Medicaid Managed Care
CMS's Oversight of States' Rate Setting Needs Improvement Gao ID: GAO-10-810 August 4, 2010Medicaid managed care rates are required to be actuarially sound. A state is required to submit its rate-setting methodology, including a description of the data used, to the Department of Health and Human Services' (HHS) Centers for Medicare & Medicaid Services (CMS) for approval. The Children's Health Insurance Program Reauthorization Act of 2009 required GAO to examine the extent to which states' rates are actuarially sound. GAO assessed CMS oversight of states' compliance with the actuarial soundness requirements and efforts to ensure the quality of data used to set rates. GAO reviewed documents, including rate-setting review files, from 6 of CMS's 10 regional offices. The selected offices oversaw 26 of the 34 states with comprehensive managed care programs; the states' programs varied in size and accounted for over 85 percent of managed care enrollment. GAO interviewed CMS officials and Medicaid officials from 11 states that were chosen based in part on variation in program size and geography.
CMS has been inconsistent in reviewing states' rate setting for compliance with the Medicaid managed care actuarial soundness requirements, which specify that rates must be developed in accordance with actuarial principles, appropriate for the population and services, and certified by actuaries. Variation in CMS regional office practices contributed to this inconsistency in oversight. For example, GAO found significant gaps in CMS's oversight of two states. 1) First, the agency had not reviewed Tennessee's rate setting for multiple years and only determined that the state was not in compliance with the requirements through the course of GAO's work. According to CMS officials, Tennessee received approximately $5 billion a year in federal funds for rates that GAO determined had not been certified by an actuary, which is a regulatory requirement. 2) Second, CMS had not completed a full review of Nebraska's rate setting since the actuarial soundness requirements became effective, and therefore may have provided federal funds for rates that were not in compliance with all of the requirements. Variation in a number of CMS regional office practices contributed to these gaps and other inconsistencies in the agency's oversight of states' rate setting. For example, regional offices varied in the extent to which they tracked state compliance with the actuarial soundness requirements, their interpretations of how extensive a review of a state's rate setting was needed, and their determinations regarding sufficient evidence for meeting the actuarial soundness requirements. As a result of our review, CMS took a number of steps that may address some of the variation that contributed to inconsistent oversight, such as requiring regional office officials to use a detailed checklist when reviewing states' rate setting. However, additional steps are necessary to prevent further gaps in oversight and additional federal funds from being paid for rates that are not in compliance with the actuarial soundness requirements. CMS's efforts to ensure the quality of the data used to set rates were generally limited to requiring assurances from states and health plans--efforts that did not provide the agency with enough information to ensure the quality of the data used. CMS's regulations do not include standards for the type, amount, or age of the data used to set rates, and states are not required to report to CMS on the quality of the data. When reviewing states' descriptions of the data used to set rates, CMS officials focused primarily on the appropriateness of the data rather than their reliability. With limited information on data quality, CMS cannot ensure that states' managed care rates are appropriate, which places billions of federal and state dollars at risk for misspending. States and other sources have information on the quality of data used for rate setting--information that CMS could obtain. In addition, CMS could conduct or require periodic audits of data used to set rates; CMS is required to conduct such audits for the Medicare managed care program. GAO recommends that CMS implement a mechanism to track state compliance with the requirements, clarify guidance on rate-setting reviews, and make use of information on data quality in overseeing states' rate setting. HHS agreed with our recommendations and described initiatives underway that are aimed at improving CMS's oversight.
RecommendationsOur recommendations from this work are listed below with a Contact for more information. Status will change from "In process" to "Open," "Closed - implemented," or "Closed - not implemented" based on our follow up work.
Director: Carolyn L. Yocom Team: Government Accountability Office: Health Care Phone: (202) 512-4931GAO-10-810, Medicaid Managed Care: CMS's Oversight of States' Rate Setting Needs Improvement
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Report to Congressional Committees:
United States Government Accountability Office:
GAO:
August 2010:
Medicaid Managed Care:
CMS's Oversight of States' Rate Setting Needs Improvement:
GAO-10-810:
GAO Highlights:
Highlights of GAO-10-810, a report to Committee on Finance, U.S.
Senate, and Committee on Energy and Commerce, House of Representatives.
Why GAO Did This Study:
Medicaid managed care rates are required to be actuarially sound. A
state is required to submit its rate-setting methodology, including a
description of the data used, to the Department of Health and Human
Services‘ (HHS) Centers for Medicare & Medicaid Services (CMS) for
approval. The Children‘s Health Insurance Program Reauthorization Act
of 2009 required GAO to examine the extent to which states‘ rates are
actuarially sound. GAO assessed CMS oversight of states‘ compliance
with the actuarial soundness requirements and efforts to ensure the
quality of data used to set rates. GAO reviewed documents, including
rate-setting review files, from 6 of CMS‘s 10 regional offices. The
selected offices oversaw 26 of the 34 states with comprehensive
managed care programs; the states‘ programs varied in size and
accounted for over 85 percent of managed care enrollment. GAO
interviewed CMS officials and Medicaid officials from 11 states that
were chosen based in part on variation in program size and geography.
What GAO Found:
CMS has been inconsistent in reviewing states‘ rate setting for
compliance with the Medicaid managed care actuarial soundness
requirements, which specify that rates must be developed in accordance
with actuarial principles, appropriate for the population and
services, and certified by actuaries. Variation in CMS regional office
practices contributed to this inconsistency in oversight. For example,
GAO found significant gaps in CMS‘s oversight of two states.
* First, the agency had not reviewed Tennessee‘s rate setting for
multiple years and only determined that the state was not in
compliance with the requirements through the course of GAO‘s work.
According to CMS officials, Tennessee received approximately $5
billion a year in federal funds for rates that GAO determined had not
been certified by an actuary, which is a regulatory requirement.
* Second, CMS had not completed a full review of Nebraska‘s rate
setting since the actuarial soundness requirements became effective,
and therefore may have provided federal funds for rates that were not
in compliance with all of the requirements.
Variation in a number of CMS regional office practices contributed to
these gaps and other inconsistencies in the agency‘s oversight of
states‘ rate setting. For example, regional offices varied in the
extent to which they tracked state compliance with the actuarial
soundness requirements, their interpretations of how extensive a
review of a state‘s rate setting was needed, and their determinations
regarding sufficient evidence for meeting the actuarial soundness
requirements. As a result of our review, CMS took a number of steps
that may address some of the variation that contributed to
inconsistent oversight, such as requiring regional office officials to
use a detailed checklist when reviewing states‘ rate setting. However,
additional steps are necessary to prevent further gaps in oversight
and additional federal funds from being paid for rates that are not in
compliance with the actuarial soundness requirements.
CMS‘s efforts to ensure the quality of the data used to set rates were
generally limited to requiring assurances from states and health plans”
efforts that did not provide the agency with enough information to
ensure the quality of the data used. CMS‘s regulations do not include
standards for the type, amount, or age of the data used to set rates,
and states are not required to report to CMS on the quality of the
data. When reviewing states‘ descriptions of the data used to set
rates, CMS officials focused primarily on the appropriateness of the
data rather than their reliability. With limited information on data
quality, CMS cannot ensure that states‘ managed care rates are
appropriate, which places billions of federal and state dollars at
risk for misspending. States and other sources have information on the
quality of data used for rate setting”information that CMS could
obtain. In addition, CMS could conduct or require periodic audits of
data used to set rates; CMS is required to conduct such audits for the
Medicare managed care program.
What GAO Recommends:
GAO recommends that CMS implement a mechanism to track state
compliance with the requirements, clarify guidance on rate-setting
reviews, and make use of information on data quality in overseeing
states‘ rate setting. HHS agreed with our recommendations and
described initiatives underway that are aimed at improving CMS‘s
oversight.
View [hyperlink, http://www.gao.gov/products/GAO-10-810] or key
components. For more information, contact Carolyn L. Yocom at (202)
512-7114 or yocomc@gao.gov.
[End of section
Contents:
Letter:
Background:
CMS's Oversight of States' Compliance with Actuarial Soundness
Requirements Has Been Inconsistent, in Part Due to Variation in
Regional Office Practices:
CMS's Limited Efforts Do Not Ensure the Quality of the Data Used to
Set Rates:
Conclusions:
Recommendations for Executive Action:
Agency Comments and Our Evaluation:
Appendix I: Methodology for Selecting CMS Regional Offices and
Analyzing CMS's Medicaid Managed Care Rate-Setting Files:
Appendix II: Methodology for Selecting States to Contact:
Appendix III: Selected States' Reported Efforts Intended to Ensure the
Quality of the Data Used to Set Rates:
Appendix IV: Comments from the Department of Health and Human Services:
Appendix V: GAO Contact and Staff Acknowledgments: Tables:
Table 1: Summary of the Regulatory Requirements Covered in CMS's
Checklist for Reviewing Medicaid Managed Care Rate Setting:
Table 2: Extent to which Evidence Was Cited in the 28 CMS Files We
Reviewed:
Table 3: CMS Regional Offices Reviewed:
Table 4: Description of the 28 CMS Medicaid Managed Care Rate-Setting
Files Reviewed:
Table 5: Information about the Medicaid Managed Care Programs of
Selected States, as of 2008:
Table 6: Eleven States' Reported Efforts Intended to Ensure the
Quality of Data Used to Set Medicaid Managed Care Rates:
Abbreviations:
ASOP: Actuarial Standard of Practice:
CMS: Centers for Medicare & Medicaid Services:
FFS: fee-for-service:
HHS: Department of Health and Human Services:
OACT: Office of the Actuary:
PCCM: primary care case management:
PERM: Payment Error Rate Measurement:
PPACA: Patient Protection and Affordable Care Act:
[End of section]
United States Government Accountability Office:
Washington, DC 20548:
August 4, 2010:
The Honorable Max Baucus:
Chairman:
The Honorable Charles E. Grassley:
Ranking Member:
Committee on Finance:
United States Senate:
The Honorable Henry A. Waxman:
Chairman:
The Honorable Joe Barton:
Ranking Member:
Committee on Energy and Commerce:
House of Representatives:
The importance of managed care in the Medicaid program is significant,
with nearly half of all Medicaid enrollees--approximately 20.7 million
individuals--enrolled in capitated managed care in 2008 and a total of
over $62 billion in federal and state spending for managed care in
2007.[Footnote 1] Moreover, Medicaid--a joint federal-state program
that finances health care for certain categories of low-income
individuals--is expanding. With the passage of the Patient Protection
and Affordable Care Act (PPACA) in March 2010, states will expand
coverage under the Medicaid program to an estimated 18 million
additional people.[Footnote 2] Expansions of Medicaid are likely to
increase the number of people enrolled in and amount of spending for
managed care, making effective federal oversight of this large and
complex component of the Medicaid program particularly critical.
