CLRS – September 2004 CVVCI California Workers’ Compensation Reform Public Policy Research Implications CLRS September 14, 2004 California Workers’ Compensation Institute www.cwci.org Copyright 2004, CWCI All rights reserved CLRS – September 2004 CWCI’s research: • Focuses on the real costs in the system • Helps establish consensus about problems • Assists in establishing an agenda for improving the system Specific areas of research: • • • • • • • • System-wide cost drivers Medical utilization Claims adjudication Fraud & abuse Litigation VR PD Reform Activities Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 California Workers’ Compensation Reform “Self-Executing” Changes --AB 749 (2003) SB 227/228/899 (2004) -• Removal of PTP Presumption of Correctness • OMFS & Medicare & 5% Reduction • Outpatient Surgery Facility Fee Schedule • ACOEM • 2nd Opinion for Back Surgeries • Utilization Review • 1st Medical Pay • Apportionment • Expansion of ADR • 2-yr Cap on TD Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 California Workers’ Compensation Reform Agenda Part 1: Medical Utilization Part 2: Benefit Delivery Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 ACOEM & The California Workers’ Compensation System Areas of Research – Part 1: Medical Utilization 1. Actual – to – ACOEM utilization comparisons 2. Incremental effects of medical services beyond ACOEM recommended levels Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 CVVCI Estimated Ultimate Medical Per Indemnity Claim (Reflecting the Impact of AB 227 & SB 228) 18% Reduction $40,000 $30,000 $20,000 $10,000 $0 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 Before 9,885 10,619 11,746 13,137 15,230 18,385 21,588 24,519 28,673 35,201 9,316 9,381 10,978 12,706 14,105 17,015 19,871 21,533 25,532 28,736 30,804 After Results as of 12/02 & 12/03 Source: WCIRB Copyright 2004, CWCI All rights reserved CLRS – September 2004 Workers’ Comp Public Policy—Legislative History California Labor Code, Section 4600 Provide all treatment “reasonably necessary to cure and relieve from the effects of injury,” Presumption of Correctness (1994) Confers a presumption of correctness to the injured worker’s primary treating physician; intended to neutralize the multiple and conflicting medicallegal evaluation reports Minniear Decision (1996) The injured worker’s primary treating physician’s presumption expands beyond medical-legal evaluation to encompass “all issues” including clinical treatment. Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 CVC C V V V ICI The Effect of 1993 – 1996 Legislative Reform Activity $200 Medical Treatment Average Monthly Paid (All Professional Fees) 76% Increase $175 $150 $125 $100 Source: CWCI 2003 Copyright 2004, CWCI All rights reserved Ja n99 Ju n99 Ja n98 Ju n98 Ja n97 Ju n97 Ja n96 Ju n96 Ja n95 Ju n95 Ja n94 Ju n94 $75 CLRS – September 2004 CVVCI Medical Utilization The Effect of 1993 – 1996 Legislative Reform Activity More Open Claims 32.8% Longer Claim Duration 49.0% Residual Effect 0.5% Source: CWCI 2003 Copyright 2004, CWCI All rights reserved Indemnity 0.5% Case-mix 1.1% Increased Litigation 16.1% CLRS – September 2004 CVVCI How Safe Is Health Care? (Leape 2002) DANGEROUS ULTRA-SAFE (>1/1000) Total lives lost per year 100,000 (<1/100K) HealthCare Driving 10,000 1,000 Scheduled Airlines 100 Mountain Climbing 10 Chemical Manufacturing Bungee Jumping European