As Craig Garthwaite and Timothy Layton point out: “Originally a small, inexpensive safety-net program, Medicaid has grown into a major national health-insurance provider, covering nearly one in four Americans and more people than the public health insurance programs of the United Kingdom, Germany, or France.” They review the program and offer some recommendations in “Coverage Isn’t Care: An Abundance Agenda for Medicaid” (forthcoming in Advancing America’s Prosperity, edited by Melissa S. Kearney and Luke Pardue, published by the Aspen Economic Strategy Group.
I would add that whether you favor government-run national health insurance or oppose it, Medicaid is a major example of such a program in actual operation, and thus worthy of your attention. A few facts:
- Total Medicaid spending by federal and state governments was $880 billion in 2024. “Medicaid is jointly financed by state and federal tax dollars while being designed and administered by each state. This setup leads to remarkable variation in the program’s structure across the country. … The program’s growth in size and scale means that it now comprises a substantial fraction of state budgets, with the average state spending almost one-third of its budget on Medicaid …” Indeed, a certain number of proposed changes to Medicaid from federal-level politicians focus on reducing federal spending by shifting a greater share of Medicaid spending to states.
- Medicaid ” has expanded gradually from a program of categorical eligibility, restricted to specific low-income groups (such as pregnant women or the disabled), to—with the passing of the Affordable Care Act (ACA)—a broad-based entitlement for nearly all low-income adults.” Medicaid covered about 20 million people during its first two decades, up through the 1980s, but a series of expansions since the 1990s than has roughly quadrupled Medicaid enrollment in the last three decades, reaching 78.5 million by December 2024.
- “This growth has been coupled with a structural shift, with roughly 75 percent of beneficiaries now receiving care through private managed-care organizations rather than government-operated insurance programs. These firms include familiar names from other health insurance markets such as United, Aetna, Humana, and Centene, making the modern version of Medicaid quite different from the classic perception of a safety-net healthcare program run and operated by legions of government bureaucrats.”
- “Medicaid bothpays for 41 percent of births in the US and is the largest single payer for long-term care services in the US. It is the nation’s only true cradle-to-grave insurer. The medical requirements of these many different types of beneficiaries are meaningfully different, and it is therefore likely that the optimal insurance design differs, perhaps greatly, across these groups. Despite this fact, the program largely takes a one-size-fits-all approach and attempts to provide a single comprehensive set of benefits to all enrollees.”
- “Medicaid involves relatively little expenditure per enrollee. Medicaid accomplishes this feat by paying very low rates to all medical providers. This frugality does not come without meaningful consequences for enrollees. Many providers simply refuse to accept Medicaid enrollees. Others consider treating these patients as a form of charity care. For example, many hospitals declare `underpayments’ from Medicaid as part of their contribution to the public good. … Beyond payment rates, state Medicaid programs also often make it fairly difficult for providers to actually get paid. Data suggests that fee-for-service (FFS) Medicaid is the biggest denier of bills from providers, with a “denial rate 17.8 percentage points higher than fee-for-service Medicare” (Gottlieb et al. 2018). Medicaid managed care is the second-most likely to deny, denying just under 10 percent of bills and challenging around 13 percent. Both FFS an managed-care Medicaid also have much longer times to payment, making working with Medicaid a much bigger hassle for providers than working with Medicare or commercial insurers.”
This last point is a central focus of the proposals offered by Garthwaite and Layton. As they say in their title, being covered by Medicaid is not the same as receiving actual health care through that coverage. On the subject of Medicaid reform, they write:
The current [Medicaid] program is defined by a stark economic tension—it promises access to the mainstream medical system while only providing the funding that can support a two-tiered one. This contradiction was manageable when Medicaid was a small program, but now that it covers a quarter of Americans, there is potential for an access crisis. Policymakers must therefore confront a fundamental choice: Continue to chase the mirage of equal access, or build a system that delivers abundant care to all Medicaid beneficiaries within its budget. We argue for the latter. An honest assessment reveals that an implicit—and dysfunctional—two-tiered system is already the reality. …
This effort should begin by explicitly acknowledging the existence of an implicit two-tiered system whereby Medicaid beneficiaries have coverage but lack access to high-quality medical care. Productive reforms should focus on a redesigned program that fosters an abumdant supply of providers of basic care for the Medicaid tier. Our proposal focuses on targeted regulatory relief and the integration of new artificial-intelligence technologies (AI) to create lower-cost, sustainable business models for providers who primarily serve Medicaid patients, with the goal of ensuring abundant access to basic care. While some might argue that these types of reforms provide a lower standard of care for low-income Americans and confine them to lower-quality healthcare services, we emphasize that the goal is not to diminish the quality of care received by Medicaid enrollees. Instead, our proposals aim to help the large number of Medicaid patients who currently have access to no care (or very limited care) under the current system to have easy and abundant access to (at least) basic healthcare services.
In that spirit, Garthwaite and Layton argue for allowing the immigration of additional internationally-trained health care providers to serve Medicaid patients, allowing intermediate-level health care practitioners like nurse practitioners and physician assistants to have greater autonomy in providing certain kinds of care, and to develop methods for AI-augmented care. They write: “For a beneficiary whose alternative is no access to care, the use of a new, well-designed technology is a clear improvement.” Frankly, I’d be happy to see these kind of reforms implemented across the entire US health care system. But using them in Medicaid would at least be a start.
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