------------------------------------------

    \222\ http://www2a.cdc.gov/vaccines/iis/iisstandards/vaccines.asp?rpt=ndc. See also: http://www2a.cdc.gov/vaccines/iis/iisstandards/ndc_tableaccess.asp.
---------------------------------------------------------------------------

Unique Device Identifier(s)
    We also propose to include the Unique Device Identifier(s) of a 
patient's Implantable Device(s) for certification to the 2015 Edition. 
As discussed under the ``implantable device list'' certification 
criterion, this information leads to improved patient safety when 
available to providers. By including this information in the Common 
Clinical Data Set, a Health IT Module certified to criteria referencing 
the Common Clinical Data Set would be capable of exchanging this 
information and further facilitating improvements in patient safety.
Assessment and Plan of Treatment, Goals, and Health Concerns
    We propose to include the ``assessment and plan of treatment,'' 
``goals,'' and ``health concerns'' in the ``Common Clinical Data Set'' 
for certification to the 2015 Edition. The ``assessment and plan of 
treatment,'' ``goals,'' and ``health concerns'' are intended to replace 
the concept of the ``care plan field(s), including goals and 
instructions'' which is part of the ``Common MU Data Set'' in the 2014 
Edition. Based on conversations with stakeholders, we are aware that 
the ``care plan field(s), including goals and instructions'' may be 
interpreted in two different ways. It might be interpreted to mean the 
assessment, plan of care (for treatment), goals, and health concerns 
documented for a single patient encounter (in ambulatory settings) or 
for the duration of an inpatient stay (in inpatient settings). However, 
``care plan field(s), including goals and instructions'' could also be 
interpreted to mean a comprehensive shared care plan that represents 
the synthesis and reconciliation of multiple plans of care (for 
treatment) produced by each provider to address specific health 
concerns. Stakeholders have indicated that in implementation, they have 
interpreted ``care plan field(s), including goals and instructions'' in 
the ``Common MU Data Set'' as the assessment, plan of care (for 
treatment), goals, and health concerns for a single patient encounter 
or inpatient stay. These stakeholders have expressed safety concerns 
that the volume of data in a comprehensive care plan can be so 
extensive that it may be difficult for a provider to quickly determine 
the information of value for the patient for the given situation.
    In consideration of this feedback, we clarify that we intend ``care 
plan field(s), including goals and instructions'' to be a single 
provider's documentation of their assessment, plan of treatment, goals, 
and health concerns for the patient (this clarification applies for 
2014 Edition certification). We also make this clarification to better 
align with the terms used in the C-CDA Release 2.0, which includes the 
``Assessment and Plan Section (V2),'' ``Assessment Section (V2),'' 
``Plan of Treatment Section (V2),'' ``Goals Section,'' and ``Health 
Concerns Section.'' In previous iterations of the C-CDA, the ``Plan of 
Treatment Section'' was called the ``Plan of Care Section,'' which 
resulted in the same level of confusion on whether the information was 
intended to represent a single encounter or the synthesis of multiple 
encounters. For that reason, the ``Plan of Care Section'' is now called 
the ``Plan of Treatment Section'' to indicate that it is intended to 
represent a single encounter and not to be confused with the ``Care 
Plan document template.''
    For certification to the 2015 Edition, we propose to include in the 
Common Clinical Data Set ``assessment and plan of treatment,'' 
``goals,'' and ``health concerns'' data in accordance with the C-CDA 
Release 2.0 ``Assessment and Plan Section (V2)'' or both the 
``Assessment Section (V2)'' and ``Plan of Treatment Section (V2);'' the 
``Goals Section;'' and the ``Health Concerns Section.'' In practice, 
health care providers may document the assessment and plan of treatment 
together or separately, and the C-CDA Release 2.0 provides for both 
modes of practice. We understand that the C-CDA Release 2.0 permits 
both free-text and structured documentation of the assessment, plan of 
treatment, goals, and health concerns information in the sections named 
above. While we do not propose to require that this information is 
documented in a structured way, we encourage health IT developers to 
allow for structured documentation or tagging that would allow a 
provider to choose relevant pieces of assessment, plan of treatment, 
goals, and health concerns data that could be synthesized into a 
comprehensive care plan. We note that all proposed 2015 Edition 
certification criteria that reference the ``Common Clinical Data Set'' 
(e.g., the ToC criterion) would therefore also require a Health IT 
Module to be able to capture ``assessment and plan of treatment,'' 
``goals,'' and ``health concerns'' data.
    We continue to believe in the value of a comprehensive care plan 
and discuss our proposal for a 2015 Edition certification criterion for 
this functionality in Section III.A.3 of the preamble (see the ``care 
plan'' certification criterion). As stated above, a comprehensive care 
plan may contain a large volume of data that is burdensome to transmit 
for the purposes of sharing information relevant for a single encounter 
or inpatient stay, and thus we do not propose to include it in the 
``Common Clinical Data Set'' definition.
Alignment With Clinical Practice
    We recognize that the data included in the Common Clinical Data Set 
may change over time. Therefore, we request comment on ways in which we 
can engage the public to keep the Common Clinical Data Set relevant to 
clinical practice.
4. Cross Referenced FDA Definitions
    As discussed in our proposal for the 2015 Edition ``implantable 
device list'' certification criterion, we propose to adopt in Sec.  
170.102 new definitions for ``Implantable Device,'' ``Unique Device 
Identifier,'' ``Device Identifier,'' and ``Production Identifier.'' We 
propose to adopt the same definitions already provided to these phrases 
at 21 CFR 801.3. Again, we believe adopting these definitions in our 
rule will prevent any interpretation ambiguity and ensure that each 
phrase's specific meaning reflects the same meaning given to them in 
the Unique Device Identification System final rule at 21 CFR 801.3. 
Capitalization was purposefully applied to each word in these defined 
phrases in order to signal to readers that they have specific meanings.

[[Page 16873]]

IV. Provisions of the Proposed Rule Affecting the ONC Health IT 
Certification Program

A. Subpart E--ONC Health IT Certification Program

    We propose to replace the term ``HIT'' with the term ``health IT'' 
wherever it may occur in subpart E. While ``HIT'' is a term used in the 
HITECH Act, we believe the term ``health IT'' offers more clarity than 
``HIT'' for stakeholders. Similarly, we propose to replace the ``ONC 
HIT Certification Program'' with ``ONC Health IT Certification 
Program'' wherever it may occur in subpart E. In referring to the 
certification program, the term ``health'' is capitalized. We also 
propose to remove Sec.  170.553 ``Certification of health information 
technology other than Complete EHRs and EHR Modules'' as we believe 
this section is no longer relevant based on our proposals for the ONC 
Health IT Certification Program discussed in more detail below.

B. Modifications to the ONC Health IT Certification Program

    In the Voluntary Edition proposed rule (79 FR 10929-30) we recited 
our authority and the history of the ONC Health IT Certification 
Program, including multiple requests for comment and significant 
feedback on making the program more accessible to health IT beyond EHR 
technology and health care settings and practices not directly tied to 
the EHR Incentive Programs. With consideration of stakeholder feedback 
and our policy goals, we attempted to make the ONC Health IT 
Certification Program more open and accessible through a proposal in 
the Voluntary Edition proposed rule (79 FR 10918-20) to create MU and 
non-MU EHR Modules. We subsequently determined that our proposal was 
not the best approach (79 FR 54472-73). Since that rulemaking, the 
HITPC has issued recommendations supporting certification for care/
practice settings beyond the ambulatory and inpatient settings.\223\ We 
have also reconsidered how best to structure the program and make it 
open and accessible to more types of health IT, health IT that supports 
a variety of care and practice settings, and programs that may 
reference the ONC Health IT Certification Program, including Medicaid 
and Medicare payment programs and various grant programs.
---------------------------------------------------------------------------

    \223\ http://www.healthit.gov/facas/sites/faca/files/TransmittalLetter_LTPAC_BH_Certification.pdf and http://www.healthit.gov/facas/sites/faca/files/HITPC_LTPAC_BH_Certification_Recommendations_FINAL.pdf.
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1. Health IT Modules
    We propose to rename EHR Modules as Health IT Modules. To 
effectively rename EHR Modules as Health IT Modules, the EHR Module 
definition must be removed from the CFR at Sec.  170.102 and a ``Health 
IT Module'' definition must be added. This proposed change would be 
effective on the effective date of a subsequent final rule, which would 
make this change applicable for certification to the 2014 Edition and 
2015 Edition (if adopted). An EHR Module is defined in Sec.  170.102 as 
any service, component, or combination thereof that can meet the 
requirements of at least one certification criterion adopted by the 
Secretary. The definition essentially covers any type of technology 
that could be certified to one or more certification criterion under 
the ONC Health IT Certification Program. As such, our proposed change 
will have no substantive impact on the technologies that might be, or 
have been, certified under the ONC Health IT Certification Program. We 
believe this proposal best addresses the full range of health IT that 
has and might be certified to adopted certification criteria now and in 
the future. This approach also gives more appropriate attribution to 
certifications issued to technologies that would not generally be 
considered ``EHR'' functionality, such as functionality provided by a 
HISP, HIE, or LIS. The switch to ``Health IT Module'' could also have 
long-term practicality as the ONC Health IT Certification Program 
evolves.
    For technologies already certified to the 2014 Edition as EHR 
Modules, this proposal would not affect the certification of those 
technologies or the ability to use those technologies to meet the CEHRT 
definition. Further, we see no reason why these technologies could not 
be called Health IT Modules if the developer wished to do so. We 
suggest, however, that health IT developers check with the ONC-ACB that 
issued the certification to ensure this would be permissible based on 
the issued certification.
    We also emphasize that a Health IT Module is simply the name for a 
technology that gets issued a certification under the ONC Health IT 
Certification Program. One Health IT Module certification or multiple 
Health IT Modules certifications can be of sufficient scope to meet the 
Base EHR definition and even the CEHRT definition.
2. ``Removal'' of Meaningful Use Measurement Certification Requirements
    We propose to not require ONC-ACBs to certify Health IT Modules to 
the 2015 Edition ``meaningful use measurement'' certification criteria 
(Sec.  170.315(g)(1) ``automated numerator recording'' and Sec.  
170.315(g)(2) ``automated measure calculation''). This is a change from 
prior certification policy, such as with the certification of 
technology to the 2014 Edition and the requirements of Sec.  
170.550(f)(1). We believe this will make the ONC Health IT 
Certification more accessible to the certification of health IT for 
other purposes beyond the EHR Incentive Programs. Further, we have 
received feedback from stakeholders that these requirements can pose a 
significant burden on health IT development and come at the cost of 
improving clinical functionality and usability (79 FR 54469). We have 
also heard from stakeholders that these criteria can impact innovation. 
Whether this feedback is entirely accurate is not the primary reason 
for our changed approach. Rather, we believe that not all health IT 
certified under the ONC Health IT Certification Program needs to have 
these capabilities and that it is more appropriate to align our 
approach to these criteria with our primary policy of administering a 
certification program that includes certification criteria that broadly 
support the health care system, while making available for health IT 
developers the flexibility to present their health IT for certification 
to the criteria that support their specific customers' and providers' 
needs.
    We emphasize that this proposed approach does not preclude health 
IT developers from seeking certification to Sec.  170.315(g)(1) or (2) 
in support of their customers' and provider's needs related to the EHR 
Incentive Programs. Moreover, the EHR Incentive Programs Stage 3 
proposed rule, published elsewhere in this issue of the Federal 
Register, includes a proposed CEHRT definition that would require EPs, 
eligible hospitals, and CAHs to have health IT certified to these 
criteria in order to meet the CEHRT. Accordingly, health IT developers 
supporting providers participating the EHR Incentive Programs should 
strongly consider seeking certification to these certification 
criteria, as applicable.
3. Types of Care and Practice Settings
    As noted above, the HITPC issued recommendations generally 
supporting certification for a variety of care and practice settings 
under the ONC Health IT Certification Program, particularly

[[Page 16874]]

focusing on long-term post-acute care (LTPAC) and behavioral health 
settings. Consistent with those recommendations, we have made proposals 
to make the ONC Health IT Certification Program more agnostic to care 
and practice settings (e.g., the proposals to revise Sec.  170.300 and 
``remove'' ``meaningful use measurement'' certification requirements) 
and we have proposed new ``data segmentation'' certification criteria 
(Sec. Sec.  170.315(b)(7) and (8)) that include capabilities that can 
support care and practice settings that service patients with sensitive 
health information, including behavioral health.
    In the Voluntary Edition final rule (79 FR 54473), we pointed 
stakeholders to the guidance we issued in 2013 for health IT developers 
serving providers ineligible for the EHR Incentives Programs. The 
guidance, ``Certification Guidance for EHR Technology Developers 
Serving Health Care Providers Ineligible for Medicare and Medicaid EHR 
Incentive Payments,'' \224\ was developed in close coordination with 
HHS agencies, including the Substance Abuse and Mental Health Services 
Administration (SAMHSA). The guidance is designed for certification to 
the 2014 Edition and focuses on two key area, interoperability-focused 
certification criteria (highlighting the ``transitions of care'' and 
``clinical information reconciliation'' criteria as criteria that 
support interoperable summary care record exchange--a fundamental 
capability necessary to enable care coordination across different 
settings) and privacy and security certification criteria. The HITPC 
similarly concluded that LTPAC and behavioral health providers should 
focus on adopting health IT certified to these capabilities 
(certification criteria).\225\
---------------------------------------------------------------------------

    \224\ http://www.healthit.gov/sites/default/files/generalcertexchangeguidance_final_9-9-13.pdf.
    \225\ http://www.healthit.gov/facas/sites/faca/files/TransmittalLetter_LTPAC_BH_Certification.pdf and http://www.healthit.gov/facas/sites/faca/files/HITPC_LTPAC_BH_Certification_Recommendations_FINAL.pdf.
---------------------------------------------------------------------------

    The 2015 Edition includes many certification criteria with the same 
capabilities as those certification criteria identified in the 2014 
guidance, but with new and/or enhanced functionality. As one pertinent 
example, the 2015 Edition ``transitions of care'' certification 
criterion (Sec.  170.315(b)(1)) includes capabilities for formatting a 
care/referral summary according to the Common Clinical Data Set and the 
C-CDA Release 2.0. The C-CDA Release 2.0 includes new document 
templates for: Care Plan; Referral Note; Transfer Summary, and new 
sections for: Goals; Health Concerns; Health Status Evaluation/
Outcomes; Mental Status; Nutrition; Physical Findings of Skin and new 
entries (e.g. Wound Observation) that may be particularly beneficial to 
providers that serves medically-complex patients with chronic care 
conditions. As to privacy and security, we highlight that our new 
proposed approach in this rule focuses on ensuring that all health IT 
presented for certification is certified to the appropriate privacy and 
security certification criteria. Overall, we have proposed a diverse 
edition of health IT certification criteria with capabilities included 
that could support a wide range of providers practicing in various 
settings.
    We anticipate that, similar to the 2014 Edition guidance, we would 
issue general interoperability guidance for the 2015 Edition when it 
becomes final. However, we have no plans to independently develop and 
issue certification ``paths'' or ``tracks'' by care or practice setting 
(e.g., a ``LTPAC certification'') as it would be difficult to 
independently devise such ``paths'' or ``tracks'' in a manner that was 
sure to align with other relevant programs and specific stakeholder 
needs. Rather, we believe we are best suited for supporting the 
development of standards for specific settings/use cases and providing 
technical assistance to both health IT developers and providers about 
the certification criteria, the standards and capabilities they 
include, and the processes of the ONC Health IT Certification Program. 
In this regard, we would welcome working with HHS or other agencies, or 
provider associations, in identifying the appropriate functionality and 
certification criteria to support their stakeholders, including jointly 
developing specialized certification ``paths'' or ``tracks.'' To note, 
we believe this approach is also consistent with stakeholder feedback 
we received through rulemaking (79 FR 54473-74) and the HITPC 
recommendations for us to work with HHS and other agencies.
    We seek comment on potential future certification criteria that 
could include capabilities that would uniquely support LTPAC, 
behavioral health, or pediatrics care\practice settings, as well as 
other settings. We are specifically interested in public comment on 
whether certification criteria focused on patient assessments (e.g., 
Minimum Data Set (Nursing Homes), OASIS (Home Health), IRF-PAI 
(Inpatient Rehabilitation Facility), or Long Term Care Hospital (CARE 
data set) would support key functionality needed in these settings and 
if there standards mature enough for structured patient assessments. 
Similarly, we seek comment on whether certification criteria focused on 
patient assessments for behavioral health settings would be of value to 
health IT developers and health care providers.
4. Referencing the ONC Health IT Certification Program
    Our proposals throughout this proposed rule, including the proposed 
adoption of various criteria that support functionality for different 
care and practice settings and the proposals to make the ONC Health IT 
Certification Program open and accessible to more types of health IT 
and health IT that supports a variety of care and practice settings, 
would permit further referencing and use of certified health IT.
    Currently, in addition to the EHR Incentive Programs, the adopted 
certification criteria editions already support and are referenced by 
other HHS programs (e.g., the CMS and HHS Office of Inspector General 
(OIG) final rules to modify the Physician Self-Referral Law exception 
and Anti-kickback Statute safe harbor for certain EHR donations (78 FR 
78751) and (78 FR 79202), respectively).\226\ Certified health IT has 
also been referenced in CMS payment rules such as the CY 2015 Physician 
Fee Schedule final rule (79 FR 67721-28) for chronic care management 
services and in a proposed rule (79 FR 61186) encouraging the use of 
certified health IT by home health agencies. The Department of Defense 
has also referenced certified health IT in a request for proposal for 
its Healthcare Management System Modernization Program.\227\ In the 
private sector, The Joint Commission requires the use of certified 
health IT to participate as an Outcomes Research Yields Excellence 
(ORYX) vendor and submit electronic clinical quality measures on behalf 
of hospitals.\228\
---------------------------------------------------------------------------

    \226\ CMS final rule, ``Medicare Program; Physicians' Referrals 
to Health Care Entities With Which They Have Financial 
Relationships: Exception for Certain Electronic Health Records 
Arrangements'' (78 FR 78751) (December 27, 2013). OIG final rule, 
``Medicare and State Health Care Programs: Fraud and Abuse; 
Electronic Health Records Safe Harbor Under the Anti-Kickback 
Statute'' (78 FR 79202) (December 27, 2013).
    \227\ https://www.fbo.gov/index?s=opportunity&mode=form&id=573cfbaa71e7843341a7c145888c48e0&tab=core&_cview=1.
    \228\ http://www.jointcommission.org/assets/1/18/2015_eCQM_Vendor_List.pdf. (page 3).
---------------------------------------------------------------------------

    The proposed 2015 Edition and proposed open and flexible 
certification processes in this proposed rule would continue to 
facilitate the efforts

[[Page 16875]]

described above as well as other ongoing and future efforts to 
reference and use certified health IT.

C. Health IT Module Certification Requirements

1. Privacy and Security
    We propose a new approach for privacy and security (P&S) 
certification to the 2015 Edition. In our past rulemakings, we have 
discussed and instituted two different policy approaches and sought 
comment on others for ensuring that health IT and providers have 
privacy and security capabilities while also trying to minimize the 
level of regulatory burden imposed on health IT developers. In the 2011 
Edition, we included an upfront requirement that required Health IT 
Modules to meet all P&S certification criteria as a condition of 
certification unless the health IT developer could demonstrate that 
certain P&S capabilities were either technically infeasible or 
inapplicable. In the 2014 Edition, we eliminated the upfront 
requirement for each Health IT Module to be certified against the P&S 
criteria in favor of what we thought would better balance the burden 
potentially posed by our rulemaking. Thus, the P&S criteria were made 
part of the ``2014 Edition Base EHR definition'' that all EPs, EHs, and 
CAHs must meet in order to satisfy the CEHRT definition (meaning each 
provider needed, post-certification to ultimately have technology 
certified to the P&S criteria).
    On March 23, 2013, the HITSC recommended that we should change our 
certification policy for P&S. They recommended that each Health IT 
Module presented for certification should be certified through one or 
more of the following three paths:
     Demonstrate, through system documentation and 
certification testing, that the Health IT Module includes functionality 
that meets at least the ``minimal set'' \229\ of privacy and security 
certification criterion.
---------------------------------------------------------------------------

    \229\ The minimal set includes the following certification 
criteria: ``authentication, access control, and authorization,'' 
``auditable events and tamper resistance,'' ``audit report(s),'' 
``amendments,'' ``automatic log-off,'' ``emergency access,'' ``end-
user device encryption,'' and ``integrity.'' The full recommendation 
can be found at: http://www.healthit.gov/sites/default/files/pswgtransmittalmemo_032613.pdf.
---------------------------------------------------------------------------

     Demonstrate, through system documentation sufficiently 
detailed to enable integration, that the Health IT Module has 
implemented service interfaces that enable it to access external 
services necessary to conform to the ``minimal set'' of privacy and 
security certification criterion.
     Demonstrate through documentation that the privacy and 
security certification criterion (and the minimal set that the HITSC 
defined) is inapplicable or would be technically infeasible for the 
Health IT Module to meet. In support of this path, the HITSC 
recommended that ONC develop guidance on the documentation required to 
justify inapplicability or infeasibility.
    In response to the HITSC recommendations and stakeholder feedback 
we sought comment in the Voluntary Edition proposed rule (79 FR 10925-
26) on the following four options we believed could be applied to 
Health IT Module certification for privacy and security: (1) Re-adopt 
the 2011 Edition approach; (2) maintain the 2014 Edition approach; (3) 
adopt the 2013 HITSC recommendation; or (4) adopt a limited 
applicability approach--under which ONC would establish a limited set 
of P&S functionality that every Health IT Module would be required to 
address in order to be certified.
    In response to our request for comments, we received comments 
generally in support of the 2014 approach (including P&S in the Base 
EHR definition). While some commenters supported requiring a subset of 
P&S criteria (option 4), many disagreed on the scope and did not see 
the value vis-a-vis HIPAA compliance. The HITSC preferred a different 
option. They recommended that ONC revise each privacy and security 
criterion to specify the conditions under which it is applicable 
(similar to how the end-user device encryption criterion currently is 
written), and allow each criterion to be met using one of the three 
paths the HITSC recommended in 2013.\230\
---------------------------------------------------------------------------

    \230\ http://www.healthit.gov/sites/default/files/pswgtransmittalmemo_032613.pdf.
---------------------------------------------------------------------------

    During their discussions regarding the Voluntary Edition proposed 
rule, the HITSC's Privacy and Security Workgroup (PSWG) completed an 
assessment of which P&S functionality should be required for each 
proposed certification criterion. The PSWG recognized that the privacy 
and security criteria are not equally applicable or useful to every 
criterion in each of the other regulatory functional areas (i.e., 
clinical, care coordination, clinical quality, patient engagement, 
public health, utilization, and transmission) because each P&S 
criterion is designed to address specific risk conditions that may or 
may not be present within a specific regulatory functional area.
    The PSWG model allows for the appropriate safeguards to be in place 
for each criterion, without overburdening health IT developers by 
requiring them to include all P&S functionality for each criterion. We 
believe this serves as a good model, in combination with the 2013 HITSC 
recommendations, to propose a new, simpler, straight-forward approach 
to the P&S certification requirements for Health IT Modules that merges 
many of the recommendations and feedback we have received to date. 
Under the proposed approach, a health IT developer would know exactly 
what it needed to do in order to get its Health IT Module certified and 
a purchaser of a Health IT Module would know exactly what privacy and 
security functionality against which the Health IT Module had to be 
tested in order to be certified.
    We propose to require that an ONC-ACB must ensure that a Health IT 
Module presented for certification to any of the certification criteria 
that fall into each regulatory text ``first level paragraph'' category 
(e.g., Sec.  170.315(a)) of Sec.  170.315 identified below is certified 
to either approach 1 (technically demonstrate) or approach 2 (system 
documentation) as follows:

[[Page 16876]]



------------------------------------------------------------------------
                                     It will need to be certified to
                                   approach 1 or approach 2 for each of
    If the Health IT Module       the P&S certification criteria listed
   includes capabilities for           in the ``approach 1'' column
  certification listed under:   ----------------------------------------
                                      Approach 1          Approach 2
------------------------------------------------------------------------
Sec.   170.315(a)..............  Sec.                 For each
                                  170.315(d)(1)        applicable P&S
                                  (authentication,     certification
                                  access control,      criterion not
                                  and                  certified for
                                  authorization),      approach 1, there
                                  (d)(2) (auditable    must be system
                                  events and tamper    documentation
                                  resistance),         sufficiently
                                  (d)(3) (audit        detailed to
                                  reports), (d)(4)     enable
                                  (amendments),        integration such
                                  (d)(5) (automatic    that the Health
                                  log-off),            IT Module has
                                  (d)(6)(emergency     implemented
                                  access), and         service
                                  (d)(7) (end-user     interfaces for
                                  device encryption).  each applicable
                                                       privacy and
                                                       security
                                                       certification
                                                       criterion that
                                                       enable the Health
                                                       IT Module to
                                                       access external
                                                       services
                                                       necessary to meet
                                                       the privacy and
                                                       security
                                                       certification
                                                       criterion.
Sec.   170.315(b)..............  Sec.
                                  170.315(d)(1)
                                  through (d)(3) and
                                  (d)(5) through
                                  (d)(8) (integrity).
Sec.   170.315(c)..............  Sec.
                                  170.315(d)(1)
                                  through (d)(3).
Sec.   170.315(e)..............  Sec.
                                  170.315(d)(1)
                                  through (d)(3),
                                  (d)(5), and (d)(7).
Sec.   170.315(f)..............  Sec.
                                  170.315(d)(1)
                                  through (d)(3) and
                                  (d)(7).
Sec.   170.315(h)..............  Sec.
                                  170.315(d)(1)
                                  through (d)(3).
Sec.   170.315(i)..............  Sec.
                                  170.315(d)(1)
                                  through (d)(3) and
                                  (d)(5) through
                                  (d)(8).
------------------------------------------------------------------------

    To illustrate approach 1 of privacy and security certification, if 
a Health IT Module is presented for certification to Sec.  
170.315(a)(5) (``demographics''), then the Health IT Module must also 
be certified to Sec.  170.315(d)(1) through (7). We refer readers to 
Appendix A of this proposed rule for a listing of the P&S certification 
requirements for each 2015 Edition criterion under approach 1.
    Because we have explicitly proposed which P&S certification 
criteria would be applicable to the associated criteria adopted in each 
regulatory text ``first level paragraph'' category and have also 
proposed approach 2, we have not proposed to permit the 2011 Edition 
policy of allowing for a criterion to be met through documentation that 
the criterion is inapplicable or would be technically infeasible for 
the Health IT Module to meet.
    We seek comment on the overall clarity and feasibility of this 
approach.
2. Design and Performance (Sec.  170.315(g))
    We propose to revise Sec.  170.550 to add paragraph (g), which 
would require ONC-ACBs to certify Health IT Modules to certain proposed 
certification criteria under Sec.  170.315(g). We propose to require 
ONC-ACBs to certify Health IT Modules to Sec.  170.315(g)(3) (safety-
enhanced design) and Sec.  170.315(g)(6) (Consolidated CDA creation 
performance) consistent with the requirements included in these 
criteria. Paragraph (g) also includes a requirement for ONC-ACBs to 
certify all Health IT Modules presented for certification to the 2015 
Edition to Sec.  170.315(g)(4) (quality system management) and (g)(8) 
(accessibility-centered design). The proposed certification 
requirements for Sec.  170.315(g)(3) and (4) maintain the policy 
approach established with certification to the 2014 Edition (see Sec.  
170.550(f)(2) and (3)), which ensures Health IT Modules, as applicable, 
are certified to these specific safety and quality certification 
criteria. The proposed certification requirements for Sec.  
170.315(g)(6) is associated with the new ``Consolidated CDA creation 
performance'' criterion we have proposed for the 2015 Edition and 
discuss in more detail in section III.A.3 of this preamble. Again, the 
requirement is similarly designed to ensure that Health IT Modules 
(with Consolidated CDA creation capabilities within their scope) are 
also certified to the ``Consolidated CDA creation performance'' 
criterion. The proposed certification requirements for Sec.  
170.315(g)(8) is associated with the new ``accessibility-centered 
design'' criterion we have proposed for the 2015 Edition and discuss in 
more detail in section III.A.3 of this preamble. This criterion and 
approach to certification is patterned after the 2014 Edition ``quality 
system management'' criterion.

D. Principles of Proper Conduct for ONC-ACBs

1. ``In-the-Field'' Surveillance and Maintenance of Certification
    We propose to adopt new requirements for ``in-the-field'' 
surveillance under the ONC Health IT Certification Program. Our 
proposal would build on ONC-ACBs' existing surveillance 
responsibilities by requiring ONC-ACBs to initiate in-the-field 
surveillance of certified Complete EHRs and certified Health IT Modules 
in certain circumstances and in accordance with certain standards and 
procedures described below. Our proposal would also clarify ONC-ACBs' 
responsibilities for requiring certified Health IT Module and certified 
Complete EHR developers to take corrective action in instances where 
the technology fails to conform to the requirements of its 
certification. We believe these proposed requirements would promote 
greater consistency, transparency, and rigor in the surveillance of 
certified capabilities in the field. They would also provide ONC-ACBs, 
health IT developers, and users of certified health IT subject to 
surveillance with greater clarity and predictability regarding this 
important aspect of the ONC Health IT Certification Program.
    Our proposal focuses on ONC-ACBs' responsibilities for conducting 
surveillance ``in the field.'' In-the-field surveillance is already a 
requirement of the ONC Health IT Certification Program \231\ and is 
among the most

[[Page 16877]]

important responsibilities with which an ONC-ACB is charged. It is 
rooted in the need to provide assurance to purchasers, implementers, 
and users that certified Complete EHRs and certified Health IT Modules 
not only meet the requirements of certification in a controlled testing 
environment but will continue to do so when implemented and used in a 
production environment. This basic assurance protects the integrity of 
the ONC Health IT Certification Program and federal health IT 
investments by enabling individuals to rely upon certifications issued 
on behalf of ONC to select appropriate technologies and capabilities; 
identify potential implementation or performance issues; and implement 
certified health IT in a predictable, reliable, and successful 
manner.\232\ The need to evaluate certified health IT in the field is 
particularly important for capabilities related to interoperability, 
patient safety, and privacy and security, which present special 
implementation challenges, complexities, or risks.\233\
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    \231\ We explicitly recognized an ``in-the-field surveillance'' 
requirement in the Proposed Establishment of Certification Programs 
for Health Information Technology; Proposed Rule, 75 FR 11328 (Mar 
10, 2010), wherein we proposed that an ONC-ACB would be required to 
``evaluate and reevaluate previously certified Complete EHRs and/or 
EHR Modules to determine whether [they] continued to perform in an 
acceptable, if not the same, manner in the field as they had 
performed when they were certified.'' 75 FR 11349 (emphasis added). 
We finalized this requirement in the Establishment of the Permanent 
Certification for Health Information Technology; Final Rule, 76 FR 
1262 (Jan. 7, 2011) (hereinafter ``PCP Final Rule''). Subsequently, 
we issued initial and annual guidance to ONC-ACBs clarifying our 
interpretation of the requirements for in-the-field surveillance 
under the ONC HIT Certification Program, the preparation and 
submission of ONC-ACBs' annual surveillance plans, and the reporting 
of surveillance results to the National Coordinator on an annual 
basis. See ONC HIT Certification Program Guidance #13-01 (July 
2013), available at http://www.healthit.gov/sites/default/files/onc-acb_2013annualsurveillanceguidance_final_0.pdf; see also ONC HIT 
Certification Program Guidance #14-01 (July 2014), available at 
http://www.healthit.gov/sites/default/files/onc-acb_cy15annualsurveillanceguidance.pdf.
    \232\ See, e.g., FDASIA Health IT Report: Proposed Strategy and 
Recommendations for a Risk-Based Framework (April 2014) (draft for 
public comment) (hereinafter ``FDASIA Report''), available at http://www.fda.gov/downloads/AboutFDA/CentersOffices/OfficeofMedicalProductsandTobacco/CDRH/CDRHReports/UCM391521.pdf, at 
Sec.  5.3.2 (``For the consumer, ONC certification provides 
purchasing clarity and assurance that the certified EHR product 
meets certain criteria and/or functions in a certain way.'')
    \233\ See, e.g., FDASIA Report, supra, at section 5.2.1 
(``Errors in communication due to inadequate interoperability, such 
as the transmission of test results inaccurately or for the wrong 
patient, do occur and can lead to patient harm.''); ONC HIT 
Certification Program Guidance #13-01, supra, at 3-4 (prioritizing 
surveillance for safety-related capabilities); Health IT Safety 
Plan, supra, at 14 (discussing incorporation of health IT safety in 
post-market surveillance of certified EHR technology).
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    Recognizing that in-the-field surveillance presents technical, 
operational, and other challenges, we have previously avoided 
prescribing specific requirements in this area; instead we have 
provided guidance to ONC-ACBs and encouraged them to develop and refine 
their own approaches to surveillance. We continue to regard such 
flexibility as important for minimizing the burden of surveillance on 
all stakeholders and ensuring that ONC-ACBs' approaches to surveillance 
reflect their unique expertise and judgment. However, we also believe 
that establishing certain minimum expectations and procedures for in-
the-field surveillance could provide ONC-ACBs as well as health IT 
developers and users with greater clarity and predictability regarding 
this important aspect of the ONC Health IT Certification Program. 
Accordingly, we propose the following additional requirements for in-
the-field surveillance under the ONC Health IT Certification Program.
``In-The-Field Surveillance'' Defined
    Our proposal explicitly defines in-the-field surveillance to mean 
an ONC-ACB's assessment of whether a certified Complete EHR or 
certified Health IT Module to which it has issued a certification 
continues to conform to the certification's requirements once 
implemented and in use in the field. This assessment would, by 
definition, require the ONC-ACB to assess the certified Complete EHR or 
certified Health IT Module's capabilities in a production environment. 
The assessment of a capability would be based on the use of the 
capability with protected health information (PHI) unless the use of 
test data would provide an equivalent assessment of the capability and 
were specifically approved by the National Coordinator.\234\
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    \234\ In consultation with the Office for Civil Rights, we have 
clarified that under the ``health oversight agency'' exception of 
the HIPAA Privacy Rule, a healthcare provider would be permitted to 
disclose protected health information (PHI) to an ONC-ACB during the 
course of authorized in-the-field surveillance activities, without 
patient authorization and without a business associate agreement. 
See ONC Regulation FAQ #45 [12-13-045-1], available at http://www.healthit.gov/policy-researchers-implementers/45-question-12-13-045.
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    The following hypothetical scenarios illustrate our proposed 
approach.
     Scenario 1: An ONC-ACB initiates in-the-field surveillance 
for a certified Health IT Module for the medication list certification 
criterion (proposed at 45 CFR 170.315(a)(8)). An ONC-ACB would then 
assess this capability at several locations at which the certified 
Health IT Module has been implemented. The ONC-ACB would assess whether 
the implemented capability can electronically record, change, and 
access one or more patients' active medication lists and medication 
histories as required by the certification criterion.
     Scenario 2: An ONC-ACB initiates in-the-field surveillance 
for a certified Health IT Module's transitions of care capability and 
one or more applicable transport certification criteria (proposed at 45 
CFR 170.315(b)(1) and (h), respectively). During this surveillance, the 
ONC-ACB would assess these capabilities at several locations at which 
the certified Health IT Module is implemented to determine whether 
these certified capabilities perform in compliance with the applicable 
certification criteria.
     Scenario 3: An ONC-ACB initiates in-the-field surveillance 
for a certified Health IT Module related to the data portability 
criterion adopted at 45 CFR 170.314(b)(7). Again, the ONC-ACB would 
need to assess at several locations at which the Health IT Module is 
implemented whether the certified Health IT Module's data portability 
capability performed in compliance with the certification criterion.
    As these scenarios illustrate, an ONC-ACB's evaluation of health IT 
in the field must focus on compliance with one or more certification 
criteria to which a Complete EHR or Health IT Module is certified. Such 
compliance must be assessed in the production environment in which the 
Complete EHR or Health IT Module is actually implemented and used.
    Because certified Complete EHRs and certified Health IT Modules 
will be integrated with other systems, processes, and people, we 
acknowledge that the unique circumstances and contexts in which a 
certified Complete EHR or certified Health IT Module operates could 
impact an ONC-ACB's ability to assess whether it continues to perform 
in compliance with adopted certification criteria once it has been 
implemented and in use. For example, if during in-the-field 
surveillance an ONC-ACB observed that the certified capability did not 
perform in a compliant manner, the ONC-ACB would need to determine 
whether the failure was the result of a problem with the certified 
capability or, alternatively, whether the failure was caused entirely 
by other factors beyond the scope of certification, such as a 
configuration or implementation issue (for which the user was primarily 
responsible) or the failure of a third-party technology or service over 
which the health IT developer had limited or no control.
    Further, we recognize that the assessment of a certified Complete 
EHR or certified Health IT Module in a production environment would 
require ONC-ACBs to employ different methodologies than testing and 
certification in a controlled environment. Given the additional factors 
and complexities described above, there could be situations in which an 
in-person site visit is the best or perhaps the only reliable means of 
evaluating whether health IT, as implemented in the field, conforms to 
the requirements of its certification. However, in general, we expect 
that ONC-ACBs should be able to effectively assess certified 
capabilities ``in the

