Professional Documents
Culture Documents
Charting a Course:
Preparing for the Future,
Learning from the Past
About SCI
The State Coverage Initiatives (SCI) program provides
timely, experience-based information and assistance
to state leaders in order to help them move health
care reform forward at the state level. SCI offers an
integrated array of policy and technical assistance
services and products to help state leaders with
coverage expansion efforts as well as with broader
health care reform. Our team of policy experts tailors
its approach to meeting state decision makers’ needs
within the context of each state’s unique fiscal and
political environment. SCI is a national program of
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please visit our Web site www.statecoverage.org.
4 Executive Summary
60 Looking Forward
61 Endnotes
Written By: Shelly Ten Napel, Anne Bulchis, Margaret Trinity, Enrique Martinez-Vidal,
Colin McGlynn and Isabel Friedenzohn
Managing Editor: Shelly Ten Napel
Contributing Editors: Enrique Martinez-Vidal, Isabel Friedenzohn, Anne Bulchis,
and Kristin Rosengren
External Reviewers: Bob Carey, Deb Faulkner, Barb Langner, and Scott Leitz
Art Direction: Ed Brown
Executive Summary
Charting a Course:
Preparing for the Future,
Learning from the Past
This year’s State of the States will review the full range of state activity on health reform during 2008 while also look-
ing to the future, particularly in light of the expected impact of the economic downturn and the possibility of federal
action. This is a time of both challenge and possibility for policymakers, and the nation. The experience of states
can inform the ongoing discussion.
With the election of Barack Obama to the recently, in part, because there has been The analysis in this report explores these
Presidency, Congressional leaders have begun little to no federal action, there is a wealth of challenging issues. It also provides the
to set ambitious goals for the 111th Congress, experience and lessons that can inform the necessary context for readers as they learn
including comprehensive coverage and national discussion regarding health reform. about state-level innovations and reforms.
systemic reforms to promote quality care and Perhaps the two most significant themes
cost containment. For this reason, this year’s As the discussion continues in 2009, some that emerge from a review of 2008 state-
report not only analyzes the experience of critical questions will need to be resolved: level health reforms are: 1) the impact of
states in the past year, but also explores the recent economic downturn; and 2) the
the relationship between states and the n How can the states and the federal
emerging trend among states to address
federal government. government best work together in the cost and quality together with access as they
context of national reform? consider comprehensive reforms.
The states will be watching reform efforts
n How can the federal government provide
at the national level, first for their possible Surveying the Landscape. This section
leadership that empowers the states to be
immediate impacts (for example, a short- analyzes trends in health care cost and
effective partners?
term boost in the federal Medicaid matching coverage. It notes that while employer
n Which tasks are best undertaken at which
rate to address the states’ budget shortfalls) coverage rates have held relatively steady in
and then to see how broader federal level of government? the last few years, declines will be inevitable
reform may impact their particular states. Given the large variation between states in as the current recession takes hold. While
Particularly in light of severe budget deficits,
coverage rates, health care delivery system many people will lose their employer-
some states may choose not to act in 2009 inmodels, insurance market structures, income sponsored coverage as the unemployment
the hopes that federal coverage expansions levels, and a variety of other aspects, federal rate climbs, more will become eligible for
and other reforms will be forthcoming. reform will certainly impact states differently. state Medicaid programs. This will further
How can states and the federal government pressure already burdened state budgets. By
Federal health policymakers can learn from work together to reduce undesirable December 2008, at least 41 states and the
the experience of states that have pursued variation while still allowing for creativity District of Columbia were reporting mid-
innovations in both coverage expansions and and innovation at the state and local levels? year budget gaps, amounting to an estimated
delivery and payment systems reforms. Since $43 billion shortfall.1 Forecasters predict
state efforts have dominated reform efforts that these budget gaps will only worsen as
states struggle with declining revenues.2
Figure 1 Average Annual Firm and Worker Contribution to Premiums and Total Premiums for Covered Workers
for Single and Family Coverage, All Plans, 2008
Worker Contribution
Single $721 $3,983 $4,704
Firm Contribution
Number and Percent of Uninsured Employer Offer Rates Level Off in 2008 Health Insurance Premiums Go Up, Move
Decreases15 after Long Decline17 Toward High Deductible Health Plans19
n Since 1999, health premiums have increased a
n The total number of uninsured decreased in n In 2008, 63 percent of employers offered
2007 to 45.7 million from 47 million in 2006. health benefits to their employees, although staggering 119 percent. That is more than three
The percentage of uninsured also decreased this is not statistically different from the times the rate of increase in employee wages
from 15.8 percent to 15.3 percent. 60 percent of employers who offered (34 percent), and is more than four times the
coverage in 2007. This is down from rate of increase in inflation (29 percent) over the
n This is only the fourth time since 1994 that an
69 percent in 2000. same period of time.
increase in health insurance coverage among
the non-elderly population has been recorded. n Employer-sponsored coverage varies
n Despite this increase, the percent of dramatically by firm size. Nearly all (99 n Health insurance premiums continued to
people covered by private health insurance percent) of large firms with 200 or more increase in 2008, rising 5 percent in 2008.
decreased from 67.9 percent in 2006 to employees offered coverage, but only The average annual premium for single
67.5 percent in 2007. 49 percent of firms with three to nine coverage in 2008 was $4,704 and the
employees did so. average annual premium for family coverage
n Rates of uninsurance continue to differ
n Firm size is not the only factor that affects was $12,680.
significantly across the country. On a
regional level, the Midwest and Northeast whether an employer offers coverage. Firms
had the lowest rates of uninsurance (11.4 with no union workers as well as those with n Workers with both single and family coverage
percent for each), followed by the West a higher proportion of lower-wage workers paid for a significant share of their premiums.
(16.9 percent), and the South (18.4 percent). (defined as a firm where more than 35 Single coverage workers paid more than
States with the lowest uninsurance rates percent of workers earn less than $22,000 15 percent and family coverage workers
include Hawaii (8.3 percent), Massachusetts annually) are less likely to offer coverage. paid more than 26 percent of their health
(8.3 percent), and Minnesota (8.5 percent), insurance premiums. There was significant
while states with the highest rates of Rise in Public Program Enrollment variation within this group, with more than
uninsurance rates include Texas (24.4 n More people were covered by Medicaid in one-fifth of single coverage workers and 47
percent), New Mexico (21.9 percent), and 2007. The percentage of people covered percent of family coverage workers paying
Florida (20.5 percent). by Medicaid increased to 13.2 percent more than 25 percent of their premium.
n Nine states had statistically significant from 12.9 percent in 2006.18
increases in uninsurance: Kansas, Kentucky, n Much of the increase in health insurance n While the rise in health insurance premiums
Louisiana, Nebraska, New Jersey, New coverage can be attributed to an increase was relatively modest, more employers are
Mexico, New York, North Carolina, and Texas. in the number of people covered by turning to health plans with high deductibles
n Five states showed statistically significant government programs. The number and fewer benefits to keep premiums down.
decreases in uninsurance: Connecticut, of people enrolled in these programs The percentage of workers enrolled in high-
Indiana, Massachusetts, West Virginia, increased from 27 percent in 2006 to deductible insurance plans (defined as having
and Wisconsin, as did the District of 27.8 percent in 2007. a deductible of $1,000 or more) jumped from
Columbia. Massachusetts alone accounted 12 percent in 2007 to 18 percent in 2008.
for 22 percent of the decline in nonelderly Among firms with 3 to 199 employees, the
uninsured.16 rate more than doubled from 16 percent to
35 percent.
Private Non-Group 5%
37% <100% FPL
Source: “The Uninsured: A Primer,”
Kaiser Commission on Medicaid
and the Uninsured, October 2008.
Increasingly, these high-deductible with 6.6 percent of individuals in families with Hispanics, 20.9 percent of African Americans,
plans are being coupled with a health annual incomes of $75,000 or more. and 17.7 percent of other ethinicities (primarily
savings account, where an employee Asians) were uninsured.
(and employer, if so inclined) can set Uninsurance varies considerably by industry.
aside a portion of their income on a Those employed in blue-collar jobs such Country of birth also impacts insurance
pretax basis and then use that to cover
coverage with 33.2 percent of foreign-born
In 2008, 13
individuals being uninsured as opposed
percent of employers offered plans with
a savings option. While this does not share of the uninsured (36.5 percent). to only 12.7 percent of native-born
differ statistically from the 10 percent that individuals.21
In 2007, minority groups were more likely to be
than the 7 percent of employers that uninsured than whites. While 12.7 percent of Young adults continue to have the highest
offered them in 2006. whites were uninsured in 2007, 33.5 percent of uninsured rates; those aged 18-24 and
25-34 have uninsured rates at 28.1 percent
Who are the Non-Elderly Uninsured?20 and 25.7 percent, respectively.22
Although the number and percentage of
uninsured dropped in 2007, there continues
to be marked economic and social disparity
within the non-elderly uninsured population.
WA VT
11.6 10.7
MT ME
ND
16.4 9.1
11.1 NH 11.0
OR MN
17.3 8.8 MA 7.9
ID WI NY
SD
14.6 8.5 13.6
WY 11.0 RI 9.7
14.1 MI
11.0 CT 9.4
IA PA
NV NE 9.9 NJ 15.6
9.8
18.4 12.8 IL OH
UT IN DE 11.7
CA 13.7 10.9
15.1 11.6
CO WV MD 13.8
18.5
16.8 13.8 VA DC 10.6
KS MO KY 14.1
12.5 12.9 14.6
NC
TN 17.2
AZ OK 14.0
19.6 NM AR
18.4 SC
22.7 17.5 16.2
MS AL GA
19.8 13.6 17.6
LA less than 11%
TX
24.8 20.2
11% to 13.9%
FL
20.7
AK
14% to 17%
17.4
more than 17%
HI
8.2
Source: DeNavas-Walt, Carmen, Bernadette D. Proctor, and Jessica Smith, U.S. Census Bureau, Current Population Reports, P60-235, Income, Poverty,
and Health Insurance Coverage in the United States: 2007. U.S. Government Printing Office, Washington, DC, 2008.
