Supplemental Material to the CMS Measures Management System (MMS) Hub

Codes, Code Systems, and

Value Sets
1 Code Systems/Vocabularies/Terminologies...................... 2
1.1 Encoding Clinical Information.................................... 2
1.2 Quality Data Model (QDM) Categories with
Recommended Code Systems ........................... 3
1.3 Use of Specific Code Systems .................................... 3
2 Value Sets ........................................................................ 10
2.1 Use of Value Sets ..................................................... 10
2.2 Constructing Value Sets........................................... 11
2.3 Representing the Codes for Inclusion...................... 11
2.4 Determining the Value Set Code System................. 12
2.5 Value Set Metadata ................................................. 13
2.6 Value Set Versioning................................................ 15
2.7 Including Historical Codes ....................................... 15
2.8 Value Set Mapping................................................... 16
2.9 Value Set Reuse ................................................. 16
3 Value Set Authority Center.............................................. 17
4 VSAC Collaboration Tool.................................................. 18
5 Unique Situations for Value Set Use in eCQMS ........ 18
5.1 Use of Value Sets to Address Negation Rationale in
eCQMs .................................................................... 18
5.2 Value Set Review ..................................................... 19
6 Key Points ........................................................................ 21
References ......................................................................... 22

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Supplemental Material to the CMS MMS Hub Codes, Code Systems, and Value Sets

This document provides information about codes, code systems, and value sets used in quality
measures. Most CMS measures rely at least in part on the use of various standardized codes or code
systems for classifying health care provided in the United States. This information supplements the
information found in the Blueprint content on the CMS MMS Hub, Measure Specification , and the
supplemental materials Electronic Clinical Quality Measures (eCQMs) Specification, Standards, and Tools
; Composite Measures for Accountability Programs ; and Cost and Resource Use Measures .

1 CODE SYSTEMS/VOCABULARIES/TERMINOLOGIES
A code system is a managed collection of concepts wherein at least one internally unique code
represents each concept. A code system may also include a language-dependent description. Some
concepts are very specific and others can be quite general. Technically, terminology, vocabulary, and
code system are not synonyms, but the measure development community often uses these phrases
interchangeably. The Blueprint content preferentially uses the term code system to describe the
managed concept collections from which to draw value set content.
Some code systems have complex ideas that include multiple, nuanced sub-elements such as the
International Classification of Diseases, 10th Revision, Clinical Modification (ICD-10-CM). Some have
internal hierarchies built upon increasing specificity (IS-A) and may also include relationships among the
concepts (e.g., caused-by or finding-site). While some code systems are broad in scope (e.g., SNOMED
CT), most focus on a specific domain (e.g., laboratory tests for Logical Observation Identifiers Names and
Codes [LOINC], medications for RxNorm) and therefore, only represent concepts within the domain.
Many code systems overlap in coverage (e.g., ICD-10-CM and SNOMED CT); when they do, the overlap
may not result in simple one-to-one mapping between the concepts. Each code system has an area of
focused use that tends to shape crafting of the concepts and the relationships among these concepts.
For example, the focus of ICD-10-CM is on disorders that cause mortality and morbidity. ICD-10-CM
categorizes the disorders into unique groupings such that any single disorder will always be associated
with only one ICD code and this categorization is useful for health care billing. Other code systems are
multi-hierarchical such that the concepts capture multiple nuances and serve multiple purposes.
A code system authority, such as SNOMED International for SNOMED CT, should manage a code system.
The code system authority is responsible for ongoing maintenance such as updates and corrections, and
for content coherence and consistency. Code systems are a collection of concepts (ideas) with unique
identifiers that exist in some sort of structure. The code system structure should provide each concept
with a code-system-specific meaning, a concept identifier (a code), and a string description (the name,
and a definition of the concept meaning). Code systems should ensure meaning permanence for all the
concepts in the code system (Cimino, 1998 ). For example, if the meaning of the concept changes, the
code system may need to retire the old concept and introduce one or more new ones to better
characterize the meaning. This provides consistency in data analysis and retrieval over time. Some local
environments define their own code systems, making sharing outside the local institution difficult.
Successful interoperability is dependent on either using common code systems for data capture or
through mapping the local content to an interoperable code system.

1.1 ENCODING CLINICAL INFORMATION

Encoding refers to the use of code system concepts to represent clinical information. Not all useful
information in a clinical record is encoded. There is significant value in simply providing free text to
support clinician-to-clinician information exchange, particularly if the free text is in specifically identified

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sections within the electronic health record (EHR). However, encoded content is critical to
computable interoperability because it enables computer-based systems to find and operate upon data
without human intervention. Encoding also benefits clinical interoperability by enabling clinicians from
one organization to understand the meaning of transmission of information from another organization.
That is not to say that encoding results in perfect representation of clinical information such that no
review or human analysis is necessary; encoding of the nuances in clinical care is fraught with difficulty
and almost always requires compromises in precision. The best approach for measure developers1 is to
reduce the number of mapping steps required by focusing on content that measured entities can easily
capture during clinical care, where metrics that are useful in the care of the patient match those used in
quality assessment and decision support systems.
In the past, measured entities used billing codes and manual review, chart abstraction, and
communication between coding personnel and clinicians to clarify information used in clinical quality
assessment. This practice helped overcome differences in understanding based on coding alone.
Currently, the ability to compute quality measures and provide direct clinical decision support entirely
from detailed encoded data increases documentation time and complexity for clinicians during the care
process. The industry needs to consider tradeoffs among the alternatives as the industry learns how to
best manage the demands of fully computable and interoperable information.

1.2 QUALITY DATA MODEL (QDM) CATEGORIES WITH RECOMMENDED CODE SYSTEMS
The Appendix provides guidance for the use of a recommended code system when there is a
requirement for a noted clinical concept for an eCQM . The table includes general guidance for
concepts in any quality measure as well as native capture terminologies, where specified. The code
system guidance indicates specific code system hierarchies, semantic types, or expected concept
(code) attributes that characterize the concepts used for that specific QDMcategory. These codes are
strongly recommended constraints on concept choices for use in the value sets needed, but the
recommended approach may not provide the needed concept in all situations (e.g., when the
recommendation for a laboratory result is SNOMED CT, but no SNOMED CT concept is available).
However, in some cases the expected result is numeric and not encoded. There are restrictions for a
LOINC observation result to have a normative list of LOINC answer codes, or the answer concept is new
and not yet available in SNOMED CT. In these situations, measure developers should ask for guidance
after considering the approach outlined.

1.3 USE OF SPECIFIC CODE SYSTEMS

1.3.1 International Classification of Diseases (ICD)
ICD represents patient information on claims records, data collection for use in performance
measurement, reimbursement for medical claims, and more. In the United States, data submitted to
CMS transitioned from ICD-9-CM to ICD-10-CM/Procedure Coding System (PCS) beginning October 1,
2015. It is generally a good practice not to change originally captured patient information (i.e.,
captured prior to October 1, 2015). There is not a simple method to crosswalk from ICD-9-CM to
ICD-10-CM/PCS, so most legacy data using ICD-9-CM should remain archived in that form. The ICD-10
classification systems provide significant improvements through more detailed information and the
ability for providers to capture additional advancements in clinical medicine, but the transition does
create difficulties for monitoring trends when capturing data using both code systems.

1 VSAC uses the term value set author, but we use the term measure developer for consistency with other Blueprint documents.

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ICD-10-CM/PCS consists of two parts:

• ICD-10-CM—Diagnosis classification system developed by the Centers for Disease Control and
Prevention (CDC) National Center for Health Statistics (NCHS) for use in health care treatment
settings in the United States. Diagnosis coding under this system uses three to seven
alphanumeric characters and full code titles, but the format is the same as ICD-9-CM.
• ICD-10-PCS—Procedure classification system developed by CMS for use in the United States for
inpatient hospital settings. The new procedure coding system uses seven alphanumeric
characters, whereas the ICD-9-CM coding system uses three or four numeric digits.
Measure developers should not include codes not valid for clinical coding (e.g., ICD-10-CM Group Codes)
in clinically-related value sets. Specifically, they should not use codes associated with sections or groups
of codes in value sets, such as
• Codes for dermal burns. Use the fourth digit (0–9) to identify the percentage of body surface
and the fifth digit to indicate the percentage with third degree burns.
o T31.0, Burns involving less than 10% of body surface
o T31.10, Burns involving 10-19% of body surface with 0-9% third-degree burns
o T31.11, Burns involving 10-19% of body surface with 10-19% third-degree burns
o T31.20, Burns involving 20-29% of body surface with 0-9% third-degree burns
o T31.21, Burns involving 20-29% of body surface with 10-19% third-degree burns
o T31.22, Burns involving 20-29% of body surface with 20-29% third-degree burns
• A09, Infectious Gastroenteritis and Colitis, unspecified—a standalone code and does not require
additional digits to be valid.
• A08, Viral and Other Specified Intestinal Infections—a non-billable code that must have
additional digits to be valid (e.g., A08.11 Acute Gastroenteropathy Due to Norwalk Agent).
When a measure developer submits ICD-10-CM/PCS codes for consideration by the National Quality
Forum (NQF) for measures that previously used ICD-9-CM codes, NQF has additional requirements. NQF
outlines these requirements in the NQF document Inclusion of ICD‐10 Codes in Measures Using ICD‐9
Codes .
You may find processes for requesting changes to ICD-10-PCS on the CMS website and processes for
requesting changes to ICD-10-CM on the CDC NCHS website . Measure developers should account for
contractual timelines when considering applying for new concepts.
There are different standardized groupings of ICD-10 codes such as the Agency for Healthcare Research
and Quality (AHRQ) Clinical Classification Software Refined (CCSR) for the Healthcare Cost and
Utilization Project (HCUP) and the Medicare Severity Diagnostic Related Groups (MS-DRG) used for
Medicare hospital payments. Measure developers may use these groupings in lieu of individual ICD-10
codes.