[[Page 16878]]

field'' using other remote methods that would not involve in-person 
site visits. We believe that such methods may be less intrusive for 
health care providers, less costly or burdensome for ONC-ACBs, or offer 
other benefits. Therefore, we request comment on these and other 
approaches to in-the-field surveillance, on ways to minimize the burden 
and costs of in-the-field surveillance for ONC-ACBs and health care 
providers, and on appropriate industry standards or best practices that 
we should consider adopting to provide ONC-ACBs with consistent, 
objective, and reliable methods for conducting these evaluations.
Duty To Initiate In-The-Field Surveillance
    In addition to defining in-the-field surveillance, this proposal 
would require ONC-ACBs to initiate in-the-field surveillance in at 
least two sets of circumstances. These two separate requirements--which 
we refer to as ``reactive'' and ``randomized'' in-the-field 
surveillance--are discussed in detail below. Together they would 
implement sections 7.9.2 and 7.9.3 of ISO/IEC 17065 (the standard to 
which ONC-ACBs are accredited under the ONC HIT Certification Program), 
which provide that surveillance ``shall include periodic surveillance . 
. . to ensure ongoing validity of the demonstration of fulfilment of [] 
requirements.'' \235\ As such, the requirements would become part of 
the ``certification scheme'' for purposes of ISO/IEC 17065 and would 
therefore be directly enforceable by the ONC-AA, which is responsible 
for accrediting ONC-ACBs and verifying their conformance to ISO/IEC 
17065 and other program requirements.
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    \235\ ISO/IEC 17065:2012, available at http://www.iso.org/iso/catalogue_detail.htm?csnumber=46568.
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Reactive Surveillance
    To satisfy the proposed ``reactive'' surveillance requirement, an 
ONC-ACB would be required to initiate in-the-field surveillance 
whenever it becomes aware of facts or circumstances that call into 
question a certified Complete EHR or certified Health IT Module's 
continued conformance to the requirements of its certification. This 
reactive surveillance requirement aligns with ONC-ACBs' existing annual 
surveillance plans, which should specify how an ONC-ACB will 
``[s]ystematically obtain and synthesize feedback from users of [health 
IT] that the ONC-ACB has certified to determine if certain capabilities 
should be evaluated with the [health IT] developer or with the user in 
the field, or both.'' \236\ We anticipate that such feedback would 
include (although not be limited to) complaints received from existing 
and prospective users and implementers of the Complete EHRs and Health 
IT Modules the ONC-ACB has certified.
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    \236\ ONC HIT Certification Program Guidance #13-01, supra, at 
3.
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    We clarify that the receipt of a single complaint would not 
automatically trigger an ONC-ACB's duty to initiate in-the-field 
surveillance. In general, an ONC-ACB would be required to consider and 
weigh the volume, substance, and credibility of complaints received 
against the type and extent of the alleged non-conformance, in light of 
the ONC-ACB's expertise and experience with the particular 
capabilities, health IT, and certification criteria at issue.
    We also propose as part of ``reactive'' surveillance that an ONC-
ACB must consider the impact and effect of the disclosures made by a 
Complete EHR or Health IT Module developer on the product's continued 
conformance to adopted certification criteria. We have proposed this 
additional review because we believe there are additional factors and 
circumstances that an ONC-ACB will be unable to assess at the time the 
health IT was initially certified based on tests completed by the 
developer in a controlled environment. For example, the ONC-ACB may 
determine that while a health IT developer's Complete EHR or Health IT 
Module demonstrated it could perform a required capability in a 
controlled environment, users in the field cannot reasonably access or 
use the capability because the health IT developer does not make the 
capability available; substantially restricts or limits its use; or has 
not disclosed known material information about the implementation or 
use of the capability. These and other practices, such as those 
discussed in our proposal ``Transparency and Disclosure Requirements'' 
below, could substantially interfere with the performance of certified 
capabilities in the field and creates a substantial risk that existing 
or prospective users will encounter problems implementing the 
capability in a manner consistent with a Complete EHR or Health IT 
Module's certification. As a result, we have proposed that as part of 
``reactive'' surveillance ONC-ACBs evaluate the disclosures in 
connection with, and in the context of, the certified capability/
capabilities under surveillance to gain a full understanding of the way 
in which the product performs in the field.
    We clarify our expectation that ONC-ACBs could render a certified 
Complete EHR or certified Health IT Module non-conformant to the 
certification criteria in instances where the developer does not make 
the capability available; substantially restricts or limits its use; or 
has not disclosed known material information about the implementation 
or use of the capability. We also note that we expect ONC-ACBs to give 
considerable weight to complaints or other indications that a developer 
has failed meet the disclosure requirements of Sec.  170.523(k)(1).
    Consistent with current practice, we expect that the National 
Coordinator will continue to prioritize certain certification criteria 
for purposes of surveillance. For example, certification criteria may 
be prioritized based on the special implementation challenges or risks 
associated with certain capabilities, especially those related to 
interoperability, patient safety, and privacy and security. ONC-ACBs 
would be required to give special scrutiny to complaints about 
capabilities or disclosures related to these prioritized certification 
criteria. If an ONC-ACB detected a pattern or trend of such complaints, 
it would be required to initiate in-the-field surveillance to 
investigate the complaints and the extent of any non-conformance with 
the requirements of a certified Complete EHR or certified Health IT 
Module's certification.
    Finally, for the reasons discussed earlier in this proposal and 
immediately below in our proposal ``Transparency and Disclosure 
Requirements,'' during reactive surveillance of a certified Complete 
EHR or Health IT Module in the field, an ONC-ACB would need to verify 
that the health IT developer has satisfied the mandatory disclosure 
requirements currently and proposed a Sec.  170.523(k)(1), as 
applicable, for the certification criteria that are the subject of the 
ONC-ACB's surveillance.
Randomized Surveillance
    Separate from the reactive surveillance described above, we also 
propose to require ONC-ACBs to conduct ``randomized'' surveillance of 
the Complete EHRs and Health IT Modules they have certified. We believe 
randomized surveillance will serve two important purposes: First, it 
will enable ONC-ACBs to identify nonconformities that are difficult to 
detect through complaint-based or other reactive forms of surveillance. 
Second, it will enable ONC-ACBs to detect patterns of non-conformance 
that indicate a more widespread or recurring problem requiring a more 
comprehensive

[[Page 16879]]

corrective action plan, as discussed below. For these reasons, we 
believe that randomized surveillance will complement reactive 
surveillance and strengthen the overall surveillance of certified 
health IT under the ONC Health IT Certification Program.
    Under our proposal, an ONC-ACB would be required to conduct 
randomized surveillance of prioritized certification criteria (as 
described in the context of reactive surveillance earlier in this 
proposal). Focusing on these prioritized certification criteria would 
maximize the impact and minimize any associated costs or burdens of 
randomized surveillance. For the same reason, ONC-ACBs would be 
required to not select certified Complete EHRs and certified Health IT 
Modules that were selected for randomized surveillance at any time 
within the preceding twelve months. \237\
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    \237\ This screening requirement would apply only for the 
purpose of randomized surveillance. The ONC-ACB would still be 
expected to initiate reactive and other surveillance, including in-
the-field surveillance, as necessary to ensure that the Complete 
EHRs and Health IT Modules it has certified continue to perform in 
an acceptable manner and meet all certification program 
requirements.
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    To satisfy the proposed randomized surveillance requirement, an 
ONC-ACB would be required during each calendar year to randomly select 
at least 10% of the Complete EHRs and Health IT Modules to which it has 
issued a certification. For each certified Complete EHR or certified 
Health IT Module selected, the ONC-ACB would initiate in-the-field 
surveillance at the lesser of 10 or 5% of locations at which the 
Complete EHR or Health IT Module is implemented and in use in the 
field.
     Example: A Health IT Module is in use at 1,000 locations. 
Five percent of 1,000 locations equals 50 locations, which is greater 
than 10 locations. Therefore, the ONC-ACB must evaluate the Health IT 
Module at a minimum of 10 locations.
     Example: A Health IT Module is in use at 100 locations. 
Five percent of 100 locations equals 5 locations, which is less than 10 
locations. Therefore the ONC-ACB must evaluate the Health IT Module at 
a minimum of 5 locations.
    The locations would need to be selected at random by the ONC-ACB 
from a list of all locations at which the certified Complete EHR or 
certified Health IT Module is implemented. Where practicable, the 
sample would need to reflect a diversity of practice types, sizes, 
settings, and locales.
    Similar to reactive surveillance, if in the course of randomized 
surveillance an ONC-ACB finds that a certified Complete EHR or 
certified Health IT Module is non-conformant at one or more locations 
at which surveillance takes place, the ONC-ACB must take appropriate 
action with the health IT developer, consistent with the ONC-ACB's 
accreditation, to remedy the nonconformity.
    In addition to addressing individual, potentially one-off, 
nonconformities, an ONC-ACB would also be required to evaluate the 
overall results of any certified Complete EHR or certified Health IT 
Module that is subjected to randomized surveillance. If the ONC-ACB 
finds a pattern of nonconformity--defined as a failure to demonstrate 
conformance to any prioritized certification criterion at 20% or more 
of the locations surveilled--the ONC-ACB would regard these results as 
deficient and would need to require the health IT developer to submit a 
corrective action plan to address the apparent widespread or recurring 
issue. Upon making such determination, an ONC-ACB would be required to 
contact the health IT developer and require that it submit a proposed 
corrective action plan to the ONC-ACB. The corrective action plan would 
be required to include, at a minimum, for each certification criterion 
or required disclosure for which the health IT was deemed deficient:
     A description of the identified deficiencies;
     an assessment of how widespread or isolated the identified 
deficiencies may be;
     how the developer will address the identified conformance 
deficiencies in general and at the locations under which surveillance 
occurred; and
     the timeframe under which corrective action will be 
completed.
    The ONC-ACB would require the health IT developer to submit a 
proposed corrective action plan to the ONC-ACB within 30 days of the 
date that the developer was notified by the ONC-ACB of the deficiency 
or deficiencies above. In general, ONC-ACBs would be responsible for 
prescribing the required form and content of corrective action plans, 
consistent with the general elements required above, and for developing 
specific procedures for the submission and approval of corrective 
action plans. ONC may also issue guidance to ensure consistency across 
ONC-ACBs corrective action procedures.
    Consistent with an ONC-ACB's accreditation and procedures for 
suspending a certification, an ONC-ACB would be permitted to initiate 
certification suspension procedures for a Complete EHR or Health IT 
Module if the heath IT developer thereof:
     Does not submit a proposed corrective action plan to the 
ONC-ACB within 30 days of being notified of its deficient surveillance 
results;
     does not comply with the ONC-ACB's directions for 
addressing any aspects of the proposed corrective action plan that do 
not meet the requirements of the ONC-ACB or the ONC Health IT 
Certification Program; or
     does not complete an approved corrective action plan 
within 6 months of approval of the plan by the ONC-ACB.
    Following the suspension of a certified Complete EHR or certified 
Health IT Module's certification for the reasons above, an ONC-ACB 
would be permitted to initiate certification termination procedures for 
the Complete EHR or Health IT Module (consistent with its accreditation 
to ISO/IEC 17065 and procedures for terminating a certification) should 
the developer not complete the actions necessary to reinstate the 
suspended certification.
Reporting of Surveillance Results
    Under our proposal, ONC-ACBs would be required to report the 
results of in-the-field surveillance to the National Coordinator on at 
least a quarterly basis. This requirement would reduce the time between 
when surveillance is initiated and when results are submitted to ONC. 
Currently under the ONC Health IT Certification Program, ONC-ACBs are 
not required to submit surveillance results for as long as 14 months 
after initiating in-the-field surveillance--a significant limitation in 
our ability to be responsive, including providing relevant information 
to stakeholders.
    Upon requiring a corrective action plan for a certified Complete 
EHR or certified Health IT Module, an ONC-ACB would be required to 
report the corrective action plan and related data to the publicly 
accessible open data CHPL, as detailed below in our proposal ``Open 
Data Certified Health IT Product List (CHPL).'' The purpose of this 
reporting requirement, as described in that proposal, would be to 
ensure that health IT users, implementers, and purchasers are alerted 
to potential conformance issues in a timely and effective manner, 
consistent with the patient safety, program integrity, and transparency 
objectives described subsequently in this proposed rule.
    To implement the new requirements for in-the-field surveillance 
outlined in this proposal, we propose to add Sec.  170.556 (In-the-
field surveillance and

[[Page 16880]]

maintenance of certification for health IT). We would also amend Sec.  
170.503 (ONC-AA Ongoing Responsibilities) and Sec.  170.523 (ONC-ACB 
Principles of Proper Conduct) consistent with the requirements 
described in this proposal and the related proposals ``Transparency and 
Disclosure Requirements'' and ``Open Data Certified Health IT Product 
List (CHPL)'' below. The requirements would provide a floor only, and 
would in no way limit an ONC-ACB's ability or responsibility to conduct 
additional surveillance, including in-the-field surveillance, according 
to the requirements of its accreditation and the ONC Health IT 
Certification Program. As we have done in the past, we would continue 
to give ONC-ACBs substantial flexibility and discretion to decide how 
to implement these requirements as part of their overall approach to 
surveillance. ONC-ACBs would continue to describe their surveillance 
programs in their annual surveillance plans, which must be submitted to 
the National Coordinator prior to the covered calendar year 
surveillance period. We would also continue to provide annual 
surveillance guidance to ONC-ACBs, and other guidance or programmatic 
direction as needed.
    At the time of this proposed rule, ONC-ACBs have submitted their 
annual surveillance plans for calendar year 2015, which include their 
existing approaches and methodologies for randomized surveillance. To 
minimize disruption to ONC-ACBs' current surveillance activities, we 
propose to phase in the requirements proposed at Sec.  170.556(c) for 
randomized surveillance. As such, the randomized surveillance 
requirements would become effective beginning January 1, 2016, enabling 
ONC-ACBs to implement these new requirements in their next annual 
surveillance plans and incorporate additional guidance and 
clarification from ONC and the ONC-AA. All other new requirements for 
in-the-field surveillance--i.e., the requirements proposed at Sec.  
170.556(a), (b), and (d)--would be effective immediately; we would 
expect ONC-ACBs to implement these requirements within 3 months of the 
effective date of a subsequent final rule. We request comment on 
whether this timeline and plan for implementation is appropriate and on 
ways to minimize disruption and ensure that the requirements and 
purpose of this proposal are timely and effectively achieved.
2. Transparency and Disclosure Requirements
    We propose to revise the principles of proper conduct for ONC-ACBs 
in order to provide for greater and more effective disclosure by health 
IT developers of certain types of limitations and additional types of 
costs that could interfere with the ability to implement or use health 
IT in a manner consistent with its certification. We believe that these 
additional disclosure requirements are necessary to ensure that 
existing and potential users and implementers of certified health IT 
are fully informed about these implementation considerations that 
accompany capabilities certified under the ONC Health IT Certification 
Program.
    In the 2014 Edition final rule, we adopted new ``price 
transparency'' requirements that require ONC-ACBs to ensure that health 
IT developers include--on their Web sites and in all marketing 
materials, communications, and other assertions related to certified 
health IT--any ``additional types of costs'' that an EP, eligible 
hospital, or CAH would pay to implement certified health IT 
capabilities in order to meet meaningful use objectives and measures 
(Sec.  170.523(k)(1)(iii)). \238\ We stated that there is value in 
requiring ONC-ACBs to ensure that developers are transparent about the 
types of costs associated with certified health IT and that such 
transparency could provide greater purchasing clarity to EPs, eligible 
hospitals, and CAHs (77 FR 54274). In regard to purchasing clarity, we 
further stated that this disclosure requirement could help prevent 
purchasers from being surprised by additional costs beyond those 
associated with the adoption and implementation of capabilities 
certified as part of their certified health IT (77 FR 54275). With this 
requirement and other transparency requirements under Sec.  
170.523(k)(1), we have sought to mitigate potential confusion in the 
marketplace and reduce the risk that consumers will encounter 
unexpected difficulties in the implementation and use of certified 
health IT.
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    \238\ 77 FR 54273-75. For example, under our current disclosure 
requirements, if health IT is certified to the ``view, download, and 
transmit to 3rd party'' certification criterion, and an EP would be 
expected to pay an ``ongoing'' monthly service fee to the technology 
developer for it to host/administer this capability in order for the 
EP to meet the correlated meaningful use objective and measure, the 
existence of this potential ``ongoing'' cost (though not the actual 
amount or ``dollar value'' of the cost itself) would need to be 
disclosed by the health IT developer. As another example, a Health 
IT Module certified to the public health electronic lab reporting 
certification criterion (Sec.  170.314(f)(4)) would be able to 
create a valid HL7 message for electronic submission. However, for 
the purposes of achieving meaningful use a hospital may be expected 
to pay their technology developer a separate ``one-time'' and/or 
``ongoing'' interface development and configuration fee to establish 
connectivity between their certified Health IT Module and a public 
health authority. In such a situation, the potential costs of the 
interface development and configuration fee would need to be 
disclosed (though, again, the developer would not be required to 
disclose the actual ``dollar amount'' of the fee). A final example 
would be where a health IT developer charges a ``one-time'' fee to 
integrate its certified health IT with a hospital's other certified 
technology or a health information exchange organization. Again, 
just like the other examples, the potential for this fee (but not 
the ``dollar amount'' itself) would need to be disclosed by the 
technology developer. Building off these examples, we said that a 
health IT developer could meet the disclosure requirements by 
disclosing: 1) the type(s) of additional cost; and 2) to what the 
cost is attributed. In reference to the first example above, we 
stated that a developer could meet our price transparency 
requirement by disclosing that ``an additional ongoing fee may apply 
to implement XYZ online patient service.'' In situations where the 
same types of cost apply to different services, we stated that 
listing each as part of one sentence would be acceptable, such as 
``a one-time fee is required to establish interfaces for reporting 
to immunization registries, cancer registries, and public health 
agencies.''
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    Notwithstanding these modest disclosure requirements, many health 
IT consumers still have limited access to certain types of information 
necessary to accurately assess the potential costs, benefits, 
limitations, and trade-offs of alternative technologies and 
solutions.\239\ This is especially true for small health care providers 
and other individuals and organizations who may not have the time, 
resources, or expertise to conduct extensive market research.\240\ 
Health care and health IT industry participants and observers describe 
a marketplace in certified health IT products and services that is 
largely opaque and in which consumers often lack up-front information 
about the products and services they purchase or license. For example, 
the American Medical Association (AMA) has expressed concern on behalf 
of its provider members about ``the lack of transparency in EHR 
contracts,'' which ``may be unclear or fail to itemize specific 
expenses'' associated with certified health IT capabilities.\241\ The

[[Page 16881]]

AMA further noted that while ONC has taken steps to promote greater 
contract transparency, these efforts have fallen short, ``leaving broad 
discretion and uncertainty'' in the marketplace for certified health IT 
products.\242\
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    \239\ See, e.g., Jodi G. Daniel & Karson Mahler, Promoting 
Competition to Achieve Our Health IT and Health Care Goals (Oct. 7, 
2014), http://www.healthit.gov/buzz-blog/health-information-exchange-2/promoting-competition-achieve-healthit-health-care-goals/.
    \240\ See, e.g., Kelly Devers, Arnav Shah, and Fredric Blavin, 
How Local Context Affects Providers' Adoption and Use of 
Interoperable Health Information Technology: Case Study Evidence 
from Four Communities in 2012 (Round One) (2014), at 7 (describing 
significant challenges faced by smaller providers dealing with 
certified EHR vendors, including ``understanding vendor contracts 
that were very complex.'')
    \241\ FTC Workshop, Submission #00151 on behalf of the American 
Medical Association (April 30, 2014), available at http://www.ftc.gov/system/files/documents/public_comments/2014/04/00151-89996.pdf (accessed Dec. 19, 2014).
    \242\ Id.
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    Other observers have described practices that may interfere with 
the performance of certified health IT capabilities in ways that are 
not obvious to consumers at the time they purchase or license 
technology or services. For example, some health IT contracts may 
restrict a health care provider's ability to use data contained within 
an EHR \243\ require health care provider staff to complete costly 
developer-imposed training and accreditation programs before they are 
allowed to extract patient data; or impose ``access and use 
agreements'' that restrict a provider's ability to ``engage a third 
party to assist with extracting and using data to benefit patients . . 
. .'' \244\ Some developers also purportedly charge ``additional fees 
to allow providers to extract patient data from their systems, even 
though the marginal cost of providing that data is small. \245\ In 
addition, as discussed elsewhere in this proposed rule, Congress has 
expressed concern that some health IT developers of certified health IT 
may be engaging in business practices that block health information 
exchange and thereby frustrate congressional intent, devalue taxpayer 
investments in health IT, and make health IT less valuable and more 
burdensome for eligible hospitals and eligible providers to use.\246\
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    \243\ FTC Workshop, Submission #00187 on behalf of the Advisory 
Board Company (April 30, 2014), available at http://www.ftc.gov/system/files/documents/public_comments/2014/04/00187-89979.pdf 
(accessed Dec. 19, 2014).
    \244\ Id.
    \245\ FTC Workshop, Submission #00045 on behalf of the Health IT 
Now Coalition (March 10, 2014), available at http://www.ftc.gov/system/files/documents/public_comments/2014/03/00045-88879.pdf 
(accessed Dec. 19, 2014).
    \246\ 160 Cong. Rec. H9047, H9839 (daily ed. Dec. 11, 2014) (see 
explanatory statement submitted by Rep. Rogers, chairman of the 
House Committee on Appropriations, regarding the Consolidated and 
Further Continuing Appropriations Act, 2015).
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    We do not assume that examples cited above are typical or 
widespread. Yet it must be acknowledged that even ONC has but limited 
visibility into developers' business practices and cannot reliably 
assess the extent to which such practices are occurring or the degree 
to which they may be interfering with the successful implementation and 
use of certified health IT. That acknowledgement alone should be a 
sufficient indication of the need to require greater transparency in 
the marketplace.\247\
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    \247\ We recognize that there is value in encouraging developers 
to experiment, innovate, and compete to deliver products and 
services that consumers demand and also to price and distribute such 
products and services in ways that consumers find attractive and 
that meet the needs of individual customers. Our proposal to require 
greater transparency in developers' business practices is intended 
not to limit but to promote such price and non-price innovation and 
competition by providing individuals who purchase or license 
certified health IT with access to basic information necessary to 
make informed decisions in the marketplace.
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    The prevailing lack of transparency raises several specific and 
serious concerns. Most importantly, health IT developers not disclosing 
known material limitations or additional types of costs associated with 
the implementation or use of certified health IT creates a substantial 
risk that existing or prospective users will encounter problems 
implementing the capabilities of the health IT in a manner consistent 
with its certification. This in turn diminishes the reliability of 
certifications issued under the ONC Health IT Certification Program. 
Moreover, inadequate or incomplete information about health IT products 
and services distorts the marketplace for certified health IT, for 
without reliable information consumers cannot accurately estimate costs 
and assess capabilities in order to effectively compare technologies 
and choose appropriate solutions for their individual circumstances or 
needs.\248\ Poor health IT purchasing decisions increase the likelihood 
of downstream implementation challenges and, ultimately, reduced 
opportunities to use health IT to improve health and health care. 
Finally, consumers who purchase or license inappropriate or suboptimal 
technologies may find it difficult to switch to superior alternatives 
due to the often significant financial and other resources they have 
already invested in implementation, training, integration with other IT 
systems, new clinical and administrative processes, and the many other 
costs and organizational changes associated with implementing health 
IT. When providers become ``locked in'' to technologies or solutions 
that do not meet their needs or the needs of their patients, health IT 
developers may have fewer incentives to innovate and compete on those 
aspects of health IT that these consumers most value.
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    \248\ Compare American Academy of Family Physicians, 
Understanding EHR Contracting and Pricing, http://www.aafp.org/practice-management/health-it/product/contracting-pricing.html 
(accessed Dec 7, 2014) (noting that there are ``many different ways 
of pricing EHR software'' and that to ``compare `apples to apples''' 
potential purchasers need to consider many variables when selecting 
an EHR) with FTC Workshop, Submission #00151 on behalf of the 
American Medical Association (April 30, 2014) (expressing concern 
about ``lack of transparency in EHR vendor contracts'' and ``broad 
discretion and uncertainty'' despite ONC efforts to promote greater 
transparency).
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    For all of these reasons, we propose to revise the principles of 
proper conduct for ONC-ACBs in order to supplement and strengthen our 
existing transparency and disclosure requirements under the ONC Health 
IT Certification Program. As currently set forth in Sec.  170.523(k), 
ONC-ACBs must require health IT developers to disclose conspicuously on 
their Web sites and in all marketing materials, communications 
statements, and other assertions related to certified health IT any 
additional types of costs \249\ that an EP, eligible hospital, or CAH 
would pay to implement certified health IT to meet meaningful use 
objectives and measures. We propose to carry forward and expand these 
requirements as follows.
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    \249\ Costs vary widely across different developers, products, 
and services. They may include but are not limited to the cost of 
purchasing or licensing necessary equipment and software; 
installing, configuring, maintaining, and updating technology; 
training staff and integrating technology into clinical workflows; 
securing and backing up data; licensing information or services used 
in conjunction with technology; and establishing interfaces or 
connectivity to other IT systems. Costs may also be incurred on a 
``one time'' or on a ``recurring'' or ``ongoing'' basis.
---------------------------------------------------------------------------

    First, we would no longer limit health IT developers' disclosure 
obligations to the scope of the EHR Incentive Programs. In the context 
of our proposals in this proposed rule to make the ONC Health IT 
Certification Program open and accessible to more types of health IT 
and to health IT that support various care and practice settings beyond 
the EHR Incentive Programs, we believe that disclosure requirements 
should go beyond a link to the EHR Incentive Programs. Consumers are 
increasingly seeking to leverage certified health IT for a wide range 
of uses beyond the EHR Incentive Programs, such as to support care 
coordination with other types of health care providers as part of new 
quality improvement initiatives and public and private sector value-
based payment programs. These consumers of certified health IT need 
reliable information associated with implementing and using health IT 
for all of these uses, not just those that are tied to a meaningful use 
objective or measure. Likewise, as the ONC Health IT Certification 
Program begins to focus on supporting these new users and uses, it will 
be important to ensure that certification is meaningful and that 
surveillance is effective for all certified health IT and capabilities, 
not just those

[[Page 16882]]

that that are directly tied to the EHR Incentive Programs. For these 
reasons, we would require ONC-ACBs to ensure that developers disclose 
any ``additional types of costs'' that a user may incur in order to 
implement or use capabilities of certified health IT, whether to 
demonstrate meaningful use objectives or measures or for any other 
purpose within the scope of the health IT's certification.
    Second, the important reasons we have described above for requiring 
greater transparency and disclosure convince us that we must move 
beyond our current focus on identifying additional types of costs and 
consider other factors that may similarly interfere with a user's 
ability to successfully implement certified health IT. In particular, 
the failure to disclose material information about limitations 
associated with certified health IT creates a substantial risk that 
current or prospective users will encounter problems implementing 
certified health IT in a manner consistent with its certification. From 
the perspective of both ONC and the consumer, therefore, the disclosure 
of this information is no less important than the disclosure of 
information about additional types of costs. Accordingly, we propose to 
add this additional category of information to those which a health IT 
developer must disclose.
    Third, to ensure that these disclosure requirements serve their 
intended purpose, we propose that developers' disclosures be broader 
and provide greater detail than is currently required. In contrast with 
our current price transparency requirement, which requires disclosure 
only of additional types of costs that a user ``would pay'' to 
implement certain capabilities, our proposal would require health IT 
developers to be more proactive in identifying the kinds of limitations 
and additional types of costs that a user may pay or encounter in order 
to achieve any use within the scope of a Complete EHR or Health IT 
Module's certification. For example, we expect that health IT 
developers would disclose any additional types of costs or limitations 
that may be based on potential conditions applicable to the user or 
options available to the user. This would be different than the current 
``would pay'' requirement that focuses on more definitive 
circumstances. We believe that it is reasonable to require health IT 
developers to identify this information because they are uniquely 
familiar with the costs and limitations of their own products and 
services and possess sophisticated technical knowledge related to the 
implementation and use of health IT in a variety of settings in which 
their products are services are deployed.
    Health IT developers would therefore be required to provide, in 
plain language, a detailed description of any material information 
about limitations that a purchaser may encounter and additional types 
of costs that a user may be required to pay in the course of 
implementing or using capabilities to achieve any use within the scope 
of the its certification. Such information would be ``material'' (and 
its disclosure therefore required) if the failure to disclose it could 
substantially interfere with the ability of a user or prospective user 
to implement certified health IT in a manner consistent with its 
certification.
    To illustrate our expectations as to the types of information that 
health IT developers would be required to disclose, we provide the 
following list of types of limitations and additional types of costs 
that would always be ``material'' and required to be disclosed. We seek 
comment on whether we should revise or add to the types of information 
delineated below, including whether we should require the disclosure of 
more specific cost structures (e.g., the cost structure of a health IT 
developer's for sending transitions of care summaries, including all 
relevant factors--e.g., volume transmissions, geography, interfaces, 
and exchange partner technology).
     Additional types of costs or fees (whether fixed, 
recurring, transaction-based, or otherwise) imposed by a developer (or 
any third-party from whom the developer purchases, licenses, or obtains 
any technology, products, or services in connection with its certified 
health IT) to purchase, license, implement, maintain, upgrade, use, or 
otherwise enable and support the use of capabilities to which health IT 
is certified; or in connection with any data generated in the course of 
using any capability to which health IT is certified.
     Limitations, whether by contract or otherwise, on the use 
of any capability to which technology is certified for any purpose 
within the scope of the technology's certification; or in connection 
with any data generated in the course of using any capability to which 
health IT is certified.
     Limitations, including but not limited to technical or 
practical limitations of technology or its capabilities, that could 
prevent or impair the successful implementation, configuration, 
customization, maintenance, support, or use of any capabilities to 
which technology is certified; or that could prevent or limit the use, 
exchange, or portability of any data generated in the course of using 
any capability to which technology is certified.
    Because this proposal would significantly expand a health IT 
developer's existing disclosure obligations, we further clarify our 
expectations regarding what a health IT developer would and would not 
be required to disclose. A health IT developer would not be required to 
disclose specific prices or price information. The health IT developer 
would be required, however, to describe with particularity the nature 
and magnitude of any additional types of costs, providing sufficient 
detail from which a person could arrive at a reasonably accurate 
estimation of what the likely costs might be, given the person's 
circumstances and intended use of the capabilities within the certified 
health IT. For example, if a health IT developer charged a fee every 
time a user wished to send a transition of care summary record to 
another user of certified health IT, the health IT developer would be 
required to fully disclose not only the existence of the fee but the 
circumstances in which it would apply. The health IT developer would 
also be required to provide additional information to assist the user 
in realistically estimating what the cost would be to use the 
transitions of care capability. The health IT developer could satisfy 
this requirement by providing data illustrating that there are levels 
of costs for different types of users (e.g., users who send a ``low,'' 
``medium,'' or ``high'' number of summary of care records per month). 
Alternatively, the health IT developer could indicate that for most 
(e.g., nine out of every ten) of its users, transaction fees represent 
less than 1% of a user's total monthly service costs. Other methods of 
disclosure would also suffice, provided they were similarly calculated 
and likely to inform.
    Health IT developers would not be required to disclose trade 
secrets or intellectual property. Similar to the disclosure of 
information about additional types of costs, health IT developers could 
describe other types of limitations in terms that protect their 
intellectual property interests and trade secrets. Generalized 
assertions of ``proprietary information'' would not immunize a 
developer, however, from a finding by an ONC-ACB that the developer 
failed to disclose known material information.
    Health IT developers would not be required to disclose information 
of which they are not and could not

[[Page 16883]]

reasonably be aware. In particular, we recognize that health IT 
functions in combination with many third party technologies and 
services whose specific costs/limitations may be difficult for a health 
IT developer to precisely predict or ascertain. Local implementation 
factors and other individual circumstances also vary substantially 
among customers and impact the cost and complexity of implementing 
certified health IT. In addition, the costs of upgrading health IT to 
meet new regulatory requirements or compliance timelines, which are 
subject to change, may make some particular types of additional costs 
especially difficult to forecast. While we do not expect health IT 
developers to account for every conceivable cost or implementation 
hurdle that a customer may encounter in order to successfully implement 
and use the capabilities of a developer's certified health IT, we 
believe it reasonable to assume that health IT developers are experts 
in their own products and services and possess sophisticated technical 
knowledge related to the implementation and use of health IT in a 
variety of settings in which their products are used. Through their 
accumulated experience developing and providing health IT solutions to 
their customers, health IT developers should over time become familiar 
with the types of costs and limitations that most users encounter, and 
should be able to describe these in sufficient detail so as to provide 
potential customers with the information they need to make informed 
purchasing and implementation decisions. We also believe that it is 
reasonable to expect that a health IT developer would provide a 
detailed description of any additional considerations that a customer 
should be aware of in order to reliably estimate the resources needed 
to purchase the certified health IT and arrive at a realistic 
expectation of the product's capabilities and performance in the field, 
to the extent that the health IT developer has knowledge of the 
customer's circumstances and based on its range of experience 
(including with other customers).
    We propose one additional aspect that we believe will complement 
the mandatory disclosure requirements set forth in this proposal. In 
addition to requiring health IT developers to disclose known material 
information about their certified health IT, an ONC-ACB would be 
required to obtain a voluntary public attestation from every health IT 
developer to which it issues or has at any previous time issued a 
certification for any edition of certified health IT. The attestation 
would take the form of a written ``pledge'' by the health IT developer 
to be transparent with regard to the information it is required to 
disclose under the ONC Health IT Certification Program. Specifically, 
the health IT developer would be required to attest that, in addition 
to disclosing such information via its public Web site, marketing 
materials, communications statements, and other assertions related to 
certified health IT, it will voluntarily provide this information to: 
(1) Customers, prior to providing any certified health IT or related 
product or service (including subsequent updates, add-ons, or 
additional products or services to be provided during the course of an 
on-going contract); (2) prospective customers (i.e., persons who 
request or receive a quotation, estimate, or other similar marketing or 
promotional material); and (3) other persons who request such 
information.
    To be clear, this attestation would not broaden or change the types 
of information that a health IT developer would be required to disclose 
as a condition of certification, nor the persons to whom such 
information would have to be disclosed. While all health IT developers 
would be required to make the attestation, their adherence to it would 
be strictly voluntary, and an ONC-ACB would continue to hold health IT 
developers only to the mandatory disclosure requirements already 
described above in this proposal and proposed at Sec.  170.523(k)(1).
    Although the attestation would not establish any new regulatory 
disclosure obligations for health IT developers, it would create a 
powerful incentive for health IT developers to go beyond what is 
strictly required of them by regulation and to be more transparent 
about their health IT products, services, and business practices. The 
attestation would accomplish this goal by publicly committing health IT 
developers to make a good faith effort to ensure that consumers 
actually receive the information that developers are required to 
disclose at such times and in such a manner as is likely to be useful 
in informing their health IT purchasing or licensing, implementation, 
and other decisions.
    In particular, health IT developers would be required to attest 
publicly that they will provide information about their certified 
health IT to any person who requests it. This would empower not only 
existing or prospective customers but all consumers and their 
representatives (e.g., providers' professional associations) to 
approach developers directly and request information that is most 
relevant to consumers' health IT purchasing or licensing, and 
implementation decisions. We believe that as a result consumers will 
come to expect greater transparency from health IT developers in 
general, and that developers, having publicly attested that they will 
provide this information, will have a stronger interest in doing so in 
order to protect their reputations. Moreover, health IT developers who 
are the most transparent and provide the most meaningful information 
about their products and services will be able to differentiate 
themselves from their competitors, creating additional incentives for 
other developers to be more transparent.
    Attestation will, by encouraging greater interaction between health 
IT developers and all consumers, provide important feedback to 
developers about the types of information that consumers find 
important, and which are therefore likely to be material for purposes 
of health IT developers' mandatory disclosure obligations under the ONC 
Health IT Certification Program. For example, requests for information 
and other feedback from consumers may alert a health IT developer to 
the fact that it has failed to disclose (or to disclose with sufficient 
specificity) material information about a particular limitation or 
additional type of cost associated with its certified health IT. By 
encouraging consumers to make such inquiries, the proposed attestation 
requirement will assist health IT developers in meeting their 
disclosure obligations.
    Overall, we believe these proposed requirements will enable more 
transparency in the marketplace for certified health IT, provide 
consumers with greater and more ready access to information relevant to 
their health IT planning, purchasing, and implementation decisions, and 
reduce the risk of implementation problems and surprise described in 
this proposal.
3. Open Data Certified Health IT Product List (CHPL)
    In the initial rulemaking that we used to establish the Temporary 
Certification Program, we indicated that the National Coordinator 
intended to make a master CHPL of all Complete EHRs and EHR Modules 
tested and certified by ONC-ATCBs available on the ONC Web site and 
that the CHPL would be a public service and would be a single, 
aggregate source of all the certified product information ONC-ATCBs 
provide to the National Coordinator (75 FR 36170). Since 2010, we have 
maintained the CHPL and as the ONC Health IT Certification Program has 
matured,

[[Page 16884]]

ONC-ACBs have continued to report the products and information about 
the products they have certified to ONC for listing on the CHPL.
    As part of the 2014 Edition final rule (77 FR 54271), we required 
additional transparency in the ONC Health IT Certification Program in 
the form of a hyperlink that ONC-ACBs needed to maintain that would 
enable the public to access the test results that the ONC-ACB used as 
the basis for issuing a certification. In the time post-final rule, the 
NVLAP Accredited Testing Laboratories (ATLs) and ONC-ACBs worked 
together to develop a standard test results summary template for 
consistent data presentation and use throughout the ONC Health IT 
Certification Program. For all 2014 Edition products certified under 
the ONC Health IT Certification Program, the test result summary is 
accessible and can be found as part of the product's detailed 
information page on the CHPL Web page.
    The test result summary includes granular detail from ATLs about 
the testing performed, including, among other information: The 
certification criteria tested; the test procedure, test data, and test 
tool versions used during testing for each certification criterion; 
instances where optional portions of certification criteria were 
tested; and which standard was used for testing when a certification 
criterion allowed for more than one standard to be used to meet the 
certification criterion. The test result summary also includes the 
user-centered design information and summative tests results applicable 
to a product in cases where it was required to meet the ``safety-
enhanced design'' certification criterion (Sec.  170.314(g)(3)) in 
order to ultimately be certified.
    Multiple stakeholders have commented to us that while the 
availability of the test report summary and the addition detail it 
contains is beneficial, its location on the CHPL and its overall 
accessibility as a PDF makes it difficult to use for any kind of 
product analysis. In response to this feedback and our overall vision 
to efficiently administer the CHPL in the future, we intend to convert 
the CHPL in its current form to an open data file represented in both 
XML and JSON and with accompanying API functionality. We estimate that 
this conversion along with the future additional data collection we 
have proposed for 2015 Edition certifications will occur over the next 
12 to 18 months.
    To complement this conversion, we propose to require ONC-ACBs to 
report an expanded set of information to ONC for inclusion in the open 
data file that would make up the CHPL. Specifically, we propose to 
revise Sec.  170.523(f) to move the current (f) to (f)(2) and to create 
a new paragraph (f)(1) that would require ONC-ACBs upon issuing a 2015 
Edition (or any subsequent edition certification) to report on the same 
data elements they report to ONC under Sec.  170.523(f), the 
information contained in the publicly available test report, and 
additional data. The data that would be required is as follows:
     The Health IT Module developer name; product name; product 
version; developer Web site, physical address, email, phone number, and 
contact name;
     The ONC-ACB Web site, physical address, email, phone 
number, and contact name, contact function/title;
     The ATL Web site, physical address, email, phone number, 
and contact name, contact function/title;
     Location and means by which the testing was conducted 
(e.g., remotely with developer at its headquarters location);
     The date(s) the Health IT Module was tested;
     The date the Health IT Module was certified;
     The unique certification number or other specific product 
identification;
     The certification criterion or criteria to which the 
Health IT Module has been certified, including the test procedure and 
test data versions used, test tool version used, and whether any test 
data was altered (i.e., a yes/no) and for what purpose;
     The way in which each required privacy and security 
criterion was addressed for the purposes of certification (note: this 
is proposed to track the privacy and security certification proposal 
for Health IT Modules);
     The standard or mapping used to meet the quality 
management system certification criterion;
     The standard(s) or lack thereof used to meet the 
accessibility-centered design certification criterion;
     Where applicable, the hyperlink to access an API's 
documentation and terms of use;
     Where applicable, which certification criteria were gap 
certified;
     Where applicable, if a certification issued was a result 
of an inherited certified status request;
     Where applicable, the clinical quality measures to which 
the Health IT Module has been certified;
     Where applicable, any additional software a Health IT 
Module relied upon to demonstrate its compliance with a certification 
criterion or criteria adopted by the Secretary;
     Where applicable, the standard(s) used to meet a 
certification criterion where more than one is permitted;
     Where applicable, any optional capabilities within a 
certification criterion to which the Health IT Module was tested and 
certified;
     Where applicable, and for each applicable certification 
criterion, all of the information required to be submitted by Health IT 
Module developers to meet the safety-enhanced design certification 
criterion (note: This would include each user-centered design element 
required to be reported at a granular level (e.g., task success/
failure)); and
     Where applicable, for each instance in which a Health IT 
Module failed to conform to its certification and for which a 
corrective action plan was instituted under Sec.  170.556:
    [cir] The specific certification criterion or certification program 
requirement (e.g., required disclosure) to which the health IT failed 
to conform as determined by the ONC-ACB;
    [cir] the dates surveillance was initiated and when available, 
completed;
    [cir] the results of the surveillance (pass rate for each 
criterion);
    [cir] the number of sites that were used in surveillance;
    [cir] the date corrective action began;
    [cir] when available, the date corrective action ended;
    [cir] a summary of the deficiency or deficiencies identified by the 
ONC-ACB as the basis for its determination of non-conformance; and
    [cir] when available, the developer's explanation of the deficiency 
or deficiencies identified by the ONC-ACB as the basis for its 
determination of non-conformance.
    Consistent with ONC-ACBs' current reporting practice required by 
Sec.  170.523(f), ONC-ACBs would be required to submit the additional 
data listed above no less frequently than weekly. Because this expanded 
list of data would largely subsume the data included in the test 
results summary, we would no longer require for 2015 Edition and 
subsequent edition certifications that ONC-ACBs provide a publicly 
accessible hyperlink to the test results used to certify a Health IT 
Module.
    The last category of data above would be reportable for Complete 
EHRs and Health IT Modules that have been designated for corrective 
action as described in our proposal ```In-the-field' Surveillance and 
Maintenance of Certification'' above. Under that proposal, an ONC-ACB 
would be required to initiate a corrective action plan for a Complete 
EHR or Health IT