Even before the financial crisis, many states By law, most states must balance their only a portion of the state’s budget
were facing budget deficits that forced budgets. When the economy sours, states gap, necessitating further spending
them to raise taxes, cut spending, or both. cannot run deficits and must close budget reductions.26
In fact, in early 2008, 29 states had already gaps by cutting expenditures, raising tax
confronted budget shortfalls totaling $48 revenues, or drawing from rainy day funds Medicaid Enrollment,
billion as they prepared their fiscal year or reserves. For many states, the worst Spending Set to Swell
(FY) 2009 budgets. which typical begin on financial crisis in recent times will mean In FY 2008, state Medicaid rolls
July 1.23 By December 2008, new mid-year layoffs and program cuts. Virginia is one increased by 2.1 percent as states began
budget gaps emerged, leading to budget such example. Faced with a $2.5 billion experiencing the effects of a weakening
gaps in at least 41 states and the District shortfall for its two-year budget, Virginia is economy. With a deteriorating economy,
of Columbia, amounting to an estimated laying off 570 state workers, leaving vacant unemployment rises and people face
$43 billion shortfall totaling 8.8 percent an additional 800 unfilled positions, and the loss of both employment-based
of state budgets.24 The projected gaps for instituting a hiring freeze. The state also coverage and wages, making them more
fiscal year 2010 total 16.8 percent, based on plans to close several older correctional likely to be eligible for public programs
states that are already reporting projections. facilities and will reduce the budgets of such as Medicaid. As a result, Medicaid
Forecasters predict that these budget gaps higher education institutions by 5 or 7 enrollment is expected to jump even
will only worsen as states struggle with percent. These cuts, however, address higher (by 3.6 percent) in FY 2009.27
declining revenues.25
WA VT
3.4 10.3
MT ME
ND
8.6
NH 8.0
OR MN
2.1 7.9 MA 11.5
ID WI NY
SD
4.4 7.1 11.7
WY 2.2 RI 24.5
MI
2.7 CT 3.2
IA PA
NV NE 7.0 NJ 14.2
6.0
19.6 IL OH DE 10.1
UT IN
CA 13.4 6.8
10.4 5.8
CO WV MD 10.0
35.5
7.7 VA DC 3.6
KS MO KY 13.8
2.9 3.8 7.8
NC
TN 3.7
AZ OK 12.0
32.8 NM AR
1.7 SC
7.5 2.4 11.7
MS AL GA No Budget Gap
2.2 15.0 12.9
LA less than 8%
TX
3.7
8% to 15.9%
FL
22.2
AK
16% to 24%
HI
4.0
Source: Center on Budget and Policy Priorities, State Budget Troubles Worsen. Table 3. http://www.cbpp.org/9-8-08sfp.htm
Note: These numbers are based on the estimated revenue shortfall before the FY 2009 budget was adopted, plus the mid-year gap for FY 2009.
Total Medicaid spending increased by uninsured and would increase Medicaid and 59.3 percent in 2007, down from 59.7
5.3 percent in FY 2008; for FY 2009, state State Children’s Health Insurance Program percent in 2006.32 The decline continues a
legislatures adopted Medicaid appropriations (SCHIP) enrollment by 1 million adults trend of decreasing employer-sponsored
that are 5.8 percent higher than Medicaid and children, resulting in an additional coverage that began in 2000. Furthermore,
expenditures in FY 2008.28 Increases $1.4 billion in state Medicaid spending.30 the percentage of employers offering
in Medicaid enrollment and spending Given that the unemployment rate increased health insurance coverage has fallen from
combined with budget constraints raise the by 1.5 percentage points from June 2007 69 percent in 2000 to 63 percent today,
strong possibility of Medicaid program cuts to August 2008, analysts expect to see an a worrisome drop given that employer-
as states try to manage growth in their public increase in Medicaid and SCHIP coverage of sponsored coverage is the primary source
programs with fewer resources. In fact, two- approximately 700,000 adults and 900,000 of coverage for most people under age 65.33
thirds of Medicaid directors project Medicaid children, barring cuts in eligibility.31 And, for small employers, the trend is more
budget shortfalls, which could translate into alarming; whereas 57 percent of firms with
decreased eligibility or provider payments or Employer Coverage three to nine workers offered coverage in
both.29 Continues its Slow Erosion 2000, the figure has dropped to less than
Although there were some signs of a brief half today (49 percent).34
A recent analysis found that a 1 percentage stability between 2006 and 2007, the number
point uptick in the nation’s unemployment of people covered by employer-sponsored Health insurance premiums continued
rate would result in 1.1 million additional insurance continued to decline, falling to their upward march in 2008, increasing by 5
percent from 2007 average premiums. The
10.0% 9.5%
7.9%
8.0%
6.0% 5.6%
4.2%
4.0%
3.6%
3.2% 3.2%
2.1%
2.0%
0.5%
0.2%
-0.5%
0.0%
1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009
-2.0% projected
Source: Headed for A Crunch: An Update on Medicaid Spending, Coverage, and Policy Heading Into an Economic Downturn, Kaiser Commission on Medicaid and the Uninsured,
September 2008, http://www.kff.org/medicaid/upload/7815ES.pdf.
increase was relatively modest compared to Political and Economic Almost half of states included coverage
that of past years. Nonetheless, many workers Conditions Likely to expansions for the uninsured in their
face higher deductibles and out-of-pocket Impact 2009 Activity proposed FY 2009 budgets, but those
costs. A growing share of workers—now at In 2008, state activities to provide coverage plans now appear to be in jeopardy. States
18 percent—have insurance policies with to the uninsured continued to make may scale back these efforts or abandon
deductibles of at least $1,000, a significant headlines, most notably the Massachusetts them entirely as they struggle to close
increase over last year’s 12 percent of workers efforts to implement a near-universal budget gaps and maintain current levels
with deductibles of the same level. But the health coverage program. Massachusetts of coverage.37 Furthermore, current
increase is most noticeable among employees was able to decrease by half the state’s economic conditions will increase pressure
of small firms with 3 to 199 workers; more number of uninsured in 2007, resulting in on states to contain costs. For many states,
than one-third (35 percent) of these workers 300,000 fewer uninsured residents. In fact, controlling costs may prove more difficult
must pay at least $1,000 out of pocket before the Massachusetts efforts to implement than expanding access.
their insurance starts to pay, up from 21 universal coverage accounted for more
percent in 2007.35 than 20 percent of the decline in the Current economic conditions raise the
nation’s number of uninsured last year.36 specter of a recession more severe than the
one in 2001, which had a long-lasting
2008 $12,680
$4,704
2007 $12,106
$4,479
2006 $11,480
$4,242
2005 $10,880
$4,024
2004 $9,950
$3,695
2003 $9,068
$3,383
2002 $8,003
$3,083
2001 $7,061
$2,689
2000 $6,438
$2,471
1999 $5,791
$2,196
impact on states. Following that recession, on the current system of private and To what extent the dramatically altered
unemployment hit a high of 6.3 percent, public insurance. Some features of his economic outlook will affect the
a figure this recession surpassed in the proposed plan resemble the Massachusetts President’s health care reform plans
fall of 2008. Without the $20 billion in comprehensive reform plan. He has remains to be seen. He has signaled his
temporary federal relief provided to states proposed that all employers, except small intent to move quickly to repair the
in 2003, the impact of the 2001 recession employers, either offer health insurance economy, starting with an economic
would have been even harsher. Even now, to their workers or contribute to the cost stimulus package. At the same time, he has
of coverage. His campaign proposal called indicated that health care reform tops his
forecasters suggest that a similar federal
for a National Health Insurance Exchange agenda alongside clean energy, education,
intervention may be needed—sooner
that would allow individuals without and tax relief for the middle class.
rather than later.38
coverage to purchase a plan similar to Ambitious health care reform proposals
that offered to federal workers. President may wait until after Congress addresses
Health care reform was a major issue a stimulus package, although increased
Obama’s proposal also called for expanded
in the national election. President eligibility under Medicaid and SCHIP.39 funding for SCHIP and other smaller
Obama campaigned on the promise of agenda items with bipartisan support may
a universal coverage plan that builds see early action.40
and other stakeholders in the health care government offers key advantages. government is able to maintain spending
system—state governors and legislatures levels during times of recession because
felt compelled to act. Results were mixed. Financing, Continuity, and they are not constitutionally mandated
States have experienced both important Other Federal Strengths to balance their budget every year.
successes and enlightening failures that can While many states are attempting to move Almost all states have annual or biennial
help inform a national plan and help frame ahead with reform, they are not all equal budgets that must balance, which makes
the best structure for any new federal-state in their capacity to address these large and coverage expansions more challenging
partnership. complex problems. Significant variation for states as they may not be able to
exists across states in terms of resources, afford to maintain benefit and eligibility
capacity, demographics, number of levels during economic downturns.
uninsured, insurance market structures, n Multi-year Budgets: Because the federal
in both the executive and legislative n Keep your eyes on the prize –
strategy was resoundingly accepted and
branches is critical for reforms to be Part I. While legislators or groups
incorporated by all the states that developed
enacted. If there is no strong political may have significant concerns about
or proposed serious plans for reform,
leadership behind a reform effort, it specific pieces of reform legislation,
including California, Colorado, Maine,
will likely founder as it encounters the it is important to not lose sight of the
New Jersey, Oregon, Pennsylvania, Vermont,
inevitable vested interests that would bigger picture in order to maintain
and others. All aimed for practical solutions
prefer the status quo. strong overall support for reform.
that build on the current system.
