This is one of the recommendations in the report 'Unscheduled care: developing a whole systems approach', which is published today.
Another is that the government should develop a national communication strategy to help the public understand how best to access unscheduled care services.
The report describes unscheduled care as any unplanned and urgent health or social care. It ranges from emergency hospital treatment to help for individuals to care for themselves at home. This includes 999 services and booking an urgent or emergency appointment with a GP.
Jeremy Colman, auditor general for Wales, said: 'Delivery of unscheduled care will not improve unless it is seen and planned as a whole system. Making the system easier for the public to use and linking up the current services more effectively are more important than focusing on access to particular parts of a disjointed system.'