[[Page 16885]]

Module when randomized in-the-field surveillance reveals a pattern of 
non-conformance to any prioritized certification criterion. Under this 
Open Data CHPL proposal, the initiation of corrective action would 
trigger the duty to report the surveillance-related information 
specified in the last category above for inclusion in the open data 
file. This reporting requirement would be separate from and in addition 
to the ``rolling'' (i.e., at least quarterly) reporting of all 
surveillance results described in our in-the-field surveillance 
proposal referenced above. The purpose of this separate reporting 
requirement would be to ensure that health IT users, implementers, and 
purchasers are alerted to potential conformance issues in a timely and 
effective manner, consistent with the patient safety, program 
integrity, and transparency objectives described in this proposed rule. 
By incorporating data on health IT that has failed surveillance in the 
open data file, such information would be updated and available to the 
public at least weekly. Combined with the API functionality described 
above, such data could also be used more effectively by patient safety, 
consumer, and other organizations to analyze and disseminate 
information about product safety and performance.
    Our rationale with respect to the reporting of data for health IT 
that has failed surveillance applies to all, and not only 2015 Edition, 
certified health IT. Accordingly, we propose to revise new Sec.  
170.523(f)(2) (formerly Sec.  170.523(f)) so as to also require the 
reporting of this surveillance-related data for health IT certified to 
the 2014 Edition.
    In submitting this data related to surveillance of certified health 
IT, ONC-ACBs would be required to exclude any information that would 
identify any user or location that participated in or was subject to 
surveillance (as currently required for ONC-ACBs' annual surveillance 
results reported to the ONC).
    None of the reporting requirements above would require (or 
authorize) an ONC-ACB to submit or disclose health IT developer's 
proprietary business information or trade secrets. ONC-ACBs would be 
required to implement appropriate safeguards to ensure that any 
proprietary business information or trade secrets of the health IT 
developer the ONC-ACB might encounter during the course of its 
surveillance activities would be kept confidential by the ONC-ACB and 
protected from disclosure. With respect to the safety-enhanced-design 
data, as stated in our proposal for the 2015 Edition ``safety-enhanced 
design'' certification criterion (section III.A.3 of this preamble), we 
do not expect health IT developers to include proprietary information 
in the submission of summative usability test results to ONC-ACBs. 
Accordingly, ONC-ACBs would not be required and should take care not to 
submit proprietary information to ONC for inclusion in the open data 
file. Similarly, with respect to the reporting of surveillance 
information for health IT for which corrective action has been 
initiated, an ONC-ACB would be able to meet the requirement to report a 
summary of the deficiencies leading to its determination that health IT 
no longer conforms to the requirements of its certification without 
disclosing information that the ONC-ACB believes could be proprietary 
or expose it to liability. Should we adopt this proposal, we would 
provide additional guidance to ONC-ACBs regarding the particular format 
of the data required to be submitted to the open data file.
    While we recognize that this additional data places a new reporting 
burden on ONC-ACBs, we believe that the benefit to the public of having 
all of this data about product certification in granular detail far 
outweighs the administrative burden it will take to report this 
information. Further, depending on the certification scope sought some 
of this data will not need to be collected by ONC-ACBs or will be in 
hand for subsequent issued certifications. We seek public comment on 
whether we have omitted any additional data generated during the 
testing and certification process or the surveillance process that 
would be useful to the public.
    Consistent with these proposals, we also propose to make a 
conforming modification to 45 CFR 170.523(k)(1)(ii) which currently 
cross references Sec.  170.523(f) to cross reference proposed paragraph 
(f)(2) for 2014 Edition certifications and an equivalent set of data 
(minus the test results summary) in paragraph (f)(1) for 2015 Edition 
and subsequent certifications.
4. Records Retention
    We propose to change the records retention requirement in Sec.  
170.523(g) in two ways. We propose to require that ONC-ACBs retain all 
records related to the certification of Complete EHRs and/or Health IT 
Module(s) (including EHR Modules) for a minimum of six years instead of 
five years as currently required. This proposed revision would make 
certification records available longer, which may be necessary for HHS 
programs' purposes, such as evaluations our audits. To illustrate, 
certification to the 2014 Edition began in early 2013 and CMS proposes 
in the EHR Incentive Programs Stage 3 proposed rule, published 
elsewhere in this issue of the Federal Register, to permit the use of 
health IT certified to the 2014 Edition through 2017. With attestation 
taking place in 2018, records may need to be available for a minimum of 
six years. In addition, a six-year records retention requirement aligns 
with current accreditation standards within the industry. We also 
propose that records of certifications performed under the ONC Health 
IT Certification Program must be available to HHS upon request during 
the six-year period that a record is retained. We believe this would 
help clarify the availability of certification records for agencies 
(e.g., CMS) and authorities (e.g., the Office of Inspector General) 
within HHS.
5. Complaints Reporting
    We propose that ONC-ACBs provide ONC (the National Coordinator) 
with a list of complaints received on a quarterly basis. We propose 
that ONC-ACBs indicate in their submission how many complaints were 
received, the nature or substance of the complaint, and the type of 
complainant (e.g., type of provider, health IT developer, etc.). We 
believe this information will provide further insight into potential 
concerns with certified health IT or the ONC Health IT Certification 
Program and give ONC a better ability to identify trends or issues that 
may require action including notification of the public. We propose to 
include this new requirement in Sec.  170.523(n).
6. Adaptations and Updates of Certified Health IT
    We propose a new principle of proper conduct (PoPC) that would 
serve to benefit ONC-ACBs as well as all stakeholders interested in the 
ONC Health IT Certification Program and the health IT certified under 
the program. We propose to require that ONC-ACBs obtain monthly reports 
from health IT developers regarding their certified health IT. 
Specifically, we propose to require that ONC-ACBs obtain a record of 
all adaptations and updates, including changes to user-facing aspects, 
made to certified health IT (i.e., Complete EHRs and certified Health 
IT Modules), on a monthly basis each calendar year. We request comment 
on whether we should require even more frequent reporting.
    This new PoPC would apply for all certified Complete EHRs and 
certified Health IT Modules (which includes ``EHR Modules'') to the 
2014 Edition and all certified Health IT Modules to

[[Page 16886]]

the 2015 Edition. The PoPC would become effective with a subsequent 
final rule and we would expect ONC-ACBs to begin complying with the 
PoPC at the beginning of the first full calendar month that is at least 
30 days after the effective date of the final rule. For example, if a 
final rule became effective on September 6, 2015, then the first full 
calendar month would be November 2015. In this instance and others, 
there may be no record to obtain from some health IT developers because 
their Complete EHRs and Health IT Modules may have been recently 
certified and they may not have yet created any adaptations or made any 
updates. We would, however, expect that a health IT developer would 
still provide a ``record'' indicating that no adaptations had been 
created and that no updates had occurred to its ONC-ACB for its 
certified health IT.
    We would not expect the information in these records to be reported 
to ONC and listed on the CHPL. Rather, in weighing the need for ONC-
ACBs to properly manage the certifications they issue versus the 
additional burden a regulatory scheme of ``check-ins'' and potential 
re-testing/certification for every adaptation and update, we determined 
that the best course of action would be to provide awareness to ONC-
ACBs on adaptations and updates made to technologies they certified. By 
doing so, we believe ONC-ACBs would be able to make informed decisions 
when conducting surveillance of certified Complete EHRs and certified 
Health IT Modules. For example, if an ONC-ACB became aware that a 
certified Health IT Module had been updated 10 or more times in a month 
(which could be common with cloud-based products), resulted in 6 
adaptations over three months, or had its user-facing aspects altered 
in an apparent significant way, then an ONC-ACB may want to conduct 
surveillance on that certified Health IT Module. Overall, we believe 
our proposed approach protects the integrity of certified health IT and 
promotes safety and security of certified health IT in a way that seeks 
to minimizes burden for health IT developers.

E. ``Decertification'' of Health IT--Request for Comment

    In the explanatory statement \250\ accompanying Public Law 113-235 
(Consolidated and Further Continuing Appropriations Act, 2015) the 
Congress urged ONC to use its certification program to ensure certified 
electronic health record technology (CEHRT) provides value to eligible 
hospitals, eligible providers and taxpayers. It also stated that ONC 
should use its authority to certify only those products that clearly 
meet current meaningful use program standards and that do not block 
health information exchange. Further, it stated that ONC should take 
steps to ``decertify'' products that proactively block the sharing of 
information.
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    \250\ 160 Cong. Rec. H9047, H9839 (daily ed. Dec. 11, 2014) 
(explanatory statement submitted by Rep. Rogers, chairman of the 
House Committee on Appropriations, regarding the Consolidated and 
Further Continuing Appropriations Act, 2015); and https://www.congress.gov/congressional-record/2014/12/11/house-section/article/H9307-1.
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    This proposed rule takes certain steps to support the certification 
of health IT that meets relevant program standards and permits the 
unrestricted use of certified capabilities that facilitate health 
information exchange (see the ``In-The-Field Surveillance and 
Maintenance of Certification'' and ``Transparency and Disclosure 
Requirements'' proposals in section IV.D of this preamble). We believe, 
however, that additional rulemaking would be necessary to implement any 
approach that would include ONC appropriating an ONC-ACB's delegated 
authority to issue and terminate a certification, including 
establishing new program requirements and processes by which ONC or an 
ONC-ACB would have the grounds to terminate an issued certification. 
Any such rulemaking would need to, at a minimum, address the 
circumstances, due process, and remedies for the termination of an 
issued certification. Given that Congress also requested the HITPC to 
consider and submit a report to them on the challenges and barriers to 
interoperability within the year,\251\ we believe it is premature to 
include such proposals in this rulemaking. We do, however, solicit 
public comment on the circumstances, due process, remedies, and other 
factors that we should consider regarding the termination of a 
certification. In preparing comments in response to this solicitation, 
we ask commenters to keep in mind all parties involved, including ONC-
ACBs, health IT developers, and consumers (including those providers 
that participate in the EHR Incentives Programs). Additionally, to help 
inform commenters, the following provides a brief background of the ONC 
Health IT Certification Program and examples of the complexities and 
potential impacts associated with terminating a certification.
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    \251\ https://www.congress.gov/congressional-record/2014/12/11/house-section/article/H9307-1.
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    Section 3001(c)(5) of the Public Health Service Act (PHSA) provides 
the National Coordinator with the authority to establish a 
certification program or programs for the voluntary certification of 
health information technology.\252\ Specifically, this section requires 
the National Coordinator, in consultation with the Director of the 
National Institute of Standards and Technology (NIST), to keep or 
recognize a program or programs for the voluntary certification of 
health information technology as being in compliance with applicable 
certification criteria \253\ (i.e., certification criteria adopted by 
the Secretary under section 3004 of the PHSA). Section 3001(c)(5) also 
requires that any such certification program(s) must include, as 
appropriate, testing in accordance with section 13201(b) of the HITECH 
Act, which requires that with respect to the development of standards 
and implementation specifications, the Director of NIST support the 
establishment of a conformance testing infrastructure, including the 
development of technical test beds.
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    \252\ ``health information technology'' is defined in Section 
3000(5) to mean ``hardware, software, integrated technologies or 
related licenses, intellectual property, upgrades, or packaged 
solutions sold as services that are designed for or support the use 
by health care entities or patients for the electronic creation, 
maintenance, access, or exchange of health information''.
    \253\ ``certification criteria'' is defined in Section 
3001(c)(5)(B) to mean ``with respect to standards and implementation 
specifications for health information technology, criteria to 
establish that the technology meets such standards and 
implementation specifications.''
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    In developing the ONC Health IT Certification Program, ONC 
consulted with NIST and created the program structure based on industry 
best practice. This structure includes the use of two separate 
accreditation bodies: (1) An accreditor that evaluates the competency 
of a health IT testing laboratory to operate a testing program in 
accordance with international standards; and (2) an accreditor that 
evaluates the competency of a health IT certification body to operate a 
certification program in accordance with international standards. After 
a certification body is accredited, it may apply to the National 
Coordinator to receive authorization to certify health IT on ONC's 
behalf. Once authorized, we refer to these certification bodies as ONC-
Authorized Certification Bodies or ONC-ACBs. The ONC Health IT 
Certification Program includes a full process by which ONC oversees the 
operations of ONC-ACBs. It also includes a process for the issuance of 
certain types of violations as well as a process to revoke an ONC-ACBs 
authorization to certify health IT on ONC's behalf.\254\
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    \254\ See the Permanent Certification Program final rule (76 FR 
1262); subpart E, part 170 of title 45; and http://www.healthit.gov/policy-researchers-implementers/about-onc-hit-certification-program.

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[[Page 16887]]

    With respect to ONC-ACBs and the international standard (ISO Guide 
65/ISO 17065) to which they are accredited, they are uniquely 
positioned and accountable for determining whether a certified product 
continues to conform to the certification requirements to which the 
product was certified. If an ONC-ACB can substantiate a non-conformity, 
either as a result of surveillance or otherwise, the international 
standard requires that the ONC-ACB consider and decide upon the 
appropriate action, which could include: (1) The continuation of the 
certification under specified conditions (e.g. increased surveillance); 
(2) a reduction in the scope of certification to remove nonconforming 
product variants; (3) suspension of the certification pending remedial 
action by the developer; or (4) withdrawal/termination of the 
certification.\255\
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    \255\ ISO 17065 (Sec.  170.599(b)(3)). See also Sec.  170.599(a) 
for general availability of this standard.
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    With respect to ONC's role and ability to revoke or terminate an 
issued certification, ONC's regulations do not address this point 
directly and have largely deferred, with one exception, to the ONC-ACBs 
autonomy and delegated authority to effectively administer its 
certification business. The one exception involves the scenario where 
ONC revokes an ONC-ACB's authorization due to a ``type-1'' program 
violation that calls into question the legitimacy of the issued 
certification (see 45 CFR 170.570). In such an instance, we established 
a process by which the National Coordinator would review and determine 
whether an ONC-ACB's misconduct justifies revoking the certification 
issued to one or more products (76 FR 1297-99).
    In general, we believe that it's important for commenters to 
account for the potentially profound asymmetric impacts revoking a 
certification could create, especially if based on the business 
practices (by a health IT developers or their customers) associated 
with the health IT's use and not necessarily the health IT's 
performance according to certification requirements. These asymmetric 
impacts are present in any paradigm in which a certified product is 
required for compliance with a program (e.g., the use of certified 
health IT under the Medicare and Medicaid EHR Incentive Programs and 
Electronic Prescribing of Controlled Substances). To illustrate, the 
impact of revoking a certification based on a health IT developer's 
business practice(s) may create a lopsided (and arguably unfair/
inequitable) impact to all those who rely on the certification in order 
to comply with the legal requirement(s) of a program they are 
participating in. Additionally, if such a health IT developer's 
business practice(s) were not universally applied to all customers, the 
outright removal of a certification could unfairly penalize the health 
IT developer's other customers who were unaffected by the business 
practice. Similarly, if the practices of a group of a health IT 
developer's customers were found to be impeding information exchange, 
outright revoking the product's certification (for how it was requested 
to be implemented or configured) could in this case unfairly penalize 
the health IT developer as well as other ``good actor'' customers and 
information exchange partners of the developer. We also note that there 
could be contractual and other legal agreements affected by any action 
that terminates a certification.
    All of the above potential circumstances are meant to highlight for 
commenters the significant analysis, complexity, and need for root 
cause determinations that would be necessary to develop and implement a 
regulatory scheme supporting an equitable certification termination 
process led or directed by ONC under the ONC Health IT Certification 
Program. To support justification of such a process based on the 
blocking of health information exchange, we further solicit comment on 
examples of health IT certified under the ONC Health IT Certification 
Program that may have been used in the past, or currently, to 
proactively block the sharing of health information.

V. Response to Comments

    Because of the large number of public comments normally received in 
response to Federal Register documents, we are not able to acknowledge 
or respond to them individually. We will consider all comments we 
receive by the date and time specified in the DATES section of this 
preamble, and, when we proceed with a subsequent document, we will 
respond to the comments in the preamble of that document.

VI. Incorporation by Reference

    The Office of the Federal Register has established new requirements 
for materials (e.g., standards and implementation specifications) that 
agencies propose to incorporate by reference in the Federal Register 
(79 FR 66267; 1 CFR 51.5(a)). Specifically, Sec.  51.5(a) requires 
agencies to discuss, in the preamble of a proposed rule, the ways that 
the materials it proposes to incorporate by reference are reasonably 
available to interested parties or how it worked to make those 
materials reasonably available to interested parties; and summarize, in 
the preamble of the proposed rule, the material it proposes to 
incorporate by reference.
    To make the materials we intend to incorporate by reference 
reasonably available, we provide a uniform resource locator (URL) for 
the standards and implementation specifications. In many cases, these 
standards and implementation specifications are directly accessible 
through the URL provided. In instances where they are not directly 
available, we note the steps and requirements necessary to gain access 
to the standard or implementation specification. In most of these 
instances, access to the standard or implementation specification can 
be gained through no-cost (monetary) participation, subscription, or 
membership with the applicable standards developing organization (SDO) 
or custodial organization. In a few instances, where noted, access 
requires a fee or paid membership.
    The National Technology Transfer and Advancement Act (NTTAA) of 
1995 (15 U.S.C. 3701 et seq.) and the Office of Management and Budget 
(OMB) Circular A-119 \256\ require the use of, wherever practical, 
technical standards that are developed or adopted by voluntary 
consensus standards bodies to carry out policy objectives or 
activities, with certain exceptions. The NTTAA and OMB Circular A-119 
provide exceptions to selecting only standards developed or adopted by 
voluntary consensus standards bodies, namely when doing so would be 
inconsistent with applicable law or otherwise impractical. As discussed 
in section III of this preamble, we have followed the NTTAA and OMB 
Circular A-119 in proposing standards and implementation specifications 
for adoption, including describing any exceptions in the proposed 
adoption of standards and implementation specifications. Over the years 
of adopting standards and implementation specifications for 
certification, we have worked with SDOs, such as HL7, to make the 
standards we propose to adopt, and subsequently adopt and incorporate 
by reference in the Federal Register, available to interested 
stakeholders. As described above, this includes making the standards 
and implementation specifications available

[[Page 16888]]

through no-cost memberships and no-cost subscriptions.
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    \256\ http://www.whitehouse.gov/omb/circulars_a119.
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    As required by Sec.  51.5(a), we provide summaries of the standards 
and implementation specifications we propose to adopt and subsequently 
incorporate by reference in the Federal Register. We also provide 
relevant information about these standards and implementation 
specifications throughout section III of the preamble. In particular, 
in relevant instances, we identify differences between currently 
adopted versions of standards and implementation specifications and 
proposed versions of standards and implementation specifications.
    We have organized the following standards and implementation 
specifications that we propose to adopt through this rulemaking 
according to the sections of the Code of Federal Regulation (CFR) in 
which they would be codified and cross-referenced for associated 
certification criteria that we propose to adopt in 45 CFR 170.315. We 
note, in certain instances, we request comment in this proposed rule on 
multiple standards or implementation specifications that we are 
considering for adoption and incorporation by reference for a 
particular use case. We include all of these standards and 
implementation specifications in this section of the preamble.

Transport and Other Protocol Standards--45 CFR 170.202

     ONC Implementation Guide for Delivery Notification in 
Direct.
    URL: http://wiki.directproject.org/file/view/Implementation+Guide+for+Delivery+Notification+in+Direct+v1.0.pdf. This 
is a direct link.
    Summary: This document provides implementation guidance enabling 
Security/Trust Agents (STAs) to provide a high level of assurance that 
a message has arrived at its destination. It also outlines the various 
exception flows that result in a compromised message delivery and the 
mitigation actions that should be taken by STAs to provide success and 
failure notifications to the sending system.
     Healthcare Provider Directory, Trial Implementation, 
October 13, 2014.
    URL: http://www.ihe.net/uploadedFiles/Documents/ITI/IHE_ITI_Suppl_HPD.pdf. This is a direct link.
    Summary: This document introduces the Healthcare Provider Directory 
(HPD) that supports queries against and management of, health care 
provider information that may be publicly shared in a directory 
structure. HPD directory structure is a listing of two categories of 
health care providers, individual and organizational providers.

Functional Standards--45 CFR 170.204

     HL7 Version 3 Standard: Context Aware Knowledge Retrieval 
Application. (``Infobutton''), Knowledge Request, Release 2.
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=208. Access requires a ``user account'' 
and a license agreement. There is no monetary cost for a user account 
and license agreement.
    Summary: The Context-aware knowledge retrieval specifications 
(Infobutton) provide a standard mechanism for clinical information 
systems to request context-specific clinical knowledge from online 
resources. Based on the clinical context, which includes 
characteristics of the patient, provider, care setting, and clinical 
task, Infobutton(s) anticipates clinicians' and patients' questions and 
provides automated links to resources that may answer those questions.
     HL7 Implementation Guide: Service-Oriented Architecture 
Implementations of the Context-aware Knowledge Retrieval (Infobutton) 
Domain, Release 1.
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=283. Access requires a ``user account'' 
and a license agreement. There is no monetary cost for a user account 
and license agreement.
    Summary: Context-aware knowledge retrieval (Infobutton) into 
clinical information systems help deliver clinical knowledge to the 
point of care as well as patient-tailored education material. This 
specification enables the implementation of context-aware knowledge 
retrieval applications through a Service Oriented Architecture based on 
the RESTful software architectural style.
     HL7 Version 3 Implementation Guide: Context-Aware 
Knowledge Retrieval (Infobutton), Release 4.
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=22. Access requires a ``user account'' and 
a license agreement. There is no monetary cost for a user account and 
license agreement.
    Summary: Context-aware knowledge retrieval (Infobutton) in clinical 
information systems help deliver clinical knowledge to the point of 
care as well as patient-tailored education material. This 
implementation guide provides a standard mechanism for EHR systems to 
submit knowledge requests over the HTTP protocol through a standard 
using a URL format.
     HL7 Version 3 Standard: Clinical Decision Support 
Knowledge Artifact Specification, Release 1.2 Draft Standard for Trial 
Use.
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=337. Access requires a ``user account'' 
and a license agreement. There is no monetary cost for a user account 
and license agreement.
    Summary: The Clinical Decision Support Knowledge Artifact 
Specification provides guidance on how to specify and implement 
shareable CDS knowledge artifacts using XML. The scope of the 
Specification includes event-condition-action rules, order sets, and 
documentation templates.
     HL7 Implementation Guide: Decision Support Service, 
Release 1.1, US Realm, Draft Standard for Trial Use.
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=334. Access requires a ``user account'' 
and a license agreement. There is no monetary cost for a user account 
and license agreement.
    Summary: A Decision Support Service takes in patient data as the 
input and provides back patient-specific assessments and 
recommendations. A Decision Support Service facilitates the 
implementation of CDS capabilities in a scalable manner. This 
implementation guide defines a Decision Support Service implementation 
approach that combines the HL7 Decision Support Service Release 2 
standard with the HL7 Virtual Medical Record for CDS information model 
standard to enable the provision of standards-based, interoperable 
decision support services.

Content Exchange Standards and Implementation Specifications for 
Exchanging Electronic Health Information--45 CFR 170.205

     HL7 Implementation Guide for CDA[supreg] R2: Quality 
Reporting Document Architecture--Category I, DSTU Release 2 (US Realm) 
and Errata (September 2014).
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=35. Access requires a ``user account'' and 
a license agreement. There is no monetary cost for a user account and 
license agreement. The DSTU package must be downloaded in order to 
access the errata.
    Summary: The Quality Reporting Document Architecture (QRDA) is an 
electronic document format that provides a standard structure with 
which to report quality measure data to organizations that will analyze 
and interpret the data. The Implementation Guide is consistent with 
CDA, and Category I is an individual-patient-level quality report. The 
September 2014 Errata reflects updates for the implementation of QRDA 
Category I consistent with the Quality Data Model-

[[Page 16889]]

based Health Quality Measures Format Release 2.1, an incremental 
version of harmonized clinical quality measure and CDS standards.
     HL7 Implementation Guide for CDA[supreg] Release 2: 
Consolidated CDA Templates for Clinical Notes, Draft Standard for Trial 
Use, Release 2.0.
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=379. Access requires a ``user account'' 
and a license agreement. There is no monetary cost for a user account 
and license agreement.
    Summary: The Consolidated CDA (C-CDA) implementation guide contains 
a library of CDA templates, incorporating and harmonizing previous 
efforts from HL7, IHE, and Health Information Technology Standards 
Panel (HITSP). It represents harmonization of the HL7 Health Story 
guides, HITSP C32, related components of IHE Patient Care Coordination 
(IHE PCC), and Continuity of Care (CCD). The C-CDA Release 2 
implementation guide, in conjunction with the HL7 CDA Release 2 (CDA 
R2) standard, is to be used for implementing the following CDA 
documents and header constraints for clinical notes: Care Plan 
including Home Health Plan of Care, Consultation Note, CCD, Diagnostic 
Imaging Reports, Discharge Summary, History and Physical, Operative 
Note, Procedure Note, Progress Note, Referral Note, Transfer Summary, 
Unstructured Document, and Patient Generated Document (US Realm 
Header).
     HL7 Implementation Guide for CDA[supreg] Release 2: 
Additional CDA R2 Templates--Clinical Documents for Payers--Set 1, 
Release 1--US Realm, Draft Standard for Trial Use.
    URLs: http://www.hl7.org/special/Committees/claims/index.cfm and 
http://www.hl7.org/participate/onlineballoting.cfm?ref=nav#nonmember. 
This is a direct access link to the most recent publicly available 
version of the implementation guide. HL7 policy normally requires a 
paid membership or a ``non-member participation'' fee to access the 
balloting process of a standard or implementation guide. HL7 has, 
however, agreed to make current balloted versions of the implementation 
guide freely available for review during the public comment period of 
this proposed rule. Access requires a ``user account'' and a license 
agreement. There is no monetary cost for a user account and license 
agreement.
    Summary: The purpose of the Clinical Documents for Payers--Set 
1(CDP1) implementation guide is to provide guidance on a standardized, 
implementable, interoperable electronic solution to reduce the time and 
expense related to the exchange of clinical and administrative 
information between and among providers and payers. This guide 
describes structured documentation templates that meet requirements for 
documentation of medical necessity and appropriateness of services to 
be delivered or that have been delivered in the course of patient care. 
These document templates are designed for use when the provider needs 
to exchange more clinical information than is required by the C-CDA R2 
document-level templates and/or must indicate why information for 
specific section-level or entry-level templates is not included.
     HL7 Implementation Guide for CDA Release 2: Digital 
Signatures and Delegation of Rights, Release 1.
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=375. Access requires a ``user account'' 
and a license agreement. There is no monetary cost for a user account 
and license agreement.
    Summary: The Digital Signature and Delegation of Rights 
Implementation Guides provide a standardized method of applying Digital 
Signatures to CDA documents. The standard provides for multiple 
signers, signer's declaration of their role, declaration of purpose of 
the signature, long-term validation of the Digital Signatures and data 
validation of the signed content.
     Author of Record Level 1: Implementation Guide.
    URL: http://wiki.siframework.org/file/view/esMD%20AoR%20Level%201%20Implementation%20Guide%20v5%20FINAL.docx/539084894/esMD%20AoR%20Level%201%20Implementation%20Guide%20v5%20FINAL.docx. This 
is a direct link. This implementation guide was developed under the 
Standards and Interoperability (S&I) Framework.\257\
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    \257\ http://www.healthit.gov/policy-researchers-implementers/standards-interoperability-si-framework.
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    Summary: The Author of Record Level 1 Implementation Guide utilizes 
the IHE Document Digital Signature standard and Security Assertion 
Markup Language (SAML) assertions to support applying digital 
signatures and delegation of rights information to bundles of documents 
exchanged over content neutral transports.
     Provider Profiles Authentication: Registration 
Implementation Guide.
    URL: http://wiki.siframework.org/file/view/esMD%20Use%20Case%201%20Implementation%20Guide%20V24%20FINAL.docx/539084920/esMD%20Use%20Case%201%20Implementation%20Guide%20V24%20FINAL.docx. This 
is a direct link. This implementation guide was developed under the 
Standards and Interoperability (S&I) Framework.\258\
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    \258\ http://www.healthit.gov/policy-researchers-implementers/standards-interoperability-si-framework.
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    Summary: The Provider Profiles Authentication Implementation Guide 
provides methods for applying digital signatures and delegation of 
rights information to the most common administrative and clinical 
transactions, including: ASC X12, CONNECT, Direct, and HL7 V2.
     HL7 Version 2.5.1 Implementation Guide: S&I Framework 
Laboratory Orders from EHR, Draft Standard for Trial Use, Release 2--US 
Realm.
    URL: http://www.hl7.org/participate/onlineballoting.cfm?ref=nav#nonmember. HL7 policy normally requires a 
paid membership or a ``non-member participation'' fee to access the 
balloting process of a standard or implementation guide. HL7 has, 
however, agreed to make current balloted versions of the implementation 
guide freely available for review during the public comment period of 
this proposed rule. Access requires a ``user account'' and a license 
agreement. There is no monetary cost for a user account and license 
agreement.
    Summary: The Laboratory Orders Implementation Guide identifies the 
requirements, specifications, and standards, and provides the 
implementation guidance for the electronic ordering of laboratory tests 
in the US Realm. The scope of the Laboratory Orders Interface Use Case 
includes requirements to enable a particular implementation of an 
Electronic Health Record System (EHR-S) to use standardized structured 
data in a defined inter-organizational laboratory transaction. The Use 
Case requirements are directed at laboratory test orders between an 
Ambulatory Provider's EHR-S and a Laboratory's Laboratory Information 
System (LIS). Future versions of this guide may harmonize with existing 
guides to extend interoperability of laboratory results across care 
settings, e.g., acute care.
     HL7 Version 2.5.1 Implementation Guide: S&I Framework 
Laboratory Test Compendium Framework, Release 2, Version 1.2 (eDOS).
    URL: http://www.hl7.org/participate/onlineballoting.cfm?ref=nav#nonmember. HL7 policy normally requires a 
paid membership or a ``non-member participation'' fee to access the 
balloting process of a standard or implementation guide. HL7 has, 
however, agreed to

[[Page 16890]]

make current balloted versions of the implementation guide freely 
available for review during the public comment period of this proposed 
rule. Access requires a ``user account'' and a license agreement. There 
is no monetary cost for a user account and license agreement.
    Summary: The focus of the Laboratory Test Compendium Framework is 
to provide a standardized means of electronically communicating a 
Laboratory's Directory of Services (eDOS). The content is owned by the 
sending laboratory for the purpose of being used by the compendium 
consumer to order laboratory services and to understand the 
requirements and components of those services. The consumer (and 
consuming systems) should not modify or delete the content unless 
instructed to do so by the producer via eDOS updates or some other form 
of written communication. Adding to the content to provide additional 
information specific to the consumer's needs such as cross reference to 
local codes and/or other performing labs, or other information that 
does not change or conflict with the content of the original 
information provided by the performing laboratory, is permitted.
     HL7 Version 2.5.1 Implementation Guide: S&I Framework Lab 
Results Interface, Draft Standard for Trial Use, Release 2--US Realm.
    URL: http://www.hl7.org/participate/onlineballoting.cfm?ref=nav#nonmember. HL7 policy normally requires a 
paid membership or a ``non-member participation'' fee to access the 
balloting process of a standard or implementation guide. HL7 has, 
however, agreed to make current balloted versions of the implementation 
guide freely available for review during the public comment period of 
this proposed rule. Access requires a ``user account'' and a license 
agreement. There is no monetary cost for a user account and license 
agreement.
    Summary: The Laboratory Results Interface (LRI) Implementation 
Guide identifies the requirements, defines specifications and 
standards, and provides implementation guidance for electronic 
reporting of laboratory test results to ambulatory care providers in 
the US Realm. The scope of the Laboratory Results Interface Use Case 
includes requirements to enable the incorporation of clinical 
laboratory test results into an EHR-S as standardized structured data 
using the defined inter-organizational laboratory transaction. The Use 
Case requirements are directed at laboratory test results reporting 
between a LIS and an ambulatory EHR-S in different organizational 
entities (e.g., different corporate structure, ownership or 
governance). Future versions of this guide may harmonize with existing 
guides to extend interoperability of laboratory results across care 
settings (e.g., acute care).
     HL7 Version 3 Implementation Guide: Family History/
Pedigree Interoperability.
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=301. Access requires a ``user account'' 
and a license agreement. There is no monetary cost for a user account 
and license agreement.
    Summary: The HL7 Clinical Genomics Family Health History (Pedigree) 
Model is a data standard for capturing, within a system, and 
transmitting family histories between systems. This includes describing 
a patient's full pedigree (family and familial relationships) with 
diseases and conditions, and the option to link genetic information and 
risk analysis. This standard allows EHR/personal health record 
interoperability.
     NCPDP Formulary and Benefit Standard Implementation Guide 
v3.0.
    URL: http://ncpdp.org/Standards/Standards-Info and http://ncpdp.org/?ReturnUrl=%2fmembers%2fStandards-Lookup.aspx. Access 
requires completion of a membership application and a paid membership. 
NCPDP has stated that membership allows NCPDP to provide a forum 
wherein a diverse membership can develop business solutions, standards, 
and guidance for promoting information exchanges related to 
medications, supplies, and services within the health care system 
through consensus building processes. We note that CMS has already 
adopted the NCPDP Formulary and Benefit Standard Implementation Guide 
v3.0 and incorporated it by reference in the Federal Register as a 
standard for electronic prescribing under the voluntary Medicare 
prescription drug benefit program.\259\
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    \259\ 42 CFR 423.160(b)(5)(iii). http://www.ecfr.gov/cgi-bin/text-idx?SID=776f4d6a1759e76160516348d3ca4454&node=se42.3.423_1160&rgn=div8.
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    Summary: The NCPDP Formulary and Benefit Standard Implementation 
Guide provides a standard means for pharmacy benefit payers to 
communicate formulary and benefit information to prescribers via 
technology vendor systems. It enables the physician to consider 
information during the prescribing process to help make an appropriate 
drug choice for the patient. Compared to v2.1, v3.0 removes some unused 
information, provides some value clarifications, adds additional RxNorm 
references to fields, and adds support for text messaging.
     NCPDP Formulary and Benefit Standard Implementation Guide 
v4.0.
    URL: http://ncpdp.org/Standards/Standards-Info and http://ncpdp.org/?ReturnUrl=%2fmembers%2fStandards-Lookup.aspx. Access 
requires completion of a membership application and a paid membership. 
NCPDP has stated that membership allows NCPDP to provide a forum 
wherein a diverse membership can develop business solutions, standards, 
and guidance for promoting information exchanges related to 
medications, supplies, and services within the health care system 
through consensus building processes.
    Summary: The NCPDP Formulary and Benefit Standard Implementation 
Guide provides a standard means for pharmacy benefit payers to 
communicate formulary and benefit information to prescribers via 
technology vendor systems. It enables the physician to consider 
information during the prescribing process to help make an appropriate 
drug choice for the patient. Compared to v3.0, v4.0 modifies a field 
size, removes some values, and makes editorial edits to a figure.
     NCPDP Formulary and Benefit Standard Implementation Guide 
v4.1.
    URL: http://ncpdp.org/Standards/Standards-Info and http://ncpdp.org/?ReturnUrl=%2fmembers%2fStandards-Lookup.aspx. Access 
requires completion of a membership application and a paid membership. 
NCPDP has stated that membership allows NCPDP to provide a forum 
wherein a diverse membership can develop business solutions, standards, 
and guidance for promoting information exchanges related to 
medications, supplies, and services within the health care system 
through consensus building processes.
    Summary: The NCPDP Formulary and Benefit Standard Implementation 
Guide provides a standard means for pharmacy benefit payers to 
communicate formulary and benefit information to prescribers via 
technology vendor systems. It enables the physician to consider 
information during the prescribing process to help make an appropriate 
drug choice for the patient. Compared to v4.0, v4.1 removes files to 
support electronic Prior Authorization (ePA) transactions since these 
were added to the NCPDP SCRIPT Standard Implementation Guide v2013011 
(January 2013) and later versions, makes typographical corrections, 
adds a new coverage type for ePA routing, and adds an RxNorm qualifier 
to some data elements.