1.3.2 Current Procedural Terminology (CPT), Fourth Edition

CPT is a registered trademark of the American Medical Association (AMA) for the CPT, Fourth Edition
(CPT4). The CPT Category I (CPT I) codes are a listing of descriptive terms and identifying codes for
reporting medical services and procedures performed by physicians. The purpose of the terminology is
to provide a uniform language that accurately describes medical, surgical, and diagnostic services, and
thereby provides an effective means for reliable nationwide communication among physicians, patients,
and third parties.

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Each CPT category 1 code corresponds to a single procedure or service. The intent of CPT codes is not to
transmit all possible information about a procedure or service; the intent is to identify the procedure or
service. The CPT code for a name is unique and permanent.
CPT Category II (CPT II) codes, developed through the CPT Editorial Panel for use in performance
measurement, serve to encode the clinical actions described in a measure’s numerator. CPT II codes
consist of five alphanumeric characters in a string ending with the letter “F.”
eCQMs do not use CPT Category II codes.
CPT Category III (CPT III) codes are temporary alphanumeric codes for new and developing technology,
procedures, and services. They are for data collection, assessment, and in some cases, payment of new
services and procedures that currently do not meet the criteria for a CPT I code.
The AMA requires users to include a set of notices and disclosures when publishing measures using CPT
codes. The current full set of notices and disclaimers includes
• copyright notice
• trademark notice
• government rights statement
• AMA disclaimer
There are annual updates to CPT codes. For questions regarding the use of CPT codes, contact the AMA
CPT Information and Education Services at 800-634-6922 or at the AMA website . Measure developers
should account for contractual timelines when considering applying for new concepts.

1.3.3 SNOMED CT
SNOMED International owns and maintains SNOMED CT. SNOMED CT contains more than 357,000
health care concepts with unique meanings and formal logic-based definitions organized into
hierarchies. A unique semantic type, included in parentheses, identifies each hierarchy in the fully
specified name of every concept in the hierarchy. The Appendix includes these semantic type identifiers.
The recommended semantic types noted in the table are strong guidance, but the measure developer
may only find some conditions in the event or the situation hierarchy. The fully populated code system
list with unique descriptions for each concept contains more than 957,000 descriptions. Approximately
1.37 million semantic relationships exist to improve the reliability and consistency of data retrieval.
SNOMED CT is a general clinical reference terminology, meaning its intent is to represent clinical
concepts across many domains, which includes conditions, diagnoses, symptoms, and signs, all of which
are a type of finding. SNOMED CT also represents procedures, observations, and some laboratory tests,
drugs, and devices. The Appendix also notes concepts used for ancillary aspects for documentation of
the domains. As a general reference terminology, the expectation is for SNOMED CT to provide many of
the concepts needed for clinical information encoding, and unless otherwise noted, a specific
terminology should be the primary source for standardized terminology encoding.
SNOMED International maintains the SNOMED CT technical design, core content architecture,
SNOMED CT Core content, and SNOMED CT documentation. SNOMED CT content includes the technical
specification of SNOMED CT and fully integrated multi-specialty clinical content. The core content
includes the concepts table, description table, relationships table, history table, ICD-10-CM mapping,
and Technical Implementation Guide.

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In the United States, the National Library of Medicine (NLM) distributes SNOMED CT, which acts as the
U.S. SNOMED CT Release Center. There are multiple SNOMED CT Release Centers across the globe and
many, including the NLM, release a specific edition of SNOMED CT for use in their specific realm. The
U.S. Edition of SNOMED CT contains the combination of the International Core (same in every edition of
SNOMED CT) and a U.S.-specific extension that contains concepts only in use within the U.S. Thus, the
U.S. Edition of SNOMED CT contains some SNOMED CT concepts that do not appear in other editions,
such as those used in Canada or in the United Kingdom. Over time, promotion of realm-specific concepts
may occur from the realm-specific edition to the International Core and then these concepts are
available to all users. When this occurs, the concept identifier will not change. Only the U.S. Edition of
SNOMED CT is available for use in the U.S.
There is no intent for SNOMED CT codes to transmit all possible information about a condition,
observation, or procedure. The intent for SNOMED CT codes is to identify the condition, observation, or
procedure. The SNOMED CT code for a concept is unique and permanent.
At times, there may be a need to request new SNOMED CT concepts. The measure developer should
submit the request through the US SNOMED CT Content Request Service (USCRS). You will need an
IHTSDO account to access the USCRS. The U.S. team evaluates the request and determines whether to
include a useful addition only in the U.S. Edition of SNOMED CT or also to promote to the International
Core. Measure developers should account for contractual timelines when considering applying for new
concepts. For information on obtaining the standard, contact SNOMED International or the NLM .

SNOMED CT-Specific Guidance for Measure Developers for Allergy Value Sets
Use SNOMED CT to represent allergen drug class concepts only when following this guidance. Refer to
RxNorm Section 1.3.4 for additional guidance.
In addition to the required approach for representing medication allergen (or ingredient) substances
using RxNorm ingredient type concepts noted, eCQMs can add SNOMED CT drug class concepts to
represent medication allergens. If deemed appropriate by the measure developer for use in the
measure, the expectation is for the drug class concept to include SNOMED CT drug class concepts only
when the measure developer anticipates a general drug class concept in patient records as an indication
that the patient is allergic to all drugs in the class.
Measure developers should
• Keep in mind that when using a drug class concept, this means that no drug in the class can be
an expected therapy for the patient.
• Review all defined drugs for inclusion in the class when choosing to include the SNOMED CT
drug class concept.
• Also define an RxNorm Allergy value set with the specific ingredient (IN) and precise ingredient
(PIN) term types (TTY) drug ingredients that represent the drug class.
While not required, measure developers may create a grouping value set that groups both the RxNorm
ingredient type allergy value set and the SNOMED CT drug class allergy value set into one grouping value
set referenced in the measure. A grouping value set is a list of several value sets that share a common
purpose and similar concepts. For CMS eCQMs, specifically, members of a grouping value set must have
the same QDM Category, but the value set members of the grouping do not need to share the same
code system. Using a grouping value set eases development and testing burden on EHR vendors.
Measure developers should use the CVX code set for coding vaccine-allergy-inducing entities.

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Measure developers should use the SNOMED CT substance hierarchy for coding non-medication allergy-
inducing entities.

1.3.4 RxNorm
The NLM produces RxNorm . As described by the NLM, RxNorm is a normalized naming system for
generic and branded drugs and is a tool for supporting semantic interoperation between drug
terminologies and pharmacy knowledgebase systems.

1.3.4.1 Purpose of RxNorm

Hospitals, pharmacies, and other organizations use computer systems to record and process drug
information. Because these systems use many different sets of drug names, it can be difficult for one
system to communicate with another. To address this challenge, RxNorm provides normalized names
and unique identifiers for medicines and drugs. The goal of RxNorm is to allow computer systems to
communicate drug-related information efficiently and unambiguously.

1.3.4.2 Scope of RxNorm

RxNorm contains the names of prescription and many over-the-counter drugs available in the United
States. RxNorm includes generic and branded drugs including
• Clinical drugs, which are pharmaceutical products given to (or taken by) a patient with
therapeutic or diagnostic intent.
• Drug packs, which are packs that contain multiple drugs, or drugs designed for administration in
a specified sequence.
As noted on the RxNorm Overview page, radiopharmaceuticals, bulk powders, contrast media, food,
dietary supplements, and medical devices such as bandages and crutches are generally out of scope for
RxNorm.

1.3.4.3 RxNorm Term Types

RxNorm characterizes each concept in the code system as having a specific term type (TTY). TTYs are
semantic tags that describe the type of information the concept conveys. You may find a list of all
RxNorm TTYs in an appendix of the RxNorm Technical Documentation. Subsequent sections of this
document provide recommendations for specific TTYs when building value sets for specific uses.