Railroads Chartered Flights Nuclear Power 1 1 10 100 1,000 10,000 100,000 Number of encounters for each fatality Copyright 2004, CWCI All rights reserved 1,000,000 10,000,000 CLRS – September 2004 Utilization Review as Part of System Reform: --AB 749 (2003) SB 227/228/899 (2004) -• New emphasis on evidence-based medicine • New definition of “reasonable care” to cure & relieve • American College of Occupational & Environmental Medicine (ACOEM ) • Presumption of Correctness • DWC to review guidelines Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 CVVCI ACOEM Guidelines • Provide medical providers: – Information on “best practices”; i.e., what is known to work – Reflect the state of the science – Need to assess applicability to workers’ compensation Copyright 2004, CWCI All rights reserved CLRS – September 2004 ACOEM: Impact on Workers’ Comp System Claim Sample: • Data compiled from ICIS database • DOI Jan 1997 – Dec 2000; benefits valued at June 2002 • ACOEM treatment category assigned • Actual utilization levels compared to ACOEM recommendations Claim Type Claims Total Paid Medical Paid Indemnity Paid $4.514B Indemnity 361,242 $8.132B $3.619B Med-Only 665,354 $.434B $.434B 1,026,596 $8.567B $4.053B Total Copyright 2004, CWCI All rights reserved $4.514B CVVCI CLRS – September 2004 CVVCI Actual-to-ACOEM-Recommended Utilization Comparison: ACOEM Injury Categories • Low Back – Soft Tissue Complaints (N=168,885 claims) • Low Back – Nerve Involvement (N=10,416 claims) Utilization Comparison • Actual: Derived from ICIS claim and MBR data • ACOEM: Recommended utilization, from ACOEM Guidelines, 2nd Edition Six Medical Service Categories 1. 2. 3. 4. 5. 6. X-Rays CT/MRI Physical medicine visits Chiropractic visits Back surgeries (Fusions & Laminectomies) TD days Copyright 2004, CWCI All rights reserved CLRS – September 2004 CVVCI Actual – to – ACOEM utilization comparisons Percentage of Claims Covered by ACOEM Guidelines 100% 75% 50% 25% 0% Claims Medical Indemnity ACOEM 48.3% 54.6% 60.4% Non-ACOEM 51.8% 45.4% 39.7% Source: CWCI 2004 Copyright 2004, CWCI All rights reserved Non-ACOEM ACOEM CLRS – September 2004 CVVCI Injury Categories Not Included in ACOEM Guidelines Non-ACOEM Categories Pcnt Claims Trauma Diagnoses 21.6% Non-Specific Diagnoses 30.2% Copyright 2004, CWCI All rights reserved CLRS – September 2004 CVVCI Top 10 Non-Specific Diagnosis Codes Claims Total Paid Total Medical Total Indemnity 1 95990 – Injury –Site NOS 15.2% 14.8% 14.1% 15.60% 2 95980 – Injury Multiple Site/Site NEC 12.0% 18.1% 17.2% 19.0% 3 7998 - Ill-Defined Condition NEC 4.9% 6.9% 5.9% 7.9% 4 71946 – Joint Pain-Lower Leg 1.7% 2.9% 2.7% 3.1% 5 959 - Injury NEC/NOS* 1.6% 2.4% 2.4% 2.4% 6 95910 – Trunk Injury NOS 1.6% 3.8% 3.8% 3.8% 7 95970 – Lower Leg Injury NOS 1.2% 2.7% 2.5% 2.8% 8 7295 - Pain In Limb 1.0% 1.1% 1.0% 1.1% 9 8488 – Sprain NEC 1.0% 0.3% 0.3% 0.3% 7262 - Shoulder Region Dislocation NEC 0.8% 3.2% 3.1% 3.3% 41.0% 56.2% 53.0% 59.3% 10 Top 10 Sub-total: Copyright 2004, CWCI All rights reserved CLRS – September 2004 Actual-to-ACOEM-Recommended Utilization Comparison: Medical Service Categories X-Rays • Not recommended by ACOEM • Strains and other causes of non-specific pain cannot be visualized on plain x-ray films with enough detail to be clinically useful • Actual utilization: Pcnt of ICIS claims with x-rays - Low back / soft tissue claims: 56.2% - Low back / nerve involvement claims: 74.8% Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 CVVCI X-Rays Comparison of Actual to ACOEM-Recommended Utilization 200,000 199,391 Films 150,000 100,000 50,000 22,581 N/A 0 Low Back - Soft Tissue N/A Low Back - Nerve Involvement Actual N/A: Test or service not recommended by ACOEM Guidelines Source: CWCI Copyright 2004, CWCI All rights reserved ACOEM (est.) CLRS – September 2004 Actual-to-ACOEM-Recommended Utilization Comparison: Medical Service Categories Computer Axial Tomography (CT) Scans & Magnetic Resonance Imaging (MRI) • Recommended only to confirm clinical findings and clarify the anatomy prior to surgery1 • If surgery is not contemplated, imaging will not affect the course of treatment or recovery • Actual utilization: Pcnt of claims with CTs/MRIs - Low Back / Soft Tissue: 15.9% - Low Back / Nerve Involvement: 45.7% 1 ACOEM Occupational Medicine Practice Guidelines, ed.2, p. 303 Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 CVVCI CTs & MRIs Comparison of Actual to ACOEM-Recommended Utilization 60,000 42,862 Scans 40,000 20,000 11,424 2,399 0 N/A Low Back - Soft Tissue Actual Low Back - Nerve Involvement ACOEM (est.) N/A: Test or service not recommended by ACOEM Guidelines Source: CWCI Copyright 2004, CWCI All rights reserved CLRS – September 2004 Actual-to-ACOEM-Recommended Utilization Comparison: Medical Service Categories Physical Medicine • Comprises one-third of all outpatient medical costs • ACOEM-recommended number of visits is two or fewer, for teaching a home exercise program • There is insufficient evidence of effectiveness for traction, ultrasound, massage, diathermy, biofeedback, TENS, magnet therapy, acupuncture, neuroreflexotherapy or lumbar supports • Actual utilization: Pcnt of claims with Physical Medicine visits: - Low Back / Soft Tissue: 60.2% - Low Back / Nerve Involvement: 78.3% ACOEM Occupational Medicine Practice Guidelines, ed.2, p. 299. Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 CVVCI Physical Medicine Comparison of Actual to ACOEM-Recommended Utilization 2,000,000 1,486,830 Visits 1,500,000 1,000,000 500,000 117,536 250,052 12,876 0 Low Back - Soft Tissue Actual Source: CWCI Copyright 2004, CWCI All rights reserved Low Back - Nerve Involvement ACOEM (est.) CLRS – September 2004 Actual-to-ACOEM-Recommended Utilization Comparison: Medical Service Categories Chiropractic Manipulation • ACOEM-recommended number of visits equals a maximum of 12 visits in first 30 days for Low Back / Soft Tissue claims • Not recommended for Low Back / Nerve Involvement claims • Actual utilization: Pcnt of claims with chiropractic visits: - Low Back / Soft Tissue: 10.7% - Low Back / Nerve Involvement: 32.5% ACOEM Occupational Medicine Practice Guidelines, ed.2, p. 299. Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 CVVCI Chiropractic Manipulation Comparison of Actual to ACOEM-Recommended Utilization 500,000 448,235 Visits 400,000 300,000 200,000 121,255 100,000 23,772 0 N/A Low Back - Soft Tissue Low Back - Nerve Involvement Actual N/A: Test or service not recommended by ACOEM Guidelines Source: CWCI Copyright 2004, CWCI All rights reserved ACOEM (est.) CLRS – September 2004 Actual-to-ACOEM-Recommended Utilization Comparison: Medical Service Categories Back Surgery (Spinal Fusions & Laminectomies) • ACOEM recommends only patients with severe disc disease, spinal stenosis