[[Page 16891]]

     NCPDP Formulary and Benefit Standard Implementation Guide 
v42.
    URL: http://ncpdp.org/Standards/Standards-Info and http://ncpdp.org/?ReturnUrl=%2fmembers%2fStandards-Lookup.aspx. Access 
requires completion of a membership application and a paid membership. 
NCPDP has stated that membership allows NCPDP to provide a forum 
wherein a diverse membership can develop business solutions, standards, 
and guidance for promoting information exchanges related to 
medications, supplies, and services within the health care system 
through consensus building processes.
    Summary: The NCPDP Formulary and Benefit Standard Implementation 
Guide provides a standard means for pharmacy benefit payers to 
communicate formulary and benefit information to prescribers via 
technology vendor systems. It enables the physician to consider 
information during the prescribing process to help make an appropriate 
drug choice for the patient. Compared to v4.1, v42 \260\ includes 
changes to reduce the formulary file size, modifies some code lists and 
values, and revises some fields.
---------------------------------------------------------------------------

    \260\ Please note a change to the naming convention starting 
with Version 42.
---------------------------------------------------------------------------

     NCPDP Telecommunication Standard Implementation Guide vE6.
    URL: http://ncpdp.org/Standards/Standards-Info and http://ncpdp.org/?ReturnUrl=%2fmembers%2fStandards-Lookup.aspx. Access 
requires completion of a membership application and a paid membership. 
NCPDP has stated that membership allows NCPDP to provide a forum 
wherein a diverse membership can develop business solutions, standards, 
and guidance for promoting information exchanges related to 
medications, supplies, and services within the health care system 
through consensus building processes.
    Summary: The Telecommunication Standard was developed to provide a 
standard format for the electronic submission of third party drug 
claims. The development of the standard was to accommodate the 
eligibility verification process at the point-of-sale and to provide a 
consistent format for electronic claims processing. The 
Telecommunication Standard includes transactions for eligibility 
verification, claim and service billing, predetermination of benefits, 
prior authorization, information reporting, and controlled substance 
(general and regulated) transaction exchanges.
     ASC X12 270/271 Health Care Eligibility Benefit Inquiry 
and Response Implementation Guide.
    URL: http://store.x12.org/store/healthcare-5010-consolidated-guides. Access requires either a membership with ASC X12 or the user to 
purchase a single user or unlimited user license. ASC X12 develops and 
maintains EDI and CICA standards along with XML standards for a number 
of sectors, including health care, insurance, transportation, finance, 
government, and supply chain. ASC X12 has stated that membership allows 
it to support standards development and participation; meetings, 
conferences, and educational venues; standards and publications; tools 
for members; and networking and visibility.
    Summary: The Health Care Eligibility/Benefit Inquiry and 
Information Response Implementation Guide describes the use of the 
Eligibility, Coverage or Benefit Inquiry (270) Version/Release 005010 
transaction set and the Eligibility, Coverage, or Benefit Information 
(271) Version/Release 005010 transaction set for the following usages: 
Determine if an Information Source organization, such as an insurance 
company, has a particular subscriber or dependent on file; and 
determine the details of health care eligibility and/or benefit 
information.
     HL7 Implementation Guide: Data Segmentation for Privacy 
(DS4P), Release 1.
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=354. Access requires a ``user account'' 
and a license agreement. There is no monetary cost for a user account 
and license agreement.
    Summary: This guide supports segmenting clinical records so that 
protected health information (PHI) can be appropriately shared as may 
be permitted by privacy policies or regulations.
     HL7 2.5.1 Implementation Guide for Immunization Messaging, 
Release 1.5.
    URL: http://www.cdc.gov/vaccines/programs/iis/technical-guidance/downloads/hl7guide-1-5-2014-11.pdf. This is a direct link.
    Summary: This document represents the collaborative effort of the 
American Immunization Registry Association and CDC to improve inter-
system communication of immunization records. The guide is intended to 
facilitate exchange of immunization records between different systems.
     PHIN Messaging Guide for Syndromic Surveillance: Emergency 
Department, Urgent, Ambulatory Care, and Inpatient Settings, Release 
2.0.
    URL: http://www.cdc.gov/phin/library/guides/SyndrSurvMessagGuide2_MessagingGuide_PHN.pdf. This is a direct link.
    Summary: This document represents the collaborative effort of the 
International Society for Disease Surveillance, CDC, and NIST to 
specify a national electronic messaging standard that enables disparate 
health care applications to submit or transmit administrative and 
clinical data for public health surveillance and response. The scope of 
the guide is to provide guidelines for sending HL7 v.2.5.1 compliant 
messages from emergency department, urgent and ambulatory care, and 
inpatient settings to public health authorities.
     HL7 Version 2.5.1 Implementation Guide: Electronic 
Laboratory Reporting to Public Health, Release 2 (US Realm), Draft 
Standard for Trial Use R1.1.
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=329. Access requires a ``user account'' 
and a license agreement. There is no monetary cost for a user account 
and license agreement.
    Summary: This guide is the result of collaborative efforts between 
HL7 and the S&I Laboratory Results Interface Initiative. The guide 
describes constraints, comments, and elements necessary for laboratory 
reporting to public health.
     HL7 Implementation Guide for CDA[sup](copyright) Release 
2: Reporting to Public Health Cancer Registries From Ambulatory 
Healthcare Providers, Release 1.
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=383. Access requires a ``user account'' 
and a license agreement. There is no monetary cost for a user account 
and license agreement.
    Summary: As ambulatory health care providers adopt modern EHR 
systems, the opportunity to automate cancer registry reporting from 
ambulatory health care provider settings is also increasing and 
becoming more feasible. This document provides clear and concise 
specifications for electronic reporting form ambulatory health care 
provider EHR systems to public health central cancer registries using 
the HL7 CDA based standards. This document is designed to guide EHR 
vendors and public health central cancer registries in the 
implementation of standardized electronic reporting.
     IHE IT Infrastructure Technical Framework Volume 2b (ITI 
TF-2b).
    URL: http://www.ihe.net/Technical_Framework/upload/IHE_ITI_TF_Rev7-0_Vol2b_FT_2010-08-10.pdf. This is a direct link.
    Summary: This document defines specific implementations of 
established

[[Page 16892]]

standards to achieve integration goals that promote appropriate sharing 
of medical information to support ongoing patient care. The IHE IT 
Infrastructure Technical Framework identifies a subset of functional 
components of the health care enterprise, called ``IHE actors,'' and 
specified their interactions in terms of a set of coordinated, 
standards-based transactions. Volume 2b corresponds to transactions 
[ITI-29] through [ITI-57].
     IHE Quality, Research, and Public Health Technical 
Framework Supplement, Structured Data Capture, Trial Implementation.
    URL: http://www.ihe.net/uploadedFiles/Documents/QRPH/IHE_QRPH_Suppl_SDC.pdf. This is a direct link.
    Summary: The Structured Data Capture Content Profile provides 
specifications to enable an EHR system or other application to retrieve 
a data capture form and submit data from the completed form. This 
supplement is based on the work of ONC's S&I Framework Structured Data 
Capture (SDC) Initiative. The SDC Initiative has developed use cases, 
identified national standards for the structure of common data elements 
and form model definition, developed guidance to assist in 
implementation, and conducted pilots for evaluation of SDC.
     HL7 FHIR Implementation Guide: Structured Data Capture 
(SDC).
    URL: http://hl7.org/implement/standards/FHIR-Develop/sdc.html#SDC. 
This is a direct link.
    Summary: This implementation guide is intended to support clinical 
systems in the creation and population of forms with patient-specific 
data. It defines a mechanism for linking questions in forms to pre-
defined data elements to enable systems to automatically populate 
portions of the form based on existing data, either locally or by 
invoking an operation on a third-party system. Note that the SDC FHIR 
Implementation Guide is balloted as comment-only.
     HL7 Implementation Guide for CDA[supreg] Release 2--Level 
3: Healthcare Associated Infection Reports, Release 1, U.S. Realm.
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=20. Access requires a ``user account'' and 
a license agreement. There is no monetary cost for a user account and 
license agreement.
    Summary: This document specifies a standard for electronic 
submission of health care associated infection reports (HAI) to the 
National Healthcare Safety Network of the CDC. This document defines 
the overall approach and method of electronic submission and develops 
constraints defining specific HAI report types.
     HL7 Implementation Guide for CDA[supreg] Release 2: 
National Health Care Surveys (NHCS), Release 1--US Realm, Draft 
Standard for Trial Use (December 2014).
    URL: http://www.hl7.org/implement/standards/product_brief.cfm?product_id=385. Consistent with HL7 policy, non-
member access would not be available until April 14, 2015. HL7 has, 
however, agreed to waive the normal 90-day waiting period and make the 
implementation guide freely available during the public comment period 
of this proposed rule. Access requires a ``user account'' and license 
agreement. There is no monetary cost for a user account and license 
agreement.
    Summary: The HL7 Implementation Guide for CDA Release 2: National 
Health Care Surveys (NHCS), Release 1--US Realm will provide a 
standardized format for implementers to submit data to fulfill 
requirements of the Centers for Disease Control and Prevention/National 
Center for Health Statistics/National Health Care Surveys. This guide 
will support automatic extraction of the data from a provider's EHR 
system or data repository. The data are collected through three surveys 
of ambulatory care services in the United States: The National 
Ambulatory Medical Care Survey with information from physicians and two 
national hospital care surveys: The National Hospital Ambulatory 
Medical Care Surveys and the National Hospital Care Survey with data 
from hospital emergency and outpatient departments.
     NCPDP SCRIPT Implementation Recommendations Version 1.29.
    URL: http://www.ncpdp.org/NCPDP/media/pdf/SCRIPTImplementationRecommendationsV1-29.pdf. This is a direct link. 
The Implementation Recommendations Version 1.29 is available at no 
monetary cost, but references the NCPDP Structured and Codified Sig 
Implementation Guide Version 1.2. Access to NCPDP standards requires 
completion of a membership application and a paid membership. NCPDP has 
stated that membership allows NCPDP to provide a forum wherein a 
diverse membership can develop business solutions, standards, and 
guidance for promoting information exchanges related to medications, 
supplies, and services within the health care system through consensus 
building processes.
    Summary: This Implementation Recommendations document includes 
recommendations for implementation of the structured and codified sig 
format for a subset of component composites that represent the most 
common Sig segments using NCPDP Structured and Codified Sig 
Implementation Guide Version 1.2. The recommendations promote 
consistent and complete prescription transactions of the NCPDP SCRIPT 
Standard.

Vocabulary Standards for Representing Electronic Health Information--45 
CFR 170.207

     IHTSDO SNOMED CT[supreg], U.S. Edition, September 2014 
Release.
    URL: http://www.nlm.nih.gov/research/umls/Snomed/us_edition.html. 
Access requires a user account and license agreement. There is no 
monetary cost for a user account and license agreement.
    Summary: Systemized Nomenclature of Medicine--Clinical Terms 
(SNOMED CT[supreg]) is a comprehensive clinical terminology, originally 
created by the College of American Pathologists and, as of April 2007, 
owned, maintained, and distributed by the International Health 
Terminology Standards Development Organisation. SNOMED CT[supreg] 
improves the recording of information in an EHR system and facilitates 
better communication, leading to improvements in the quality of care.
     Logical Observation Identifiers Names and Codes 
(LOINC[supreg]) Database version 2.50, a universal code system for 
identifying laboratory and clinical observations produced by the 
Regenstrief Institute, Inc.
    URL: http://loinc.org/downloads. Access requires registration, a 
user account, and license agreement. There is no monetary cost for 
registration, a user account, and license agreement.
    Summary: LOINC[supreg] was initiated in 1994 by the Regenstrief 
Institute and developed by Regenstrief and the LOINC[supreg] committee 
as a response to the demand for electronic movement of clinical data 
from laboratories that produce the data to hospitals, provider's 
offices, and payers who use the data for clinical care and management 
purposes. The scope of the LOINC[supreg] effort includes laboratory and 
other clinical observations. The LOINC[supreg] database facilitates the 
exchange and pooling of results for clinical care, outcomes management, 
and research.
     RxNorm, a standardized nomenclature for clinical drugs 
produced by the United States National Library of Medicine, February 2, 
2015 Release.
    URL: http://www.nlm.nih.gov/research/umls/rxnorm/docs/rxnormfiles.html. Access requires a user account and license agreement. 
There is no monetary cost for a user account and license agreement.

[[Page 16893]]

    Summary: RxNorm provides normalized names for clinical drugs and 
links its names to many of the drug vocabularies commonly used in 
pharmacy management and drug interaction software. By providing links 
between vocabularies commonly used in pharmacy management and drug 
interaction software, RxNorm can mediate messages between systems not 
using the same software and vocabulary. RxNorm now includes the 
National Drug File--Reference Terminology (NDF-RT) from the Veterans 
Health Administration, which is used to code clinical drug properties, 
including mechanism of action, physiologic effect, and therapeutic 
category.
     HL7 Standard Code Set CVX--Vaccines Administered, updates 
through February 2, 2015.
    URL: http://www2a.cdc.gov/vaccines/iis/iisstandards/vaccines.asp?rpt=cvx. This is a direct link.
    Summary: CDC's National Center of Immunization and Respiratory 
Diseases developed and maintains HL7 Table 0292, Vaccine Administered 
(CVX). CVX includes both active and inactive vaccines available in the 
U.S. CVX codes for inactive vaccines allow transmission of historical 
immunization records; when paired with a manufacturer (MVX) code, the 
specific trade named vaccine may be indicated.
     National Drug Code Directory--Vaccine Codes, updates 
through January 15, 2015.
    URL: http://www2a.cdc.gov/vaccines/iis/iisstandards/ndc_tableaccess.asp. This is a direct access link.
    Summary: The Drug Listing Act of 1972 requires registered drug 
establishments to provide the FDA with a current list of all drugs 
manufactured, prepared, propagated, compounded, or processed by it by 
commercial distribution. Drug products are identified and reported 
using a unique, three-segment number, called the National Drug Code 
(NDC), which services as the universal product identifier for drugs. 
This standard is limited to the NDC vaccine codes identified by CDC at 
the URL provided.
     HL7 Standard Code Set MVX--Manufacturers of Vaccines Code 
Set, updates through October 30, 2014.
    URL: http://www2a.cdc.gov/vaccines/iis/iisstandards/vaccines.asp?rpt=mvx. This is a direct link.
    Summary: CDC's National Center of Immunization and Respiratory 
Diseases developed and maintains HL7 Table 0227, Manufacturers of 
Vaccines (MVX). The MVX table includes both active and inactive 
vaccines available in the U.S. MVX codes allow transmission of 
historical immunization records. When MVX code is paired with a CVX 
code, the specific trade named vaccine may be indicated.
     ``Race & Ethnicity--CDC'' code system in the PHIN 
Vocabulary Access and Distribution System (VADS), Release 3.3.9.
    URL: https://phinvads.cdc.gov/vads/ViewCodeSystem.action?id=2.16.840.1.113883.6.238. This is a direct 
link.
    Summary: The Public Health Information Network (PHIN) VADS is a 
web-based enterprise vocabulary systems for accessing, searching, and 
distributing vocabularies used within the PHIN. PHIN VADS provides 
standard vocabularies to CDC and its public health partners in one 
place. It promotes the use of standards-based vocabulary to support the 
exchange of consistent information among public health partners.
     Request for Comments (RFC) 5646.
    URL: http://www.rfc-editor.org/info/rfc5646. This is a direct 
access link.
    Summary: RFC 5646 describes the structure, content, construction, 
and semantics of language tags for use in cases where it is desirable 
to indicate the language used in an information object. It also 
describes how to register values for use in language tags and the 
creation of user-defined extensions for private interchange.
     The Unified Code of Units of Measure, Revision 1.9.
    URL: http://unitsofmeasure.org/trac/. This is a direct access link. 
The codes can be viewed in html or xml.
    Summary: The Unified Code of Units of Measure is a code system 
intended to include all units of measures being contemporarily used in 
international science, engineering, and business. The purpose is to 
facilitate unambiguous electronic communication of quantities together 
with units.

Standards for Health Information Technology To Protect Electronic 
Health Information Created, Maintained, and Exchanged--45 CFR 170.210

     Any encryption algorithm identified by the National 
Institute of Standards and Technology (NIST) as an approved security 
function in Annex A of the Federal Information Processing Standards 
(FIPS) Publication 140-2, October 8, 2014.
    URL: http://csrc.nist.gov/publications/fips/fips140-2/fips1402annexa.pdf. This is a direct link.
    Summary: Federal Information Processing Standards Publication (FIPS 
PUB) 140-2, Security Requirements for Cryptographic Modules, specifies 
the security requirements that are to be satisfied by the cryptographic 
module utilized within a security system protecting sensitive 
information within computer and telecommunications systems. The 
standard provides four increasing qualitative levels of security that 
are intended to cover the wide range of potential applications and 
environments in which cryptographic modules may be employed.

VII. Collection of Information Requirements

    Under the Paperwork Reduction Act of 1995 (PRA), agencies are 
required to provide 60-day notice in the Federal Register and solicit 
public comment on a proposed collection of information before it is 
submitted to the Office of Management and Budget for review and 
approval. In order to fairly evaluate whether an information collection 
should be approved by the Office of Management and Budget, section 
3506(c)(2)(A) of the PRA requires that we solicit comment on the 
following issues:
    1. Whether the information collection is necessary and useful to 
carry out the proper functions of the agency;
    2. The accuracy of the agency's estimate of the information 
collection burden;
    3. The quality, utility, and clarity of the information to be 
collected; and
    4. Recommendations to minimize the information collection burden on 
the affected public, including automated collection techniques.
    Under the PRA, the time, effort, and financial resources necessary 
to meet the information collection requirements referenced in this 
section are to be considered. We explicitly seek, and will consider, 
public comment on our assumptions as they relate to the PRA 
requirements summarized in this section. To comment on the collection 
of information or to obtain copies of the supporting statements and any 
related forms for the proposed paperwork collections referenced in this 
section, email your comment or request, including your address and 
phone number to [email protected], or call the Reports 
Clearance Office at (202) 690-6162. Written comments and 
recommendations for the proposed information collections must be 
directed to the OS Paperwork Clearance Officer at the above email 
address within 60 days.

Abstract

    Under the ONC Health IT Certification Program, accreditation 
organizations that wish to become the ONC-Approved Accreditor (ONC-AA) 
must submit certain information, organizations that wish to become an

[[Page 16894]]

ONC-ACB must submit the information specified by the application 
requirements, and ONC-ACBs must comply with collection and reporting 
requirements, records retention requirements, and submit annual 
surveillance plans and annually report surveillance results.
    In the Permanent Certification Program final rule (76 FR 1312-14), 
we solicited public comment on each of the information collections 
associated with the requirements described above (and included in 
regulation at 45 CFR 170.503(b), 170.520, and 170.523(f), (g), and (i), 
respectively). In the 2014 Edition final rule (77 FR 54275-76), we 
sought comment on these collection requirements again and finalized an 
additional requirement at Sec.  170.523(f)(8) for ONC-ACBs to report to 
ONC a hyperlink with each EHR technology they certify that provides the 
public with the ability to access the test results used to certify the 
EHR technology. These collections of information were approved under 
OMB control number 0955-0013 (previous OMB control number 0990-0378).
    As discussed in more detail below, we estimate less than 10 annual 
respondents for all of the regulatory ``collection of information'' 
requirements under Part 170 of Title 45, including those previously 
approved by OMB and proposed in this proposed rule. Accordingly, the 
regulatory ``collection of information'' requirements under the ONC 
Health IT Certification Program described in this section are not 
subject to the PRA under 5 CFR 1320.3(c). We welcome comments on this 
conclusion and our supporting rationale for this conclusion as recited 
below. We also set out below proposed revisions to previously approved 
``collections of information'' and potential new ``collections of 
information'' as well as our burden estimates for these ``collections 
of information.''
    We propose to change the records retention requirement in Sec.  
170.523(g) from five years to six years. It is our understanding that a 
six-year records retention requirement aligns with current 
accreditation standards that ONC-ACBs follow. Therefore, we do not 
believe there will be any additional burden based on this proposed 
change.
    We propose in Sec.  170.523(o) that ONC-ACBs provide ONC with a 
list of complaints received on a quarterly basis. We only request that 
ONC-ACBs indicate in their submission how many complaints were 
received, the nature or substance of the complaint, and the type of 
complainant (e.g., type of provider, health IT developer, etc.). 
Therefore, we believe ONC-ACBs will face little burden in complying 
with this new proposed requirement.
    For regulatory clarity in relation to new proposed ONC-ACB 
collection and reporting requirements, we have proposed to move all of 
the current ONC-ACB collection and reporting requirements in Sec.  
170.523(f) to Sec.  170.523(f)(2). These collection and reporting 
requirements are specific to the certification of health IT to the 2014 
Edition. We note that we have also proposed to add a data element to 
the list of collection and reporting requirements for 2014 Edition 
certifications. The data element is the reporting of any corrective 
action instituted under the proposed provisions of Sec.  170.556 (see 
section IV.D.3 of this preamble; see also Sec.  170.523(f)(2)(ix)).
    We propose to add a new ONC-ACB collection and reporting 
requirements for the certification of health IT to the 2015 Edition 
(and any subsequent edition certification) in Sec.  170.523(f)(1). As 
proposed for Sec.  170.523(f)(1), ONC-ACBs would be required to report 
on the same data elements they report to ONC under current Sec.  
170.523(f), the information contained in the publicly available test 
report, and additional data in an open data file format. These 
collection and reporting requirements are described in more detail in 
section IV.D.3, titled ``Open Data Certified Health IT Product List 
(CHPL).'' We do not anticipate any additional burden on ONC-ACBs for 
reporting similar information for 2015 Edition certifications as they 
do for 2014 Edition certifications. For the additional data that we 
propose they report, we believe that burden would be minimal as 
discussed below.
    For the purposes of estimating the additional potential burden for 
reporting under Sec.  170.523(f)(1) and (2):
     We assume there will be three ONC-ACBs as this is the 
current number of ONC-ACBs.
     We assume ONC-ACBs will continue to report weekly (i.e., 
respondents will respond 52 times per year) as is the current practice.
     We assume an equal distribution among ONC-ACBs in 
certifying Health IT Modules on a weekly basis. As such, based on the 
number of Complete EHRs and EHR Modules listed on the CHPL at the end 
of July of 2014 (approximately one and a half years since ONC began 
certifying 2014 Edition products), we estimate that, on average, each 
ONC-ACB will report information to ONC on 2015 Edition certifications 
for 2.5 Health IT Modules per week.
     We expect 2014 Edition certifications to slow upon 
issuance of a subsequent final rule and estimate that each ONC-ACB will 
only issue, on average, one 2014 Edition certification per week after a 
subsequent final rule is effective. Therefore, we have reduced the 
average burden hours per response to .75 from 1.33 for Sec.  
170.523(f)(2). This new average burden hour estimate takes into account 
any potential ONC-ACB reporting of data associated with the new 
proposed provisions for corrective action instituted under Sec.  
170.556 (see Sec.  170.523(f)(2)(ix)).
     We believe it will take approximately 1.5 hours per week 
on average to collect and report to ONC the information required for 
2015 Edition certifications in Sec.  170.523(f)(1), including the 
information that goes beyond what is currently collected and reported 
for 2014 Edition certifications. Our estimate includes a potential wide 
range of certifications issued for Health IT Modules, including, but 
not limited to, certifying Health IT Modules to multiple certification 
criteria and CQMs. Our estimates also take into account that it may 
take ONC-ACBs more time in the beginning of the collection and 
reporting processes as they may need to recode their systems to collect 
and report the new information in an automated manner. Therefore, we 
believe 1.5 hours represents a reasonable average of the amount of time 
for an ONC-ACB to collect and report the information proposed under 
Sec.  170.523(f)(1). Our burden estimate is incorporated into the table 
below.
    As stated above, we anticipate that there will be three ONC-ACBs 
participating in the ONC Health IT Certification Program as this is the 
current number of ONC-ACBs. Further, since the establishment of the ONC 
Health IT Certification Program in 2010, ONC has never had more than 
six applicants for ONC-ACB or ONC-ATCB status or selected more than six 
ONC-ACBs or ONC-ATCBs.\261\ Therefore, we have aligned the estimated 
number of respondents for the applicable regulation provisions (i.e., 
Sec.  170.523(f)(1) and (2), (g), (i), and (o); and Sec.  170.540(c)) 
with the current number of ONC-ACBs. We have also revised the estimated 
number of respondents for Sec.  170.503(b) (applicants for ONC-Approved 
Accreditor (ONC-AA) status) based on past selection processes for the 
ONC-AA, which have

[[Page 16895]]

included no more than two applicants. We have retained the same number 
of responses per respondent and average burden hours per response for 
the regulation provisions currently included in OMB control number 
0995-0013, except for Sec.  170.523(f) as specified above (now Sec.  
170.523(f)(2)). Our estimates for the total burden hours are expressed 
in the table below.
---------------------------------------------------------------------------

    \261\ See also: http://www.healthit.gov/policy-researchers-implementers/authorized-testing-and-certifications-bodies and http://www.healthit.gov/policy-researchers-implementers/certification-bodies-testing-laboratories.

                                     Estimated Annualized Total Burden Hours
----------------------------------------------------------------------------------------------------------------
                                                                     Number of    Average burden
               Type of respondent                    Number of     responses per     hours per     Total burden
                                                    respondents     respondent       response          hours
----------------------------------------------------------------------------------------------------------------
45 CFR 170.503(b)...............................               2               1               1               2
45 CFR 170.520..................................               1               1               1               1
45 CFR 170.523(f)(1)............................               3              52             1.5             234
45 CFR 170.523(f)(2)............................               3              52             .75             117
45 CFR 170.523(g)...............................               3             n/a             n/a             n/a
45 CFR 170.523(i)...............................               3               2               1               6
45 CFR 170.523(o)...............................               3               4               1              12
45 CFR 170.540(c)...............................               3               1               1               3
rrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrrr
    Total burden hours..........................  ..............  ..............  ..............             375
----------------------------------------------------------------------------------------------------------------

VIII. Regulatory Impact Statement

A. Statement of Need

    This proposed rule is being published to adopt the 2015 Edition. 
Certification criteria and associated standards and implementation 
specifications would be used to test and certify health IT in order to 
make it possible for EPs, eligible hospitals, and CAHs to adopt and 
implement health IT that can be used to meet the CEHRT definition. EPs, 
eligible hospitals, and CAHs who participate in the EHR Incentive 
Programs are required by statute to use CEHRT.\262\
---------------------------------------------------------------------------

    \262\ Section 1848(o) of the Social Security Act.
---------------------------------------------------------------------------

    The certification criteria and associated standards and 
implementation specifications would also support the certification of 
more types of health IT and health IT that supports care and practice 
settings beyond the scope of the EHR Incentive Programs.
    The adoption and implementation of health IT certified to the 2015 
Edition promotes interoperability in support of a nationwide health 
information infrastructure and improves health care quality, safety and 
efficiency consistent with the goals of the HITECH Act.

B. Overall Impact

    We have examined the impact of this proposed rule as required by 
Executive Order 12866 on Regulatory Planning and Review (September 30, 
1993), Executive Order 13563 on Improving Regulation and Regulatory 
Review (February 2, 2011), the Regulatory Flexibility Act (5 U.S.C. 601 
et seq.), section 202 of the Unfunded Mandates Reform Act of 1995 (2 
U.S.C. 1532), and Executive Order 13132 on Federalism (August 4, 1999).
1. Executive Orders 12866 and 13563--Regulatory Planning and Review 
Analysis
    Executive Orders 12866 and 13563 direct agencies to assess all 
costs and benefits of available regulatory alternatives and, if 
regulation is necessary, to select regulatory approaches that maximize 
net benefits (including potential economic, environmental, public 
health and safety effects, distributive impacts, and equity). A 
regulatory impact analysis (RIA) must be prepared for major rules with 
economically significant effects ($100 million or more in any 1 year). 
OMB has determined that this proposed rule is an economically 
significant rule as ONC has estimated the costs to develop and prepare 
health IT to be tested and certified may be greater than $100 million 
per year. Because of the public interest in this proposed rule, we have 
prepared an RIA that to the best of our ability presents the costs and 
benefits of the proposed rule.
a. Costs
    This proposed rule proposes the adoption of standards, 
implementation specifications, and certification criteria that would 
establish the capabilities that health IT would need to demonstrate to 
be certified to the 2015 Edition. Our analysis focuses on the direct 
effects of the provisions of this proposed rule--the costs incurred by 
health IT developers to develop and prepare health IT to be tested and 
certified in accordance with the certification criteria (and the 
standards and implementation specifications they include) adopted by 
the Secretary. That is, we focus on the technological development and 
preparation costs necessary for health IT already certified to the 2014 
Edition to upgrade to the proposed 2015 Edition and for, in limited 
cases, developing and preparing a new Health IT Module to meet the 2015 
Edition. The costs for the testing and certification of health IT to 
the 2015 Edition were captured in the regulatory impact analysis of the 
Permanent Certification Program final rule as we discuss in more detail 
below (VIII.B.1.a.iii ``Testing and Certification Costs for the 2015 
Edition''). Because the costs that EPs, eligible hospitals, and CAHs 
would incur in adopting and implementing (including training, 
maintenance, and any other ongoing costs) health IT certified to the 
2015 Edition is overwhelmingly attributable to CMS's EHR Incentive 
Programs Stage 3 proposed rule (proposed elsewhere in this issue of the 
Federal Register), and would not be incurred in the absence of such 
rulemaking, such costs are not within the scope of the analysis of this 
proposed rule; similarly, any benefits that are contingent upon 
adoption and implementation would be attributable to CMS's 
rulemaking.\263\ We also note that this proposed rule does not impose 
the costs cited as compliance costs, but rather as investments which 
health IT

[[Page 16896]]

developers voluntarily take on and expect to recover with an 
appropriate rate of return.
---------------------------------------------------------------------------

    \263\ ONC administers a voluntary certification program that 
provides no incentives for certification. Therefore, to the extent 
that providers' implementation and adoption costs are attributable 
to CMS's rulemaking, health IT developers' preparation and 
development costs would also be attributable to that rulemaking 
(because all of the costly activities are, directly or indirectly, 
incentivized by CMS's proposed payment structure). However, even if 
CMS's proposed rule were not finalized, a professional organization 
or other such entity could require or promote certification, thus 
generating costs and benefits that are attributable to this proposed 
rule. To avoid giving the misleading impression that such effects 
equal zero, we present in this RIA a subset of the relevant 
impacts--a quantification of costs that are incurred by health IT 
developers and a qualitative discussion of benefits. (The missing 
portion of the subset is providers' implementation and adoption 
costs.)
---------------------------------------------------------------------------

i. Development and Preparation Costs for the 2015 Edition
    The development and preparation costs we estimate are derived 
through a health IT developer per criterion cost. In simple terms, we 
estimate: (1) How many health developers will prepare and develop 
products against the proposed certification criteria; (2) how many 
products they will develop; and (3) what it will likely cost them to 
develop and prepare those products to meet the proposed certification 
criteria.
    We are not aware of an available independent study (e.g., a study 
capturing the preparation efforts and costs to develop and Health IT 
Modules to meet the requirements of the 2014 Edition) that we could 
rely upon as a basis for estimating the efforts and costs required to 
develop and prepare health IT to meet the 2015 Edition. We welcome 
comments identifying such a study or on any valid and reliable data 
upon which we could base our estimates in a subsequent final rule.
Proposed Certification Criteria
    We have divided the proposed certification criteria into two 
tables. One table is for the certification criteria associated with EHR 
Incentive Programs Stage 3 proposed objectives and measures (``Stage 3 
Criteria''). This table also includes certification criteria that are 
included in conditional certification requirements, such as privacy and 
security, safety-enhanced design, and quality management system 
certification criteria as certified Health IT Modules certified to 
these criteria would likely be used to meet the CEHRT definition under 
the EHR Incentive Programs. The second table is for all other proposed 
certification criteria (``Independent Criteria''). We have done this 
because, based on available data, we can more accurately estimate the 
number of health IT developers that may develop and prepare Health IT 
Modules for certification to proposed certification criteria associated 
with the EHR Incentive Programs.
Health IT Developers
    We derive our estimates for the number of health IT developers by 
beginning with the number of Health IT developers certified to each of 
the 2014 Edition certification criteria as identified in CHPL data from 
November 10, 2014. For the Stage 3 Criteria that correspond to 2014 
Edition certification criteria, we have reduced the number of Health IT 
developers by 30% from the number that certified against the 2014 
Edition. We have done this because we have found a 22% drop in the 
number of health IT developers that certified technology against the 
2014 Edition versus the 2011 Edition. We believe that as both 
interoperability requirements increase by edition and certain health IT 
developers gain more market share through competition and acquisition 
of other health IT developers, there will be an even greater drop in 
the number of health IT developers that seek certification to the 2015 
Edition. We welcome comments on this assumption.
    For the Independent Criteria, we have established a number of 
health IT developers for all the criteria at 16. We derived this number 
by taking the lowest number of health IT developers certified to a 2014 
Edition certification criteria and reducing that number by 50%. Only 32 
health IT developers have certified to the 2014 Edition ``transmission 
to cancer registries'' certification criterion (Sec.  170.314(f)(6)) 
even though it is associated with an EHR Incentive Programs Stage 2 
menu objective. The Independent Criteria are not currently associated 
with the EHR Incentive Programs or other HHS payment programs. 
Therefore, we estimate that a small number of health IT developers 
would certify to these criteria (i.e., 50% less than the least amount 
of health IT developers certified to a certification criterion that 
supports the EHR Incentive Programs). We welcome comments on our 
approach to estimating the number of health IT developers for 
Independent Criteria. We also seek comment on reasons (e.g., use cases) 
why health IT developers would currently seek certification to these 
criteria in general or for each proposed criteria.
    To note, the estimated number of Health IT developers for each 
criterion includes any potential new entrants to the market.
Number of Health IT Modules
    We estimate 2.5 products per health IT developer for each Stage 3 
criterion. We reached this estimate based both on the number of unique 
\264\ certified products listed on the CHPL as of November 10, 2014 
divided by the number of health IT developers certified and stakeholder 
feedback on our Voluntary Edition proposed rule (79 FR 54474). We 
estimate 1 product for each of the Independent Criteria (60% less). As 
noted above, the Independent Criteria are not currently associated with 
the EHR Incentive Programs or other HHS payment programs. Therefore, it 
is not only unclear how many health IT developers will seek 
certification to these criteria, but also how many products they would 
certify to these criteria. We can only assume that the number of 
products certified by each health IT developer will likely be less than 
for Stage 3 Criteria. Again, we welcome comments on estimates.
---------------------------------------------------------------------------

    \264\ We attempted to discern how many Complete EHRs and Health 
IT Modules were used that would not constitute a newer version of 
the same technology.
---------------------------------------------------------------------------

Average Development and Preparation Hours
    Our estimated average development hours are based on feedback we 
received in response to the RIA we completed for on our Voluntary 
Edition proposed rule and internal estimates for criteria where there 
is no external data to validly rely upon. As noted in the Voluntary 
Edition final rule, we have generally used estimates from the 
Electronic Health Record Association as a basis for our high estimates, 
where applicable. For the Stage 3 Criteria, we include the development 
and preparation for 2.5 certified products per health IT developer in 
the estimated average development and preparation hours. For the 
Independent Criteria, we have built in an estimate of 60% less overall 
development and preparation hours due to our assumption that a health 
IT developer would develop only one product.
    As mentioned above, for proposed 2015 Edition certification 
criteria that have a corresponding 2014 Edition criterion, we estimate 
only the development and preparation hours to meet the new and revised 
capabilities included in a proposed criterion.
Health IT Developer Hourly Cost and Cost Range
    We have based the effort levels on the hours necessary for a 
software developer to develop and prepare the health IT for testing and 
certification. The U.S. Department of Labor, Bureau of Labor Statistics 
estimates that the median hourly wage for a software developer is 
$44.55.\265\ We have also calculated the costs of an employee's 
benefits by assuming that an employer expends thirty-six percent (36%) 
of an employee's hourly wage on benefits for the employee. We have 
concluded that a 36% expenditure on benefits is an appropriate estimate 
because it is the routine percentage used by HHS for contract cost 
estimates. We have rounded up the average software

[[Page 16897]]

developer's wage with benefits to $61 per hour.
---------------------------------------------------------------------------

    \265\ http://www.bls.gov/oes/current/oes151132.htm.
---------------------------------------------------------------------------

    To calculate our cost estimates for each certification criterion in 
the tables below, we have multiplied both the average low and average 
high number of development and preparation hours by $61. For tables 8 
and 9, dollar amounts are expressed in 2013 dollars.
    For unchanged certification criteria,\266\ we have estimated a 
range of 0-50 hours to account for new entrants in the Stage 3 Criteria 
table (Table 6) and used 60% less of that estimate in the ``Independent 
Criteria'' table (Table 7). To illustrate, that would produce a high 
development hours of 12,700 for the ``medication list'' criterion (item 
# 7). This likely still overestimates the burden hours of all potential 
new entrants.
---------------------------------------------------------------------------

    \266\ For the purposes of estimating development hours, we are 
currently characterizing the 2015 Edition ``automatic access time-
out'' (Sec.  170.315(d)(5)) and ``end-user device encryption'' 
certification criterion (Sec.  170.315(d)(7)) as unchanged despite 
clarifying edits to the criteria and updates.
---------------------------------------------------------------------------

Estimated Health IT Developers and Development Hours Per Criterion

    Table 6--Estimated Health IT Developers and Development and Preparation Hours for Proposed Certification
                      Criteria--Criteria Associated With the EHR Incentive Programs Stage 3
                                               [Stage 3 Criteria]
----------------------------------------------------------------------------------------------------------------
                                                                    Number of      Hourly development effort by
                                                                    health IT           health IT developer
                                                                  developers who -------------------------------
       Item No.              CFR text          Certification         develop
                                               criterion name     product(s) for
                                                                  certification       Low Avg        High Avg
                                                                   to criterion
----------------------------------------------------------------------------------------------------------------
1....................  Sec.                 CPOE--medications..             83.3               0              50
                        170.315(a)(1).
2....................  Sec.                 CPOE--laboratory...             83.3           1,000           2,000
                        170.315(a)(2).
3....................  Sec.                 CPOE--diagnostic                83.3               0              50
                        170.315(a)(3).       imaging.
4....................  Sec.                 DD/DAI Checks for              242.2             400             800
                        170.315(a)(4).       CPOE.
5....................  Sec.                 Demographics.......            268.8             500           1,000
                        170.315(a)(5).
6....................  Sec.                 Problem List.......            256.9             100             200
                        170.315(a)(7).
7....................  Sec.                 Medication List....            254.8               0              50
                        170.315(a)(8).
8....................  Sec.                 Medication Allergy             252.7               0              50
                        170.315(a)(9).       List.
9....................  Sec.                 Clinical Decision              235.2             600           1,200
                        170.315(a)(10).      Support.
10...................  Sec.                 Drug-formulary and             233.1             310             620
                        170.315(a)(11).      Preferred Drug
                                             List Checks.
11...................  Sec.                 Smoking Status.....            266.7             100             200
                        170.315(a)(12).
12...................  Sec.                 Family Health                  216               100             200
                        170.315(a)(14).      History.
13...................  Sec.                 Family Health                   24               500           1,200
                        170.315(a)(15).      History--pedigree.
14...................  Sec.                 Patient-specific               249.2             600           1,200
                        170.315(a)(17).      Education
                                             Resources.
15...................  Sec.                 Patient Health                  88.9             500           1,000
                        170.315(a)(19).      Information
                                             Capture.
16...................  Sec.                 Implantable Device              90             1,100           1,700
                        170.315(a)(20).      List.
17...................  Sec.                 Transitions of Care            242.9           1,550           3,100
                        170.315(b)(1).
18...................  Sec.                 Clinical                       224               600           1,200
                        170.315(b)(2).       Information
                                             Reconciliation and
                                             Incorporation.
19...................  Sec.                 Electronic                     224.7           1,050           2,100
                        170.315(b)(3).       Prescribing.
20...................  Sec.                 Data Portability...            228.9             800           1,600
                        170.315(b)(6).
21...................  Sec.                 CQMs--record and               246.4             200             500
                        170.315(c)(1).       export.
22...................  Sec.                 Authentication,                333.9               0              50
                        170.315(d)(1).       Access Control,
                                             Authorization.
23...................  Sec.                 Auditable Events               272.3               0              50
                        170.315(d)(2).       and Tamper-
                                             resistance.
24...................  Sec.                 Audit Report(s)....            280                 0              50
                        170.315(d)(3).
25...................  Sec.                 Amendments.........            243.6               0              50
                        170.315(d)(4).
26...................  Sec.                 Automatic Access               333.9               0              50
                        170.315(d)(5).       Time-out.
27...................  Sec.                 Emergency Access...            308.7               0              50
                        170.315(d)(6).
28...................  Sec.                 End-User Device                267.4               0              50
                        170.315(d)(7).       Encryption.
29...................  Sec.                 Integrity..........            312.2               0              50
                        170.315(d)(8).
30...................  Sec.                 View, Download, and            256.2           1,000           2,000
                        170.315(e)(1).       Transmit to 3rd
                                             party.
31...................  Sec.                 Secure Messaging...            246.4               0              50
                        170.315(e)(2).
32...................  Sec.                 Transmission to                220.5             680           1,360
                        170.315(f)(1).       Immunization
                                             Registries.
33...................  Sec.                 Transmission to                213.5             480             960
                        170.315(f)(2).       Public Health
                                             Agencies--syndromi
                                             c surveillance.
34...................  Sec.                 Transmission to                 49               520           1,040
                        170.315(f)(3).       Public Health
                                             Agencies--reportab
                                             le laboratory
                                             tests and values/
                                             results.
35...................  Sec.                 Transmission to                 22.4             500           1,000
                        170.315(f)(4).       Cancer Registries.
36...................  Sec.                 Transmission to                 21               500           1,000
                        170.315(f)(5).       Public Health
                                             Agencies--case
                                             reporting.
37...................  Sec.                 Transmission to                 21               500           1,000
                        170.315(f)(6).       Public Health
                                             Agencies--antimicr
                                             obial use and
                                             resistance
                                             reporting.
38...................  Sec.                 Transmission to                 21               500           1,000
                        170.315(f)(7).       Public Health
                                             Agencies--health
                                             care surveys.
39...................  Sec.                 Automated Numerator            113.4             400             800
                        170.315(g)(1).       Recording.
40...................  Sec.                 Automated Measure              264.6             600           1,200
                        170.315(g)(2).       Calculation.
41...................  Sec.                 Safety-enhanced                266               300             600
                        170.315(g)(3).       Design.

