By Richard J. Brockman and Angie Cameron
A. Background:
Alabama recently
passed into law two separate bills to develop at-risk provider-driven Medicaid
care management programs. The first bill, passed in 2013, created the Regional
Care Organization (RCO) system. See
Alabama Code §
22-6-150 et seq. This legislation was
developed upon the recommendation of the Medicaid Study Commission, which was
created by the Governor who appointed members representing a range of
providers, insurers, consumer advocacy groups, and state government officials.
Under the RCO legislation,
the state is to be divided into not less than five or more than eight regions.
Each region is required to have a sufficient Medicaid population to support at
least 2 RCOs, although there is no requirement that there be more than one RCO
in a given region. By rule, the Alabama Medicaid Agency (Medicaid) established
five regions. The legislation contemplates that providers in each region would
convene to form and fund the RCOs. To the extent practical, the regions were
designed to accommodate historical referral patterns, while having sufficient
targeted Medicaid populations to support two RCOs. Currently there are eleven
probationary RCOs. Three probationary RCOs are in the north region, and two
probationary RCOs are in each of the other four regions. Although the
legislation provides that all Medicaid beneficiaries would be assigned to a
RCO, it also permits Medicaid to carve-out classes of beneficiaries. The RCO
legislation further provides that long term care (LTC) services would be
studied and continue to be administered under the current Medicaid system
through October 1, 2016, the date the RCOs are to be operational. "Long
term care services" is defined in the RCO statute as "…Medicaid
funded nursing facility services, home and community based support services,
and such other long-term care services as Medicaid may determine by
rule…." The RCO legislation definition includes intermediate care
facilities for the developmentally disabled (ICF-DDs).
The second bill,
passed on May 28, 2015, created the Integrated Care Network (ICN) system. The
ICN legislation authorizes a provider-driven program for the Medicaid LTC
population that would function similar to the RCOs. This bill was written based
on the recommendations made by the Medicaid LTC Study Task Force commissioned
in the RCO legislation. Similar to the Medicaid Study Commission, the LTC Study
Task Force consisted of representatives from an array of providers, consumer
groups and government officials. The task force received reports from various of
its members, as well as persons and groups outside its membership.
The ICN legislation
contemplates that providers would convene to form and fund the ICNs and that
Medicaid would assign LTC beneficiaries to the ICNs. In addition to care
managing Medicaid beneficiaries and their benefits, the legislation permits
ICNs to coordinate with other provider programs. The ICN program is to be
operational no later than October 1, 2018.
This bill further provides that until the ICN program is operational,
LTC services would continue to be administered by Medicaid under its current
program.
The RCO and ICN
entities will each receive an actuarially determined monthly per member-per
month (PMPM) payment from Medicaid and in return (i) case manage assigned
Medicaid beneficiaries and (ii) process claims and pay providers for Medicaid
covered goods and services provided to its assigned Medicaid beneficiaries.
RCOs and ICNs are deemed to be "at-risk" entities because, in
accepting the actuarially determined PMPM payment, each (i) assumes all
responsibility for care managing, claims processing, and paying Medicaid
covered claims for its assigned Medicaid beneficiaries, and (ii) must make up
any short-falls.
Medicaid has applied
to the Centers for Medicare and Medicaid Services, Department of Health and
Human Services (CMS) for a section 1115 waiver for the RCOs. (States may apply
to CMS for waivers from certain federal Medicaid state plan requirements. These
waiver applications refer to specific sections of the federal Medicaid statute).
It is contemplated that the ICN program will either be added to that section
1115 waiver application or there will be a separate section 1115 waiver filing,
as well as a filing to apply for a section 1915 waiver for the home care
portions of the ICN program.
B. Comparison of the
Features in the RCO and ICN Legislation:
1. Formation: Collaborators
(e.g., providers, suppliers, and
investors) can apply to form a RCO or ICN, and based on criteria, Medicaid can
confer RCO or ICN status on qualified applicants.
2. Boards: Each
RCO and each ICN will have a 20-member board consisting of (i) 12-members
representing at-risk members, and (ii) 8 members who are not-at risk. The
at-risk members either put up capital or agree to provide Medicaid services even
if the RCO or ICN has no funds to pay for services. Each RCO board must meet
certain prescribed composition requirements for its non-at-risk membership.