Reform efforts can easily fail in the
n Be inclusive. An inclusive consensus-
face of strong opposition if support is
building process is transparent and gives lackluster or begins to wane.
stakeholders real input. While it may not
be possible to gain the support of all the n Keep your eyes on the prize—
interested groups, a process that gives Part 2. The perfect should not be the
the relevant groups real influence and enemy of the good. There are states in
a seat at the table can prove helpful for which a moderate, bipartisan reform
gathering needed support. proposal was unable to pass due to
opposition from the right and the left.
n Build relationships early. It is important
Particularly for those who strongly
to start building trust and relationships support universal coverage, it may be
with stakeholders early. Once a reform worth supporting a plan that is not the
proposal begins to move, it may move preferred option in order to achieve a
quickly and there may not be time shared goal of expanding coverage.
to build the alliances that could help
support reform. Early relationship
While having an open and inclusive
building also contributes to a sense that
consensus-building process has been
reform is inevitable and participation is
important in several states, it is possible to
better than exclusion.
overstate its role and importance in health
measurement of all providers and a funding source is that revenues are likely to comprehensive health reform until
transparent ranking of state health care decline over time while health care spending its third attempt. Both incremental
providers based on cost and quality of is likely to grow. States have also considered and failed attempts at health reform
care, using a newly established all-payer taxing soda, wine, and beer. Other unhealthy can be seen as laying the groundwork
database; foods—like candy or snacks—could be next. for future efforts. Either can be a
But such taxes are not without their critics. good educational process for both
n Transformation of the payment system
In both Oregon and Maine, these so-called government and stakeholder groups.
in the state through a statewide quality “sin” taxes failed in public ballot initiatives— They can also build momentum and
incentive payment system and payment Oregon failed to pass a tobacco tax to fund support for future efforts.
for baskets of care; and their children’s health program and Maine’s
n States like New Jersey, Iowa, and
n Public health initiatives and funding to
beverage tax was repealed when put to a
Wisconsin are taking a phased
reduce the disease burden in the state public vote.
approach, also referred to as sequential
over time, with a particular focus on reform—or incremental reforms with
those diseases linked to obesity and Shared Responsibility: The Massachusetts
a “vision.” Policymakers are developing
tobacco use. reform is the most notable example of a state
multi-year plans, enacting building
that explicitly aimed to have each group that
One source of current spending that is block reforms and planning to pass
would benefit from the reform contribute
being tapped by states is safety net spending. additional reforms in subsequent years.
to funding it. Individuals are required to
While few states have a large, well-funded
uncompensated care pool like Massachusetts,
Alaska—Governor Sarah Palin established the Alaska Health Care Commis- Kansas—Passed a health reform bill that includes an expansion of Health-
sion to provide recommendations for and enable the development of a state- Wave (Medicaid and SCHIP) for children from the current level of 200 percent
wide plan to address the quality, accessibility, and availability of health care. FPL to 225 percent FPL beginning in 2009, and to 250 percent FPL by
2010—once federal funding becomes available.
Colorado—Enacted an SCHIP expansion to 225 percent FPL from 205
percent FPL for Colorado’s Child Health Plan Plus (CHP+). Louisiana—Enacted an SCHIP eligibility expansion for children up to 250
percent FPL from 200 percent FPL.
Connecticut—Released a draft report, authored by the HealthFirst Con-
necticut Authority, that makes recommendations for expanding coverage and Maryland—Implemented a Medicaid expansion from 30 percent FPL to 116
transforming the delivery system. percent FPL for parents and a premium subsidy program for small businesses.
This legislation is expected to cover approximately 100,000 previously unin-
Florida—Governor Charlie Crist signed into law Cover Florida and Florida sured Maryland residents.
Health Choices. Cover Florida calls for the state to negotiate with insurers
to provide a low-cost insurance product for the uninsured. Florida Health Massachusetts—Law enacted to promote cost containment, transparency
Choices expands the number and types of plans available to the uninsured. and efficiency in the delivery of quality health care. The uninsurance rate falls
to 2.6 percent.
Iowa—Enacted health reform legislation to address the quality and affordability
of health care among Iowans. The legislation expanded coverage for children Minnesota—Passed a broad and historic health reform bill focused on the
up to 300 percent FPL by 2010. It also created the Iowa Choice Health Care improvement of health care coverage and affordability. It included payment
Coverage Advisory Council to develop a plan to provide health coverage to all reform, expanded price and quality transparency, chronic care management,
state residents within five years. administrative efficiency, and public health. The reform requires that health
Both Massachusetts and Vermont began implementing their new reforms. California worked toward comprehensive reform
while a number of states continued developing proposals or refining models hoping to enact new reforms in 2008 and 2009.
2007
California—Governor Schwarzenegger announced a comprehensive health Indiana—Reforms enacted that increase tobacco taxes, providing funding for
care reform proposal, prompting significant state and national debate. Special immunization programs, Medicaid expansions, increased Medicaid reimburse-
session of the state legislature convened to address health care reform; ment rates, tax credits for employers that establish Section 125 plans, and
revised proposal introduced. Assembly passes reform bill. tobacco prevention and cessation programs. The state received federal waiver
approval for the Healthy Indiana Plan.
Colorado—The Blue Ribbon Commission for Health Care Reform approved
a set of recommendations, which would require state residents to purchase Kansas—Passed a bill that creates a phased-in premium assistance program
health insurance or face a tax penalty, and would expand eligibility for the that provides subsidies to Kansans who make below 100 percent FPL for pur-
state’s public programs. chasing private insurance actuarially equivalent to the state employee health
plan. The Kansas Health Policy Authority presented health reform recommen-
Connecticut—Passed reform bill increasing Medicaid reimbursements for dations to the legislature.
physicians and hospitals, expanding eligibility levels for pregnant women
and children, and requiring automatic enrollment of uninsured newborns in Maine—Governor Baldacci signed a bill allowing the DirigoChoice program to
HUSKY, the state’s Medicaid and SCHIP program. New Authorities charged be self-administered.
with developing recommendations for overall health care reform and for
strengthening the safety net. Maryland—Governor O’Malley signed into law a bill that will expand Medicaid
eligibility and offer subsidies to small businesses to offset the cost of providing
Hawaii—Passed several bills that expand health coverage to infants and coverage to employers.
children, raise the reimbursement rate for Medicaid providers, and reestablish
insurance rate regulation provisions. Massachusetts—Massachusetts’ individual mandate to obtain health
insurance took effect July 1. Minimum creditable coverage and affordability
Illinois—Following the collapse of agreement with the legislature, Governor standards were determined by the Connector board.
Blagojevich began implementing, through executive authority, an expansion of
the state’s FamilyCare plan and other reforms. Missouri—Passed a reconfigured state Medicaid system called MO Health-
Net. The Legislature restored coverage and benefits to some populations
whose services were eliminated two years ago.
Massachusetts and Vermont demonstrated that bi-partisan compromise and comprehensive reforms are possible at the state level.
2006
Several other states approved or began implementing coverage initiatives focused on children and working uninsured adults.
Arkansas – CMS approved a waiver to allow Arkansas to receive federal Kansas – Received federal approval for their reform proposal under the DRA.
Medicaid funds for a program that will provide low-cost health coverage to
small businesses. Kentucky – Moved forward on their Medicaid redesign plans after receiving
approval for their state plan amendment under the DRA.
Idaho – Taking advantage of the state plan amendment process provided
in the DRA, the state split the Medicaid and SCHIP population into three Maryland – Legislature over-rode Governor Ehrlich’s veto of the “Fair Share
major benefit plans. Act.” Later in the year, the U.S. District court struck down the bill, declaring the
measure was pre-empted by ERISA. The state has appealed the decision.
Illinois – All Kids program implemented. Many other states propose similar
plans to cover all children. Maine – Blue Ribbon Commission on Dirigo Health established to evaluate
For more information on state strategies, visit www.statecoverage.net/matrix.
26 State of the States
components of the state-subsidized coverage program for
the uninsured, particularly Dirigo’s funding mechanism.
Time and Effort * While this timeline aims to highlight the major activity in states; it is
not inclusive of everything that has occurred in the past few years.
care cost savings be measured against projected costs without reform. The bill also Ohio—An advisory group appointed by Governor Ted Strickland produced a com-
expanded public coverage for childless adults from 215 percent FPL to 275 percent prehensive report that included recommendations to reduce the number of uninsured
FPL. Ohioans by half and to increase the number of small businesses able to offer coverage
to their workers.
New Hampshire—Enacted a health insurance plan designed to make coverage more
affordable to small businesses by emphasizing wellness programs and prevention. Oklahoma—The Oklahoma State Coverage Initiative team, a group of state leaders
representing the state legislature, government agencies, the private sector and tribal
New Jersey—Governor Jon Corzine signed into law a health reform bill which requires organizations, released their Blueprint for Oklahoma report with draft recommendations
all residents 18 years old or younger to have health insurance coverage and which for ensuring that all Oklahomans have access to high quality health care and affordable
legislative sponsors describe as the first phase in guaranteeing health coverage for all health insurance.
New Jersey residents. This bill also included an increase in eligibility for parents in the
FamilyCare program from 133 percent FPL to 200 percent FPL. Oregon—Released a comprehensive plan authored by the Oregon Health Fund Board
to create a world-class health system for Oregon.
New York— After CMS denied its waiver request, New York implemented an SCHIP
eligibility expansion from 250 percent FPL to 400 percent FPL with state funds alone. Utah—Early in the year, created a task force to develop recommendations for health
reform. Drafted recommendations included various insurance market reforms; stream-
North Dakota—CMS approved North Dakota’s request to expand SCHIP eligibility lining and standardizing various aspects of provider, insurer and consumer interactions
from 140 percent FPL to 150 percent FPL. and communications; and requiring certain contractors who do business with the state
to offer health insurance to their qualified employees.
Congress and the administration failed to reach agreement on the reauthorization of the State Children’s Health Insurance
Program (SCHIP).
Minnesota—Governor Pawlenty announced his Healthy Connections proposal to Rhode Island—Launched HealthPact RI plans that encourage small businesses to
make the state’s Medicaid program more affordable for children, and expand eligibility. offer health coverage to workers. Initiated a series of stakeholder meetings designed to
Other features include rewards for healthy behaviors, a requirement that small busi- result in recommendations to the 2008 General Assembly related to cost containment
nesses establish Section 125 plans, and a Massachusetts-style Connector. and affordable coverage for uninsured residents.
New Mexico—Governor Richardson unveiled a comprehensive reform proposal South Dakota—Legislatively created Zaniya Project Task Force, developed a plan,
that would require all state residents to purchase coverage. including action steps and timelines, to provide health insurance to uninsured South
Dakota residents.
New York—Finalized a budget that will expand health insurance coverage for children
by raising eligibility from 250 percent FPL to 400 percent FPL, the nation’s highest ceil- Tennessee—Launched Cover Tennessee program which includes several expansions
ing for SCHIP eligibility. to cover children, uninsurable adults, low income workers, and small businesses.
Oklahoma—Governor Henry signed legislation expanding income eligibility from 185 Vermont—Vermont began enrolling eligible residents into Catamount Health on
to 200 percent FPL under the Insure Oklahoma program, which provides health insur- October 1, 2007.
ance subsidies to businesses.
