Federal officers resolved greater than a decade in the past to crack down on whopping authorities overpayments to non-public Medicare Benefit medical health insurance plans, which had been siphoning off billions of tax {dollars} yearly.
However Facilities for Medicare & Medicaid Providers officers have but to demand any refunds — and over time the non-public insurance coverage have morphed right into a politically potent juggernaut that has signed up greater than 33 million seniors and is aggressively lobbying to stave off cuts.
Critics have watched with alarm because the trade has managed to deflate or deflect monetary penalties and steadily achieve clout in Washington by political contributions; tv promoting, together with a 2023 Tremendous Bowl characteristic; and different actions, together with mobilizing seniors. There’s additionally a revolving door, during which senior CMS personnel have cycled out of presidency to take jobs tied to the Medicare Benefit trade after which returned to the company.
Sen. Chuck Grassley (R-Iowa) stated Medicare Benefit fraud “is wasting taxpayer dollars to the tune of billions.”
“The question is, what’s CMS doing about it? The agency must tighten up its controls and work with the Justice Department to prosecute and recover improper payments,” Grassley stated in a press release to KFF Well being Information. “Clearly that’s not happening, at least to the extent it should be.”
David Lipschutz, an lawyer with the Heart for Medicare Advocacy, a nonprofit public curiosity regulation agency, stated policymakers have an unsettling historical past of yielding to trade stress. “The health plans throw a temper tantrum and then CMS will back off,” he stated.
Authorities spending on Medicare Benefit, which is dominated by huge medical health insurance firms, is predicted to hit $462 billion this 12 months.
New particulars of the federal government’s failure to rein in Medicare Benefit overcharges are rising from a Division of Justice civil fraud case filed in 2017 in opposition to UnitedHealth Group, the insurer with probably the most Medicare Benefit enrollees. The case is pending in Los Angeles. The DOJ has accused the enormous insurer of dishonest Medicare out of greater than $2 billion by mining affected person data to search out extra diagnoses that added income whereas ignoring overcharges that may have decreased payments. The corporate denies the allegations and has filed a movement for abstract judgment.
Information from the courtroom case are surfacing because the Medicare Benefit trade ramps up spending on lobbying and public relations campaigns to counter mounting criticism.
Whereas critics have argued for years that the well being plans price taxpayers an excessive amount of, the trade additionally has come below fireplace extra not too long ago for allegedly scrimping on very important well being care, even dumping lots of of hundreds of members whose well being plans proved unprofitable.
“We recognize this is a critical moment for Medicare Advantage,” stated Rebecca Buck, senior vp of communications for the Higher Medicare Alliance, which kinds itself as “the leading voice for Medicare Advantage.”
Buck stated initiatives aimed toward slashing authorities funds might immediate well being plans to chop very important providers. “Seniors are saying loud and clear: They can’t afford policies that will make their health care more expensive,” she stated. “We want to make sure Washington gets the message.”
AHIP, a commerce group for well being insurers, additionally has launched a “seven-figure” marketing campaign to advertise its view that Medicare Benefit supplies “better care at a lower cost,” spokesperson Chris Bond stated.
Revolving Door
CMS, the Baltimore-based company that oversees Medicare, has lengthy felt the sting of trade stress to gradual or in any other case stymie audits and different steps to scale back and get better overpayments. These points usually entice little public discover, although they’ll put billions of tax {dollars} in danger.
In August, KFF Well being Information reported how CMS officers backed off a 2014 plan to discourage the well being plans from overcharging amid an trade “uproar.” The rule would have required that insurers, when combing sufferers’ medical data to establish underpayments, additionally search for overcharges. Well being plans have been paid billions of {dollars} by the information mining, often called “chart reviews,” in line with the federal government.
The CMS press workplace declined to answer written questions posed by KFF Well being Information. However in a press release, it known as the company a “good steward of taxpayer dollars” and stated partly: “CMS will continue to ensure that the MA program offers robust and stable options for people with Medicare while strengthening payment accuracy so that taxpayer dollars are appropriately spent.”
Court docket data from the UnitedHealth case present that CMS efforts to tighten oversight stalled amid years of technical protests from the trade — resembling arguing that audits to uncover overpayments had been flawed and unfair.
In a single case, Jeffrey Grant, a CMS official who had decamped for a job supporting Medicare Benefit plans, protested the audit system to a number of of his former colleagues, in line with a deposition he gave in 2018.
Grant has since returned to CMS and now could be deputy director for operations on the company’s Heart for Client Info and Insurance coverage Oversight. He declined to remark.
At the least a dozen witnesses within the UnitedHealth case and an analogous DOJ civil fraud case pending in opposition to Anthem are former rating CMS officers who departed for jobs tied to the Medicare Benefit trade.
Marilyn Tavenner is one. She led the company in 2014 when it backed off the overpayment regulation. She left in 2015 to move trade commerce group AHIP, the place she made greater than $4.5 million throughout three years on the helm, in line with Inside Income Service filings. Tavenner, who’s a witness within the UnitedHealth case, had no remark.
And in October 2015, as CMS division chiefs had been batting round concepts to crack down on billing abuses, together with reinstating the 2014 regulation on information mining, the company was led by Andy Slavitt, a former govt vp of the Optum division of UnitedHealth Group. The DOJ fraud swimsuit focuses on Optum’s information mining program.
Within the authorized proceedings, Slavitt is recognized as a “key custodian regarding final decision making by CMS” on Medicare Benefit.
“I don’t have any awareness of that conversation,” Slavitt instructed KFF Well being Information in an e mail. Slavitt, who now helps run a well being care enterprise capital agency, stated that in his CMS tenure he “was recused from all matters related to UHG.”