Other than the number of at risk and non-at-risk representatives, the ICN
legislation is silent on composition. For either a RCO or ICN, a majority of a
board's at-risk members cannot be from a single provider, unless that RCO or
ICN has only one at risk provider. Each RCO and each ICN also must have a
citizens' advisory committee. There are differences in the citizens' advisory
committee compositions. For instance, an ICN must have representatives from
Disabilities Leadership Coalition of Alabama or Alabama ARISE, the Alabama
Chapter of AARP, Alabama Disability Advocacy Program, the Disability Rights and
Resources, and ARC of Alabama. The RCOs must have representatives from
Disabilities Leadership Coalition of Alabama or Alabama ARISE. Each must have
representation of Medicaid beneficiaries. All boards must meet the population
diversity make-up of the region served. There are prescribed minimum
frequencies the boards must meet, and Medicaid reserves approval over all board
activities.
3. Anti-trust and
Insurance Exemptions: Each statute (i) provides for Medicaid "state
action" supervision over the collaboration of conveners seeking to form a
RCO or an ICN, (ii) gives express exemptions from state anti-trust provisions,
and (iii) grants an exemption from state department of insurance requirements
and supervision.
4. Medicaid
Supervision Over Governance: Medicaid has control over approving RCO and
ICN charters, bylaws, and board members (including filling board vacancies left
unfilled for more than three months).
5. Quality
Assurance: Medicaid appointed Quality
Assurance (QA) committees will review patient outcomes, costs, and operational
results of each ICN and RCO. Negative QA findings can lead to discipline or
termination of a non-compliant RCO or ICN. The composition of the QA committee
for RCOs requires that at least 60 percent of the members be physicians serving
RCO beneficiaries. The ICN statute leaves the ICN QA committee's composition to
rule making.
6. Appeals: Each
statute has a prescribed administrative appeals process for providers and
beneficiaries, and RCOs and ICNs are also afforded a process to appeal adverse
Medicaid decisions.
7. Per Member-Per
Month Payments: Based on actuarially
derived calculations for the population to be served, Medicaid will pay each
RCO and each ICN a separately calculated PMPM payment, and each RCO and ICN is
responsible for (i) case managing its members, (ii) processing and paying
providers and suppliers for Medicaid goods and services provided to its
respective members, and (iii) making-up any shortfalls.
8. Scope of
Services: Each RCO and ICN is responsible to pay for all covered Medicaid
services provided to each beneficiary assigned to it. For example, in the case
of a beneficiary who is a nursing facility resident, the ICN, in addition to
paying for that beneficiary's Medicaid covered nursing facility care, is
responsible for Medicaid covered physician, hospital, pharmacy, or other
covered Medicaid services provided to that beneficiary. A RCO likewise is
responsible for all Medicaid services required for its beneficiaries regardless
of provider or setting.
9. Any Willing
Provider and Reimbursement: Each RCO and ICN must contract with any willing
Medicaid qualified provider and reimbursement to providers cannot be less than
the current Medicaid payment regime. Medicaid sets minimum payment levels.
10. Operational
Capabilities: Each RCO and ICN must
demonstrate the ability to (i) attract a provider network, (ii) case manage
beneficiaries, and (iii) process claims.
These functions may be subcontracted.
11. Beneficiary
Assignment. Unless a beneficiary is in a carved-out class, each Medicaid
beneficiary must be assigned to either a RCO or ICN, but no beneficiary can be
assigned to both a RCO and an ICN.
C. Summary of Differences in RCO & ICN Legislation:
1. Application and
Selection Process:
a) RCO applicants must first pass
through a phased probational period and be fully operational by October 1,
2016. Under this phased system of evaluation, to receive full status, a RCO
applicant must: (i) by October 1, 2014, have organized and established an
approved board and received probational status; (ii) by April 1, 2015, have
developed a provider network; (iii) by October 1, 2015, show solvency is met;
and (iv) by October 1, 2016, be certified as a fully operational RCO. To be
"fully operational," the RCO must meet the first three timeline
criteria, as well as demonstrate the ability to case manage beneficiaries, and
process, manage, and pay claims.
b) ICN applicants will be selected
through a competitive bid or procurement process as follows: (i) by April 1, 2017, Medicaid must establish
the selection criteria and process; (ii) by April 1, 2018, applications to be
an ICN must be submitted; and (iii) by October 1, 2018, each selected ICN must
be fully operational by showing it (A) has organized and established an
approved board, (B) has developed a provider network, (C) meets its solvency
requirements, and (D) possesses the ability to case manage beneficiaries, and
process, manage, and pay claims.