1.3.4.4 RxNorm Use in Quality Measures

RxNorm is the recommended national standard for medication vocabulary for clinical drugs and drug
delivery devices. The intent is for RxNorm to cover all prescription medications approved for human use
in the U.S. Use RxNorm to reference a medication for administration, order, and dispensing. Measure
developers should also use RxNorm to represent the object (i.e., the causative agent) of an allergy,
adverse reaction, or intolerance due to a drug.
Because every drug information system commercially available today follows somewhat different
naming conventions, there is a need for a standardized nomenclature for the smooth exchange of
information. The goal of RxNorm is to allow various systems using different drug nomenclatures to share
data efficiently at the appropriate level of abstraction. Each RxNorm clinical drug name reflects the
active ingredients, strengths, and dose form comprising that drug. When any of these elements vary,
creation of a new RxNorm drug name occurs as a separate concept.

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Note that Blueprint content is the broadest interpretation of the RxNorm TTYs with which a measure
developer could align, but some eCQM releases include value sets that focus on the minimum RxNorm
identifiers needed for all general representations of the necessary drugs. While the Blueprint includes
branded TTYs in the guidance, authoring guidance has encouraged measure developers not to include
branded term types because changes in branded identifiers for any single general drug (such as a
Semantic Clinical Drug [SCD]) occur throughout the year and, even with the inclusion of value set
addendum releases, there can be value sets that are out of sync with some implementer system
content. Also, it provides for impartiality reducing the perception of branded drug favoritism. Given that
RxNorm application content (and all drug information vendor products) can be used to map from the
more stable general identifier to a branded identifier, and from other code systems such as National
Drug Code (NDC) or proprietary code systems, the branded RxNorm TTYs were often not included under
the assumption that if an implementer had a different identifier, the implementer could map to the
included SCD RXCUI or generic pack (GPCK) RXCUI or any other TTY and ID according to the intention.
Find more information at the RxNorm website .

1.3.4.5 Allergy Value Sets

Allergy/intolerance value sets, when drawn from RxNorm, should include only the IN or PIN TTY.
Measure developers should also review the guidance provided in the SNOMED CT Section 1.3.3.
Measure Developer Guidance

• Always consider including a measure expression that appropriately removes a patient from a
numerator or denominator population when there is an expectation that the patient
should have received a substance, but the patient has an allergy/intolerance to the expected
substance.
• If there is an allergy/intolerance value set and a patient has an allergy/intolerance to any one of
the substances, that will likely remove the patient from consideration for any substance in that
value set.
• When needing an allergy/intolerance value set to discriminate between the individual active
ingredients in compound medications, it may be reasonable to identify the individual active
ingredients for those medications included in the value sets used for expected therapies and
then create the allergy/intolerance value set using that list of ingredients.
• The allergy/intolerance value sets only indicate the substance/agent considered as the cause of
the reaction. Do not use RxNorm or CVX to indicate the reaction.
• The naming convention for value sets used for allergy/intolerance is to end the value set name
with the word allergen, (e.g., Antithrombotic Therapy Allergen and Beta Blocker Therapy
Allergen).

1.3.4.6 Medication Value Sets

Medication value sets when used to represent administered, ordered, or recommended substances,
must draw from RxNorm and include RxNorm concepts having TTYs.
• GPCK
• SCD
CMS prefers that value sets used to represent acceptable medications will only include the RxNorm TTYs
listed. This preference is because measure developers can map any other drug representation to one of
these using the RxNorm content and applications, which means that value sets should have any
formulation that is appropriate for use. The expectation is that implementers map content found in

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some EHR records to the most appropriate concept in the value set, preferably the concept with either a
SCD or GPCK TTY.
However, when a measure requires identification of a single ingredient pharmacy-mixed admixture
product with a strength not available as a RxNorm SCD, the measure developer may use the Semantic
Clinical Dose Form Group (SCDG) term type for the ingredient as a direct reference code.
Measure developers may have some confusion between the use of dose formulation (strength) vs dose
administration. For example, an antithrombotic value set did not contain all applicable RxNorm codes
because some RxNorm codes represented nontherapeutic strengths for antithrombotic therapy if given
as a single dose administration.
Therefore, when RxNorm codes exist to represent a strength potentially used to indicate a therapeutic
dose, the measure developer should include all RxNorm codes representing those strengths in the value
set. The value set purpose statement should include language to indicate intent using inclusion and
exclusion criteria.
Example Inclusion criteria: “Includes concepts that represent medications to reach a therapeutic dose
for anti-coagulation.”

1.3.5 Logical Observation Identifier Names and Codes

LOINC2 is a code system (i.e., set of identifiers, names, and codes) for clinical and laboratory
observations, health care screening/survey instruments, and document type identifiers. Each LOINC
record corresponds to a single observation of almost any type (i.e., observables) and is best known for
concepts that represent laboratory tests. LOINC also includes representation of document types and
thus, frequently represents a document section in consolidated clinical document architecture (C-CDA)
and other templated exchange standards. There is no intent for LOINC codes to transmit all possible
information about a test or observation; the intent is only to identify the observations. The LOINC code
for a name is unique and permanent. Always transmit LOINC codes with a hyphen before the check digit
(e.g., 10154-3). Transmit the numeric code as a variable length number, without leading zeros. LOINC
codes are available for commercial use without charge, subject to the terms of a license that assures the
integrity and ownership of the codes.
Special Situations with LOINC Survey/Evaluation Tools. Use LOINC to represent survey instrument
questions (observations). In survey instruments, there is tight alignment between the question and the
acceptable set of answers. Because of this, LOINC often also includes specific answer sets for the survey
questions, called LOINC Answers (LA codes). When defining the set of answers specifically within the
survey, the LA set is normative, which means only the specified LA codes are acceptable responses
(values) for that LOINC observable. Defined normative LA sets can occur anywhere in LOINC, and
because they are a requirement when defined, users of LOINC must look for and respect these
restrictions.
Assignment of a LOINC code to most LOINC survey/evaluation tools for the overall tool is a type of
LOINC Panel because that is the LOINC construct that collects other LOINC codes used together. In
addition, LOINC curators assign a different LOINC code for each evaluation question/observation
included in the survey or evaluation tool. In some cases, the LOINC survey will reuse observations
defined in a different (usually related) survey. In many cases, the LOINC survey will include information
on the ownership of the survey and indicate whether the individual observations are copyright

2 Regenstrief Institute and the Logical Observation Identifier Names and Codes Consortium copyright LOINC codes.

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protected and whether survey users can use the independent observations outside of the complete
survey instrument as a complete questionnaire. Many survey instruments include summary final scores
(i.e., a LOINC observation) that are based on a sum of the values associated with the specified LA codes
allowed for all the component questions. The measure developer should consider all elements of a
LOINC tool before use. Take care when using LOINC observables with specified answer codes to
determine whether there is a requirement for use of the LA codes and only use of that set.
There may also be a need to request new LOINC concepts. You can find instructions and tools to request
LOINC concepts at the LOINC website. Measure developers should account for contractual timelines
when considering applying for new concepts.

1.3.6 Other Important Code Systems

Best practice for encoding some data elements is to use code systems that represent a specific type of
information, particularly when the code system is in widespread use. When considering inclusion of data
in a measure not already identified in the Appendix, determine whether a specific authoritative code
system is in widespread use and consider including that code system into the measure.
Examples
• CDT – Code on Dental Procedures and Nomenclature
• CVX (for vaccines)
• Health Level Seven International® (HL7 ) (e.g., Administrative Gender, Discharge Disposition)
• ICF—International Classification of Functioning, Disability, and Health
• NHSN Healthcare Facility Patient Care Location (HSLOC in the Value Set Authority Center
[VSAC])
• NUCC – National Uniform Claim Committee
• Source of Payment Typology (National Association of Health Data Organizations [NAHDO])
• UCUM – The Unified Code for Units of Measure

2 VALUE SETS
Value sets are a subset of concepts (represented by a code) drawn from one or more code systems,
where the concepts included in the subset share a common scope of use. For a quality measure, use
value sets to identify a set of concepts whereby any use of one of the concepts included may identify a
patient of interest. Use value sets in quality measures to collect all the coded concepts that can occur in
the clinical record (or administrative data) and to represent patients that should be in the same
population for analysis.

2.1 USE OF VALUE SETS

Coded data elements in quality measures are bound to (i.e., may use) either

• A single specific code (drawn from a code system) directly referenced within the measure and,
as such, is not in a value set; therefore, it is a direct reference code (DRC).
OR
• A value set (i.e., a set of codes) where each code is equivalent with respect to use in the context
of that data element.

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In quality measures, the patients identified using any of the codes in a value set are equivalent with
respect to the measure data element using the value set.

2.2 CONSTRUCTING VALUE SETS

Measure developers should create value sets with the thoughtful input of subject matter experts
familiar with the clinical or administrative information needed, combined with the input of terminology
experts familiar with the code systems used. This work requires strong knowledge of current
information capture (both electronic encoding and traditional textual material) and the workflow
necessary to capture the expected information accurately. Find value set quality criteria on the VSAC
Authoring Best Practices page.