or thoracic/lumbar disc displacement • Fusions have a very low success rate in the absence of serious conditions • Surprisingly high surgical rate for backache NOS (5.2%) and sprain of sacrum (4.0%) • Actual utilization: Pcnt of claims with specified surgery: • - Low Back / Soft Tissue: 1.4% (n=2,374) • - Low Back / Nerve Involvement: 9.3% (n=968) Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 Back Surgeries (Fusions & Laminectomies) Comparison of Actual to ACOEM-Recommended Utilization 3,000 2,374 2,000 989 1,000 403 0 N/A Low Back - Soft Tissue Actual N/A: Test or service not recommended by ACOEM Guidelines Source: CWCI Copyright 2004, CWCI All rights reserved Low Back - Nerve Involvement ACOEM (est.) CVVCI CLRS – September 2004 CVVCI Actual-to-ACOEM-Recommended Utilization Comparison: Medical Service Categories Paid Temporary Disability Days • Average Length of Paid TD : Low Back / Soft Tissue: Low Back / Nerve Involvement: 63.9 days 113.0 days • NHIS study showed averages of 6 to 10 days for comparable injuries Copyright 2004, CWCI All rights reserved CLRS – September 2004 CVVCI Paid Temporary Disability Days Comparison of Actual to ACOEM-Recommended Utilization Paid TD Days 5,000,000 4,000,000 3,000,000 2,000,000 1,000,000 0 Low Back - Soft Tissue Low Back - Nerve Involvement 4,750,518 858,913 ACOEM (Low est.) 446,058 45,606 ACOEM (High est.) 743,430 76,010 Actual Source: CWCI Copyright 2004, CWCI All rights reserved CLRS – September 2004 Summary of ACOEM-Recommended Utilization: CVVCI Percentage of Tests & Services Recommended by ACOEM, Based on the Evidence, for Two Low Back Conditions 60% 40% 20% 12.0% 0% N/A N/A X-Rays 7.9% 5.2% 9.6% 4.1% N/A N/A CT/MRI Phys Med Low Back - Soft Tissue Chiro Copyright 2004, CWCI All rights reserved N/A Surgury TD (Days) Low Back - Nerve Involvement N/A: Test or service not recommended by ACOEM Guidelines Source: CWCI 15.6% 8.8% CLRS – September 2004 Actual-to-ACOEM-Recommended Utilization Comparisons A common response to conservative nature of ACOEM: “The absence of high-grade evidence is not conclusive proof of lack of value to the injured worker.” So, what and where is the value to the injured worker? Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 ACOEM: Impact on Workers’ Comp System Issues: 1. Actual–to–ACOEM-Recommended Utilization Comparisons 2. Incremental Effects of Medical Services Beyond ACOEM-Recommended Levels Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 CVVCI Incremental Effects Beyond ACOEM-Recommended Levels Low Back – Soft Tissue Complaints Incremental Effects on Claim Development for Treatment Beyond ACOEM: Preliminary Results on: • • • • Total Claim Costs Medical Costs Overall Length of Treatment Length of Disability (TD days) 5 Medical Service Categories 1. 2. 3. 4. 5. X-Ray Films CT/MRI Physical Medicine Chiropractic Back Surgeries (Fusions & Laminectomies) Copyright 2004, CWCI All rights reserved CLRS – September 2004 CVVCI Incremental Effects Beyond ACOEM: Preliminary Results Low Back - Soft Tissue Complaints Average Cost per Service Visit Avg Cost/Visit $3,000 $2,668 $2,250 $1,500 $602 $750 $197 $68 $63 PHYS MED CHIRO $0 X-RAY CT/MRI Note: average surgery fees are for professional component only Copyright 2004, CWCI All rights reserved SURG CLRS – September 2004 CVVCI Incremental Effects Beyond ACOEM : Preliminary Results Low Back - Soft Tissue Complaints Additional