‘Improper’ Funds
CMS officers first laid plans to curb escalating overpayments to the insurers greater than a decade in the past, in line with paperwork filed in August within the UnitedHealth case.
In a January 2012 presentation, CMS officers estimated that they had made $12.4 billion value of “improper payments” to Medicare Benefit teams in 2009, principally as a result of the plans did not doc that sufferers had the situations the federal government paid them to deal with, in line with the courtroom paperwork.
As a treatment, CMS got here up with an audit program that chosen 30 plans yearly, taking a pattern of 201 sufferers from every. Medical coders checked to verify affected person information correctly documented well being situations for which the plans had billed.
The 2011 audits discovered that 5 main Medicare Benefit chains did not doc from 12.3% to 25.8% of diagnoses, mostly strokes, lung situations, and coronary heart illness.
UnitedHealth Group, which had the bottom price of unconfirmed diagnoses, is the one firm named within the CMS paperwork within the case file. The identities of the 4 different chains are blacked out within the audit data, that are marked as “privileged and confidential.”
In a Might 2016 non-public briefing, CMS indicated that the well being plans owed from $98 million to $163 million for 2011 relying on how the overpayment estimate was extrapolated, courtroom data present.
However CMS nonetheless hasn’t collected any cash. In a shock motion in late January 2023, CMS introduced that it could accept a fraction of the estimated overpayments and never impose main monetary penalties till 2018 audits, which have but to get underway. Precisely how a lot plans will find yourself paying again is unclear.
Richard Kronick, a former federal well being coverage researcher and a professor on the College of California-San Diego, stated CMS has largely did not rein in billions of {dollars} in Medicare Benefit overpayments.
“It is reasonable to think that pressure from the industry is part of the reason that CMS has not acted more aggressively,” Kronick stated.
CMS data present that officers thought of strengthening the audits in 2015, together with by limiting well being plans from conducting “home visits” to sufferers to seize new prognosis codes. That didn’t occur, for causes that aren’t clear from the filings.
In any case, audits for 2011 by 2015 “are not yet final and are subject to change,” CMS official Steven Ferraina said in a July courtroom affidavit.
“It’s galling to me that they haven’t recovered more than they have,” stated Edward Baker, a whistleblower lawyer who has studied the problem.
“The government needs to be more aggressive in oversight and enforcement of the industry,” he stated.
Senior CMS official Cheri Rice really useful within the October 2015 e mail thread with key employees that CMS may dedicate extra assets to supporting whistleblowers who report overbilling and fraud.
“We think the whistleblower activity could be as effective – or even more effective – than CMS audits in getting plans to do more to prevent and identify risk adjustment overpayments,” Rice wrote.
However the handful of instances that DOJ may realistically convey in opposition to insurers can’t substitute for CMS fiscal oversight, Baker stated.
“Unfortunately, that makes it appear that fraud pays,” he stated.
Spending Surge
In December, a bipartisan group of 4 U.S. senators, together with Invoice Cassidy (R-La.), wrote to CMS to voice their alarm concerning the overpayments and different issues. “It’s unclear why CMS hasn’t taken stronger action against overpayments, despite this being a longstanding issue,” Cassidy instructed KFF Well being Information by e mail.
In January, Sen. Elizabeth Warren (D-Mass.) and Rep. Pramila Jayapal (D-Wash.) known as for CMS to crack down, together with by proscribing use of chart opinions and residential visits, often called well being danger assessments, to extend plan revenues.
Cassidy, a doctor, stated that “upcoding and abuses of chart review and health risk assessments are well-known problems CMS could address immediately.”
Advocates for Medicare Benefit plans, whose greater than 33 million members comprise over half of individuals eligible for Medicare, fear that an excessive amount of give attention to fee points may hurt seniors. Their analysis exhibits most seniors are proud of the care they obtain and that the plans sometimes price them much less out-of-pocket than conventional Medicare.
Buck, the spokesperson for the Higher Medicare Alliance, stated that because the annual open enrollment interval begins in mid-October, seniors might even see “fewer benefits and fewer plan choices.”
The group has ramped up complete spending lately to maintain that from taking place, IRS filings present.
In 2022, the newest 12 months obtainable, the Higher Medicare Alliance reported bills of $23.1 million, together with greater than $14 million on promoting and promotion, whereas in 2023, it paid for a Tremendous Bowl advert that includes seniors in a bowling alley and left viewers with the message: Chopping Medicare Benefit was “nuts.”
Bruce Vladeck, who ran CMS’ predecessor company from 1993 by 1997, stated that when authorities officers first turned to Medicare managed care teams within the Nineties, they shortly noticed well being plans enlist members to assist press their agenda.
“That is different from most other health care provider groups that lobby,” Vladeck stated. “It’s a political weapon that Medicare Advantage plans have not been at all reluctant to use.”
The Higher Medicare Alliance reported lobbying on 18 payments this 12 months and final, in line with OpenSecrets. Some are particular to Medicare Benefit, resembling one requiring insurers to report extra detailed information about therapies and providers and one other to increase the advantages they’ll supply, whereas others extra broadly concern well being care prices and providers.
Proposed reforms apart, CMS seems to imagine that eliminating well being plans that allegedly rip off Medicare may go away weak seniors within the lurch.
Testifying on behalf of CMS in a Might 2023 deposition within the UnitedHealth Group swimsuit, former company official Anne Hornsby stated some seniors won’t “find new providers easily.” Noting UnitedHealth Group is the one largest Medicare Benefit contractor, she stated CMS “is interested in protecting the continuity of care.”
KFF Well being Information is a nationwide newsroom that produces in-depth journalism about well being points and is likely one of the core working packages at KFF — the impartial supply for well being coverage analysis, polling, and journalism.