2.3 REPRESENTING THE CODES FOR INCLUSION

When constructing a value set, the measure developer is actually constructing a value set definition
(VSD) that may have multiple versions over time. A VSD describes the value set using metadata
(Section 2.5) and includes a Content Logical Definition (CLD) that identifies the specific concepts (i.e.,
codes) for inclusion in the value set expansion. A value set expansion is the actual list of codes,
calculated using a specified expansion profile of code system versions and any predetermined retired
(legacy) codes used with implementation of the value set. An expansion profile is a set of rules defined
by a particular program, such as the CMS Clinical Quality Measures Value Sets Annual Update. For
example, the “eCQM Update 2020-05-07” expansion profile applied a set of allowable code system
versions, defined by CMS, as well as a set of desired legacy codes, approved by CMS. In the VSAC, a
download of the value set expansion will include the concept code, text display (description), the code
system name, identifier, and the code system version used for each member in the expansion set.

Many constructed VSDs enumerate each desired specific code, traditionally called an enumerated or
extensional definition. An extensional value set is a set of concept codes and descriptors, in the form of
an enumerated list, selected to serve a specific purpose. However, the best definition of many value sets
is logically or intensionally using the structure of the specific code system (e.g., all the codes that are
descendants of the condition Insulin Dependent Diabetes Mellitus). An intensional value set is a list of
codes based on a logical statement that often has an algorithmic basis for selection of concepts. For
example, "include all concepts that are children of a parent concept" in a hierarchical code system.

A simple enumeration of concepts is not always an ideal approach to define a value set. A
comprehensive approach to quality measure development entails examination of complete code
hierarchies in a code system to determine the levels of concept inclusion. VSAC provides tooling to
support both extensional and intensional VSDs.

Value sets have a life cycle similar to many persistent objects. The VSAC is a tool suite developed by NLM
to support the creation, maintenance, and retrieval of value sets. In addition to the life cycle noted in
Figure 1, ongoing maintenance of value sets occurs when measure developers modify the content to
address improvements in clinical understanding, changes in available coded concepts that occur with
updates to the code system, and errors.

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Figure 1. VSAC Value Set Life Cycle

2.4 DETERMINING THE VALUE SET CODE SYSTEM

Using the guidance noted in the Appendix, a value set may need concepts from more than one code
system, which is particularly important when the data element is associated with native capture code
systems that may be in use currently, but the ongoing intent of the measure is to use a different code
system. In this case, quality measures may reference one single value set that groups each of the value
sets using different code systems (e.g., SNOMED CT value set, ICD-9-CM value set, and ICD-10-CM value
set) to capture the same scope. VSAC has defined a grouping mechanism for this scenario to create a
parent value set for use in the measure. Measure developers define separate value sets for different

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code systems, such as a Diabetes Mellitus SNOMED CT value set and a Diabetes Mellitus ICD-10-CM
value set. They then define a Diabetes Mellitus Grouping value set that incorporates the two-code
system-specific value sets and then use the grouping value set for the measure data element. The VSAC
allows only one level of grouping; a grouping value set cannot include another grouping value set.
Therefore, when developing eCQMs, use the Measure Authoring Tool (MAT) measure logic when
there is a need for a combination of two value set groupings. As an example, link the codes for all
patients with hematologic malignancies into one value set grouping with SNOMED CT and ICD-10-CM
values and similarly group patients with primary immunodeficiencies and those with human
immunodeficiency virus infection. Use MAT measure logic clauses to identify patients that fall into any
of these groups.

2.5 VALUE SET METADATA

When creating a value set, the measure developer must specify value set metadata that describe what
the value set is meant to represent so that measure developers and implementers can use it properly in
measures and so that others can find it and reuse it in different measures, where appropriate. The value
set metadata must include a clear and complete name (measure developers may reuse the value set for
another measure), the identifier, and the value set purpose (a required element) that should describe
the scope or breadth of concepts for inclusion or exclusion, in text for other humans to read.
The required metadata for each value set includes Name and Value Set Purpose. The Value Set Purpose
includes Clinical Focus (required), Data Element Scope (required), Inclusion Criteria (required), and
Exclusion Criteria.

2.5.1 Name
The name of a value set is a crucially important and descriptive metadata element. Measure developers
should adhere to specific naming guidelines to assure value set users, measure developers, and
stewards can find value sets manually and through automated processing, to encourage reuse of the
value sets and to discourage redundancy. These guidelines will help the measure developer create
concise, descriptive value set names that capture the purpose of each value set.
• When creating the value set name, avoid a long description yet capture critical, distinctive
aspects of the membership criteria.
• Create the value set name to convey the specific distinguishing characteristics of the member
concepts.
• Name the value set exactly for what it is, not what the measure developer wanted it to be.
Avoid including descriptions of the intended, but not achieved, content. The measure developer
should correct the name if not able to align the value set content with the initial name given to
the value set. For example, if initially named "Oral Anticoagulants" when the intent was to
capture only oral anticoagulants for chronic atrial fibrillation, change the name to "Oral
Anticoagulants for Chronic Atrial Fibrillation" to align it with the intended purpose.
• Use a sufficiently descriptive name. Using the “Oral Anticoagulants” example, the value set
name "Oral Anticoagulants" is not sufficiently descriptive because it does not describe the scope
of the value set. The value set name "Oral Anticoagulants for Chronic Atrial Fibrillation" is a
better name because it effectively describes the scope of the value set.
• Use correct spelling and grammar.
• Separate multi-word terms by spaces and not by any other characters.
• Use title case (capitalize first letters of all words, except prepositions, as in a title).

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• Make unique value set names. Due to the uniqueness of the value set purpose and content,
name redundancy should not occur.
• Never use the word “Other” as an alternative to another value set. Each value set name must be
understandable independent of any other value set and describe the contents.
• Limit the value set name to as few words as possible, and no more than 128 characters.
• Certain characters are prohibited and VSAC provides a system warning if used: + * ? : - | ! " %
• Avoid abbreviations unless widely used in the medical literature.
• Do not include the name of the value set steward. The value set steward name is separate
metadata bound to the value set and captured in the VSAC database.
• Avoid including the name of the QDM data element linked to the value set if the value set is
referenced as part of a quality measure.
• Do not include the name of the quality reporting program that uses the value set unless it
describes a primary distinguishing characteristic of the value set.
• Do not include the name of the code system used to obtain the concepts, unless it describes a
primary distinguishing characteristic of the value set.
• Do not include the concept category that characterizes the context of use, unless it describes a
primary distinguishing characteristic of the value set requirements. For example, only include
the word "Procedure" when the context of the main focus is ambiguous.
• Do not include "camelCase" or other composite and delimited words or phrases.
• Avoid using code descriptors within the value set name.
• Do not use names of measure types or settings for the intent of the value set. For example, do
not include "hospital measure," "process measure," etc. Include this information in the value
set Purpose statements.

2.5.2 Value Set Purpose

The Value Set Purpose is a multi-part, free-text, mandatory entry. The design of the Value Set Purpose is
to provide a clear and comprehensive description of the constituent concepts of the value set. This
important metadata element must describe how to use the concept in a clinical measure or in any other
intended application. The VSAC does not automatically validate the Value Set Purpose so measure
developers should spend time to make this text as informative as possible for human readers to
understand the intent of the value set and how the measure developer put together the value set. To
avoid redundancy, there should be only one value set for a given purpose. Measure developers should
add a Value Set Purpose to value sets, whether they created or inherited the value set, if no Value Set
Purpose is present.
The Value Set Purpose describes the intended content using four sub-parts that constitute the value
set’s purpose.

2.5.2.1 Clinical Focus

The Clinical Focus is a required free text statement describing the general focus of the value set
including a description of the intended constituent concepts. This can be the information about clinical
relevancy, or a statement about the general focus of the value set, such as a description of types of
messages, payment options, or geographic locations. The statement should be a full sentence with end
punctuation (period). Note that over the course of a value set’s lifecycle, the measure developer should
not change the clinical focus in any meaningful way.
• Format: The purpose of this value set is to [verb] concepts for/of [noun(s)].

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• Example: The purpose of this value set is to represent concepts for conjugated
estrogen/medroxyprogesterone combination medications.

2.5.2.2 Data Element Scope

The Data Element Scope is a required free text statement describing how the data element relates to
the value set to which it is bound. This context of use often constrains the semantic type of the allowed
constituent concepts. The statement should be a full sentence with end punctuation (period).
• Format: This value set may use a model element in the [QDM or other data model category].
• Example: This value set may use a model element in the QDM category of Medication.

2.5.2.3 Inclusion Criteria

The Inclusion Criteria a required free text statement that describes what specific concept or code criteria
the measure developer included and why. The statement should be a full sentence with end
punctuation (period).
• Format: Includes concepts that [verb] [description].
• Example: Includes concepts that describe a medication specific to generic, prescribable
esterified estrogen medication.