[[Page 16898]]

 
42...................  Sec.                 Quality Management             401.8             400             800
                        170.315(g)(4).       System.
43...................  Sec.                 Consolidated CDA               242               400           1,000
                        170.315(g)(6).       Creation
                                             Performance.
44...................  Sec.                 Application Access             242               500           1,000
                        170.315(g)(7).       to Common Clinical
                                             Data Set.
45...................  Sec.                 Accessibility-                 401.8              50             100
                        170.315(g)(8).       Centered Design.
46...................  Sec.                 Direct Project.....            140                 0              50
                        170.315(h)(1).
47...................  Sec.                 Direct Project,                 70                 0              50
                        170.315(h)(2).       Edge Protocol, and
                                             XDR/XDM.
----------------------------------------------------------------------------------------------------------------


    Table 7--Estimated Health IT Developers and Development and Preparation Hours for Proposed Certification
                    Criteria--Criteria Not Associated With the EHR Incentive Programs Stage 3
                                           [``Independent Criteria'']
----------------------------------------------------------------------------------------------------------------
                                                                      Number of health     Hourly development
                                                                       IT developers      effort by health  IT
                                                   Certification        who develop             developer
          Item No.                CFR text        criterion name      product(s)  for  -------------------------
                                                                     certification  to
                                                                         criterion        Low Avg      High Avg
----------------------------------------------------------------------------------------------------------------
1...........................  Sec.             Vital Signs, BMI,                    16          614          922
                               170.315(a)(6).   and Growth Charts.
2...........................  Sec.             Image Results.......                 16            0           20
                               170.315(a)(13).
3...........................  Sec.             Patient List                         16            0           20
                               170.315(a)(16).  Creation.
4...........................  Sec.             Electronic                           16            0           20
                               170.315(a)(18).  Medication
                                                Administration
                                                Record.
5...........................  Sec.             Social,                              16          235          470
                               170.315(a)(21).  Psychological, and
                                                Behavioral Data.
6...........................  Sec.             Decision Support--                   16          394          788
                               170.315(a)(22).  knowledge artifact.
7...........................  Sec.             Decision Support--                   16          229          458
                               170.315(a)(23).  service.
8...........................  Sec.             Incorporate                          16          313          626
                               170.315(b)(4).   Laboratory Tests
                                                and Values/Results.
9...........................  Sec.             Transmission of                      16          360          720
                               170.315(b)(5).   Laboratory Test
                                                Reports.
10..........................  Sec.             Data Segmentation                    16          450          900
                               170.315(b)(7).   for Privacy--send.
11..........................  Sec.             Data Segmentation                    16          450          900
                               170.315(b)(8).   for Privacy--
                                                receive.
12..........................  Sec.             Care Plan...........                 16          300          500
                               170.315(b)(9).
13..........................  Sec.             CQMs--import and                     16            0          200
                               170.315(c)(2).   calculate.
14..........................  Sec.             CQMs--filter........                 16          316          632
                               170.315(c)(4).
15..........................  Sec.             Accounting of                        16            0           20
                               170.315(d)(9).   Disclosures.
16..........................  Sec.             Accessibility                        16          800        1,400
                               170.315(g)(5).   Technology
                                                Compatibility.
17..........................  Sec.             SOAP Transport and                   16            0           20
                               170.315(h)(3).   Security
                                                Specification and
                                                XDR/XDR for Direct
                                                Messaging.
18..........................  Sec.             Healthcare Provider                  16          120          240
                               170.315(h)(4).   Directory--query
                                                request.
19..........................  Sec.             Healthcare Provider                  16          120          240
                               170.315(h)(5).   Directory--query
                                                response.
20..........................  Sec.             Electronic                           16        1,000        2,000
                               170.315(i)(1).   Submission of
                                                Medical
                                                Documentation.
----------------------------------------------------------------------------------------------------------------

Estimated Cost Per Criterion for Health IT Developers

  Table 8--Total Development and Preparation Costs per Criterion for Health IT Developers--Criteria Associated
                                     With the EHR Incentive Programs Stage 3
                                             [``Stage 3 Criteria'']
----------------------------------------------------------------------------------------------------------------
                                                                                    Average cost estimates ($)
                                                         Certification criterion -------------------------------
             Item No.                    CFR text                 name              Average low    Average high
                                                                                        ($)             ($)
----------------------------------------------------------------------------------------------------------------
1................................  Sec.                 CPOE--medications.......               0         254,065
                                    170.315(a)(1).
2................................  Sec.                 CPOE--laboratory........        508,1300      1,0162,600
                                    170.315(a)(2).
3................................  Sec.                 CPOE--diagnostic imaging               0         254,065
                                    170.315(a)(3).
4................................  Sec.                 DD/DAI Checks for CPOE..       5,909,680      11,819,360
                                    170.315(a)(4).
5................................  Sec.                 Demographics............       8,198,400      16,396,800
                                    170.315(a)(5).

[[Page 16899]]

 
6................................  Sec.                 Problem List............       1,567,090       3,134,180
                                    170.315(a)(7).
7................................  Sec.                 Medication List.........               0         777,140
                                    170.315(a)(8).
8................................  Sec.                 Medication Allergy List.               0         770,735
                                    170.315(a)(9).
9................................  Sec.                 Clinical Decision              8,608,320      17,216,640
                                    170.315(a)(10).      Support.
10...............................  Sec.                 Drug-formulary and             4,407,921       8,815,842
                                    170.315(a)(11).      Preferred Drug List
                                                         Checks.
11...............................  Sec.                 Smoking Status..........       1,626,870       3,253,740
                                    170.315(a)(12).
12...............................  Sec.                 Family Health History...       1,317,600       2,635,200
                                    170.315(a)(14).
13...............................  Sec.                 Family Health History--          732,000       1,756,800
                                    170.315(a)(15).      pedigree.
14...............................  Sec.                 Patient-specific               9,120,720      18,241,440
                                    170.315(a)(17).      Education Resources.
15...............................  Sec.                 Patient Health                 2,711,450       5,422,900
                                    170.315(a)(19).      Information Capture.
16...............................  Sec.                 Implantable Device List.       6,039,000       9,333,000
                                    170.315(a)(20).
17...............................  Sec.                 Transitions of Care.....      22,966,195      45,932,390
                                    170.315(b)(1).
18...............................  Sec.                 Clinical Information           8,198,400      16,396,800
                                    170.315(b)(2).       Reconciliation and
                                                         Incorporation.
19...............................  Sec.                 Electronic Prescribing..      14,392,035      28,784,070
                                    170.315(b)(3).
20...............................  Sec.                 Data Portability........      1,117,0320      22,340,640
                                    170.315(b)(6).
21...............................  Sec.                 CQMs--record and export.       3,006,080       7,515,200
                                    170.315(c)(1).
22...............................  Sec.                 Authentication, Access                 0       1,018,395
                                    170.315(d)(1).       Control, Authorization.
23...............................  Sec.                 Auditable Events and                   0         830,515
                                    170.315(d)(2).       Tamper-resistance.
24...............................  Sec.                 Audit Report(s).........               0         854,000
                                    170.315(d)(3).
25...............................  Sec.                 Amendments..............               0         742,980
                                    170.315(d)(4).
26...............................  Sec.                 Automatic Access Time-                 0       1,018,395
                                    170.315(d)(5).       out.
27...............................  Sec.                 Emergency Access........               0         941,535
                                    170.315(d)(6).
28...............................  Sec.                 End-User Device                        0         815,570
                                    170.315(d)(7).       Encryption.
29...............................  Sec.                 Integrity...............               0         952,210
                                    170.315(d)(8).
30...............................  Sec.                 View, Download, and           15,628,200      31,256,400
                                    170.315(e)(1).       Transmit to 3rd party.
31...............................  Sec.                 Secure Messaging........               0         751,520
                                    170.315(e)(2).
32...............................  Sec.                 Transmission to                9,146,340      18,292,680
                                    170.315(f)(1).       Immunization Registries.
33...............................  Sec.                 Transmission to Public         6,251,280      12,502,560
                                    170.315(f)(2).       Health Agencies--
                                                         syndromic surveillance.
34...............................  Sec.                 Transmission to Public         1,554,280       3,108,560
                                    170.315(f)(3).       Health Agencies--
                                                         reportable laboratory
                                                         tests and values/
                                                         results.
35...............................  Sec.                 Transmission to Cancer           683,200       1,366,400
                                    170.315(f)(4).       Registries.
36...............................  Sec.                 Transmission to Public           640,500       1,281,000
                                    170.315(f)(5).       Health Agencies--case
                                                         reporting.
37...............................  Sec.                 Transmission to Public           640,500       1,281,000
                                    170.315(f)(6).       Health Agencies--
                                                         antimicrobial use and
                                                         resistance reporting.
38...............................  Sec.                 Transmission to Public           640,500       1,281,000
                                    170.315(f)(7).       Health Agencies--health
                                                         care surveys.
39...............................  Sec.                 Automated Numerator            2,766,960       5,533,920
                                    170.315(g)(1).       Recording.
40...............................  Sec.                 Automated Measure              9,684,360      19,368,720
                                    170.315(g)(2).       Calculation.
41...............................  Sec.                 Safety-enhanced Design..         4867800       9,735,600
                                    170.315(g)(3).
42...............................  Sec.                 Quality Management             9,803,920      19,607,840
                                    170.315(g)(4).       System.
43...............................  Sec.                 Consolidated CDA               5,904,800      14,762,000
                                    170.315(g)(6).       Creation Performance.
44...............................  Sec.                 Application Access to          7,381,000      14,762,000
                                    170.315(g)(7).       Common Clinical Data
                                                         Set.
45...............................  Sec.                 Accessibility-Centered         1,225,490       2,450,980
                                    170.315(g)(8).       Design.
46...............................  Sec.                 Direct Project..........               0         427,000
                                    170.315(h)(1).
47...............................  Sec.                 Direct Project, Edge                   0         213,500
                                    170.315(h)(2).       Protocol, and XDR/XDM.
----------------------------------------------------------------------------------------------------------------


Table 9--Total Development and Preparation Costs per Criterion for Health IT Developers--Criteria Not Associated
                                     With the EHR Incentive Programs Stage 3
                                             [``Stage 3 Criteria'']
----------------------------------------------------------------------------------------------------------------
                                                                                    Average cost estimates ($)
                                                         Certification criterion -------------------------------
             Item No.                    CFR text                 name              Average low    Average high
                                                                                        ($)             ($)
----------------------------------------------------------------------------------------------------------------
1................................  Sec.                 Vital Signs, BMI, and            599,264         899,872
                                    170.315(a)(6).       Growth Charts.
2................................  Sec.                 Image Results...........               0          19,520
                                    170.315(a)(13).
3................................  Sec.                 Patient List Creation...               0          19,520
                                    170.315(a)(16).
4................................  Sec.                 Electronic Medication                  0          19,520
                                    170.315(a)(18).      Administration Record.
5................................  Sec.                 Social, Psychological,           229,360         458,720
                                    170.315(a)(21).      and Behavioral Data.
6................................  Sec.                 Decision Support--               384,544         769,088
                                    170.315(a)(22).      knowledge artifact.
7................................  Sec.                 Decision Support--               223,504         447,008
                                    170.315(a)(23).      service.
8................................  Sec.                 Incorporate Laboratory           305,488         610,976
                                    170.315(b)(4).       Tests and Values/
                                                         Results.
9................................  Sec.                 Transmission of                  351,360         702,720
                                    170.315(b)(5).       Laboratory Test Reports.

[[Page 16900]]

 
10...............................  Sec.                 Data Segmentation for            439,200         878,400
                                    170.315(b)(7).       Privacy--send.
11...............................  Sec.                 Data Segmentation for            439,200         878,400
                                    170.315(b)(8).       Privacy--receive.
12...............................  Sec.                 Care Plan...............         292,800          488000
                                    170.315(b)(9).
13...............................  Sec.                 CQMs--import and                       0         195,200
                                    170.315(c)(2).       calculate.
14...............................  Sec.                 CQMs--filter............         308,416         616,832
                                    170.315(c)(4).
15...............................  Sec.                 Accounting of                          0          19,520
                                    170.315(d)(9).       Disclosures.
16...............................  Sec.                 Accessibility Technology         780,800       1,366,400
                                    170.315(g)(5).       Compatibility.
17...............................  Sec.                 SOAP Transport and                     0          19,520
                                    170.315(h)(3).       Security Specification
                                                         and XDR/XDR for Direct
                                                         Messaging.
18...............................  Sec.                 Healthcare Provider              117,120         234,240
                                    170.315(h)(4).       Directory--query
                                                         request.
19...............................  Sec.                 Healthcare Provider              117,120         234,240
                                    170.315(h)(5).       Directory--query
                                                         response.
20...............................  Sec.                 Electronic Submission of         976,000       1,952,000
                                    170.315(i)(1).       Medical Documentation.
----------------------------------------------------------------------------------------------------------------

ii. Overall Development and Preparation Costs Over a Four-Year Period
    We estimate the development and preparation costs over a four-year 
period because a four-year period aligns with our estimated publication 
date for a subsequent final rule (Summer 2015) and the year in which 
CMS proposes that participants in the EHR Incentive Programs must use 
health IT certified to the 2015 Edition (2018) (see the EHR Incentive 
Programs Stage 3 proposed rule published elsewhere in this issue of the 
Federal Register).
    In total, we estimate the overall costs to develop and prepare 
health IT for certification over a four-year period to be $197.43 
million to $407.20 million, with a cost mid-point of approximately 
$302.32 million. Evenly distributed over calendar years 2015 through 
2018, the cost range would be $49.36 million to $101.80 per year with 
an annual cost mid-point of approximately $75.58. However, we project 
these costs to be unevenly distributed. We estimate the distribution as 
follows: 2015 (25%); 2016 (30%); 2017 (30%); and 2018 (15%). We reached 
this distribution based on these assumptions and information:
     We expect a subsequent 2015 Edition final rule to be 
published in the summer of 2015 and for health IT developers to spend 
the rest of the year preparing and developing their health IT to meet 
the 2015 Edition.
     We expect health IT developers to aggressively work in 
2016 and 2017 to prepare and develop their health IT to meet the 2015 
Edition as the compliance date for the EHR Incentive Programs CEHRT 
definition draws near (i.e., 2018) and because health IT certified to 
the 2015 Edition could be used in 2017 under the EHR Incentive Programs 
Stage 3 proposal for the CEHRT definition.
     We expect health IT developers to continue to prepare and 
develop health IT to the 2015 Edition in 2018 based on their approach 
to the 2014 Edition.
    Table 10 below represents the costs attributable to this proposed 
rule distributed as discussed above. The dollar amounts expressed in 
Table 10 are expressed in 2013 dollars.

 Table 10--Distributed Total Development and Preparation Costs for Health IT Developers (4-Year Period)--Totals
                                                     Rounded
----------------------------------------------------------------------------------------------------------------
                                                                                   Total high     Total average
                       Year                         Ratio (%)  Total low  cost   cost estimate    cost estimate
                                                                estimate ($M)         ($M)             ($M)
----------------------------------------------------------------------------------------------------------------
2015..............................................         25            49.36           101.80            75.58
2016..............................................         30            59.23           122.16            90.70
2017..............................................         30            59.23           122.16            90.70
2018..............................................         15            29.61            61.08            45.35
                                                              --------------------------------------------------
    4-Year Totals.................................  .........           197.43           407.20           302.32
----------------------------------------------------------------------------------------------------------------

iii. Testing and Certification Costs for the 2015 Edition
    In the RIA of the Permanent Certification Program final rule, we 
estimated the costs for testing and certification of technologies that 
would be used for providers to attempt to achieve EHR Incentive 
Programs Stages 1-3.\267\ These costs were based on the requirements of 
the certification program and a two-year rulemaking cycle for the CEHRT 
definition and each EHR Incentive Programs stage. We believe the costs 
we attributed to testing and certification of technologies in support 
of EHR Incentive Programs Stage 2 in the Permanent Certification 
Program final rule would encompass the actual testing and certification 
of technologies to both the 2014 and 2015 Editions. This assessment is 
based on the number of technologies currently certified to the 2014 
Edition and our projections in this proposed rule for the number of 
technologies that would likely be tested and certified to the 2015 
Edition. Further, we note that the estimated costs in the Permanent 
Certification Program final rule included costs for surveillance of 
technologies and also estimated the costs for testing and certification 
above what we understand are the cost ranges

[[Page 16901]]

charged by ONC-ACBs today. We welcome comments on our determination and 
our cost estimates.
---------------------------------------------------------------------------

    \267\ 76 FR 1318
---------------------------------------------------------------------------

b. Benefits
    We believe that there will be several significant benefits that may 
arise from this proposed rule for patients, health care providers, and 
health IT developers. The 2015 Edition continues to improve health IT 
interoperability through the adoption of new and updated standards and 
implementation specifications. For example, many proposed certification 
criteria include standards and implementation specifications for 
interoperability that directly support the EHR Incentive Programs, 
which include objectives and measures for the interoperable exchange of 
health information and for providing patients electronic access to 
their health information in structured formats. In addition, proposed 
certification criteria that support the collection of patient data that 
could be used to address health disparities would not only benefit 
patients, but the entire health care delivery system through improved 
quality of care. The 2015 Edition also supports usability and patient 
safety through new and enhanced certification requirements for health 
IT.
    Our proposals to make the ONC Health IT Certification Program open 
and accessible to more types of health IT and for health IT that 
supports a variety of care and practice settings should benefit health 
IT developers, providers practicing in other care/practice settings, 
and consumers through the availability and use of certified health IT 
that includes capabilities that promote interoperability and enhanced 
functionality.\268\
---------------------------------------------------------------------------

    \268\ We note that, in general, these benefits will be realized 
only if health care providers actually adopt new technology. As 
discussed elsewhere in this RIA, we believe that such adoption--and 
thus the benefits noted in this section--would be overwhelmingly 
attributable to CMS's proposed rulemaking.
---------------------------------------------------------------------------

    We welcome comment on other benefits, including monetary savings, 
which could be achieved through the proposals we have put forth in this 
proposed rule.
2. Regulatory Flexibility Act (RFA)
    The RFA requires agencies to analyze options for regulatory relief 
of small businesses if a rule has a significant impact on a substantial 
number of small entities.
    The Small Business Administration (SBA) establishes the size of 
small businesses for federal government programs based on average 
annual receipts or the average employment of a firm. While health IT 
developers that pursue certification under the ONC Health IT 
Certification Program represent a small segment of the overall 
information technology industry, we believe that the entities impacted 
by this proposed rule most likely fall under the North American 
Industry Classification System (NAICS) code 541511 ``Custom Computer 
Programming Services'' specified at 13 CFR 121.201 where the SBA 
publishes ``Small Business Size Standards by NAICS Industry.'' The SBA 
size standard associated with this NAICS code is set at $27.5 million 
in annual receipts \269\ which ``indicates the maximum allowed for a 
concern and its affiliates to be considered small entities.''
---------------------------------------------------------------------------

    \269\ The SBA references that annual receipts means ``total 
income'' (or in the case of a sole proprietorship, ``gross income'') 
plus ``cost of goods sold'' as these terms are defined and reported 
on Internal Revenue Service tax return forms. http://www.sba.gov/sites/default/files/files/Size_Standards_Table.pdf
---------------------------------------------------------------------------

    Based on our analysis, we believe that there is enough data 
generally available to establish that between 75% and 90% of entities 
that are categorized under the NAICS code 541511 are under the SBA size 
standard, but note that the available data does not show how many of 
these entities will develop a health IT product that will be certified 
to the 2015 Edition under the ONC Health IT Certification Program. We 
also note that with the exception of aggregate business information 
available through the U.S. Census Bureau and the SBA related to NAICS 
code 541511, it appears that many health IT developers that pursue 
certification under the ONC Health IT Certification Program are 
privately held or owned and do not regularly, if at all, make their 
specific annual receipts publicly available. As a result, it is 
difficult to locate empirical data related to many of these health IT 
developers to correlate to the SBA size standard. However, although not 
correlated to the size standard for NAICS code 541511, we do have 
information indicating that over 60% of health IT developers that have 
had Complete EHRs and/or EHR Modules certified to the 2011 Edition have 
less than 51 employees.
    We estimate that this proposed rule would have effects on health IT 
developers that are likely to pursue certification under the ONC Health 
IT Certification Program, some of which may be small entities. However, 
we believe that we have proposed the minimum amount of requirements 
necessary to accomplish our policy goals, including a reduction in 
regulatory burden and additional flexibility for the regulated 
community, and that no additional appropriate regulatory alternatives 
could be developed to lessen the compliance burden associated with this 
proposed rule. We note that this proposed rule does not impose the 
costs cited in the RIA as compliance costs, but rather as investments 
which these health IT developers voluntarily take on and expect to 
recover with an appropriate rate of return. Accordingly, we do not 
believe that the proposed rule will create a significant impact on a 
substantial number of small entities, but request comment on whether 
there are small entities that we have not identified that may be 
affected in a significant way by this proposed rule. Additionally, the 
Secretary certifies that this proposed rule will not have a significant 
impact on a substantial number of small entities.
3. Executive Order 13132--Federalism
    Executive Order 13132 establishes certain requirements that an 
agency must meet when it promulgates a proposed rule (and subsequent 
final rule) that imposes substantial direct requirement costs on state 
and local governments, preempts state law, or otherwise has federalism 
implications. Nothing in this proposed rule imposes substantial direct 
compliance costs on state and local governments, preempts state law or 
otherwise has federalism implications. We are not aware of any State 
laws or regulations that are contradicted or impeded by any of the 
standards, implementation specifications, or certification criteria 
that we propose for adoption.
4. Unfunded Mandates Reform Act of 1995
    Section 202 of the Unfunded Mandates Reform Act of 1995 requires 
that agencies assess anticipated costs and benefits before issuing any 
rule whose mandates require spending in any one year of $100 million in 
1995 dollars, updated annually for inflation. The current inflation-
adjusted statutory threshold is approximately $141 million. This 
proposed rule will not impose an unfunded mandate on State, local, and 
tribal governments or on the private sector that will reach the 
threshold level.
    OMB reviewed this proposed rule.

List of Subjects in 45 CFR Part 170

    Computer technology, Electronic health record, Electronic 
information system, Electronic transactions, Health, Health care, 
Health information technology, Health insurance, Health records, 
Hospitals, Incorporation by

[[Page 16902]]

reference, Laboratories, Medicaid, Medicare, Privacy, Reporting and 
recordkeeping requirements, Public health, Security.

    For the reasons set forth in the preamble, 45 CFR subtitle A, 
subchapter D, part 170, is proposed to be amended as follows:

PART 170--HEALTH INFORMATION TECHNOLOGY STANDARDS, IMPLEMENTATION 
SPECIFICATIONS, AND CERTIFICATION CRITERIA AND CERTIFICATION 
PROGRAMS FOR HEALTH INFORMATION TECHNOLOGY

0
1. The authority citation for part 170 continues to read as follows:

    Authority:  42 U.S.C. 300jj-11; 42 U.S.C. 300jj-14; 5 U.S.C. 
552.

0
2. Amend Sec.  170.102 by:
0
a. Removing the ``Base EHR'', ``Certified EHR Technology'', ``Common MU 
Data Set'', and ``EHR Module'' definitions; and
0
b. Adding in alphanumeric order the definitions for ``2014 Edition Base 
EHR'', ``2015 Edition Base EHR'', ``2015 Edition health IT 
certification criteria'', ``Common Clinical Data Set'', ``Device 
identifier'', ``Global Unique Device Identification Database (GUDID)'', 
``Health IT Module'', ``Implantable device'', ``Production 
identifier'', and ``Unique device identifier''.
    The revisions read as follows:


Sec.  170.102  Definitions.

    2014 Edition Base EHR means an electronic record of health-related 
information on an individual that:
    (1) Includes patient demographic and clinical health information, 
such as medical history and problem lists;
    (2) Has the capacity:
    (i) To provide clinical decision support;
    (ii) To support physician order entry;
    (iii) To capture and query information relevant to health care 
quality;
    (iv) To exchange electronic health information with, and integrate 
such information from other sources;
    (v) To protect the confidentiality, integrity, and availability of 
health information stored and exchanged; and
    (3) Has been certified to the certification criteria adopted by the 
Secretary:
    (i) For at least one of the four criteria adopted at Sec.  
170.314(a)(1), (18), (19), or (20);
    (ii) At Sec.  170.314(a)(3);
    (iii) At Sec.  170.314(a)(5) through (8);
    (iv) Both Sec.  170.314(b)(1) and (2); or, both Sec.  170.314(b)(8) 
and (h)(1); or Sec.  170.314(b)(1) and (2) combined with either Sec.  
170.314(b)(8) or (h)(1), or both Sec.  170.314(b)(8) and (h)(1);
    (v) At Sec.  170.314(b)(7);
    (vi) At Sec.  170.314(c)(1) through (3);
    (vii) At Sec.  170.314(d)(1) through (8);
    (4) Has been certified to the certification criteria at Sec.  
170.314(c)(1) and (2):
    (i) For no fewer than 9 clinical quality measures covering at least 
3 domains from the set selected by CMS for eligible professionals, 
including at least 6 clinical quality measures from the recommended 
core set identified by CMS; or
    (ii) For no fewer than 16 clinical quality measures covering at 
least 3 domains from the set selected by CMS for eligible hospitals and 
critical access hospitals.
* * * * *
    2015 Edition Base EHR means an electronic record of health-related 
information on an individual that:
    (1) Includes patient demographic and clinical health information, 
such as medical history and problem lists;
    (2) Has the capacity:
    (i) To provide clinical decision support;
    (ii) To support physician order entry;
    (iii) To capture and query information relevant to health care 
quality;
    (iv) To exchange electronic health information with, and integrate 
such information from other sources; and
    (3) Has been certified to the certification criteria adopted by the 
Secretary at Sec.  170.315(a)(1), (2), or (3); (a)(5); (a)(7) through 
(10); (a)(12); (a)(20); (b)(1) and (6); (c)(1); (g)(7) and (h)(1) or 
(2);
    (4) [Reserved]
    2015 Edition health IT certification criteria means the 
certification criteria at Sec.  170.315.
* * * * *
    Common Clinical Data Set means the following data expressed, where 
indicated, according to the specified standard(s):
    (1) Patient name. For certification to both the 2014 Edition EHR 
certification criteria and the 2015 Edition health IT certification 
criteria.
    (2) Sex. (i) No required standard for certification to the 2014 
Edition EHR certification criteria.
    (ii) The standard specified in Sec.  170.207(n)(1) for 
certification to the 2015 Edition health IT certification criteria.
    (3) Date of birth. For certification to both the 2014 Edition EHR 
certification criteria and the 2015 Edition health IT certification 
criteria.
    (4) Race. (i) The standard specified in Sec.  170.207(f)(1) for 
certification to the 2014 Edition EHR certification criteria.
    (ii) For certification to the 2015 Edition health IT certification 
criteria:
    (A) The standard specified in Sec.  170.207(f)(2);
    (B) The standard specified in Sec.  170.207(f)(1) for each race 
identified in accordance Sec.  170.207(f)(2).
    (5) Ethnicity. (i) The standard specified in Sec.  170.207(f)(1) 
for certification to the 2014 Edition EHR certification criteria.
    (ii) For certification to the 2015 Edition health IT certification 
criteria:
    (A) The standard specified in Sec.  170.207(f)(2);
    (B) The standard specified in Sec.  170.207(f)(1) for each 
ethnicity identified in accordance Sec.  170.207(f)(2).
    (6) Preferred language. (i) The standard specified in Sec.  
170.207(g)(1) for certification to the 2014 Edition EHR certification 
criteria.
    (ii) The standard specified in Sec.  170.207(g)(2) for 
certification to the 2015 Edition Health IT certification criteria.
    (7) Smoking status. For certification to both the 2014 Edition EHR 
certification criteria and the 2015 Edition health IT certification 
criteria: The standard specified in Sec.  170.207(h).
    (8) Problems. (i) At a minimum, the standard specified in Sec.  
170.207(a)(3) for certification to the 2014 Edition EHR certification 
criteria.
    (ii) At a minimum, the standard specified in Sec.  170.207(a)(4) 
for certification to the 2015 Edition Health IT certification criteria.
    (9) Medications. (i) At a minimum, the standard specified in Sec.  
170.207(d)(2) for certification to the 2014 Edition EHR certification 
criteria.
    (ii) At a minimum, the standard specified in Sec.  170.207(d)(3) 
for certification to the 2015 Edition Health IT certification criteria.
    (10) Medication allergies. (i) At a minimum, the standard specified 
in Sec.  170.207(d)(2) for certification to the 2014 Edition EHR 
certification criteria.
    (ii) At a minimum, the standard specified in Sec.  170.207(d)(3) 
for certification to the 2015 Edition Health IT certification criteria.
    (11) Laboratory test(s). (i) At a minimum, the standard specified 
in Sec.  170.207(c)(2) for certification to the 2014 Edition EHR 
certification criteria.
    (ii) At a minimum, the standard specified in Sec.  170.207(c)(3) 
for certification to the 2015 Edition Health IT certification criteria.
    (12) Laboratory value(s)/result(s). For certification to both the 
2014 Edition EHR certification criteria and the 2015 Edition health IT 
certification criteria.
    (13) Vital signs. (i) Height/length, weight, blood pressure, and 
BMI for

[[Page 16903]]

certification to the 2014 Edition EHR certification criteria.
    (ii) For certification to the 2015 Edition Health IT certification 
criteria:
    (A) The patient's body height, body weight measured, diastolic 
blood pressure, systolic blood pressure, heart rate, respiratory rate, 
body temperature, oxygen saturation in arterial blood by pulse 
oximetry, body mass index (ratio), and mean blood pressure must be 
recorded in numerical values only;
    (B) In accordance with the standard specified in Sec.  
170.207(k)(1) and with the associated applicable unit of measure for 
the vital sign in the standard specified in Sec.  170.207(m)(1); and 
including
    (1) Date and time of vital sign measurement or end time of vital 
sign measurement;
    (2) The measuring- or authoring-type source of the vital sign 
measurement; and
    (3) Optional. Date and time of vital sign measurement or end time 
of vital sign measurement in accordance with the standard in Sec.  
170.210(g).
    (14) Care plan field(s), including goals and instructions. For 
certification to the 2014 Edition EHR certification criteria.
    (15) Procedures--
    (i)(A) At a minimum, the version of the standard specified in Sec.  
170.207(a)(3) for certification to the 2014 Edition EHR certification 
criteria and Sec.  170.207(a)(4) for certification to the 2015 Edition 
health IT certification criteria, or Sec.  170.207(b)(2); or
    (B) For technology primarily developed to record dental procedures, 
the standard specified in Sec.  170.207(b)(3) for certification to both 
the 2014 Edition EHR certification criteria and the 2015 Edition health 
IT certification criteria.
    (ii) Optional. The standard specified at Sec.  170.207(b)(4) for 
certification to both the 2014 Edition EHR certification criteria and 
the 2015 Edition health IT certification criteria.
    (16) Care team member(s). For certification to both the 2014 
Edition EHR certification criteria and the 2015 Edition health IT 
certification criteria.
    (17) Immunizations. In accordance with, at a minimum, the standards 
specified in Sec.  170.207(e)(3) and (4) for certification to the 2015 
Edition health IT certification criteria.
    (18) Unique device identifier(s) for a patient's implantable 
device(s). For certification to the 2015 Edition health IT 
certification criteria.
    (19) Assessment and plan of treatment. For certification to the 
2015 Edition health IT certification criteria:
    (i) In accordance with the ``Assessment and Plan Section (V2)'' of 
the standard specified in Sec.  170.205(a)(4); or
    (ii) In accordance with the ``Assessment Section (V2)'' and ``Plan 
of Treatment Section (V2)'' of the standard specified in Sec.  
170.205(a)(4).
    (20) Goals. In accordance with the ``Goals Section'' of the 
standard specified in Sec.  170.205(a)(4) for certification to the 2015 
Edition health IT certification criteria.
    (21) Health concerns. In accordance with the ``Health Concerns 
Section'' of the standard specified in Sec.  170.205(a)(4) for 
certification to the 2015 Edition health IT certification criteria.
* * * * *
    Device identifier is defined as it is in 21 CFR 801.3.
* * * * *
    Global Unique Device Identification Database (GUDID) is defined as 
it is in 21 CFR 801.3.
    Health IT Module means any service, component, or combination 
thereof that can meet the requirements of at least one certification 
criterion adopted by the Secretary.
* * * * *
    Implantable device is defined as it is in 21 CFR 801.3.
* * * * *
    Production identifier is defined as it is in 21 CFR 801.3.
* * * * *
    Unique device identifier is defined as it is in 21 CFR 801.3.


Sec.  170.200  [Amended]

0
3. In Sec.  170.200, remove the term ``EHR Modules'' and add in its 
place ``Health IT Modules.''
0
4. In Sec.  170.202, revise the section heading and add paragraphs (e) 
and (f) to read as follows:


Sec.  170.202  Transport standards and other protocols.

* * * * *
    (e) Delivery notification--(1) Standard. ONC Implementation Guide 
for Delivery Notification in Direct.
    (2) [Reserved]
    (f) Provider directories--(1) Standard. Healthcare Provider 
Directory, Trial Implementation, October 13, 2014.
    (2) [Reserved]
0
5. Amend Sec.  170.204 by--
0
a. Revising paragraphs (a) and (b)(2); and
0
b. Adding paragraphs (b)(3) and (4), (d), and (e).
    The additions and revisions read as follows:


Sec.  170.204  Functional standards.

* * * * *
    (a) Accessibility--(1) Standard. Web Content Accessibility 
Guidelines (WCAG) 2.0, Level A Conformance (incorporated by reference 
in Sec.  170.299).
    (2) [Reserved]
    (b) * * *
    (2) Implementation specifications. HL7 Implementation Guide: 
Service-Oriented Architecture Implementations of the Context-aware 
Knowledge Retrieval (Infobutton) Domain, Draft Standard for Trial Use, 
Release 1.
    (3) Standard. HL7 Version 3 Standard: Context Aware Knowledge 
Retrieval Application. (``Infobutton''), Knowledge Request, Release 2. 
Implementation specifications. HL7 Implementation Guide: Service-
Oriented Architecture Implementations of the Context-aware Knowledge 
Retrieval (Infobutton) Domain, Release 1.
    (4) Standard. HL7 Version 3 Standard: Context Aware Knowledge 
Retrieval Application (``Infobutton''), Knowledge Request, Release 2. 
Implementation specifications. HL7 Version 3 Implementation Guide: 
Context-Aware Knowledge Retrieval (Infobutton), Release 4.
* * * * *
    (d) Clinical decision support knowledge artifacts--(1) Standard. 
HL7 Version 3 Standard: Clinical Decision Support Knowledge Artifact 
Specification, Release 1.2, Draft Standard for Trial Use.
    (2) [Reserved]
    (e) Clinical decision support service. (1) HL7 Implementation 
Guide: Decision Support Service, Release 1.1, US Realm, Draft Standard 
for Trial Use.
    (2) [Reserved]
0
6. Amend Sec.  170.205 by--
0
a. Adding paragraphs (a)(4) and (5), (d)(4), and (e)(4);
0
b. Revising paragraphs (g), (i), and (j); and
0
c. Adding paragraphs (l), (m), (n), (o), (p), (q), (r), and (s).
    The additions and revisions read as follows:


Sec.  170.205  Content exchange standards and implementation 
specifications for exchanging electronic health information.