The potential benefits and risks of Medicaid managed care are
substantial. Managed care is designed to ensure the provision of
appropriate health care services in a cost-efficient manner. However,
capitation payments, which are made prospectively to health plans to
provide or arrange for services for Medicaid enrollees,[Footnote 3]
can create an incentive to underserve or deny access to needed
care.[Footnote 4] Thus, appropriate safeguards are needed to ensure
access to care and appropriate payment in Medicaid managed care. One
such safeguard included in federal law is the requirement that states'
capitation rates be actuarially sound.[Footnote 5] In 2002, the
Centers for Medicare & Medicaid Services (CMS), the agency within the
Department of Health and Human Services (HHS) that oversees states'
Medicaid programs, issued regulations defining actuarially sound rates
as those that are (1) developed in accordance with generally accepted
actuarial principles and practices; (2) appropriate for the
populations to be covered and the services to be furnished; and (3)
certified as meeting applicable regulatory requirements by qualified
actuaries.[Footnote 6] The regulations also specify the documentation
states are required to submit to CMS regional offices to demonstrate
compliance with the requirements, including a description of their
rate-setting methodology and the data used to set rates. In 2003, CMS
finalized a detailed checklist that its regional office staff could
use in their reviews of states' rate setting and for states and
states' actuaries to consider in setting rates.[Footnote 7]
The Children's Health Insurance Program Reauthorization Act of 2009
directed us to examine the extent to which state Medicaid managed care
payment rates are actuarially sound.[Footnote 8] Specifically, we
assessed (1) CMS's oversight of states' compliance with the Medicaid
managed care actuarial soundness requirements, and (2) CMS's efforts
to ensure the quality of the data used to set rates.
To assess CMS's oversight of states' compliance with the actuarial
soundness requirements, we reviewed documentation of CMS's oversight
efforts from 6 of the 10 CMS regional offices. These offices were
responsible for reviewing rate setting and approving rates for 26 of
the 34 states with comprehensive managed care programs, were
geographically diverse, and oversaw states with programs that ranged
in size and accounted for about 85 percent of national managed care
enrollment.[Footnote 9] Our review of CMS's oversight efforts included
completing a structured review of 28 CMS files documenting rate-
setting reviews completed as of October 31, 2009.[Footnote 10] (See
appendix I for a summary of the criteria we used to select the 6 CMS
regional offices and the methodology for our review of CMS files.) To
supplement our review, we interviewed officials in CMS's central
office and the 6 selected CMS regional offices to obtain information
regarding steps taken by CMS to ensure the actuarial soundness of
rates; and we reviewed regional office standard operating procedures.
We also interviewed Medicaid officials from 11 of the states overseen
by the 6 selected CMS regional offices to obtain their views of, and
experiences with, CMS's oversight of state compliance with the
actuarial soundness requirements.[Footnote 11] These states were
geographically diverse and had managed care programs that varied in
size. (See appendix II for our criteria for selecting states for
interviews.)
To assess CMS's efforts to ensure the quality of data used to set
rates, we reviewed CMS policies and guidance related to rate setting.
In addition, in interviews with officials from CMS's central office
and the selected regional offices, we asked about steps CMS takes to
ensure data quality, including what information CMS requires states to
include in their rate-setting submissions to demonstrate the
appropriateness and reliability of the data used to set rates and
whether any audits or studies of rate setting had been performed. We
also assessed, as part of our review of CMS files, the information
provided in states' rate-setting submissions about steps taken to
ensure data quality, including statements made by states' actuaries.
In interviews with state Medicaid officials, we asked about their
processes to ensure data quality and their experiences with CMS
oversight of data quality. We also reviewed relevant audit findings
from the Washington State Auditor's Office.[Footnote 12] Finally, we
contacted officials from five health plans to discuss their efforts to
ensure the quality of the data submitted to states for rate setting.
[Footnote 13]
We conducted our performance audit from October 2009 through July 2010
in accordance with generally accepted government auditing standards.
Those standards require that we plan and perform the audit to obtain
sufficient, appropriate evidence to provide a reasonable basis for our
findings and conclusions based on our audit objectives. We believe
that the evidence obtained provides a reasonable basis for our
findings and conclusions based on our audit objectives.
Background:
Under Medicaid managed care, states contract with health plans and
prospectively pay the plans a fixed monthly rate per enrollee to
provide or arrange for most health services. These contracts are known
as "risk" contracts because plans assume the risk for the cost of
providing covered services. States' processes for developing rates may
vary in a number of ways, including the type and time frames of data
they use as the basis for setting rates, referred to as the base-year
data,[Footnote 14] and what approach they use to negotiate rates with
health plans. After rates are developed, an actuary certifies the
rates as actuarially sound for a defined period of time, typically 1
year. In order to receive federal funds for its managed care program,
a state is required to submit its rate-setting methodology and rates
to CMS for review and approval. This review, completed by CMS regional
office staff, is designed to ensure a state complies with federal
regulatory requirements for setting actuarially sound rates.
CMS's Oversight of Rate Setting:
CMS published a final rule on June 14, 2002, outlining the agency's
regulatory requirements for actuarially sound rates. These
requirements largely focus on the process states must use in setting
rates.[Footnote 15] For example, the regulations require states to
document their rate-setting methodology and include an actuarial
certification of rates. In addition, the regulations include a
requirement that when states use data from health plans as the basis
for rates they must have plan executives certify the accuracy and
completeness of their data. The regulations do not include standards
for the type, amount, or age of the data that states may use in
setting rates. The regulations also do not include standards for the
reasonableness or adequacy of rates. In the preamble to the final
rule, CMS noted that health plans were better able to determine the
reasonableness and adequacy of rates when deciding whether to contract
with a state.
In July 2003, CMS finalized a detailed checklist that regional office
staff could use when reviewing states' rate-setting submissions for
compliance with the actuarial soundness requirements and that states
and states' actuaries could use when developing rates.[Footnote 16]
The checklist includes citations to, and a description of, each
regulatory requirement; guidance on what constitutes state compliance
with the requirement; and spaces for the CMS official to check whether
each requirement was met and cite evidence from the state's submission
for compliance with the requirement. The checklist also provides
guidance on the level of review that should occur for different types
of rate changes. When the state is developing a new rate, or using new
actuarial techniques or data to change previously approved rates, the
checklist indicates a full review should be done, which entails
reviewing the state's submission for compliance with all of the
requirements covered in the checklist. For adjustments to rates that
were previously approved as meeting the regulations,[Footnote 17] the
checklist indicates a partial review should be done; a partial review
focuses on a few key requirements in the checklist, such as ensuring
that the state has included a certification of rates from a qualified
actuary. As of June 2010, CMS was in the process of revising the
checklist. One of the planned changes was to emphasize the need for
more complete encounter data because CMS officials indicated that the
agency has determined that encounter data that do not include pricing
information are not sufficient for setting rates. CMS expects to
complete the checklist revisions by November 2010. (See table 1 for a
summary of the sections in CMS's checklist.)
Table 1: Summary of the Regulatory Requirements Covered in CMS's
Checklist for Reviewing Medicaid Managed Care Rate Setting:
Section of the checklist: Overview of rate-setting methodology[A];
Description of key requirements: State is required to provide
documentation regarding the general rate-setting methodology, contract
procurement, and the actuarial certification, including:
* the rates and the time period for the rates;
* a description of risk-sharing mechanisms;
* a projection of expenditures, and;
* an explanation of rate setting.
Section of the checklist: Base year utilization and cost data[B];
Description of key requirements: State is required to provide
documentation and an assurance that all payment rates are:
* based only upon services covered under the state Medicaid plan or
costs related to providing these services, such as health plan
administration;[C] and;
* provided under the contract to Medicaid-eligible individuals.
Section of the checklist: Adjustments to base year data[D];
Description of key requirements: State is required to provide
documentation of any adjustments to the base year data, including
detailing the policy assumptions, size, and effect of the adjustments.
Adjustments may include changes to the following:
* services covered;
* administration;
* medical service cost and trend inflation, and;
* utilization.
Section of the checklist: Rate category groupings[B];
Description of key requirements: State is required to create rate
cells specific to the enrolled population. Categories the state should
normally consider in the establishment of rates include age, gender,
locality/region, and eligibility. States may omit categories or
combine them with another category.
Section of the checklist: Other sections[B];
Description of key requirements: State is required to document their
methodology in a number of other areas. For example:
* document that they have examined base year data for distortions,
such as special populations with catastrophic costs, and adjusted
rates in a cost-neutral manner;
* document the use of reinsurance and other risk-sharing mechanisms;
and;
* explain any incentive arrangements in the contract.
Source: GAO analysis of CMS checklist.
Notes:
[A] This section of the checklist is addressed in both full and
partial rate-setting reviews.
[B] This section of the checklist is addressed in a full rate-setting
review, but not in a partial review.
[C] State Medicaid plans are approved by CMS and define how each state
will operate its Medicaid program, including which populations and
services are covered.
[D] This section of the checklist is addressed in a full rate-setting
review and may be covered in a partial review for adjustments that the
state made that had not previously been subject to CMS review.
[End of table]
According to CMS officials, the regional officials responsible for
conducting rate-setting reviews may have a financial background, but
are not actuaries. Officials also noted that CMS's OACT, which
provides actuarial advice to other offices within CMS, is generally
not involved with Medicaid rate-setting reviews. However, they
indicated that when the CMS officials responsible for rate-setting
reviews have concerns with a state's rate-setting methodology and
cannot resolve those concerns with the state, they can contact OACT to
request an independent review.
Actuarial Principles and Practices for Medicaid Managed Care Rate
Setting:
CMS's regulations require that actuarially sound rates be developed in
accordance with generally accepted actuarial principles and practices.
There is no Actuarial Standard of Practice (ASOP) that applies to
actuarial work performed to comply with CMS's regulations. However, in
2005, the American Academy of Actuaries published a practice note that
provides nonbinding guidance on certifying Medicaid managed care
rates.[Footnote 18]
The practice note includes a proposed definition for "actuarial
soundness," as there was no other working definition of the term that
would be relevant to the actuary's role in certifying Medicaid managed
care rates. Under the definition, rates are actuarially sound if, for
the period of time covered by the certification, projected premiums
provide for all "reasonable, appropriate, and attainable costs;" also
under the definition, rates do not have to encompass all possible
costs that any health plan might incur. The note emphasizes that the
definition only applies to the certification of Medicaid managed care
rates, and that it differs from the definition used when certifying a
health plan's rates.