2.5.2.4 Exclusion Criteria

The Exclusion Criteria is an optional free text statement that describes what specific concept(s) or code
criteria the measure developer would normally include, but specifically excluded and why. The
statement should be a full sentence with end punctuation (period). It is good practice to populate this
field with “No exclusions” if there are no exclusions.
• Format: Excludes concepts that [verb] [description].
• Example: Excludes concepts that describe branded and non-prescribable esterified estrogen
medications in combination with other medication.

2.6 VALUE SET VERSIONING

The measure developer creates the value set definition to specify the value set content. The value set
steward reviews and passes the value set definition and then publishes the value set definition. VSAC
gives it a version identifier, known as “the value set definition version.”
A value set definition version update occurs whenever the steward publishes a new version. Possible
reasons for a new version are when there is a change in the value set’s defined codes, grouping member
value sets, or algorithmic logic (intensional), etc.
When there is an expansion of a published value set definition, the result is a “value set expansion
version.” The VSAC always makes available for use by value set users an expansion based on the current
published value set definition version. That expansion version has the string identifier of “Latest” and
the expansion content in Latest will change if the current value set definition changes to a new version
and/or the code system version changes in a way to affect the constituent concepts.

2.7 INCLUDING HISTORICAL CODES

Some value sets may need to include concepts that are no longer active concepts in the code system of
choice. This often occurs when a measure clause includes a value set that requires a look back period

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that extends back more than a year or the length of time between code system updates, due to the fact
that the entry of the newly retired codes into patient records occurred when they were still active
codes. No measure developer should assume that owners of old patient records will update content to
use current codes. Therefore, value sets for use to identify patients based on old record content need to
include inactive legacy codes in the value set expansions and document the need for including such
content in the purpose statements of the value set metadata section. Measure developers need to
notify NLM/VSAC about any retired codes they need to use in a value set. (See the
Updating Value Sets section of the VSAC Support Center.) NLM/VSAC will then include the measure
developer’s specified retired codes as legacy codes within the expansion profile calculation applied to
the specified eCQM Program Release.

2.8 VALUE SET MAPPING

Value sets use standard terminologies, whose use in quality measures is essential to support
interoperability and the ability to compare measure results between measured entities. Most standard
terminologies have regularly scheduled updates, which may add new concepts and deprecate other
concepts. For deprecated concepts, measure developers must determine whether to keep legacy codes
or identify new concepts to replace those codes. Value sets often use more than one standard
terminology to express a data element, most commonly SNOMED CT and ICD-10-CM/PCS. There may be
a need to map concepts in one terminology with the same concept in another terminology. Cross-
terminology mapping can be complex and time-consuming. Matching concepts also occurs on the
implementation side. Health information technology (IT) vendors and end users may use different
terminologies; drug databases are a good example.
Historically, cross-terminology mapping was a completely manual process. Different organizations have
developed and continue to refine automated mapping tools, e.g., Apelon Distributed Terminology
System (DTS) , Usagi , and Solor . However, no tool can connect 100% of the concepts, so some
level of manual processing is necessary.

2.9 VALUE SET REUSE

To the extent possible, use existing value sets when developing eCQMs. The measure developer should
examine the existing library of value sets to determine if any exist that define the clinical concepts
described in the measure. If so, use these value sets rather than creating a new value set, promoting
harmonization and decreasing the time needed to research the various terminologies to build a new
list.
A measure may reuse existing value sets or define new value sets. When selecting a value set for reuse,
measure developers should be confident of the adequacy of the included set of codes for their purpose.
When considering reuse, a measure developer may contact the original measure developer of a reusable
value set to determine planned maintenance and clarify common needs.
When multiple value sets appear to represent the same concept, attempt to harmonize the value sets.
Harmonization may require rethinking the intent and an assessment of the expertise needed to define
and maintain the value set content. Discussion regarding the content and work toward a harmonized,
single, usable value set should occur within the VSAC Collaboration Tool .
As with value sets, measure developers may reuse DRCs. VSAC provides access to DRCs in current use to
enable such reuse and collaboration. Measure developers can obtain a Representational State Transfer

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(REST) application programming interface (API) Uniform Resource Locator (URL) for DRCs, for insertion
into the MAT, in the Detail View of Browse Code Systems accessible from any VSAC web page.

3 VALUE SET AUTHORITY CENTER

The NLM provides the VSAC in collaboration with the Office of the National Coordinator for Health
Information Technology (ONC) and CMS. Requiring a free UMLS license , the VSAC provides searchable
and downloadable access to all official versions of value sets used by each of the eCQM releases used in
CMS, as well as other programs (e.g., HL7 C-CDA for clinical document interchange) and other non-
eCQM programs. Each value set consists of the codes (i.e., concept identifiers from specified code
systems) and human-readable names (i.e., descriptions or terms), drawn from standard codes systems
such as SNOMED CT, RxNorm, LOINC, and ICD-10-CM, used to identify quality measure-specific patient
populations (e.g., patients with diabetes, clinical visit). The VSAC Support Center provides online
information about VSAC access, value set lifecycles and work flow, measure developer and steward
roles, and best practices for value set development. In addition, the VSAC Support Center offers
archived users’ forums and release notes, and provides links to VSAC publications.
VSAC is the only authoritative tool to author value sets for eCQMs. VSAC now includes intensional
definition functionality for measure developers to intensionally define value sets using logical criteria, or
statements, which greatly increases value set accuracy and maintenance efficiency, and also greatly
reduces burden on measure developers. For example, measure developers can specify all descendant
codes of a hierarchical concept and expand them into an enumerated list of codes and terms. When
defining value set code members using logical criteria like this, also known as an intensional definition, it
is important to include this logic statement in the Purpose Statement section of the Value Set Metadata
in VSAC. Tools other than VSAC exist, such as the CDC Public Health Information Network Vocabulary
Access and Distribution System (PHIN VADS) and some proprietary offerings, to help measure
developers author and maintain quality measure value sets.
The key benefits of using VSAC include
• Serving as the authority and central repository for the official versions of value sets that support
eCQMs adopted by CMS programs.
• Providing search, retrieval, and download capabilities through a web interface and APIs.
• Providing authoring and validation tools for creating new and revising published value sets.
• Hosting up-to-date versions of source vocabularies. The representative source vocabularies (not
exhaustive) include SNOMED CT, RxNorm, LOINC, ICD-9-CM, and ICD-10-CM.
• Requiring a purpose statement for each value set, composed of clinical focus, data element
scope, inclusion criteria, and exclusion criteria. These purpose statements ensure the clear
clinical intent of value set and building criteria, used when evaluating the validity and accuracy
of codes contained in the value set.
• Offering complete value set authoring guidance.
For more details, refer to the VSAC website .

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4 VSAC COLLABORATION TOOL

The VSAC Collaboration Tool is a companion tool to the VSAC value set authoring and maintenance
environment. CMS expects that measure developers use the VSAC Collaboration Tool for most value sets
to obtain input into the value set content from participating users and clinical expert colleagues.
Measure developers and stewards can post value sets singly, in multiples, or per CMS measure from the
VSAC authoring environment into the VSAC Collaboration Tool. This tool provides a central site for
collaborative discussion and value set quality assurance analysis. In addition, the Collaboration Tool
assists measure stewards and their invited external collaborators in workflow management and
document management. Measure developers and stewards can use their posted value set spreadsheets
in the VSAC Collaboration Tool to review the terminology changes in expanded value sets using newer
expansion profile calculations that contain newer code system versions. Although this functionality
exists in VSAC for every value set, this feature in the VSAC Collaboration Tool enables quality review for
all value sets within a measure. This feature supports the maintenance activity required of measure
developers to keep value set content aligned with code system version changes and clinical knowledge
enhancements. The VSAC Collaboration Tool requires a UMLS License Agreement for each user and
NLM provides an extensive Help section .
Because the focus of the VSAC Collaboration Tool is not solely on eCQM development, it is important to
note that all value sets can benefit from utilization of the VSAC Collaboration Tool.

5 UNIQUE SITUATIONS FOR VALUE SET USE IN ECQMS

5.1 USE OF VALUE SETS TO ADDRESS NEGATION RATIONALE IN ECQMS
The concept of negation has three aspects: assurance that a certain condition does not exist
(e.g., assertion that the patient has no known allergies, or that the patient takes no medications); lack of
evidence that a condition does not exist (e.g., no information is available in the EHR about allergies or
about medications taken); and that an action was intentionally not performed, with or without a reason
(e.g., medication was not prescribed due to interaction with other medications a patient is taking). As a
rule, in clinical practice, the assumption is the absence of information about a desired action in the
medical record indicates the action did not occur. However, action negation is an assertion of an
intentional decision to avoid action. QDM calls this intentional assertion negation rationale; it addresses
only the third definition.
QDM addresses negation rationale as an attribute of 32 QDM datatypes. By specifying negation
rationale in a measure expression, the measure developer provides logic criteria requiring assertion that
an action was not performed, most often requiring at least one of a set of specific reasons. Generally,
measure developers use negation rationale as denominator exceptions (i.e., if the EHR includes a
documented medical reason not to perform an action, remove the patient from the denominator).
Negation rationale may also serve as a denominator criterion (i.e., the expected numerator criteria if
there is a medical reason to avoid the most common treatment).
The QDM documentation on the Electronic Clinical Quality Improvement (eCQI) Resource Center
describes how a measure developer can use negation rationale. Negation rationale is part of the current
production version of QDM. Find a discussion about negation and methods for expressing negation with
Clinical Quality Language (CQL) on the CQL Formatting and Usage Wiki .