Washington—Passed several bills to provide access to coverage for all children in the
Oregon—Governor Kulongoski signed the Healthy Oregon Act, providing a timeline for state by 2010, and to create a Connector-like program called the Washington Health
comprehensive health reform recommendations, and establishing the Oregon Health Insurance Partnership (WHP).
Fund Board. Ballot Measure 50 failed, leaving in question funding for a children’s cover-
age expansion. Wisconsin—Increased the cigarette tax by $1 per pack, providing funding to expand
health care coverage to nearly all children in the state through the state’s new Badger-
Pennsylvania—Under his “Prescription for Pennsylvania” plan, Governor Rendell Care Plus program.
began pursuing an ambitious coverage expansion, alongside health systems
improvements and efforts to promote healthy behavior.
Several states also took advantage of the flexibility outlined in the DRA to redesign their Medicaid programs.
Massachusetts – Passed a landmark comprehensive bill designed Rhode Island – Legislature passed a number of new health initiatives including several
to cover 95 percent of the uninsured in the state within the next coverage expansions focused on providing premium relief for small businesses.
three years.
Tennessee – Legislature passed Cover Tennessee program, which
Oklahoma – Legislature approved expansion of O-EPIC program to cover busi- includes several expansions to cover children, uninsurable adults,
nesses with 50 or fewer employees. low-income workers, and small businesses.
Pennsylvania – Legislature approved funding for Cover All Kids, a program allow- Utah – Revamped its Covered at Work program and introduced the
ing families with incomes above the SCHIP eligibility level to purchase health insur- new Partnership for Health Insurance program, which provides
ance for their children on a sliding scale basis based on income. Implementation to subsidies for low-income workers who are enrolled in coverage
State of the States 27
begin January 1, 2007. provided through their employers.
State of the States
This year’s summary of state strategies for health reform highlights the dramatic variation that has existed
among the states in 2008. Some states were attempting to enact sweeping reforms, others passed incremental
changes, while still others did not have health care high on their agenda. Despite the uncertainty caused by the
beginning of the economic downturn and with State Children’s Health Insurance Program (SCHIP) restrictions
from the Centers for Medicare & Medicaid Services (CMS), many states were able to make progress.
Northeastern states like Maine, Pennsylvania are examples of states that other states, such as Arkansas, Connecticut,
Massachusetts and Vermont continue to tried but failed to pass comprehensive Ohio, Oklahoma, Oregon and Utah,
advance implementation efforts, with health reform legislation in 2008. These used 2008 to build consensus and create
Massachusetts demonstrating particularly states will benefit in the coming years from recommendations ranging from increases
strong success in covering the uninsured the statewide dialogue that the proposals in coverage for specific populations to
and starting to focus more on tackling have stimulated. substantial system redesign.
unsustainably high health care costs.
Iowa, Minnesota, and New Jersey passed This section categorizes state reforms
Other states entered 2008 with comprehensive legislation during the year that will increase in order to reflect general similarities in
plans for health reform, ranging from coverage and, particularly in the case of trends and approaches. It organizes the
universal coverage for all state residents Iowa and Minnesota, will move the states wide range of steps taken and reforms
to system-wide reforms to address quality forward in containing health care costs and pursued.
improvement and cost containment. improving quality. Additionally, a handful of
California, New Mexico, Kansas, and
older obtain health insurance or face tax n More than 40 percent of the newly
with federal matching funds for all programs.
penalties; insured gained private coverage without It also enables Massachusetts to meet all of its
any government subsidies. Among the health care obligations for FY 2009.93
n The expansion of MassHealth (Medicaid)
for children up to 300 percent FPL and state’s insured population, 82 percent
have private insurance, 14 percent are The governor’s plan to pay for the higher
insurance subsidies for low-wage small
covered by Medicaid, and 3 percent costs includes increasing contributions
business employers and workers;
are enrolled in Commonwealth Care from businesses, insurers, and providers,
n The creation of Commonwealth Care,
and instituting a tobacco tax (amounting
subsidized plans.
a subsidized health insurance program to an increase of $1.00 per pack of 20 and
for adults up to 300 percent FPL who n The percentage of employers providing $1.25 per pack of 25). Furthermore, in an
are not eligible for MassHealth and do health insurance rose to 73 percent in 2007 effort to prevent crowd-out, premiums
not have access to employer-sponsored and increased to 79 percent in 2008. in the Commonwealth Care program
insurance; and
n The number of residents using free care
have been raised by 10 percent, with an
n The development of the Commonwealth from hospitals or community centers additional increase in co-payments for some
Health Insurance Connector which is a declined by 37 percent from the past beneficiaries, to make the plan more in line
health insurance purchasing mechanism year and the cost of uncompensated with private plans.94
with responsibility for Commonwealth care decreased from $166 million in the
Care as well as Commonwealth first quarter of the pool’s 2007 fiscal In September 2008, the Massachusetts
Choice—an unsubsidized health year (FY) to $98 million in the first Commonwealth Health Insurance
insurance program for uninsured adult quarter of FY 2008.91 Connector Authority Board voted
Massachusetts residents. unanimously to proceed with new
minimum standards for health coverage
requirement is to ensure that all Massachusetts on coverage and accessibility, there has been Advisory Board to study methods of
residents have sufficient coverage while still an increased focus on cost containment and improving reimbursement or bonuses
making the insurance affordable. In general, in quality improvement measures. In August, for those engaged in primary care.
order to meet the state’s minimum creditable the governor signed a bill (S.2863) intended
coverage standards, health benefit plans must to promote cost containment, transparency,
Measures to enhance quality and
offer coverage for prescription drugs, physician and efficiency in the delivery of quality
transparency of health care costs include:
services (including preventive and primary health care.
care), hospitalization, ambulatory patient
n Mandated reporting of “serious
services, mental health and substance abuse The bill includes measures that promote
reportable events,” adverse drug events,
services, and emergency services. efficiency in the health care system,
and hospital-acquired infections.
including:
The new rules also will mandate that effective n Regulation of marketing practices to
January 1, 2010, plans must provide coverage n Creating a Special Commission on
health care professionals from the
for radiation and chemotherapy, maternity Health Payment Reform to investigate pharmaceutical and medical device
and newborn care, medical/surgical care, restructuring the current payment industry based on an industry-accepted
and diagnostic imaging and screening tests. system to provide incentives for efficient code of conduct.
The board voted to delay until January 2010 and effective care.
n Regulation and oversight of the disposition
the implementation of the new standards
n Authorizing MassHealth (Medicaid)
of the reserves and surpluses of health
to give employers an opportunity to revise
to establish a “Medical Home” insurers and providers by the Division of
their policies, if necessary. Individuals will
demonstration program to promote Health Care Finance and Policy.
be responsible for making sure that their
coordinated, comprehensive patient care
coverage meets the state’s minimum standards
and strengthen the role of primary care
and will be personally assessed for failure to And finally, the bill encourages adoption of
providers.
comply. The tax penalty for not obtaining health information technology by:
coverage under the universal healthcare law in n Establishing a Pharmacy Academic
tax year 2008 ranges from $210 to $912 a year, Detailing Program to educate providers n Setting a goal of statewide adoption
depending on age and income; these penalties on the use of lower-cost brand names
of electronic health records by the year
are likely to increase in 2009. 95 and generic drugs in place of expensive
2015 to improve patient safety and
brand name drugs, where therapeutically
lower costs.
At the start of the program, Massachusetts appropriate.
employers were required to meet a premium n Dedicating $25 million to the new
n Authorizing the Department of Public
contribution standard by satisfying at least Massachusetts e-Health Institute
Health to establish a list of so-called
one of the following: contributing at least 33 to facilitate the financing and
“never-events” to be updated annually
percent of the cost of an employer-sponsored implementation of a statewide,
and that prohibits health providers
group health plan offered to all full-time from billing for costs related to a “never- compatible system of electronic health
employees or enrolling at least 25 percent of event.” records. 97
full-time employees in their health insurance
plan (to which the employer must be making To improve access to health care services
the bill: As Massachusetts introduces its adjusted
a financial contribution). Starting January 1,
financing schemes, states considering
2009, the determination of what it means to
n Creates a new Health Care Workforce
their own ambitions for state health
be a contributing employer will become more
Center within the Department of Public reform will continue to look to that state
stringent for employers with 50 or more full
Health to improve access to health care as an invaluable case study. In a written
time equivalent employees. Companies with
services in the Commonwealth, with a statement, Senator Edward M. Kennedy
more than 50 full-time equivalent employees
particular focus on primary care. noted that Massachusetts has “made major
will be required to meet both of the above
progress in the program’s first two years,
tests, while companies with 50 or fewer full n Institutes a new loan forgiveness
cutting the number of uninsured in half and
time employees will continue to satisfy the fair program for doctors and nurses who
increasing employer-sponsored coverage.
share requirement by meeting either of the commit to practicing certain specialties
in medically underserved areas. [The Massachusetts] experience with health
two tests.96
reform…argues well for our debate on
n Requires health insurers to recognize and
national health reform next year.”98
reimburse nurse practitioners as primary
care providers.
