Randomized Trial Shows Healthcare Payment Reform Has Equal-Sized Spillover Effects on Patients Not INAUGURAL ARTICLE Targeted by Reform

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Randomized Trial Shows Healthcare Payment Reform Has Equal-Sized Spillover Effects on Patients Not INAUGURAL ARTICLE Targeted by Reform Randomized trial shows healthcare payment reform has equal-sized spillover effects on patients not INAUGURAL ARTICLE targeted by reform Liran Einava,b, Amy Finkelsteinb,c,1, Yunan Jid, and Neale Mahoneya,b aDepartment of Economics, Stanford University, Stanford, CA 94305; bNational Bureau of Economic Research, Cambridge, MA 02138; cDepartment of Economics, Massachusetts Institute of Technology, Cambridge, MA 02139; and dGraduate School of Arts and Sciences, Harvard University, Cambridge, MA 02138 This contribution is part of the special series of Inaugural Articles by members of the National Academy of Sciences elected in 2018. Contributed by Amy Finkelstein, June 9, 2020 (sent for review March 16, 2020; reviewed by Jeffrey Clemens and Craig Garthwaite) Changes in the way health insurers pay healthcare providers may group, Medicare continues to reimburse providers under the sta- not only directly affect the insurer’s patients but may also affect tus quo fee-for-service system in which each provider receives a patients covered by other insurers. We provide evidence of such separate payment based on the amount of care delivered. spillovers in the context of a nationwide Medicare bundled pay- In the first 2 years of the program, about 400,000 patients and ment reform that was implemented in some areas of the country 1,500 hospitals were assigned to the treatment or control group. but not in others, via random assignment. We estimate that the Prior work has examined the direct impact of this bundled pay- payment reform—which targeted traditional Medicare patients— ment reform on targeted TM patients and estimated a ∼3% had effects of similar magnitude on the healthcare experience of decline in TM spending, driven predominantly by reduced dis- nontargeted, privately insured Medicare Advantage patients. We charges from the hospital to postacute care facilities, particularly discuss the implications of these findings for estimates of the im- skilled nursing facilities (1–5). pact of healthcare payment reforms and more generally for the We take advantage of the random assignment to study the design of healthcare policy. spillover impacts of this payment reform on patients who are covered by private insurers through the Medicare Advantage ECONOMIC SCIENCES bundled payments | healthcare | randomized controlled trial | spillover (MA) program, which provides private insurance coverage in lieu of TM to about one-third of Medicare-eligible enrollees. Our n the US healthcare system, most doctors and hospitals treat work builds on Wilcock et al. (6) and Meyers et al. (7), who were Ipatients that are covered by multiple health insurers. This the first to document spillovers of this program onto MA. We raises the possibility that a change in the way one health insurer enrich this analysis by examining heterogeneity across hospitals pays healthcare providers may not only affect the healthcare and by considering implications for healthcare payment reform. received by its own patients but could also affect the healthcare We study the direct effect on TM patients and spillover effects on received by patients covered by other insurers. Such spillovers MA patients using data from CMS. These data provide compre- could potentially have the same or opposite sign as the direct hensive claims-level information for TM patients and encounter- effect of the payment reform. To the extent they exist, spillovers level information for MA patients. Although not as detailed, the have implications for estimates of the impact of healthcare payment reforms and for the design of healthcare payment Significance policy. Yet, credibly estimating spillovers is challenging. In the ca- In the US healthcare system, most medical providers treat pa- nonical research design, which compares outcomes for directly tients covered by multiple insurers. As a result, changes in the targeted patients to outcomes for nontargeted patients, spill- way one health insurer pays for medical services could, by overs cannot be identified. When a research design does permit changing provider behavior, spill over onto patients covered by the identification of spillovers, a skeptical reader may interpret other insurers. In this article, we present evidence of such effects on nontargeted patients as evidence of a flawed research spillovers in the context of a large Medicare payment reform design, rather than evidence of spillovers. For good reason, that was implemented in some areas of the country but not in therefore, the bar for credibly identifying spillovers is high. others, via random assignment. We show that the payment In this article, we estimate