* * * * *
    (a) * * *
    (4) Standard. HL7 Implementation Guide for CDA[supreg] Release 2: 
Consolidated CDA Templates for Clinical Notes, Draft Standard for Trial 
Use, Release 2.0.
    (5) Implementation specifications. (i) HL7 Implementation Guide for 
CDA[supreg] Release 2: Additional CDA R2 Templates--Clinical Documents 
for Payers--Set 1, Release 1--US Realm.
    (ii) HL7 Implementation Guide for CDA Release 2: Digital Signatures 
and Delegation of Rights, Release 1.
    (iii) Author of Record Level 1: Implementation Guide.
    (iv) Provider Profiles Authentication: Registration Implementation 
Guide.
* * * * *

[[Page 16904]]

    (d) * * *
    (4) Standard. HL7 2.5.1 (incorporated by reference in Sec.  
170.299). Implementation specifications. PHIN Messaging Guide for 
Syndromic Surveillance: Emergency Department, Urgent, Ambulatory Care, 
and Inpatient Settings, Release 2.0.
    (e) * * *
    (4) Standard. HL7 2.5.1 (incorporated by reference in Sec.  
170.299). Implementation specifications. HL7 2.5.1 Implementation Guide 
for Immunization Messaging, Release 1.5.
* * * * *
    (g) Electronic transmission of lab results to public health 
agencies--(1) Standard. HL7 2.5.1 (incorporated by reference in Sec.  
170.299). Implementation specifications. HL7 Version 2.5.1 
Implementation Guide: Electronic Laboratory Reporting to Public Health, 
Release 1 (incorporated by reference in Sec.  170.299) with Errata and 
Clarifications, (incorporated by reference in Sec.  170.299) and ELR 
2.5.1 Clarification Document for EHR Technology Certification 
(incorporated by reference in Sec.  170.299).
    (2) Standard. HL7 2.5.1 (incorporated by reference in Sec.  
170.299). Implementation specifications. HL7 Version 2.5.1 
Implementation Guide: Electronic Laboratory Reporting to Public Health, 
Release 2 (US Realm), Draft Standard for Trial Use, Release 1.1.
* * * * *
    (i) Cancer information--(1) Standard. HL7 Clinical Document 
Architecture (CDA), Release 2.0, Normative Edition (incorporated by 
reference in Sec.  170.299). Implementation specifications. 
Implementation Guide for Ambulatory Healthcare Provider Reporting to 
Central Cancer Registries, HL7 Clinical Document Architecture (CDA), 
Release 1.0 (incorporated by reference in Sec.  170.299).
    (2) Standard. HL7 Clinical Document Architecture (CDA), Release 
2.0, Normative Edition (incorporated by reference in Sec.  170.299). 
Implementation specifications. HL7 Implementation Guide for CDA 
(copyright) Release 2: Reporting to Public Health Cancer Registries 
from Ambulatory Healthcare Providers, Release 1.
    (j) Electronic incorporation and transmission of lab results--(1) 
Standard. HL7 Version 2.5.1 Implementation Guide: S&I Framework Lab 
Results Interface (incorporated by reference in Sec.  170.299).
    (2) Standard. HL7 Version 2.5.1 Implementation Guide: S&I Framework 
Lab Results Interface, Draft Standard for Trial Use, Release 2--US 
Realm (S&I Framework LRI).
* * * * *
    (l) Laboratory orders--(1) Standard. HL7 Version 2.5.1 
Implementation Guide: S&I Framework Laboratory Orders from EHR, Draft 
Standard for Trial Use, Release 2--US Realm.
    (2) Standard. HL7 Version 2.5.1 Implementation Guide: S&I Framework 
Laboratory Test Compendium Framework, Release 2, Version 1.2.
    (m) Family health history. (1) HL7 Version 3 Standard: Clinical 
Genomics; Pedigree (incorporated by reference in Sec.  170.299). 
Implementation specifications. HL7 Version 3 Implementation Guide: 
Family History/Pedigree Interoperability.
    (2) [Reserved]
    (n) Drug formulary checking--(1) Standard. The standard specified 
at 42 CFR 423.160(b)(5)(iii).
    (2) [Reserved]
    (o) Data segmentation for privacy--(1) Standard. HL7 Implementation 
Guide: Data Segmentation for Privacy (DS4P), Release 1.
    (2) [Reserved]
    (p) XDM package processing--(1) Standard. IHE IT Infrastructure 
Technical Framework Volume 2b (ITI TF-2b).
    (2) [Reserved]
    (q) Public health--case reporting information--(1) Standard. IHE 
Quality, Research, and Public Health Technical Framework Supplement, 
Structured Data Capture, Trial Implementation.
    (2) [Reserved]
    (r) Public health--antimicrobial use and resistance information--
(1) Standard. The following sections of HL7 Implementation Guide for 
CDA[supreg] Release 2--Level 3: Healthcare Associated Infection 
Reports, Release 1, U.S. Realm. Technology is only required to conform 
to the following sections of the implementation guide:
    (i) HAI Antimicrobial Use and Resistance (AUR) Antimicrobial 
Resistance Option (ARO) Report (Numerator) specific document template 
in Section 2.1.2.1 (pages 69-72);
    (ii) Antimicrobial Resistance Option (ARO) Summary Report 
(Denominator) specific document template in Section 2.1.1.1 (pages 54-
56); and
    (iii) Antimicrobial Use (AUP) Summary Report (Numerator and 
Denominator) specific document template in Section 2.1.1.2 (pages 56-
58).
    (2) [Reserved]
    (s) Public health--health care survey information--(1) Standard. 
HL7 Implementation Guide for CDA Release 2: National Health Care 
Surveys (NHCS), Release 1--US Realm, Draft Standard for Trial Use.
    (2) [Reserved]
0
7. Amend Sec.  170.207 by--
0
a. Adding paragraphs (a)(4), (c)(3), (d)(3), (e)(3) and (4);
0
b. Revising paragraphs (f) and (g); and
0
c. Adding paragraph (k), reserved paragraph (l), and paragraphs (m), 
(n), and (o).
    The additions and revisions read as follows:


Sec.  170.207  Vocabulary standards for representing electronic health 
information.

* * * * *
    (a) * * *
    (4) Standard. IHTSDO SNOMED CT[supreg], U.S. Edition, September 
2014 Release.
* * * * *
    (c) * * *
    (3) Standard. Logical Observation Identifiers Names and Codes 
(LOINC[supreg]) Database version 2.50, a universal code system for 
identifying laboratory and clinical observations produced by the 
Regenstrief Institute, Inc.
    (d) * * *
    (3) Standard. RxNorm, a standardized nomenclature for clinical 
drugs produced by the United States National Library of Medicine, 
February 2, 2014 Release.
    (e) * * *
    (3) Standard. HL7 Standard Code Set CVX--Vaccines Administered, 
updates through February 2, 2015.
    (4) Standard. National Drug Code Directory--Vaccine Codes, updates 
through January 15, 2015.
    (f) Race and Ethnicity--(1) Standard. The Office of Management and 
Budget Standards for Maintaining, Collecting, and Presenting Federal 
Data on Race and Ethnicity, Statistical Policy Directive No. 15, as 
revised, October 30, 1997.
    (2) Standard. ``Race & Ethnicity--CDC'' code system in the PHIN 
Vocabulary Access and Distribution System (VADS), Release 3.3.9.
    (g) Preferred language--(1) Standard. As specified by the Library 
of Congress, ISO 639-2 alpha-3 codes limited to those that also have a 
corresponding alpha-2 code in ISO 639-1 (incorporated by reference in 
Sec.  170.299).
    (2) Standard. Request for Comments (RFC) 5646.
* * * * *
    (k) Vital signs--(1) Standard. Vital signs must be identified, at a 
minimum, with the version of LOINC[supreg] codes adopted at paragraph 
(c)(3) of this section attributed as follows:
    (i) Systolic blood pressure. 8480-6
    (ii) Diastolic blood pressure. 8462-4
    (iii) Body height. 8302-2
    (iv) Body weight measured. 3141-9

[[Page 16905]]

    (v) Heart rate. 8867-4
    (vi) Respiratory rate. 9279-1
    (vii) Body temperature. 8310-5
    (viii) Oxygen saturation in arterial blood by pulse oximetry. 
59408-5
    (ix) Body mass index (BMI) [ratio]. 39156-5
    (x) Mean blood pressure. 8478-0
    (2) [Reserved]
    (l) [Reserved]
    (m) Numerical references--(1) Standard. The Unified Code of Units 
of Measure, Revision 1.9.
    (2) [Reserved]
    (n) Sex--(1) Standard. Birth sex must be coded in accordance with 
HL7 Version 3 attributed as follows:
    (i) Male. M
    (ii) Female. F
    (iii) Unknown. UNK
    (2) [Reserved]
    (o) Social, psychological, and behavioral data--(1) Standard. 
Sexual orientation must be coded in accordance with, at a minimum, the 
version of SNOMED CT[supreg] codes adopted at paragraph (a)(4) of this 
section for paragraphs (o)(1)(i) through (iii) of this section and HL7 
Version 3 for paragraphs (o)(1)(iv) through (vi) of this section, 
attributed as follows:
    (i) Homosexual. 38628009
    (ii) Heterosexual. 20430005
    (iii) Bisexual. 42035005
    (iv) Other. nullFlavor OTH
    (v) Asked but unknown. nullFlavor ASKU
    (vi) Unknown. nullFlavor UNK
    (2) Standard. Gender identity must be coded in accordance with, at 
a minimum, the version of SNOMED CT[supreg] codes adopted at paragraph 
(a)(4) of this section for paragraphs (o)(2)(i) through (v) of this 
section and HL7 Version 3 for paragraphs (o)(2)(vi) and (vii) of this 
section, attributed as follows:
    (i) Identifies as male gender. 446151000124109
    (ii) Identifies as female gender. 446141000124107
    (iii) Female-to-male transsexual. 407377005
    (iv) Male[hyphen]to[hyphen]female transsexual. 407376001
    (v) Identifies as non-conforming gender. 446131000124102
    (vi) Other. nullFlavor OTH
    (vii) Asked but unknown. nullFlavor ASKU
    (3) Financial resource strain. Financial resource strain must be 
coded in accordance with, at a minimum, the version of LOINC[supreg] 
codes adopted at paragraph (c)(3) of this section and attributed with 
the LOINC[supreg] code and LOINC[supreg] answer list ID.
    (4) Education. Education must be coded in accordance with, at a 
minimum, the version of LOINC[supreg] codes adopted at paragraph (c)(3) 
of this section and attributed with LOINC[supreg] code 63504-5 and 
LOINC[supreg] answer list ID LL1069-5.
    (5) Stress. Stress must be coded in accordance with, at a minimum, 
the version of LOINC[supreg] codes adopted at paragraph (c)(3) of this 
section and attributed with the LOINC[supreg] code and LOINC[supreg] 
answer list ID.
    (6) Depression. Depression must be coded in accordance with, at a 
minimum, the version of LOINC[supreg] codes adopted at paragraph (c)(3) 
of this section and attributed with LOINC[supreg] codes 55757-9, 44250-
9 (with LOINC[supreg] answer list ID LL358-3), 44255-8 (with 
LOINC[supreg] answer list ID LL358-3), and 55758-7 (with the answer 
coded with the associated applicable unit of measure in the standard 
specified in Sec.  170.207(m)(1)).
    (7) Physical activity. Physical activity must be coded in 
accordance with, at a minimum, the version of LOINC[supreg] codes 
adopted at paragraph (c)(3) of this section and attributed with 
LOINC[supreg] codes 68515-6 and 68516-4. The answers must be coded with 
the associated applicable unit of measure in the standard specified in 
Sec.  170.207(m)(1).
    (8) Alcohol use. Alcohol use must be coded in accordance with, at a 
minimum, the version of LOINC[supreg] codes adopted at paragraph (c)(3) 
of this section and attributed with LOINC[supreg] codes 72109-2, 68518-
0 (with LOINC[supreg] answer list ID LL2179-1), 68519-8 (with 
LOINC[supreg] answer list ID LL2180-9), 68520-6 (LOINC[supreg] answer 
list ID LL2181-7), and 75626-2.
    (9) Social connection and isolation. Social connection and 
isolation must be coded in accordance with, at a minimum, the version 
of LOINC[supreg] codes adopted at paragraph (c)(3) of this section and 
attributed with the LOINC[supreg] code and LOINC[supreg] answer list 
ID.
    (10) Exposure to violence (intimate partner violence). Exposure to 
violence: intimate partner violence must be coded in accordance with, 
at a minimum, the version of LOINC[supreg] codes adopted at paragraph 
(c)(3) of this section and attributed with the LOINC[supreg] code and 
LOINC[supreg] answer list ID.
0
8. In Sec.  170.210:
0
a. Amend paragraphs (e)(1)(i) and (e)(3) by removing the term ``EHR 
technology'' and adding in its place ``health IT''; and
0
b. Add paragraph (a)(3).
    The addition reads as follows:


Sec.  170.210  Standards for health information technology to protect 
electronic health information created, maintained, and exchanged.

* * * * *
    (a) * * *
    (3) General. Any encryption algorithm identified by the National 
Institute of Standards and Technology (NIST) as an approved security 
function in Annex A of the Federal Information Processing Standards 
(FIPS) Publication 140-2, October 8, 2014.
* * * * *
0
9. In Sec.  170.300, revise paragraph (d) to read as follows:


Sec.  170.300  Applicability.

* * * * *
    (d) In Sec. Sec.  170.314 and 170.315, all certification criteria 
and all capabilities specified within a certification criterion have 
general applicability (i.e., apply to any health care setting) unless 
designated as ``inpatient setting only'' or ``ambulatory setting 
only.''
    (1) Inpatient setting only means that the criterion or capability 
within the criterion is only required for certification of technology 
designed for use in an inpatient setting.
    (2) Ambulatory setting only means that the criterion or capability 
within the criterion is only required for certification of technology 
designed for use in an ambulatory setting.


Sec.  170.314  [Amended]

0
10. In Sec.  170.314:
0
a. In paragraph (a)(3)(i)(A), remove ``Sec.  170.207(f)'' and add in 
its place ``Sec.  170.207(f)(1)'';
0
b. In paragraph (a)(3)(i)(B), remove ``Sec.  170.207(g)'' and add in 
its place ``Sec.  170.207(g)(1)'';
0
c. In paragraph (a)(8)(iii)(B)(2), remove ``paragraph (b)(1)(iii)'' and 
add in its place ``paragraph (b)(1)(iii)(B) or (b)(9)(ii)(D)'';
0
d. In paragraphs (b)(2)(i) introductory test, (b)(7) introductory text, 
(b)(8)(iii) introductory text, (e)(1)(i)(A)(1), and (e)(2)(iii)(A), 
remove the term ``Common MU Data Set'' and add in its place ``Common 
Clinical Data Set'';
0
e. In paragraph (b)(5)(i)(A)(1), remove ``Sec.  170.205(j)'' and add in 
its place ``Sec.  170.205(j)(1)'';
0
f. In paragraph (b)(6), remove ``Sec.  170.205(j)'' and add in its 
place ``Sec.  170.205(j)(1)'';
0
g. In paragraph (e)(1)(i)(A) introductory text, remove ``Sec.  
170.204(a)'' and add in its place ``Sec.  170.204(a)(1)'';
0
h. In paragraph (f)(4)(i), remove ``Sec.  170.205(g)'' and add in its 
place ``Sec.  170.205(g)(1)''; and
0
i. In paragraph (f)(6)(i), remove ``Sec.  170.205(i)'' and add in its 
place '' Sec.  170.205(i)(1)''.
0
11. Add Sec.  170.315 to read as follows:

[[Page 16906]]

Sec.  170.315  2015 Edition health IT certification criteria.

    The Secretary adopts the following certification criteria for 
health IT. Health IT must be able to electronically perform the 
following capabilities in accordance with all applicable standards and 
implementation specifications adopted in this part:
    (a) Clinical--(1) Computerized provider order entry--medications. 
Technology must enable a user to record, change, and access medication 
orders.
    (2) Computerized provider order entry--laboratory. (i) Technology 
must enable a user to record, change, and access laboratory orders.
    (ii) Technology must be able to receive and incorporate a new or 
updated laboratory order compendium in accordance with the standard 
specified in Sec.  170.205(l)(2) and, at a minimum, the version of the 
standard in Sec.  170.207(c)(3).
    (iii) Ambulatory setting only. Technology must enable a user to 
create laboratory orders for electronic transmission in accordance with 
the standard specified in Sec.  170.205(l)(1) and, at a minimum, the 
version of the standard in Sec.  170.207(c)(3).
    (3) Computerized provider order entry--diagnostic imaging. 
Technology must enable a user to record, change, and access diagnostic 
imaging orders.
    (4) Drug-drug, drug-allergy interaction checks for CPOE--(i) 
Interventions. Before a medication order is completed and acted upon 
during computerized provider order entry (CPOE), interventions must 
automatically indicate to a user drug-drug and drug-allergy 
contraindications based on a patient's medication list and medication 
allergy list.
    (ii) Adjustments. (A) Enable the severity level of interventions 
provided for drug-drug interaction checks to be adjusted.
    (B) Limit the ability to adjust severity levels to an identified 
set of users or available as a system administrative function.
    (iii) Interaction check response documentation. (A) Technology must 
be able to record at least one action taken and by whom in response to 
drug-drug or drug-allergy interaction checks.
    (B) Technology must be able to generate either a human readable 
display or human readable report of actions taken and by whom in 
response to drug-drug or drug-allergy interaction checks.
    (5) Demographics. (i) Enable a user to record, change, and access 
patient demographic data including preferred language, sex, race, 
ethnicity, and date of birth.
    (A) Race and ethnicity. (1) Enable each one of a patient's races to 
be recorded in accordance with, at a minimum, the standard specified in 
Sec.  170.207(f)(2) and whether a patient declines to specify race.
    (2) Enable each one of a patient's ethnicities to be recorded in 
accordance with, at a minimum, the standard specified in Sec.  
170.207(f)(2) and whether a patient declines to specify ethnicity.
    (3) Aggregate each one of the patient's races and ethnicities 
recorded in accordance with paragraphs (a)(5)(i)(A)(1) and (2) of this 
section to the categories in the standard specified in Sec.  
170.207(f)(1).
    (B) Enable preferred language to be recorded in accordance with the 
standard specified in Sec.  170.207(g)(2) and whether a patient 
declines to specify a preferred language.
    (C) Enable sex to be recorded in accordance with the standard 
specified in Sec.  170.207(n)(1).
    (ii) Inpatient setting only. Enable a user to record, change, and 
access the preliminary cause of death and date of death in the event of 
mortality.
    (6) Vital signs, body mass index, and growth charts--(i) Vital 
signs. Enable a user to record, change, and access, at a minimum, a 
patient's height, weight, diastolic blood pressure, systolic blood 
pressure, heart rate, respiratory rate, temperature, oxygen saturation 
in arterial blood by pulse oximetry, body mass index [ratio], and mean 
blood pressure in accordance with the following (The patient's height/
length, weight, diastolic blood pressure, systolic blood pressure, 
heart rate, respiratory rate, temperature, oxygen saturation in 
arterial blood by pulse oximetry, body mass index [ratio], and mean 
blood pressure must be recorded in numerical values only.):
    (A) The standard specified in Sec.  170.207(k)(1) and with the 
associated applicable unit of measure for the vital sign in the 
standard specified in Sec.  170.207(m)(1);
    (B) Metadata. For each vital sign in paragraph (a)(6)(i) of this 
section, the technology must also record the following:
    (1) Date and time of vital sign measurement or end time of vital 
sign measurement;
    (2) The measuring- or authoring-type source of the vital sign 
measurement; and
    (3) Optional. Date and time of vital sign measurement or end time 
of vital sign measurement in accordance with the standard in Sec.  
170.210(g); and
    (C) Metadata for oxygen saturation in arterial blood by pulse 
oximetry. For the oxygen saturation in arterial blood by pulse 
oximetry, the technology must enable a user to record, change, and 
access the patient's inhaled oxygen concentration identified, at a 
minimum, with the version of the standard adopt in Sec.  170.207(c)(3) 
and attributed with LOINC[supreg] code 8478-0.
    (ii) Optional--Body mass index percentile per age and sex. Enable a 
user to record, change, and access a patient's body mass index 
[percentile] per age and sex for patients two to twenty years of age in 
accordance with the following (The patient's body mass index 
[percentile] per age and sex must be recorded in numerical values 
only.):
    (A) Identified, at a minimum, with the version of the standard 
adopt in Sec.  170.207(c)(3) and attributed with LOINC[supreg] code 
59576-9 and with the associated applicable unit of measure in the 
standard specified in Sec.  170.207(m)(1); and
    (B) Metadata. The technology must also record the following:
    (1) Date and time of vital sign measurement or end time of vital 
sign measurement;
    (2) The measuring- or authoring-type source of the vital sign 
measurement;
    (3) The patient's date of birth;
    (4) The patient's sex in accordance with the standard specified in 
Sec.  170.207(n)(1); and
    (5) Optional. Date and time of vital sign measurement or end time 
of vital sign measurement in accordance with the standard in Sec.  
170.210(g).
    (iii) Optional--Weight for length per age and sex. Enable a user to 
record, change, and access a patient's weight for length per age and 
sex for patients less than three years of age in accordance with the 
following (The patient's weight for length per age and sex must be 
recorded in numerical values only.):
    (A) Identified, at a minimum, with the version of the standard 
adopt in Sec.  170.207(c)(3) and attributed with the LOINC[supreg] code 
and with the associated applicable unit of measure in the standard 
specified in Sec.  170.207(m)(1); and
    (B) Metadata. The technology must record the following:
    (1) Date and time of vital sign measurement or end time of vital 
sign measurement;
    (2) The measuring- or authoring-type source of the vital sign 
measurement;
    (3) The patient's date of birth;
    (4) The patient's sex in accordance with the standard specified in 
Sec.  170.207(n)(1); and
    (5) Optional. Date and time of vital sign measurement or end time 
of vital

[[Page 16907]]

sign measurement in accordance with the standard in Sec.  170.210(g).
    (iv) Optional--Head occipital-frontal circumference. Enable a user 
to record, change, and access a patient's head occipital-frontal 
circumference for patients less than three years of age in accordance 
with the following (The patient's head occipital-frontal circumference 
must be recorded in numerical values only.):
    (A) Identified, at a minimum, with the version of the standard 
adopt in Sec.  170.207(c)(3) and attributed with LOINC[supreg] code 
8287-5 and with the associated applicable unit of measure in the 
standard specified in Sec.  170.207(m)(1); and
    (B) Metadata. The technology must also record the following:
    (1) Date and time of vital sign measurement or end time of vital 
sign measurement;
    (2) The measuring- or authoring-type source of the vital sign 
measurement;
    (3) The patient's date of birth;
    (4) The patient's age in accordance with the standard specified in 
Sec.  170.207(n)(1); and
    (5) Optional. Date and time of vital sign measurement or end time 
of vital sign measurement in accordance with the standard in Sec.  
170.210(g).
    (v) Optional--Calculate body mass index. Automatically calculate 
and display body mass index based on a patient's height and weight.
    (vi) Optional--Plot and display growth charts. Plot and display, 
upon request, growth charts for patients.
    (7) Problem list. Enable a user to record, change, and access a 
patient's active problem list:
    (i) Ambulatory setting. Over multiple encounters in accordance 
with, at a minimum, the version of the standard specified in Sec.  
170.207(a)(4); or
    (ii) Inpatient setting. For the duration of an entire 
hospitalization in accordance with, at a minimum, the version of the 
standard specified in Sec.  170.207(a)(4).
    (8) Medication list. Enable a user to record, change, and access a 
patient's active medication list as well as medication history:
    (i) Ambulatory setting. Over multiple encounters; or
    (ii) Inpatient setting. For the duration of an entire 
hospitalization.
    (9) Medication allergy list. Enable a user to record, change, and 
access a patient's active medication allergy list as well as medication 
allergy history:
    (i) Ambulatory setting. Over multiple encounters; or
    (ii) Inpatient setting. For the duration of an entire 
hospitalization.
    (10) Clinical decision support--(i) Evidence-based decision support 
interventions. Enable a limited set of identified users to select 
(i.e., activate) one or more electronic clinical decision support 
interventions (in addition to drug-drug and drug-allergy 
contraindication checking) based on each one and at least one 
combination of the following data:
    (A) Problem list;
    (B) Medication list;
    (C) Medication allergy list;
    (D) At least one demographic specified in paragraph (a)(5)(i) of 
this section;
    (E) Laboratory tests; and
    (F) Vital signs.
    (ii) Linked referential clinical decision support. (A) Technology 
must be able to identify for a user diagnostic and therapeutic 
reference information in accordance with the standard and 
implementation specifications at Sec.  170.204(b)(3) or (4).
    (B) For paragraph (a)(10)(ii)(A) of this section, technology must 
be able to identify for a user diagnostic or therapeutic reference 
information based on each one and at least one combination of the data 
referenced in paragraphs (a)(10)(i)(A), (B), and (D) of this section.
    (iii) Clinical decision support configuration. (A) Enable 
interventions and reference resources specified in paragraphs 
(a)(10)(i) and (ii) of this section to be configured by a limited set 
of identified users (e.g., system administrator) based on a user's 
role.
    (B) Technology must enable interventions to be:
    (1) Based on the data referenced in paragraphs (a)(10)(i)(A) 
through (F) of this section.
    (2) When a patient's medications, medication allergies, problems, 
and laboratory tests and values/results are incorporated from a 
transition of care/referral summary received and pursuant to paragraph 
(b)(2)(iii)(D) of this section.
    (3) Ambulatory setting only. When a patient's laboratory tests and 
values/results are incorporated pursuant to paragraph (b)(4) of this 
section.
    (iv) CDS intervention interaction. Interventions provided to a user 
in paragraphs (a)(10)(i) through (iii) of this section must occur when 
a user is interacting with technology.
    (v) Source attributes. Enable a user to review the attributes as 
indicated for all clinical decision support resources:
    (A) For evidence-based decision support interventions under 
paragraph (a)(10)(i) of this section:
    (1) Bibliographic citation of the intervention (clinical research/
guideline);
    (2) Developer of the intervention (translation from clinical 
research/guideline);
    (3) Funding source of the intervention development technical 
implementation; and
    (4) Release and, if applicable, revision date(s) of the 
intervention or reference source.
    (B) For linked referential clinical decision support in paragraph 
(a)(10)(ii) of this section and drug-drug, drug-allergy interaction 
checks in paragraph (a)(4) of this section, the developer of the 
intervention, and where clinically indicated, the bibliographic 
citation of the intervention (clinical research/guideline).
    (vi) Intervention response documentation. (A) Technology must be 
able to record at least one action taken and by whom in response to 
clinical decision support interventions.
    (B) Technology must be able to generate either a human readable 
display or human readable report of actions taken and by whom in 
response to clinical decision support interventions.
    (11) Drug-formulary and preferred drug list checks. Technology must 
either meet paragraph (a)(11)(i) or (ii) of this section.
    (i) Drug formulary checks. (A) Automatically check whether a drug 
formulary exists for a given patient and medication.
    (B) Indicate for a user the last update of the drug formulary; and
    (C) Receive and incorporate a formulary and benefit file in 
accordance with the standard specified in Sec.  170.205(n)(1).
    (ii) Preferred drug list checks. (A) Automatically check whether a 
preferred drug list exists for a given patient and medication.
    (B) Indicate for a user the last update of the preferred drug list.
    (12) Smoking status. Enable a user to record, change, and access 
the smoking status of a patient in accordance with, at a minimum, the 
version of the standard specified in Sec.  170.207(a)(4).
    (13) Image results. Indicate to a user the availability of a 
patient's images and narrative interpretations (relating to the 
radiographic or other diagnostic test(s)) and enable electronic access 
to such images and narrative interpretations.
    (14) Family health history. Enable a user to record, change, and 
access a patient's family health history in accordance with the 
familial concepts or expressions included in, at a minimum, the version 
of the standard in Sec.  170.207(a)(4).
    (15) Family health history--pedigree. Technology must be able to 
create and incorporate a patient's family health history in accordance 
with the standard

[[Page 16908]]

and implementation specification specified in Sec.  170.205(m)(1).
    (16) Patient list creation. Enable a user to dynamically select, 
sort, access, and create patient lists by: date and time; and based on 
each one and at least one combination of the following data:
    (i) Problems;
    (ii) Medications;
    (iii) Medication allergies;
    (iv) At least one demographic specified in paragraph (a)(5)(i) of 
this section;
    (v) Laboratory tests and values/results; and
    (vi) Ambulatory setting only. Patient communication preferences.
    (17) Patient-specific education resources. Technology must be able 
to:
    (i) Identify patient-specific education resources based on data 
included in the patient's problem list and medication list in 
accordance with the standard (and implementation specifications) 
specified in Sec.  170.204(b)(3) or (4); and
    (ii) Request that patient-specific education resources be 
identified in accordance with the standard in Sec.  170.207(g)(2).
    (18) Electronic medication administration record. (i) In 
combination with an assistive technology that provides automated 
information on the ``rights'' specified in paragraphs (a)(18)(i)(A) 
through (E) of this section, enable a user to verify the following 
before administering medication(s):
    (A) Right patient. The patient to whom the medication is to be 
administered matches the medication to be administered.
    (B) Right medication. The medication to be administered matches the 
medication ordered for the patient.
    (C) Right dose. The dose of the medication to be administered 
matches the dose of the medication ordered for the patient.
    (D) Right route. The route of medication delivery matches the route 
specified in the medication order.
    (E) Right time. The time that the medication was ordered to be 
administered compared to the current time.
    (ii) Right documentation. Record the time and date in accordance 
with the standard specified in Sec.  170.210(g), and user 
identification when a medication is administered.
    (19) Patient health information capture. Technology must be able to 
enable a user to:
    (i) Identify, record, and access patient health information 
documents;
    (ii) Reference and link to patient health information documents; 
and
    (iii) Record and access information directly shared by a patient.
    (20) Implantable device list. (i) Enable a user to record, change, 
and access, a list of Unique Device Identifiers associated with a 
patient's Implantable Device(s).
    (ii) Parse the following data elements from a Unique Device 
Identifier:
    (A) Device Identifier;
    (B) Batch/lot number;
    (C) Expiration date;
    (D) Production date; and
    (E) Serial number.
    (iii) Retrieve the ``Device Description'' attribute associated with 
a Unique Device Identifier in the Global Unique Device Identification 
Database.
    (iv) For each Unique Device Identifier in a patient's list of 
implantable devices, enable a user to access the following:
    (A) The parsed data elements specified under paragraph (a)(20)(ii) 
of this section that are associated with the UDI; and
    (B) The retrieved data element specified under paragraph 
(a)(20)(iii) of this section.
    (21) Social, psychological, and behavioral data. Enable a user to 
record, change, and access, at a minimum, one of the following patient 
social, psychological, and behavioral data.
    (i) Sexual orientation. Enable sexual orientation to be recorded in 
accordance with the standard specified in Sec.  170.207(o)(1) and 
whether a patient declines to specify sexual orientation.
    (ii) Gender identity. Enable gender identity to be recorded in 
accordance with the standard specified in Sec.  170.207(o)(2) and 
whether a patient declines to specify gender identity.
    (iii) Financial resource strain. Enable financial resource strain 
to be recorded in accordance with the standard specified in Sec.  
170.207(o)(3) and whether a patient declines to specify financial 
resource strain.
    (iv) Education. Enable education to be recorded in accordance with 
the standard specified in Sec.  170.207(o)(4) and whether a patient 
declines to specify education.
    (v) Stress. Enable stress to be recorded in accordance with the 
standard specified in Sec.  170.207(o)(5) and whether a patient 
declines to specify stress.
    (vi) Depression. Enable depression to be recorded in accordance 
with the standard specified in Sec.  170.207(o)(6) and whether a 
patient declines to specify stress.
    (vii) Physical activity. Enable physical activity to be recorded in 
accordance with the standard specified in Sec.  170.207(o)(7) and 
whether a patient declines to specify physical activity.
    (viii) Alcohol use. Enable alcohol use to be recorded in accordance 
with the standard specified in Sec.  170.207(o)(8) and whether a 
patient declines to specify alcohol use.
    (ix) Social connection and isolation. Enable social connection and 
isolation to be recorded in accordance the standard specified in Sec.  
170.207(o)(9) and whether a patient declines to specify social 
connection and isolation.
    (x) Exposure to violence (intimate partner violence). Enable 
exposure to violence (intimate partner violence) to be recorded in 
accordance with the standard specified in Sec.  170.207(o)(10) and 
whether a patient declines to specify exposure to violence (intimate 
partner violence).
    (22) Decision support--knowledge artifact. Enable a user to send 
and receive clinical decision support knowledge artifacts in accordance 
with the standard specified in Sec.  170.204(d)(1).
    (23) Decision support--service. Enable a user to send and receive 
electronic clinical guidance in accordance with the standard specified 
in Sec.  170.204(e)(1).
    (b) Care coordination--(1) Transitions of care--(i) Send and 
receive via edge protocol. Technology must be able to:
    (A) Send transitions of care/referral summaries through a method 
that conforms to the standard specified in Sec.  170.202(d); and
    (B) Receive transitions of care/referral summaries through a method 
that conforms to the standard specified in Sec.  170.202(d) from a 
service that has implemented the standard specified in Sec.  
170.202(a).
    (C) XDM processing. Receive and make available the contents of a 
XDM package formatted in accordance with the standard adopted in Sec.  
170.205(p)(1) if the technology is also being certified using an SMTP-
based edge protocol.
    (ii) Validate and display--(A) Validate C-CDA conformance--system 
performance. Technology must demonstrate its ability to detect valid 
and invalid transition of care/referral summaries received and 
formatted in accordance with both of the standards specified in Sec.  
170.205(a)(3) and
    (4). This includes the ability to:
    (1) Parse each of the document types formatted according to the 
following document templates: CCD; Consultation Note; History and 
Physical; Progress Note; Care Plan; Transfer Summary; Referral Note, 
and Discharge Summary.
    (2) Detect errors in corresponding ``document-templates,'' 
``section-templates,'' and ``entry-templates,'' including invalid 
vocabulary standards and codes not specified in either of the standards 
adopted in Sec.  170.205(a)(3) and (4);
    (3) Identify valid document-templates and process the data elements 
required

[[Page 16909]]

in the corresponding section-templates and entry-templates from either 
of the standards adopted in Sec.  170.205(a)(3) and (4);
    (4) Correctly interpret empty sections and null combinations; and
    (5) Record errors encountered and allow for a user to be notified 
of or review the errors produced.
    (B) Technology must be able to display in human readable format the 
data included in transition of care/referral summaries received and 
formatted according to the standards specified in Sec.  170.205(a)(3) 
and (4).
    (C) Section views. Allow for individual display each additional 
section or sections (and the accompanying document header information) 
that were included in a transition of care/referral summary received 
and formatted in accordance with either of the standards adopted in 
Sec.  170.205(a)(3) and (4).
    (iii) Create. (A) Enable a user to create a transition of care/
referral summary:
    (1) Formatted according to the standards adopted in Sec.  
170.205(a)(3);
    (2) Formatted according to the standards adopted in Sec.  
170.205(a)(4); and
    (3) Includes, at a minimum, the Common Clinical Data Set and the 
following data expressed, where applicable, according to the specified 
standard(s):
    (i) Encounter diagnoses. The standard specified in Sec.  170.207(i) 
or, at a minimum, the version of the standard specified in Sec.  
170.207(a)(4);
    (ii) Cognitive status;
    (iii) Functional status;
    (iv) Ambulatory setting only. The reason for referral; and 
referring or transitioning provider's name and office contact 
information; and
    (v) Inpatient setting only. Discharge instructions.
    (B) Patient matching data quality. Technology must be capable of 
creating a transition of care/referral summary that includes the 
following data and, where applicable, represent such data according to 
the additional constraints specified below:
    (1) Data. first name, last name, maiden name, middle name 
(including middle initial), suffix, date of birth, place of birth, 
current address, historical address, phone number, and sex.
    (2) Constraint. Represent last/family name according to the CAQH 
Phase II Core 258: Eligibility and Benefits 270/271 Normalizing Patient 
Last Name Rule version 2.1.0.
    (3) Constraint. Represent suffix according to the CAQH Phase II 
Core 258: Eligibility and Benefits 270/271 Normalizing Patient Last 
Name Rule version 2.1.0 (JR, SR, I, II, III, IV, V, RN, MD, Ph.D., 
ESQ). If no suffix exists, the field should be entered as null.
    (4) Constraint. Represent the year, month and date of birth are 
required fields while hour, minute and second should be optional 
fields. If hour, minute and second are provided then either time zone 
offset should be included unless place of birth (city, region, country) 
is provided; in latter local time is assumed. If date of birth is 
unknown, the field should be marked as null.
    (5) Constraint. Represent phone number (home, business, cell) in 
the ITU format specified in ITU-T E.123 and ITU-T E.164. If multiple 
phone numbers are present, all should be included.
    (6) Constraint. Represent sex in accordance with the standard 
adopted at Sec.  170.207(n)(1).
    (2) Clinical information reconciliation and incorporation--(i) 
General requirements. Paragraphs (b)(2)(ii) and (iii) of this section 
must be completed based on the receipt of a transition of care/referral 
summary formatted in accordance with the standard adopted in Sec.  
170.205(a)(3) as well as separately to the standard adopted in Sec.  
170.205(a)(4) using the Continuity of Care Document, Discharge Summary 
Document and Referral Summary document templates.
    (ii) Correct patient. Upon receipt of a transition of care/referral 
summary formatted according to either of the standards adopted at Sec.  
170.205(a)(3) or (4), technology must be able to demonstrate that the 
transition of care/referral summary received is or can be properly 
matched to the correct patient.
    (iii) Reconciliation. Enable a user to reconcile the data that 
represent a patient's active medication list, medication allergy list, 
and problem list as follows. For each list type:
    (A) Simultaneously display (i.e., in a single view) the data from 
at least two sources in a manner that allows a user to view the data 
and their attributes, which must include, at a minimum, the source and 
last modification date;
    (B) Enable a user to create a single reconciled list of 
medications, medication allergies, or problems;
    (C) Enable a user to review and validate the accuracy of a final 
set of data; and
    (D) Upon a user's confirmation, automatically update the list, and 
incorporate the following data expressed according to the specified 
standard(s):
    (1) Medications. At a minimum, the version of the standard 
specified in Sec.  170.207(d)(3);
    (2) Medication allergies. At a minimum, the version of the standard 
specified in Sec.  170.207(d)(3); and
    (3) Problems. At a minimum, the version of the standard specified 
in Sec.  170.207(a)(4).
    (iv) System verification. Based on the data reconciled and 
incorporated, the technology must be able to create a file formatted 
according to the standard adopted at Sec.  170.205(a)(4) using the 
Continuity of Care Document document template.
    (3) Electronic prescribing. (i) Enable a user to prescribe, send, 
and respond to prescription-related transactions for electronic 
transmission in accordance with the standard specified at Sec.  
170.205(b)(2), and, at a minimum, the version of the standard specified 
in Sec.  170.207(d)(3), as follows:
    (A) Create new prescriptions (NEWRX);
    (B) Change prescriptions (RXCHG, CHGRES);
    (C) Cancel prescriptions (CANRX, CANRES);
    (D) Refill prescriptions (REFREQ, REFRES);
    (E) Receive fill status notifications (RXFILL); and
    (F) Request and receive medication history information (RXHREQ, 
RXHRES).
    (ii) Enable a user to enter, receive, and transmit structured and 
codified prescribing instructions for the transactions listed in 
paragraph (b)(3)(i) of this section for electronic transmission in 
accordance with the standard specified at Sec.  170.205(b)(2) and, at a 
minimum, for at least the following component composites:
    (A) Repeating Sig;
    (B) Code System;
    (C) Sig Free Text String;
    (D) Dose;
    (E) Dose Calculation;
    (F) Vehicle;
    (G) Route of Administration;
    (H) Site of Administration;
    (I) Sig Timing;
    (J) Duration;
    (K) Maximum Dose Restriction;
    (L) Indication; and
    (M) Stop.
    (iii) Technology must limit a user's ability to prescribe all 
medications in only the metric standard.
    (iv) Technology must always insert leading zeroes before the 
decimal point for amounts less than one and must not allow trailing 
zeroes after a decimal point when a user prescribes medications.
    (4) Incorporate laboratory tests and values/results--(i) Receive 
results--(A) Ambulatory setting only. (1) Receive and incorporate 
clinical laboratory tests and