The practice note also provides information on the actuary's role in
assessing the quality of data used to set rates and refers the actuary
to the ASOP on data quality for further guidance.[Footnote 19] The
practice note explains that if the actuary is involved in developing
the rate, then the actuary would consider all available data,
including FFS data, Medicaid managed care encounter data, and Medicaid
managed care financial reports and financial statements. The actuary
would typically compare data sources for reasonableness and check for
material differences when determining the preferred source or sources
for the base-year data. The ASOP on data quality clarifies that while
actuaries should generally review the data for reasonableness and
consistency they are not required to audit the data. The ASOP also
explains that the accuracy and completeness of the data are the
responsibility of those that provided them, namely the state or health
plans.
CMS's Oversight of States' Compliance with Actuarial Soundness
Requirements Has Been Inconsistent, in Part Due to Variation in
Regional Office Practices:
CMS has been inconsistent in its review of states' rate setting. In
the six CMS regional offices we reviewed, CMS had not reviewed one
state's rate setting for compliance with the actuarial soundness
requirements and had not conducted a full review for another. We also
identified a number of other inconsistencies in CMS's review of
states' compliance with the actuarial soundness requirements.
Variation in CMS regional offices' practices contributed to these
inconsistencies in oversight.
CMS Has Been Inconsistent in Reviewing States' Rate Setting for
Compliance with the Actuarial Soundness Requirements:
In the six CMS regional offices we reviewed, we found inconsistencies
in CMS's review of state's rate setting, including significant gaps in
the agency's oversight of two states' compliance with the actuarial
soundness requirements. First, CMS had not reviewed one state's
(Tennessee) rate setting for compliance with the actuarial soundness
requirements or approved the state's rates. In 2007, Tennessee began
transitioning its managed care program, which included all of the
state's approximately 1 million Medicaid enrollees, to risk contracts
that were subject to the actuarial soundness requirements. Since
moving to risk contracts, the state submitted at least two actuarial
reports to CMS's Atlanta regional office indicating the program
change, but these documents did not trigger a CMS review. These
reports did not include actuarial certifications, and Tennessee
officials confirmed that the state's rates had not been certified by
an actuary, which is a regulatory requirement.[Footnote 20] As a
result, according to CMS officials, Tennessee received, and is
continuing to receive, approximately $5 billion a year in federal
funds for rates that we determined had not been certified by an
actuary or assessed by CMS for compliance with the requirements. Based
on issues we raised during our review, CMS determined that Tennessee
was not in compliance with the actuarial soundness requirements and,
as of June 2010, was working to bring the state into compliance.
[Footnote 21]
Second, while CMS officials said that all states should have had a
full review of rate setting after the actuarial soundness requirements
became effective in August 2002, it appeared that CMS officials had
not completed a full rate-setting review for Nebraska.[Footnote 22]
CMS had no documentation of its last full review of Nebraska's rate
setting, but officials believed that the last full review was
completed in 2002.[Footnote 23] According to Nebraska officials, the
state last made significant changes to its rate setting for the state
fiscal year beginning in 2001, which according to criteria in CMS's
checklist would have triggered a full CMS review. Based on what CMS
and Nebraska officials told us, CMS's last full review was likely done
before the actuarial requirements became effective. As a result,
Nebraska received federal funds for more than 7 years for rates that
may not have been in compliance with all of the actuarial soundness
requirements.
In addition to these gaps in oversight, we found inconsistencies in
the reviews CMS completed. In instances when CMS did a full rate-
setting review, it was unclear whether CMS consistently ensured that
states met all of the actuarial soundness requirements. We found
evidence that the rates in all 28 of the CMS files we reviewed were
certified by a member of the American Academy of Actuaries, as is
required by the regulations.[Footnote 24] However, the extent to which
CMS ensured state compliance with other aspects of the actuarial
soundness requirements--such as the requirement that rates be based
only on services covered under the state's Medicaid plan or costs
related to providing these services--was unclear. For example, in
nearly a third of the files we reviewed, or 8 of 28 files, CMS
officials did not use the rate-setting checklist to document their
review; therefore we could not determine whether CMS ensured that
states were in compliance with all of the requirements. In 17 of the
20 remaining files where the CMS official used the checklist, the
official cited evidence of the state's compliance for some
requirements, but not others.
When officials did cite evidence, the evidence did not always appear
to meet the requirements. For example, one of the requirements in the
regulations is that states provide an assurance that rates are based
only on services covered under the state's Medicaid plan or costs
related to providing these services. Of the 19 files where CMS
officials cited evidence of such an assurance, we were unable to
locate the assurance in 2 of the files. Another requirement is that
states include a comparison of expenditures under the previous year's
rates to those projected under the proposed rates. In the 15 files
where CMS cited evidence of the comparison of expenditures, we did not
find a comparison that appeared to meet the requirement in 2 of the
files. See table 2 for more information on the extent to which
evidence was cited in the CMS files we reviewed.
Table 2: Extent to which Evidence Was Cited in the 28 CMS Files We
Reviewed:
Actuarial soundness requirements covered in CMS's checklist: The state
must include documentation of size and effect of adjustments to base
year data for medical/trend inflation;
Number of files where CMS cited evidence: Appeared to meet the
requirement: 19;
Number of files where CMS cited evidence: Did not appear to meet the
requirement: 0;
No evidence cited[A]: 9.
Actuarial soundness requirements covered in CMS's checklist: The state
must include documentation of size and effect of adjustments to base
year data for administrative cost allowances;
Number of files where CMS cited evidence: Appeared to meet the
requirement: 19;
Number of files where CMS cited evidence: Did not appear to meet the
requirement: 0;
No evidence cited[A]: 9.
Actuarial soundness requirements covered in CMS's checklist: The
state's documentation must include an assurance that capitation rates
are based only on services covered under the state's Medicaid plan or
costs related to providing these services;
Number of files where CMS cited evidence: Appeared to meet the
requirement: 17;
Number of files where CMS cited evidence: Did not appear to meet the
requirement: 2;
No evidence cited[A]: 9.
Actuarial soundness requirements covered in CMS's checklist: The state
must document final capitation rates;
Number of files where CMS cited evidence: Appeared to meet the
requirement: 14;
Number of files where CMS cited evidence: Did not appear to meet the
requirement: 3;
No evidence cited[A]: 11.
Actuarial soundness requirements covered in CMS's checklist: The
state's documentation must include an assurance that capitation rates
are for Medicaid-eligible individuals;
Number of files where CMS cited evidence: Appeared to meet the
requirement: 14;
Number of files where CMS cited evidence: Did not appear to meet the
requirement: 5;
No evidence cited[A]: 9.
Actuarial soundness requirements covered in CMS's checklist: The
state's documentation must include a comparison of expenditures under
the previous year's contract to those projected under the proposed
contract;
Number of files where CMS cited evidence: Appeared to meet the
requirement: 13;
Number of files where CMS cited evidence: Did not appear to meet the
requirement: 2;
No evidence cited[A]: 13.
Actuarial soundness requirements covered in CMS's checklist: The state
must include documentation of size and effect of adjustments to the
base year data for incomplete data;
Number of files where CMS cited evidence: Appeared to meet the
requirement: 13;
Number of files where CMS cited evidence: Did not appear to meet the
requirement: 0;
No evidence cited[A]: 15[B].
Actuarial soundness requirements covered in CMS's checklist: The state
must include documentation of size and effect of adjustments to base
year data for benefit differences;
Number of files where CMS cited evidence: Appeared to meet the
requirement: 10;
Number of files where CMS cited evidence: Did not appear to meet the
requirement: 7;
No evidence cited[A]: 11[C].
Source: GAO analysis of 28 CMS files.
Notes:
[A] This column includes 8 files where CMS officials did not use the
checklist to document their review, as well as other files where the
CMS official did not cite evidence for a particular actuarial
soundness requirement.
[B] In 6 of these files, CMS did not cite evidence as the state did
not make the specified adjustment and thus the requirement for
documentation was not applicable.
[C] In 2 of these files, CMS did not cite evidence as the state did
not make the specified adjustment and thus the requirement for
documentation was not applicable.
[End of table]
Finally, CMS did not consistently review states' rate setting for
compliance with the actuarial soundness requirements prior to the new
rates being implemented. In 20 of 28 files we reviewed, we found that
CMS completed its review of rate setting after the state had begun
implementing the proposed rates; that is, after the effective date of
the proposed rates. CMS officials told us that a variety of factors
could delay the approval of rates, including states submitting a
request for approval after implementing the rates. CMS officials
further explained that they did not consider a state to be out of
compliance with the actuarial soundness requirements until the end of
the federal fiscal year quarter in which the state implemented the
unapproved rates.[Footnote 25] Of the 20 files where CMS approved
rates after the state implemented them, 13 had rates that were
approved more than 3 months after the state implemented the rates,
which means that the rates were approved after the end of the quarter
in which they were implemented.[Footnote 26] CMS officials confirmed
that the agency generally continued to provide federal funds for the
states' managed care contracts even in cases where the rates were not
approved by the end of the quarter. According to CMS officials, if the
state failed to gain CMS approval or had to lower the rates to achieve
approval, then CMS would reduce future federal reimbursement to
account for federal funds paid to states for rates that had not been
approved. However, CMS reviewing states' rate setting after states
have begun implementing rates may result in changes to states' rate-
setting methodology; this could lead to retroactive changes, including
reductions, in health plans' rates. The possibility of rates being
decreased retroactively may make it difficult for health plans to
assess the reasonableness and adequacy of rates when contracting with
states, an assessment that CMS relies on as a check of states' rate
setting.
Variation in Practices among CMS Regional Offices Contributed to
Inconsistent Oversight:
Variation in a number of regional office practices contributed to the
inconsistency in CMS's oversight of states' rate setting. Regional
offices varied in the extent to which they tracked state compliance
with the requirements, the extent to which they withheld federal
funds, their criteria for doing full and partial reviews of rate
setting, and what they considered to be sufficient evidence for
meeting the requirements.
