Medicaid Managed Care: Rising to the
Challenge
By Briana Gilmore,
Public Policy and Advocacy Director, NYAPRS
During a recent forum where policy and
business leaders met to publically discuss health care reform, Arthur
Gianelli from Mt. Sinai hospital said that for the first time
“Medicaid is at the vanguard of delivery system reform.” This
statement is a sign of a big change in thinking as Medicaid becomes a
new beacon of progressive change in New York State (NYS) and across
the nation. The current expansions and experiments in our Medicaid
program are driving change at every level: from member satisfaction,
to service integration, to oversight of insurance companies and to
quality incentives.
These changes have been in the
spotlight since Governor Cuomo implemented the Medicaid Redesign Team
in 2011. The Redesign Team started to engage experts—including
consumer advocates—in a process to transform our expensive but
low-quality service system.
An article I wrote in the spring
edition of NYC Voices introduced integrated Medicaid Managed
Care for people with behavioral health needs and a special option
called a Health and Recovery Plan (“HARP”). In spring 2015 in
NYC, all adult Medicaid recipients who are not dually enrolled in
Medicare will start receiving mental health and addiction services
through their chosen insurance plan. Members with greater behavioral
health needs will be enrolled in a HARP, and will have a personal
assessment to determine eligibility for recovery services.
Several challenges remain before the
state can successfully implement HARPs and integrated managed care
for over seven hundred thousand Medicaid beneficiaries who use
behavioral health services. The greatest challenge is arranging
effective care management for every HARP recipient.
Care management is the backbone of NYS’
plans for Medicaid redesign, and Health Homes were implemented
statewide to meet the challenge of coordinating care for people with
mental, substance, and physical health needs. The implementation of
Health Home care management has met challenges since the beginning,
including low reimbursement rates for care managers and high case
loads. Many Health Home beneficiaries have needs that include
homelessness, legal implications of criminal justice involvement, and
complex health needs that make behavioral health problems harder to
manage.
Care managers have worked hard and in
some instances have offered successful coordination, but in others
have not been able to effectively assist individuals with all of
these needs.
The current expectation is that Health
Home care managers will provide a detailed assessment for HARP
beneficiaries that can translate into a plan of care that may include
an integrated set of recovery services. The plan of care will have to
be translated to the HARP insurance plan and then coordinated amongst
a network of service providers.
Achieving this for all HARP recipients
in a timely way will be very complicated, particularly because the
Office of Mental Health (OMH) and the Office of Alcoholism and
Substance Abuse Services (OASAS) are estimating eighty thousand NYC
residents will be eligible for these assessments as soon as the plan
is implemented. The complexities around care management must be
negotiated between state agencies and HARP plans, in recognition of
the barriers within Health Home implementation and the needs of
Medicaid recipients.
NYAPRS has been advocating for the
recovery-oriented services offered in a HARP—like peer supports,
crisis diversion, family caregiver training, non-medical
transportation, and supported employment and education—for years,
recognizing their ability to keep people leading a full life in the
community. The management of these services by insurance companies
will be a new approach to behavioral health delivery.
Managed Care Organizations offering
HARP services were evaluated with strict criteria from OMH, OASAS,
and the Department of Health. They have to meet readiness standards
and a feedback process to the state by which they will be evaluated.
But they also have to provide access to a range of new services that
have never been offered on such a large scale before, and understand
social outcomes like employment and education.
The challenges around recovery services
aren’t only at the level of the insurance company, but through
interactions between provider and beneficiary. “Recovery-orientation”
is easy enough to say, but entails far more than adding a new list of
services to a program. Training on best practice models and
continuous quality assurance in community behavioral health has
previously been the responsibility of OMH and OASAS. They may take on
this role to a greater degree in our transformed system, or may rely
on HARPs to ensure quality service delivery.
In order to meet access needs, new
rehabilitation services including crisis respite, supported
education, and psychosocial rehab will be provided by some
“traditional providers” like clinics. The ability for these
providers to understand the nuances of a recovery journey, support
that journey effectively, and offer real change to our community
members is a future that seems far away from our current delivery
system. The system as a whole must create expectations for
standardization and quality improvement and then commit to meeting
that challenge.
Many genuine and hard-working people
who promote recovery are guiding this transformation within state
agencies, community programs, and HARP insurance plans, but rising
above the complexities and achieving the challenge of
recovery-oriented service delivery will be reliant on dedicated
partnerships. The protection of Medicaid beneficiary service access
and rights throughout this process must be maintained, without
allowing the possible pitfalls of change hinder true progress in our
mental health and addiction services.
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