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Measure developers should present negation rationale in measure logic as not done. Using negation
requires two value sets or DRCs: one is the value set of concepts that would be expected to have been
done (usually, this is the same value set or DRC used in the measure to identify patients with the applied
therapy/action), whereas the other is a value set (or DRC) of the acceptable reason for avoiding the
expected action.
Example
Medication, Administered Not Done: Angiotensin Converting Enzyme (ACE) Inhibitor for Medical Reason
for Avoiding ACE Inhibitors
ACE Inhibitor is the value set of the expected medication for which documentation asserts no
administration. Medical Reason for Avoiding ACE Inhibitors is the value set of acceptable reasons for
avoiding administration of the expected medication. Only reasons included in the value set will meet the
criteria for the measure.

5.2 VALUE SET REVIEW

There are several ways to share value sets with reviewers. The most straightforward way is to email the
list of value set codes in a spreadsheet. Also use the VSAC Collaboration Tool to review and gather
feedback. Notify reviewers that value set content often includes codes from code systems covered by
intellectual property rights.
There are rules for value set development in the VSAC. The requirement is for all value sets to have
specific metadata that describe the purpose and content they contain (refer to Section 2.5, Value Set
Metadata). Ensuring value sets have descriptive metadata significantly improves the likelihood that
reviewers and later users of the value sets will understand the intent and provide valuable feedback
about the content.
Additionally, reviewers evaluating value set content (i.e., the code descriptions) can best provide
valuable feedback regarding the validity of the value set if the metadata provided are detailed.
Evaluation based on the value set name alone is insufficient. The advantage of providing a Microsoft
Excel spreadsheet for value set review is that it is simple, easy to browse for codes, and easy for the
reviewer to document comments and feedback. Value sets exported from the VSAC include the
metadata described in Section 2.5. The disadvantage of providing a Microsoft Excel spreadsheet to
review value sets is that a flat list of codes does not reflect the hierarchical structure of codes residing in
their code system. Reviewers need to look up codes in their original code systems in order to
understand the parent-child relationship and determine semantic relevance to the intent. VSAC provides
a powerful tool called Browse Code Systems, located at the top of every VSAC web page. The Browse
Code Systems tool enables any VSAC user (i.e., measure developer or non-measure developer) with a
UMLS License to look up codes for reviewing a code’s terms, synonyms, children, parents, and siblings.
Users can also view a graphical interface tree for browsing hierarchical code systems. VSAC now has
intensional definition functionality. When measure developers define their value set intensionally, they
may download a Microsoft Excel spreadsheet from the VSAC Authoring Tool that includes the logical
definition (e.g., all descendants of a code) as well as the expanded code list of that value set, which will
be extremely helpful for reviewers in understanding the value set.
To overcome the disadvantages of a spreadsheet, link to the value sets directly within the NLM’s VSAC
system not only for authoring value sets, but also for reviewing value sets among developers, reviewers,
and stewards. The VSAC Support Center's Help Section describes the features of VSAC, which has no
login requirements and is available to anyone. The VSAC Repository, Authoring Tool, Collaboration Tool,

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and Browse Code Systems require that all users obtain a UMLS Metathesaurus License to ensure that
each user acknowledges and abides by code system licensing requirements. There is no charge for
registration, and it is available for any user independent of nationality. With a UMLS license, all VSAC
users can access and create value sets. Implementers must ensure that they comply with any specific
code system implementation/use requirements. Some reviewers may find the registration process
cumbersome for reviewing a small value set, but it is valuable.

5.2.1 Pre-MAT Value Set Review

The purpose of a value set review is to validate correct code selections meeting the clinical intent as
well as the correct hierarchy in the code system. The quality assurance team, internal or external
terminologist, and steward may review the value set, as the NLM is not involved in this review. The
value set steward is the entity responsible for the final selection of codes based on the existing data and
feedback from clinicians. The quality assurance team and terminologist focus on the areas listed in Table
1 and take the appropriate remedial action. It is acceptable to use a Microsoft Excel spreadsheet to
capture and distribute the value set and codes as long as measure developers understand the limitations
previously noted. The recommendation is, however, to use the NLM VSAC to author and review value
sets.
Table 1. Value Set Review Areas and Remedial Actions
Area Remedial Action
Value set duplication Replace duplicate value sets with normalized value sets.
Clinical validity Value sets must correspond to the intent and purpose of the clinical perspective.
Code list completeness A value set should contain all the relevant codes for a specific data element.
Metadata Apply a common, desirable pattern implementing NLM VSAC guidance for value set metadata.
completeness Always include the required Purpose Statements.
Alignment of code Value sets must use recommended terminology systems for a value set. Update code sets from
system to the standards native capture terminologies to those ideally desired.
Terminological Attention to selection of appropriate semantic type(s) is important based on the data element the
correctness value set uses, for example, SNOMED CT disease versus morphologic abnormality. Code system
combinations should use a grouping value set approach.
Single and multiple Reuse value sets and combine with other value sets to create a grouping value set for
concepts representing a more general set of ideas. There is no allowance for nested grouping value sets.
Impact on measure Replace repeating identical logic that is a consequence of multiple similar value sets by using
logic size grouping value sets, which combine appropriate value sets.

5.2.2 Post-MAT Value Set Review3

The VSAC Collaboration Tool provides a quality assurance report for value sets associated with each
measure. This report, located in the Value Set Site Content dashlet of a measure’s collaboration site, is
based on technical analysis of value sets provided before and after completion of MAT development.
At this stage, do not focus the value set review on the clinical intent representation. Rather, focus on
verification of successful capture of all codes in VSAC for use by the MAT. Harmonization may introduce
new changes to value sets during the post-MAT value set review; therefore, these value sets need ad
hoc reviews to ensure the proper changes are in place.

3 This activity only occurs as part of the program release process for the eCQM Annual Update.

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5.2.3 NLM Value Set Review4

During the pre-eCQM release quality assurance process, to improve value set authorship, curation, and
delivery, NLM performs quality assurance checks to compare the validity of value set codes and terms
with the latest source vocabularies. As measure developers create their value sets within the VSAC
Authoring Tool, the tool interactively assesses the code validity within a code system, as well as other
quality assurance parameters. Measure developers should take proper actions, as specified by NLM,
based on the analysis outcome. If the VSAC or NLM quality assurance teams identify value set
deficiencies, measure developers should correct the value sets using the VSAC Authoring Tool.

6 KEY POINTS
Most CMS measures rely at least in part on the use of various standardized codes or code systems for
classifying health care provided in the United States. Specific code systems relevant to measure
development include ICD-10-CM, CPT, SNOMED CT, RxNorm, and LOINC. These systems encode content
and enable computer-based systems to find and utilize data without human intervention.
Value sets are a subset of concepts (represented by a code) drawn from one or more code systems,
where the concepts included in the subset share a common scope of use. Creating value sets requires
thoughtful input of subject matter experts familiar with the clinical or administrative information
needed, combined with the input of terminology experts familiar with the code systems used. The VSAC
is a tool suite developed by NLM to support the creation, maintenance, and retrieval of value sets. CMS
expects that measure developers use the VSAC for value set creation and maintenance.

4 This activity only occurs as part of the program release process for the eCQM Annual Update.

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Centers for Medicare & Medicaid Services. (n.d.-d). Process for requesting new/revised ICD-10-PCS
procedure codes. Retrieved November 29, 2022, from
https://www.cms.gov/Medicare/Coding/ICD10/newrevisedcodes.html
Cimino, J. J. (1998). Desiderata for controlled medical vocabularies in the twenty first century. Methods
of Information in Medicine, 37, 394–403.
https://www.ncbi.nlm.nih.gov/pmc/articles/PMC3415631/pdf/nihms-396702.pdf