* Tracking compliance. Officials from all of the regional offices we
spoke with told us that they tracked basic information regarding the
status of the CMS review process, such as when a state's submission
was received and when CMS's approval letter was issued. However, based
on our interviews with CMS regional officials, we found that four of
the six regional offices did not track information that would allow
them to identify states that were not in compliance with actuarial
soundness requirements, such as the beginning and end dates of the
rates specified by the actuary in the certification. Officials from
the remaining two regional offices, Kansas City and San Francisco,
told us they tracked the effective dates of approved rates.
* Withholding funds. There was also variation among regional offices
in the conditions that had to be met in order for states to receive
federal funds. For example, officials from the San Francisco regional
office told us that they did not release federal funds to states until
the states' managed care contract and rates had been approved.
Officials said that the office had withheld funds in several cases
until the state demonstrated compliance with the requirements. For
example, from October 2008 through April 2010, the San Francisco
regional office reported withholding a total of $302.7 million in
federal funding for Hawaii because the state's contracts and rates did
not meet the actuarial soundness requirements. In contrast, officials
we interviewed from the Atlanta regional office said that the office
would release federal funds to a state even if the state's rates had
not yet been approved by CMS.
* Criteria for full and partial reviews. CMS regional officials had
different interpretations of when full versus partial reviews of rate
setting were necessary. For example, officials from the New York
regional office told us that they completed a full review for each
rate-setting submission received, regardless of the changes made to
rates or rate setting. In contrast, a Kansas City regional office
official told us that she completed a partial review in cases where
the state adjusted the rates but had not changed the data used as the
basis for rates.
* Sufficient evidence for compliance. Regional office officials varied
in how they determined sufficient evidence for state compliance with
certain requirements. For example, for the requirement that rates are
for Medicaid-eligible individuals covered under the contract,
officials from the San Francisco regional office told us that, while
they had verified information provided by states on the populations
covered under the rates, they mainly looked for an assurance from the
state that rates were for eligible populations. In contrast, a Kansas
City regional office official explained that an assurance from the
state alone would not be sufficient. Rather, the official would
require evidence of the eligible populations included in, and excluded
from, the rate-setting methodology.
* Other variations. Variations in other regional office practices may
also have contributed to the inconsistency in CMS oversight. For
example, management oversight of rate-setting reviews in regional
offices varied. A Kansas City regional official who reviews states'
rate setting told us that, prior to approving states' rates, she
submitted memoranda outlining the impact of states' proposed rate
changes and the rationale for recommending approval of the package to
her regional office managers. In contrast, officials from the New York
regional office told us that most officials responsible for reviewing
and approving states' rate setting worked independently and managers
did not review a completed checklist. Other variations in practices
that may have had an effect on CMS oversight included differences in
training and standard procedures for conducting and documenting
reviews.
As a result of our review, CMS took a number of steps that may address
some of the variation in regional office practices. For example:
* officials from two regional offices told us that their offices were
implementing new standard procedures to address inconsistencies in
reviews identified through the course of GAO's work; and:
* in December 2009, CMS began requiring that regional offices use the
checklist in reviewing all states' rate-setting submissions and assure
central office of its use before approving a state's rates.
However, as we reported above, variations existed even when the
checklist was used, such as in the extent to which CMS officials using
the checklist cited evidence of compliance for each of the actuarial
soundness requirements.
CMS's Limited Efforts Do Not Ensure the Quality of the Data Used to
Set Rates:
CMS's efforts to ensure the quality of the data used to set rates were
generally limited to requiring assurances from states and health
plans, which did not provide the agency with sufficient information to
ensure data quality. CMS regulations require states to describe the
data used as the basis for rates and provide assurances from their
actuaries that the data were appropriate for rate setting.[Footnote
27] The regulations also specify that states using data submitted by
the health plans as the basis for rates must require executives from
the health plans to attest that the data are accurate, complete, and
truthful. The regulations do not include requirements for the type,
amount, or age of data or standards for the reasonableness or adequacy
of rates. Additionally, CMS does not require states to submit
documentation about the quality of the data used to set rates. In our
interviews with regional office officials, we found that, when
reviewing states' descriptions of the data used for rate setting, CMS
officials focused primarily on ensuring the appropriateness of the
data used by states to set rates rather than their reliability. This
included reviewing the specific services and populations included in
the base-year data or checking for assurances of appropriateness from
the states' actuaries.[Footnote 28] CMS officials noted that if they
had concerns with the quality of a state's data they would ask the
state questions. None of the officials, however, reported taking any
action beyond asking questions.
With limited information on the quality of data used to set rates, CMS
cannot ensure that states' managed care rates are appropriate and
risks misspending billions of federal and state dollars. Actuarial
certification does not ensure that the data used to set rates are
reliable. In particular, 9 of the 28 files we reviewed included a
disclaimer in the actuary's certification that if the data used were
incomplete or inaccurate then the rates would need to be revised.
Additionally, in more than half of the 28 files we reviewed, the
actuaries noted that they did not audit or independently verify the
data and relied on the state or health plans to ensure that the data
were accurate and complete.[Footnote 29] Officials from three of the
five health plans we spoke with raised concerns about the completeness
of the encounter data used by states to set rates. Additionally, state
auditors in Washington have raised concerns about the lack of
monitoring of the accuracy of data used for rate setting. The auditors
found that the state did not verify the accuracy of the data used as
the basis for Medicaid managed care rates in fiscal years 2003 through
2007. The state auditor's report from fiscal year 2007 concluded that
the risk of paying health plans inflated rates increased when the
accuracy of data used to establish rates could not be reasonably
assumed to be correct.[Footnote 30]
States have information on the quality of data used for rate setting--
information that CMS could obtain. State officials we spoke with
reported having information on, and efforts intended to ensure, the
quality of the data used to set rates. For example, New Jersey
officials told us that the state tested the reliability and accuracy
of the health plan financial data used to set rates against encounter
data and required health plans to have an independent auditor review
selected portions of the financial data. Additionally, Arizona
officials indicated that the state periodically completes validation
studies of the state's encounter data in which they traced a sample of
the encounters back to individuals' medical records.[Footnote 31]
State officials indicated that CMS used to require the state to submit
results of these studies as a condition of operating its managed care
program.[Footnote 32] However, given the state's extensive experience
with managed care, CMS no longer requires the state to submit these
studies for all participating health plans.[Footnote 33] (See app. III
for a summary of selected states' efforts intended to ensure data
quality.) Without requiring and reviewing information on states' data
quality efforts, CMS cannot ensure that these data are of sufficient
quality to be used for setting rates.
In addition to information from states, CMS conducts audits that could
have provided CMS officials relevant information about the quality of
the data used to set rates. For example, when describing the state's
efforts to ensure the quality of data used to set rates, officials
from South Carolina noted that CMS periodically reviews the state's
FFS data through the Payment Error Rate Measurement (PERM) program.
[Footnote 34] Error rates calculated using FFS and encounter data
through the PERM program could provide CMS with insights regarding the
quality of the data that some states use to set rates. In CMS's rate-
setting review file for South Carolina, however, there was no
discussion of PERM results by either the state or CMS. CMS central
office officials confirmed that regional office staff do not consider
the results of data studies, such as state validation or PERM program
reports, when reviewing states' rate-setting submissions.
CMS also could have conducted or required periodic audits of the data
used to set rates. In Medicare Advantage, which is Medicare's managed
care program, CMS is required to conduct annual audits of the
financial records of at least one-third of the organizations
participating in the program.[Footnote 35] For Medicaid, however, CMS
had not conducted any recent audits or studies of states' rate
setting, including the quality of data used. Specifically, officials
in all six of the regional offices we spoke with told us that they had
not performed any audits or special studies of states' rate setting.
Officials from CMS's central office were also not aware of any recent
audits or studies done by the four other regional offices. In
addition, officials from CMS's central office told us that they could
only recall one instance, in the nearly 8 years since the regulations
were issued, where OACT arranged for an independent assessment of a
state's rate setting; that assessment was done more than 2 years ago.
Conclusions:
The statutory and regulatory requirements for actuarially sound rates
are key safeguards in efforts to ensure that federal spending for
Medicaid managed care programs is appropriate, which could help avoid
significant overpayments and reduce incentives to underserve or deny
enrollees' access to needed care. CMS, however, has been inconsistent
in ensuring that states are complying with the actuarial soundness
requirements and does not have sufficient efforts in place to ensure
that states are using reliable data to set rates. During the course of
our work, CMS took steps to address some of the variation in regional
office practices that contributed to inconsistencies in overseeing
state compliance, such as requiring regional office officials to use
the checklist in reviewing all states' rate-setting submissions. While
these are positive steps, they do not address all of the variations in
regional office practices that contributed to inconsistencies in CMS's
oversight of rate setting. For example, these steps do not address
variations in tracking state compliance, which may have led to CMS's
failure to review Tennessee's rates for compliance with the actuarial
soundness requirements. Additionally, the steps taken do not address
the variation in what evidence CMS officials considered sufficient for
compliance, how officials used the checklist to document their
reviews, and what conditions were necessary for federal funds to be
released. CMS also does not have sufficient efforts in place to ensure
the quality of the data states used to set rates, relying on
assurances from states without considering any other available
information on the quality of the data used. By relying on assurances
alone, the agency risks reimbursing states for rates that may be
inflated or inadequate.
As a result of the weaknesses in CMS's oversight, billions of dollars
in federal funds were paid to one state for rates that were not
certified by an actuary, and billions more may be at risk of being
paid to other states for rates that are not in compliance with the
actuarial soundness requirements or are based on inappropriate and
unreliable data. Given the complexity of overseeing states' unique and
varied Medicaid programs, it is appropriate that CMS would allow for
flexibility in states' rate setting and would expect states to have
the primary responsibility for ensuring the quality of the data used
to set rates. However, CMS needs to ensure that all states' rate
setting complies with all of the actuarial soundness requirements and
needs to have safeguards in place to ensure that states' data quality
efforts are sufficient. Improvements to CMS's oversight of states'
rate setting will become increasingly important as coverage under
Medicaid expands to new populations for which states may not have
experience serving, and may have no data on which to base rates.
Recommendations for Executive Action:
To improve oversight of states' Medicaid managed care rate setting, we
recommend that the Administrator of CMS take three actions.
To improve consistency in the oversight of states' compliance with the
Medicaid managed care actuarial soundness requirements, we recommend
that the Administrator of CMS:
* implement a mechanism for tracking state compliance, including
tracking the effective dates of approved rates; and:
* clarify guidance for CMS officials on conducting rate-setting
reviews. Areas for clarification could include identifying what
evidence is sufficient to demonstrate state compliance with the
requirements, the conditions necessary for federal funds to be
released, and how officials should document their reviews.