[[Page 16910]]

values/results in accordance with the standard specified in Sec.  
170.205(j)(2); and, at a minimum, the version of the standard specified 
in Sec.  170.207(c)(3).
    (2) Display the tests and values/results received in human readable 
format.
    (B) Inpatient setting only. Receive clinical laboratory tests and 
values/results in a structured format and display such tests and 
values/results in human readable format.
    (ii) Display the test report information:
    (A) Specified in 42 CFR 493.1291(a)(1) through (3) and (c)(1) 
through (7);
    (B) Related to reference intervals or normal values as specified in 
42 CFR 493.1291(d);
    (C) For alerts and delays as specified in 42 CFR 493.1291(g) and 
(h); and
    (D) For corrected reports as specified in 42 CFR 493.1291(k)(2).
    (iii) Attribute, associate, or link a laboratory test and value/
result with a laboratory order or patient record.
    (5) Transmission of laboratory test reports. Technology must be 
able to electronically create laboratory test reports for electronic 
transmission in accordance with the standard specified in Sec.  
170.205(j)(2) and, at a minimum, the version of the standard specified 
in Sec.  170.207(c)(3).
    (6) Data portability--(i) General requirements for export summary 
configuration. A user must be able to set the following configuration 
options when using technology to create an export summary or set of 
export summaries for patients whose information is stored in the 
technology. A user must be able to execute these capabilities at any 
time the user chooses and without subsequent developer assistance to 
operate.
    (ii) Document creation configuration--(A) Document-template types. 
A user must be able to configure the technology to create an export 
summary or export summaries formatted according to the standard adopted 
at Sec.  170.205(a)(4) for any of the following document-template 
types.
    (1) Generally applicable. CCD; Consultation Note; History and 
Physical; Progress Note; Care Plan; Transfer Summary; and Referral 
Note.
    (2) Inpatient setting only. Discharge Summary.
    (B) For any document-template selected the technology must be able 
to include, at a minimum, the Common Clinical Data Set and the 
following data expressed, where applicable, according to the specified 
standard(s):
    (1) Encounter diagnoses. The standard specified in Sec.  170.207(i) 
or, at a minimum, the version of the standard at Sec.  170.207(a)(4);
    (2) Cognitive status;
    (3) Functional status;
    (4) Ambulatory setting only. The reason for referral; and referring 
or transitioning provider's name and office contact information; and
    (5) Inpatient setting only. Discharge instructions.
    (C) Use of the ``unstructured document'' document-level template is 
prohibited for compliance with the standard adopted at Sec.  
170.205(a)(4)).
    (iii) Timeframe configuration. A user must be able to configure the 
technology to set the time period within which data would be used to 
create the export summary or summaries. This must include the ability 
to enter in a start and end date range as well as the ability to set a 
date at least three years into the past from the current date.
    (iv) Event configuration. A user must be able to configure the 
technology to create an export summary or summaries based on the 
following user selected events:
    (A) A relative date or time (e.g., the first of every month);
    (B) A specific date or time (e.g., on 10/24/2015); and
    (C) When a user signs a note or an order.
    (v) Location configuration. A user must be able to configure and 
set the storage location to which the export summary or export 
summaries are intended to be saved.
    (7) Data segmentation for privacy--send. Technology must enable a 
user to create a summary record formatted in accordance with each of 
the standards adopted in Sec.  170.205(a)(3) and (4) that is tagged as 
restricted and subject to restrictions on re-disclosure according to 
the standard adopted in Sec.  170.205(o)(1).
    (8) Data segmentation for privacy--receive. Technology must enable 
a user to:
    (i) Receive a summary record that is tagged as restricted and 
subject to restrictions on re-disclosure according to the standard 
adopted in Sec.  170.205(o)(1);
    (ii) Apply document-level tagging and sequester the document from 
other documents received; and
    (iii) View the restricted document (or data), without incorporating 
the document (or data).
    (9) Care plan. Technology must enable a user to record, change, 
access, create, and receive care plan information in accordance with 
the Care Plan document template in the standard adopted in Sec.  
170.205(a)(4).
    (c) Clinical quality measures--(1) Clinical quality measures--
record and export--(i) Record. For each and every CQM for which the 
technology is presented for certification, the technology must be able 
to record all of the data that would be necessary to calculate each 
CQM. Data required for CQM exclusions or exceptions must be codified 
entries, which may include specific terms as defined by each CQM, or 
may include codified expressions of ``patient reason,'' ``system 
reason,'' or ``medical reason.''
    (ii) Export. A user must be able to export a data file formatted in 
accordance with the standard specified at Sec.  170.205(h) for one or 
multiple patients that includes all of the data captured for each and 
every CQM to which technology was certified under paragraph (c)(1)(i) 
of this section. A user must be able to execute this capability at any 
time the user chooses and without subsequent developer assistance to 
operate.
    (2) Clinical quality measures--import and calculate--(i) Import. 
Enable a user to import a data file in accordance with the standard 
specified at Sec.  170.205(h) for one or multiple patients and use such 
data to perform the capability specified in paragraph (c)(2)(ii) of 
this section. A user must be able to execute this capability at any 
time the user chooses and without subsequent developer assistance to 
operate.
    (ii) Technology must be able to calculate each and every clinical 
quality measure for which it is presented for certification.
    (3) [Reserved]
    (4) Clinical quality measures--filter. (i) Technology must be able 
to record the data listed in paragraph (c)(4)(iii) of this section in 
accordance with the identified standards, where specified.
    (ii) Technology must be able to filter CQM results at the patient 
and aggregate levels by each one and any combination of the data listed 
in paragraph (c)(4)(iii) of this section.
    (iii) Data. (A) TIN;
    (B) NPI;
    (C) Provider type;
    (D) Patient insurance;
    (E) Patient age;
    (F) Patient sex in accordance with, at a minimum, the version of 
the standard specified in Sec.  170.207(n)(1);
    (G) Patient race and ethnicity in accordance with, at a minimum, 
the version of the standard specified in Sec.  170.207(f)(2);
    (H) Patient problem list data in accordance with, at a minimum, the 
version of the standard specified in Sec.  170.207(a)(4); and
    (I) Practice site address.
    (d) Privacy and security--(1) Authentication, access control, and

[[Page 16911]]

authorization. (i) Verify against a unique identifier(s) (e.g., 
username or number) that a person seeking access to electronic health 
information is the one claimed; and
    (ii) Establish the type of access to electronic health information 
a user is permitted based on the unique identifier(s) provided in 
paragraph (d)(1)(i) of this section, and the actions the user is 
permitted to perform with the technology.
    (2) Auditable events and tamper-resistance--(i) Record actions. 
Technology must be able to:
    (A) Record actions related to electronic health information in 
accordance with the standard specified in Sec.  170.210(e)(1);
    (B) Record the audit log status (enabled or disabled) in accordance 
with the standard specified in Sec.  170.210(e)(2) unless it cannot be 
disabled by any user; and
    (C) Record the encryption status (enabled or disabled) of 
electronic health information locally stored on end-user devices by 
technology in accordance with the standard specified in Sec.  
170.210(e)(3) unless the technology prevents electronic health 
information from being locally stored on end-user devices (see 
paragraph (d)(7) of this section).
    (ii) Default setting. Technology must be set by default to perform 
the capabilities specified in paragraph (d)(2)(i)(A) of this section 
and, where applicable, paragraph (d)(2)(i)(B) or (C) of this section, 
or both paragraphs (d)(2)(i)(B) and (C).
    (iii) When disabling the audit log is permitted. For each 
capability specified in paragraphs (d)(2)(i)(A) through (C) of this 
section that technology permits to be disabled, the ability to do so 
must be restricted to a limited set of users.
    (iv) Audit log protection. Actions and statuses recorded in 
accordance with paragraph (d)(2)(i) of this section must not be capable 
of being changed, overwritten, or deleted by the technology.
    (v) Detection. Technology must be able to detect whether the audit 
log has been altered.
    (3) Audit report(s). Enable a user to create an audit report for a 
specific time period and to sort entries in the audit log according to 
each of the data specified in the standards in Sec.  170.210(e).
    (4) Amendments. Enable a user to select the record affected by a 
patient's request for amendment and perform the capabilities specified 
in paragraph (d)(4)(i) or (ii) of this section.
    (i) Accepted amendment. For an accepted amendment, append the 
amendment to the affected record or include a link that indicates the 
amendment's location.
    (ii) Denied amendment. For a denied amendment, at a minimum, append 
the request and denial of the request to the affected record or include 
a link that indicates this information's location.
    (5) Automatic access time-out. (i) Automatically stop user access 
to health information after a predetermined period of inactivity.
    (ii) Require user authentication in order to resume or regain the 
access that was stopped.
    (6) Emergency access. Permit an identified set of users to access 
electronic health information during an emergency.
    (7) End-user device encryption. Paragraph (d)(7)(i) or (ii) of this 
section must be met to satisfy this certification criterion.
    (i) Technology that is designed to locally store electronic health 
information on end-user devices must encrypt the electronic health 
information stored on such devices after use of the technology on those 
devices stops.
    (A) Electronic health information that is stored must be encrypted 
in accordance with the standard specified in Sec.  170.210(a)(3).
    (B) Default setting. Technology must be set by default to perform 
this capability and, unless this configuration cannot be disabled by 
any user, the ability to change the configuration must be restricted to 
a limited set of identified users.
    (ii) Technology is designed to prevent electronic health 
information from being locally stored on end-user devices after use of 
the technology on those devices stops.
    (8) Integrity. (i) Create a message digest in accordance with the 
standard specified in Sec.  170.210(c).
    (ii) Verify in accordance with the standard specified in Sec.  
170.210(c) upon receipt of electronically exchanged health information 
that such information has not been altered.
    (9) Accounting of disclosures. Record disclosures made for 
treatment, payment, and health care operations in accordance with the 
standard specified in Sec.  170.210(d).
    (e) Patient engagement--(1) View, download, and transmit to 3rd 
party. (i) Patients (and their authorized representatives) must be able 
to use technology to view, download, and transmit their health 
information to a 3rd party in the manner specified below. Access to 
these capabilities must be online and through a secure channel that 
ensures all content is encrypted and integrity-protected in accordance 
with the standard for encryption and hashing algorithms specified at 
Sec.  170.210(f).
    (A) View. Patients (and their authorized representatives) must be 
able to use health IT to view in accordance with the standard adopted 
at Sec.  170.204(a)(1), at a minimum, the following data:
    (1) The Common Clinical Data Set (which should be in their English 
(i.e., non-coded) representation if they associate with a vocabulary/
code set).
    (2) Ambulatory setting only. Provider's name and office contact 
information.
    (3) Inpatient setting only. Admission and discharge dates and 
locations; discharge instructions; and reason(s) for hospitalization.
    (4) Laboratory test report(s). Laboratory test report(s), 
including:
    (i) The information for a test report as specified all the data 
specified in 42 CFR 493.1291(c)(1) through (7);
    (ii) The information related to reference intervals or normal 
values as specified in 42 CFR 493.1291(d); and
    (iii) The information for corrected reports as specified in 42 CFR 
493.1291(k)(2).
    (5) Diagnostic image report(s).
    (B) Download. (1) Patients (and their authorized representatives) 
must be able to use technology to download an ambulatory summary or 
inpatient summary (as applicable to the health IT setting for which 
certification is requested) in only human readable format, in only the 
format specified in accordance to the standard adopted at Sec.  
170.205(a)(4), or in both formats. The use of the ``unstructured 
document'' document-level template is prohibited for compliance with 
the standard adopted at Sec.  170.205(a)(4).
    (2) When downloaded according to the standard adopted at Sec.  
170.205(a)(4), the ambulatory summary or inpatient summary must 
include, at a minimum, the following data (which, for the human 
readable version, should be in their English representation if they 
associate with a vocabulary/code set):
    (i) Ambulatory setting only. All of the data specified in paragraph 
(e)(1)(i)(A)(1), (2), (4), and (5) of this section.
    (ii) Inpatient setting only. All of the data specified in 
paragraphs (e)(1)(i)(A)(1), and (3) through (5) of this section.
    (3) Inpatient setting only. Patients (and their authorized 
representatives) must be able to download transition of care/referral 
summaries that were created as a result of a transition of care 
(pursuant to the capability expressed in

[[Page 16912]]

the certification criterion adopted at paragraph (b)(1) of this 
section).
    (C) Transmit to third party. Patients (and their authorized 
representatives) must be able to:
    (1) Transmit the ambulatory summary or inpatient summary (as 
applicable to the health IT setting for which certification is 
requested) created in paragraph (e)(1)(i)(B)(2) of this section in 
accordance with at least one of the following:
    (i) The standard specified in Sec.  170.202(a).
    (ii) Through a method that conforms to the standard specified at 
Sec.  170.202(d) and leads to such summary being processed by a service 
that has implemented the standard specified in Sec.  170.202(a).
    (2) Inpatient setting only. Transmit transition of care/referral 
summaries (as a result of a transition of care/referral) selected by 
the patient (or their authorized representative) in accordance with at 
least one of the following:
    (i) The standard specified in Sec.  170.202(a).
    (ii) Through a method that conforms to the standard specified at 
Sec.  170.202(d) and leads to such summary being processed by a service 
that has implemented the standard specified in Sec.  170.202(a).
    (ii) Activity history log. (A) When electronic health information 
is viewed, downloaded, or transmitted to a third-party using the 
capabilities included in paragraphs (e)(1)(i)(A) through (C) of this 
section or when an application requests electronic health information 
using the capability specified at paragraph (e)(1)(iii) of this 
section, the following information must be recorded and made accessible 
to the patient:
    (1) The action(s) (i.e., view, download, transmission, API 
response) that occurred;
    (2) The date and time each action occurred in accordance with the 
standard specified at Sec.  170.210(g);
    (3) The user who took the action; and
    (4) Where applicable, the addressee to whom an ambulatory summary 
or inpatient summary was transmitted.
    (B) Technology presented for certification may demonstrate 
compliance with paragraph (e)(1)(ii)(A) of this section if it is also 
certified to the certification criterion adopted at Sec.  170.315(d)(2) 
and the information required to be recorded in paragraph (e)(1)(ii)(A) 
is accessible by the patient.
    (iii) Application access. Patients (and their authorized 
representatives) must be able to use an application that can interact 
with the following capabilities. Additionally, the following technical 
outcomes and conditions must be met through the demonstration of an 
application programming interface (API) that can respond to requests 
from other applications for data specified within the Common Clinical 
Data Set.
    (A) Security. The API must include a means to establish a trusted 
connection with the application requesting patient data, including a 
means for the requesting application to register with the data source, 
be authorized to request data, and log all interactions between the 
application and the data source.
    (B) Patient selection. The API must include a means for the 
application to query for an ID or other token of a patient's record in 
order to subsequently execute data requests for that record in 
accordance with (e)(1)(iii)(C) of this section.
    (C) Data requests, response scope, and return format. The API must 
enable and support both of the following data request interactions:
    (1) Data-category request. The API must support syntax that allows 
it to respond to requests for each of the individual data categories 
specified in the Common Clinical Data Set and return the full set of 
data for that data category (according to the specified standards, 
where applicable) in either XML or JSON.
    (2) All-request. The API must support syntax that allows it to 
respond to a request for all of the data categories specified in the 
Common Clinical Data Set at one time and return such data (according to 
the specified standards, where applicable) in a summary record 
formatted according to the standard adopted at Sec.  170.205(a)(4).
    (D) Documentation. The API must include accompanying documentation 
that contains, at a minimum:
    (1) API syntax, function names, required and optional parameters 
and their data types, return variables and their types/structures, 
exceptions and exception handling methods and their returns.
    (2) The software components and configurations that would be 
necessary for an application to implement in order to be able to 
successfully interact with the API and process its response(s).
    (E) Terms of use. The terms of use for the API must be provided, 
including, at a minimum, any associated developer policies and required 
developer agreements.
    (2) Secure messaging. Enable a user to send messages to, and 
receive messages from, a patient in a manner that ensures:
    (i) Both the patient (or authorized representative) and technology 
user are authenticated; and
    (ii) The message content is encrypted and integrity-protected in 
accordance with the standard for encryption and hashing algorithms 
specified at Sec.  170.210(f).
    (f) Public health--(1) Transmission to immunization registries. (i) 
Technology must be able to create immunization information for 
electronic transmission in accordance with:
    (A) The standard and applicable implementation specifications 
specified in Sec.  170.205(e)(4);
    (B) At a minimum, the version of the standard specified in Sec.  
170.207(e)(3) for historical vaccines; and
    (C) At a minimum, the version of the standard specified in Sec.  
170.207(e)(4) for administered vaccines.
    (ii) Technology must enable a user to request, access, and display 
a patient's evaluated immunization history and the immunization 
forecast from an immunization registry in accordance with the standard 
at Sec.  170.205(e)(4).
    (2) Transmission to public health agencies--syndromic 
surveillance--(i) Ambulatory setting only. (A) Technology must be able 
to create syndrome-based public health surveillance information for 
electronic transmission.
    (B) Optional. Technology must be able to create syndrome-based 
public health surveillance information for electronic transmission that 
contains the following data:
    (1) Patient demographics;
    (2) Provider specialty;
    (3) Provider address;
    (4) Problem list;
    (5) Vital signs;
    (6) Laboratory test values/results;
    (7) Procedures;
    (8) Medication list; and
    (9) Insurance.
    (ii) Inpatient setting only. Technology must be able to create 
syndrome-based public health surveillance information for electronic 
transmission in accordance with the standard (and applicable 
implementation specifications) specified in Sec.  170.205(d)(4).
    (3) Transmission to public health agencies--reportable laboratory 
tests and values/results. Technology must be able to create reportable 
laboratory tests and values/results for electronic transmission in 
accordance with:
    (i) The standard (and applicable implementation specifications) 
specified in Sec.  170.205(g)(2); and
    (ii) At a minimum, the versions of the standards specified in Sec.  
170.207(a)(4) and (c)(3).
    (4) Transmission to cancer registries. Technology must be able to 
create cancer case information for electronic transmission in 
accordance with:

[[Page 16913]]

    (i) The standard (and applicable implementation specifications) 
specified in Sec.  170.205(i)(2); and
    (ii) At a minimum, the versions of the standards specified in Sec.  
170.207(a)(4) and (c)(3).
    (5) Transmission to public health agencies--case reporting. 
Technology must be able to create case reporting information for 
electronic transmission in accordance with the standard specified in 
Sec.  170.205(q)(1).
    (6) Transmission to public health agencies--antimicrobial use and 
resistance reporting. Technology must be able to create antimicrobial 
use and resistance reporting information for electronic transmission in 
accordance with the standard specified in Sec.  170.205(r)(1).
    (7) Transmission to public health agencies--health care surveys. 
Technology must be able to create health care survey information for 
electronic transmission in accordance with the standard specified in 
Sec.  170.205(s)(1).
    (g) Design and performance--(1) Automated numerator recording. For 
each meaningful use objective with a percentage-based measure, 
technology must be able to create a report or file that enables a user 
to review the patients or actions that would make the patient or action 
eligible to be included in the measure's numerator. The information in 
the report or file created must be of sufficient detail such that it 
enables a user to match those patients or actions to meet the measure's 
denominator limitations when necessary to generate an accurate 
percentage.
    (2) Automated measure calculation. For each meaningful use 
objective with a percentage-based measure that is supported by a 
capability included in a technology, record the numerator and 
denominator and create a report including the numerator, denominator, 
and resulting percentage associated with each applicable meaningful use 
measure.
    (3) Safety-enhanced design. (i) User-centered design processes must 
be applied to each capability technology includes that is specified in 
the following certification criteria: paragraphs (a)(1) through (10) 
and (18), (20), (22), (23), and (b)(2) through (4) of this section.
    (ii) The following information must be submitted on the user-
centered design processed used:
    (A) Name, description and citation (ULR and/or publication 
citation) for an industry or federal government standard; or
    (B) Name the process(es), provide an outline of the process(es), a 
short description of the process(es), and an explanation of the 
reason(s) why use of any of the existing user-centered design standards 
was impractical.
    (iii) The following information/sections from NISTIR 7742 must be 
submitted for each capability to which user-centered design processes 
were applied:
    (A) Name and version of the product; date and location of the test; 
test environment; description of the intended users; and total number 
of participants;
    (B) Description of participants, including: sex; age; education; 
occupation/role; professional experience; computer experience; and 
product experience;
    (C) Description of the user tasks that were tested and association 
of each task to corresponding certification criteria;
    (D) List of the specific metrics captured during the testing, 
including; task success (%); task failures (%); task standard 
deviations (%); task performance time; and user satisfaction rating 
(based on a scale with 1 as very difficult and 5 as very easy);
    (E) Test results for each task using metrics listed above in 
paragraphs (g)(3)(ii)(A) through (D) of this section;
    (F) Results and data analysis narrative, including: major test 
finding; effectiveness; efficiency; satisfaction; and areas for 
improvement.
    (iv) Submit test scenarios used in summative usability testing.
    (4) Quality management system. (i) For each capability that a 
technology includes and for which that capability's certification is 
sought, the use of a Quality Management System (QMS) in the 
development, testing, implementation, and maintenance of that 
capability must be identified that is:
    (A) Compliant with a QMS established by the Federal government or a 
standards developing organization; or
    (B) Mapped to one or more QMS established by the Federal government 
or standards developing organization(s).
    (ii) If a single QMS was used for applicable capabilities, it would 
only need to be identified once.
    (iii) If different QMS were applied to specific capabilities, each 
QMS applied would need to be identified.
    (5) Accessibility technology compatibility. For each capability 
technology includes that is specified in the certification criteria at 
paragraphs (a), (b), and (e) of this section, the capability must be 
compatible with at least one accessibility technology that includes 
text-to-speech functionality.
    (6) Consolidated CDA creation performance. The following technical 
and performance outcomes must be demonstrated related to Consolidated 
CDA creation. The capabilities required under paragraphs (g)(6)(i) 
through (iii) of this section can be demonstrated in tandem and do not 
need to be individually addressed in isolation or sequentially.
    (i) Reference C-CDA match. Upon the entry of clinical data 
consistent with the Common Clinical Data Set, the technology must be 
able to create a data file formatted in accordance with each of the 
standards adopted in Sec.  170.205(a)(3) and (4) that matches a gold-
standard, reference data file.
    (ii) Document-template conformance. Upon the entry of clinical data 
consistent with the Common Clinical Data Set, the technology must be 
able to create a data file formatted in accordance with each of the 
standards adopted in Sec.  170.205(a)(3) and (4) that demonstrates a 
valid implementation of each of the following document templates (as 
applicable to the adopted standard):
    (A) Generally applicable. CCD; Consultation Note; History and 
Physical; Progress Note; Care Plan; Transfer Summary; and Referral 
Note.
    (B) Inpatient setting only. Discharge Summary.
    (iii) Vocabulary conformance. Upon the entry of clinical data 
consistent with the Common Clinical Data Set, the technology must be 
able to create a data file formatted in accordance with each of the 
standards adopted in Sec.  170.205(a)(3) and (4) that demonstrates the 
required vocabulary standards (and value sets) are properly 
implemented.
    (7) Application access to Common Clinical Data Set. The following 
technical outcomes and conditions must be met through the demonstration 
of an application programming interface (API) that can respond to 
requests from other applications for data specified within the Common 
Clinical Data Set.
    (i) Security. The API must include a means to establish a trusted 
connection with the application requesting patient data, including a 
means for the requesting application to register with the data source, 
be authorized to request data, and log all interactions between the 
application and the data source.
    (ii) Patient selection. The API must include a means for the 
application to query for an ID or other token of a patient's record in 
order to subsequently execute data requests for that record in 
accordance with paragraph (g)(7)(iii) of this section.
    (iii) Data requests, response scope, and return format. The API 
must enable

[[Page 16914]]

and support both of the following data request interactions:
    (A) Data-category request. The API must support syntax that allows 
it to respond to requests for each of the individual data categories 
specified in the Common Clinical Data Set and return the full set of 
data for that data category (according to the specified standards, 
where applicable) in either XML or JSON.
    (B) All-request. The API must support syntax that allows it to 
respond to a request for all of the data categories specified in the 
Common Clinical Data Set at one time and return such data (according to 
the specified standards, where applicable) in a summary record 
formatted according to the standard adopted at Sec.  170.205(a)(4).
    (iv) Documentation. The API must include accompanying documentation 
that contains, at a minimum:
    (A) API syntax, function names, required and optional parameters 
and their data types, return variables and their types/structures, 
exceptions and exception handling methods and their returns.
    (B) The software components and configurations that would be 
necessary for an application to implement in order to be able to 
successfully interact with the API and process its response(s).
    (v) Terms of use. The terms of use for the API must be provided, 
including, at a minimum, any associated developer policies and required 
developer agreements.
    (8) Accessibility-centered design. For each capability that a 
Health IT Module includes and for which that capability's certification 
is sought, the use of a health IT accessibility-centered design 
standard or law in the development, testing, implementation and 
maintenance of that capability must be identified.
    (i) If a single accessibility-centered design standard or law was 
used for applicable capabilities, it would only need to be identified 
once.
    (ii) If different accessibility-centered design standards and laws 
were applied to specific capabilities, each accessibility-centered 
design standard or law applied would need to be identified. This would 
include the application of an accessibility-centered design standard or 
law to some capabilities and none to others.
    (iii) If no accessibility-centered design standard or law was 
applied to all applicable capabilities such a response is acceptable to 
satisfy this certification criterion.
    (h) Transport methods and other protocols--(1) Direct Project--(i) 
Applicability Statement for Secure Health Transport. Technology must be 
able to send and receive health information in accordance with the 
standards specified in Sec.  170.202(a).
    (ii) Optional--Applicability Statement for Secure Health Transport 
and Delivery Notification in Direct. Technology must be able to send 
and receive health information in accordance with the standard 
specified in Sec.  170.202(e)(1).
    (2) Direct Project, Edge Protocol, and XDR/XDM. Technology must be 
able to send and receive health information in accordance with:
    (i) The standards specified in Sec.  170.202(a);
    (ii) The standard specified in Sec.  170.202(b); and
    (iii) Both edge protocol methods specified by the standard in Sec.  
170.202(d).
    (3) SOAP Transport and Security Specification and XDR/XDM for 
Direct Messaging. Technology must be able to send and receive health 
information in accordance with the standards specified in Sec.  
170.202(b) and (c).
    (4) Healthcare provider directory--query request. In accordance 
with the standard specified in Sec.  170.202(f)(1), technology must be 
able to make, at a minimum, the following queries to a directory and 
subsequently process the response returned:
    (i) Query for an individual provider;
    (ii) Query for an organizational provider;
    (iii) Query for both individual and organizational providers in a 
single query; and
    (iv) Query for relationships between individual and organizational 
providers.
    (v) Optional--federation. In accordance with the standard specified 
in Sec.  170.202(f)(1), technology must be able to process federated 
responses.
    (5) Healthcare provider directory--query response. In accordance 
with the standard specified in Sec.  170.202(f)(1), technology must be 
able to, at a minimum, respond to the following queries to a directory:
    (i) Query for an individual provider;
    (ii) Query for an organizational provider;
    (iii) Query for both individual and organizational providers in a 
single query; and
    (iv) Query for relationships between individual and organizational 
providers.
    (v) Optional--federation. In accordance with the standard specified 
in Sec.  170.202(f)(1), technology must be able to federate queries to 
other directories.
    (i) Administrative--(1) Electronic submission of medical 
documentation--(i) Document templates. Health IT must be able to create 
electronic documents for transmission formatted according to the 
following standard and applicable implementation specifications adopted 
at Sec.  170.205(a)(4) and (a)(5)(i). With respect to Sec.  
170.205(a)(5)(i):
    (A) Health IT must be able to create the following document types 
regardless of the setting for which it is designed: Diagnostic Imaging 
Report; Unstructured Document; Enhanced Operative Note Document; 
Enhanced Procedure Note Document; and Interval Document.
    (B) Ambulatory setting only. Health IT must be able to create an 
Enhanced Encounter Document.
    (C) Inpatient setting only. Health IT must be able to create an 
Enhanced Hospitalization Document.
    (ii) Digital signature. (A) Applying a digital signature. 
Technology must be able to apply a digital signature in accordance with 
the implementation specification adopted at Sec.  170.205(a)(5)(ii) to 
a document formatted according to the following standard and applicable 
implementation specifications adopted at Sec.  170.205(a)(4) and 
(a)(5)(i). It must also be able to demonstrate that it can support the 
method for delegation of right assertions.
    (1) The cryptographic module used as part of the technology must: 
Be validated to meet or exceed FIPS 140-2 Level 1; include a digital 
signature system and hashing that are compliant with FIPS 186-2 and 
FIPS 180-2; and store the private key in a FIPS-140-2 Level 1 validated 
cryptographic module using a FIPS-approved encryption algorithm. This 
requirement may be satisfied through documentation only.
    (2) Technology must support multi-factor authentication that meets 
or exceeds Level 3 assurance as defined in NIST Special Publication 
800-63-2.
    (3) After ten minutes of inactivity, technology must require the 
certificate holder to re-authenticate to access the private key.
    (4) If implemented as a software function, the system must clear 
the plain text private key from the system memory to prevent the 
unauthorized access to, or use of, the private key when the signing 
module is deactivated.
    (5) Technology must record time and date consistent with the 
standard adopted at Sec.  170.210(g).
    (B) Validating a digital signature. Technology must be able 
validate a digital signature that has been applied to a document 
according to the implementation specification adopted at Sec.  
170.205(a)(5)(ii).
    (iii) Author of record level 1. Using the same system capabilities 
expressed

[[Page 16915]]

in paragraph (i)(1)(ii), technology must be able to apply a digital 
signature according to the implementation specification adopted at 
Sec.  170.205(a)(5)(iii) to sign single or bundles of documents a 
document formatted according to the following standard and applicable 
implementation specifications adopted at Sec.  170.205(a)(4) and 
(a)(5)(i).
    (iv) Transactions. Using the same system capabilities expressed in 
paragraph (i)(1)(ii) of this section, technology must be able to apply 
a digital signature according to the implementation specification 
adopted at Sec.  170.205(a)(5)(iv) to a transaction and include the 
signature as accompanying metadata in the signed transaction.
    (2) [Reserved]


Sec. Sec.  170.500, 170.501, 170.502, 170.503, 170.504, 170.505, 
170.510, 170.520, 170.523, 170.525, 170.530, 170.535, 170.540, 170.545, 
170.550, 170.553, 170.555, 170.557, 170.560, 170.565, 170.570, 170.575, 
and 170.599  [Amended]

0
12. In subpart E, consisting of Sec. Sec.  170.500 through 170.599:
0
a. Remove the term ``ONC HIT Certification Program'' and add in its 
place ``ONC Health IT Certification Program'' wherever it may appear;
0
b. Remove the acronym ``HIT'' and add in its place ``health IT'' 
wherever it may appear;
0
c. Remove the term ``EHR Module'' and add in its place ``Health IT 
Module'' wherever it may appear;
0
d. Remove the term ``EHR Modules'' and add in its place ``Health IT 
Modules'' wherever it may appear; and
0
e. Remove the term ``EHR Module(s)'' and add in its place ``Health IT 
Module(s)'' wherever it may appear.
0
13. In Sec.  170.503, revise paragraph (e)(4) to read as follows:


Sec.  170.503  Requests for ONC-AA status and ONC-AA ongoing 
responsibilities.

* * * * *
    (e) * * *
    (4) Verify that ONC-ACBs are performing surveillance as required by 
and in accordance with Sec.  170.556, Sec.  170.523(k), and their 
respective annual plans; and
* * * * *
0
14. Amend Sec.  170.523 by--
0
a. Revising paragraphs (f), (g), (i), and (k); and
0
b. Adding paragraphs (m) and (n).
    The additions and revisions read as follows:


Sec.  170.523  Principles of proper conduct for ONC-ACBs.