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Clinical Quality Language Formatting and Usage Wiki. (n.d.). Negation in QDM. Retrieved November 29,
2022, from https://github.com/cqframework/CQL-Formatting-and-Usage-Wiki/wiki/Negation-
in-QDM
Electronic Clinical Quality Improvement Resource Center. (n.d.). QDM - quality data model. Retrieved
November 29, 2022, from https://ecqi.healthit.gov/qdm
Health Services Platform Consortium. (n.d.). Solor. Retrieved November 29, 2022, from http://solor.io/
HL7 International. (n.d.-a). HL7 specification: Characteristics of a value set definition, release 1. Retrieved
November 29, 2022, from
http://www.hl7.org/implement/standards/product_brief.cfm?product_id=437
HL7 International. (n.d.-b). HL7 v3 value set ParticipationMode. Value Sets. Retrieved November 29,
2022, from http://hl7.org/fhir/R4/v3/ParticipationMode/vs.html
HL7 International. (n.d.-c). Home. Retrieved November 29, 2022, from http://www.hl7.org/index.cfm
HL7 International. (n.d.-d). Value set. HL7 FHIR release 4. Retrieved November 29, 2022, from
http://hl7.org/fhir/R4/valueset-communication-category.html
ICD10Data.com. (2022). 2022 ICD-10-CM diagnosis code A08.11. ICD-10-CM Codes. Retrieved November
29, 2022, from http://www.icd10data.com/ICD10CM/Codes/A00-B99/A00-A09/A08-/A08.11
National Association of Health Data Organizations. (n.d.). Source of payment typology. Retrieved
November 29, 2022, from https://www.nahdo.org/sopt
National Quality Forum. (n.d.). Inclusion of ICD-10 codes in measures using ICD-9 codes.
http://www.qualityforum.org/WorkArea/linkit.aspx?LinkIdentifier=id&ItemID=72793
Observational Health Data Science and Informatics. (n.d.). Usagi. Retrieved November 29, 2022, from
http://ohdsi.github.io/Usagi/
Office of the National Coordinator for Health Information Technology. (n.d.). Interoperability standards
advisory. Retrieved November 29, 2022, from https://www.healthit.gov/isa/
Regenstrief Institute, Inc. (n.d.). LOINC. Retrieved November 29, 2022, from https://loinc.org/
Schadow, G. & McDonald, C. J. (n.d.). The unified code for units of measure. Retrieved November 29,
2022, from http://unitsofmeasure.org/trac
SNOMED International. (n.d.). Home. Retrieved November 29, 2022, from https://www.snomed.org
SNOMED International. (n.d.). US CRS user guide. Retrieved November 29, 2022, from
https://confluence.ihtsdotools.org/display/SCTCR/US+CRS+User+Guide
U.S. National Library of Medicine. (n.d.-a). Appendix 5 – RxNorm term types (TTY). Unified Medical
Language System® (UMLS®). Retrieved November 29, 2022, from
https://www.nlm.nih.gov/research/umls/rxnorm/docs/2019/appendix5.html
U.S. National Library of Medicine. (n.d.-b). RxNorm overview. Unified Medical Language System®
(UMLS®). Retrieved November 29, 2022, from
https://www.nlm.nih.gov/research/umls/rxnorm/overview.html

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U.S. National Library of Medicine. (n.d.-c). RxNorm technical documentation – Table of contents. Unified
Medical Language System® (UMLS®). Retrieved November 29, 2022, from
https://www.nlm.nih.gov/research/umls/rxnorm/docs/index.html
U.S. National Library of Medicine. (n.d.-d). Sign up for a UMLS terminology services account. Retrieved
November 29, 2022, from https://uts.nlm.nih.gov/uts/signup-login
U.S. National Library of Medicine. (n.d.-e). SNOMED CT. Retrieved November 29, 2022, from
https://www.nlm.nih.gov/healthit/snomedct/index.html
U.S. National Library of Medicine. (n.d.-f). UMLS Terminology Services. Retrieved November 29, 2022,
from https://uts.nlm.nih.gov/uts/
U.S. National Library of Medicine. (n.d.-h). Value set authority center. Retrieved November 29, 2022,
from https://vsac.nlm.nih.gov/
U.S. National Library of Medicine. (n.d.-i). Value set life cycle. VSAC Support Center. Retrieved November
29, 2022, from
https://www.nlm.nih.gov/vsac/support/authorguidelines/authoringworkflow.html
U.S. National Library of Medicine. (n.d.-j). VSAC authoring best practices. VSAC Support Center.
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https://www.nlm.nih.gov/vsac/support/authorguidelines/bestpractices.html
U.S. National Library of Medicine. (n.d.-k). VSAC collaboration tool user’s guide. VSAC Support Center.
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https://www.nlm.nih.gov/vsac/support/index.html
U.S. National Library of Medicine. (n.d.-m). VSAC support center. Updating value sets. Retrieved
November 29, 2022, from
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World Health Organization. (n.d.). International classification of functioning disability and health (ICF).
Retrieved November 292022, from http://www.who.int/classifications/icf/en/