To better ensure the quality of the data states use in setting
Medicaid managed care rates, we recommend that the Administrator of
CMS make use of information on data quality in overseeing states' rate
setting. CMS could, among other things, require states to provide CMS
with a description of the actions taken to ensure the quality of the
data used in setting rates and the results of those actions; consider
relevant audits and studies of data quality done by others when
reviewing rate setting; and conduct or require periodic audits or
studies of the data states use to set rates.
Agency Comments and Our Evaluation:
We provided a draft of this report to HHS for its review and comment.
HHS concurred with all three of our recommendations, and commented
that it appreciated our efforts to highlight improvements that CMS can
make in its oversight of states' compliance with Medicaid managed care
actuarial soundness requirements, as well as its focus on the quality
of data used to set managed care rates. Moreover, HHS noted that CMS
has identified many of the same issues. (See appendix IV for a copy of
HHS's comments.)
HHS agreed with our two recommendations related to improving the
consistency of CMS's oversight, namely that CMS implement a mechanism
for tracking state compliance with the actuarial soundness
requirements and clarify guidance for CMS officials on conducting rate-
setting reviews. HHS noted that CMS has established a managed care
oversight team to develop and implement a number of improvements in
its managed care oversight, some of which will address our
recommendations. These improvements included CMS's plans to develop
standard operating protocols for the review and approval of Medicaid
managed care rates and provide comprehensive training to CMS staff on
all aspects of the new process and requirements. As CMS implements
efforts aimed at improving its oversight, we reiterate the need to
implement a mechanism for tracking state compliance with actuarial
soundness requirements, including the effective dates of rates.
HHS also agreed with our recommendation that CMS make use of
information on data quality in overseeing states' rate setting. In
commenting on our finding related to CMS's limited efforts to ensure
data quality, HHS noted that a number of requirements within PPACA
will give CMS additional authority and responsibility for acquiring
and utilizing Medicaid program data.[Footnote 36] In response to our
recommendation, HHS noted that, as part of a broader effort to
redesign how it collects Medicaid data, CMS will be setting standards
for the type and frequency of managed care data submissions by states.
HHS commented that with more complete data at its disposal, CMS will
be able to better assess the underlying quality of data submissions
and, thus, better execute its oversight and monitoring
responsibilities. CMS should use these assessments and other available
information when overseeing states' rate setting. Finally, HHS
provided technical comments, which we incorporated as appropriate.
We are sending copies of this report to the Administrator of CMS and
other interested parties. In addition, the report is available at no
charge on the GAO Web site at [hyperlink, http://www.gao.gov].
If you or your staff have any questions about this report, please
contact me at (202) 512-7114 or y [Hyperlink, yocomc@gao.gov]
ocomc@gao.gov. Contact points for our Offices of Congressional
Relations and Public Affairs may be found on the last page of this
report. GAO staff who made major contributions to this report are
listed in appendix V.
Signed by:
Carolyn L. Yocom: Acting Director, Health Care:
[End of section]
Appendix I: Methodology for Selecting CMS Regional Offices and
Analyzing CMS's Medicaid Managed Care Rate-Setting Files:
To assess the Centers for Medicare & Medicaid Services's (CMS)
oversight of states' compliance with the Medicaid managed care
actuarial soundness requirements, we conducted a structured review of
CMS files from 6 of the 10 CMS regional offices. We selected CMS
regional offices that:
* represented at least 5 of the 10 CMS regional offices,
* collectively had oversight responsibility for at least 65 percent of
the 34 states with comprehensive Medicaid managed care programs, and:
* were geographically diverse and oversaw states with Medicaid managed
care programs ranging in size.
The six regional offices that we selected for our review had oversight
responsibility for 26 of the 34 states (or 76 percent) with
comprehensive Medicaid managed care programs.[Footnote 37] According
to information from CMS, these 26 states accounted for about 85
percent of Medicaid managed care enrollment nationally in 2008 and
state program size ranged from 8 percent of Medicaid enrollees in
Illinois to 100 percent in Tennessee. (See table 3.)
Table 3: CMS Regional Offices Reviewed:
CMS regional office: Atlanta;
Number of states in region with comprehensive Medicaid managed care
programs: 5;
Range in size of state programs (percentage of Medicaid enrollees in
Medicaid managed care): 20% to 100%;
Percentage of national Medicaid managed care enrollment: 14.8%.
CMS regional office: Chicago;
Number of states in region with comprehensive Medicaid managed care
programs: 6;
Range in size of state programs (percentage of Medicaid enrollees in
Medicaid managed care): 8% to 71%;
Percentage of national Medicaid managed care enrollment: 18.7v.
CMS regional office: Kansas City;
Number of states in region with comprehensive Medicaid managed care
programs: 3;
Range in size of state programs (percentage of Medicaid enrollees in
Medicaid managed care): 16% to 48%;
Percentage of national Medicaid managed care enrollment: 2.5%.
CMS regional office: New York;
Number of states in region with comprehensive Medicaid managed care
programs: 2;
Range in size of state programs (percentage of Medicaid enrollees in
Medicaid managed care): 64% to 72%;
Percentage of national Medicaid managed care enrollment: 16.0%.
CMS regional office: Philadelphia;
Number of states in region with comprehensive Medicaid managed care
programs: 6;
Range in size of state programs (percentage of Medicaid enrollees in
Medicaid managed care): 45% to 70%;
Percentage of national Medicaid managed care enrollment: 10.7%.
CMS regional office: San Francisco;
Number of states in region with comprehensive Medicaid managed care
programs: 4;
Range in size of state programs (percentage of Medicaid enrollees in
Medicaid managed care): 47% to 91%;
Percentage of national Medicaid managed care enrollment: 22.2%.
CMS regional office: Total;
Number of states in region with comprehensive Medicaid managed care
programs: 26;
Percentage of national Medicaid managed care enrollment: 84.9%.
Source: GAO analysis of 2008 Medicaid managed care data published by
CMS.
[End of table]
We conducted a structured review of a selection of files from the six
CMS regional offices. Specifically, we reviewed the files for CMS's
rate-setting reviews of the most recently approved contract for each
state's comprehensive managed care program, or, for states with
multiyear contracts, the file for the most recent full review of rate
setting completed as of October 31, 2009.[Footnote 38] Several states
in the selected regions had multiple comprehensive managed care
programs that had separate contracts and rate-setting processes each
subject to CMS review and approval. For states that had two programs,
we selected the file for the program CMS officials indicated was the
largest, as defined by the number of enrollees and estimated
expenditures.[Footnote 39] For the states that had more than two
programs, we selected the files for the two largest programs. For 2 of
the 26 states overseen by the six regional offices (Nebraska and
Tennessee), CMS had not done a review that met our criteria, so we did
not review a file for those states.[Footnote 40] In total, we reviewed
28 files, which covered 24 states, 4 of which had two or more programs
for which CMS did separate reviews. (See table 4.)
Table 4: Description of the 28 CMS Medicaid Managed Care Rate-Setting
Files Reviewed:
CMS regional office: Atlanta;
State: Florida;
Medicaid managed care program included in review: Non-Reform;
Time period of rates covered in review: September 2008-August 2009;
Change in rates from prior year: Decrease;
Actuarial firm that certified the rates: Milliman.
CMS regional office: Atlanta;
State: Florida;
Medicaid managed care program included in review: Medicaid Reform;
Time period of rates covered in review: September 2008-August 2009;
Change in rates from prior year: Decrease;
Actuarial firm that certified the rates: Mercer.
CMS regional office: Atlanta;
State: Georgia;
Medicaid managed care program included in review: Georgia Families
Program;
Time period of rates covered in review: July 2009-June 2010;
Change in rates from prior year: [A];
Actuarial firm that certified the rates: Aon.
CMS regional office: Atlanta;
State: Kentucky;
Medicaid managed care program included in review: Kentucky Partnership
Program;
Time period of rates covered in review: July 2009-June 2010;
Change in rates from prior year: [A];
Actuarial firm that certified the rates: PriceWaterhouse Coopers.
CMS regional office: Atlanta;
State: South Carolina;
Medicaid managed care program included in review: Medicaid managed
care;
Time period of rates covered in review: April 2008-March 2009;
Change in rates from prior year: [A];
Actuarial firm that certified the rates: Deloitte Consulting.
CMS regional office: Chicago;
State: Illinois;
Medicaid managed care program included in review: Risk-Based Managed
Care;
Time period of rates covered in review: August 2008-July 2009;
Change in rates from prior year: Decrease;
Actuarial firm that certified the rates: Milliman.
CMS regional office: Chicago;
State: Indiana;
Medicaid managed care program included in review: Hoosier Healthwise;
Time period of rates covered in review: January 2009-December 2009;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: Milliman.
CMS regional office: Chicago;
State: Michigan;
Medicaid managed care program included in review: Comprehensive Health
Care Plan;
Time period of rates covered in review: October 2008-September 2009;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: Milliman.
CMS regional office: Chicago;
State: Minnesota;
Medicaid managed care program included in review: Prepaid Medical
Assistance Program;
Time period of rates covered in review: January 2009-December 2009;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: Milliman.
CMS regional office: Chicago;
State: Minnesota;
Medicaid managed care program included in review: MinnesotaCare;
Time period of rates covered in review: January 2009-December 2009;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: Milliman.
CMS regional office: Chicago;
State: Ohio;
Medicaid managed care program included in review: Covered Families and
Children;
Time period of rates covered in review: January 2008-December 2008;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: Milliman.
CMS regional office: Chicago;
State: Wisconsin;
Medicaid managed care program included in review: BadgerCare Plus;
Time period of rates covered in review: January 2009-December 2009;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: PriceWaterhouse Coopers.
CMS regional office: Kansas City;
State: Kansas;
Medicaid managed care program included in review: HealthWave 19;
Time period of rates covered in review: July 2008-June 2009;
Change in rates from prior year: Decrease;
Actuarial firm that certified the rates: Mercer.
CMS regional office: Kansas City;
State: Missouri;
Medicaid managed care program included in review: HealthNet Managed
Care Program;
Time period of rates covered in review: October 2009-June 2010;
Change in rates from prior year: Decrease;
Actuarial firm that certified the rates: Mercer.
CMS regional office: New York;
State: New Jersey;
Medicaid managed care program included in review: Medicaid managed
care;
Time period of rates covered in review: July 2009-June 2010;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: Mercer.