* * * * *
    (f) Provide ONC, no less frequently than weekly, a current list of 
Health IT Modules, Complete EHRs, and/or EHR Modules that have been 
certified that includes, at a minimum:
    (1) For the 2015 Edition health IT certification criteria and 
subsequent editions of health IT certification criteria:
    (i) The Health IT Module developer name; product name; product 
version; developer Web site, physical address, email, phone number, and 
contact name;
    (ii) The ONC-ACB Web site, physical address, email, phone number, 
and contact name, contact function/title;
    (iii) The ATL Web site, physical address, email, phone number, and 
contact name, contact function/title;
    (iv) Location and means by which the testing was conducted (e.g., 
remotely with health IT developer at its headquarters location);
    (v) The date(s) the Health IT Module was tested;
    (vi) The date the Health IT Module was certified;
    (vii) The unique certification number or other specific product 
identification;
    (viii) The certification criterion or criteria to which the Health 
IT Module has been certified, including the test procedure and test 
data versions used, test tool version used, and whether any test data 
was altered (i.e., a yes/no) and for what purpose;
    (ix) The way in which each privacy and security criterion was 
addressed for the purposes of certification;
    (x) The standard or mapping used to meet the quality management 
system certification criterion;
    (xi) The standard(s) or lack thereof used to meet the 
accessibility-centered design certification criterion;
    (xii) Where applicable, the hyperlink to access an application 
programming interface (API)'s documentation and terms of use;
    (xiii) Where applicable, which certification criteria were gap 
certified;
    (xiv) Where applicable, if a certification issued was a result of 
an inherited certified status request;
    (xv) Where applicable, the clinical quality measures to which the 
Health IT Module has been certified;
    (xvi) Where applicable, any additional software a Health IT Module 
relied upon to demonstrate its compliance with a certification 
criterion or criteria adopted by the Secretary;
    (xvii) Where applicable, the standard(s) used to meet a 
certification criterion where more than one is permitted;
    (xviii) Where applicable, any optional capabilities within a 
certification criterion to which the Health IT Module was tested and 
certified;
    (xix) Where applicable, and for each applicable certification 
criterion, all of the information required to be submitted by Health IT 
Module developers to meet the safety-enhanced design certification 
criterion. Each user-centered design element required to be reported 
must be at a granular level (e.g., task success/failure)); and
    (xx) Where applicable, for each instance in which a Health IT 
Module failed to conform to its certification and for which corrective 
action was instituted under Sec.  170.556 (provided no provider or 
practice site is identified):
    (A) The specific certification criterion to which the technology 
failed to conform as determined by the ONC-ACB;
    (B) The dates surveillance was initiated and when available, 
completed;
    (C) The results of the surveillance (pass rate for each criterion);
    (D) The number of sites that were used in surveillance;
    (E) The date corrective action began;
    (F) When available, the date correction action ended;
    (G) A summary of the deficiency or deficiencies identified by the 
ONC-ACB as the basis for its determination of non-conformance; and
    (H) When available, the health IT developer's explanation of the 
deficiency or deficiencies identified by the ONC-ACB as the basis for 
its determination of non-conformance.
    (2) For the 2014 Edition EHR certification criteria:
    (i) The Complete EHR or EHR Module developer name (if applicable);
    (ii) The date certified;
    (iii) The product version;
    (iv) The unique certification number or other specific product 
identification;
    (v) The clinical quality measures to which a Complete EHR or EHR 
Module has been certified;
    (vi) Where applicable, any additional software a Complete EHR or 
EHR Module relied upon to demonstrate its compliance with a 
certification criterion or criteria adopted by the Secretary;
    (vii) Where applicable, the certification criterion or criteria to 
which each EHR Module has been certified; and
    (viii) A hyperlink to the test results used to certify the Complete 
EHRs and/or EHR Modules that can be accessed by the public.
    (ix) Where applicable, for each instance in which a Complete EHR or 
EHR Module failed to conform to its certification and for which 
corrective action was instituted under Sec.  170.556 (provided no 
provider or practice site is identified):

[[Page 16916]]

    (A) The specific certification criterion to which the technology 
failed to conform as determined by the ONC-ACB;
    (B) The dates surveillance was initiated and when available, 
completed;
    (C) The results of the surveillance (pass rate for each criterion);
    (D) The number of sites that were used in surveillance;
    (E) The date corrective action began;
    (F) When available, the date corrective action ended;
    (G) A summary of the deficiency or deficiencies identified by the 
ONC-ACB as the basis for its determination of non-conformance; and
    (H) When available, the developer's explanation of the deficiency 
or deficiencies identified by the ONC-ACB as the basis for its 
determination of non-conformance.
    (g) Retain all records related to the certification of Complete 
EHRs and Health IT Modules for a minimum of 6 years and make them 
available to HHS upon request;
* * * * *
    (i) Submit an annual surveillance plan to the National Coordinator 
and, in accordance with its surveillance plan, its accreditation, and 
Sec.  170.556:
    (1) Conduct surveillance of certified Complete EHRs and Health IT 
Modules; and
    (2) Report, at a minimum, on a quarterly basis to the National 
Coordinator the results of its surveillance.
* * * * *
    (k) Ensure adherence to the following requirements when issuing any 
certification and during surveillance of Complete EHRs and Health IT 
Modules the ONC-ACB has certified:
    (1) A Health IT developer must conspicuously include the following 
on its Web site and in all marketing materials, communications 
statements, and other assertions related to the Complete EHR or Health 
IT Module's certification:
    (i) The disclaimer ``This [Complete EHR or Health IT Module] is 
[specify Edition of EHR certification criteria] compliant and has been 
certified by an ONC-ACB in accordance with the applicable certification 
criteria adopted by the Secretary of Health and Human Services. This 
certification does not represent an endorsement by the U.S. Department 
of Health and Human Services. Complaints related to this [Complete EHR 
or Health IT Module]'s certified capabilities or health IT developer's 
disclosures should be submitted to [email protected].''
    (ii) The information an ONC-ACB is required to report to the 
National Coordinator under paragraphs (f)(1) and (2) of this section as 
applicable for the specific Complete EHR or Health IT Module.
    (iii) In plain language, a detailed description of all known 
material information concerning:
    (A) Additional types of costs that a user may be required to pay to 
implement or use the Complete EHR or Health IT Module's capabilities, 
whether to meet meaningful use objectives and measures or to achieve 
any other use within the scope of the health IT's certification.
    (B) Limitations that a user may encounter in the course of 
implementing and using the Complete EHR or Health IT Module's 
capabilities, whether to meet meaningful use objectives and measures or 
to achieve any other use within the scope of the health IT's 
certification.
    (iv) The types of information required to be disclosed under 
paragraph (k)(iii) of this section include but are not limited to:
    (A) Additional types of costs or fees (whether fixed, recurring, 
transaction-based, or otherwise) imposed by a health IT developer (or 
any third-party from whom the developer purchases, licenses, or obtains 
any technology, products, or services in connection with its certified 
health IT) to purchase, license, implement, maintain, upgrade, use, or 
otherwise enable and support the use of capabilities to which health IT 
is certified; or in connection with any data generated in the course of 
using any capability to which health IT is certified.
    (B) Limitations, whether by contract or otherwise, on the use of 
any capability to which technology is certified for any purpose within 
the scope of the technology's certification; or in connection with any 
data generated in the course of using any capability to which health IT 
is certified.
    (C) Limitations, including but not limited to technical or 
practical limitations of technology or its capabilities, that could 
prevent or impair the successful implementation, configuration, 
customization, maintenance, support, or use of any capabilities to 
which technology is certified; or that could prevent or limit the use, 
exchange, or portability of any data generated in the course of using 
any capability to which technology is certified.
    (vi) Health IT self-developers are excluded from the requirements 
of paragraph (k)(1)(iii) of this section.
    (2) A health IT developer must attest as a condition of 
certification to any certification criterion that it will timely 
provide in plain writing, conspicuously, and in sufficient detail:
    (i) To all customers, prior to providing or entering into any 
agreement to provide any certified health IT or related product or 
service (including subsequent updates, add-ons, or additional products 
or services during the course of an on-going agreement), the 
information required to be disclosed under paragraph (k)(1) of this 
section;
    (ii) To any person who requests or receives a quotation, estimate, 
description of services, or other assertion or information from the 
developer in connection with any certified health IT or any 
capabilities thereof, the information required to be disclosed under 
paragraph (k)(1) of this section; and
    (iii) To any person, upon request, all or any part of the 
information required to be disclosed under paragraph (k)(1) of this 
section.
    (3) A certification issued to a pre-coordinated, integrated bundle 
of Health IT Modules shall be treated the same as a certification 
issued to a Complete EHR for the purposes of paragraph (k)(1) of this 
section, except that the certification must also indicate each Health 
IT Module that is included in the bundle; and
    (4) A certification issued to a Complete EHR or Health IT Module 
based solely on the applicable certification criteria adopted by the 
Secretary at subpart C of this part must be separate and distinct from 
any other certification(s) based on other criteria or requirements.
* * * * *
    (m) Obtain a record of all adaptations and updates, including 
changes to user-facing aspects, made to certified Complete EHRs and 
certified Health IT Modules, on a monthly basis each calendar year.
    (n) Submit a list of complaints received to the National 
Coordinator on a quarterly basis that includes the number of complaints 
received, the nature/substance of each complaint, and the type of 
complainant.
0
15. Amend Sec.  170.550 by--
0
a. Redesignating paragraph (g) as paragraph (k);
0
b. Adding paragraphs (g) and (h); and
0
c. Adding reserved paragraph (i) and paragraph (j).
    The additions read as follows:


Sec.  170.550  Health IT Module certification.

* * * * *
    (g) When certifying a Health IT Module to the 2015 Edition health 
IT

[[Page 16917]]

certification criteria, an ONC-ACB must certify the Health IT Module in 
accordance with the certification criteria at:
    (1) Section 170.315(g)(3) if the Health IT Module is presented for 
certification to one or more listed certification criteria in Sec.  
170.315(g)(3);
    (2) Section 170.315(g)(4);
    (3) Section 170.315(g)(5) if the Health IT Module is presented for 
certification to one or more of the certification criteria referenced 
in Sec.  170.315(g)(5);
    (4) Section 170.315(g)(6) if the Health IT Module is presented for 
certification with C-CDA creation capabilities within its scope. If the 
scope of certification sought includes multiple certification criteria 
that require C-CDA creation, Sec.  170.315(g)(6) need only be tested in 
association with one of those certification criteria and would not be 
expected or required to be tested for each; and
    (5) Section 170.315(g)(8).
    (h) Privacy and security certification--(1) General rule. When 
certifying a Health IT Module to the 2015 Edition health IT 
certification criteria, an ONC-ACB can only issue a certification to a 
Health IT Module if the following adopted privacy and security 
certification criteria have also been met as applicable to the specific 
capabilities included for certification:
    (i) Section 170.315(a) is also certified to the certification 
criteria adopted at Sec.  170.315(d)(1) through (7);
    (ii) Section 170.315(b) is also certified to the certification 
criteria adopted at Sec.  170.315(d)(1) through (3) and (d)(5) through 
(8);
    (iii) Section 170.315(c) is also certified to the certification 
criteria adopted at Sec.  170.315(d)(1) through (3);
    (iv) Section 170.315(e) is also certified to the certification 
criteria adopted at Sec.  170.315(d)(1) through (3), (5), and (7);
    (v) Section 170.315(f) is also certified to the certification 
criteria adopted at Sec.  170.315(d)(1) through (3) and (7);
    (vi) Section 170.315(h) is also certified to the certification 
criteria adopted at Sec.  170.315(d)(1) through (3); and
    (vii) Section 170.315(i) is also certified to the certification 
criteria adopted at Sec.  170.315(d)(1) through (3) and (d)(5) through 
(8).
    (2) Methods to demonstrate compliance with each privacy and 
security criterion. One of the following methods must be used to meet 
each applicable privacy and security criterion listed in paragraph 
(h)(1) of this section:
    (i) Directly, by demonstrating a technical capability to satisfy 
the applicable certification criterion or certification criteria; or
    (ii) Demonstrate, through system documentation sufficiently 
detailed to enable integration, that the Health IT Module has 
implemented service interfaces for each applicable privacy and security 
certification criterion that enable the Health IT Module to access 
external services necessary to meet the privacy and security 
certification criterion.
    (i) [Reserved]
    (j) Direct Project transport method. An ONC-ACB can only issue a 
certification to a Health IT Module for Sec.  170.315(h)(1) if the 
Health IT Module's certification also includes Sec.  170.315(b)(1).
* * * * *


Sec.  170.553  [Removed and Reserved]

0
16. Remove and reserve Sec.  170.553.
0
17. Add Sec.  170.556 to read as follows:


Sec.  170.556  In-the-field surveillance and maintenance of 
certification for Health IT.

    (a) In-the-field surveillance. Consistent with its accreditation to 
ISO/IEC 17065 and the requirements of this subpart, an ONC-ACB must 
initiate surveillance ``in the field'' as necessary to assess whether a 
certified Complete EHR or certified Health IT Module continues to 
conform to the requirements of its certification once the certified 
Complete EHR or certified Health IT Module has been implemented and is 
in use in a production environment.
    (1) Production environment. An ONC-ACB's assessment of a certified 
capability in the field must be based on the use of the capability in a 
production environment, which means a live environment in which the 
capabilities have been implemented and are in use.
    (2) Production data. An ONC-ACB's assessment of a certified 
capability in the field must be based on the use of the capability with 
production data unless the use of test data is specifically approved by 
the National Coordinator.
    (b) Reactive surveillance. An ONC-ACB must initiate in-the-field 
surveillance whenever it becomes aware of facts or circumstances that 
would cause a reasonable person to question a certified Complete EHR or 
certified Health IT Module's continued conformance to the requirements 
of its certification.
    (1) Prioritized certification criteria. An ONC-ACB must initiate 
in-the-field surveillance if it identifies a trend of non-conformance 
complaints associated with any certification criteria prioritized by 
the National Coordinator.
    (2) Review of required disclosures. When an ONC-ACB performs 
reactive surveillance under this paragraph (b), it must verify that the 
requirements of Sec.  170.523(k)(1) have been followed as applicable to 
the issued certification.
    (c) Randomized surveillance. An ONC-ACB must initiate in-the-field 
surveillance for at least 10% of the Complete EHRs and Health IT 
Modules to which it has issued a certification. Such surveillance must 
occur on a rolling basis throughout each calendar year.
    (1) Scope. When an ONC-ACB selects a certified Complete EHR or 
certified Health IT Module for randomized surveillance under this 
paragraph, its evaluation of the certified Complete EHR or certified 
Health IT Module must include all certification criteria prioritized by 
the National Coordinator under paragraph (b)(1) of this section that 
are part of the scope of the certification issued to the Complete EHR 
or Health IT Module.
    (2) Rolling surveillance. Randomized surveillance required by this 
paragraph must be completed on an ongoing basis throughout the calendar 
year.
    (3) Random selection. An ONC-ACB must randomly select certified 
Complete EHRs and certified Health IT Modules for surveillance under 
this paragraph.
    (4) Number and types of locations for in-the-field surveillance. 
For each certified Compete EHR or certified Health IT Module selected 
for randomized surveillance under this paragraph (c), an ONC-ACB must 
evaluate the certified Complete EHR or certified Health IT Module's 
capabilities at the lesser of 10 or 5% of locations where the certified 
Complete EHR or certified Health IT Module is implemented and in use in 
the field.
    (5) Results of randomized surveillance--(i) Successful surveillance 
results. A certified Complete EHR or certified Health IT Module will be 
deemed successful under this paragraph if and only if an ONC-ACB 
determines that, for each and every certification criterion evaluated, 
the certified Complete EHR or certified Health IT Module demonstrated 
continued conformance at 80% or more locations.
    (ii) Deficient surveillance results. A certified Complete EHR or 
certified Health IT Module will be deemed deficient under this 
paragraph if an ONC-ACB determines that, for any certification 
criterion evaluated, the Complete EHR or Health IT Module demonstrated 
continued conformance at less than 80% of locations.
    (6) Corrective action plan--(i) Whenever a Complete EHR or Health 
IT Module is deemed deficient pursuant to paragraph (c)(5)(ii) of this 
section, the ONC-ACB must notify the developer of the deficiency and 
require the developer

[[Page 16918]]

to submit a proposed corrective action plan for the applicable 
certification criterion or certification criteria within 30 days of the 
date of said notice.
    (ii) The ONC-ACB shall provide direction to the developer as to the 
required elements of the corrective action plan.
    (iii) The ONC-ACB shall determine the required elements of the 
corrective action plan, consistent with its accreditation and any 
elements specified by the National Coordinator. At a minimum, any 
corrective action plan submitted by a developer to an ONC-ACB must 
include:
    (A) A description of the identified deficiencies;
    (B) An assessment of how widespread or isolated the identified 
deficiencies may be across the developer's install base for certified 
Complete EHR or certified Health IT Module;
    (C) How the developer will address the identified conformance 
deficiencies in general and at the locations under which surveillance 
occurred; and
    (D) The timeframe under which corrective action will be completed.
    (7) Certificate suspension procedures in the context of randomized 
surveillance and corrective action plans. Under this section and 
consistent with an ONC-ACB's accreditation to ISO/IEC 17065 and 
procedures for suspending a certification, an ONC-ACB is permitted to 
initiate certificate suspension procedures for the Complete EHR or 
Health IT Module if the developer thereof:
    (i) Does not submit a proposed corrective action plan to the ONC-
ACB within 30 days of being notified of its deficient surveillance 
results;
    (ii) Does not comply with the ONC-ACB's directions for addressing 
any aspects of the proposed corrective action plan that do not meet the 
requirements of the ONC-ACB or the ONC Health IT Certification Program; 
or
    (iii) Does not complete an approved corrective action plan within 6 
months of approval of the plan by the ONC-ACB.
    (8) Certificate termination procedures in the context of randomized 
surveillance. If a certified Complete EHR or certified Health IT 
Module's certification has been suspended in the context of randomized 
surveillance under this paragraph, an ONC-ACB is permitted to initiate 
certification termination procedures for the Complete EHR or Health IT 
Module (consistent with its accreditation to ISO/IEC 17065 and 
procedures for terminating a certification) when the developer has not 
completed the actions necessary to reinstate the suspended 
certification.
    (9) Prohibition on consecutive selection for randomized 
surveillance. An ONC-ACB is prohibited from selecting a certified 
Complete EHR or certified Health IT Module for randomized surveillance 
under this paragraph more than once during any consecutive 12 month 
period. This limitation does not apply to reactive and other forms of 
surveillance required under this subpart and the ONC-ACB's 
accreditation.
    (d) Reporting of surveillance results requirements--(1) Rolling 
submission of in-the-field surveillance results. The results of in-the-
field surveillance under this section must be submitted to the National 
Coordinator on an ongoing basis throughout the calendar year.
    (2) Confidentiality of locations evaluated. The contents of an ONC-
ACB's surveillance results submitted to the National Coordinator must 
not include any information that would identify any user or location 
that participated in or was subject to surveillance.
    (3) Reporting of corrective action plans. When a corrective action 
plan is initiated for a Complete EHR or Health IT Module, an ONC-ACB 
must report the Complete EHR or Health IT Module (and its product 
identification information) to the National Coordinator in accordance 
with Sec.  170.523(f)(1)(xix) or (f)(2)(ix), as applicable.
    (e) Relationship to other surveillance requirements. Nothing in 
this section shall be construed to limit or constrain an ONC-ACB's 
general ability to perform surveillance, including in-the-field 
surveillance, on any certified Complete EHR or certified Health IT 
Module at any time, as determined appropriate by the ONC-ACB.

    Dated: March 18, 2015.
Sylvia M. Burwell,
Secretary.

    Note: The following appendix will not appear in the Code of 
Federal Regulations.


[[Page 16919]]



                                                Appendix A--2015 Edition Health IT Certification Criteria
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                                                         Relationship to
                                          Estimated     Proposed privacy                                                                  the proposed
                                           average        and security        Conditional                                                  CEHRT \272\
   Proposed CFR       Certification     developmental    certification       certification    Gap certification  Proposed inclusion in   definition and
     citation           criterion        hours \270\      requirements    requirements (Sec.     eligibility     2015 edition base EHR    proposed EHR
                                         av. low/av.    \271\ (Approach         170.550)                               definition           Incentive
                                            high               1)                                                                       Programs Stage 3
                                                                                                                                           objectives
--------------------------------------------------------------------------------------------------------------------------------------------------------
Sec.                Computerized                 0/50  Sec.               Sec.                Sec.               Included \273\.......  Objective 4.
 170.315(a)(1).      Provider Order                     170.315(d)(1)      170.315(g)(3)       170.314(a)(1)
                     Entry (CPOE)--                     through (d)(7).   Sec.                Sec.
                     medications.                                          170.315(g)(4)       170.314(a)(18).
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                CPOE--laboratory.     1,000/2,000  Sec.               Sec.                Not eligible.....  Included \274\.......  Objective 4.
 170.315(a)(2).                                         170.315(d)(1)      170.315(g)(3)
                                                        through (d)(7).   Sec.
                                                                           170.315(g)(4)
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                CPOE--diagnostic             0/50  Sec.               Sec.                Sec.               Included \275\.......  Objective 4.
 170.315(a)(3).      imaging.                           170.315(d)(1)      170.315(g)(3)       170.314(a)(1)
                                                        through (d)(7).   Sec.                Sec.
                                                                           170.315(g)(4)       170.314(a)(20).
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Drug-drug, Drug-          400/800  Sec.               Sec.                Not eligible.....  Not included.........  Objective 3.
 170.315(a)(4).      allergy                            170.315(d)(1)      170.315(g)(3)
                     Interaction                        through (d)(7).   Sec.
                     Checks for CPOE.                                      170.315(g)(4)
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Demographics.....       500/1,000  Sec.               Sec.                Not eligible.....  Included.............  No additional
 170.315(a)(5).                                         170.315(d)(1)      170.315(g)(3)                                                 relationship
                                                        through (d)(7).   Sec.                                                           beyond the Base
                                                                           170.315(g)(4)                                                 EHR Definition.
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Vital Signs, BMI,         614/922  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(a)(6).      and Growth                         170.315(d)(1)      170.315(g)(3)
                     Charts.                            through (d)(7).   Sec.
                                                                           170.315(g)(4)
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Problem List.....         100/200  Sec.               Sec.                Not eligible.....  Included.............  No additional
 170.315(a)(7).                                         170.315(d)(1)      170.315(g)(3)                                                 relationship
                                                        through (d)(7).   Sec.                                                           beyond the Base
                                                                           170.315(g)(4)                                                 EHR Definition.
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Medication List..            0/50  Sec.               Sec.                Sec.               Included.............  No additional
 170.315(a)(8).                                         170.315(d)(1)      170.315(g)(3)       170.314(a)(6).                            relationship
                                                        through (d)(7).   Sec.                                                           beyond the Base
                                                                           170.315(g)(4)                                                 EHR Definition.
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Medication                   0/50  Sec.               Sec.                Sec.               Included.............  No additional
 170.315(a)(9).      Allergy List.                      170.315(d)(1)      170.315(g)(3)       170.314(a)(7).                            relationship
                                                        through (d)(7).   Sec.                                                           beyond the Base
                                                                           170.315(g)(4)                                                 EHR Definition.
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Clinical Decision       600/1,200  Sec.               Sec.                Not eligible.....  Included.............  Objective 3.
 170.315(a)(10).     Support.                           170.315(d)(1)      170.315(g)(3)
                                                        through (d)(7).   Sec.
                                                                           170.315(g)(4)
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Drug-formulary            310/620  Sec.               Sec.                Not eligible.....  Not included.........  Objective 2.
 170.315(a)(11).     and Preferred                      170.315(d)(1)      170.315(g)(4)
                     Drug List Checks.                  through (d)(7).   Sec.
                                                                           170.315(g)(8)
Sec.                Smoking Status...         100/200  Sec.               Sec.                Not eligible.....  Included.............  No additional
 170.315(a)(12).                                        170.315(d)(1)      170.315(g)(4)                                                 relationship
                                                        through (d)(7).   Sec.                                                           beyond the Base
                                                                           170.315(g)(8)                                                 EHR Definition.
Sec.                Image Results....            0/20  Sec.               Sec.                Sec.               Not included.........  No relationship.
 170.315(a)(13).                                        170.315(d)(1)      170.315(g)(4)       170.314(a)(12).
                                                        through (d)(7).   Sec.
                                                                           170.315(g)(8)
Sec.                Family Health             100/200  Sec.               Sec.                Not eligible.....  Not included.........  CEHRT.\276\
 170.315(a)(14).     History.                           170.315(d)(1)      170.315(g)(4)
                                                        through (d)(7).   Sec.
                                                                           170.315(g)(8)
Sec.                Family Health           500/1,200  Sec.               Sec.                Not eligible.....  Not included.........  CEHRT.\277\
 170.315(a)(15).     History--pedigre                   170.315(d)(1)      170.315(g)(4)
                     e.                                 through (d)(7).   Sec.
                                                                           170.315(g)(8)
Sec.                Patient List                 0/20  Sec.               Sec.                Sec.               Not included.........  No relationship.
 170.315(a)(16).     Creation.                          170.315(d)(1)      170.315(g)(4)       170.314(a)(14).
                                                        through (d)(7).   Sec.
                                                                           170.315(g)(8)
Sec.                Patient-specific        600/1,200  Sec.               Sec.                Not eligible.....  Not included.........  Objective 5.
 170.315(a)(17).     Education                          170.315(d)(1)      170.315(g)(4)
                     Resources.                         through (d)(7).   Sec.
                                                                           170.315(g)(8)
Sec.                Electronic                   0/20  Sec.               Sec.                Sec.               Not included.........  No relationship.
 170.315(a)(18).     Medication                         170.315(d)(1)      170.315(g)(3)       170.314(a)(16).
                     Administration                     through (d)(7).   Sec.
                     Record.                                               170.315(g)(4)
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Patient Health          500/1,000  Sec.               Sec.                Not eligible.....  Not included.........  CEHRT
 170.315(a)(19).     Information                        170.315(d)(1)      170.315(g)(4)                                                Objective 6.
                     Capture.                           through (d)(7).   Sec.
                                                                           170.315(g)(8)
Sec.                Implantable           1,100/1,700  Sec.               Sec.                Not eligible.....  Included.............  No additional
 170.315(a)(20).     Device List.                       170.315(d)(1)      170.315(g)(3)                                                 relationship
                                                        through (d)(7).   Sec.                                                           beyond the Base
                                                                           170.315(g)(4)                                                 EHR Definition.
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Social,                   235/470  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(a)(21).     Psychological,                     170.315(d)(1)      170.315(g)(4)
                     and Behavioral                     through (d)(7).   Sec.
                     Data.                                                 170.315(g)(8)
Sec.                Decision Support--        394/788  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(a)(22).     knowledge                          170.315(d)(1)      170.315(g)(3)
                     artifact.                          through (d)(7).   Sec.
                                                                           170.315(g)(4)
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Decision Support--        229/458  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(a)(23).     service.                           170.315(d)(1)      170.315(g)(3)
                                                        through (d)(7).   Sec.
                                                                           170.315(g)(4)
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Transitions of        1,550/3,100  Sec.               Sec.                Not eligible.....  Included.............  Objective 7.
 170.315(b)(1).      Care.                              170.315(d)(1)      170.315(g)(4)
                                                        through (d)(3)    Sec.
                                                        and (d)(5)         170.315(g)(6)
                                                        through (d)(8).   Sec.
                                                                           170.315(g)(8)
Sec.                Clinical                600/1,200  Sec.               Sec.                Not eligible.....  Not included.........  Objective 7.
 170.315(b)(2).      Information                        170.315(d)(1)      170.315(g)(3)
                     Reconciliation                     through (d)(3)    Sec.
                     and                                and (d)(5)         170.315(g)(4)
                     Incorporation.                     through (d)(8).   Sec.
                                                                           170.315(g)(6)
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Electronic            1,050/2,100  Sec.               Sec.                Not eligible.....  Not included.........  Objective 2.
 170.315(b)(3).      Prescribing.                       170.315(d)(1)      170.315(g)(3)
                                                        through (d)(3)    Sec.
                                                        and (d)(5)         170.315(g)(4)
                                                        through (d)(8).   Sec.
                                                                           170.315(g)(8)
Sec.                Incorporate               313/626  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(b)(4).      Laboratory Tests                   170.315(d)(1)      170.315(g)(3)
                     and Values/                        through (d)(3)    Sec.
                     Results.                           and (d)(5)         170.315(g)(4)
                                                        through (d)(8).   Sec.
                                                                           170.315(g)(8)
Sec.                Transmission of           360/720  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(b)(5).      Laboratory Test                    170.315(d)(1)      170.315(g)(4)
                     Reports.                           through (d)(3)    Sec.
                                                        and (d)(5)         170.315(g)(8)
                                                        through (d)(8).
Sec.                Data Portability.       800/1,200  Sec.               Sec.                Not eligible.....  Included.............  No additional
 170.315(b)(6).                                         170.315(d)(1)      170.315(g)(4)                                                 relationship
                                                        through (d)(3)    Sec.                                                           beyond the Base
                                                        and (d)(5)         170.315(g)(6)                                                 EHR Definition.
                                                        through (d)(8).   Sec.
                                                                           170.315(g)(8)
Sec.                Data Segmentation         450/900  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(b)(7).      for Privacy--                      170.315(d)(1)      170.315(g)(4)
                     send.                              through (d)(3)    Sec.
                                                        and (d)(5)         170.315(g)(6)
                                                        through (d)(8).   Sec.
                                                                           170.315(g)(8)

[[Page 16920]]

 
Sec.                Data Segmentation         450/900  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(b)(8).      for Privacy--                      170.315(d)(1)      170.315(g)(4)
                     receive.                           through (d)(3)    Sec.
                                                        and (d)(5)         170.315(g)(8)
                                                        through (d)(8).
Sec.                Care Plan........         300/500  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(b)(9).                                         170.315(d)(1)      170.315(g)(4)
                                                        through (d)(3)    Sec.
                                                        and (d)(5)         170.315(g)(6)
                                                        through (d)(8).   Sec.
                                                                           170.315(g)(8)
Sec.                Clinical Quality          200/500  Sec.               Sec.                Not eligible.....  Included.............  CEHRT.
 170.315(c)(1).      Measures--record                   170.315(d)(1)      170.315(g)(4)
                     and export.                        through (d)(3).   Sec.
                                                                           170.315(g)(8)
Sec.                Clinical Quality            0/200  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(c)(2).      Measures--import                   170.315(d)(1)      170.315(g)(4)
                     and calculate.                     through (d)(3).   Sec.
                                                                           170.315(g)(8)
Sec.                Reserved for             Reserved  Sec.               Sec.                Reserved.........  Reserved.............  Reserved.\278\
 170.315(c)(3).      Clinical Quality                   170.315(d)(1)      170.315(g)(4)
                     Measures--record.                  through (d)(3).   Sec.
                                                                           170.315(g)(8)
Sec.                Clinical Quality          316/632  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(c)(4).      Measures--filter.                  170.315(d)(1)      170.315(g)(4)
                                                        through (d)(3).   Sec.
                                                                           170.315(g)(8)
Sec.                Authentication,              0/50  Not applicable (N/ Sec.                Sec.               Not included.........  No relationship.
 170.315(d)(1).      Access Control,                    A).                170.315(g)(4)       170.314(d)(1).
                     Authorization.                                       Sec.
                                                                           170.315(g)(8)
Sec.                Auditable Events             0/50  N/A..............  Sec.                Sec.               Not included.........  No relationship.
 170.315(d)(2).      and Tamper-                                           170.315(g)(4)       170.314(d)(2).
                     resistance.                                          Sec.
                                                                           170.315(g)(8)
Sec.                Audit Report(s)..            0/50  N/A..............  Sec.                Sec.               Not included.........  No relationship.
 170.315(d)(3).                                                            170.315(g)(4)       170.314(d)(3).
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Amendments.......            0/50  N/A..............  Sec.                Sec.               Not included.........  No relationship.
 170.315(d)(4).                                                            170.315(g)(4)       170.314(d)(4).
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Automatic Access             0/50  N/A..............  Sec.                Sec.               Not included.........  No relationship.
 170.315(d)(5).      Time-out.                                             170.315(g)(4)       170.314(d)(5).
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Emergency Access.            0/50  N/A..............  Sec.                Sec.               Not included.........  No relationship.
 170.315(d)(6).                                                            170.315(g)(4)       170.314(d)(6).
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                End-User Device              0/50  N/A..............  Sec.                Sec.               Not included.........  No relationship.
 170.315(d)(7).      Encryption.                                           170.315(g)(4)       170.314(d)(7).
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Integrity........            0/50  N/A..............  Sec.                Sec.               Not included.........  No relationship.
 170.315(d)(8).                                                            170.315(g)(4)       170.314(d)(8).
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Accounting of                0/20  N/A..............  Sec.                Sec.               Not included.........  No relationship.
 170.315(d)(9).      Disclosures.                                          170.315(g)(4)       170.314(d)(9).
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                View, Download,       1,000/2,000  Sec.               Sec.                Not eligible.....  Not included.........  Objective 5
 170.315(e)(1).      and Transmit to                    170.315(d)(1)      170.315(g)(4)                                                Objective 6.
                     3rd Party.                         through (d)(3),   Sec.
                                                        (d)(5), and        170.315(g)(6)
                                                        (d)(7).           Sec.
                                                                           170.315(g)(8)
Sec.                Secure Messaging.            0/50  Sec.               Sec.                Sec.               Not included.........  Objective 6.
 170.315(e)(2).                                         170.315(d)(1)      170.315(g)(4)       170.314(e)(3).
                                                        through (d)(3),   Sec.
                                                        (d)(5), and        170.315(g)(8)
                                                        (d)(7).
Sec.                Transmission to         680/1,360  Sec.               Sec.                Not eligible.....  Not included.........  Objective
 170.315(f)(1).      Immunization                       170.315(d)(1)      170.315(g)(4)                                                 8.\279\
                     Registries.                        through (d)(3)    Sec.
                                                        and (d)(7).        170.315(g)(8)
Sec.                Transmission to           480/960  Sec.               Sec.                Not eligible.....  Not included.........  Objective 8.
 170.315(f)(2).      Public Health                      170.315(d)(1)      170.315(g)(4)
                     Agencies--syndro                   through (d)(3)    Sec.
                     mic surveillance.                  and (d)(7).        170.315(g)(8)
Sec.                Transmission to         520/1,040  Sec.               Sec.                Not eligible.....  Not included.........  Objective 8.
 170.315(f)(3).      Public Health                      170.315(d)(1)      170.315(g)(4)
                     Agencies--report                   through (d)(3)    Sec.
                     able laboratory                    and (d)(7).        170.315(g)(8)
                     tests and values/
                     results.
Sec.                Transmission to         500/1,000  Sec.               Sec.                Not eligible.....  Not included.........  Objective 8.
 170.315(f)(4).      Cancer                             170.315(d)(1)      170.315(g)(4)
                     Registries.                        through (d)(3)    Sec.
                                                        and (d)(7).        170.315(g)(8)
Sec.                Transmission to         500/1,000  Sec.               Sec.                Not eligible.....  Not included.........  Objective 8.
 170.315(f)(5).      Public Health                      170.315(d)(1)      170.315(g)(4)
                     Agencies--case                     through (d)(3)    Sec.
                     reporting.                         and (d)(7).        170.315(g)(8)
Sec.                Transmission to         500/1,000  Sec.               Sec.                Not eligible.....  Not included.........  Objective 8.
 170.315(f)(6).      Public Health                      170.315(d)(1)      170.315(g)(4)
                     Agencies--antimi                   through (d)(3)    Sec.
                     crobial use and                    and (d)(7).        170.315(g)(8)
                     resistance
                     reporting.
Sec.                Transmission to         500/1,000  Sec.               Sec.                Not eligible.....  Not included.........  Objective 8.
 170.315(f)(7).      Public Health                      170.315(d)(1)      170.315(g)(4)
                     Agencies--health                   through (d)(3)    Sec.
                     care surveys.                      and (d)(7).        170.315(g)(8)
Sec.                Automated                 400/800  N/A..............  Sec.                Fact-specific....  Not included.........  CEHRT.
 170.315(g)(1).      Numerator                                             170.315(g)(4)
                     Recording.
Sec.                Automated Measure       600/1,200  N/A..............  Sec.                Fact-specific....  Not included.........  CEHRT.
 170.315(g)(2).      Calculation.                                          170.315(g)(4)
Sec.                Safety-Enhanced           300/600  N/A..............  N/A                 Fact-specific....  Not included.........  No relationship.
 170.315(g)(3).      Design.
Sec.                Quality                   400/800  N/A..............  N/A                 Not eligible.....  Not included.........  No relationship.
 170.315(g)(4).      Management
                     System.
Sec.                Accessibility            800/1400  N/A..............  N/A                 Not eligible.....  Not included.........  No relationship.
 170.315(g)(5).      Technology
                     Compatibility.
Sec.                Consolidated CDA        400/1,000  N/A..............  N/A                 Not eligible.....  Not included.........  No relationship.
 170.315(g)(6).      Creation
                     Performance.
Sec.                Application             500/1,000  N/A..............  Sec.                Not eligible.....  Included.............  Objective 5
 170.315(g)(7).      Access to Common                                      170.315(g)(4)                                                Objective 6.
                     Clinical Data                                        Sec.
                     Set.                                                  170.315(g)(6)
                                                                          Sec.
                                                                           170.315(g)(8)
Sec.                Accessibility-             50/100  N/A..............  N/A                 Not eligible.....  Not included.........  No relationship.
 170.315(g)(8).      Centered Design.
Sec.                Direct Project...            0/50  Sec.               Sec.                Sec.               Included \280\.......  No relationship
 170.315(h)(1).                                         170.315(d)(1)      170.315(b)(1)       170.314(b)(1)(i)                          beyond the Base
                                                        through (d)(3).   Sec.                 (A) and Sec.                              EHR Definition.
                                                                           170.315(g)(4)       170.314(b)(2)(ii
                                                                          Sec.                 )(A)
                                                                           170.315(g)(8)      Sec.
                                                                                               170.314(h)(1).

[[Page 16921]]

 
Sec.                Direct Project,              0/50  Sec.               Sec.                Sec.               Included \282\.......  No relationship
 170.315(h)(2).      Edge Protocol,                     170.315(d)(1)      170.315(g)(4)       170.314(b)(1)(i)                          beyond the Base
                     and XDR/XDM.                       through (d)(3).   Sec.                 (B), Sec.                                 EHR Definition.
                                                                           170.315(g)(8)       170.314(b)(2)(ii
                                                                                               )(B), and Sec.
                                                                                               170.314(b)(8)
                                                                                               \281\
                                                                                              170.314(b)(8)
                                                                                               \283\ and
                                                                                               170.314(h)(2).
Sec.                SOAP Transport               0/20  Sec.               Sec.                Sec.               Not included.........  No relationship.
 170.315(h)(3).      and Security                       170.315(d)(1)      170.315(g)(4)       170.314(b)(1)(i)
                     Specification                      through (d)(3).   Sec.                 (C) and Sec.
                     and XDR/XDR for                                       170.315(g)(8)       170.314(b)(2)(ii
                     Direct Messaging.                                                         )(C)
                                                                                              Sec.
                                                                                               170.314(h)(3).
Sec.                Healthcare                120/240  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(h)(4).      Provider                           170.315(d)(1)      170.315(g)(4)
                     Directory--query                   through (d)(3).   Sec.
                     request.                                              170.315(g)(8)
Sec.                Healthcare                120/240  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(h)(5).      Provider                           170.315(d)(1)      170.315(g)(4)
                     Directory--query                   through (d)(3).   Sec.
                     response.                                             170.315(g)(8)
Sec.                Electronic               1000/200  Sec.               Sec.                Not eligible.....  Not included.........  No relationship.
 170.315(j)(1).      Submission of                      170.315(d)(1)      170.315(g)(4)
                     Medical                            through (d)(3)    Sec.
                     Documentation.                     and (d)(5)         170.315(g)(6)
                                                        through (d)(8).   Sec.
                                                                           170.315(g)(8)
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    \270\ Please see section VIII (``Regulatory Impact Statement'') 
of the preamble for information on how estimated development hours 
were calculated. To note, certification to the 2014 Edition serves 
as a foundation for estimating costs. For unchanged certification 
criteria, in establishing our cost estimates for this proposed rule, 
we used burden hours multiplied by all health IT developers 
previously certified to the 2014 Edition version of the 
certification criteria to account for new entrants. These burden 
hour estimates are not estimates for development of a new product to 
meet one or more of these certification criteria. For certification 
criteria not associated with the EHR Incentive Programs Stage 3, 
there is a 60% reduction in burden hours. This reduction is due to 
our estimate that health IT developers would develop 1 product 
instead of 2.5 products to each of the certification criteria.
    \271\ We propose to require that an ONC-ACB must ensure that a 
Health IT Module presented for certification to any of the 
certification criteria that fall into the regulatory functional 
categories of Sec.  170.315 for which privacy and security 
certification requirements apply either pursues approach 1 (detailed 
in the table) or approach 2: Demonstrate, through system 
documentation sufficiently detailed to enable integration, that the 
Health IT Module has implemented service interfaces for each 
applicable privacy and security certification criterion that enable 
the Health IT Module to access external services necessary to meet 
the privacy and security certification criterion.
    \272\ CMS' CEHRT definition would include the criteria adopted 
in the Base EHR definition. For more details on the CEHRT 
definition, please see the CMS EHR Incentive Programs proposed rule 
published elsewhere in this issue of the Federal Register.
    \273\ Technology needs to be certified to Sec.  170.315(a)(1), 
(a)(2), or (a)(3).
    \274\ Technology needs to be certified to Sec.  170.315(a)(1), 
(a)(2), or (a)(3).
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    \275\ Technology needs to be certified to Sec.  170.315(a)(1), 
(a)(2), or (a)(3).
    \276\ Technology needs to be certified to Sec.  170.315(a)(14) 
or (a)(15).
    \277\ Technology needs to be certified to Sec.  170.315(a)(14) 
or (a)(15).
    \278\ As discussed in the preamble for the ``clinical quality 
measures--report'' criterion, additional CQM certification policy 
may be proposed in or with CMS payment rules in CY15. As such, 
additional CQM certification criteria may be proposed for the Base 
EHR and/or CEHRT definitions.
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    \279\ For the public health certification criteria in Sec.  
170.315(f), technology would only need to be certified to those 
criteria that are required to meet the options the provider intends 
to report in order to meet the proposed Objective 8: Public Health 
and Clinical Data Registry Reporting.
    \280\ Technology needs to be certified to Sec.  170.315(h)(1) or 
(h)(2).
    \281\ Technology must have been certified to both edge protocol 
methods specified by the standard in Sec.  170.202(d) to be gap 
certification eligible.
    \282\ Technology needs to be certified to Sec.  170.315(h)(1) or 
(h)(2).
    \283\ Technology must have been certified to both edge protocol 
methods specified by the standard in Sec.  170.202(d) to be gap 
certification eligible.
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[FR Doc. 2015-06612 Filed 3-20-15; 3:00 pm]
 BILLING CODE 4150-45-P