Payments Per Indemnity Claim Per Service Beyond ACOEM $100,000 $81,422 $75,000 $50,000 $25,000 $18,162 $2,738 $0 X-RAY CT/MRI Medical Copyright 2004, CWCI All rights reserved SURG Indemnity CLRS – September 2004 CVVCI Incremental Effects Beyond ACOEM : Preliminary Results Additional Treatment & Temporary Disability Days Per Indemnity Claim Per Service Beyond ACOEM Addtl Days/Srvc 800 600 400 200 0 X-RAY CT/MRI SURG Addtl Tx Length 62.9 230.5 716.8 Addtl TD Days 6.1 43.9 229.1 Copyright 2004, CWCI All rights reserved CLRS – September 2004 CVVCI Incremental Effects Beyond ACOEM : Preliminary Results Physical Medicine & Chiropractic Manipulation: Percent of Claims Above & Below ACOEM Levels 100% PHYS MED CHIRO Above ACOEM 87.7% 68.2% Below ACOEM 12.3% 31.8% Pcnt of Clms >2 Visits >12 Visits In 1st 30 days 75% 50% 25% 0% Copyright 2004, CWCI All rights reserved CLRS – September 2004 CVVCI Incremental Effects Beyond ACOEM : Preliminary Results Low Back - Soft Tissue Complaints Incremental Cost Per Indemnity Claim By Services Visits Beyond ACOEM $40,000 Addtl Paid/Clm $30,000 $20,000 ACOEM Phy ACOEM Med Chiro $10,000 $0 1 13 35 60 ($10,000) Visits Physical Medicine Copyright 2004, CWCI All rights reserved Chiropractic 85 CLRS – September 2004 CVVCI Incremental Effects Beyond ACOEM : Preliminary Results Summary of Incremental Effects on Claim Development - Phys Med & Chiro Services Low Back - Soft Tissue Complaints Physical Medicine Above ACOEM Total Claim Cost Within ACOEM Chiropractic Pcnt Diff Above ACOEM Within ACOEM Pcnt Diff $32,586 $28,991 12.4% $49,192 $31,408 56.6% Medical $12,844 $11,482 11.9% $20,815 $13,559 53.5% Indemnity $19,742 $17,509 12.8% $28,377 $17,849 59.0% Treatment Length 447.1 391.2 14.3% 749.3 427.4 75.3% TD Days 100.1 92.1 8.7% 155.6 119.9 29.8% Copyright 2004, CWCI All rights reserved CLRS – September 2004 ACOEM: Impact on Workers’ Comp System Summary: 1. Significant differences between current and ACOEM-recommended utilization patterns 2. Significant variation in treatment selection, intensity and duration 3. Excess utilization beyond ACOEM is not associated with: • • • 4. Overall lower medical costs Shorter treatment Faster return-to-work Physical medicine & chiropractic utilization at or below ACOEM is associated with positive claim outcomes Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 Issues in Estimating ACOEM’s Impact • Implications for: 1. 2. 3. 4. Injured Worker Providers & MCOs Payors & Claims Administrators Labor Code, Rules & Regs & Legal Interpretation • Difficultly in Estimating Savings 1. 2. Workers Comp is not Group Health Double-Counting Util Mgt. Savings - ER vs. EE PTP - Network Effects - PT/Chiro Visit Caps Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 CVVCI Areas of Research – Part 2: Benefit Delivery 1. Alternative Dispute Resolution 2. 2-Year Temporary Disability Cap 3. 1st Medical Pay Copyright 2004, CWCI All rights reserved CLRS – September 2004 CVVCI Alternative Dispute Resolution • Significant expansion to new industries • Little outcomes data Data Sample Claims Total Benefits Medical Indemnity ADR 2,230 $ 33,547,649 $ 12,835,963 $ Statutory 9,591 $ 175,123,851 $ 67,555,187 $ 107,568,665 11,821 $ 208,671,500 $ 80,391,150 $ 128,280,351 Total Copyright 2004, CWCI All rights reserved 20,711,686 CLRS – September 2004 CVVCI Alternative Dispute Resolution: Rate of Attorney Involvement