CMS regional office: New York;
State: New York;
Medicaid managed care program included in review: Medicaid Managed
Care and Family Health Plus;
Time period of rates covered in review: April 2008-March 2009;
Change in rates from prior year: [A];
Actuarial firm that certified the rates: Mercer.
CMS regional office: Philadelphia;
State: Delaware;
Medicaid managed care program included in review: Diamond State Health
Plan;
Time period of rates covered in review: July 2007-June 2009;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: Solucia.
CMS regional office: Philadelphia;
State: District of Columbia;
Medicaid managed care program included in review: District of Columbia
Healthy Families Program;
Time period of rates covered in review: May 2008-April 2009;
Change in rates from prior year: Decrease;
Actuarial firm that certified the rates: Mercer.
CMS regional office: Philadelphia;
State: Maryland;
Medicaid managed care program included in review: HealthChoice;
Time period of rates covered in review: January 2009-December 2009;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: Mercer.
CMS regional office: Philadelphia;
State: Pennsylvania;
Medicaid managed care program included in review: HealthChoices
Physical Health;
Time period of rates covered in review: July 2008-June 2009;
Change in rates from prior year: [A];
Actuarial firm that certified the rates: Mercer.
CMS regional office: Philadelphia;
State: Virginia;
Medicaid managed care program included in review: Medallion II;
Time period of rates covered in review: July 2009-June 2010;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: PriceWaterhouse Coopers.
CMS regional office: Philadelphia;
State: West Virginia;
Medicaid managed care program included in review: Mountain Health
Trust;
Time period of rates covered in review: July 2009-June 2010;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: Lewin.
CMS regional office: San Francisco;
State: Arizona;
Medicaid managed care program included in review: Arizona Health Care
Cost Containment System Acute Care Program;
Time period of rates covered in review: October 2008-September 2009;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: State self-certified.
CMS regional office: San Francisco;
State: Arizona;
Medicaid managed care program included in review: Arizona Long-Term
Care System;
Time period of rates covered in review: October 2006-September 2007;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: State self-certified.
CMS regional office: San Francisco;
State: California;
Medicaid managed care program included in review: Two Plan Model;
Time period of rates covered in review: October 2008-September 2009;
Change in rates from prior year: CMS regional office: [A];
Actuarial firm that certified the rates: CMS regional office: Mercer.
CMS regional office: San Francisco;
State: California;
Medicaid managed care program included in review: County Organized
Health System;
Time period of rates covered in review: July 2009-June 2010;
Change in rates from prior year: [A];
Actuarial firm that certified the rates: State self-certified.
CMS regional office: San Francisco;
State: Hawaii;
Medicaid managed care program included in review: QUEST;
Time period of rates covered in review: July 2009-October 2009;
Change in rates from prior year: Decrease;
Actuarial firm that certified the rates: Milliman.
CMS regional office: San Francisco;
State: Nevada;
Medicaid managed care program included in review: Medicaid managed
care;
Time period of rates covered in review: January 2009-December 2009;
Change in rates from prior year: Increase;
Actuarial firm that certified the rates: Milliman.
Source: GAO analysis of CMS documentation.
[A] For this program, the CMS file did not provide a clear indication
of how the rates changed from the prior year. This may have been for a
number of reasons. For example, the documentation may have indicated
increases in rates for some populations and decreases for others but
not provide a description of the aggregate effect on rates; or the
documentation may have indicated a change in expenditures but not
describe whether this resulted from a change in enrollment or a change
in rates.
[End of table]
As part of our file review, we assessed the degree to which CMS
documented its review. Specifically, we determined whether the CMS
official completed CMS's checklist--a tool CMS developed for regional
office staff to use when reviewing states' rate-setting submissions
for compliance with the actuarial soundness requirements.[Footnote 41]
For those files where the CMS official did not complete the checklist
and provided no other documentation of the review, we did no further
assessment of CMS's review. For the files where the CMS official
completed the checklist, we assessed the extent to which CMS ensured
that the state complied with the actuarial soundness requirements. To
do this, we identified several requirements of the regulations,
including that rates were certified by a qualified actuary, that rates
were based on covered services for eligible individuals, and that the
state documented any adjustments to the base year data. For these
requirements, we assessed whether (1) CMS documented that the state
met the requirement, (2) CMS cited evidence for the assessment that
the state was in compliance, and (3) the cited evidence was consistent
with the guidance in CMS's checklist. Additionally, as part of our
review, we summarized descriptive elements of states' rate setting and
rates. For example, we documented the types of data used as the basis
for rates and how the state's rates changed from the prior year. To
ensure the accuracy of the information collected as part of our
structured review of the files, we conducted independent verifications
of each review.
[End of section]
Appendix II: Methodology for Selecting States to Contact:
To describe state views of the Centers for Medicare & Medicaid
Services's (CMS) oversight of state compliance with the Medicaid
managed care actuarial soundness requirements and state efforts to
ensure the quality of the data used to set rates, we selected 11 of
the 34 states with comprehensive Medicaid managed care programs and
interviewed officials from those states' programs. We selected states
that:
* were geographically diverse;
* varied in the size of their Medicaid managed care programs, as
defined by the numbers of managed care enrollees, the proportion of
states' Medicaid population that were in managed care, and the number
of MCOs participating in the program; and:
* overlapped with the oversight responsibilities of the six selected
CMS regional offices.
Table 5 provides information about the selected states.
Table 5: Information about the Medicaid Managed Care Programs of
Selected States, as of 2008:
State: Arizona;
Medicaid managed care enrollment: 949,404;
Percentage of national Medicaid managed care enrollment: 5;
Percentage of state's Medicaid population enrolled in managed care: 91;
Number of health plans participating in Medicaid managed care: More
than 15;
CMS regional office with oversight responsibility: San Francisco.
State: California;
Medicaid managed care enrollment: 3,395,468;
Percentage of national Medicaid managed care enrollment: 16;
Percentage of state's Medicaid population enrolled in managed care: 51;
Number of health plans participating in Medicaid managed care: More
than 15;
CMS regional office with oversight responsibility: San Francisco.
State: Florida;
Medicaid managed care enrollment: 813,427;
Percentage of national Medicaid managed care enrollment: 4;
Percentage of state's Medicaid population enrolled in managed care: 36;
Number of health plans participating in Medicaid managed care: More
than 15;
CMS regional office with oversight responsibility: Atlanta.
State: Indiana;
Medicaid managed care enrollment: 582,714;
Percentage of national Medicaid managed care enrollment: 3;
Percentage of state's Medicaid population enrolled in managed care: 66;
Number of health plans participating in Medicaid managed care: Fewer
than 6;
CMS regional office with oversight responsibility: Chicago.
State: Maryland;
Medicaid managed care enrollment: 491,274;
Percentage of national Medicaid managed care enrollment: 2;
Percentage of state's Medicaid population enrolled in managed care: 69;
Number of health plans participating in Medicaid managed care: From 6
to 15;
CMS regional office with oversight responsibility: Philadelphia.
State: Nebraska;
Medicaid managed care enrollment: 32,716;
Percentage of national Medicaid managed care enrollment: Less than 1;
Percentage of state's Medicaid population enrolled in managed care: 16;
Number of health plans participating in Medicaid managed care: Fewer
than 6;
CMS regional office with oversight responsibility: Kansas City.
State: New Jersey;
Medicaid managed care enrollment: 659,586;
Percentage of national Medicaid managed care enrollment: 3;
Percentage of state's Medicaid population enrolled in managed care: 72;
Number of health plans participating in Medicaid managed care: Fewer
than 6;
CMS regional office with oversight responsibility: New York.
State: New York;
Medicaid managed care enrollment: 2,663,935;
Percentage of national Medicaid managed care enrollment: 13;
Percentage of state's Medicaid population enrolled in managed care: 64;
Number of health plans participating in Medicaid managed care: More
than 15;
CMS regional office with oversight responsibility: New York.
State: Pennsylvania;
Medicaid managed care enrollment: 968,713;
Percentage of national Medicaid managed care enrollment: 5;
Percentage of state's Medicaid population enrolled in managed care: 53;
Number of health plans participating in Medicaid managed care: From 6
to 15;
CMS regional office with oversight responsibility: Philadelphia.
State: South Carolina;
Medicaid managed care enrollment: 184,526;
Percentage of national Medicaid managed care enrollment: 1;
Percentage of state's Medicaid population enrolled in managed care: 27;
Number of health plans participating in Medicaid managed care: From 6
to 15;
CMS regional office with oversight responsibility: Atlanta.
State: Tennessee;
Medicaid managed care enrollment: 1,207,136;
Percentage of national Medicaid managed care enrollment: 6;
Percentage of state's Medicaid population enrolled in managed care:
100;
Number of health plans participating in Medicaid managed care: From 6
to 15;
CMS regional office with oversight responsibility: Atlanta.
Source: GAO analysis of CMS's 2008 Medicaid managed care enrollment
report and CMS's organizational chart.
[End of table]
[End of section]
Appendix III: Selected States' Reported Efforts Intended to Ensure the
Quality of the Data Used to Set Rates:
The 11 states we interviewed used a combination of approaches intended
to ensure the quality of the data used in Medicaid managed care rate
setting. These included front-end efforts intended to prevent errors
in data reported by providers and health plans, reconciliation methods
to help ensure the reliability and appropriateness of reported data,
and in-depth reviews that identified and addressed issues of ongoing
concern. See table 6 for a summary of the selected states' efforts
intended to ensure data quality.
Table 6: Eleven States' Reported Efforts Intended to Ensure the
Quality of Data Used to Set Medicaid Managed Care Rates:
Type of effort: Front-end efforts;
Efforts: Data edits;
Number of states reporting: 7;
Examples: South Carolina's information system checked fee-for-service
data against a set of edits that rejected inappropriate claims and
checked the data for internal consistency.
Type of effort: Front-end efforts;
Efforts: Data reporting requirements for health plans;
Number of states reporting: 8;
Examples: Maryland had standard reporting guidelines for financial
data to ensure the reliability of the data; New York required
financial data to be certified by health plans' chief executive
officer and chief financial officer.
Type of effort: Efforts to reconcile reported data;
Efforts: Reconciliation of data with other data sources;
Number of states reporting: 9;
Examples: California reconciled financial data used to set rates with
enrollment data to ensure that the data were only for individuals
eligible under the managed care contract;
Pennsylvania compared health plan-provided enrollee data to state data
to ensure that the health plans' cost reports reflected all
eligibility groups covered under the managed care contract.