Each
RCO and ICN also should have a functioning citizens' advisory committee meeting
its respective legislative composition directive.
2. Service Area and
Population to be Served:
a) Each
RCO serves certain assigned Medicaid beneficiaries living within a defined
region of the state. Medicaid determines which classes of beneficiaries the RCO
will serve, although the LTC population is reserved by statute for the ICNs.
b) The ICN legislation authorizes
one or more ICNs. There are no defined boundaries for ICNs, but Medicaid could
by regulation define areas to be served by ICNs, or designate that the ICNs be
statewide. The number of ICNs will be determined by Medicaid. ICNs will serve
those Medicaid beneficiaries receiving services by either a nursing facility or
home and community based waiver program.
3. Capital and Reserve
requirements:
a) Each RCO must have $2.5 million
in capital and cash reserves equal to 25 percent of one month's claims. A RCO
can meet its reserve requirements by posting a surety bond. No assets of the
RCO can be pledged to secure the bond.
b) Each ICN must meet solvency
requirements set by Medicaid through rule making. An ICN can post an
irrevocable letter of credit (issued by a state or federally chartered bank
with at least $4 billion in assets) to secure its reserve requirements. No
assets of the ICN can be used to secure the irrevocable letter of credit.
4. Alternatives:
a) If no RCO manifests in any
designated region, then Medicaid may, but is not required to, contract with an
alternative care provider, which could be a commercial managed care company or
some other type of Medicaid care management system.
b) If no ICN manifests, Medicaid
must continue administering the LTC program under its current system.
5. Beneficiary
Options.
a) RCO designated beneficiaries are
to be passively enrolled by Medicaid into the RCOs. If there is more than one
RCO in a region, the beneficiary may choose between the RCOs. If the
beneficiary does not choose a RCO, Medicaid will assign
the person to a RCO. Medicaid may limit the circumstances under which a
Medicaid beneficiary may change care organizations. It does not appear as
though a beneficiary may opt out of the RCO.
b) ICN designated beneficiaries are
to be passively enrolled by Medicaid into the ICN, but if Medicaid determines
there should be only a single statewide ICN, the legislation suggests that
Medicaid could provide beneficiary choice by permitting beneficiaries to opt
out and be administered by Medicaid.
6. Program
integration with other health plans and payors:
a) RCO legislation provides that the
RCOs serve only Medicaid beneficiaries, and is silent on program integration.
b) ICN legislation provides that in
addition to serving Medicaid beneficiaries, the ICN can coordinate care through
an affiliation with other programs. It further describes the class of Medicaid
beneficiaries to be assigned to an ICN as those eligible for nursing facility
services or home and community based waiver programs, and those Medicaid
beneficiaries who are also eligible for Medicare.
7. Contracts:
a) Initial RCO contracts are for three
years, with options for two one-year extensions. If the RCO performs, Medicaid
may enter into additional multi-year contracts.
b) Initial ICN contracts are for two
years, with options for three one-year extensions. If the ICN performs, Medicaid may enter into
additional multi-year contracts.
A contract for either
a RCO or ICN may be terminated by Medicaid for non-performance, subject to
administrative appeals.
D. Conclusion:
Under the RCO
and ICN programs, Alabama providers (with consumer input through non-at-risk
board membership) are given the unique opportunity to develop and apply
innovative and creative methods for case managing assigned Medicaid
beneficiaries through collaborating provider networks. Establishing the RCOs
and ICNs will require significant investment by the provider community. While
these are difficult undertakings, Alabama's Governor and Legislature have
deemed that this course has the potential to not only create tangible Medicaid
program savings by requiring the RCOs and ICNs to promote care collaboration
among providers, thereby bending the growth curve, but also, through this
system of care collaboration, develop better access to needed medical treatment
and better quality of care and life for its citizens who are Medicaid
beneficiaries. It is anticipated that these provider collaborating networks
will reach into other payor classes, such as Medicare, to innovate better care
coordination throughout the care continuum and permitting these benefits to
have wider application.
Richard Brockman is Counsel with Burr & Forman LLP. He is also the
current President of the Alabama Nursing Home Association. Richard served on the Governor's Medicaid
Study Commission during the development of the RCO legislation and worked with
the Medicaid LTC Task Force in the development of the ICN legislation.
Angie Cameron is a Partner with Burr & Forman LLP practicing in the
firm's healthcare group.