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APPENDIX. QDM CATEGORIES WITH ONC HEALTH INFORMATION TECHNOLOGY STANDARDS COMMITTEE
(HITSC) RECOMMENDED VOCABULARIES5
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General Clinical Concept QDM Datatypes QDM Attribute Clinical Vocabulary Standards
Terminologies
Adverse Effect/Allergy/Intolerance “Adverse Event” Code (the causative Medication: N/A
agent of the adverse RxNorm ingredient type or “term type”
event) (TTY)
Vaccine:
CVX
SNOMED CT Substance for drug class only
Other causative agents: SNOMED CT
(product, substance if not a product)
Adverse Effect/Allergy/Intolerance “Adverse Event” Type (the reaction) SNOMED CT (disorders, findings) N/A
Adverse Effect/Allergy/Intolerance “Allergy/Intolerance” Code (the causative Medication: N/A
agent of the allergy/ RxNorm ingredient type (TTY)
intolerance) Vaccine:
CVX
SNOMED CT Substance for drug class only
Other causative agents:
SNOMED CT (substance)
Adverse Effect/Allergy/Intolerance “Intervention, Adverse Event” Type (the reaction) SNOMED CT (disorders, findings) N/A
“Intervention, Intolerance”
Care Experience “Patient Care Experience” Code SNOMED CT (or LOINC if part of an N/A
Evaluation Tool)
Care Experience “Provider Care Experience” Code SNOMED CT (or LOINC if part of an N/A
Evaluation Tool)
Substance “Substance, Administered” Code SNOMED CT (substance if not a product) N/A
“Substance, Order”
“Substance, Recommended”
Substance “Substance, Administered” Negation rationale SNOMED CT (disorders, findings) N/A
“Substance, Order”
“Substance, Recommended”
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5HITSC made these recommendations in 2012 and 2015 using program information and language current at the time and are consistent with the Interoperability Standards Advisory . With the
adoption of the Quality Payment Program and other changes to quality reporting programs, updates to these recommendations will continue to evolve.
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General Clinical Concept QDM Datatypes QDM Attribute Clinical Vocabulary Standards
Terminologies
Care Goal “Care Goal” Code SNOMED CT (disorders, findings) N/A
Condition/Diagnosis/Problem “Diagnosis” Code SNOMED CT (disorders, findings) ICD-9-CM,
ICD-10-CM
Condition/Diagnosis/Problem “Diagnosis” Anatomical location SNOMED CT (body structure) N/A
site
Condition/Diagnosis/Problem “Diagnosis” Severity SNOMED CT (qualifier) N/A
Symptom “Symptom” Code SNOMED CT (disorders, findings) N/A
Symptom “Symptom” Severity SNOMED CT (qualifier) N/A
Encounter “Encounter, Order” Code SNOMED CT (procedure) CPT, Healthcare
(any patient-provider interaction “Encounter, Performed” Common
[e.g., telephone call, email] “Encounter, Recommended” Procedural
regardless of reimbursement Coding System
status, status—includes traditional (HCPCS), ICD-9-
face-to-face encounters) CM Procedures,
ICD-10-CM, ICD-
10-PCS
Encounter “Encounter, Order” Negation rationale SNOMED CT (disorders, findings) N/A
(any patient-provider interaction “Encounter, Performed”
[e.g., telephone call, email] “Encounter, Recommended”
regardless of reimbursement
status, status—includes traditional
face-to-face encounters)
Encounter “Encounter, Recommended” Reason SNOMED CT (disorders, findings) N/A
(any patient-provider interaction
[e.g., telephone call, email]
regardless of reimbursement
status, status—includes traditional
face-to-face encounters)
Encounter “Encounter, Performed” Diagnoses SNOMED CT (disorders, findings) ICD-9-CM, ICD-
(any patient-provider interaction 10-CM
[e.g., telephone call, email]
regardless of reimbursement
status, status—includes traditional
face-to-face encounters)
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General Clinical Concept QDM Datatypes QDM Attribute Clinical Vocabulary Standards
Terminologies
Encounter “Encounter, Performed” Facility location Health Level Seven International® (HL7) N/A
(any patient-provider interaction HealthcareServiceLocation codes (HSLOC)
[e.g., telephone call, email]
regardless of reimbursement
status, status—includes traditional
face-to-face encounters)
Encounter “Encounter, Performed” Admission source SNOMED CT (environment) N/A
(any patient-provider interaction
[e.g., telephone call, email]
regardless of reimbursement
status, status—includes traditional
face-to-face encounters)
Encounter “Encounter, Performed” Discharge disposition SNOMED CT (environment) N/A
(any patient-provider interaction
[e.g., telephone call, email]
regardless of reimbursement
status, status—includes traditional
face-to-face encounters)
Family History “Family History” Code SNOMED CT (person) N/A
Family History “Family History” Relationships SNOMED CT (person, situation) N/A
Device “Device, Applied” Code SNOMED CT (physical object) N/A
“Device, Order”
“Device, Recommended”
Device “Device, Applied” Anatomical approach SNOMED CT (body structure) N/A
“Device, Order” site
“Device, Recommended”
Device “Device, Applied” Anatomical location SNOMED CT (body structure) N/A
“Device, Order” site
“Device, Recommended”
Device “Device, Applied” Reason SNOMED CT (disorders, findings) N/A
“Device, Order”
“Device, Recommended”
Device “Device, Applied” Negation rationale SNOMED CT (disorders, findings) N/A
“Device, Order”
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“Device, Recommended”
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General Clinical Concept QDM Datatypes QDM Attribute Clinical Vocabulary Standards
Terminologies
Physical Exam (definition of the “Physical Exam, Order” N/A LOINC N/A
components of the physical exam “Physical Exam, Performed”
performed) “Physical Exam, Recommended”
Physical Exam (expression of the “Physical Exam, Performed” Result SNOMED CT (disorders, findings) or LOINC N/A
answers/responses for the Normative Responses
physical exam component)
Laboratory Test (names) “Laboratory Test, Order” Code LOINC N/A
“Laboratory Test, Performed”
“Laboratory Test, Recommended”
Laboratory Test (names) “Laboratory Test, Order” Reason SNOMED CT (disorders, findings) N/A
“Laboratory Test, Performed”
“Laboratory Test, Recommended”
Laboratory Test (names) “Laboratory Test, Order” Negation rationale SNOMED CT (disorders, findings) N/A
“Laboratory Test, Performed”
“Laboratory Test, Recommended”
Laboratory Test (results) “Laboratory Test, Performed” Result SNOMED CT (disorders, findings) or LOINC N/A
Normative Responses
Diagnostic Study Test Names “Diagnostic Study, Order” Code LOINC HCPCS
“Diagnostic Study, Performed”
“Diagnostic Study, Recommended”
Diagnostic Study Test Names “Diagnostic Study, Order” Reason SNOMED CT (disorders, findings) N/A
“Diagnostic Study, Performed”
“Diagnostic Study, Recommended”
Diagnostic Study Test Names “Diagnostic Study, Order” Negation rationale SNOMED CT (disorders, findings) N/A
“Diagnostic Study, Performed”
“Diagnostic Study, Recommended”
Diagnostic Study Test Results “Diagnostic Study, Performed” Result SNOMED CT (disorders, findings) or LOINC N/A
Normative Responses
Units of Measure for Results “Laboratory test, Performed” Result (units) UCUM – Unified Code for Units of Measure N/A
“Diagnostic Study, Performed”
Intervention “Intervention, Order” Code SNOMED CT (disorders, findings, CPT, HCPCS,
“Intervention, Performed” procedures, regime/therapy) ICD-9-CM
“Intervention, Recommended” Procedures,
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ICD-10-PCS
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General Clinical Concept QDM Datatypes QDM Attribute Clinical Vocabulary Standards
Terminologies
Intervention “Intervention, Order” Reason SNOMED CT (disorders, findings) N/A
“Intervention, Performed”
“Intervention, Recommended”
Intervention “Intervention, Order” Negation rationale SNOMED CT (disorders, findings) N/A
“Intervention, Performed”
“Intervention, Recommended”
Intervention “Intervention, Performed” Result SNOMED CT (disorders, findings) N/A
Procedure “Procedure, Order” Code SNOMED CT (procedures, regime/therapy) CPT, HCPCS,
“Procedure, Performed” ICD-9-CM
“Procedure, Recommended” Procedures,
ICD-10-PCS
Procedure “Procedure, Order” Reason SNOMED CT (disorders, findings) N/A
“Procedure, Performed”
“Procedure, Recommended”
Procedure “Procedure, Order” Negation rationale SNOMED CT (disorders, findings) N/A
“Procedure, Performed”
“Procedure, Recommended”
Procedure “Procedure, Performed” Result SNOMED CT (disorders, findings) N/A
Assessment Instrument Questions “Assessment, Order” Code LOINC N/A
(e.g., questions for assessing “Assessment, Performed”
patient status used as part of “Assessment, Recommended”
clinical workflow, clinical outcome
evaluation, social functional and
emotional status, patient
preference, experience,
characteristics)
Assessment Instrument Questions “Assessment, Order” Reason SNOMED CT (disorders, findings) N/A
(e.g., questions for assessing “Assessment, Performed”
patient status used as part of “Assessment, Recommended”
clinical workflow, clinical outcome
evaluation, social functional and
emotional status, patient
preference, experience,
characteristics)
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General Clinical Concept QDM Datatypes QDM Attribute Clinical Vocabulary Standards
Terminologies
Assessment Instrument Questions “Assessment, Order” Negation rationale SNOMED CT (disorders, findings) N/A
(e.g., questions for assessing “Assessment, Performed”
patient status used as part of “Assessment, Recommended”
clinical workflow, clinical outcome
evaluation, social functional and
emotional status, patient
preference, experience,
characteristics)
Assessment Instrument “Assessment, Performed” Result SNOMED CT (disorders, findings) or LOINC N/A
Answers/Responses (e.g., Normative Responses
responses to questions for
assessing patient status used as
part of clinical workflow, clinical
outcome evaluation, social
functional and emotional status,
patient preference, experience,
characteristics)
Categories of Function “Assessment, Order” Code ICF – International Classification of N/A
“Assessment, Performed” Functioning, Disability, and Health6
“Assessment, Recommended”
Communication “Communication, Performed” Code SNOMED CT CPT, HCPCS
(disorders, findings)
Communication “Communication, Performed” Category HL7 Value Set CommunicationCategory N/A
Communication “Communication, Performed” Medium HL7 v3 Value Set ParticipationMode N/A
Communication “Communication, Performed” Negation rationale SNOMED CT (disorders, findings) N/A
Medications (administered, “Medication, Active” Code RxNorm N/A
excluding vaccines) “Medication, Administered”
“Medication, Discharge”
“Medication, Dispensed”
“Medication, Order”
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6The HITSC Task Force recommended use of ICF; however, there is a fee associated with ICF. The Interoperability Standards Advisory recommends LOINC for observations and SNOMED CT for
observation values.
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General Clinical Concept QDM Datatypes QDM Attribute Clinical Vocabulary Standards
Terminologies
Medications (administered, “Medication, Active” Reason SNOMED CT (disorders, findings) N/A
excluding vaccines) “Medication, Administered”
“Medication, Discharge”
“Medication, Dispensed”
“Medication, Order”
Vaccines “Immunization, Administered” Code CVX—Vaccines N/A
“Immunization, Order”
Vaccines “Immunization, Administered” Code (for procedure SNOMED CT (procedures) CPT
“Immunization, Order” for administering a
vaccine)
Vaccines “Immunization, Administered” Reason SNOMED CT (disorders, findings) N/A
“Immunization, Order”
Vaccines “Immunization, Administered” Negation rationale SNOMED CT (disorders, findings) N/A
“Immunization, Order”
Patient Characteristic, Date of “Patient Characteristic Birthdate” Code Fixed to LOINC code 21112-8 (birth date); N/A
Birth therefore, cannot be further qualified with
a value set
Patient Characteristic, Expired “Patient Characteristic Expired” Code Fixed to SNOMED CT code 419099009
(dead); therefore, cannot be further
qualified with a value set
Patient Characteristic, Sex “Patient Characteristic Sex” Code ONC Administrative Sex – VSAC OID
2.16.840.1.113762.1.4.1
Patient Characteristic, Ethnicity “Patient Characteristic Ethnicity” Code CDC National Center for Health Statistics – N/A
VSAC OID 2.16.840.1.114222.4.11.837
Detailed Ethnicity: HL7 Terminology – VSAC
OID 2.16.840.1.114222.4.11.877
Patient Characteristic, Race “Patient Characteristic Race” Code CDC National Center for Health Statistics –
VSAC OID 2.16.840.1.114222.4.11.836
Race Value Set: HL7 Terminology – VSAC
OID 2.16.840.1.113883.1.11.14914
Patient Characteristic, Preferred “Individual Characteristic” Code RFC 5646 N/A
Language
Patient Characteristic, Payer “Patient Characteristic Payer” Code NAHDO Source of Payer Typology VSAC OID N/A
2.16.840.1.114222.4.11.3591
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Patient Characteristic “Patient Characteristic, Clinical Trial Code SNOMED CT (findings) N/A
Participant”
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General Clinical Concept QDM Datatypes QDM Attribute Clinical Vocabulary Standards
Terminologies
Patient Characteristic “Patient Characteristic, Clinical Trial Reason SNOMED CT (disorders, findings) N/A
Participant”
Patient Characteristic, Unspecified “Patient Characteristic (unspecified)” Code SNOMED CT (disorders, findings) N/A
Practitioner QDM Entity Practitioner Specialty National Uniform Claim Committee (NUCC) N/A
Healthcare Provider Taxonomy
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