Type of effort: Efforts to reconcile reported data;
Efforts: Checks for internal consistency and completeness;
Number of states reporting: 11;
Examples: Tennessee information technology staff reviewed submitted
encounter data reports quarterly to identify duplicate or high-cost
claims, which are returned to health plans for explanations and
adjustments as necessary.
Type of effort: In-depth reviews;
Efforts: Audits or reviews;
Number of states reporting: 9;
Examples: Maryland contracted with an outside organization to annually
audit financial data from each health plan with which it contracts;
Arizona completed annual validation studies of encounter data, which
included tracing encounter data submitted by health plans to
information in medical records; Florida convened a workgroup to review
its rate-setting process including the appropriateness of the data
used as the basis for rates; the review found that the FFS data used
no longer reflected the experience of the state's managed care
population.
Source: GAO analysis of information reported by state officials.
[End of table]
[End of section]
Appendix IV: Comments from the Department of Health and Human Services:
Department Of Health And Human Services:
Office Of The Secretary:
Assistant Secretary for Legislation:
Washington, DC 20201:
July 23 2010:
Carolyn Yocom:
Director, Health Care:
U.S. Government Accountability Office:
441 G Street N.W.
Washington, DC 20548:
Dear Ms. Yocom:
Attached are comments on the U.S. Government Accountability Office's
(GAO) draft report entitled: "MEDICAID MANAGED CARE: CMS's Oversight
of States' Rate Setting Needs Improvement" (GA0-10-810).
The Department appreciates the opportunity to review this
correspondence before its publication.
Signed by:
Andrea Palm:
Deputy Assistant Secretary for Legislation:
Attachment:
[End of letter]
General Comments Of The Department Of Health And Human Services (HHS)
To The Government Accountability Office's (GAO) Draft Report Entitled,
"Medicaid Managed Care: CMS' Oversight Of States' Rate Setting Needs
Improvement" (GA0-10-810):
The Department appreciates the opportunity to review and comment on
this GAO draft report. We appreciate GAO's efforts to highlight
improvements that the Centers for Medicare & Medicaid Services (CMS)
can make in its oversight of States' compliance with Medicaid
managed care actuarial soundness requirements and focus on data
quality used to set managed care rates; the agency has identified many
of the same issues.
CMS is implementing a broad set of initiatives to strengthen its
oversight and compliance of managed care services and to ensure access
to services and quality of care for all Medicaid beneficiaries.
Managed care has been a valuable development for Medicaid
beneficiaries over the past decade, but the growth in managed care
gives rise to the need for increased Federal oversight to assure sound
payment rates and access to care. This is necessary not just to ensure
that current beneficiaries receive high-quality care, but also to
prepare Medicaid's delivery system for the significant increase in
eligible beneficiaries under the Patient Protection and Affordable
Care Act (Affordable Care Act), many of whom will likely enroll in
managed care.
As part of these oversight efforts, CMS is also implementing section
403 of the Children's Health Insurance Program Reauthorization Act of
2009 (CHIPRA), which applied substantially all of the statutory
Medicaid managed care requirements to the Children's Health Insurance
Program (CHIP) "in the same manner" as they apply to Medicaid. These
recent legislative changes make it even more critical for CMS, working
with States, to implement rigorous improvements in managed care
monitoring and oversight. The improvements will focus on States'
performance in meeting regulatory requirements as well as their
assurance that their managed care systems deliver accessible,
available and appropriate services to Medicaid beneficiaries.
GAO's Findings and CMS Actions to Date:
During its review, GAO found that CMS' oversight of States' compliance
with actuarial soundness requirements has been inconsistent, due, in
part, to variation in regional office (RO) practices. By the time GAO
initiated this review, CMS had identified these inconsistencies as a
concern and had begun developing a plan for corrective action. This
plan would strengthen both oversight of actuarial soundness compliance
and our approach to managed care program reviews in order to ensure
adequate access to and quality of care provided to beneficiaries. In
December 2009, the Administrator of the Consortium for Medicaid and
Children's Health Operations issued a directive to the Medicaid
Associate Regional Administrators that the existing contract review
and capitation rate review checklists must be used and documented
before either the contract or capitation rates are approved.
GAO also found that CMS's limited efforts do not ensure the quality of
the data used to set rates. A number of statutory requirements in the
Affordable Care Act will give CMS additional authority, as well as,
responsibility for acquiring and utilizing Medicaid program data.
Current Medicaid statute and regulations require managed care
organizations (MCOs) to keep patient-specific encounter data and make
that data available to the State and CMS. However, section 6402 of the
Affordable Care Act, effective March 23, 2010, requires States to
report MCO encounter data to the Secretary or face reduced Federal
financial participation. This action should improve CMS' access to
encounter data and enable analysis of the data used for rate setting
by using encounter data as a comparison point.
GAO Recommendations:
To improve consistency in the oversight of States' compliance with
these requirements, CMS should:
(1) Implement a mechanism for tracking State compliance, including
tracking the effective dates of approved rates;
(2) Clarify guidance for CMS officials on conducting rate-setting
reviews; and;
(3) Make use of information on data quality in overseeing States' rate
setting.
CMS Response:
As noted above, CMS has identified many of the same issues regarding
the need for more robust oversight of managed care rates and the need
to address inconsistencies in our approach to reviewing managed care
rate setting. The following is a description of the initiatives that
we have underway to improve our oversight of Medicaid managed care
plans and responses to the recommendations raised in this report.
Recommendations 1 and 2:
We concur fully with GAO's first two recommendations. CMS has
identified key elements needed to move toward rigorous and consistent
oversight and monitoring of Medicaid and CHIP managed care programs
operating under any statutory authority and using any delivery system
model. These key elements address the specific recommendations made by
GAO, but also include other components of an improved managed care
oversight program. CMS has established a managed care oversight team
to develop and implement a number of improvements, including:
* Standard Operating Protocols (SOP) for the review and approval of
Medicaid and CHIP managed care contracts. These SOPs will address
workflow and process and set standard timelines for contract review;
* Medicaid contract review checklist - updates and directions for use.
The new checklist will include instructions and technical guidance for
the review of implementation evidence, compliance criteria, and
sanctions for noncompliance, including the withholding of funds;
* CHIP contract review checklist. This activity is dependent upon
publication of regulatory requirements for CHIP managed care
oversight. In the interim, a tool addressing the statutory
requirements of Section 403 of CHIPRA will be developed and
implemented;
* Online contract review tool. The tool will provide contract-related
data aggregation capabilities and ensure consistency and workflow. It
will permit CMS to track State compliance with specific criteria, as
well as conduct service- or population-specific audits of State
programs. It will also enable review triggers to be set and monitored
on a regular basis;
* Standard Operating Protocols for the review and approval of managed
care rates. CMS will clearly define the circumstances under which a
full or partial rate review will be performed and will incorporate
standards for the type, amount, and age of data used to set rates to
assure appropriateness of data quality. A process will also be
designed to document health plan executives' certification regarding
the accuracy and completeness of data. CMS will enlist staff from the
Office of the Actuary (OACT) in this effort and build OACT
consultation into the review process, to the extent feasible;
* Guidelines for consistent interpretation and enforcement of
regulatory requirements. To ensure national consistency to the extent
possible, definitions and expectations related to requirements for
access and availability of services will be developed and applied;
* Managed care program monitoring/review guides ” updates and
directions for use. The existing guide will be revamped to be of use
for any type of managed care program, and will include expanded data
review and program integrity modules;
* Formal dissemination of sub-regulatory guidance to States. State
Medicaid Director and/or State Health Official letters will accompany
CMS guidance on compliance expectations and requirements, and training
provided as needed;
* Training for CMS staff. As new processes and requirements are
developed and implemented, staff responsible for oversight and
monitoring of Medicaid and CHIP programs will be trained on them.
Additionally, once all improvements are in place, staff will receive
intensive and comprehensive training covering all aspects of the new
processes and requirements; and;
* Shared and accessible resource library of policies and procedures
for CMS staff in Baltimore and ROs.
RO staff has already made substantial progress in reviewing and making
preliminary revisions to the two compliance checklists. The managed
care oversight team, composed of CMS staff and managers from Baltimore
and the ROs, is working to finalize these and distribute them as
formal CMS guidance by November 2010. We also expect to have the
contract review SOP issued by that date. These documents will populate
the CMS managed care oversight resource library.
At the same time, the team will work throughout the remaining half of
this year and into 2011 to develop the additional elements of our
managed care oversight improvement plan, including guidelines for
interpreting and enforcing our regulatory requirements, providing
additional guidance for States, and training for CMS staff. The
oversight team will also work on an ongoing basis to ensure that new
statutory and regulatory provisions affecting Medicaid and CHIP
managed care are reflected in CMS guidance documents, protocols and
tools. The team will report to CMS leadership on a regular basis on
the implementation of these new approaches and make recommendations
about what additional oversight efforts and approaches are needed.
Finally, CMS will explore, with the American Academy of Actuaries,
possible development and/or refinement of Standards of Practice for
Medicaid and CHIP managed care rate setting.
Recommendation 3:
We concur and acknowledge improvements we need to make regarding the
third recommendation. The CMS has already recognized that data
validation and analysis is a critical component in the efficient
operation of the Medicaid program. CHIPRA, the American Recovery and
Reinvestment Act and the Affordable Care Act contain many new
provisions to enhance the scope and quality of the Medicaid/CHIP
programs; these provisions also implement a number of new programs
that require more and better information to operate efficiently.
Currently, CMS is undertaking a fundamental redesign of Medicaid data
collection and the development of robust analytical functionality that
will offer strategic programmatic insights of use to States, Federal
partners, and other stakeholders. In collaboration with States, CMS'
redesign will use a comprehensive performance and quality management
approach to implement nationally consistent data collection,
aggregation, and analysis methods that can be used for program
integrity, fiscal accountability, program effectiveness and effective
program management.
Managed care data collection is a critical component of these efforts,
in light of the increasing prominence of managed care delivery
systems. CMS will be setting standards for the type and frequency of
managed care data submissions by States in order to expand the type and
consistency of data on managed care programs. With more complete data
at its disposal, CMS will be able to implement more rigorous analysis
to assess the underlying quality of data submissions. These analyses
can then be used to help CMS better execute its oversight and
monitoring responsibilities, including ensuring the actuarial
soundness of managed care rates. The data will also be of use to
States as they administer their managed care programs.