32 State of the States
substantial Health Maryland: Medicaid Expansion and Small
Reforms passed in 2008 business assistance
In 2008, three states—Iowa, Minnesota, and In July, Maryland began implementing The law also creates the Health Insurance
New Jersey—enacted substantial reforms health reforms that were enacted in 2007. Partnership, a premium subsidy program
that expanded public coverage programs The aim of the reforms was to expand for small businesses that began enrollment
and included private sector reforms. The health insurance coverage under the in October 2008. A business is eligible to
Working Families and Small Business receive a subsidy of up to 50 percent of the
laws encompass several components that are
Health Coverage Act. The law mandated a premium from the Maryland Health Care
emerging as trends among states considering Medicaid expansion and a premium subsidy Commission if it meets the following criteria:
health reform. The Minnesota and Iowa program for small businesses in order
laws included both coverage expansions to provide health insurance coverage to n The business has between two and nine
and significant delivery system redesign. In approximately 100,000 previously uninsured employees;
Minnesota, the state enacted some of the Maryland residents.99
n The average employee wage is below
most innovative and wide-reaching payment $50,000;
Maryland will phase in its Medicaid
reforms of any state, including a “baskets of expansion over several years. The first n The employer establishes a Section 125
care” concept (described on page 37) and a phase, called the Medical Assistance to Plan; and
single statewide payment system to be used Families program, increases Medicaid
across payers. Both the Iowa and Minnesota eligibility for parents from 30 to 116 percent n The employer did not offer health
FPL ($20,500 for a family of three).100 insurance to employees during the 12
laws included public health and wellness
To date, more than 16,000 parents and months before applying for the subsidy.101
programs to promote healthier lifestyles
caretaker relatives have enrolled. The
among residents. The Maryland Health Care Commission is
second phase of the Medicaid expansion
responsible for administering the partnership
increases the services offered under the
program. It provides assistance to employers
The New Jersey and Iowa reforms represent Primary Adult Care (PAC) program. The
establishing Section 125 plans and expects
a sequential approach to health reform. program will continue to be available to any
to enroll more than 1,500 businesses in the
Neither bill aimed to achieve universal eligible individual, though the state may
program’s first year.102 As of December 1,
have to cap it at some point because of
coverage, but both explicitly pointed to 2008 more than 80 businesses had enrolled,
budget constraints. PAC, which for the past
future efforts to continue expanding access covering 420 lives. For a health plan to be
few years has provided basic primary care
eligible for a subsidy, it must encourage
to health insurance. The sponsors of the services to low-income adults, will—over
wellness by providing employees with a
New Jersey legislation have already prepared the next three years—add benefits such
health risk assessment and incentives for
a second phase of their proposed reforms, as hospitalization and low-cost or free
health-promoting activities, preventive care,
stating that the recently enacted law is only prescriptions. The goal is to increase the
and chronic care management.103
benefit package over a number of years
the first step in more comprehensive health
until PAC beneficiaries receive full Medicaid
reform efforts. Iowa’s law calls for several benefits. These benefits would be phased in
commissions charged with considering over a number of years.
options for future reforms. A legislatively-
created council will develop a plan to cover
all Iowa residents within five years.
Iowa
In May, Iowa enacted health reform
legislation (House File 2539) based on
recommendations developed by the
governor and the Legislative Commission
on Affordable Health Care Plans for Small
Businesses and Families. The commission
State of the States 33
Provider Taxes: Worth a second look consisted of 10 members of the General
Assembly and 19 members of stakeholder
As states pursue coverage expansions, they leave states with a gap in funding coverage groups, including consumers.105 The reform
are likely to consider a variety of means to programs. law includes a broad variety of provisions
raise the revenues needed to fund those regarding the affordability of health care
expansions. For states interested in taking While provider taxes have come under criticism for Iowans, including the following:
significant steps toward universal coverage, for unfairly burdening providers, they offer states
they face a substantial financial barrier. a strategy for recouping uncompensated care
Significant coverage expansions require new costs built into the current reimbursement
n Children’s Coverage—The law aims to
funding to support subsidies for making system—costs that would no longer be incurred extend health coverage to all children.
private insurance more affordable and to by providers under a universal coverage The state will cover children in families
help finance public program expansions. system. Furthermore, providers are able to pass with incomes up to 300 percent FPL
Most coverage expansions require states to the cost of a provider tax on to consumers, who beginning in FY 2010, pending CMS
raise funds by increasing existing taxes or tend to be less price-sensitive, particularly when
authorization and sufficient federal
imposing new ones. insurance partially covers costs. A one-time,
small increase in the price of medical services
funding. The law requires families
Some tax options are broad-based, and is unlikely to deter individuals from seeking earning above 200 percent FPL to
others are more targeted. Broad-based needed care. pay a premium. The expansion could
options such as increases in the retail sales extend coverage to approximately
or personal income tax have the power to A further question is whether insurers would 9,000 uninsured Iowa children. The
generate substantial revenues from relatively cover the price increase that would likely result
Department of Human Services will
small tax hikes. They also offer the advantage from a provider tax when providers pass on the
of spreading the burden across a broad extra cost to payers. A state Medicaid program,
receive more than $40 million in General
population. For this reason, however, broad- for example, would need to increase payment Fund appropriations from 2009 to 2011
based taxes are politically difficult and may rates to providers to make up for the tax to implement the expansion programs.
face steep opposition. In addition, with the increase. Providers may not be able to recoup The state intends to launch the program
economic outlook increasingly bleak, states the tax directly on Medicare services. on July 1, 2009, for FY 2010. One
may be reluctant to pursue tax increases.
significant provision of the law requires
Provider taxes also offer a broader revenue
With the recent economic downturn, states base than other “health” taxes such as premium
Iowans to indicate on their income tax
are already facing increasing demands taxes levied on insurers. While premium taxes forms if their dependent child has health
on public programs as they experience may generate less political opposition, only care coverage.
significant declines in revenues. As a result, non-self-insured plans pay the tax. With self-
most states would be well advised to insured plans exempt, a large segment of the
n Iowa Choice Health Care Coverage
consider a variety of revenue sources for population would not share the burden of a Advisory Council—The council
funding or maintaining health care coverage premium tax. In contrast, everyone who uses is charged with assisting the Iowa
expansions. While no tax increase is ever medical services would share the cost under a Comprehensive Health Insurance
popular, a health care sales tax—or provider provider tax scenario. Association (Iowa’s high-risk pool) with
tax—offers some economic advantages
development of a comprehensive plan to
to states looking for ways to maintain States have relied on provider taxes for some
current coverage levels or to fund coverage time: 43 states have levied some type of
provide health care coverage to all state
expansions. Under such a tax, providers provider tax, and 30 tax more than one type of residents within five years.
remit to the state a small percentage of the provider. Governor Arnold Schwarzenegger, for
n Continuous Eligibility—The Medicaid
payments they receive for patient services. example, included a hospital provider tax as a
program will provide continuous
mechanism to help finance the increased state
A provider tax offers a stable source of expenditures that would have resulted from his eligibility for 12 months for children
revenue that is largely immune to economic proposal for achieving near-universal coverage who might otherwise become ineligible
cycles, because the need for medical in California. because of changes in family income.
services is relatively stable in both good and
bad economic times. Given that the growth While any tax proposal raises issues of fairness, n Annual Report—The Department of
rate of health care costs has historically a provider tax offers some advantages such Revenue and the Department of Human
risen at a faster pace than the growth rate that it deserves consideration among the menu Services (DHS) must submit an annual
of the economy as a whole, a provider tax of state options for raising new funds to finance report to the governor and General
represents a largely recession-proof revenue coverage expansions.104
Assembly, providing: 1) the number
source. Revenues from other sources are
Adapted from Wicks, Elliot K., “Can a Sales Tax on of families claiming state income tax
not able to keep pace with the rapid growth
Medical Services Help Fund State Coverage Expan-
in health care costs and will eventually sions,” State Coverage Initiatives, July 2008
collection on patient-centered medical on their parents’ or guardians’ health plans MinnesotaCare expands eligibility for
homes, and provide training and until they marry or leave the state. adults without children to 250 percent
education to health care professionals FPL, thereby increasing access to health
n Iowa Electronic Health Information
and families. The first phase of system care for an additional 12,000 residents.
Commission—The commission is
development will create a medical home It also reduces the MinnesotaCare
charged with developing a statewide health
for children eligible for Medicaid. sliding-scale premium to increase
information technology plan by January
affordability.
n Family Opportunity Act—The act
1, 2009. The system will expand the use of
provides a Medicaid buy-in option for electronic health records and improve health n Section 125 Plans—Employers who
individuals under the age of 19 with care quality to decrease costs. employ 11 or more full-time-equivalent
disabilities whose family income is at workers and do not offer group health
or below 300 percent FPL. The act takes insurance must establish and maintain
a Section 125 plan to allow employees
Rhode Island Approved for Global Second, the state would build on current Rhode Island Follows Precedent Set by
Medicaid Waiver programs such as Rite Care to manage care Vermont
In August 2008, Rhode Island Governor approaches across all Medicaid populations. Rhode Island is not the first state to seek a
Donald Carcieri submitted the Rhode Island Third, the state would adopt approaches global Medicaid waiver that allows for greater
Consumer Choice Global Compact Waiver that link reimbursement to performance and flexibility in exchange for a cap on Medicaid
application to CMS. The Governor reported quality-of-care improvements. The waiver spending. In 2005, Vermont won approval
that it was approved by the agency on application also proposed greater care for a Section 1115 waiver known as the
December 22, 2008. The state legislature management across all Medicaid populations Global Commitment to Health Waiver, which
has 30 days to review and reject the plan to ensure better coordination of care and allowed the state to restructure its Medicaid
otherwise it is deemed approved. Rhode to establish Healthy Choice Accounts to program in exchange for a five-year, $4.7
Island’s global waiver application would encourage preventive care and healthy billion cap on Medicaid spending. The state
give the state significant authority to make lifestyles. Rhode Island estimates that the is financially at risk for keeping expenditures
changes to its Medicaid program in exchange waiver would save the state $358 million over below the target. The federal government
for a cap on federal funding of the program. five years, including savings that the state is pays 60 percent of the costs over the life of
already counting on to help close its FY 2009 the program.
The proposal calls for the state to operate its budget gap of $430 million.