spillovers from a Medicare payment reform had effects of similar magnitude on both the directly reform for hip and knee replacement that directly affected patients covered patients and on patients covered by other insurers. in the traditional Medicare (TM) program. This program provides We discuss implications of these findings for our interpre- an ideal setting to study spillovers because it was implemented via tation of existing estimates as well as for the design of random assignment in some areas of the country and not others, healthcare policy. and because it targets enough patients to potentially affect non- targeted patients as well. Author contributions: L.E., A.F., Y.J., and N.M. designed research, performed research, In particular, the program, known as Comprehensive Care for analyzed data, and wrote the paper. Joint Replacement (CJR), was designed and implemented in 2016 Reviewers: J.C., University of California San Diego; and C.G., Northwestern University. by the Centers for Medicare and Medicaid Services (CMS) as a The authors declare no competing interest. nationwide randomized trial. Randomization took place at the This open access article is distributed under Creative Commons Attribution-NonCommercial- metropolitan statistical area (MSA) level, with 67 MSAs randomly NoDerivatives License 4.0 (CC BY-NC-ND). assigned to treatment and 104 MSAs randomly assigned to con- See Profile on page 18909. trol. In the treatment group, Medicare makes a single bundled 1To whom correspondence may be addressed. Email: [email protected]. payment to hospitals for all services related to the episode of care, This article contains supporting information online at https://www.pnas.org/lookup/suppl/ including the initial hospital stay and subsequent care by other doi:10.1073/pnas.2004759117/-/DCSupplemental. medical providers during the recovery period. In the control First published July 27, 2020. www.pnas.org/cgi/doi/10.1073/pnas.2004759117 PNAS | August 11, 2020 | vol. 117 | no. 32 | 18939–18947 Downloaded by guest on September 25, 2021 data on MA patients still allow us to quantify spillovers along sev- Setting, Data, and Framework eral important margins. Setting. We study a payment reform in the TM program. Medi- Our results reveal spillover effects of the same sign and care, the US public health insurance program for the elderly and magnitude as the direct effects. For nontargeted MA patients, disabled, had about 60 million enrollees and $731 billion in an- we estimate that the payment reform reduces discharges to nual spending in 2018 (20, 21). About two-thirds of these postacute care facilities, such as skilled nursing facilities, by a enrollees are covered by the TM program, which offers a publicly statistically significant 3.3 percentage points, or about 12%. This administered insurance product. The remaining one-third of average spillover effect is remarkably similar to the average di- Medicare-eligible enrollees opt out of TM and enroll in the MA rect effect on TM patients. We also estimate a strong, positive program, where they are covered by private insurance plans. correlation between the direct effects and the spillover effects at Private insurers in MA are paid a fixed (risk-adjusted) monthly the hospital level: Hospitals with larger direct effects on the amount by Medicare for each beneficiary they enroll (21). discharge destination for TM patients also have larger spillover Under TM, providers have been paid primarily on a fee-for- effects on the discharge destination for MA patients. The effects— service basis, in which providers are reimbursed based on claims both direct and indirect—tend to be larger for hospitals with a submitted for medical services. For instance, for a patient un- large number of directly affected patients and for higher-quality dergoing hip replacement, Medicare would make separate pay- hospitals. ments to the hospital for the initial hospital stay, to the surgeon Our findings have implications for the optimal design of for performing the procedure and for each postoperative visit, to healthcare payment policies. When health insurers separately the skilled nursing facility for postacute care, and to the equip- ment owner for the rental of a wheelchair during the recovery design payment policies, they may not take into account the period. Moreover, within most of these categories, the payment spillovers to other patients. As a result, the separately designed would depend on the specific services provided.* payment policies may jointly result in suboptimal incentives for A key, well-appreciated concern with such fee-for-service healthcare providers, even when the policies are individually payments is that they may encourage providers to deliver care optimal. In other words, this is a classic case of what economists that has low or little value to the patient. Patients have to pay call externalities. only a small
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