CMS appreciates GAO's efforts to highlight areas of improvement for
managed care rate-setting oversight. CMS intends to take these
findings and recommendations and incorporate them into the larger
compliance monitoring and oversight plan we are developing. CMS looks
forward to working with GAO as we proceed to address these issues. CMS
is committed to ensuring that States' managed care delivery systems
provide the highest quality care to Medicaid recipients, while
ensuring access to all program services in the most efficient and
effective manner possible.
[End of section]
Appendix V: GAO Contact and Staff Acknowledgments:
GAO Contact:
Carolyn L. Yocom, (202) 512-7114 or y [Hyperlink, yocomc@gao.gov]
ocomc@gao.gov:
Acknowledgments:
In addition to the contact named above, Michelle Rosenberg, Assistant
Director; Joseph Applebaum, Chief Actuary; Susan Barnidge; William A.
Crafton; Drew Long; Kevin Milne; and Dawn D. Nelson made key
contributions to this report.
[End of section]
Footnotes:
[1] Data on Medicaid managed care spending were not available for 2008.
[2] Pub. L. No. 111-148, 124 Stat. 119, tit. II, subtit. A, as amended
by the Health Care and Education Reconciliation Act of 2010, Pub. L.
No. 111-152, 124 Stat. 1029, tit. I, subtit. C. Beginning in 2014, or
sooner at a state's option, all citizens and certain legal residents
with incomes at or below 133 percent of the federal poverty level
($14,404 for an individual or $29,327 for a family of four in 2010)
and who are under 65 and not already required to be covered under
Medicaid will be eligible. See Pub. L. No.111-148, § 2001(a)(1), as
amended by § 10201. CMS's Office of the Actuary (OACT) estimated that
this will result in 18 million individuals receiving primary coverage
and 2 million individuals receiving supplemental coverage through
Medicaid.
[3] Throughout this report, the term "managed care" refers only to
capitated managed care arrangements. States may also have primary care
case management (PCCM) programs under which a primary care provider is
paid a nominal monthly, per person, case management fee to coordinate
care for beneficiaries, in addition to fee-for-service (FFS)
reimbursement for any health care services they provide. While some
consider PCCM programs to be managed care, we consider those programs
to be FFS-based arrangements because participating providers are
predominately paid on a FFS basis.
[4] Incentives regarding the provision of services can exist under
both capitated and FFS payment systems. Under capitated payment
systems, health plans and, in some cases, providers can profit from
not delivering services for which they have already received payment.
In contrast, beneficiaries in FFS systems may be at risk for the
overprovision of services as providers seek to increase revenue.
However, if FFS payment levels are too low, physicians may underserve
their patients or be unwilling to participate at all.
[5] See Social Security Act §1903(m)(2)(A).
[6] See 42 CFR §438.6(c)(1)(i)(2009).
[7] In this report, we refer to capitation rate setting for Medicaid
managed care as "rate setting" and managed care capitation rates as
"rates."
[8] See Pub. L. No. 111-3, §617, 123 Stat. 8, 103.
[9] The CMS regional offices selected were the offices located in
Atlanta, Chicago, Kansas City, New York City, Philadelphia, and San
Francisco. We limited our review to CMS's oversight of rate setting
for comprehensive managed care programs that involve risk contracts,
i.e., contracts under which the health plan assumes risk for the cost
of providing services. In addition to managed care programs that
provide comprehensive services, some states have also implemented
managed care for targeted categories of services. These include
programs such as prepaid ambulatory health plans that provide a
limited range of services and coverage. These programs were not
included in the scope of our work.
[10] Several states overseen by the selected CMS regional offices have
multiple comprehensive managed care programs that have separate rate-
setting processes, each of which is subject to CMS review. Thus, for
some states, we reviewed more than one CMS rate-setting review file.
[11] The 11 states were Arizona, California, Florida, Indiana,
Maryland, Nebraska, New Jersey, New York, Pennsylvania, South
Carolina, and Tennessee. In some of our interviews, the state included
members of the state-contracted actuarial firm in the conversation.
[12] We contacted all of the state auditor's offices describing the
scope of our work and asking whether they had completed any related
studies. The Washington State Auditor's Office was the only office
that reported having completed related work.
[13] The health plans contacted varied in size, whether they served
only Medicaid clients, and whether they were nonprofit.
[14] Base-year data may include FFS claims data, encounter data, or
health plan financial data. FFS claims data are the record of services
provided to recipients in the FFS program and the cost of those
services. Provided by health plans, encounter data are the primary
record of, and include detailed information on, services provided to
Medicaid beneficiaries enrolled in capitated managed care. Health plan
financial data may include aggregate spending by category of service,
but do not include information on individual encounters or claims.
[15] See 42 CFR §438.6(c)(2). The regulations included in the final
rule were effective on August 13, 2002, and states had until June 16,
2003, to bring their managed care programs into compliance.
[16] A CMS workgroup developed the checklist, which was finalized July
22, 2003. Prior to the July 2003 checklist, officials used a number of
different tools when reviewing rate setting for compliance with the
actuarial soundness requirements.
[17] For example, a state may adjust its rates to reflect a midyear
program change, such as adding a service to the program's list of
covered benefits, or a state may use an inflation factor to adjust
rates from a prior year.
[18] ASOPs and practice notes do not have the same standing in
determining what constitutes generally accepted actuarial principles
and practices. ASOPs are considered part of actuaries' professional
code of conduct and have the highest standing. In contrast, practice
notes are not a definitive statement as to what constitutes generally
accepted practice.
[19] The ASOP on data quality provides actuaries with guidance on
selecting underlying data for an actuarial product, relying on data
supplied by others, reviewing and using data, and making appropriate
disclosures regarding data quality. ASOP No. 23, Data Quality (Doc.
No. 097; December 2004).
[20] State officials indicated that they hired an actuarial firm to
produce the state's managed care rates, but the state did not have the
firm provide an actuarial certification of the rates.
[21] As of June 2010, CMS was in the process of reviewing Tennessee's
rate setting for health plans participating in the state's managed
long-term care program. These rates, which are effective August 1,
2010, were certified by an actuary.
[22] As of 2008, the most recent year for which CMS data are
available, about 33,000 individuals--or 16 percent of Nebraska's
Medicaid population--were enrolled in comprehensive managed care.
[23] A CMS official in the Kansas City regional office told us that
the state submitted rates for review a number of times after 2002;
however, those submissions did not trigger a full review by CMS.
Rather, according to the regional official, CMS completed a number of
partial reviews, which would have ensured that an actuary certified
the rates but would not have assured compliance with other
requirements.
[24] The 28 CMS files that we reviewed did not include files related
to Tennessee or Nebraska, because CMS had not reviewed Tennessee's
rate setting for the most recent contract and had not completed a full
review of Nebraska's rate setting since the actuarial soundness
requirements became effective.
[25] For example, if a state were to start paying rates in October,
the beginning of the first quarter of the federal fiscal year, then,
according to CMS officials, its rates would need to be approved by the
end of December to be in compliance with the actuarial soundness
requirements.
[26] Of the 13 files, 8 showed evidence of CMS approving rates more
than 6 months after state implementation, with 3 of those indicating
CMS approval more than 9 months later.
[27] The regulations require assurances that rates are based only upon
services covered under the state Medicaid plan or costs related to
providing these services, such as health plan administration, and
provided under the contract to Medicaid-eligible individuals.
[28] Officials from five of the regional offices we spoke with
indicated that they looked at states' rate-setting submissions for
information on the age or number of years of data, although some of
the officials indicated that there was no standard for the age or
amount of data.
[29] According to actuarial standards of practice, actuaries are not
required to audit the data used to set rates and may rely on those
providing the data, in these cases the state and health plans, to
ensure the data's accuracy and completeness.
[30] State of Washington, Office of Financial Management, Single Audit
Report for the Fiscal Year Ended June 30, 2007 (March 2008).
[31] The validation study of health plan data for one of the state's
managed care programs for contract year 2007--the contract year at
issue in the CMS file we reviewed for this state program--found error
rates that were above the limits set by the state. The state was
planning a number of steps to reduce those error rates.
[32] This state operates its Medicaid managed care program under an
1115 waiver. Under section 1115 of the Social Security Act, the
Secretary of Health and Human Services may waive certain federal
requirements for demonstrations the Secretary deems likely to promote
Medicaid objectives. The terms of such a waiver can include such
reporting requirements as were discussed above.
[33] According to CMS officials, under the terms of Arizona's current
waiver, the state is not required to provide CMS the results of
validation studies for health plans already participating in the
state's Medicaid managed care programs. However, the state must submit
validation studies to CMS when a new health plan begins participating
in the state's programs. CMS officials confirmed that the results of
any validation studies are not considered when reviewing the state's
rate-setting methodology.
[34] The PERM program attempts to measure improper payments in the
Medicaid program using contractors to perform statistical
calculations, medical records collection, and medical/data processing
review of selected state Medicaid FFS and managed care claims. The
program annually reviews 500 FFS and 250 managed care payments from 17
states. Its fiscal year 2007 review found a national error rate of 8.9
percent for FFS data and 3.1 percent for managed care data.
[35] See Social Security Act § 1857(d)(1). The contract year 2006
audits for the Medicare Advantage program, which serves as an
alternative to Medicare's traditional FFS program, included reviewing
the accuracy of the data used to develop contract bids and ensuring
that plans' rates were developed consistent with the ASOPs specified
by CMS. These audits are arranged by OACT.
[36] In its comments, HHS refers to PPACA as the Affordable Care Act.
[37] In comprehensive managed care programs, health plans provide a
full range of health care services. In addition to managed care
programs that provide comprehensive services, some states have also
implemented managed care for targeted categories of services.
[38] Full reviews are those that cover all of the sections of CMS's
checklist. Officials may also conduct partial reviews, which focus on
a narrower set of the requirements covered in the checklist. We did
not review any files that documented only a partial review.
[39] There was one exception to this rule. Florida had two programs
that underwent separate CMS reviews. Because CMS indicated that one
program was larger in terms of expenditures and the other was larger
in terms of the number of enrollees, we included the files for both
programs in our review.
[40] While we did not review CMS rate-setting review files for
Nebraska and Tennessee, we asked CMS officials about their oversight
of those states' rate setting and reviewed relevant documents the
states submitted to CMS.
[41] The checklist includes citations to, and a description of, each
regulatory requirement; guidance on what constitutes state compliance
with the requirement; and spaces for the CMS official to check whether
each requirement was met and cite evidence from the state's submission
for compliance with the requirement.
[End of section]
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