Medicaid program under a Section 1115(a) Under its global waiver, Vermont established
demonstration waiver and would limit total Rhode Island’s waiver proposal has drawn its itself as a managed care organization, paying
Medicaid spending (state and federal) over share of criticism from both federal legislators itself a premium for each Medicaid beneficiary
the waiver period. CMS approved a $12.075 and advocacy groups. Lawmakers, including served. In addition, Vermont has the flexibility
billion spending cap through 2013, about the entire Rhode Island Congressional to use federal funds for non–Medicaid health
$350 million less that the state requested. delegation, have expressed alarm over an services and programs. Now that the waiver
apparent lack of transparency in negotiations is in its third year, state officials believe that
In exchange for the spending cap, the state between Governor Carcieri’s administration it has been extremely helpful in providing
would gain significant flexibility to change and CMS. Senate Finance Committee the flexibility needed to pursue financial
eligibility levels, services, and cost sharing. Chair Max Baucus (D-MT) and Senator Jay and organizational reforms. It has allowed
The waiver would use global budgeting as Rockefeller (D-WV) raised concern that the Vermont to maintain its expansion programs
the funding mechanism for all Medicaid waiver “could hurt” people and that the and to continue investing in other health-
populations in the state across all settings. “federal guarantee of health benefits for those related programs essential to the state. In
The state’s Medicaid reform plan focuses on in need” should not be “negotiated away.”109 the face of some of the same criticisms
three elements. First, the state would seek Advocacy groups are concerned that Rhode leveled against Rhode Island, the state
to enhance the availability of home- and Island’s waiver could lead to reduced access acknowledges that the waiver has not limited
community-based programs as alternatives to institutional long-term care and raise out- access or affected beneficiaries adversely.
to long-term care institutional settings. of-pocket costs for some beneficiaries. Like Rhode Island, Vermont’s Global
to purchase health insurance with pre- n Affordable Access—The law calls for a
To promote payment reform and price/
tax dollars. The law provides $1 million proposal to promote affordable access quality transparency, the law calls for the
in funding for grants to cover certain to employer-sponsored health insurance following:
employers’ cost of establishing Section through the use of direct subsidies and/or
125 plans. tax credits and deductions. n Quality Transparency—Increased
transparency and the development of a
n Value-based Benefit Redesign—A
n Administrative Streamlining—The law
single statewide system of quality-based
workgroup is charged with making intends to make it easier for people both
incentive payments for use by public
recommendations on the design of an to obtain information and applications
and private health care purchasers to
“essential benefit set” that provides for state public health care programs and
encourage quality improvement through:
coverage for a broad range of services to renew their enrollment. It also provides
and technologies. The benefit set must for more seamless transitions between – Public reporting of risk-adjusted
be based on scientific evidence of clinical programs and requires further study of quality measures based on health
effectiveness and cost-effectiveness and ways to improve coordination between outcomes, processes, and other
must require lower enrollee cost-sharing state health care programs and other measures such as care infrastructure
for certain services. programs such as the Women, Infant, and and patient satisfaction.
Children Nutrition Program (WIC).112
– The inclusion of quality measures of incentives that: 1) motivate health n Means of Comparison—The
for primary care related to preventive care providers to deliver innovative, establishment of “baskets” or episodes of
services, coronary artery and heart high-quality/low-cost health care, and health care services promotes transparency
disease, diabetes, asthma, and depression. 2) motivate health care consumers to and accountability, allowing consumers to
patronize high-quality/low-cost providers. make relatively easy comparisons of cost
– Adjustments of quality incentive
The tools will be based on encounter-level and quality of care across providers while
payments to providers for variations
claims data and information on contracted motivating provider innovation on cost
in providers’ patient populations,
prices, with the Commissioner of Health and quality. In particular, providers will
based on a comparison of provider
developing both a method for calculating set their own prices for “baskets” of care to
performance against specified targets
providers’ relative cost and quality of care encourage greater transparency and price
and improvement over time.
and a combined measure incorporating competition.113
n Quality Measurement Tools—A powerful risk-adjusted cost and quality of care. The
To promote chronic care management, the
set of tools to allow consumers and health information will be disseminated to health
law requires:
care purchasers to compare providers care providers and the public.
in terms of overall cost and quality of
n Coordination of Activities—Health
care. The tools will support the creation
care must be coordinated for people
Minnesotans who are obese or overweight Funds—Hospitals are prohibited from Small Employer Plans—Premiums must
and to reduce tobacco use. submitting charity care claims for be formulated such that the minimum
children under age 19 who present at loss ratio may be no less than 80 percent
hospitals for emergency care and are of the premium.
The reform requires health care cost savings eligible for NJ FamilyCare or Medicaid.
to be measured against projected costs in the n Greater Transparency of Insurance Broker
absence of reform. Estimates suggest that n Ongoing Enrollment Initiative— Fees—An insurance producer (agent
the reform measures will yield a possible Individual taxpayers must indicate on or broker) must notify an insurance
cost savings of about 12 percent by 2015, their tax returns the health insurance purchaser of the amount of any of the
representing a potential savings of about $6.9 coverage status of the taxpayer and following: commission, service fee,
billion compared to baseline projections.114 dependents, if applicable, as of the brokerage, and whatever other valuable
filing date. The taxpayer will receive consideration the insurance producer
an application for the Medicaid or NJ will receive from the sale, solicitation, or
FamilyCare program if the taxpayer or negotiation of the health insurance policy
dependents may be eligible for either or contract. A producer must also inform
program based on reported income. the Department of Banking and Insurance
how carriers compensate the producer for
the sale, solicitation, or negotiation of the
health insurance policy or contract.116
burden caused by cost-shifting from the before making final recommendations, the basic the creation of a new basic benefit plan
uninsured. design of their coverage expansion proposal is: called the Utah NetCare Basic Health
Care Plan; the allowance of mandate-
The primary areas of focus in the draft
n Expanded Medicaid/SCHIP eligibility for free benefit plans to be offered in certain
report include:
all residents with family incomes below circumstances; the establishment of
n Maximizing enrollment in public 300 percent FPL, including sliding scale an Internet portal for the purchase
programs for those eligible but not yet cost-sharing; the uninsured with access of these new plans; the inclusion of
subscribed; to employer-sponsored insurance would sole proprietors in the small group
received premium assistance to purchase market pool; and the establishment of a
n Developing an affordable basic health
private coverage. reinsurance pool.
benefits plan;
n Access to a restructured Charter Oak Streamlining and standardizing
n
n Generating sufficient public revenue; and
program, which currently allows families various aspects of provider, insurer,
n Encouraging the take-up of private to buy health insurance regardless of their and consumer interactions and
coverage. health status at premiums tied to income. communications; the bill also creates
The Blueprint report was shared with statewide a framework for demonstration
n A Connecticut Health Partnership, using
participants for feedback and the Oklahoma projects for delivery and payment
the state employee health benefit plan as a
team expects to have revised recommendations systems reforms.
base, will be available to all residents and
ready by the start of the Oklahoma legislative employers in order to improve employer Requiring certain contractors who do
n
session in February 2009. offer rates and employee take-up rates, business with the state to offer health
and to offer coverage to those in the non- insurance to their qualified employees.
Connecticut group market.
Arkansas
The 10-member, legislatively-created
The Authority also has multiple Arkansas is developing a strategic plan for
HealthFirst Connecticut Authority released a
recommendations for containing costs health care that encompasses short-term,
draft report in December that has identified an
and improving quality. Particularly, they intermediate, and longer-term components.
urgent need for expanded health coverage and
focus on the role of data collection and Work toward this goal is taking place
transformation of the system of care. The draft
analysis, emphasizing that data should drive through the Governor’s Implementation
report provides recommendations for ways to
policy development, implementation, and Group, which is identifying opportunities
expand and improve health coverage, while also
evaluation. The Authority also recommended to implement improvements that do
addressing issues that affect both the insured
that a public entity be assigned or developed not require legislative or other action,
and uninsured, such as health information
to oversee the proposed reforms and better including those that require cross-agency
technology, wellness, and chronic diseases.
coordinate state spending on health care. collaboration or coordination, and the
The Authority focused on the complementary
Governor’s Roundtable on Health Care,
goals of universal coverage and access to safe,
Utah which is developing strategies to improve
effective care for all Connecticut residents by
In March, Utah enacted H.B. 133 which, health, deliver needed health care, and
first establishing two workgroups—the Cost,
among other more immediate measures, enhance both worker productivity and
Cost Containment, and Finance Workgroup
established a framework for the development the state’s business climate. Nearer-term
(CCCF) and the Quality, Access, and Safety
and implementation of a strategic health goals include developing a package of
Workgroup (QAS). More than fifty individuals
reform plan. The legislation created the legislative initiatives for recommendation
representing a broad range of interested
Health System Reform Task Force, which to the governor for introduction in the
stakeholders made up each workgroup. The
was charged with creating a plan for health January 2009 legislative session, while
Authority first met in October 2007 and held
system reform. In December, the Task Force building political consensus to help
27 meetings between then and December 2008,
drafted three bills for introduction in the 2009 facilitate its passage.137
during which time it reviewed research and
legislative session.136 Those bills focus on:
expert testimony and also hosted nine public
forums throughout the state.
The Coverage Institute (CI), a targeted Robert Wood Johnson Foundation, through For
n the New Jersey team, the kick-off
SCI technical assistance program, was SCI, awarded development grants to meeting brought together key legislative
unveiled in 2007 and has helped states Arkansas, Kansas, Maryland, Minnesota, and executive branch leaders for a
address substantial and comprehensive New Mexico, Oklahoma, Oregon, Texas, and constructive conversation on health
care health reform throughout 2008. The Wisconsin. For the most part, the states are coverage, leading to the development of a
CI was instrumental in helping a group of using the funds to continue their involvement sequential coverage expansion proposal.
state leaders from the public and private in a stakeholder consensus-building Governor Corzine signed into law the
sectors deepen their understanding of the process, to fund experts to help them first phase of the reforms, sponsored by
implications of various programmatic options develop policy proposals, and to fund the Senator Joe Vitale, in July 2008.140
for expanding health coverage in their actuarial modeling of various policy options.
respective states. In addition, Colorado and New Jersey were
Perhaps one of the most important aspects
awarded microsimulation modeling grants.
of the Institute is collaboration—the
The CI began with a kick-off meeting that Both states are working with a team from
result of requiring teams to represent
brought together representatives of 14 the Urban Institute to develop and delineate
various components of government and
states (Arkansas, Colorado, Indiana, Kansas, a finite number of policy options for use in
the private sector. Such collaboration
Maryland, Minnesota, New Hampshire, a microsimulation model, and to understand
encouraged states to move beyond
New Jersey, New Mexico, Ohio, Oklahoma, important design and implementation issues.
political turf, to dampen political rhetoric,
Oregon, Texas, and Wisconsin). Each state
and to bring disparate parties together in
selected a team to participate in the highly Despite the severe budget setbacks
a neutral environment. As one state official
interactive process for developing policy and experienced by many of the participating
commented, “You can’t put a dollar figure
program recommendations. While the mix states, many have made extraordinary
on the importance of having SCI as a neutral
of participants varied by state, the teams progress. Throughout, this report highlights
third party spearheading the efforts.”
included senior executive branch officials, the successes of participating states, but
legislators, and decision makers from private a few examples of CI team achievements
The Coverage Institute has fostered a sense
purchasers, the advocacy community, and include the following:
of community among all participating states.
practitioners. Fifteen distinguished faculty
Participants stay in contact with one another
members shared their expertise on various The
n Ohio CI Team developed a
and are aware of each other’s progress
issues, including insurance market reforms, comprehensive plan to reduce the
through bimonthly conference calls. The
reinsurance, other methods to subsidize number of uninsured Ohioans by half; the
states also have participated in technical
coverage, connectors/exchanges, team presented the plan to the governor
assistance meetings that allow them to
Medicaid waivers and the Deficit Reduction in July 2008.138
advise and learn from one another. The CI will
Act, health systems improvement, and
The
n Maryland team developed a proposal, conclude in June 2009; however, SCI intends
strategies for building stakeholder and
subsequently enacted, that included a to announce the start of another Institute in
policymaker support.