Rate of Attorney Involvement 40% 32.2% 30% 20% 10% 9.0% 0% ADR Copyright 2004, CWCI All rights reserved Statetory CLRS – September 2004 CVVCI Alternative Dispute Resolution: Average Benefit Costs Medical Attorney Involvement Indemnity ADR Statutory ADR NO $ 5,330 $ 1,788 $ 8,191 YES $14,600 $ 16,270 Total $ 6,161 $ 6,444 Total Benefits Statutory ADR Statutory $ 1,745 $13,520 $ 3,533 $36,710 $31,586 $51,309 $ 47,856 $10,928 $10,698 $17,089 $ 17,142 No Significant Difference Copyright 2004, CWCI All rights reserved CLRS – September 2004 CVVCI Alternative Dispute Resolution: Employer-level Outcome Variation Top 3 Governing Classes ADR ER #1 ADR ER #2 ADR ER #3 Statutory System Electrical $19,321 $20,865 $15,976 $16,283 Wallboard Application $14,967 $17,452 $20,021 $20,413 Carpentry--Private Residence $14,286 $10,518 $18,231 $17,370 Copyright 2004, CWCI All rights reserved CLRS – September 2004 CVVCI 2-Year Temporary Disability Cap (LC §4656) • Injuries o/a 4/19/04 • TD cap -- max. of 104 weeks 60% Pcnt of Claims & Benefits >2Yrs of TD by Timeframe 40% 20% 0% Pcnt All Claims Pcnt All TD Payments (All TD Claims) Pmts >2Y Post DOI 12.6% 26.0% Pmts >2Y 1st TD Date 8.5% 18.6% Est. Paid TD Days 1.0% 5.4% Pmts >2Y 1st TD Pymt 7.7% 16.1% Copyright 2004, CWCI All rights reserved CLRS – September 2004 CVVCI 2-Year TD Cap: Exempt Injuries Acute & Chronic Hepatitis B & C 0.0% Amputations 1.3% Severe Burns 0.9% HIV 0.0% High-Velocity Eye Injuries 0.3% Chemical Burns to Eyes 0.1% Pulmonary Fibrosis 0.0% Chronic Lung Disease 0.4% Copyright 2004, CWCI All rights reserved Exempt Injuries: • 2.9% of TD Claims • 5.3% of TD Pmts • 88.7% Higher Benefits CLRS – September 2004 CVVCI Measuring First Medical Pay (LC §5402) • Payors cover medical benefits prior to accept/reject decision • $10K Cap on Initial Medical Payments • Timeframe not defined 5% Pcnt of Claims >$10k by Timeframe 4% 3% 2% 1.3% 1.5% 45 Days 60 Days 1.9% 1% 0% Copyright 2004, CWCI All rights reserved 90 Days CLRS – September 2004 CVVCI Measuring First Medical Pay Initial medical payout patterns: Estimated 1st Pay $60,000 $40,000 $20,000 $0 All Claims <= $10,000 Paid > $10,000 Paid 45 Days 60 Days 90 Days $1,440 $796 $49,682 $1,576 $883 $47,433 $1,836 $1,025 $42,744 Copyright 2004, CWCI All rights reserved Future Issues: • Denial Rates • Claim Utilization • Utilization • Recovery CLRS – September 2004 California Workers’ Compensation Reform CVVCI “Self-Executing” Changes --AB 749 (2003) SB 227/228/899 (2004) -• Removal of PTP Presumption of Correctness • OMFS & Medicare & 5% Reduction • Outpatient Surgery Facility Fee Schedule • ACOEM • 2nd Opinion for Back Surgeries • Utilization Review • 1st Medical Pay Coming Attractions… • Apportionment • Expansion of ADR • New PD Schedule • 2-yr Cap on TD • New UR Protocols • Medical Networks Copyright 2004, CWCI All rights reserved CLRS – September 2004 Strategies for Payors 1. Operations: Get up to speed on new rules • Medical • Indemnity • Rules & Regs 2. Data & analysis & benchmarking • Tracking internal operations & external vendors - Networks - Fee Schedules - Utilization - Claim Operations Copyright 2004, CWCI All rights reserved CVVCI CLRS – September 2004 CVVCI Public Policy Research Implications & California Workers’ Compensation System Reform September 14, 2004 California Workers’ Compensation Institute www.cwci.org Copyright 2004, CWCI All rights reserved