GP Bulk-Billing on the Rise: A Deep Dive into New Data and Policy Impact

New analyses indicate an increase in general practitioner (GP) bulk-billing rates across Australia following federal government incentives introduced in November. While an online health directory reports a near doubling of fully bulk-billing clinics, government data shows a national rise in bulk-billing consultations, described as the largest quarterly increase on record outside of the COVID-19 pandemic. Discrepancies exist between the data sets, and various stakeholders offer perspectives on the policy's impact and ongoing challenges in healthcare access.

Recent data suggests a notable shift in Australia's GP bulk-billing landscape, driven by new federal government incentives. This has sparked debate, with varying reports from different sources and experts offering cautious optimism alongside concerns about systemic issues in healthcare access and funding.

Conflicting Reports: Cleanbill vs. Government Data

Two major analyses present different, yet generally positive, pictures of the bulk-billing trend.

Cleanbill's Analysis: A Near Doubling of Fully Bulk-Billing Clinics

An analysis released in January by the online health directory Cleanbill reported a significant increase in fully bulk-billing clinics nationally.

• The proportion of fully bulk-billing clinics reached 40.2% by the end of 2025, a substantial rise from 20.7% the previous year.
• Based on data from approximately 6,900 GP clinics, Cleanbill identified 1,007 clinics that transitioned from private or mixed billing to full bulk-billing since the beginning of last year.

Government's Perspective: Largest Quarterly Increase on Record

Federal government data also shows a strong upward trend in bulk-billing rates.

• Australian bulk-billing rates increased to 81.4% nationwide between November 2025 and January of this year, up from 77.6% recorded in the July to September quarter of the previous year.
• Federal Health Minister Mark Butler stated this represented the largest quarterly increase on record, excluding the period when COVID-19 vaccine consultations were mandatorily bulk-billed.

Despite both data sets pointing to an increase, the specific figures and methodologies differ, leading to some discrepancies in the overall picture.

Government Policy: Incentives and Goals

The federal government's initiatives stem from a pre-election commitment in 2025, forming part of an $8.5 billion plan aimed at addressing rising healthcare costs. The overarching goal is to achieve free GP visits for nine out of ten patients by 2030.

Expanded Bulk-Billing Incentives

Effective from November, the policy introduced a significant boost to incentives:

• An additional 12.5% payment on Medicare benefits is now provided for practices that bulk bill all eligible patients for all eligible services.
• Previously, most incentives were primarily available for children under 16 and Commonwealth concession card holders.
• Under the expanded incentives, any GP who bulk-bills now receives a Medicare payment combining the rebate and an incentive payment, amounting to approximately $63.50 for a standard metropolitan consultation.
• Clinics that bulk-bill all patients also receive an extra quarterly payment, set at 12.5% of their Medicare billing.

Minister Butler indicated that government data shows over 3,200 practices are now fully bulk-billing since November, with approximately 1,200 of these having previously been mixed-billing practices.

Other Healthcare Initiatives

The government also cited other key initiatives contributing to healthcare access:

• The establishment of Medicare urgent care clinics.
• The launch of the 1800Medicare health advice line.
• An increase to close to 7,500 general practices registered with MyMedicare since November 1, 2025.
• Plans for additional initiatives in specific regions, including the establishment of three new bulk-billed GP practices in Canberra.

Methodological Differences Fuel Debate

The reliability of the data has become a point of contention.

Federal Health Minister Mark Butler challenged the Cleanbill analysis, stating that its data "cannot be relied upon and should not be reported as accurate" because it did not include clinics that failed to respond to their inquiries.

Cleanbill's methodology involved contacting 6,877 clinics between November 1 and mid-December 2025. Their report focused on 1,007 clinics that had transitioned from private or mixed billing to full bulk-billing since the beginning of 2025. Cleanbill clarified that clinics unreachable or unwilling to provide information were excluded from pricing and availability calculations if costs could not be independently verified.

Conversely, government figures indicate over 3,400 Medicare Bulk Billing Practices nationally, with 1,300 of these previously operating under a mixed-billing model.

Regional Disparities and Patient Costs

Cleanbill's data also illuminated significant regional differences in bulk-billing rates and the financial burden on patients.

Uneven Bulk-Billing Across States

• Australian Capital Territory (ACT): Approximately 12 of 101 responding clinics (11.1%) reported full bulk-billing, despite 96% stating they were accepting new patients. The average standard consultation fee in the ACT reached approximately $100.33, with average patient out-of-pocket expenses of $58, the highest in the country. Patients in Canberra specifically reported difficulties accessing affordable medical care.
• New South Wales: 51.9% of 2,342 clinics reported fully bulk-billing, experiencing one of the most significant increases in the share of bulk-billing clinics.
• Victoria: 43.6% of 1,793 clinics reported fully bulk-billing.
• Western Australia: Approximately 130 (19.8%) of 657 contacted clinics stated they fully bulk-billed, with 95% reporting taking new patients.
• Northern Territory: Experienced a significant increase in the share of bulk-billing clinics.

Rising Out-of-Pocket Expenses

The Cleanbill analysis indicated a 13.5% increase over the year in out-of-pocket costs for patients who are not bulk-billed.

• Nationally, the average out-of-pocket cost for patients not bulk-billed increased to approximately $49.30.
• In the ACT and Tasmania, the average total cost for a standard GP consultation surpassed $100, resulting in average patient out-of-pocket expenses of $58 and $61, respectively.

Expert Perspectives: Successes, Challenges, and Future Directions

Healthcare professionals and policy experts offer nuanced views on the impact of the new incentives.

Cautious Optimism from Academics

Dr. Caroline Johnson, a GP and associate professor at the University of Melbourne, described the increase in bulk-billing as "pleasing" to the federal government, suggesting a positive outcome from government interventions.

However, Dr. Johnson noted that while affordable healthcare access is important, affordability is one aspect of overall access, which also includes whether care is acceptable, appropriate, and timely. She stated it is "too early" to deem the changes a complete success, with the true test being patient experience.

Structural Concerns Remain

Peter Breadon, health program director at the Grattan Institute, commented that the increase in bulk-billing was expected given the new incentives.

However, he stated that the changes have not addressed underlying structural issues in general practice, leading to ongoing disparities in care access, particularly for vulnerable patients.

Breadon also raised concerns that the expanded incentive applies universally rather than prioritizing those with the greatest need, noting that previous incentives were linked to concession card holders or children. He suggested a different approach to funding general practice is required to target areas with GP shortages and better support clinics serving disadvantaged and low-income patients. He also added that more comprehensive Medicare data from the health department would provide a more accurate picture than Cleanbill's data.

RACGP Calls for Increased Funding

Michael Wright, president of the Royal Australian College of General Practitioners (RACGP), affirmed that bulk-billing levels remain high, with most GPs continuing to bulk-bill the majority of consultations.

However, Dr. Wright raised concerns that Medicare rebates are not keeping pace with the actual cost of care, citing RACGP data suggesting an increase in the average length and complexity of appointments. He called for an increase in Medicare funding, particularly for longer consultations required by patients with complex health conditions.

Sector Skepticism

Within the healthcare sector, some skepticism remains regarding the full attainability of the government's promise, with concerns raised about the potential for shorter consultations and compromised quality of care. Some medical professionals suggest the incentives may not fully compensate for the costs of bulk-billing every patient, which could affect practice budgets.

Historical Context

Bulk-billing rates are historically influenced by higher rates for children and elderly individuals. The Coalition previously referenced a pre-COVID annual bulk-billing rate of 86% in 2019 when they were in power. The current Labor government has not provided interim bulk-billing rate targets for the period between now and 2030.