Medicaid expansion for parents/caretaker spring 2009.
relatives with a phased-in expansion for
Following the initial meeting, participating
childless adults, along with as a small
states were then eligible to compete
business subsidy program that started
for additional funding for development/
offering assistance to small businesses in
microsimulation modeling or other reform
October 2008.139
development activities. In February, the
CoverTN Businesses must have less than 25 employees with 50 percent earning $43,000 a year or less. The plan is
(2007) available for businesses who have not offered insurance for six consecutive months, or if offered, the employer has 16,020
not paid 50 percent or more of the premiums. The plan must be offered to all employees.
Employers with 2-500 employees who have not offered a health plan to employees within the past twelve
ARHealthNet months. At least one employee must qualify for subsidized premiums and have a household income at or
5,000
(2006) below 200 percent FPL, and all employees must participate in the program or provide documentation of
coverage.
Uninsured firms (2-9 employees) that have not offered insurance for 24 months and have no employees who
Insure Montana
earn more than $75,000 per year. 5,500
(2006)
For employers of small businesses with 2-9 employees offering health plans, a tax credit of up to 50 percent 5,000
of paid premiums is available.
Workers and their spouses, who work in firms with 50 or fewer workers and contribute up to 15 percent of
Insure Oklahoma premium costs; self-employed; unemployed individuals currently seeking work; and individuals whose employers 11,000
(Previously known do not offer health coverage with household incomes at or below 200 percent FPL. + 5,000 in the
as O-EPIC)
Small employers must contribute at least 25 percent of eligible employee’s premium costs and offer an Individual Plan
(2005)
Insure Oklahoma-qualified health plan.
Small businesses (2–50 employees) that have not offered health benefit coverage to their employees during
West Virginia Small
the preceding 12 months are eligible to participate. Employers must pay at least 50 percent of the premium 1,500
Business Plan (2005)
cost. At least 75 percent of employees must participate.
Small employers that have previously not offered insurance and with 30 percent of workers earning less than
Healthy New York $34,000 annually. 153,080
(2001) Sole proprietors and working individuals without access to ESI who earn less than 250 percent FPL and
have been uninsured 12 months.
Idaho Access to Health Income Eligibility up to 185 percent FPL with an employer contributing 50 percent of the premium. The
400
Insurance (2005) subsidy has a maximum of $100 per month per person or $500 per month per family.
The Massachusetts Individuals with income below 300 percent FPL are eligible. Employers contribute 50 percent of the
Insurance Partnership premium. Businesses with 1-50 employees are eligible. Coverage must qualify as comprehensive. 15,600
(2000) Enrollees must show that they have been uninsured for at least six months.
Employers can receive a subsidy of up to 50 percent of the premium if the following criteria are met:
• The business has between two and nine employees;
Maryland Health
• The average employee wage is below $50,000; and
Insurance Partnership
• The employer did not offer health insurance to employees during the 12 months prior to application. 420*
(2008)
For a health plan to be eligible for a subsidy it must encourage wellness by providing employees with a health risk
assessment and incentives for health-promoting activities, preventive care and chronic care management.
Individual must earn below 300 percent FPL and the employer must contribute 60 percent of the premium.
Maine Dirigo Choice The program offers subsidies to the individual on a sliding scale. 10,663
(2003)
Dirigo Choice is currently closed to subsized employers and all individuals.
Arizona Health The state pledged up to $5 million in tax credits to subsidize private insurance premiums. Employers must have
Insurance Premium from 2-25 employees and have not offered coverage for 6 months. Eligible individuals must earn below 250 2,110
Tax Credit (2006) percent FPL. The state pays 50 percent of the premium, up to $1,000 for individuals and $3,000 for a family.
A growing number of states are expressing under the Consolidated Omnibus Budget employers facilitate their offering of Section
interest in reducing the number of uninsured Reconciliation Act (COBRA), as well as 125 plans. As part of the reform package,
workers and making their health coverage nondiscrimination and benefit design adults in the state were required to purchase
more affordable by requiring or encouraging requirements under the Health Insurance insurance if they could afford to do so.
employers to set up Section 125 plans—also Portability and Accountability Act (HIPAA). While most employers report a positive
referred to as “cafeteria plans.” These plans It appears that Section 125 plans are not experience with Massachusetts’ Section 125
refer to Section 125 of the U.S. Internal subject to the Employee Retirement Income plans, take up rates have been relatively low,
Revenue Code, which establishes rules Security Act (ERISA), however, as long as especially during the initial implementation
related to taxable and non-taxable benefits employers do not promote purchase of period. Massachusetts has found wide
offered by employers. Section 125 plans specific individual health insurance policies. variation in the education and outreach
reduce the effective cost of health care Further, state policies that require employers offered by employers about the benefit of
coverage for many employees (depending to adopt Section 125 plans should not be Section 125 plans. As of November 2008,
on their total income and family situation) by preempted by ERISA as long as the state law just 1,129 of the 14,879 adults purchasing
allowing them to purchase coverage on a applies to employers and does not refer to coverage through the Connector without an
pre-tax basis. This administrative mechanism employer-sponsored plans. employer contribution did so through Section
reduces both employees’ and employers’ 125 plans. While this number is relatively
share of Medicare and Social Security taxes, To minimize the potential for problems under modest, there has been a steady increase in
as well as employee income taxes and ERISA and the tax code, states that are the numbers of people using a Section 125
employer unemployment payments. considering a Section 125 cafeteria plan plan when purchasing their health insurance.
requirement should draft that mandate very
Section 125 plans are an attractive option broadly. States should also avoid terms such The state’s experience thus far offers
to state policymakers because they are a as “employer group,” “employer-sponsored,” several lessons for other states, including
very low-cost way to make coverage more and “group plans.” States may simply choose the importance of frequent communication
affordable. (States with an income tax that is to refer to these plans as “plans available with employers to keep them engaged, the
tied to the federal tax forego a small amount under a cafeteria plan.” States may also need to target specific types of employers
of revenue.) This tax shelter has been wish to consider providing model cafeteria and individuals who have the most to benefit
available to small businesses for years, so plan materials and technical assistance to from Section 125 plans, the necessity of
the question is how to increase participation employers, as well as model COBRA notices. simplifying the administrative process, and
without: a) running afoul of other legal the importance of providing easily accessible,
issues; or b) creating an onerous burden Exchanges or Connectors that offer a selection jargon-free outreach materials that employers
on small businesses. States have made it of competing health coverage choices offer can give to workers.178
easier for small businesses to participate an advantage to states seeking to implement
by: a) conducting outreach and education; Section 125 plans. These exchanges help Other States Explore Section 125 Plans
b) helping them with forms and paperwork; minimize the potential that individually A number of other states have considered
c) offering mini-grants to help small purchased health insurance could be or are implementing Section 125 plans as
businesses set up plans; and d) combining a interpreted as an employer-sponsored plan. part of reform efforts aimed at reducing
requirement to use a Section 125 plan with the number of uninsured. For example,
a premium subsidy to make the package Massachusetts’ Experience Minnesota’s comprehensive health care
more attractive. For employees that take Massachusetts’ experience in implementing reform legislation, passed in 2008, includes
advantage of the Section 125 plan, savings Section 125 plans offers lessons to other a provision that employers with 11 or more
on health premiums are typically around states considering a similar approach. As full-time workers who do not offer group
25 percent, but vary based on income and part of Massachusetts’ comprehensive health insurance are required to establish
family size from a negative tax liability (for 2006 health reform law, employers with a Section 125 plan so that employees can
those with very low incomes who benefit 11 or more full-time workers are required purchase health insurance with pre-tax
from the Earned Income Tax Credit) to a 50 to establish Section 125 plans that enable dollars.179 Minnesota has taken an additional
percent savings on premiums. workers to purchase health insurance with step by establishing a $1 million fund to help
pre-tax dollars regardless of whether or not cover certain employer costs associated
Legal and Policy Issues177 employers offer coverage to their workers or with establishing Section 125 plans. Other
Several federal laws affect implementation contribute to the premium. Massachusetts examples of state approaches to Section 125
of these Section 125 plans. Because these also established the Commonwealth Health plan policies are described in Table 2.
plans qualify as “group health plans” under Insurance Connector Authority to help
the Internal Revenue Code, they appear small employers and individuals purchase
subject to employer notice provisions affordable insurance, and to help all
Policy
State
Applicable Firm Size/Type Section 125 Requirement
(Effective Date)
Maryland
Non-offering Maryland firms with 2 to 9 full-time employees To qualify for a premium subsidy, the employer must
(September participating in Maryland’s new subsidized coverage initiative establish a Section 125 premium conversion plan.
2008)
Missouri
Missouri firms offering fully-insured coverage with an Such employers are required to establish a Section 125
(to be
employer contribution plan.
determined)
Sources are:
http://www.cga.ct.gov/2007/rpt/2007-R-0690.htm; http://www.statecoverage.net/programs-indiana.htm; http://mhcc.maryland.gov/partnership/about.aspx;
http://www.mahealthconnector.org/portal/site/connector/; https://www.revisor.leg.state.mn.us/bin/bldbill.php?bill=ccrsf3780.html&session=ls85; http://
www.house.mo.gov/billtracking/bills071/billpdf/truly/HB0818T.PDF; http://www.rilin.state.ri.us/billtext07/senatetext07/s0448b.pdf
SCI would like to thank Lynn Quincy, Mathematica Policy Research, Inc., for her contributions to this table.
Cost containment
and quality improvement
prioritized by states
The rising cost of health care and new research about varia-
tion in quality of care have spurred many states to focus on
increasing value in their respective health care systems. States
want better value for their health care dollar, first in the public
sector as well as throughout the health care system. Increas-
ingly, states are considering coverage reform in tandem with
improved mechanisms for providing and paying for health care.
While much remains to be learned about promoting quality
health care at a fair price, some states are leading the way with
pilot projects and innovative programs that will inform future
federal and state reforms.
CMY
care, worse communication between Care Coordination and
K
In March 2008, AcademyHealth and n Medical Homes—Several states are information from both public and private
The Commonwealth Fund announced either working to define medical homes payers. The available information should
the selection of nine state teams to or implementing pilots to strengthen and permit better measurement of quality and
participate in the State Quality Improvement support primary care. effectiveness across health care systems.
Institute—an intensive effort to help states In addition, states are setting benchmarks
n Payment Reform—States are looking
plan and implement concrete action plans for quality care and publicly reporting the
to improve performance across targeted at their own purchasing strategies and performance of hospitals and providers.
quality indicators. The states selected building public/private partnerships to
formulate a coordinated plan for paying n Public Health and Prevention—As
for participation were Colorado, Kansas,
Massachusetts, Minnesota, New Mexico, for quality across payers. states consider the underlying causes
Ohio, Oregon, Vermont, and Washington. of rising health costs, they recognize
n States as Conveners—States are the impact of the rising level of disease
establishing formal groups to bring burden. Several states are working to
The states are currently implementing
stakeholders together to advance a divert funds upstream to prevent chronic
their action plans, which focus on making
health care quality agenda. conditions such as diabetes and heart
system-wide changes to the health care
delivery system. The participating states are disease by investing in public health and
n Data Collection and Transparency—
addressing the following: prevention.
Several states have assembled all-
payer databases that include all claims
n Durable medical equipment advisory group to make recommendations on – Promote quality of care by the use
of evidence-based, best practice
n Diabetic supplies
standards and patient-centered care.197
n Hospital care
The National Academy for State Health Wellness Initiatives choices—to prevent disease or to manage
Policy conducted a scan of state Medicaid About a quarter of the rising cost of chronic conditions once they develop.
programs and SCHIPs and found that 31 health care can be linked to the growing Despite sharp disagreements about the
states are working to advance medical home prevalence of “modifiable population risk appropriate solutions for expanding health
projects.198 Some other states are working factors,” such as obesity.200 Patient lifestyles care coverage and reforming health care
to establish medical homes throughout and health choices are one of the primary financing, there is widespread agreement—
their health care system regardless of payer. reasons for the nation’s growing disease both among health care experts and
States with multi-stakeholder initiatives burden and related increase in health care the general public201—on the value of
include Colorado, Louisiana, Maine, New costs. Doctors, employers, insurers, and promoting wellness and prevention.
Hampshire, Pennsylvania, Rhode Island, government agencies are looking for ways Many states have started implementing
and Vermont.199 to encourage Americans to make healthier
State of the States 57
wellness programs as part of their state to preventable medical errors, it became states to promote data collection and
employee health benefit plans. According clear that “business as usual” was no longer transparency.206
to a recent National Conference of State sufficient to protect patients; the time for
Legislatures survey, 14 states have adopted systemic reforms had arrived. The report n Setting a Common Vision—State
some type of wellness program for their state emphasized that, while all humans make governments have been able to set and
employees.202 Examples include mistakes, systems must be put in place articulate priorities that require data
the following: to protect against errors and promote sharing and transparency. Examples of
best-practice care. To encourage system the policy goals that transparency can
n Alabama recently announced that, as of improvements, particularly in hospitals, help achieve include improving chronic
January 2011, obese state employees will states have undertaken the following: disease care, reducing medical errors,
be required either to start getting fit or enabling patients to “comparison shop,”
pay an additional $25 per month toward n Hospitals are required to report serious and promoting quality improvements
their premiums. Employees who smoke adverse events, medical errors, or near among providers.
already pay an additional $24 per month. misses. Some states require these events
n Convening Key Stakeholders—States
to be made public while others keep the
n Arkansas state employees can earn up command the influence to bring
information confidential but encourage
to three days of vacation leave per year stakeholders to the table. Ongoing
the affected hospital to develop plans to
by participating in the Healthy Lifestyle conversations can lead to agreements on
prevent similar errors in the future.
program. data-sharing standards, common claims
n Collaborative groups have been processes, and payment incentives to
n Missouri operates an incentive program
established to share best practices and providers who deliver high-value care.
for employees, permitting them to save up
promote safe and effective care. To that
to $25 per month if they take a personal n Regulating Providers and Insurers—States
end, a number of states have established
health assessment and participate in a health can use their influence as regulators to
Patient Safety Centers.
improvement program. require insurers and providers to share
n A few states have joined Medicare and data. Such information can then be made
n Delaware, Montana, and West Virginia have
national health plans in refusing to pay for public and used as a tool for patients or
launched programs that offer screenings,
“never events” in their Medicaid and state shared only with providers and purchasers.
health coaching, fitness, and education to
employees health plans. “Never events” When providers see how they compare
help employees improve their health.
are errors such as wrong-site surgeries or with similar providers, they often take steps
n King County, Washington, operates a hospital-acquired infections that hospitals toward quality improvement. The hurdle
comprehensive health and wellness should be able to prevent.205 for states is that they do not have the
program that saved the county an authority to compel self-insured employers
estimated $40 million between 2007 or Medicare to share information.
and 2009.203 Price and Quality
Transparency n Leveraging State Purchasing Power—
During 2008, both New Hampshire and States can require data sharing,
Recognition is growing that it is time to engage
Florida passed legislation requiring insurance compliance with data standards, and
health care consumers in the effort to promote
brokers that conduct business in the state to price and cost transparency through
affordable, high-quality health care. An
work with health plans in the state to develop contracts in the Medicaid, SCHIP, and
increasing number of health plans have high
a lower-cost insurance product focusing state employee health benefit plans.
deductibles and copayments designed to steer
on prevention, primary care, and healthy
patients to high-value providers and services. The type of data collected by states must
lifestyle promotion. Both states followed the
However, in many cases, consumers lack reflect their plans for data use. Several
example set by Rhode Island, which passed
appropriate information for making informed states are leading the way in developing
similar legislation in 2007.204 For more
choices. For that reason, both federal and state all-payer claims databases. Such databases
information on these programs, see page 57.
policymakers have made data collection and are typically used for billing purposes so
price and quality transparency a priority. they are most useful for assessing costs, but
Patient Safety
they may also be used for making some
When the Institute of Medicine’s To A recent issue brief by the National quality and value determinations. States
Err is Human estimated that more than Governors Association Center for Best engaged in chronic care collaboratives
98,000 deaths per year are attributable Practices outlines four strategies used by
One example of a program designed to While the SMDC can be proud of its punished. That is why the state, as part
prevent hospital readmissions is the accomplishments, the Heart Failure of its comprehensive health reform efforts,
St. Mary’s/Duluth Clinic (SMDC) Health Program caused a major loss in revenue is developing a “baskets of care” payment
System Heart Failure Program. The national for the health system owing to significant model. Under this model, the state will
average for hospital readmissions after uncompensated costs for outpatient establish the parameters, and providers will
six months for patients with congestive services that were not covered, including set a price, for a series of baskets of care.
heart failure (CHF) is 40 to 50 percent. telescale and patient monitoring. In addition, Providers will be reimbursed this set price
Minnesota’s state average is 20 to 25 the hospital realized decreased revenue with for all care related to a specific diagnosis or
percent, and the SMDC’s CHF readmission fewer CHF patient admissions. chronic condition, or for episodes of care,
rate is 3 to 4 percent.212 The SMDC Partly as a result of this program Minnesota such as full joint replacements (including
achieved a low rate of readmissions recognized that its payment models in pre- and post-operative care). The goal of
and improvements in patient health and use through private payers, Medicaid, the approach is both to ensure that prices
satisfaction by delivering outpatient services and the Medicare program did not align and quality of services are transparent, but
that included treatment planning, disease with the achievement of the state goal also to encourage providers to use the most
and medication management services, of higher quality, lower cost health care. cost-effective, quality-improving methods to
use of telescales and telephonic oversight, Transformational reform cannot take place achieve health outcomes for their patients.
education for patients and relatives, and unless innovative, care-improving providers It will reward high quality, efficient care like
support groups. Overall costs for patient are rewarded for their efforts rather than that being provided at SMDC.
care were cut in half.213
looking forward
As we enter one of the most challenging economic times our country has faced in recent memory, it gives us
pause to consider that a new window of opportunity may be opening with respect to health reform. Despite all
the bad economic news and worsening forecasts for the coming year, there is a tinge of optimism that comes
with one of the most popular words this year—change.
Will there be national health reform under During the next few years, the health stream or whether health care leaders will
the Obama administration? The answer reform debate will place an enormous continue to push for reform and support
varies depending on who you ask. Many spotlight on the issues surrounding health those efforts.
think that the economic crisis and its coverage and systems reform. It is our hope
widespread impact—especially the on health that this important discussion will also The challenges are enormous and
care system, the uninsured and state budgets include the role of states and their potential history tells us that health care coverage
– make the case for, not against, reform. They contributions to national reform. While expansions—and overall health reform—
believe a crisis warrants action. federal action could range from a stalemate are difficult to enact and sustain. Yet it is
to sweeping changes, it is unclear how these possible that the size of the problem and
While many hoped the passage of changes would impact individual states. the focus of the American people on the
comprehensive reforms would continue Regardless, states are likely to continue to issue will lead to positive changes, at either
to define state health reform in 2008, the play a critical role in meeting the nation’s or both the federal or state level.
year brought more struggles than successes. health care needs.
The recession has already caused profound The cost of inaction continues to mount,
dismay in state capitols around the country In the meantime, states find themselves in a both in lives lost and costs to the system. It
and we predict that 2009 is likely to bring precarious position: should they wait for a is our hope that 2009 will the be year the
further retrenchment. States have weathered federal solution to their health care problems country turns its attention to health care
tough economies in the past, and they will or continue to forge policy innovations and finds real, workable solutions to the
build upon those lessons to mitigate the within the domains over which they have problems of access, cost, and quality. We
impact on their most vulnerable populations. control? Several states have been working for hope this can be accomplished through a
Yet difficult decisions will have to be made. years on a policy-development process and partnership between states and the federal
In some circumstances, states are likely to a sequential approach to health reform. It government that will enable each to use
consider and implement cuts to public health is unclear whether economic pressures will their respective strengths to improve the
care programs. force these states to halt their processes mid- health and health care of all Americans.
tel: 202.292.6700
fax: 202.292.6800
email: sci@academyhealth.org
web: www.statecoverage.net